# Recommendation of the Council on Artificial Intelligence
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## Background Information

The Recommendation on Artificial Intelligence (AI) (hereafter the “Recommendation”) – the first
intergovernmental standard on AI – was adopted by the OECD Council meeting at Ministerial level on
22 May 2019 on the proposal of the Digital Policy Committee (DPC, formerly the Committee on
Digital Economy Policy, CDEP). The Recommendation aims to foster innovation and trust in AI by
promoting the responsible stewardship of trustworthy AI while ensuring respect for human rights and
democratic values. In June 2019, at the Osaka Summit, G20 Leaders welcomed the G20 AI
Principles, drawn from the Recommendation.

The Recommendation was revised by the OECD Council on 8 November 2023 to update its definition
of an “AI System”, in order to ensure the Recommendation continues to be technically accurate and
reflect technological developments, including with respect to generative AI. On the basis of the 2024
Report to Council on its implementation, dissemination and continued relevance, the
Recommendation was revised by the OECD Council meeting at Ministerial level on 3 May 2024 to
reflect technological and policy developments, including with respect to generative AI, and to further
facilitate its implementation.

**_The OECD’s work on Artificial Intelligence_**

Artificial Intelligence (AI) is a general-purpose technology that has the potential to: improve the welfare
and well-being of people, contribute to positive sustainable global economic activity, increase
innovation and productivity, and help respond to key global challenges. It is deployed in many sectors
ranging from production, education, finance and transport to healthcare and security.

Alongside benefits, AI also raises challenges for our societies and economies, notably regarding
economic shifts and inequalities, competition, transitions in the labour market, and implications for
democracy and human rights.

The OECD has undertaken empirical and policy activities on AI in support of the policy debate since
2016, starting with a Technology Foresight Forum on AI that year, followed by an international
conference on AI: Intelligent Machines, Smart Policies in 2017. The Organisation also conducted
analytical and measurement work that provides an overview of the AI technical landscape, maps
economic and social impacts of AI technologies and their applications, identifies major policy
considerations, and describes AI initiatives from governments and other stakeholders at national and
international levels.

This work has demonstrated the need to shape a stable policy environment at the international level to
foster trust in and adoption of AI in society. Against this background, the OECD Council adopted, on
the proposal of DPC, a Recommendation to promote a human-centred approach to trustworthy AI,
that fosters research, preserves economic incentives to innovate, and applies to all stakeholders.

**_An inclusive and participatory process for developing the Recommendation_**

The development of the Recommendation was participatory in nature, incorporating input from a
broad range of sources throughout the process. In May 2018, the DPC agreed to form an expert
group to scope principles to foster trust in and adoption of AI, with a view to developing a draft
Recommendation in the course of 2019. The informal AI Group of experts at the OECD was
subsequently established, comprising over 50 experts from different disciplines and different sectors
(government, industry, civil society, trade unions, the technical community and academia) - see
[http://www.oecd.org/going-digital/ai/oecd-aigo-membership-list.pdf](http://www.oecd.org/going-digital/ai/oecd-aigo-membership-list.pdf) for the full list. Between
September 2018 and February 2019 the group held four meetings. The work benefited from the
diligence, engagement and substantive contributions of the experts participating in the group, as well
as from their multi-stakeholder and multidisciplinary backgrounds.

Drawing on the final output document of the informal group, a draft Recommendation was developed
in the DPC and with the consultation of other relevant OECD bodies and approved in a special
meeting on 14-15 March 2019. The OECD Council adopted the Recommendation at its meeting at
Ministerial level on 22-23 May 2019.

**_Scope of the Recommendation_**


**_Scope of the Recommendation_**

Complementing existing OECD standards already relevant to AI – such as those on privacy and data
protection, digital security risk management, and responsible business conduct – the
Recommendation focuses on policy issues that are specific to AI and strives to set a standard that is
implementable and flexible enough to stand the test of time in a rapidly evolving field. The
Recommendation contains five high-level values-based principles and five recommendations for
national policies and international co-operation. It also proposes a common understanding of key
terms, such as “AI system”, “AI system lifecycle”, and “AI actors”, for the purposes of the
Recommendation.

More specifically, the Recommendation includes two substantive sections:

1. **Principles for responsible stewardship of trustworthy AI** : the first section sets out five
    complementary principles relevant to all stakeholders: i) inclusive growth, sustainable
    development and well-being; ii) respect for the rule of law, human rights and democratic
    values, including fairness and privacy; iii) transparency and explainability; iv) robustness,
    security and safety; and v) accountability. This section further calls on AI actors to promote and
    implement these principles according to their roles.
2. **National policies and international co-operation for trustworthy AI** : consistent with the five
    aforementioned principles, the second section provides five recommendations to Members and
    non-Members having adhered to the Recommendation (hereafter the “Adherents”) to
    implement in their national policies and international co-operation: i) investing in AI research
    and development; ii) fostering an inclusive AI-enabling ecosystem; iii) shaping an enabling
    interoperable governance and policy environment for AI; iv) building human capacity and
    preparing for labour market transformation; and v) international co-operation for trustworthy AI.

**_2023 and 2024 Revisions of the Recommendation_**

In 2023, a window of opportunity was identified to maintain the relevance of the Recommendation by
updating its definition of an “AI System”, and the DPC approved a draft revised definition in a joint
session of the Committee and its Working Party on AI Governance (AIGO) on 16 October 2023. The
OECD Council adopted the revised definition of “AI System” at its meeting on 8 November 2023. The
update of the definition included edits aimed at:

```
clarifying the objectives of an AI system (which may be explicit or implicit);
underscoring the role of input which may be provided by humans or machines;
clarifying that the Recommendation applies to generative AI systems, which produce “content”;
substituting the word “real” with “physical” for clarity and alignment with other international
processes;
reflecting the fact that some AI systems can continue to evolve after their design and
deployment.
```
In line with the conclusions of the 2024 Report to Council, the Recommendation was further revised at
the 2024 Meeting of the Council at Ministerial level to maintain its continued relevance and facilitate its
implementation five years after its adoption. Specific updates aimed at:

```
reflecting the growing importance of addressing misinformation and disinformation, and
safeguarding information integrity in the context of generative AI;
addressing uses outside of intended purpose, intentional misuse, or unintentional misuse;
clarifying the information AI actors should provide regarding AI systems to ensure transparency
and responsible disclosure;
addressing safety concerns, so that if AI systems risk causing undue harm or exhibit undesired
behaviour, they can be overridden, repaired, and/or decommissioned safely by human
interaction;
emphasising responsible business conduct throughout the AI system lifecycle, involving co-
operation with suppliers of AI knowledge and AI resources, AI system users, and other
stakeholders,
underscoring the need for jurisdictions to work together to promote interoperable governance
and policy environments for AI, against the increase in AI policy initiatives worldwide, and
introducing an explicit reference to environmental sustainability, of which the importance has
```

```
grown considerably since the adoption of the Recommendation in 2019.
```
Furthermore, some of the headings of the principles and recommendations were expanded for clarity,
and the text on traceability and risk management was further elaborated and moved to the
“Accountability” principle as the most appropriate principle for these concepts.

_For further information please consult: oecd.ai.
Contact information: ai@oecd.org._

## Implementation

The Recommendation instructs the DPC to report to the Council on its implementation, dissemination
and continued relevance five years after its adoption and regularly thereafter.

**_2024 Report to Council_**

The DPC, through AIGO, developed a report to the Council on the implementation, dissemination and
continued relevance of the Recommendation five years after its implementation, and proposed draft
revisions drawing from its conclusions.

The 2024 Report concluded that the Recommendation provides a significant and useful international
reference in national AI policymaking. The Recommendation is being implemented by its Adherents,
is widely disseminated, and remains fully relevant, including as a solid framework to analyse
technology evolutions such as those related to generative AI.

However, the 2024 Report found that updates were needed to clarify the substance of some of the
Recommendation’s provisions, facilitate implementation, increase relevance, and ensure the
Recommendation reflects important technological developments, including with respect to generative
AI.

**_Further work to support the implementation of the Recommendation_**

In addition to reporting to the Council on the implementation of the Recommendation, the DPC is also
instructed to continue its work on AI, building on this Recommendation, and taking into account work
in other international fora, such as UNESCO, the European Union, the Council of Europe and the
initiative to build an International Panel on AI (see https://pm.gc.ca/eng/news/2018/12/06/mandate-
international-panel-artificial- intelligence and https://www.gouvernement.fr/en/france-and-canada-
create-new-expert-international-panel-on- artificial-intelligence).

In order to support implementation of the Recommendation, the Council instructed the DPC to
develop practical guidance for implementation, to provide a forum for exchanging information on AI
policy and activities, and to foster multi-stakeholder and interdisciplinary dialogue.

To provide an inclusive forum for exchanging information on AI policy and activities, and to foster
multi-stakeholder and interdisciplinary dialogue, the OECD launched i) the AI Policy Observatory
(OECD.AI) as well as ii) the informal OECD Network of Experts on AI (ONE AI) in February 2020.

OECD.AI is an inclusive hub for public policy on AI that aims to help countries encourage, nurture and
monitor the responsible development of trustworthy artificial intelligence systems for the benefit of
society. It combines resources from across the OECD with those of partners from all stakeholder
groups to provide multidisciplinary, evidence-based policy analysis on AI. The Observatory includes a
live database of AI strategies, policies and initiatives that countries and other stakeholders can share
and update, enabling the comparison of their key elements in an interactive manner. It is continuously
updated with AI metrics, measurements, policies and good practices that lead to further updates in
the practical guidance for implementation.


The OECD.AI Network of Experts (ONE AI) is an informal group of AI experts from government,
business, academia and civil society that provides AI-specific policy expertise and advice to the
OECD. The network provides a space for the international AI community to have in-depth discussions
about shared AI policy opportunities and challenges.

In 2022, in recognition of the growing importance and scope of its work on AI, the DPC created a
dedicated Working Party to the topic – the Working Party on AI Governance (AIGO). The Working
Party supports the implementation of the OECD Recommendation on Artificial Intelligence, develops
practical guidance for implementation, provides a forum and online hub for exchanging information on
AI policy and activities through the OECD.AI Policy Observatory, and foster multi-stakeholder and
interdisciplinary dialogue through the Expert Groups of the OECD.AI Network of Experts.


### THE COUNCIL ,

**HAVING REGARD** to Article 5 b) of the Convention on the Organisation for Economic Co-operation and
Development of 14 December 1960;

**HAVING REGARD** to standards developed by the OECD in the areas of privacy, digital security, consumer
protection and responsible business conduct;

**HAVING REGARD** to the Sustainable Development Goals set out in the 2030 Agenda for Sustainable
Development adopted by the United Nations General Assembly (A/RES/70/1) as well as the 1948
Universal Declaration of Human Rights;

**HAVING REGARD** to the important work being carried out on artificial intelligence (hereafter, “AI”) in other
international governmental and non-governmental fora;

**RECOGNISING** that AI has pervasive, far-reaching and global implications that are transforming societies,
economic sectors and the world of work, and are likely to increasingly do so in the future;

**RECOGNISING** that AI has the potential to improve the welfare and well-being of people, to contribute to
positive sustainable global economic activity, to increase innovation and productivity, and to help respond
to key global challenges;

**RECOGNISING** that, at the same time, these transformations may have disparate effects within, and
between societies and economies, notably regarding economic shifts, competition, transitions in the labour
market, inequalities, and implications for democracy and human rights, privacy and data protection, and
digital security;

**RECOGNISING** that trust is a key enabler of digital transformation; that, although the nature of future AI
applications and their implications may be hard to foresee, the trustworthiness of AI systems is a key factor
for the diffusion and adoption of AI; and that a well-informed whole-of-society public debate is necessary
for capturing the beneficial potential of the technology, while limiting the risks associated with it;

**UNDERLINING** that certain existing national and international legal, regulatory and policy frameworks
already have relevance to AI, including those related to human rights, consumer and personal data
protection, intellectual property rights, responsible business conduct, and competition, while noting that the
appropriateness of some frameworks may need to be assessed and new approaches developed;

**RECOGNISING** that given the rapid development and implementation of AI, there is a need for a stable
policy environment that promotes a human-centric approach to trustworthy AI, that fosters research,
preserves economic incentives to innovate, and that applies to all stakeholders according to their role and
the context;

**CONSIDERING** that embracing the opportunities offered, and addressing the challenges raised, by AI
applications, and empowering stakeholders to engage is essential to fostering adoption of trustworthy AI in
society, and to turning AI trustworthiness into a competitive parameter in the global marketplace.

**On the proposal of the Digital Policy Committee:**

**I. AGREES** that for the purpose of this Recommendation the following terms should be understood
as follows:

```
‒ AI system : An AI system is a machine-based system that, for explicit or implicit objectives, infers,
from the input it receives, how to generate outputs such as predictions, content,
recommendations, or decisions that can influence physical or virtual environments. Different AI
systems vary in their levels of autonomy and adaptiveness after deployment.
```

```
‒ AI system lifecycle : An AI system lifecycle typically involves several phases that include to: plan
and design; collect and process data; build model(s) and/or adapt existing model(s) to specific
tasks; test, evaluate, verify and validate; make available for use/deploy; operate and monitor; and
retire/decommission. These phases often take place in an iterative manner and are not
necessarily sequential. The decision to retire an AI system from operation may occur at any point
during the operation and monitoring phase.
```
```
‒ AI actors : AI actors are those who play an active role in the AI system lifecycle, including
organisations and individuals that deploy or operate AI.
```
```
‒ AI knowledge : AI knowledge refers to the skills and resources, such as data, code, algorithms,
models, research, know-how, training programmes, governance, processes, and best practices
required to understand and participate in the AI system lifecycle, including managing risks.
```
```
‒ Stakeholders : Stakeholders encompass all organisations and individuals involved in, or affected
by, AI systems, directly or indirectly. AI actors are a subset of stakeholders.
```
```
Section 1: Principles for responsible stewardship of trustworthy AI
```
**II. RECOMMENDS** that Members and non-Members adhering to this Recommendation (hereafter
the “Adherents”) promote and implement the following principles for responsible stewardship of trustworthy
AI, which are relevant to all stakeholders.

**III. CALLS ON** all AI actors to promote and implement, according to their respective roles, the
following principles for responsible stewardship of trustworthy AI.

**IV. UNDERLINES** that the following principles are complementary and should be considered as a
whole.

**1.1. Inclusive growth, sustainable development and well-being**

Stakeholders should proactively engage in responsible stewardship of trustworthy AI in pursuit of beneficial
outcomes for people and the planet, such as augmenting human capabilities and enhancing creativity,
advancing inclusion of underrepresented populations, reducing economic, social, gender and other
inequalities, and protecting natural environments, thus invigorating inclusive growth, well-being,
sustainable development and environmental sustainability.

**1.2. Respect for the rule of law, human rights and democratic values, including fairness and
privacy**

```
a) AI actors should respect the rule of law, human rights, democratic and human-centred values
throughout the AI system lifecycle. These include non-discrimination and equality, freedom,
dignity, autonomy of individuals, privacy and data protection, diversity, fairness, social justice,
and internationally recognised labour rights. This also includes addressing misinformation and
disinformation amplified by AI, while respecting freedom of expression and other rights and
freedoms protected by applicable international law.
```
```
b) To this end, AI actors should implement mechanisms and safeguards, such as capacity for
human agency and oversight, including to address risks arising from uses outside of intended
purpose, intentional misuse, or unintentional misuse in a manner appropriate to the context and
consistent with the state of the art.
```
**1.3. Transparency and explainability**

AI Actors should commit to transparency and responsible disclosure regarding AI systems. To this end,
they should provide meaningful information, appropriate to the context, and consistent with the state of art:

```
i. to foster a general understanding of AI systems, including their capabilities and limitations,
```

```
ii. to make stakeholders aware of their interactions with AI systems, including in the
workplace,
```
```
iii. where feasible and useful, to provide plain and easy-to-understand information on the
sources of data/input, factors, processes and/or logic that led to the prediction, content,
recommendation or decision, to enable those affected by an AI system to understand the
output, and,
```
```
iv. to provide information that enable those adversely affected by an AI system to challenge
its output.
```
**1.4. Robustness, security and safety**

```
a) AI systems should be robust, secure and safe throughout their entire lifecycle so that, in
conditions of normal use, foreseeable use or misuse, or other adverse conditions, they function
appropriately and do not pose unreasonable safety and/or security risks.
```
```
b) Mechanisms should be in place, as appropriate, to ensure that if AI systems risk causing undue
harm or exhibit undesired behaviour, they can be overridden, repaired, and/or decommissioned
safely as needed.
```
```
c) Mechanisms should also, where technically feasible, be in place to bolster information integrity
while ensuring respect for freedom of expression.
```
**1.5. Accountability**

```
a) AI actors should be accountable for the proper functioning of AI systems and for the respect of
the above principles, based on their roles, the context, and consistent with the state of the art.
```
```
b) To this end, AI actors should ensure traceability, including in relation to datasets, processes and
decisions made during the AI system lifecycle, to enable analysis of the AI system’s outputs and
responses to inquiry, appropriate to the context and consistent with the state of the art.
```
```
c) AI actors, should, based on their roles, the context, and their ability to act, apply a systematic risk
management approach to each phase of the AI system lifecycle on an ongoing basis and adopt
responsible business conduct to address risks related to AI systems, including, as appropriate,
via co-operation between different AI actors, suppliers of AI knowledge and AI resources, AI
system users, and other stakeholders. Risks include those related to harmful bias, human rights
including safety, security, and privacy, as well as labour and intellectual property rights.
```
```
Section 2: National policies and international co-operation for trustworthy AI
```
**V. RECOMMENDS** that Adherents implement the following recommendations, consistent with the
principles in section 1, in their national policies and international co-operation, with special attention to
small and medium-sized enterprises (SMEs).

**2.1. Investing in AI research and development**

```
a) Governments should consider long-term public investment, and encourage private investment, in
research and development and open science, including interdisciplinary efforts, to spur
innovation in trustworthy AI that focus on challenging technical issues and on AI-related social,
legal and ethical implications and policy issues.
```
```
b) Governments should also consider public investment and encourage private investment in open-
source tools and open datasets that are representative and respect privacy and data protection to
support an environment for AI research and development that is free of harmful bias and to
improve interoperability and use of standards.
```

**2.2. Fostering an inclusive AI-enabling ecosystem**

Governments should foster the development of, and access to, an inclusive, dynamic, sustainable, and
interoperable digital ecosystem for trustworthy AI. Such an ecosystem includes inter alia, data, AI
technologies, computational and connectivity infrastructure, and mechanisms for sharing AI knowledge, as
appropriate. In this regard, governments should consider promoting mechanisms, such as data trusts, to
support the safe, fair, legal and ethical sharing of data.

**2.3. Shaping an enabling interoperable governance and policy environment for AI**

```
a) Governments should promote an agile policy environment that supports transitioning from the
research and development stage to the deployment and operation stage for trustworthy AI
systems. To this effect, they should consider using experimentation to provide a controlled
environment in which AI systems can be tested, and scaled-up, as appropriate. They should also
adopt outcome-based approaches that provide flexibility in achieving governance objectives and
co-operate within and across jurisdictions to promote interoperable governance and policy
environments, as appropriate.
```
```
b) Governments should review and adapt, as appropriate, their policy and regulatory frameworks
and assessment mechanisms as they apply to AI systems to encourage innovation and
competition for trustworthy AI.
```
**2.4. Building human capacity and preparing for labour market transformation**

```
a) Governments should work closely with stakeholders to prepare for the transformation of the world
of work and of society. They should empower people to effectively use and interact with AI
systems across the breadth of applications, including by equipping them with the necessary skills.
```
```
b) Governments should take steps, including through social dialogue, to ensure a fair transition for
workers as AI is deployed, such as through training programmes along the working life, support
for those affected by displacement, including through social protection, and access to new
opportunities in the labour market.
```
```
c) Governments should also work closely with stakeholders to promote the responsible use of AI at
work, to enhance the safety of workers, the quality of jobs and of public services, to foster
entrepreneurship and productivity, and aim to ensure that the benefits from AI are broadly and
fairly shared.
```
**2.5. International co-operation for trustworthy AI**

```
a) Governments, including developing countries and with stakeholders, should actively co-operate
to advance these principles and to progress on responsible stewardship of trustworthy AI.
```
```
b) Governments should work together in the OECD and other global and regional fora to foster the
sharing of AI knowledge, as appropriate. They should encourage international, cross-sectoral and
open multi-stakeholder initiatives to garner long-term expertise on AI.
```
```
c) Governments should promote the development of multi-stakeholder, consensus-driven global
technical standards for interoperable and trustworthy AI.
```
```
d) Governments should also encourage the development, and their own use, of internationally
comparable indicators to measure AI research, development and deployment, and gather the
evidence base to assess progress in the implementation of these principles.
```
**VI. INVITES** the Secretary-General and Adherents to disseminate this Recommendation.

**VII. INVITES** non-Adherents to take due account of, and adhere to, this Recommendation.


**VIII. INSTRUCTS** the Digital Policy Committee, through its Working Party on AI Governance, to:

```
a) continue its important work on artificial intelligence building on this Recommendation and taking
into account work in other international fora, and to further develop the measurement framework
for evidence-based AI policies;
```
```
b) develop and iterate further practical guidance on the implementation of this Recommendation to
meet evolving developments and new policy priorities;
```
```
c) provide a forum for exchanging information on AI policy and activities including experience with
the implementation of this Recommendation, and to foster multi-stakeholder and interdisciplinary
dialogue to promote trust in and adoption of AI; and
```
```
d) report to Council, in consultation with other relevant committees, on the implementation,
dissemination and continued relevance of this Recommendation no later than five years following
its revision and at least every ten years thereafter.
```

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