Greetings again. We have not come to resolution on this topic, and we should 
make another attempt before we give up.

RFC 4306 says:
   Although new payload types may be added in the future and may appear
   interleaved with the fields defined in this specification,
   implementations MUST send the payloads defined in this specification
   in the order shown in the figures in section 2 and implementations
   SHOULD reject as invalid a message with those payloads in any other
   order.

There are a few problems with this. For one, there are payloads that are only a 
few figures in section 2; there are many more figures in section 1. Another 
problem is that there are plenty of payloads that are defined in RFC 4306 that 
are not shown in any figure in section 2; these are not "future" but current 
payloads.

I see three options:

a) Downgrade the MUST to a SHOULD without other changes.

b) Remove this altogether because the paragraph is insufficient for 
implementation and, in part, wrong.

c) Do nothing.

Both (a) and (b) will cause implementations that follow the MUST and SHOULD in 
the paragraph to not interoperate with implementations that do not follow the 
given order. (a) is not completely clear. (c) leaves insufficient and unclear 
mandates in the document.

So far, no one has said that their implementation will fail if it gets payloads 
that it thinks are not in the order shown in section 2. On the other hand, not 
all implementers of IKEv2 are reading the drafts or following this list, so 
that is far from definitive.

Thoughts? Other ways forwards?

--Paul Hoffman, Director
--VPN Consortium
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