FirstMonday,Volume16,Number117November2011

Facebook,likemanycommunicationservicesandsocialmediasites,usesitsTermsofService(ToS)toforbid childrenundertheageof13fromcreatinganaccount.Suchprohibitionsarenotuncommoninresponsetothe ChildrensOnlinePrivacyProtectionAct(COPPA),whichseekstoempowerparentsbyrequiringcommercialWeb siteoperatorstoobtainparentalconsentbeforecollectingdatafromchildrenunder13.Giveneconomiccosts,social concerns,andtechnicalissues,mostgeneralpurposesitesopttorestrictunderageaccessthroughtheirToS.Yetin spiteofsuchrestrictions,researchsuggeststhatmillionsofunderageuserscircumventthisruleandsignupfor accountsonFacebook.Givenstrongevidenceofparentalconcernaboutchildrensonlineactivity,thisraises questionsofwhetherornotparentsunderstandToSrestrictionsforchildren,howtheyviewchildrenspracticesof circumventingagerestrictions,andhowtheyfeelaboutchildrensaccessbeingregulated.Inthispaper,weprovide surveydatathatshowthatmanyparentsknowthattheirunderagechildrenareonFacebookinviolationofthesites restrictionsandthattheyareoftencomplicitinhelpingtheirchildrenjointhesite.Ourdatasuggestthat,bycreating acontextinwhichcompanieschoosetorestrictaccesstochildren,COPPAinadvertentlyunderminesparentsability tomakechoicesandprotecttheirchildrensdata.Ourdatahavesignificantimplicationsforpolicymakers, particularlyinlightofongoingdiscussionssurroundingCOPPAandotheragebasedprivacylaws. Contents Introduction BackgroundontheChildrensOnlinePrivacyProtectionAct(COPPA) Researchquestions Dataandmethods Results:Parentalpracticesandattitudes Discussion:TheefficacyofCOPPA Conclusion Introduction Ineedyouradvice.My11yearolddaughterwantstojoinFacebook.Shesaysthatallofherfriendsareon Facebook.AtwhatagedoyouthinkIshouldallowhertojoinFacebook?Thisquestionwasposedbyamotherto danahboyd,oneoftheauthorsofthisarticle,aftershegaveatalkaboutteensonlinepracticestoaroomfullof parentsinawealthyCaliforniacommunity.Thisquestioniscommonifnotubiquitousamongparentswhoare engagedwiththeirchildrensonlineactivity.Parentswantguidance,reassurance,andwordingthattheycanuseto negotiateonlineaccesswiththeirchildren.Theyoftenfeeluncertaininthedigitalageandtheyareeagerfor informationthatwillinformsounddecisionmakingprocesses. IknowthatFacebookisntmeantforchildrenundertheageof13,shecontinued,butImnotsurewhattheharm isinlettingmydaughterjoin.ShesmatureforherageandourcomputerisinthelivingroomandIcouldrequire hertobefriendswithme.AmIabadmotherifIletmy11yearoldonFacebook? Thequestionconnectsahostofanxietiesthatsurroundparentingtoakeyissueatthecenterofcurrentpolicy debatesaboutchildrensonlineactivitiestheappropriatenessandpurposeofFacebooksagerestrictions. Lookingatthemodernarrayofpopulargeneralpurposecommunicationservices(includingGmailandAIM)and socialmediaWebsites(suchasFacebookandYouTube),theageof13oftenservesasthecutoffforrestrictinguser access.ThereasonsforthisstemfromhowcompanieshavechosentorespondtoalawknownastheChildrens OnlinePrivacyProtectionAct(COPPA).Enactedin1998andfinalizedbyaU.S.FederalTradeCommission(FTC) rulemakingin2000,COPPAregulatestheconditionsunderwhichcommercialWebsitesthattargetchildrenunder13 orhaveactualknowledgeofchildrenunder13ontheirsitecancollectanduseinformationaboutthem.Asaresult ofCOPPA,Websiteoperatorsmustobtainaffirmativeconsentfromparentsbeforechildrenunder13cancreatean account.ManyWebsiteshavechosentoavoidtheseobligationsbybanningallthoseyoungerthan13throughthe TermsofService(ToS)contractstowhichnewusersmustconsent.

Yetresearchshowsthatsuchbansareprovingineffective.Millionsofunder13youthareonFacebook(Lenhart,et al.,2010Lenhart,etal.,forthcoming).Underagechildrengainaccessbylyingabouttheirageduringsite registration,therebyallowingFacebooktoavoidtheactualknowledgerequiredbyCOPPAtotriggeritsprotections andprohibitions. ThisdiscrepancypromptedustoaskwhatparentsknowaboutunderagechildrensparticipationonFacebook.On thebasisofdiscussionswithparentspriortoconductingoursurvey[1],welearnedthatparentsdidnotidentify COPPAoreventhegeneralissueofprivacyasthesourceofagerestrictionsonFacebook.Instead,theyoftentold usthatFacebook,MySpace,andTwitterarematuresites,meantonlyforteenagerswhoareoldenoughand matureenoughtohandlethevariousonlinesafetyissuespresent.Meanwhile,manyofthesameparentsappeared toknowthattheirunder13childrenwereaccessingvarioussocialmediasites.Givenourongoingconversations withparentsinotherresearchcontextsandthehighincidenceofchildrenlyingabouttheiragetogainaccessto sitesthatpurporttoforbidthem,wesoughttoinvestigatewhetherchildrenareevadingagerestrictionsagainsttheir parentswishes,whetherparentsareagnosticorunawareofsuchrestrictions,orwhetherparentsarecomplicitin childrenscovertparticipationonthesesites. Bysurveyinganationalsampleofparentsandguardianswhohavechildrenages1014livingwiththem,we learnedthatmanyparentsdonotsupportthesiteimposedagerestrictionsthatlimitchildrensaccessto communicationservicesandsocialmedia.Ratherthanofferingparentseasyandexplicitchoicestocontrolhowtheir childrensdatashouldbecollectedandusedastheChildrensOnlinePrivacyProtectionActismeanttodo manycompanieshavechosentoavoidCOPPAsregulatoryframeworkthroughagebasedbanswhichultimately undermineparentalgoalsandpotentiallydiscouragethemfromprovidingtheirchildrenwithaccesstotheonline experiencestheydesire.Companiespreferenceforavoidingtheseobligationsareunderstandable,giventhe economiccosts,socialconcerns,andtechnicalissuesinvolvedinverifyingchildrensageandparentalconsent. Althoughmanysitesrestrictaccesstochildren,ourdatashowthatmanyparentsknowinglyallowtheirchildrento lieabouttheirageinfact,oftenhelpthemtodosoinordertogainaccesstoagerestrictedsitesinviolationof thosesitesToS.Thisisespeciallytrueforgeneralaudiencesocialmediasitesandcommunicationservicessuchas Facebook,Gmail,andSkype,whichallowchildrentoconnectwithpeers,classmates,andfamilymembersfor educational,social,orfamilialreasons. Thisresultsinseveralunintendedconsequences.First,becausechildrenlieabouttheirage,thesesitesstillcollect dataaboutchildrenunder13thatCOPPAwouldotherwiseprohibitwithoutexplicitparentalconsent.Second,rather thanprovidingparentswithadditionalmechanismstoengagewithsiteshonestlyandnegotiatetheproperboundsof datacollectionabouttheirchildren,parentsareoftenactivelyhelpingtheirchildrendeceivethesitesinorderto achieveaccesstotheopportunitiestheydesire.Wereparentsandtheirchildrenabletogainaccesshonestly,the siteprovidersmightwellpresentthemwithchildappropriateexperiencesandinformationdesignedtoenhance safety,provideforbetterprivacyprotections,andencourageparentchilddiscussionsofonlinesafety.With deceptionbeingtheonlymeansofaccess,thesepossibilitiesfordiscussion,collaborationandlearningarehindered. Finally,suchahighincidenceofparentsupportedToScircumventionresultsinanormalizationofthepracticeof violatingonlinerules.ThisresultsinaworstcasescenariowherenoneofCOPPAspublicpolicygoalsformediating childrensinteractionswiththeseWebsitesaremet. AsCOPPAandotherprivacylawssuchastheDoNotTrackKidsActof2011(U.S.Congress,2011)are debatedinpolicycircles,itisimportanttounderstandtheunintendedconsequencesoftheseagebasedapproaches toprivacyprotection.Thispaperoffersdataonwhatparentsdoanddonotknowaboutagerestrictions,howthey respondtothemwithregardtotheirchildren,andhowtheyfeelabouttheroleofgovernmentandcompaniesin protectingtheirchildrenonline.WehighlighttheimplicationsthatourfindingshaveforCOPPAandsimilarlaws. Finally,werecommendthatprivacypolicymakingavoidrulesbasedonageorotherdemographiccategories,as theywouldlikelyhavesimilarunintendedconsequences.

BackgroundontheChildrensOnlinePrivacyProtectionAct(COPPA) In1998,theU.S.CongressenactedtheChildrensOnlinePrivacyProtectionAct(COPPA),requiringtheFederal TradeCommissiontoregulatecommercialWebsiteoperatorsofsitestargetedatchildrenorwhohaveactual knowledgeofachildsparticipation.TheframeworkthattheyprovidedincludesprocessestoensurethatWebsite operatorsobtainverifiableparentalconsentpriortothecollectionanduseofinformationonchildrenunder13 yearsold(Matecki,2010U.S.Congress,1998U.S.FederalTradeCommission,1998).Althoughearlier incarnationsofthebilluseddifferentagesascutoffs,publicinterestorganizationsencouragedthecommitteetoset theageat13(Mulligan,1998).Detailsofhowregulatorssettledontheageof13areunclear. InenactingCOPPA,legislatorshopedtoprotectchildrenfrompredatorymarketing,physicalsafetyriskssuchas stalkingorkidnapping,andotherabusesthatmayresultfromothersaccesstochildrensprivatedata(Matecki, 2010U.S.FederalTradeCommission,2007Warmund,2001Bryan,1988).Lawmakersalsointendedthat,by requiringcompaniestoinformparentsoftheirdatacollectionpracticesandobtainpermissionforusesoftheir childrensdata,COPPAwouldprovideparentswithbettertoolstoprotecttheirchildreninanonlineera(Bryan, 1998).Therewasconcernthatonlinetechnologiescouldeasilycircumventthetraditionalgatekeepingroleofthe parent[2].TheparentalempowermentapproachtakenbyCOPPAwassimilartotheapproachtakenby regulatorsinaddressingothermediasuchastelevision[3]. Whilefocusingontheadmirablegoalsofprotectingchildrenandempoweringparents,policymakersalsobelieved COPPAwouldnotimposesignificantobstaclestoinnovation,economicgrowth,oryouthaccesstoonlinelearning opportunities(U.S.FederalTradeCommission,2010Bryan,1998). IndustryresponsestoCOPPA COPPAhassucceededbothinstoppingsomeegregiouspredatorydatapracticesandinraisingsomelevelof awarenessoftheissueofcollectingdataaboutchildren(U.S.FederalTradeCommission,2010).TheFTChas

activelyenforcedCOPPA,leveragingcivilpenaltiesagainstthosewhofailtoobtainparentalconsentorineffectively implementitsprovisions(Matecki,2010).ManyconsumergroupsandchildrensadvocateshaveheraldedCOPPA (e.g.,CommonSenseMedia,2010bMontgomery,2001).AsaresultofCOPPA,companiesthattargetyoungusers (e.g.,Webkinz,ClubPenguin,Neopets,etc.)haveeitherlimitedfunctionalitytomakecomplianceeasieror developedmechanismstoobtainparentalconsent,oftenthroughtheuseofacreditcard.Inastudyayearafter COPPAwasenacted,theCenterforMediaEducationfoundasignificantdeclineindatacollectedaboutchildrenby onlineWebsites(Montgomery,2001). WhilemanyoftheoutcomesofCOPPAarepositive,theFederalTradeCommissionhasconcededthat,inresponse toCOPPA,onlineindustrieshavegenerallyneitherinnovatednoremphasizedmechanismsforobtainingverifiable parentalconsent(Matecki,2010).Instead,toavoidtheeconomiccost,socialissues,andtechnicalchallenges associatedwithobtainingconsent,toevadethedifficultiesofdealingwithyouthspersonaldata,andtosteerclear fromtheheftyfinesandpublicembarrassmentofenforcementactions,manyWebsitessimplydecidetolimittheir servicestochildren13andolder(Mateki,2010Aftab,2005Warmund,2001).Theserestrictionsaretypically articulatedinthesitesTermsofService,towhichusersmustconsentwhentheycreateanaccount.Uponcreating anaccount,mostsitesaskusersfortheirageortheirbirthdatetoascertainiftheyareofagetomeetsite requirements.Whenapotentialuserindicatesbeingunder13yearsofage,theWebsitedoesnotallowthatperson tocreateanaccount. Facebook,forexample,includesYouwillnotuseFacebookifyouareunder13asaconditionofparticipationinits StatementofRightsandResponsibilities(Facebook,2011a).InitsToS,Facebookreservestherighttoterminate accountsofthosewhoviolatethiscondition:IfyouviolatetheletterorspiritofthisStatement,orotherwisecreate riskorpossiblelegalexposureforus,wecanstopprovidingallorpartofFacebooktoyou.Whenunderageusers attempttojoinFacebookhavingspecifiedanageunder13duringthesignupprocess,theyaretold,Sorry,you areineligibletosignupforFacebook. ResponseofchildrentoFacebooksunder13ban InresponsetoFacebooksrestrictions,manyyoungpeopleappeartolieabouttheiragetogainaccesstothese services,ofteninviolationoftheToS.In2010,PewResearchreleasedareportstatingthat73%ofonline Americanteensages12to17usedanonlinesocialnetworkwebsite.Inparticular,78percentof14yearolds,62 percentof13yearolds,and46percentof12yearoldsreportusingsocialnetworksites(Lenhart,etal.,2010). AsPewstatesinitsreport,Theseagefindingsareunderstandableinlightofagerestrictionsonsocialnetworking sitesthatrequestthat12yearoldsrefrainfromregisteringorpostingprofiles,butdonotactivelypreventit[4].In 2011,PewrevisitedthisissueinanewreportwithcollaboratorsatCableintheClassroomandtheFamilyOnline SafetyInstitute.Theyfoundthat45percentofonline12yearoldsreportusingasocialnetworksitecomparedwith 82percentof13yearolds(Lenhart,etal.,forthcoming).Additionally,theyfoundthat44percentofonlineteens admittolyingabouttheiragesotheycouldaccessaWebsiteorsignupforanonlineaccount.AlthoughPew highlightsthatthenumberof12yearoldsonsocialnetworksitesissignificantlylowerthanthe13and14year olds,thefactthatalittlelessthanhalfof12yearoldsdoreportusingthesitesandthefactthatalittlelessthan halfofallyouthPewsurveyedreportedlyingabouttheiragetogetaccesstoaWebsitesuggeststhatviolating agerestrictionsiscommon. Pewisnottheonlyorganizationtoidentifyunderageusers.AlthoughCOPPAonlyappliestoU.S.children,mostWeb sitesToSrestrictionsapplytoallusers,regardlessofjurisdiction.InEurope,theEUKidsOnlinesurveyincluded 2010datashowingwideadoptionofsocialnetworksitesbyyoungchildrenthereaswell.Ofonlinechildren,31 percentof10yearolds,44percentof11yearolds,and55percentof12yearoldsreportedusingasocial networksite(Livingstone,etal.,underreview).Thosechildrenwhoseparentsplacednorestrictionsonsocial networksitesorwhoallowedtheirchildrentocreatesocialnetworksiteprofilesiftheyaskedforpermissionwere farmorelikelytojoinasocialnetworksitethanthosewhowereforbidden,suggestingsomeeffectivenessfor parentalinfluence.Alsopertinentistheseresearchersfindingthatincountrieswherethedominantsocialnetwork sitehasnoagerestriction,theproportionofchildrenunder13reportingthattheyusesocialnetworksitesis generallyhigher. FewinthenewsmediatookspecialnoteofthefindingsbyeitherPeworEUKidsOnlineregardingunder13suseof Facebookdespitetheirviolationofthesitesterms.Thischangedwhen,inMarch2011,aNewYorkTimesarticle reportedfiguresfromcomScoresuggestingthat3.6millionofFacebooks153millionmonthlyvisitorsin[theUnited States]areunder12[5](RichtelandHelft,2011).Then,inMay2011,ConsumerReportsannouncedfindingsthat [o]fthe20millionminorswhoactivelyusedFacebookinthepastyear,7.5millionofthemwereyoungerthan13 (ConsumerReports,2011). ThesereportsofunderageusersonFacebookpromptedapublicdiscussionabouttheefficacyofthecurrentsystem (Heussner,2011Rochman,2011).Inshort,theprevalenceofunderageusersonFacebookandotheronlinesites raisesseriousquestions,includingthoseofanethicalnatureaswellasquestionsoflegalliabilityforviolatingTerms ofServiceagreements(Kerr,2011). Facebooksresponsetocircumventionbychildrenoftheunder13ban Inresponsetoreportsofunderageusersandthewaveofnewscoveragethatfollowed,MozelleThompsona memberofFacebooksadvisoryboardwhoisalsoaformerFTCcommissionerassertedthatFacebookremoves 20,000peopleaday,peoplewhoareunderage(Carr,2011).Indeed,Facebooktakesvariousmeasuresbothto restrictaccesstochildrenanddeletetheiraccountsiftheyjoin.Forexample,Facebookallowsitsuserstoreport underagecommunitymembersthroughaformthatsays,Ifyouarereportingachildsaccountregisteredundera falsedateofbirth,andthechildsageisreasonablyverifiableasunder13,wewillpromptlydeletetheaccount.[...] Ifthereportedchildsageisnotreasonablyverifiableasunder13,thenwemaynotbeabletotakeactiononthe account(Facebook,2011b). Thebottomline,however,isthatyouthunder13appeartobeonFacebookinlargenumbers.AndwhileFacebook takesstepstoremoveunderageusers,FacebooksCEOMarkZuckerbergstatedatatalkoneducationthat Facebookonlyimposestheunder13prohibitionbecauseofCOPPAsrestrictions(LevRam,2011).Hearguedthat youngerchildrenshouldbeallowedtogetonFacebookbecausedoingsoisanimportantpartoftheeducational

process.WithregardtoCOPPA,Zuckerbergstated,Thatwillbeafightwetakeonatsomepoint(LevRam, 2011). GiventheextraordinarypopularityofFacebook,manypolicymakersandjournalistshavefocusedonFacebooks failuretoverifytheageofusersproperlyeventhoughFacebookcomplieswithCOPPA,takesmeasurestorestrict accesstochildren,andactivelydeleteschildrensaccounts.Partofthechallengeisthatageverificationisnot technicallyeasynorisitwithoutseriouslegal,economic,andsocialconcerns[6].In2005,theFederalTrade Commissionreceivedfivecommentsrelatingtounderageusers: Twocommentersstatedthatsomechildrenfalsifytheirageto registeronWebsitesthatscreenforage,butprovidednoempirical informationastohowfrequentlythisoccurs.Othercommenters statedthatagefalsificationisnotaprobleminpractice,especially whenWebsitesfollowCommissionstaffguidanceandrequestage informationinaneutralmanner,thensetsessioncookiestoprevent childrenfromlaterchangingtheirage.Onecommentersuggested thatattemptingtoregulateonlineagefalsificationwouldbe unrealistic,becausethereisnowaytopreventcertainchildrenfrom falsifyingtheirage.(U.S.FederalTradeCommission,2006) TheFederalTradeCommissionaddressedtheageverificationissueinbothits2005and2010reviewsofCOPPAbut didnotrecommendtakinganyparticularactionontheissue. ThereneweddebateoverCOPPAandagebasedprivacyregulations Beginningatthe10yearmarkofCOPPAenforcement,therehasbeenrenewedinterestnotonlyinrevisitingthe COPPARulebutalsoinextendingit(U.S.FederalTradeCommission,2011U.S.Congress,2011).On24March 2010,theFTCpublishedaFederalRegisterNoticeforpubliccommentsregardingCOPPA,particularlyinresponseto changesintheonlineenvironmentsuchassocialnetworksites,mobilecommunicationtechnology,geolocative data(i.e.,achildsphysicallocationasknowntoaWebserviceormobiledevice),andinteractivemedia(U.S. FederalTradeCommission,2010).Inadditiontocollectingcomments,theFTCheldroundtablediscussionson2June 2011regardingvariousaspectsoftheCOPPARule.On15September2011,theFTCreleasedproposedrevisionsto theCOPPARuleforpubliccomment(U.S.FederalTradeCommission,2011). Manyprivacyadvocates,industryrepresentatives,andparentgroupshaveengagedwiththereviewprocess[7]. PrivacyadvocatesandrelevantinterestgroupsshowedadesiretomaintaintheCOPPAregulation,althoughattimes withmodifications(Balkam,2011Thierer,2011).ParentgroupssuchasCommonSenseMediaaskedCongressto domoretoprotectyouth(CommonSenseMedia,2010aSimpson,2011).Inresponse,AdamThiereraresearch fellowatGeorgeMasonsMercatusCentercalledCommonSenseMediasfilingtroubling(Thierer,2010).While attheProgressandFreedomFoundation,ThiererandhiscolleagueBerinSzokaarguedthatfreespeechconcerns, theeconomiccostsofCOPPAcompliance,thetechnicalissueswithageverification,andthefactthatcompliance meanscollectingmoredataaboutchildrenallsuggestthatanexpansionofCOPPAwouldbeineffectiveifnot harmful(SzokaandThierer,2009). AlongsidetheCOPPAreviews,therehavealsobeeneffortstoseeCOPPAasabaselineframeworkfornewprivacy legislationorregulatoryregimes,especiallywithregardtochildrensonlineinformation(U.S.Congress,2011).Such legaleffortspresumeCOPPAtobesuccessfulatprovidingparentswithtoolstodirectlycontrolandcurbabusesof childrensdata. Astheseproposalsarebeingconsidered,itisimportanttonotethattherearemanyunansweredquestionsasto whetherornotCOPPAhasbeeneffectiveinachievingitsstatedgoals,andtowhatextentparentshavefoundit understandable,useful,orevenhelpful.Inparticular,giventhehighincidenceofchildrenlyingabouttheirageto gainaccesstositesthatforbidthem,ithasnotbeenclearwhetherchildrenareevadingagerestrictionsin contradictionoftheirparentsrulesandpreferences,whetherparentsareagnosticorunawareofsuchrestrictions, orwhetherparentsarecomplicitinchildrensparticipationonthesesites.

Researchquestions WhileparentsareofteninvokedinrelationtoCOPPAandorganizationsexisttospeakonbehalfofthemdata concerningtheirattitudesandpracticeswithrespecttoagebasedrestrictionshaveplayedlittleroleinthe discussion.Toaddressthedatalimitationsinthisarea,wesurveyedparentsabouttheirpracticeswithrespectto theirchildrensaccesstosocialmedia,theirattitudestowardagerestrictions,andtheirunderstandingofsocial mediasitesrestrictionsandregulations.Althoughweaskedparentsaboutawiderangeofsitesandservices,we havefocusedouranalysishereonFacebookbecausemuchofthepubliccontroversyhasfocusedonthatservicein particular.Thus,inanalyzingourdata,wesoughttoanswertothefollowingquestions: 1. DoparentsbelievethattheirchildrenareonFacebook?Amongthosewhodo,atwhatagedotheybelieve theirchildrenjoinedthesite?Andwhatroleifanydotheseparentsplayintheirchildrenscreationof Facebookaccounts? 2. DoparentsrecognizethatthereisaminimumageforcreatinganaccountonFacebook?Ifso,dotheyallow theirchildrentojoinbelowtheminimumage?Dotheybelievethattheminimumageisarecommendationor arequirement? 3. WhatifanyagedoparentsbelieveshouldbetheminimumforjoiningFacebook?Andifthereshouldbe aminimumage,whoshouldenforceit? 4. Aretheresituationsinwhichaparentwouldfinditacceptablefortheirchildtocircumventminimumage restrictions?Ifso,forwhatreasons? 5. Whatroleifanydoparentsbelievethegovernmentand/orcompaniesshouldplayinprotectingtheir

children?

Dataandmethods Toaddressourquestions,weconductedasurveyonanationallyrepresentativegroupofparentsorguardians[8] withchildrenages1014intheirhousehold.Inthissection,wedescribethedatacollectionmethods,provide baselineinformationaboutourrespondentsandexplainhowwemeasuredthevariablesofinterest. Datacollection Ourresultsarebasedonanationalsampleof1,007U.S.parentsage26andoverwhohavechildrenlivingwith thembetweentheagesof1014andwhodonotworkinthesoftwareindustry[9].TheresearchfirmHarris Interactiveadministeredthedatacollectiononlineon514July2011usingasampleobtainedthroughResearch NowseRewardspanel.Thisisaninvitationonly,optinpanelthatofferspotentialrespondentsanincentiveinthe formofadrawingforareward.InvitationstothesurveyweresenttoastratifiedrandomsampleofU.S.residents preprofiledforbeingage26orolderandhavinga1014yearoldchildinthehousehold.Uptothreeinvitation remindersweresenttopotentialrespondents.Onaverage,peoplespent19minutesfillingoutthesurvey.Alldata analyseswereconductedbytheauthorsandnotbyHarrisInteractive. Respondentsbackground Respondentsreflectvarieddemographicandsocioeconomicbackgrounds(seeTable1forbothunweightedand weighteddescriptivestatistics).ThedataintheanalysesareweightedtoknowndemographicsofU.S.residents ages26andolderwhohaveatleastonechildages1014livingwiththeminthehouseholdbasedonthe2010 CurrentPopulationSurveyoftheU.S.BureauofLaborStatistics.Weightingdemographicsinclude:gender,age, race/ethnicity,education,householdincome,regionofthecountry,numberofchildreninthehousehold,and age/genderofchildreninthehousehold.Propensityscoreweightingwasalsousedtoadjustforrespondents propensitytobeonline.Theweighteddataareusedthroughoutthisarticleunlessstatedotherwise. Table1:Backgroundofstudyparticipants. Note:N=1,007Duetorounding,someofthepercentagesinthis tableaddupto99%. Gender Female Male Age Mean Median Raceandethnicity AfricanAmerican/Black,nonHispanic AsianAmerican/PacificIslander,non Hispanic Hispanic White,nonHispanic MixedRace/Other Unknown/Declinetoanswer Education Highschoolorless SomecollegeorAssociatesdegree CompletedCollege Graduateschoolordegree Householdincome Lessthan$35K $35K74.9K $75K124.9K $125Kormore Declinetoanswer RegionofU.S. East Midwest South 27% 25% 24% 21% 23% 31% 16% 32% 28% 16% 7% 21% 30% 25% 18% 6% 24% 36% 21% 19% 40% 28% 21% 11% 14% 6% 16% 59% 4% 1% 11% 3% 18% 62% 4% 2% 41 41 42 42 Unweighted Weighted 57% 43% 57% 43%

West Metroarea Urban Suburban Rural

24% 22% 55% 23%

24% 22% 52% 26%

Giventhefocusontechnologyandparenting,weopenedbyaskingparentsiftheythoughtthattechnologymade beingagoodparenteasierormorechallenging59percentbelievedthattechnologymadebeingagoodparent morechallenging. Childchoiceforfocusofparentresponses Respondentswereaskedtolisttheageandgenderofeachchildlivingwiththem.Respondentsqualifiedforthe surveyiftheyreportedhavingatleastonechildlivingwiththembetweenages1014.Ifrespondentsreported havingmorethanonesuchchildthentheywereassignedonechildtofocusonthroughoutthesurvey.Thechild chosenwasoneasclosetotheageof12aspossible.Table2showsthedistributionofthechildrenwhowerethe focusofparentsresponsesbyageandgender.Toensurethatrespondentscontinuedtofocusonthesamechild throughoutthesurvey,allquestionsaskingaboutthechildsbehaviorincludedareferencetotheageandgenderof thechild. Table2:Theageandgenderofthechildwhowasthefocusof parentsresponses. Age10 Age11 Age12 Age13 Age14 Weaskedparentswhetherthechildselectedwasmoreorlesssociallymaturethanotherstheirage16percent saidlesssociallymature,25percentindicatedmoresociallymature,and59percentsaidaboutassociallymature asothers. InformationaboutchildrensFacebookuse WeaskedparentsaseriesofquestionsconcerningtheirchildsFacebookuse.Westartedbyinquiringwhether,to thebestoftheparentsknowledge,theirchildcurrentlyhasorataprevioustimehadanaccountonFacebook.If thatwasthecase,wefollowedupwithaquestionabouttheageatwhichthechildhadsignedupfortheservice. ThenweaskedwhethertheparenthadbeenawareatthetimethattheirchildwasusingFacebookfollowedby whethertheparenthadassistedthechildinsigningupforanaccount.Next,wepresentedallparentswhoindicated thattheirchildwasonFacebookwithalistofpossiblereasonswhytheymayhaveallowedtheirchildtousethesite andaskedthemtoindicateallthatapplied. BeliefsaboutFacebooksageguidelinesandpolicies WewantedtounderstandhowmuchparentsknowaboutFacebooksagepoliciesandwhattheyperceivetobe acceptableagelimitationsforuseofrelatedservices.Togetatthesequestions,westartedbyaskingrespondents whattheythoughtwasanacceptableageforatypicalchildtofirsthaveanaccountonsocialnetworksites(e.g., Facebook).Thenweinquiredabouttheageatwhichthechildsfriendsandacquaintancestypicallyfirsthavean accountonsuchservices. Next,wenotedtorespondentsthatsomesitessetaminimumagetocreateanaccountandthenaskedthatparents checkoffwhichsitesonalistofservicesweprovided(includingFacebook)theythoughthadaminimumage.Ifthe parentcheckedoffFacebookonthelist,thenwefollowedupwithaquestionaboutwhattheythoughtthatagewas. Next,weaskedwhethertheparentbelievedthatagetobearecommendationorarequirement.Then,weusedan openendedformatquestiontoasktheseparentstheiropiniononwhythesitestheymarkedhaveaminimumage. Asetofquestionsthatfollowedinquiredaboutwhetherparentsthoughtthereshouldbeanagerequirementtouse variousservicesandwhattheythoughtthatageshouldbeiftheyansweredintheaffirmative.Wealsoasked whetherthereweresituationsthatwouldpromptparentstoallowtheirchildrentouseserviceseveniftheywere youngerthanthesitesagelimit(Table7hasthelistofpossiblesituations). Parentsthoughtsabouttheroleofcompaniesandthegovernment Wewantedtogetasenseforparentsbeliefsaboutwhoshouldhavethelastwordontheirchildrensuseofonline services:theparent,thechild,thegovernmentorthecompanyprovidingtheservice.Weaskedaquestionabout whethercompaniesshouldbetheonesestablishingminimumagerestrictionsforsiteusageorwhetherparents shouldbeabletodecideatwhichagetheirchildrenarereadytouseaservice.Finally,weinquiredaboutthelevel ofinputparentspreferredfromthegovernmentonthesematters(i.e.,whethertheypreferredlaws, recommendations,ornosuchinput). All 15% 23% 26% 25% 11% Female 46% 48% 50% 48% 46% Male 54% 52% 50% 52% 54%

Results:Parentalpracticesandattitudes ChildrensaccesstoFacebook FacebooksTermsofServicerequirethatchildrenbeatleast13yearsofagetojointhesite.Halfofparents(50 percent)inourstudyreportthattheirchildisonFacebook,evenincaseswherechildrendonotmeetthelegalage requirementforuseofthesite.AmongparentsofchildrenwhoareoldenoughtobeonFacebooktheparentsof 13and14yearoldsalmostthreequarters(72percent)reportthattheirchildusesthesite.Yet,almostafifth (19percent)ofourrespondentswhowerereportingontheir10yearoldchildsonlineexperiencesalsonotedthat thechildhasaFacebookaccount.Andthisnumbergoesuptoclosetoathird(32percent)forchildrenage11and overhalf(55percent)for12yearolds(seeTable3fordetails). Table3:Percentageofchildrenofdifferentageswitha Facebookaccount. Note:N=1,007. HasFacebookaccount Whilewedidnotsurveythechildrendirectlyandarethusunabletosaywhatpercentageofchildrenlietotheir parentsabouttheirFacebookuse,datacollectedbyPewanditspartnersfromchildrenduringasimilarperiod (Lenhart,etal.,forthcoming)supportourfindings.GiventhatthePewreportfoundthatapproximatelyhalfof12 yearoldsareonasocialnetworksiteandwefoundthatapproximatelyhalfofparentsof12yearoldsreport thattheirchildrenareonFacebookwecanpresumethatthemajorityofparentshaveanaccuratesenseof whethertheirchildrenhaveanaccountornot. ManychildrenjoinFacebookbeforetheyare13.Ofallparentssurveyedincludingoneswhosechildrenarenoton Facebook36percentreportedthattheirchildjoinedFacebookundertheageof13evenifthechildisnowolder than13.WhenconsideringjusttheparentswhoreportthattheirchildisonFacebook,72percentreportedthattheir childjoinedFacebookwhenthechildwasyoungerthan13. Table4reportsthemeanageatwhichthechildsignedupforaFacebookaccount,bycurrentageofthechild amongparentswhosaidtheirchildisonFacebook.Amongchildrenages1013,onaveragethesignupoccurred approximatelyayearearlier(thatis,a10yearoldchildsignedupatage9an11yearoldatage10,etc.). Fourteenyearoldsareanexceptionwithanaverageageof12atsignup.Evenwhenthechilddidnotmeetthe minimumagerequirement,Table4demonstratesthemajorityofparentswereawarethattheirchildwascreating anaccount.Acrossallages,nolessthan82percentofparentsreportbeingawareoftheirchildsaccountcreation. Table4:MeanagewhenchildjoinedFacebook,andparental awarenessandassistanceofaccountcreation(amongparents whoreportchildwithFacebookaccount). Note:N=506. MeanagechildjoinedFacebook Parentwasawarewhenchildsignedup Parenthelpedcreatetheaccount Furthermore,manyparentsreportedthattheyhelpedtheirchildrencreatetheiraccounts.Amongthe84percentof parentswhowereawarewhentheirchildfirstcreatedtheaccount,64percenthelpedcreatetheaccount.Among thosewhoknewthattheirchildjoinedbelowtheageof13evenifthechildisnowolderthan13overtwo thirds(68percent)indicatedthattheyhelpedtheirchildcreatetheaccount.Ofthosewithchildrenwhoarecurrently under13andonFacebook,anevengreaterpercentageofparentswereawareatthetimeofaccountcreation.In otherwords,thevastmajorityofparentswhosechildrensignedupunderagewereinvolvedintheprocessand wouldhavebeennotifiedthattheminimumagewas13duringtheaccountcreationprocess. WhileTable4presentstheaverageageatwhichchildrencurrently13and14firstsignedupforFacebook,itdoes notmakeclearwhatpercentageofthemjoinedatanagewhentheydidnotyetmeetthesitesminimumage requirement.Table5presentsthosefiguresshowingthatoverhalfof13yearoldsjoinedwhileunderageanda thirdof14yearoldsdidso.InordertogainaccesstoFacebook,allofthesechildrenhadtolieabouttheiragein ordertomeetthesitesrequirement. Table5:Percentageofcurrent13sand14swhojoinedbefore Childscurrentage 10 8.9 11 12 13 14 10.0 11.1 12.1 11.7 Childscurrentage 10 19% 11 32% 12 55% 13 69% 14 78%

95% 88% 82% 82% 88% 78% 68% 76% 60% 47%

13. Joinedbeforeage13 Joinedatage13orlater Toputunderageparticipationincontext,itishelpfultolookatwhatproportionofparentswhohelpedtheir underagechildsignupforFacebookwereawarethatFacebookhasanagerequirement.Justoverhalf(53percent) ofallsurveyedparentsthinkthereisaminimumageforFacebookuse.Thosewhohelpedtheirchildcreatean accountbelowtheageof13wouldhavebeennotifiedofthis.Ofthoseparentswhoreportedthattheirchildjoined Facebookunderageandthattheyhelpedcreatetheirchildsaccount,most(90percent)alsoreportedthatFacebook hadaminimumage.Thissuggeststhatlackofparentalawarenessregardingtheminimumagecannotaloneexplain thefrequentviolationoftheTermsofService. AmongtheparentswhobelievethatthereisaminimumageforFacebook,only45percentknowthattheminimum ageis13.Theothertwomostpopularlyreportedages16and18arenotableinanAmericancontextbecause theyarethedrivingageinmanystatesandtheageofmajoritywherecitizensreceiveadditionalfreedomsand opportunities,includingtherighttovote(seeTable6fordetails). Table6:ParentsperceptionofFacebooksminimumage requirement(amongthe53percentwhorecognizethatthere isaminimumagerequirement). Note:N=536. PerceivedminimumageforFacebook <10 10 11 12 13 14 15 16 17 18 >18 ManyparentsknowthattheirchildjoinedFacebookwhentheywereyoungerthanwhattheseparentsbelievetobe theminimumageforuseofthesite.Almostthreequarters(74percent)ofparentswhosechildisonFacebookand whoreportedaminimumageknewthattheirchildwasonFacebookbelowwhattheybelievedtheminimumageto be. Oneexplanationforthisisthatparentsdonotnecessarilyseetheminimumageasarequirement.Weaskedthose whoreportedthatFacebookhadaminimumage(53percent)whetherornotFacebooksminimumagewasa recommendationorarequirement.AlthoughFacebooksminimumageisarequirement,justoverathird(35 percent)ofthosewhoreportedthattherewasaminimumagebelievedtheminimumagetobearecommendation. Inordertounderstandbetterwhyparentsthoughtthattherewasaminimumagerestriction,usinganopenended question,weaskedthosewhosaidasmuchwhytheythoughtFacebookhadaminimumage.Whilethemost commonanswergivencorrespondstoIdontknow,wereceivedawidevarietyofotherexplanations,including becauseitsmoreforadults,childrendontneedtohaveasocialmediapresence,duetoadultcontentand language,andtoprotectminorsfromperverts.Asmallfractionoftheparentssurveyeddidrefertolegalor liabilityissues,butadultcontentorsexualpredatorswereoftenalsoreferencedwhenlegalissueswereaddressed (e.g.,forliabilityreasonsandadultcontentorlegalpurposestodefenditselfagainstpervertswhoaresurfingthe Weblookingtolurechildren).Onlytwoparentsreferencedprivacy.Amidsttheopenendedresponses,thenotion ofmaturityorageappropriatenesscameupfrequently.Someparentshighlightedmaturitywithrespecttocontent othersreferencedmaturitywithrespecttosafetyissueslikebullyingandstrangers. AsecondexplanationcouldbethatparentsthinkthatitisacceptableforchildrentoviolateToSrequirementsthat restrictaccessbasedonage.Indeed,overthreequarters(78percent)ofparentsbelievethatthereare circumstancesthatmakeitokayfortheirchildtosignupforaserviceeveniftheirchilddoesnotmeetthesites minimumagerequirement(seeTable7).Thesereasonsincludecommunicatingwithparents,otherfamily members,andfriendsuseoftheserviceforeducationalpurposesand,becausethechildsclassmatesusethe service.Whileparentscouldindicatemultiplereasonsforwhichtheywouldallowtheirchildrentoviolateage restrictions,halfofparents(50percent)indicatedthattheirchildcouldviolatetherestrictiononlyifunderparental supervision.Inotherwords,manyparentsfeltasthoughtheviolationwasacceptablebecausetheyweremonitoring theirchildrensonlinepractices. Percent 2.5% 1.8% 1.8% 4.2% 45.5% 9.4% 7.1% 10.1% 0.7% 16.3% 0.6% Currentage:13 (N=248) 56% 44% Currentage:14 (N=110) 33% 66%

Table7:Parentswillingnesstoallowtheirchildtocreatean accountinviolationoftheminimumagerequirement. Note:N=1,007. Arethereanysituationswhereyouwouldallowyourchildto createanaccountonanonlineserviceifyourchildwas youngerthantheservicesagelimit? Yes,foranylistedreason(net) Yes,foreducationalorschoolrelatedpurposes Yes,tocommunicateotherfamilymembers Yes,tocommunicatewithme Yes,tocommunicatewithfriends Yes,becausetheirclassmatesusetheservice Yes,butonlyundersupervision No,Iwouldneverallowit Notsurprisingly,thoseparentswhosechildrenareonFacebookinviolationoftheminimumagerequirementare morecomfortablewiththeirchildcreatinganaccountinviolationoftheagerestrictionsthanthosewhosechildis notinviolationornotonFacebook(seeTable8). Table8:Parentsbeliefsaboutwhetherthereare circumstancesunderwhichitisokayfortheirchildtosignup foraserviceforwhichtheydonotmeettheagerequirement, brokendownbywhetherthechildusesFacebookandwhether thechildjoinedFacebookinviolationofthesitesTermsof Service. Note:N=1,007. Child Childjoined Arethere joined Facebook Child Child13 situationsin Facebook notunder 1012, or14, whichchild whenunder the noton noton couldcreatean minimum minimum Facebook Facebook accountifunder age age (N=400) (N=100) age? (N=363) (N=144) No,never Yes(anyreason) WhilethoseparentswhosechildjoinedFacebookundertheminimumageareoverwhelmingly(88.3percent) amenabletotheirchildviolatingtheminimumagerequirements,notalloftheseparentsknowthatthereisanage requirement.OfparentswhoknowthattheirchildisonFacebookinviolationofwhattheybelievetobethe minimumage,almostall(96percent)identifysituationsinwhichtheybelievethatitisacceptableforchildrento violateagerestrictions.Inotherwords,almostallparentswhoknowthattheirchildisviolatingminimumage restrictionsbelievesuchviolationsareacceptable. NotallparentsknowthatFacebookhasaminimumagerequirement,butamongthosewhodoknowthisandknow thattheirchildisviolatingthoseminimumagerequirements,manyarecomplicitintheviolationandbelievethatit isacceptableforchildrentoviolatetheTermsofServiceinordertogetaccess.ThissuggeststhattheToS restrictionisneitheranacceptablenordesirablebarrierwhenparentsallowtheirchildrentojoinFacebook. Parentsattitudesaboutminimumage Theideaofaminimumageisnotwhollyproblematicforparents.Whileonly53percentofparentsbelievethat thereisaminimumage(asdiscussedabove),most(89percent)parentsstatedthattheybelievethatthere shouldbeaminimumageforFacebookuse.Ofthe89percentwhobelievethatthereshouldbeaminimumage, theaverageagethattheysuggestis14.9,whichisconsiderablyhigherthanthecurrentminimumage(13). Interestingly,thisageisalsohigherthanwhatthesesameparentssuggestisanappropriateageforachildtojoin Facebook:14.0.(Recallthatweaskedallsurveyparticipantswhattheythoughtwastheageatwhichatypicalchild shouldhaveaccesstoFacebookandthenlaterinquiredwhatthoseparentswhothoughtthereshouldbeaminimum agethoughttheminimumageshouldbe.)Inotherwords,theagethatparentsthinkisappropriateforachildtojoin Facebookdiffersfromwhattheybelievetheminimumageshouldbe. Notably,the11percentwhodonotthinkthatthereshouldbeaminimumagebelievethattheappropriateagefora childtojoinFacebookis,onaverage,11.6,suggestingthatthereisavarianceinattitudesregardingappropriate agesmoregenerally. Differencesinperceptionofappropriateagearemostnotablewhenweexamineparentspracticesregardingtheir ownchildren.Perhapsnotsurprisingly,parentswhosechildrenjoinedFacebookinviolationofFacebooksTermsof Servicewithrespecttotheminimumagerequirementhavethelowestaverage(12.4)whenitcomestotheageat whichtheybelieveatypicalchildshouldbeabletosignupforanaccount(seeTable9fordetails).Theaverageis higher(13.2)forthosewhosechildrenuseFacebook,butdidnotviolatetheTermsofServicewhentheysignedup 11.8% 88.3% 16.7% 83.4% 24.8% 75.3% 27.4% 72.6% 78% 54% 48% 47% 22% 9% 50% 22%

followedbythosewhosechildrenareunder13andarenotFacebookusers(13.9).Theappropriateageforatypical childtosignupwashighest(14.2)amongthegroupofparentswhosechildrenare13oroverandarenoton Facebookdespitebeingabletousetheservicelegally. Table9:Parentsperceptionofappropriateageforatypical childtojoinFacebook. Note:N=1,007. Childjoined Facebook whenunder minimum age (N=363) Childjoined Child Child13 Facebooknot 1012, or14, underthe noton noton minimumage Facebook Facebook (N=144) (N=400) (N=100)

Appropriate agefora typicalchild tojoin Facebook

12.4

13.2

13.9

14.2

Evenamongthe89percentwhobelievethatthereshouldbeaminimumageforFacebook,weseewidevariationin parentalattitudesaboutwhatthatminimumageshouldbeasdependentonwhattheyreporttobetheirchilds practicewithregardtoFacebook(seeTable10).Onceagain,weseeaprogressiondependingonwhetherornota parentschildusesFacebookandwhetherornotthechildviolatedtheminimumagerequirement. Table10:Parentsperceptionofwhattheminimumageshould betojoinFacebookamongparentswhothinkthereshouldbe aminimumageforFacebook. Note:N=892. Childjoined Facebook whenunder minimumage (N=287) 13.8 Childjoined Child Child13 Facebooknot 1012, or14, underthe noton noton minimumage Facebook Facebook (N=131) (N=384) (N=89) 14.7 15.0 15.4

Appropriate minimum agefor Facebook

Howcanwereconcilethattheminimumagerequirementparentssuggestishigherthanwhattheybelievetobean appropriateageforatypicalchildtocreateanaccountonFacebook?Onepossibilityis,aswenotedabove,that parentsthinkthattheminimumageshouldbearecommendation,butnotarequirement.Thiswouldespecially makesenseinlightofparentalwillingnesstoallowtheirchildrentoviolateagerestrictionsimposedbyTermsof Service(Table7). Parentsattitudesaboutregulation Overwhelmingly,parentsbelievethattheyshouldhavethefinalsayaboutwhattheirchildcandoonline.When askedwhoshouldhavefinalsayaboutwhetherornottheirchildshouldbeabletoaccessonlineservices,93 percentofparentsindicatedthattheythemselvesshould(Table11). Table11:Parentsopinionaboutwhoshoulddecidewhether ornotachildcanaccessWebsitesandonlineservices. Note:N=1,007Duetorounding,thepercentageslistedinthistable addupto101%. Whoshouldhavethefinalsayaboutwhetherornotyourchildshould beabletouseWebsitesandonlineservices? Parents Companyprovidingtheservice Government Thechild Other Whileparentsoverwhelminglybelievethattheyshouldhavefinalsaywhenaskedspecificallyabouttheirownchilds access,theyaremoreconflictedwhentalkingaboutgeneralpractices.Forexample,whenaskedtochoosebetween 93% 3% 2% 2% 1%

whethercompaniesshouldhaveminimumagerestrictionsorwhetherparentsshouldbeabletomaketheirown decisions,respondentsweresplit50/50. ParentsareindeedconcernedabouttheissuesthatCOPPAwasdesignedtoaddress.Overthreequarters(78 percent)areextremelyorveryconcernedthattheirchildmightmeetastrangeronlinewhointendstodoharm whileclosetohalf(44percent)areextremelyorveryconcernedthattheirchildrenmighthaveinformationused aboutthemforthepurposesofpersonalizedmarketingortargetedadvertising.Althoughparentsareconcerned aboutonlinesafety,onlyonepercentreportedthatanyoftheirchildrenhaveevermetastrangeronlinewithill intentions.Likewise,onlyninepercentofparentsreportthattheirchildrensdatahavebeenusedformarketingand advertising.Itisimportanttoacknowledgethatmanyadultsdonotrealizehowtargetedmarketinguses demographicandbehavioraldata(HoofnagleandKing,2008).Giventheprevalenceofthesetechniques,itislikely thatmostsocialmediausershavehadtheirdatausedformarketingandadvertisingeveniftheydonotknowit. Givenhowfewparentsbelievetheirchildrensdatahavebeenusedformarketingandadvertising,itislikelythat parentsareeitherunawareofhowthesetechniquesworkortheyimagineadifferentaspectofmarketingwhenthey reporttheirconcernsregardingpersonalizedmarketingandtargetedadvertising. Althoughparentswanttoprotecttheirchildren,theyarenotlookingformandatoryagerestrictionsasthesolution totheirconcernsaboutsafetyandprivacy.Whenforcedtochoosebetweenthreepossibleapproachestokeeping childrensafeonline,mostparents(59percent)preferredthatthefocusbeongreaterparentalinvolvementas comparedtoeducatingchildrenaboutonlinesafety(29percent)andrestrictingchildrensonlineaccess(12percent) (Table12). Table12:Parentsopinionaboutthefocusofonlinesafety efforts. Note:N=1,007. Whichshouldbetheprimaryfocusofeffortstokeepchildrensafe online? Gettingparentsinvolvedinchildrensonlineactivities Educatingchildrenaboutonlinesafety Restrictingchildrensaccesstoonlineservices Evenwhenthefocusisondatacollection,parentsarenotuniformlyinfavorofrestrictionsonwhatinformation socialnetworksitescancollectaboutchildren.While57percentwouldpreferrestrictions,evenifitmeansthat childreningeneralwillbebannedfromsocialnetworksites,43percentthinkthatparentsshouldgettochoose, evenifitmeansthatthesesitesandservicescancollectdata. AlthoughCOPPAdoesnotforcecompaniestorestrictaccess,itisimportanttounderstandhowparentswouldfeelif thegovernmentweretoprovideagebasedrestrictionsonaccess.Parentsareespeciallyconflictedabouttherole ofgovernmentinlimitingaccessbasedonage.Whengivenoptions,parentsdonotpreferthatthegovernment createagerestrictions.Whenforcedtochoosebetweendifferentpotentialgovernmentalrolesinthematter,two thirdswantthegovernmenttobeinvolved,butmoreoftentomakerecommendationsforparentsratherthanby enactinglawsthatresultinagerestrictions(Table13). Table13:Parentsviewsaboutgovernmentalinvolvementin settingagelimitsontheuseofWebsitesandonlineservices. Note:N=1,007Duetorounding,thepercentageslistedinthistable addupto101%. Pleasechoosethestatementthatmostcloselyrepresentsyour views. ThegovernmentshouldrequireallWebsitesandonline servicestoprovidearecommendedagerating,similarto movieratingslikePG/PG13,tohelpparentsdeterminewhen theirchildisreadytousetheseservices,butthegovernment shouldnotrequireaminimumageforuse. Thegovernmentshouldnotplayaroleindetermininghow Websitesandonlineservicesaddresschildrensuseoftheir servicesthisshouldbebetweenparentsandtheWebsites andonlineservices. Thegovernmentshouldenactlawsthatprotectchildrenby requiringaminimumageforuseofWebsitesandonline services. Whatisclearhereisthatparentsprefergovernmentalpoliciesthatprovideinformationorguidanceinsteadof policiesthatcreaterestrictions.Thatsaid,therearestillmany(35percent)parentswhodonotwantthe governmentinvolvedinanyway. 59% 29% 12%

48%

35%

18%

Discussion:TheefficacyofCOPPA TheChildrensOnlinePrivacyProtectionActdoesnotforcecompanieslikeFacebooktorestrictaccesstochildren undertheageof13.Rather,itseekstomakecertainthatparentsareinformedaboutWebsitedatacollection policiesandhavechoicesandtoolstoexpresstheirpreferenceswhensiteswanttocollectdataabouttheirchildren. Providingparentswithgreateropportunitiestocommunicate,collaborate,andlearnaboutonlinesafetyandprivacy withtheirchildrenareworthygoalsandourdatasupporttheideathatmostparentsbelievethattheyshouldhave finalsayaboutwhattheirchildrencanandcannotdo. Ratherthanprovidingparentsandchildrenwithgreateroptionsforcontrollingtheuseofyouthpersonalinformation astheyexpandtheironlineactivities,itappearsthatinmanycircumstances,COPPAhasencouragedlimitationson childrensaccesstoonlineservicesasatradeoffforprotectingtheirprivacyandsafety.Inresponse,parentsare,in fact,takingmattersintotheirownhandstocircumventtheserestrictionshowever,theydosoatthecostoftheir childrensprivacyandattheriskofactingunethicallyandpotentiallyinviolationofthelaw.Ourdatashowthatthe majorityofparentsthinkitisacceptablefortheirchildrentoviolateaccessrestrictionsiftheyfeelasthoughdoing sofurtherstheirchildrenseducationalobjectives,enablesfamilycommunication,orenhancestheirchildrenssocial interactions.Furthermore,whilemanyparentsareopentoadvicefromthegovernment,lessthanafifthwantthe governmenttoenactlawsthatcreateaccessrestrictions. WhensiteslikeFacebookrespondtolawssuchasCOPPAbyrestrictingaccessforunder13childrenand, thereby,prohibitchildrenfromcreatingaccountsparentsandchildrenareforcedtocircumventtheseprohibitions andforgotheprivacyandsafetybenefitsofCOPPAiftheywishtoregaincontrolovertheironlineopportunities. Thesebenefitsincludetheoptionforparentstoauditanddeletetheirchildrensdata.Whileinsomewaysthismay encouragegreatercollaborationbetweenparentsandchildren(afterall,fewthingsaremorepowerfulcombining agentsthanacommonobstacle),thiswasnottheintendedconsequenceofCOPPA. Moreover,parentswhowanttheirchildrentohaveaccesstotheseonlineservicesmustsupporttheirchildrenin publiclydeceivingothers,creatingparentingconflictsamongthosewhowishtoencouragehonesty.Althoughadults havebeenknowntoprovideinaccurateinformationinonlineprofileswhentheywanttoimpressstrangers(Ellison, etal.,inpress),parentsdonotnecessarilywanttheirchildrentobeencouragedtolieonline.Providinginaccurate ageinformationcanalsoviolateWebsitesTermsofServiceandenableriskyinteractions.Parentsofelementary andmiddleschoolagedchildrenmaynotwanttheirchildrentopretendasthoughtheyareinhighschoolwhen interactingwithotherteenagersand,yet,providingafalseageonFacebookconveysthisincorrectimpression. Becauseofthis,strictagerequirementsoftenputparentsinanuncomfortableposition.Solongasdeceptionisthe onlymeansofaccess,parentsareforcedtochoosebetweencurtailingtheirchildrensaccessandcondoninglying. Thisisnotaneasychoiceformanyparentstomake. Agerestrictionsandtheissueofmaturity Ingeneral,parentsdonotunderstandtherelationshipbetweenFacebooksminimumagerequirementandCOPPA. OftheparentsapproximatelyhalfofthesamplewhoknewthatFacebookhasaminimumage,onlyathird realizedthatthiswasarequirementandnotarecommendation.Giventhefrequencywithwhichparentswhoknew therewasaminimumagereferencedissuesofageappropriatenessormaturityinanopenendedquestionand givenexplanationsweheardinqualitativeworkdoneasapilotforthisstudyoneexplanationmaybethat parentsseeagerestrictionsasaformofamaturityrestrictionoratypeofmaturityrating. Parentsoftenencounteragebasedrestrictionsthatareculturallyunderstoodasbeingaboutmaturity.Forexample, eachstatehasaminimumageforchildrentoobtainadriverslicenseandthenationalminimumdrinkingagefor alcoholhasbeensolidifiedat21forseveraldecades.Althoughtheselegalstatutesarewidelyrecognized,notall childrenabidebythem.Itisnotuncommon,especiallyinruralareas,forchildrentolearntodriveunderageanda 2009studyfoundthat72.5percentofhighschoolstudentshaddrunksomealcohol(Eaton,etal.,2009).Althoughit isuncleartowhatdegreeparentsarecomplicitinhelpingtheirchildrenviolatetheseagerestrictions,anecdotal evidenceseemstosuggestthatmanyparentsareawareofsuchviolations.Suchissuescallintoquestionthe efficacyofandculturalcommitmenttoagebasedlegalrestrictions. Parentsalsoregularlyencounterrecommendedmaturityratings,especiallyinrelationshiptomediacontent.Movie ratingsareperhapsthemostwidelyrecognizedratingsystem,buttherearealsoratingsystemsforTV,music,and videogames.Maturityratingsweredevisedbyvariouscontentindustriesoftenunderregulatorypressureto helpguideparentsintomakingwisedecisions.Forexample,thefilmindustrycreatedtheClassificationandRating Administration(CARA)toadministervoluntarymotionpictureratingsalongthelinesofG,PG,PG13,etc.(Mosk, 1997).MoreinformalprogramslikeCommonSenseMediasReviewsandRatingsoffervaluableage appropriatenessinformationaboutawidearrayofcontent,alongsidedetaileddescriptionsofwhatparentsshould know.Althoughmaturityratingsaredeployedandimplementedbyindustry,parentsmaynotrealizethatthese ratingsarenotgovernmentallymandated.Duringpilotinterviewsconductedforthisproject,weweresurprisedto learnthatmanyparentsviewedmovieratingsasalegalrequirement,notjustarecommendationthatisprivately enforcedbytheatermanagement. Ourdatashowthatmanyparentsbelievethatonlineagerestrictionsareeitherarecommendationorarequirement thatcanbecircumvented.Itisnotclearwhethertheyseesuchrestrictionsasmoreakintothelegalminimumage foralcoholormoreliketheguidanceofamovierating,norisitclearwhetherornotparentsareableto differentiatebetweenthetwodifferenttypesofrestrictions.Butgiventheverbatimcommentsofferedbyparents, ourdatasuggestthatparentssee13+restrictionsonlineasbeingconnectedtochildrensmaturity,suggestingthat futureresearchisneededtounpacktheroleofmaturityinparentalmodelsoftechnologyaccess. Adolescentdevelopmentisnotalinearprocess,andwhilethereisgenerallyanotabledifferenceinmaturity betweenan8yearoldanda17yearold,thedifferencebetweena12yearoldanda13yearoldismuchmore arbitrary.Theparentswesurveyedrecognizeddifferencesinmaturityamongchildrenofthesamechronological age.Yet,thereisalonghistoryintheUnitedStatesofregulatingchildrensrights,opportunities,andactivities strictlybyage(Chudacoff,1989).WhileCOPPAneverintendedtocreateastarkdistinctionbetween12yearolds and13yearoldswithrespecttoonlineaccess,companiesrestrictionsinlightofCOPPAdidpreciselythat, reinforcingthenotionthatthereisamagicalageatwhicheverythingchanges.

Protectionvs.access Ourdataalsorevealthatparentsdonotwanttobeforcedtotradeprotectingtheirchildrensprivacyorsafety againstlimitationsonwhatonlinesitestheirchildrencanaccess.Parentsareclearlyconcernedabouttherisksand dangersthattheirchildrenmayfaceonlineeveniftheyaresimultaneouslyallowingthemtolieabouttheirageto getaccess.Overhalfofparentswesurveyedbelievethattechnologymakesbeingagoodparentmorechallenging. Butthisdoesnotmeanthattheywanttohavetheircontrolasaparentundermined.Evenonthehotbuttonissueof childsafety,overhalfofparentspreferredanemphasisonbettermechanismsforgettingparentsinvolvedinthe issuewhileonlyaboutatenthwantedthefocustobeonrestrictingaccessforchildren. Whilesomeparentsmaywishforonlineservicestohaveminimumages,theirpracticesandattitudesalsosuggest thattheywanttohavetheabilitytocircumventthoserestrictions,evenifitmeansthatthesesitescancollectdata ontheirchildren.Manyareopentorecommendedminimumages,butthatdoesnotmeanthattheywantthe governmenttostepinandplacerestrictionsonaccessforyoungerchildren,eveniftoprotectthosechildren. Resolvingtheseseeminglycontradictorydesiresbyparentsrequiresrecognizingthatalmostallparentswantto havefinalsayaboutwhattakesplaceintheirhomesandwithregardtotheirchildren,nomatterhowwellintended alegalorcorporatepolicyis. Thissuggeststhat,whenitcomestoonlineprivacyandsafetyissues,parentsarenotinterestedinapproachesthat leadtocurbingchildrensaccessbutratherinapproachesthatprovidemoresupportfortheirinvolvementin childrensdecisionmakingprocesswhiletreatingaccessasagiven. CanCOPPAbefixed? COPPAsapproachtoprivacydependsontwomainpremises:(1)thatparentswillbeabletogivesitesinformed verifiableconsentregardingdatacollectionpracticesand,(2)thatagebasedprivacyprotectionsareboth appropriateandachievable.Ourdatasuggestthatthissecondpremiserelyingonagebasedmodelsis producingunintendedconsequencesthatundermineCOPPAsgoals.Inresponse,weproposethatpolicymakers shiftawayfromprivacyregulationmodelsthatarebasedonageorotherdemographiccategoriesand,instead, developuniversalprivacyprotectionsforonlineusers.Thiswouldavoidcreatinganenvironmentwhereservice providerslikeFacebookhaveincentivestodivideandconquerpopulationsintermsofprivacyanddatacollection policies.Thiswouldnotonlyeliminatetheproblemswithagebasedprohibitionsandcircumventions,butalso provideincreasedprivacyprotectiontobothteensandadults.Asmodernonlinedatacollectionandadvertising practicesbecomemorecomplex,itisnotjustchildrenwhoneedprotections(Hoofnagle,etal.,2010Hoofnagleand King,2008MontgomeryandChester,2009). Furthermore,givenmanyparentsopennesstorecommendations,itmightbeusefultodevelopmechanismsto provideparentswithrecommendationsabouttheappropriatenessofvarioussitesforchildrenofdifferentagesand thevariousrisksthatusersmayface.Ourfindingsshowthatparentsareindeedconcernedaboutprivacyand onlinesafetyissues,buttheyalsoshowthattheymaynotunderstandtherisksthatchildrenfaceorhowtheirdata areused.Greatertransparencyandincreasedinformationflowcanhelpparentsmakeappropriatedecisions.

Conclusion OurfindingscalltheefficacyofCOPPAintoseriousquestion.Thedataalsopointtounintendedconsequencesofthe COPPAmodelofregulationofWebbasedservices.TheonlineindustrysresponsetoCOPPAsunder13ruleand verifiableparentalconsentmodelislargelyprovingincompatible,andattimes,antitheticaltomanyparentsideas ofhowtohelptheirchildrennavigatetheonlineworld.Insteadofprovidingmoretoolstohelpparentsandtheir childrenmakeinformedchoices,industryresponsestoCOPPAhaveneglectedparentalpreferencesandhave altogetherrestrictedwhatisavailableforchildrentoaccess.Asaresult,manyparentsnowknowinglyallowor assisttheirchildrenincircumventingagerestrictionsongeneralpurposesitesthroughlying.Bycreatingthis environment,COPPAinadvertentlyhamperstheverypopulationitseekstoassistandforcesparentsandchildrento forgoCOPPAsprotectionandtakegreaterrisksinordertogetaccesstotheeducationalandcommunicationsites theywanttobepartoftheironlineexperiences. LegislativeorregulatorysolutionsthatseektoupdateCOPPAmustconfrontthisparadoxandthesefundamental flawsinitsdesign.Aslongastheemphasisoftheregulatoryapproachremainsonagebasedcutoffsandonerous consentmechanisms,itislikelythatgeneralpurposeWebsiteswillcontinuetoblockaccesstoanyoneunderthe agecutoff.Inresponse,parentswhowishfortheirchildrentoparticipateonsuchsiteswillcontinuetoassisttheir childrenindeceptivelycircumventingsuchrestrictions.Thisisneitherasolutiontoprivacyandonlinesafety concernsnorawayofempoweringparents. Increasedenforcementefforts,eitherthroughgovernmentalactionsorTermsofServicecrackdowns,willonly furtherupsetparentsandpotentiallyincreaselegalrisksresultingfromtheactsofcircumventiontheyundertake. Legislativeeffortstoincreaseminimumagerequirementsorstrengthenageverificationwillcomplicateandincrease thecosttocompaniesofcompliance,furtherencouragingthemtofocusondenyingaccessratherthanproviding privacyprotectionorcooperatingwithparents.Again,thisneitherempowersparentsnorhelpsyouth.Conversely, sucheffortswouldservetopositionthegovernmentasinlocoparentis,therebyunderminingparentalrightsand freedoms.Notonlywouldaninlocoparentisframeworkruncountertomostparentsdesires,butitwouldalso underminetheverygoalsofCOPPA:providingparentswithadditionalinformationandoptions. Parentsareconcernedaboutchildrenssafetyandprivacy,andgovernmentalagencieshaveeveryreasontowant tostepinandhelp,butrestrictingaccessorcreatingregulatorysolutionsthatencouragecompaniestorestrict accessiscounterproductive.Newsolutionsmustbedevisedthathelplimitwhen,where,andhowdataareused, butthekeytohelpingchildrenandtheirparentsenjoythebenefitsofthosesolutionsistoabandonagebased mechanismsthatinadvertentlyresultinlimitingchildrensoptionsforonlineaccess.

Abouttheauthors danahboydisaSeniorResearcheratMicrosoftResearchandaResearchAssistantProfessorintheMedia,Culture, andCommunicationDepartmentatNewYorkUniversity.SheisalsoaVisitingResearcheratHarvardUniversitys LawSchool.Formoreinformationonherwork,seehttp://www.danah.org/. EszterHargittaiisAssociateProfessorintheCommunicationStudiesDepartmentandFacultyAssociateofthe InstituteforPolicyResearchatNorthwesternUniversitywheresheheadstheWebUseProject.SheisalsoFellowat HarvardsBerkmanCenterforInternet&SocietyandinFall2011,aVisitingProfessorintheSchoolofHumanities andSocialSciencesattheUniversityofSt.GalleninSwitzerland.Formoreinformationaboutherwork,see http://www.webuse.org. JasonSchultz istheDirectoroftheSamuelsonLaw,Technology&PublicPolicyClinicattheUniversityof CaliforniaBerkeleywhereheisalsoanAssistantClinicalProfessorofLaw.Formoreinformationabouthiswork, seehttp://www.law.berkeley.edu/phpprograms/faculty/facultyProfile.php?facID=5599. JohnPalfreyistheHenryN.EssProfessorofLawandViceDeanforLibraryandInformationResourcesatHarvard LawSchool.HeisalsoafacultycodirectoroftheBerkmanCenterforInternet&Society.Formoreinformation abouthiswork,seehttp://cyber.law.harvard.edu/people/jpalfrey. Acknowledgements ThisprojectwassupportedbyMicrosoftResearch.Itsfindingsaresolelytheresponsibilityoftheauthorsanddonot necessarilyrepresenttheofficialviewsofMicrosoft. WewouldliketothankMariaYarolinandDanaMarkowfromHarrisInteractivefortheirtremendoushelpinsurvey design,implementation,andanalysis.WearedeeplyindebtedtoAmandaLenhart,MicheleYbarra,andAlexLeavitt fortheirextensivehelpateverystageofthisproject.WewouldalsoliketothankCharisseCorsbieMassay,Kate Crawford,JonathanDonner,NicoleEllison,BernieHogan,ChrisHoofnagle,JenKing,JoKorchmaros,EdenLitt,Sonia Livingstone,MaryMadden,DeirdreMulligan,IrinaShklovski,FredStutzman,andSaritaYardifortheirhelpin designingthesurveyinstrumentandprovidingcriticalfeedback.Wearealsoaregratefulforthenumerousother scholarsandcriticswhoadvisedusoneverythingfromsurveydesigntostatisticalanalysisincluding,andespecially, thoseatMicrosoftResearchandHarvardsBerkmanCenter.Finally,wearedeeplygratefultoFirstMondays anonymousreviewerswhoprovidedcriticalfeedbackandtoEdValauskasFirstMondayschiefeditorfor shepherdingthispaperthroughatarecordspeed. Thisprojectwastrulyalargescalecollaborationandwearedeeplyappreciativeofallwhohelpedmakeitstronger. Notes 1.Aspartofherresearchonteensocialmediaengagementfrom20052008(boyd,2008)andagain,from2009 2010,danahboydaskedparentsabouttheirunderstandingofagerestrictions.InMay2011,danahboydandAlex Leavittconductedsemistructuredinterviewswithfourparentsandinformallypolledmanyothersspecificallyabout issuesrelatedtothispaper. 2.U.S.FederalTradeCommission,1998,p.5. 3.Montgomery,2007,p.103. 4.Lenhart,etal.,2010,p.17. 5.comScoredidacknowledgethatsomeofthosevisitorsmaybechildrenwhodonothaveaccounts. 6.Forananalysisofthevariouschallengesassociatedwithageverification,seeareportbytheInternetSafety TechnicalTaskForce(2008). 7.Toaccesspubliccommentsonthe2005and2010COPPAreviews,see http://www.ftc.gov/os/comments/COPPARuleAmmend/Index.htmand http://www.ftc.gov/os/comments/copparulerev2010/index.shtm. 8.Throughoutthisarticle,werefertotheparentorguardianwhoansweredthesurveyastheparent. 9.Weexcludedparentsworkinginthesoftwareindustrysoasnottobiastowardpeoplewhomaybemorefamiliar withtheissuesathand. References ParryAftab,2005.RequestforPublicCommentontheImplementationofCOPPAandCOPPARulesSlidingScale MechanismforObtainingVerifiableParentalConsentBeforeCollectingPersonalInformationfromChildren(27 June),athttp://www.ftc.gov/os/comments/COPPArulereview/51629600021.pdf,accessed27September2011. StephenBalkam,2011.StatementonbehalfoftheFamilyOnlineSafetyInstitutefortheUnitedStatesHouseof RepresentativesEnergyandCommerceCommitteeSubcommitteeonCommerce,ManufacturingandTradehearing onProtectingChildrensPrivacyinanElectronicWorld(5October),at http://republicans.energycommerce.house.gov/Media/file/Hearings/CMT/100511/Balkam.pdf,accessed5October, 2011.

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