Are governments monolithic?
Governments are not monolithic. They have different parts with different interests. This enables governments to be flexible and permits them to be influenced. Civil society influences governments. Sometimes they can be determinative. This is particularly true when an issue is new and there are no pre-defined structurds. As example can be found in the Internet domain name controversy. I have described the origins of the domain name controversy in another place. An initial idea among those who wanted some form of regulation of the assignment of domain names was to give it to the International Telecommunications Union. This idea was supported by some of the main non-governmental organizations concerned with the Internet, including the Internet Society. It was opposed by others, usually on the grounds that any regulation, especially international regulation, was undesirable. Through the good offices of the ITU, an memorandum of understanding on generic top-level domain names (MOU-gtld) was
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