Working groups are good at identifying and fixing bugs, holes, and edge cases, but bad at architecture and design. So I think I'd recommend having a BOF to introduce the topic, and requesting that individuals or small groups of people submit proposals via Internet-draft. Then plan to hold another BOF at a subsequent meeting, if there are any proposals, to discuss those proposals. Repeat as necessary until there's a sense that there's a viable path forward (at which point it's time to charter a working group), or until no progress is being made.
Keith
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