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June 06, 2004

あなたのプライバシーのお値段は?(Computer World 2004年6月)

 企業の個人情報漏洩事件が相次いでいる。今春以降、Yahoo! BBや通販のジャパネットたかた、コスモ石油など、顧客データの漏洩事件を引き起こした企業は数知れない。
 そして一連の事件で注目を集めているのは、いったいプライバシー漏洩の補償としてはどの程度の金額が適性なのか、という問題だ。Yahoo! BBを運営しているソフトバンクの孫正義社長は事件が発覚して間もなく、全会員に500円の金券を配ると発表し、話題を呼んだ。「お詫びの気持ちとして金銭を配るというのが当たり前、という風潮になるのはまずいのではないか」という指摘が出ている一方で、インターネット上では「500円はあまりにも安いのではないか」という意見も見られる。
 「500円は安い」と主張している人たちが論拠にしているのは、1999年に発覚した京都府宇治市の事件である。住民基本台帳のデータが流出したこの事件では、市議ら3人の市民が市を相手取って損害賠償を求めて訴訟を起こし、ひとり1万円の賠償金を勝ち取っているのである。

 宇治市の事件が発覚したのは1999年5月22日である。京都新聞の報道がきっかけだった。
 当時、この問題を取材した全国紙記者によると、発覚の端緒は京都新聞の関係者が名簿業者のウエブサイトを見ていて、
 「宇治市住民票 総数21万7617」
 という名簿データが販売されているのを見つけたのがきっかけだった。21万というのは、宇治市の総人口に近い数だった。このデータの一部を京都新聞は入手し、宇治市役所に持ち込んで説明を求め、大騒ぎとなったのである。
 名簿に含まれていたのは、次のような項目だった。

 住所・氏名・性別・年齢・世帯主名・世帯主との続柄・住民番号

 住民番号というのは、説明が必要だろう。宇治市が住民基本台帳のシステムを作り上げた際、住民ひとりひとりに便宜上割り振ったナンバーである。2002年から全国で稼働している住基ネットで使われている「住基コード」と同じ種類のもので、住基ネットが導入される以前から宇治市の住民基本台帳システムで使われていた番号だ。以降、この住基ネット以前に同市が導入していた住民基本台帳システムを、「旧住基システム」と呼ぶことにしよう。
 住基ネット同様、宇治市の旧住基システムはセキュリティポリシーに基づいて管理されていた。旧住基システムの住民データは市庁舎地階の電算室に設置してあるサーバに保管され、この部屋にある端末か、もしくは市庁舎1階の市民課にあるクライアントマシンからしかアクセスできない仕組みになっていた。電算室は厳重な入退室管理が行われており、不審者が出入りした形跡はない。電算室の端末のアクセスログを調べても、データが大量にダウンロードされている形跡はなかった。
 また市民課のクライアントマシンからは、一度に1世帯分のデータしか表示できないようになっている。21万もの大量のデータをこのマシンからダウンロードし、外部に持ち出すのは不可能だった。
 しかし漏洩データは、このふたつの場所からは漏洩していなかったのである。全国紙記者が説明する。「名簿の中には個人だけでなく、市内にある会社の名前や所在地などが入っていました。また宇治市民ではなくなっている人も含まれていたり、名簿を丹念に調べていくと、単なる住民データではないことがわかったのです」
 市が保有しているさまざまなデータとつきあわせていった結果、2日後にはこの名簿がなんだったのかが判明した。市が作成した乳幼児健診の名簿だったのである。市民から子供が3カ月検診を受ける時期にある対象世帯をピックアップし、健診の案内を郵送したり、診断記録を保存しておくために作ったのだという。
 作成作業は、市保健推進課が業者のA社に発注し、旧住基システムから抽出して作らせたものだった。A社は別の業者B社にこの作業を孫請けに出していた。そしてまもなく、漏洩ルートが判明する。B社でアルバイトとして働いていた元大学院生の男性がこっそりB社内のサーバからデータを取り出してMOディスクに保存し、名簿業者に売り飛ばしていたことがわかったのである。
 一方、流出名簿を販売していた大阪府堺市の業者との話し合いもすぐに決着した。業者は当初無視を決め込んでいたが、京都府警が仲介したことなどから、「名簿は返却するので穏便にすませてほしい」と市側に伝え、流出名簿を郵送してきたのである。翌日、対策に当たっていた市職員らが業者の事務所を訪れ、「宇治市の住民の個人情報を不正に入手したり、不正入手したデータは一切使用しない。販売したデータについては当方の責任ですべてを回収し、貴市に返却することを誓約する」などとする念書を交わし、さらにその場でMOを廃棄するところをビデオカメラで撮影して記録に残した。かなりの年の入れようだったということがわかる。
 このやりとりの際、業者は市に対し、「名簿はB社のアルバイトから25万8000円で買った」と説明した。21万人余の住民名簿が25万8000円。住民ひとりあたり約1円の値段がついたとということだろうか。
 アルバイトの元大学院生は当初、「横流しなんかしていない」と否定していたが、名簿業者側から売り渡しの書類が市に提出され、この書類に残された住所氏名が元大学院生と一致した。また筆跡も、元大学院生がB社で作成した書類のそれと酷似していた。
 市は元大学院生とB社を、宇治市個人情報保護条例違反の容疑で京都府警に刑事告発した。またこの事件の責任を取って、市幹部の処分も行われた。市長は3カ月間、助役は2カ月間にわたって給料を10分の1減給するほか、ボーナスや勤勉手当なども10の1減らし、市長は総額で約67万円、助役は45万円を減額されることになった。また再発防止策として、セキュリティー対策として補正予算案に2000万円の対策費が計上された。
 その後、京都府警は元大学院生とB社を、市個人情報保護条例違反で京都地検に書類送検した。この際、果たして条例違反に問えるかどうかで府警内部でもかなり意見は割れたという。先の新聞記者が話す。
 「デジタルデータは『財物』にはならないため、盗んでも刑法の窃盗罪にはあたらない。また不正アクセス防止法はこの事件が起きた時点ではまだ施行していなかったため、最終的に市の条例で摘発することになりました。ところが、住所や氏名、生年月日、性別などは市民課の窓口で誰でも閲覧できる情報で、プライバシーには当たらないというのが法的なとらえかただったんです」
 国の住民基本台帳法には、「第11条 何人でも、市町村長に対し、当該市町村が備える住民基本台帳のうち第7条第1号から第3号まで及び第7号に掲げる事項に係る部分の写しの閲覧を請求することができる」と定められており、自治体の窓口に行けば誰でも住民情報を閲覧することができるのである。
 市条例には「事務で知り得た個人的秘密を漏らしてはならない」と定めていたが、住所・氏名・生年月日・性別のいわゆる「基本4情報」が個人的秘密に当たらないとすれば、条例違反には問えない。そこで府警幹部らが考え抜いたあげくに採用したのが、流出名簿に含まれていた外国人約3200人の個人情報を漏らした容疑で摘発することだった。外国人の情報は窓口で閲覧することができず、「個人的秘密」に該当すると考えられたのである。
 だが京都地検は最終的に、元大学院生とB社を不起訴にした。京都府警の考えを否定したからではない。宇治市では今回の摘発罪名となった個人情報条例が事件発覚直前に廃止され、新たな個人情報保護条例がかわって施行されていたのだが、この廃止~再施行の間に経過措置規定がとられておらず、法違反に問えないと判断されてしまったのである。
 個人情報をめぐって法整備がなかなか進まないさなかに起きたこの事件は、最後まで法律に苦しめられたのである。国の個人情報保護法が整理するのは宇治市の事件が起きた4年後、2003年5月になってからである。同法には、「行政機関の保有する名簿などの個人情報を職員が不当に第三者に提供した場合、二年以下の懲役または百万円以下の罰金を科す」という項目が盛り込まれている。
 宇治市の事件は、別の反響も巻き起こした。同市議など市民3人が市を相手取り、「プライバシーを侵害され、精神的ショックを受けた」と損害賠償を求めて提訴し、そしてこの裁判に勝ってしまったからである。
 宇治市は「事件は委託先の業者のアルバイトが起こしたもので、市が指揮監督するのは不可能だった」と主張したが、京都地裁は「発注者は秘密の保持について万全を尽くすべき義務を負う」と市の主張を退け、市議ら3人に慰謝料はひとりあたり1万円と弁護士費用5000円の計1万5000円を支払うように求めたのである。賠償額は総額4万5000円とわずかだったが、この判決の意味は大きかった。個人情報の値段というのがいったいどの程度なのかを、人々に再認識させる大きなきっかけにもなったからである。
 市は判決を不服として大阪高裁、最高裁と争ったが、最終的に敗訴し、慰謝料1万円の判決は確定している。
 実は同種の判決が、2003年9月にも確定している。
 「江沢民講演名簿事件」などと呼ばれるこの事件は、1998年11月に当時の江沢民・国家主席が早稲田大学を訪れて講演を行った際、大学当局が警視庁の求めに応じて講演会の入場者名簿を提出したというものだ。講演の入場者は早大生や留学生が約700人、そして教職員や一般招待者が約700人だった。
 この件で大学生6人が大学当局を相手取って、「個人情報の目的外使用で、プライバシー権等の侵害になる」と損害賠償を求める裁判を東京地裁に起こした。大学側は、「名簿を警視庁に提供したことは正当な理由に基づく行為であって、プライバシーの侵害はしていない」と訴え、一審判決では大学の主張を認めて学生側の請求は棄却された。ところが東京高裁の第二審では、「名簿提出を入場者に告知するのは容易だったのに、それを行わなかったのは大学の手抜かりだった」として、ひとり1万円の損害賠償を認めた。この判決は最高裁でも追認され、判決は確定した。
 この2つの判決から、「個人情報の漏洩にはひとり1万円」という“相場”が確立し、放送関係者の間では常識として語られている。
 もっとも、企業の側が1万円を自発的に払う意志を見せているかといえば、今のところそうした奇特な会社は現れていない。実際、件数が数万から数十万にも及ぶ最近の個人情報漏洩事件で、ひとり1万円もの慰謝料を支払えば、企業の存続にも影響を与えかねない。
 この春にたいへんな社会問題となったYahoo! BB顧客情報漏洩事件を見てみよう。運営会社のソフトバンクBBは、お詫びとして全会員にひとり500円を支払うことを決め、約40億円のコストを見込んでいる。もし同社が、ひとり1万円を被害者に支払うとするとどうなるだろう。

 457万7039人×1万円=457億7039万円

 という巨費になってしまう。とても支払える額ではないだろう。
 同社が参考にしたとみられているのは、コンビニエンスストア「ローソン」のポイントカード「ローソンパス」の会員情報漏洩事件だ。2003年6月に起きこの事件は、ローソンパスの会員から「「ローソンパスにしか登録していないはずの住所に、まったく関係ないダイレクトメールが送られてきた」という苦情で発覚した。最終的に、ローソンパス会員約56万人の住所・氏名・性別・生年月日・電話番号などの基本情報が漏洩していたことが判明した。
 ローソンパス会員情報は1カ所のサーバに集約されており、このデータを引き出せるIDwを持っているのはローソンと提携先のカード会社の計約20人だけで、いずれもシロだった。漏洩ルートは結局判明しなかったが、同社はローソンパスの会員約115万人全員に、お詫び状と500円分の商品券を送ることにしたのである。かかった費用は約5億7500万円だった。
 この事件以降、500円は顧客情報漏洩のお詫び金のデファクトスタンダードになっていく。
 Yahoo! BBについで、2004年4月には、コスモ石油が発行するカード「コスモ・ザ・カード」の会員約220万人のうち、約92万人分の情報が漏洩した。この時も同社は、被害者全員にガソリン代500円分の割引ポイントをお詫びとして渡している。
 1000円が支払われたケースもあった。
 コンビニエンスストア「ファミリーマート」は2003年年10月、通信販売の会員組織「ファミマ・クラブ」を利用している顧客約18万人の情報が漏洩したと発表。この事件でもシステムへの侵入の痕跡などは残っておらず、漏洩ルートは突き止められなかったが、お詫びとして個人情報が漏洩した会員18万人に対して1000円相当のクオカードが送られた。
 一方、プライバシーを漏洩させてしまった企業の側から見ると、その損害は「ひとり500円」では終わらない。損害賠償や慰謝料以外にも、対策に当たった人件費や業務がストップしている間の経費、営業機会の損失などさまざまなコストがかかる。
 たとえば非営利法人(NPO)日本ネットワークセキュリティ協会(JNSA)は2003年6月、「情報セキュリティ被害調査ワーキンググループ発表」をまとめている。
 このレポートは個人情報の漏洩だけでなく、ウイルスや不正アクセスの被害などさまざまな情報セキュリティ事故についての被害額を調べ上げたものだ。その中でJNSAは、セキュリティ事故の損害を「表面化被害」と「潜在化被害」に分け、さらに表面化被害に関しては、直接被害と間接被害に分けて表のような数式を設定している。
 この中で注目すべきなのは、業務外の潜在化被害だ。ブランド価値の低下や風評被害などによる損害を示し、数値化はできにくいこの損害が、実はもっとも長期にわたって漏洩元の企業を苦しめることになる。その見えない数値の大きさは、過去の企業不祥事を振り返ってみれば明らかだ。たとえば雪印グループが引き起こした牛乳食中毒事件や食肉偽装事件、あるいは最近では三菱自動車のクレーム隠し事件などを見てみればいい。対応のまずさがどれほどの損害をブランドに与えただろうか。
 たとえば雪印乳業の食中毒事件で、当時の社長は記者会見の席上、こんな失言をしている。
 「低脂肪乳はわが社ではあまりもうかっていない商品なので、収支に与えるインパクトはあまりない」
 財務畑だったとされているこの社長の頭の中には、食中毒事件に対する「表面化被害」の損害額しか存在していなかったのかもしれない。数字にできる損害は簡単に計算できるが、こうした失言がもたらすブランド離れは、実はもっとも深刻な損害を企業にもたらすのである。
 この対応に比べれば、Yahoo! BB事件でソフトバンクグループが見せた事後対応ははるかに迅速だった。こうした対応が功を奏したのかもしれない。ソフトバンクの株価は発覚当日、前日終値比300円安の3890円まで売られたものの、その後は持ち直し、約1カ月後には事件前の水準である4500円前後にまで戻したのである。
 JNSAは前出のリポートで、個人情報漏洩事件の損害賠償額の算出式も提案している。
 まず算式項目を、

 ①個人情報の中身
 ②事前に個人情報を提供することに同意させていたかどうか
 ③被害者は顧客か単なるアンケートなどの応募者か
 ④情報漏洩元の企業・団体の社会的信頼度
 ⑤事件後の対応姿勢

 という5項目に分類し、表のようにベースの数値に要素を積算していく方法を採った。そしてたとえば、この算出式を宇治市の住民データ漏洩事件に当てはめると、3600ポイントとなるという。このポイント数を「評価ポイントと想定慰謝料の対応表」(表3)に当てはめると、損害賠償額は1万円~5万円相当ということになる。
 宇治市を相手取って市議らが起こした裁判では、前述したように損害賠償ひとりあたり1万円が最高裁で確定している。もう少し多めに請求しても良かったということだろうか。
 JNSAが調査した2003年6月の時点では、国内では63件の情報漏洩事件が起きており、被害者の合計人数は41万8716人に上っていた。1件あたりの平均人数は6646である。
 そしてこの算出式をすべての事件にあてはめてみたところ、損害賠償の総額は151億4270円に達し、一件あたりの平均額も2億4036万円に上ったという。しかもこの数字には、損害賠償以外の潜在的損害額などはいっさい含まれていない。個人情報漏洩の損害はきわめて大きいといえる。
 こうした損害賠償額を抑えるには、どうすればいいのだろうか。100%の答はないだろうが、ベストの方法は簡単だ。迅速に間違いを認め、ていねいに対応を行って信用回復を急ぐこと。情報漏洩の二次被害が出る可能性をいち早く摘み、情報を開示して捜査当局の指示を仰ぐこと――。当たり前の話だが、こうした行動をきちんとできるかどうかが、企業の命運を分けるのである。

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