It's just distributed computing: Rethinking AI governance
Milton Mueller
Abstract
What we now lump under the unitary label “artificial intelligence” is not a single technology, but a highly varied set of machine learning applications enabled and supported by a globally ubiquitous system of distributed computing. The paper introduces a 4 part conceptual framework for analyzing the structure of that system, which it labels the digital ecosystem. What we now call “AI” is then shown to be a general functionality of distributed computing. "AI” has been present in primitive forms from the origins of digital computing in the 1950s. Three short case studies show that large-scale machine learning applications have been present in the digital ecosystem ever since the rise of the Internet. and provoked the same public policy concerns that we now associate with “AI.” The governance problems of “AI” are really caused by the development of this digital ecosystem, not by LLMs or other recent applications of machine learning. The paper then examines five recent proposals to “govern AI”and maps them to the constituent elements of the digital ecosystem model. This mapping shows that real-world attempts to assert governance authority over AI capabilities requires systemic control of all four elements of the digital ecosystem: data, computing power, networks and software. “Governing AI,” in other words, means total control of distributed computing. A better alternative is to focus governance and regulation upon specific applications of machine learning. An application-specific approach to governance allows for a more decentralized, freer and more effective method of solving policy conflicts. • Existing initiatives to govern “artificial intelligence” are based on a flawed understanding of the object of governance. • What we call "AI" is really a digital ecosystem, a decentralized, globally distributed system of computing devices, networks, data and software. • Machine learning applications are already pervasive and have been manifest in the digital ecosystem for three decades. • Attempts to control AI can have negative impacts on free expression, competition, and innovation.