The FTC is afraid a national Do-Not-Spam list would be a hassle to implement and might even help spammers. Of course, there's a simple solution: a national opt-in Please-Spam-Me list. Anyone who wants junk spam can sign up and businesses are free to send those folk all the spam they want. It should be easy to maintain since the list would have about ten names on it. Also, enforce a $20 fine per violation on any business that sends out spam that is unsolicited, or any email (whether solicited or not) that has a false email address or does not contain a simple one-step opt-out procedure.
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