A system that encrypts a file sent by an owner and embeds it with encrypted policy rules. The policy rules are one or more ‘access rules’ and ‘use rules’ that determine how the file is accessed and used. The rules may be changed and may be location, time and date sensitive. The file may be sent to a recipient or stored in a file accessed by the recipient may accessed. The recipient registers with the system and assigned an ID. Using the ‘access rule’, the owner assigns a particular recipient ID to the file. A reader program generates a request to a management server to access and use the file. The management server reviews the policy rules to determine if they are satisfied. If the rules are satisfied, a digital certificate is sent to the recipient that allows the file to be accessed and used according to the policy rules.