TOWARDS REGULATION OF AI SYSTEMS Artificial intelligence (AI) systems are increasingly being Global perspectives on the development of a legal framework used in our everyday life and in almost every kind of human activity, for instance in areas such as education and welfare, on Artificial Intelligence (AI) systems information society, judicial and law enforcement systems OF AI SYSTEMS REGULATION TOWARDS and recently to fight the Covid-19 pandemic. Very often referred to as “game changers”, AI systems can bring about based on the Council of Europe’s standards many benefits, but they can also raise complex and important legal, ethical, policy and economic issues. on human rights, democracy and the rule of law This publication aims to feed the ongoing reflections within the CAHAI on the analysis of the challenges arising from AI systems and possible regulatory responses. Firstly, it sets out to inform the reader of the progress of the work of the Ad Hoc Committee on Artificial Intelligence (CAHAI) and it presents several studies produced under the CAHAI. Secondly, it brings in national perspectives of different observer States, from Israel, Japan and Mexico, to support the development of an international legal framework of artificial intelligence based on the standards established by the Council of Europe. www.coe.int/cahai PREMS 107320 ENG The Council of Europe is the continent’s leading human rights organisation. It comprises 47 member states, Compilation of contributions Prepared by the including all members of the European Union. All Council DGI (2020)16 CAHAI Secretariat www.coe.int of Europe member states have signed up to the European Convention on Human Rights, a treaty designed to protect human rights, democracy and the rule of law. The European Court of Human Rights oversees the implementation of the Convention in the member states. TOWARDS REGULATION OF AI SYSTEMS Global perspectives on the development of a legal framework on Artificial Intelligence systems based on the Council of Europe’s standards on human rights, democracy and the rule of law Compilation of contributions prepared by the CAHAI Secretariat December 2020 This publication has been funded through a voluntary contribution of Japan Authors: Isaac BEN-ISRAEL Jorge CERDIO Arisa EMA Leehe FRIEDMAN Marcelo IENCA Alessandro MANTELERO Eviatar MATANIA Catelijne MULLER Hideaki SHIROYAMA Effy VAYENA Council of Europe Study DGI (2020)16 The views expressed in this document are the responsibility of the authors and do not necessarily reflect the official line of the Council of Europe. All request concerning the reproduction or translation of all or part of this document should be addressed to the Directorate of Communication (F-67075 Strasbourg Cedex or [email protected]). All other correspondence concerning this document should be addressed to the Directorate General Human Rights and Rule of Law. Layouts and cover page: Council of Europe, Information Society Department Images: Shutterstock This publication has not been copy-edited by the SPDP Editorial Unit to correct typographical and grammatical errors. @ Council of Europe, December 2020 Contents OPENING WORDS .................................................................................................. 5 SUMMARY ............................................................................................................. 11 TITLE I. INTERNATIONAL PERSPECTIVE OF AI SYSTEMS REGULATION BASED ON THE COUNCIL OF EUROPE’S STANDARDS ............................................... 8 PRELIMINARY CHAPTER. Progress report of the Ad hoc Committee on Artificial Intelligence (CAHAI) .......................................... 8 I. Executive summary ............................................................................................. 8 II. Background and CAHAI's mandate ..................................................................... 9 III. Progress of work ................................................................................................. 9 IV. The impact of the COVID-19 pandemic on CAHAI's activities ........................... 11 V. Working methods, documents and roadmap ..................................................... 12 VI. Synergy and complementarity of CAHAI's work with that of other international organisations ..................................................... 13 VII. Budgetary implications ...................................................................................... 13 VIII. Conclusions and concrete proposals for action ................................................. 14 Annex I. Draft table of contents of the Feasibility Study .............................................. 15 Annex II. CAHAI Roadmap ......................................................................................... 17 Annex III. Terms of reference of the Working Groups ................................................. 18 CHAPTER I. The Impact of AI on Human Rights, Democracy and the Rule of Law .......................................................................... 21 I. Introduction ....................................................................................................... 21 II. Defining AI ........................................................................................................ 22 i. Defining AI for regulatory purposes...................................................................... 23 III. Impact of AI on Human Rights, Democracy and the Rule of Law ...................... 23 i. AI & Respect for Human Value ............................................................................ 24 ii. AI & Freedom of the Individual ............................................................................. 26 iii. AI & Equality, Non-discrimination and Solidarity .................................................. 27 iv. AI & Social and Economic Rights AI in and around the Workplace ..................... 28 v. AI & Democracy ................................................................................................... 29 vi. AI & Rule of Law .................................................................................................. 31 1 IV. How to address the impact of AI on Human Rights, Democracy and Rule of Law? ........................................................................... 32 i. Putting human rights in an AI context .................................................................. 32 ii. Measures for compliance, accountability and redress ......................................... 32 iii. Protecting democracy, democratic structures and the rule of law ....................... 34 V. What if current human rights, democracy and the rule of law fail to adequately protect us? ...................................................... 35 i. Question Zero ....................................................................................................... 35 ii. Red Lines ............................................................................................................. 35 iii. Some adapted or new human rights .................................................................... 36 iv. Future scenarios .................................................................................................. 36 CHAPTER II. AI Ethics Guidelines: European and Global Perspectives ..................................................................... 38 I. Executive Summary .......................................................................................... 38 II. Key findings ...................................................................................................... 39 III. Key policy implications ...................................................................................... 40 IV. Introduction ....................................................................................................... 41 V. Methodology ..................................................................................................... 42 i. Screening ............................................................................................................. 42 ii. Eligibility Assessment ........................................................................................... 43 iii. Content Analysis .................................................................................................. 45 iv. Normative ethical and policy analysis .................................................................. 45 VI. Findings ............................................................................................................ 46 i. Limitations ............................................................................................................ 53 ii. Discussion and Normative Ethical Analysis ......................................................... 54 iii. Policy Implications ................................................................................................ 57 Acknowledgments ........................................................................................................ 59 References ................................................................................................................... 59 CHAPTER III. Analysis of international legally binding instruments. Final report............................................................ 61 I. Executive Summary .......................................................................................... 61 II. Scope and Methodology ...................................................................................