Domain identifier in common policy

I think we need to resolve the issue of saying "MUST
use UTF-8" (and 
hence disallowing UTF-16) or not.

Please reply by Friday January 20 if you feel strongly that
we need 
to add the restriction: "Common policy MUST use UTF-8
to store domain 
names in 'id' domain attributes".  If there is no
consensus to add 
this restriction, we won't.

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