IGF 2025 Policy Network on Internet Fragmentation (PNIF)

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The IGF Policy Network Internet Fragmentation (PNIF) is an IGF intersessional activity launched in 2022 to address the issue of Internet fragmentation. Its aim is to raise awareness of actions that may risk fragmenting the Internet, and to facilitate inclusive, multistakeholder dialogue on the issue. 

In its earlier cycles, the PNIF developed the PNIF Framework for Discussing Fragmentation, which conceptualises three key dimensions: Fragmentation of the Internet User experience, Fragmentation of Internet Governance and Coordination, and Fragmentation of the Internet’s Technical Layer. The Framework is intended to serve as a guiding tool to support dialogue on Internet fragmentation and on technical, political and commercial developments that may influence it.

A key takeaway from the PNIF session in Riyadh and the broader PNIF work in 2024 was that "avoiding Internet fragmentation remains a significant concern, requiring a balanced, inclusive and forward-looking approach," along with "sustained efforts to foster an inclusive and holistic dialogue on the topic". 

Meanwhile, UN Member States, through the Global Digital Compact (GDC), have committed to “Promote international cooperation among all stakeholders to prevent, identify and address risks of fragmentation of the Internet in a timely manner.”

The session, and the PNIF 2025 cycle, are focused on further strengthening the inclusive dialogue on Internet fragmentation. A key question is how the multistakeholder community can continue to monitor trends, discuss developments, raise warnings, and educate about the potential causes of fragmentation—both within the context of the GDC and beyond.

Speakers

  • Ms Joyce Chen, Senior Advisor Strategic Engagement, at APNIC (onsite)
  • Mr Naim Gjokaj, State Secretary, Montenegro (onsite)
  • Mr Michel Lambert, General Manager,  eQualitie, APC (remote)
  • Mr Dhruv Dhody, Internet Architecture Board (IAB) (onsite)
  • Ms Marilia Maciel, Director of Digital Trade and Economic Security, Diplo Foundation (remote)

Moderation

  • Bruna Martins dos Santos, PNIF co-facilitator  (on-site)
  • Sheetal Kumar, PNIF co-facilitor (remote)
  • Tereza Horejsova, MAG member, PNIF co-facilitator (remote)
  • Wim Degezelle, PNIF consultant (on-site) 

Session structure

  • Overview of the PNIF and its objectives (10 minutes) - 
  • Session objectives  
  • GDC commitment and SDG 16 (5 minutes) 
    • “(c) Promote international cooperation among all stakeholders to prevent, identify and address risks of fragmentation of the Internet in a timely manner (SDG 16);”
  • Speaker discussion relating to the ‘status’ of the commitment and what has been done since the GDC was adopted, how the multistakeholder dialogue on fragmentation evolves and how the IGF & PNIF could contribute  (20 minutes)  
    • “What collaboration efforts have been taking place regarding internet fragmentation?” 
    • “What inclusive dialogues have been taking place regarding internet fragmentation?” “Where are they taking place, how are they multistakeholder and inclusive?”
    • If there is a gap, what could we do to address the gap?
    • “Who is mapping/tracking internet fragmentation?”
    • What could the PNIF do in this regard? (report on by the 1st of November)?
  • Open discussion (15 minutes) 
  • Next steps (15 minutes) 

PNIF webpage :  https://www.intgovforum.org/en/content/policy-network-on-internet-fragmentation

Session Report (* deadline 6 July) - click on the ? symbol for instructions

The IGF Policy Network on Internet Fragmentation (PNIF), created in 2022, raises awareness of risks to the Internet’s integrity and provides a framework covering fragmentation of the user experience, governance and coordination, the technical layer, and political/commercial developments. The Global Digital Compact commits states to preventing fragmentation and refraining from shutdowns (SDG16).

Marilia Maciel, Director of Digital Trade and Economic Security, Diplo Foundation, noted that geopolitical tensions, national security concerns, and protectionist policies are driving reterritorialisation and digital sovereignty, dismantling open markets and value chains—particularly impacting the Global South. She called for PNIF to examine economic fragmentation, effects on intermediary users, and mobilise companies as key actors.

Naim Gjokaj, State Secretary, Montenegro stressed regional alignment of laws and strategies, inclusive dialogue, and local capacity building, citing Montenegro’s cyberattack experience.

Michel Lambert, General Manager,  eQualitie, warned of the normalisation of censorship and shutdowns, absent from much of the IGF agenda, and urged stronger human rights mechanisms, sustained funding for Internet freedom tools, and political-level engagement to counter state-led fragmentation.

Dhruv Dhody, Internet Architecture Board (IAB), highlighted risks to interoperability at the technical layer from national regulations, urging trust and cooperation between governments and the technical community.

Joyce Chen, Senior Advisor Strategic Engagement, APNIC underlined the risk of coordination breakdown, citing ICANN’s RIR governance review and TCCM’s policy coordination role, and called for capacity building and inclusive cooperation. She noted funding cuts affecting anti-fragmentation work, especially in the Pacific, and the importance of PNIF’s voice in WSIS+20.

Discussion raised questions over who will champion interdependence amid sovereignty trends, the definition of fragmentation, and the need to clarify what openness means. Market fragmentation, polarisation, and closed trade negotiations were flagged as ongoing risks.

Next steps suggested for PNIF include mapping initiatives, strengthening local capacity, articulating technical risks, prioritising fragmentation types per work cycle, and addressing political drivers directly.


 

3. Key Takeaways

Session key takeaway 1

There is a lack of coordination in addressing Internet fragmentation among various stakeholder groups. Inputs from the technical community and the private sector are currently underrepresented.

Session key takeaway 2 

Both the aspects of economic and political sovereignty are relevant to the discourse of Internet fragmentation. There are increasing attempts in territorialisation and the use of sovereignty concepts and normalisation of network control. 

Session key takeaway 3

While terminological confusion remains to an extent, the framework of IF issues created by the PNIF continues to serve as a good framework picked also by other policy spaces and dicussions and further use of it to build trust and understanding is needed.

Session call-to-action-point 1

The PNIF is  encouraged to provide inputs to the WSIS20 Review Process. It should also continue linking its work to the provisions in the GDC, especially art. 29C, e.g by providing implementation recommendations.

Session call-to-action-point 2

The IGF should be used as a confidence and capacity building space for further discussions on Internet fragmentation. 

Session call-to-action-point 3

The paper to be prepared for the PNIF and published in November should collect further inputs from the IGF community, including examples of coordination efforts.