The dual nature of information has been an enduring theme of normative debate over information policy. As new information and communication technologies have opened up so many possibilities, normative questions over whether information should be set free or controlled have become more prominent policy issues. Unfortunately, it is seldom the case that information policy is determined by such fundamental principles. When viewed empirically, information defies any inherent, deterministic bias. It can be freely shared, tightly controlled, or its control can be finessed in myriad ways in particular circumstances by specific individuals and institutions. It is more useful to understand information policy as the outcome of the interaction of multiple actors, with different aims and objectives, cooperating and competing under an evolving set of rules-an 'ecology of games' (EoG).
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