From the beginning of the Internet (the ARPANET), sending of junk e-mail has been prohibited, enforced by the Terms of Service/Acceptable Use Policy (ToS/AUP) of internet service providers (ISPs) and peer pressure. Even with a thousand users junk e-mail for advertising is not tenable, and with a million users it is not only impractical, but also expensive. It is estimated that spam cost businesses on the order of $100 billion in 2007. As the scale of the spam problem has grown, ISPs and the public have turned to government for relief from spam, which has failed to materialize.
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