United States General Accounting Office

GAO Briefing Report to the Chairman

Subcommittee on the Postal Service

Committee on Government Reform and

Oversight, House of Representatives

October 1998 U.S. POSTAL SERVICE

Postal and

Telecommunications

Sector Representation

in International

Organizations

GAO/GGD-99-6BR

GAO United States

General Accounting Office

Washington, D.C. 20548

General Government Division

B-281192 

October 29, 1998

The Honorable John H. McHugh

Chairman, Subcommittee on the Postal Service

Committee on Government Reform and Oversight

House of Representatives

Dear Mr. Chairman:

This briefing report reflects and updates information provided in our

July 1998 briefing on U.S. representation in two international

organizations: (1) the Universal Postal Union (UPU) and (2) the

International Telecommunications Union (ITU). The UPU regulates

international postal services, and the ITU coordinates global

telecommunications networks and services among governments and the

private sector. As agreed with the Subcommittee, the objective of this

review was to compare the roles and responsibilities of government and

private-sector stakeholders in U.S. policy development and representation

in international organizations for the postal and telecommunications

sectors. Specifically, we compared representation of the United States in

the UPU and in the ITU.

Background The House Subcommittee on the Postal Service is concerned about

allegations from private delivery companies that the U.S. Postal Service

(USPS) gains unfair competitive advantages through its role as the U.S.

representative in the UPU. As we previously reported in 1996, the Air

Courier Conference of America (ACCA), an association that represents

private delivery companies, alleged that the USPS unfairly benefited from

its role as a national postal administration, its exclusive access to foreign

postal administrations through the UPU, and its role as the U.S. negotiator

of UPU agreements and related multilateral agreements.1 ACCA suggested

that because the actions of the UPU lead to laws affecting the international

delivery market in general, some party other than the USPS should serve as

the leader of U.S. delegations to the UPU. The private delivery companies

would also like to be part of the U.S. delegation to the UPU and have a more

public process for developing U.S. policies or positions that will be taken

at the UPU, particularly on issues related to international postal rates and

restrictions on the international delivery market.

1

See our report, U.S. Postal Service: Unresolved Issues in the International Mail Market

(GAO/GGD-96-51, Mar. 11, 1996).

Page 1 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
B-281192 

USPS disagreed with ACCA’s allegations and defended its responsibility as

the U.S. representative in the UPU on the basis of its statutory authority, 39

U.S.C. 407(a), which states “the Postal Service, with the consent of the

President, may negotiate and conclude postal treaties and conventions.”

Pursuant to that authority, USPS represents the United States in the UPU and

enters into UPU agreements subject to ratification by the President. USPS

also contended that it would be inappropriate to have private delivery

companies, who have no obligations under the UPU agreements, participate

directly in an intergovernmental body whose basic purpose is to help

postal administrations fulfill national statutory delivery service obligations

on an international basis.

The UPU, headquartered in Berne, Switzerland, is a specialized agency of

the United Nations (U.N.) that governs international postal service. The UPU

Constitution is the basic act of the UPU containing the fundamental rules of

the Union. A UPU international agreement, the Universal Postal

Convention, supplemented by its Detailed Regulations, sets the common

rules for international postal service, including the exchange of letter post

mail, that are binding on member countries. Other UPU agreements and

regulations apply to parcel post and financial services, such as postal

money orders. The main bodies of the UPU include the supreme body,

called the UPU Congress, and three permanent bodies: the Council of

Administration (CA), the Postal Operations Council (POC), and the

International Bureau. The UPU Congress is composed of delegates

representing all 189 member countries and is to be convened every 5

years. The UPU Congress is to reevaluate and revise the UPU Constitution,

Convention, and agreements. Amendments to UPU’s Constitution can only

be made at a UPU Congress and are subject to ratification by each member

country. The next UPU Congress is to be held in August 1999 in Beijing,

China.

The ITU, headquartered in Geneva, Switzerland, is also a specialized agency

of the U.N. within which governments and the private sector coordinate

global telecommunications networks and services. The ITU Constitution

and Convention, a treaty document, is the basic act of the ITU containing

the fundamental rules of the Union. The main bodies of the ITU include

(1) the supreme body, called the Plenipotentiary Conference; (2) the

Council; (3) the General Secretariat; and (4) three sectors: the

Radiocommunication, Telecommunication Standardization, and the

Telecommunication Development Sectors. The Plenipotentiary

Conference, which is to be convened every 4 years, is to make top-level

policy and leadership decisions. The Plenipotentiary Conference is

Page 2 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
B-281192 

composed of delegations representing all 188 member countries. The ITU

Plenipotentiary Conference adopts and modifies the ITU Constitution and

Convention as well as strategic and financial plans. The ITU Constitution

and Convention must be ratified, accepted, or approved by each member

country. The most recent ITU Plenipotentiary was held in October 1998 in

Minneapolis.

The ITU is organized into three sectors: Radiocommunication,

Telecommunication Development, and Telecommunication

Standardization. This report focuses on one of the three sectors—the

Telecommunication Standardization sector—to provide a more in-depth

example of how these sectors operate. This sector was chosen for

comparison to the postal sector because of similar issues, such as

standardization and settlement charges among operators.

Congress is considering proposed legislation that would change the

leadership of the U.S. delegation to the UPU from the USPS to the Secretary

of State and would require the Secretary and USPS to consult with other

government agencies, users, and private providers of international postal

and delivery services as appropriate. The Secretary of State has similar

representation and consultation responsibilities as required by law in the

international telecommunications sector. Some of the similarities in the

structures and management of the international organizations for the

postal and telecommunications sectors have invited comparisons between

the U.S. policy development and representation in the UPU and ITU.

However, there are also some key differences that are important to note

when making comparisons between these sectors in the United States. For

example, the telecommunications sector does not have a public operator

or service provider, while the postal sector does. Also, the

telecommunications sector has an independent regulator, the Federal

Communications Commission (FCC), while the postal sector does not. The

USPS is an independent establishment of the federal executive branch. The

providers of telecommunications services in the United States are private

companies, while the providers of letter and parcel delivery services may

include both the USPS and private companies. Although both the postal and

telecommunications sectors have statutory obligations to provide

universal service to the American public, these obligations are fulfilled by

private companies in the telecommunications sector and exclusively by

the USPS in the postal sector.

Page 3 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
B-281192 

Results in Brief Differences in the roles of government agencies in U.S. international

policy development for the postal and telecommunications sectors were

related to the agencies’ roles and responsibilities as defined under the law.

Some agencies had specific, legally defined postal or telecommunications

responsibilities, while others had legally defined responsibilities that were

not sector specific. For example, USPS had postal-specific responsibilities,

while the Departments of State and Commerce as well as FCC had

telecommunications-specific responsibilities. However, other involved

government agencies did not have issue or sector-specific responsibilities.

For example, the Department of Justice has participated in policy

development on issues involving its responsibilities for enforcing federal

antitrust laws and protecting competition. In addition, the roles of

private-sector participants in policy development differed between the two

sectors. In the telecommunications sector, in which private-sector

participants are regulated by the FCC, participation in U.S. international

policy development was more formal. In the postal sector, private-delivery

companies are not regulated, and private-sector participation was more

informal.

Differences in legal requirements also contributed to differences in the

formalization of the processes used to develop U.S. policies for

international postal and telecommunications issues. In the

telecommunications sector, the process for involving government and

private-sector stakeholders in U.S. international policy formulation

included regularly scheduled meetings formalized in an advisory

committee structure headed by the Department of State and chartered in

accordance with the Federal Advisory Committee Act (FACA), title 5 U.S.C.,

appendix 2. Under the act, the advisory committee was required to meet

certain statutory requirements, such as public notification of meetings in

the Federal Register, and required documentation, such as detailed

minutes of meetings as well as annual status reports to Congress. In the

postal sector, the USPS was not subject to FACA or specific legal

requirements for consulting with government and private-sector

stakeholders in U.S. international policy formulation. The process for

developing U.S. policy for international postal issues was more informal,

with limited public notice or documentation of meetings, and generally

involved holding ad hoc briefings with interested parties.

In comparing U.S. representation to the UPU and ITU, we noted some major

differences in the composition of U.S. delegations. In the

telecommunications sector, private service providers have been included

as part of the U.S. delegations to both the supreme and permanent bodies,

Page 4 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
B-281192 

but this was not the case in the postal sector. Delegations to both the UPU

and ITU supreme bodies generally included a head of delegation, deputy

head(s), and members, but they differed in composition: The U.S.

delegation to the UPU Congress was led by and predominantly made up of

USPS officials and staff and a few Department of State officials. In

comparison, the delegation to the ITU Plenipotentiary Conference was led

by the Department of State and included a broad range of government and

private stakeholders. Also, private-sector service providers could

participate in most ITU permanent bodies either as part of the U.S.

delegation or on their own behalf. In contrast, private-sector providers

were excluded from participation in UPU permanent bodies because UPU

rules required representatives to be competent in postal matters or be

qualified officials of the member countries’ postal administrations.

Both international organizations have grappled with adapting their

organizations’ structures to the evolving competitive postal and

telecommunications environments, which have seen rapid changes in the

roles of public and private service providers. In the postal sector, the

distinction between public- and private-service providers is becoming

more blurred as several foreign postal administrations have recently

acquired or developed partnerships with private delivery companies. Thus,

as in the telecommunications sector, postal delivery services are

increasingly being provided by private as well as public service providers.

The UPU is reviewing its organizational structure and is to consider

proposals at the next UPU Congress that include a “consultative status” for

international nongovernmental organizations. Similarly, the ITU is

struggling with issues related to how private-sector service providers

should participate at ITU plenipotentiaries. For example, one issue that has

been discussed in recent meetings held by the Department of State is the

potential that conflicts may develop when multinational

telecommunications corporations have delegates on more than one

country’s delegation.

Scope and

Methodology

To determine the roles and responsibilities of U.S. stakeholders in U.S.

international postal and telecommunications policy development and

representation to the UPU and ITU organizations, we reviewed relevant U.S.

laws, executive orders, regulations, agency documents, correspondence,

and the UPU and ITU constitutions, conventions, rules of procedures, and

agreements. We interviewed officials at USPS; the Departments of State,

Commerce, and Justice; the FCC; the USTR; and OMB about their level of

involvement in developing U.S. postal and telecommunications policy. We

Page 5 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
B-281192 

also interviewed key UPU officials to gain a better understanding of the

operations and participation in the UPU. Further, we attended preparatory

meetings for the upcoming UPU and ITU meetings. Additional details are

included in briefing section I, Scope and Methodology. We conducted our

review from June through September 1998 in accordance with generally

accepted government auditing standards.

Agency Comments

and Our Evaluation

On September 29, 1998, we provided a draft of this report to the

Postmaster General and the Secretary of State for comment. We received

written comments from the Postmaster General dated October 16, 1998.

These comments are summarized below and included as appendix III. On

October 14, 1998, the Department of State’s GAO Liaison Officer informed

us that the Department had no comments.

USPS generally agreed that the report provides a comprehensive summary

of the structure and responsibilities of the UPU and ITU and discusses how

pertinent U.S. policies are currently formulated. USPS said that while there

are some similarities between the UPU and ITU, the differences in the two

organizations are significant and must be taken into account in addressing

the question of U.S. involvement in the UPU. USPS noted that the differences

reflected the way in which the international postal and

telecommunications sectors are governed and the way universal service

obligations are met, that is, by government-sector providers in the postal

sector and private companies in the telecommunications sector. USPS

further stated that the UPU does not fully parallel the ITU, and the ITU does

not provide an appropriate model for U.S. representation in the UPU.

As we noted in the report, there are differences and similarities in the

postal and telecommunications sectors and their international

organizations, but we did not address whether the ITU is an appropriate

model for U.S. representation in the UPU. By identifying the processes used

to develop U.S. international policy in each sector, we provided

information on alternative processes, such as the FACA process, that are

used by other government agencies to obtain input from stakeholders. The

FACA process is not unique to the telecommunications sector. Likewise,

information on U.S. representation in other international organizations

may provide alternatives for consideration of the appropriate role and

participation of stakeholders.

Page 6 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
B-281192 

We will send copies of this report to the Ranking Minority Member of your

Subcommittee, the Chairman and Ranking Minority Member of the House

Committee on Government Reform and Oversight, the Chairman and

Ranking Minority Member of the Senate Committee on Governmental

Affairs, other interested congressional members, the Secretary of State,

and the Postmaster General. We will also make copies available to others

on request. The major contributors to this report are listed in appendix IV.

If you have any questions about this report, please call me on

(202) 512-8387.

Sincerely yours,

Bernard L. Ungar

Director, Government Business

 Operations Issues

Page 7 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Contents

Letter 1

Briefing Section I 

Background

12

Report Objective 12

USPS’ Role as UPU Representative 14

Comparison With the International Telecommunications Sector 16

International Organization for the Postal Sector: the UPU 18

International Organization for the Telecommunications Sector:

the ITU

20

Scope and Methodology 22

Briefing Section II 

U.S. Policy

Development:

International Postal

and

Telecommunications

Issues

24

U.S. Policy Development: Comparison of Roles Between the Two

Sectors

24

U.S. Policy Development: Key Legal Roles of Agencies Involved

in the Postal Sector

26

U.S. Policy Development: Key Legal Roles of Agencies Involved

in the International Telecommunications Sector

28

Comparison of Participation In and Processes Used For U.S.

Policy Development

30

U.S. Policy Development: Process in the Postal Sector 32

U.S. Policy Development: Process in the Telecommunications

Sector

34

Briefing Section III 

U.S. Policy

Representation in

International Postal

and

Telecommunications

Organizations

36

U.S. International Representation: Comparison of U.S.

Delegations to the UPU and ITU

36

Postal Sector Representation in the UPU Supreme Body 38

International Telecommunications Sector Representation in the

ITU Supreme Body

40

U.S. International Representation: Comparison of U.S.

Delegations to the UPU and ITU Permanent Bodies

42

Postal Sector Representation in the UPU Permanent Bodies 44

Telecommunications Sector Representation in the ITU

Permanent Bodies

46

Page 8 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Contents

Appendix I 

Comparison of Legal

Roles and

Responsibilities of

U.S. Agencies

Involved in the UPU

and ITU

48

Appendix II 

U.S. Representation at

UPU and ITU 1994

Supreme Bodies

50

Appendix III 

Comments From

USPS

53

Appendix IV 

Major Contributors to

This Briefing Report

54

Tables Table II.1: U.S. Delegation to 1994 UPU Congress 50

 Table II.2: U.S. Delegation to 1994 ITU Plenipotentiary

Conference

51

Page 9 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Contents

Abbreviations

ACCA Air Courier Conference of America

ATIS Alliance for Telecommunications Industry Solutions

CA Council of Administration (UPU)

FACA Federal Advisory Committee Act

FCC Federal Communications Commission

GSA General Services Administration

ITAC International Telecommunications Advisory Committee

ITU International Telecommunications Union

NTIA National Telecommunications Information Administration

(Commerce)

OMB Office of Management and Budget

POC Postal Operations Council (UPU)

TIA Telecommunications Industry Association

TSAG Telecommunication Standardization Advisory Group

U.N. United Nations

UPU Universal Postal Union

USPS U.S. Postal Service

USTR U.S. Trade Representative

WTO World Trade Organization

Page 10 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Page 11 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

GAO Report Objective

Compare the roles and responsibilities 

of government and private stakeholders 

in U.S. policy development and 

representation in international 

organizations for the postal and 

telecommunication sectors

 

Page 12 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

Report Objective The objective of this review was to compare the roles and responsibilities

of government and private-sector stakeholders in U.S. policy development

and representation in international organizations for the postal and

telecommunications sectors. Specifically, we compared representation of

the United States in the Universal Postal Union (UPU) and in the

International Telecommunications Union (ITU).

Page 13 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

GAO USPS' Role as UPU Representative

Private competitors alleged USPS 

unfairly benefited from its role as a 

national postal administration, its access 

to foreign postal administrations through 

UPU, and its role as U.S. negotiator of 

UPU agreements and related multilateral 

agreements

USPS stated its role was based on 

statutory authority and UPU regulations 

not binding on private competitors 

 

Page 14 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

USPS’ Role as UPU

Representative

Private competitors alleged that USPS unfairly benefited by its position as

lead U.S. delegate to the UPU because the actions of the UPU lead to laws

affecting the international delivery market in general. They requested that

some other party serve as the leader of the U.S. delegation to the UPU.

These concerns were expressed principally through the Air Courier

Conference of America (ACCA), an industry group made up of private

delivery companies, such as United Parcel Service and FedEx.

ACCA also stated that it desired more participation in UPU meetings. In the

past, ACCA requested that the President appoint a representative of ACCA as

a member of the U.S. delegation to the 1994 UPU Congress. However, this

request was not granted.

USPS responded that since the activities of the UPU were binding only upon

the postal administrations of members countries, it would be

inappropriate to have private delivery companies participate directly in an

intergovernmental body whose basic purpose was to help postal

administrations fulfill national statutory universal service obligations on

an international basis. Furthermore, the USPS noted that the UPU does not

establish obligations or procedures for private delivery companies, nor

does it, in any other aspect, regulate such companies.

Page 15 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

GAO Comparison With the International 

Telecommunications Sector 

Similarities/differences between the two sectors 

Similarities

Structure and management of international 

organizations

Differences

Public vs. private operators

Universal services provided by public vs. private 

operators

No regulator vs. independent regulator 

 

Page 16 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

Comparison With the

International

Telecommunications

Sector

There are many similarities between the structure and management of the

UPU and the ITU. The UPU and ITU are organized and managed as treaty

organizations with supreme bodies that meet periodically in

plenipotentiary conferences to make changes to their constitutions and

conventions. The UPU and ITU use permanent bodies to carry on the work

of their organizations in the interval between plenipotentiary meetings.

These permanent bodies address policy issues, coordinate work, and

facilitate the implementation of the provisions of their Constitutions,

Conventions, and administrative regulations. They also perform policy and

technical studies through advisory groups, committees, subcommittees,

study groups, and working parties.

Although the international postal and telecommunications sectors have

some similarities in the structure and management of their respective

international organizations, there are some important differences between

the two sectors in the United States. For example, the telecommunications

sector does not have a public operator or service provider, while the

postal sector does. Also, the telecommunications sector has an

independent regulator, the Federal Communications Commission (FCC),

while the postal sector does not. USPS is an independent establishment of

the federal executive branch. Both sectors have a statutory obligation to

provide universal service to the American public, but this obligation is

fulfilled by private companies in the telecommunications sector and

exclusively by USPS in the postal sector.

Page 17 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

GAO International Organization for the 

Postal Sector: the UPU

the UPU Structure

Council of Administration 

(CA) 41 members

Committees

Study groups

Postal Operations Council

(POC) 40 members

Committees

Study groups

Supreme body

Permanent 

bodies

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UPU Congress

(189 member countries)

International Bureau 

 

Source: UPU information and CA and POC Practical Guide.

Headquartered in Berne, Switzerland, the modern UPU is an

intergovernmental organization and a specialized agency of the United

Nations (U.N.) with 189 member countries.2

 The UPU’s primary mission is to

provide a forum for the development of postal services based on common

2

The UPU, established by agreement in 1874, is the second oldest treaty organization in the world. The

UPU became a specialized U.N. agency by agreement on July 1, 1948. According to current UPU

provisions, any U.N. member may join the UPU; sovereign countries that do not belong to the U.N. may

join if their request to the UPU is approved by at least two-thirds of the UPU membership.

Page 18 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

standards and procedures agreed upon by national postal administrations

throughout the world. The acts of the UPU apply only to member national

postal administrations and must be ratified by each member country. UPU

regulations govern only mandatory services, that is, those required to be

provided by its members, but not those services considered to be optional.3

 The main bodies of the UPU include the supreme body, called the UPU

Congress, and three permanent bodies: the Council of Administration (CA),

the Postal Operations Council (POC), and the International Bureau.

The UPU Congress is to meet every 5 years. The UPU Congress’ main

function is legislative, that is, updating the UPU acts and agreements; other

functions include developing a long-term strategic plan, electing the

member countries for the CA and the POC, and setting the UPU budget. The

CA, comprising 41 member countries, meets annually in October in Berne

and primarily manages affairs of the UPU between Congresses. It may

approve proposals from the POC for adopting regulations or new

procedures until a decision is made by the next Congress. The CA also

studies issues of interest to the Congress that include, among others,

regulatory, administrative, legislative, and legal issues. The POC,

comprising 40 member countries, meets annually and is the technical and

operational body of the UPU. Dealing mainly with the operational,

economic, and financial aspects of international postal services, the POC

recommends to member countries standards for technological,

operational, or other processes that require uniform practices. The POC

also promulgates Detailed Regulations for the UPU Convention and the

Agreements and promotes the introduction of new postal products. The

United States is a member of both the CA and the POC.

Finally, the International Bureau, located in Berne, provides secretariat

and support facilities for the UPU’s bodies. It also manages an account

settlement process among postal administrations related to the exchange

of postal items. In addition, it is responsible for ensuring the

representation of the UPU in its external relations with international

organizations.

3

Mandatory services include the transfer, exchange, and interadministration charges and payment

mechanisms for letter products—including, among others, letters, post cards, and printed papers.

Optional services include, for example, expedited mail, parcel post, and postal money orders.

Page 19 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

GAO International Organization for the 

Telecommunications Sector: the ITU

the ITU Structure

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ITU Plenipotentiary 

Conference

(188 member countries)

Radiocommunication Sector Telecommunication 

Development Sector

Permanent 

bodies

Supreme body

Telecommunication 

Standardization Sector

World Telecommunication 

Standardization Conferences

TSAG

Study groups

Council

(46 members)

General Secretariat

 

Source: ITU information.

The ITU, originally called the International Telegraph Union, is

headquartered in Geneva, Switzerland. It is a specialized agency of the U.N.

with 188 members.4 Through the ITU, governments and the private sector

coordinate global telecommunications networks and services. The main

bodies of the ITU include (1) the supreme body, the ITU Plenipotentiary

4

The ITU, the oldest international treaty organization, was set up on May 17, 1865, with 20 participating

countries. Under an agreement with the U.N., the ITU became a specialized agency of the U.N. on Oct..

15, 1947.

Page 20 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

Conference; (2) the Council; (3) the General Secretariat; and (4) three

sectors: the Radiocommunication, Telecommunication Standardization,

and Telecommunication Development Sectors. In this report, we focus

primarily on the Telecommunication Standardization Sector.

Plenipotentiary Conferences, to be held every 4 years, comprise

delegations representing all members of the ITU. They adopt the policies of

the organization and decide on the organization and activities of the ITU in

the International Telecommunications Constitution and Convention treaty,

which is ratified, accepted, or approved by each member country. The ITU

Council comprises 46 members of the union elected by the Plenipotentiary

Conference. The Council is to consider, in the interval between

Plenipotentiary Conferences, broad telecommunication policy issues as

well as Union administrative issues to ensure the union’s policies and

strategies are effective in the changing telecommunications environment.

In addition, the Council is responsible for ensuring the efficient

coordination of the work of the Union and effective financial control over

the General Secretariat and the three sectors. The General Secretariat

provides administrative support and information services for the ITU’s

bodies and coordinates with other international organizations.

Within the permanent Telecommunication Standardization Sector are the

World Telecommunication Standardization Conference, the World

International Telecommunications Conference, and the

Telecommunications Standardization Advisory Group (TSAG). World

Telecommunication Standardization Conferences are held every 4 years.

These conferences approve, modify, or reject draft standards, called

recommendations because of their voluntary character. They also decide

which study groups should be maintained, established, or abolished as

well as what issues should be studied. The Director of the

Telecommunication Standardization Bureau (provides the staff and

administration for the sector) is elected at the Plenipotentiary Conference.

TSAG is to review priorities and strategies of sector activities as well as the

implementation of the work program, provide guidelines for study group

work, and recommend measures to foster cooperation and coordination

with other organizations. The United States is a member of the ITU Council

and TSAG.

Page 21 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

GAO

Reviewed legal authorities

Reviewed internal documents

Documented roles and responsibilities of 

agencies and international organizations

Interviewed agency officials

Observed meetings and conferences 

Scope and Methodology

 

Page 22 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section I 

Background

Scope and Methodology To determine the roles and responsibilities of U.S. stakeholders in U.S.

international postal and telecommunication policy development and

representation to the UPU and ITU, we reviewed relevant U.S. laws,

executive orders, regulations, and agency documents as well as the UPU

and ITU constitutions, conventions, rules of procedure, and agreements.

We interviewed responsible USPS officials in the International Business

Unit and Office of General Counsel. We interviewed responsible

Department of State officials in the Bureau of Economic and Business

Affairs and the Bureau of International Organization Affairs as well as

officials at the Department of Commerce, USTR, OMB, and FCC.

To determine the level of participation by government and private-sector

stakeholders in U.S. international policy development and representation

in the postal sector, we reviewed letters and other correspondence

between the Service and other federal agencies that have been involved in

consultations on international postal matters, as well as other key postal

stakeholders, and agendas and attendance lists from USPS briefings on

international postal policy issues. We interviewed officials at the

Departments of State and Commerce, USTR, and OMB about their level of

involvement in developing U.S. postal positions as well as key UPU officials

to gain a better understanding of UPU’s operations and participation in the

UPU. Further, we attended the spring 1998 meetings of the UPU’s CA working

parties and POC and talked to delegates from other countries about their

UPU representation. We also attended a USPS briefing in Washington, D.C.,

for government and private-sector stakeholders concerning preparation

for the 1999 Beijing UPU Congress.

For the telecommunications sector, to determine the level of participation

by government and private-sector stakeholders in U.S. policy development

and representation, we interviewed officials from the Departments of State

and Commerce and FCC. We also attended U.S. preparatory meetings at the

Department of State in Washington, D.C., for the ITU Plenipotentiary

Conference that was held in Minneapolis in October 1998. Further, we

reviewed meeting agendas and lists of delegates, observers, and attendees

at official and preparatory ITU meetings. We conducted our review from

June through September 1998 in accordance with generally accepted

government auditing standards.

Page 23 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

GAO

Agency participation in U.S. international 

policy development differed in the two 

sectors due to differing legal roles

Private-sector participation in U.S. policy 

development was more formalized in the 

telecommunications sector than in the 

postal sector

U.S. Policy Development: Comparison 

of Roles Between the Two Sectors

 

Page 24 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

U.S. Policy Development:

Comparison of Roles

Between the Two Sectors

Differences in the roles of government and private-sector participation in

U.S. international policy development for the postal and

telecommunications sectors related to the differences in the agencies’

roles and responsibilities as defined under the law. Some agencies had

specific legally defined postal or telecommunications responsibilities,

while others had general legally defined responsibilities that were not

sector specific. For example, USPS had postal-specific responsibilities, and

FCC had telecommunications-specific responsibilities. However, the

Department of Justice had antitrust responsibilities, and the USTR had

trade-related responsibilities, which were not issue or sector specific.

Thus, agencies’ level of participation in U.S. international policy

development for postal or telecommunications issues differed, depending

upon their legally defined roles. Private-sector participation in policy

development also differed. In the telecommunications sector,

private-sector participants were more formally and directly involved in

U.S. international policy development, while in the postal sector,

private-sector participation was more informal and ad hoc.

Policy development in both sectors generally involved a lead agency, other

government stakeholders, and private-sector stakeholders. In the postal

sector, USPS has been the lead government agency, supported by the

Department of State. Other government stakeholders that have sometimes

participated in policy development meetings included the Departments of

Commerce and Justice, OMB, and the U.S. Trade Representative (USTR).

Private-sector stakeholders have also been informally involved in

international U.S. postal policy development. These generally included

(1) competitors, such as ACCA; (2) customers and mailer associations,

including the Association of American Publishers and the Direct Marketing

Association; and (3) suppliers, such as the Air Transport Association.

In international telecommunications, the Department of State has been the

lead agency in the coordination of U.S. international telecommunications

policy development. The other government stakeholders included the

Department of State advisory committees, U.S. International

Telecommunications Advisory Committee (ITAC) and its study groups, FCC,

National Telecommunications Information Administration (NTIA) in the

Department of Commerce, and USTR. Private-sector participants in U.S.

policy development in the international telecommunications sector are

involved in both a formal advisory role and as direct participants; they

have included major industry associations, such as the American

Telecommunications Information Solutions, and individual companies,

such as AT&T.

Page 25 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

GAO

Agency Key roles Legal authority

USPS Lead negotiator of postal treaties 39 U.S.C. 407

State President's principal adviser on U.S. foreign 

policy

Formulates and executes U.S. foreign policy 

22 U.S.C. 2656

USTR President's principal adviser on trade issues

Negotiates trade-related issues with other 

countries and in WTO

19 U.S.C. 2171

Commerce Develops policy regarding U.S. service 

industry competitiveness in foreign commerce

19 U.S.C. 2114b

Justice 

Department

Enforces federal antitrust laws and protects 

competition

15 U.S.C. 1-7

OMB Coordinates and manages the executive 

branch

31 U.S.C. 1111

U.S. Policy Development: Legal Roles 

of Postal/Telecommunications Sectors

Key Legal Authority for Roles of Government Agencies Involved 

in Postal Sector

 

Source: U.S. Code.

Page 26 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

U.S. Policy Development:

Key Legal Roles of

Agencies Involved in the

Postal Sector

In the postal sector, USPS is the primary agency for the development of

postal policy. USPS, an independent establishment of the executive branch,

is responsible under the law for providing universal postal services to all

communities. Under 39 U.S.C. 407, USPS is the lead agency responsible for

negotiating and concluding postal treaties or conventions with other

countries. USPS is currently the only U.S. operator providing postal services

under the standards and obligations of UPU Convention. The Department of

State is the principal adviser to the President on U.S. foreign policy

matters, and it coordinates with USPS to ensure that all postal treaties or

conventions are in line with U.S. foreign policy.5

 The Department of State

also provides guidance and support for U.S. participation in international

organizations and is responsible for accrediting U.S. delegations to

international organizations.

No other government agencies have legally defined postal-specific

responsibilities. However, depending upon the U.S. positions being

developed, other key agencies have participated in developing policies for

international postal issues related to their general areas of legal

responsibility. For example, Commerce, Justice, and OMB have participated

in discussions related to proposed U.S. positions on rates for the exchange

of international mail before the 1994 Seoul UPU Congress and in recent

discussions for the 1999 UPU Congress. The Department of Commerce has

responsibility for issues related to U.S. service industries’ competitiveness

in foreign commerce. For the postal sector, the Department of Commerce

has recently been involved in issues of concern to the direct marketing

industry. Due to the Department of Justice’s responsibility for matters

pertaining to antitrust enforcement or protection of competition, Justice

officials have also participated in meetings related to competition issues.

Finally, USTR, as the principal adviser to the President on trade issues, has

been involved primarily in trade-related issues with other countries and in

the World Trade Organization (WTO).

5

Section 407 (a) of title 39 of the U. S. Code is cited as legal authority and justification for the Postal

Service’s role as the lead agency in the development and representation of U.S. policy. Section 407(a)

states: “The Postal Service, with the consent of the President, may negotiate and conclude postal

treaties or conventions . . . “ In addition, section 407(b) of title 39 mandates a role for the Department

of State stating that “The Postal Service shall transmit a copy of each postal convention concluded

with other governments to the Secretary of State, who shall furnish a copy of the same to the Public

Printer for publication.”

Page 27 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

GAO

Agency Key roles Legal authority

State Formulates, coordinates, and oversees foreign policy 

related to international telecommunications issues 

22 U.S.C. 2707

Commerce President's principal adviser on telecommunications 

policy (NTIA)

Develops policy regarding U.S. service industry 

competitiveness in foreign commerce

47 U.S.C. 902

19 U.S.C. 2114b

FCC Regulates and develops policies concerning 

international communications

47 U.S.C. 151

USTR President's principal adviser on trade issues

Negotiates trade-related issues with other countries 

and in WTO

19 U.S.C. 2171

Justice 

Department

Enforces federal antitrust laws and protects 

competition

15 U.S.C. 1-7

OMB Leads in domestic telecommunications procurement 

along with GSA

40 U.S.C. 25

U.S. Policy Development: Legal Roles 

of Postal/Telecommunications Sectors

Key Legal Authority for Roles of Government Agencies Involved in 

Telecommunications Sector

 

Source: U.S. Code.

Page 28 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

U.S. Policy Development:

Key Legal Roles of

Agencies Involved in the

International

Telecommunications

Sector

The Department of State, by law, is the principal adviser to the President

on U.S. foreign policy matters and is the lead agency responsible for

formulating, coordinating, and overseeing U.S. international

telecommunications foreign policy. State also has a legal requirement to

coordinate with other agencies as appropriate, principally FCC, NTIA, and

USTR. Further, State is required to coordinate with representatives of the

private sector to ensure that their concerns are considered.

Key agencies with legal authority for involvement in policy development in

the international telecommunications sector have regularly included the

Department of Commerce, the Department of Commerce’s NTIA, and FCC.

The Department of Commerce develops policies regarding the U.S. service

industry’s competitiveness in foreign commerce in consultation with other

agencies. NTIA is the principal adviser to the President on

telecommunications, both international and domestic. FCC regulates and

develops policies concerning interstate and international communication

and administers the implementation of international telecommunications

policies and obligations.

Other agencies, including Justice, OMB, and USTR, have also participated in

issues related to their legally defined responsibilities. For example,

recently the Department of Justice was involved in reviewing the merger

of WorldCom and MCI. In addition, USTR was involved in the negotiation of

the WTO Agreement on Basic Telecommunications Services, which went

into effect on February 5, 1998. Finally, OMB’s focus is generally more

domestically oriented as the President’s principal adviser on procurement

and management of federal telecommunications systems. It is also

responsible, along with the General Services Administration (GSA), for

developing and establishing policies for the procurement and management

of such systems.

Page 29 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

GAO

Telecommunications:

Formalized committee 

structure

Ongoing meetings

Public notice of meetings

Required documentation, 

including minutes

Postal:

Ad hoc briefings

Participation by invitation

Limited documentation

No official minutes

U.S. Policy Development: Comparison 

of Participation and Processes

 

Page 30 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

Comparison of

Participation in and

Processes Used for U.S.

Policy Development

Differences in legal requirements also contributed to differences in the

formalization of the processes used to develop U.S. policies for

international postal and telecommunications issues in areas such as

committee structure, meeting notifications, and documentation. One of the

key areas of differences was that the Department of State was legally

required to obtain input from the private sector on international

telecommunications policy issues, while USPS was not subject to such legal

requirements.

In the international telecommunications sector, government and

private-sector stakeholders had more direct involvement in U.S. policy

formulation through a structured and documented advisory committee

process headed by the Department of State and subject to the

requirements of the Federal Advisory Committee Act (FACA).6 FACA

requirements include Federal Register notice of committee meetings,

detailed minutes of meetings, public access and participation at meetings,

and annual reports to GSA, which then reports to Congress on the

activities, status, and any changes in the advisory committees.

In the postal sector, USPS was not subject to FACA. The process for

involving government and private-sector stakeholders in international

policy formulation was more informal, involving ad hoc briefings with

limited public notice or documentation of meetings. These briefings

started about 18 months before the UPU Congress convened, as

stakeholders began to show an interest in UPU issues. USPS identified

agencies and private-sector stakeholders it considered appropriate to be

invited, such as private delivery service companies and users of delivery

services. Participants were provided with copies of documents for

discussion, including U.S. proposals, and were asked to provide their input

on issues of interest to them. No formal minutes were kept of meeting

proceedings.

6

FACA was enacted to ensure that (1) valid needs exist for establishing and continuing advisory

committees, (2) the committees are properly managed and their proceedings are as open as possible to

the public, and (3) Congress is kept informed of the committees’ activities. See our reports, Federal

Advisory Committee Act: General Services Administration’s Oversight of Advisory Committees

(GAO/GGD-98-124, June 15, 1998) and Federal Advisory Committee Act: View of Committee Members

and Agencies on Federal Advisory Committee Issues (GAO/GGD-98-147, July 9, 1998).

Page 31 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

GAO

Postal sector:

Ad hoc briefings

Participation by invitation

Limited documentation

No official minutes

U.S. Policy Development: Process in 

the Postal Sector

 

Page 32 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

U.S. Policy Development:

Process in the Postal

Sector

In the postal sector, the process for involving government and

private-sector stakeholders in policy formulation was more informal than

that required by FACA. It involved ad hoc briefings with limited

documentation. In preparation for the development of U.S. positions to be

presented at the 1994 UPU Congress, USPS provided five briefings before the

Congress. A USPS official explained that the briefings were scheduled to

present information on UPU issues based on the interests of the

government and private-sector stakeholders. USPS provided agendas and

proposals to invited participants. The official said that participants were

encouraged to provide input on the various issues under discussion. Our

review of records and discussions with participants indicated that

sometimes proposals that were to be discussed at the briefings were

circulated prior to the meetings. Generally, minutes of meetings were not

prepared. Although participants were provided copies of documentation

related to such briefings, this information was not publicly available. USPS

also gave one briefing following the UPU Congress to inform stakeholders

of the actions taken at the UPU Congress.

According to USPS officials, USPS as lead agency for developing U.S.

positions on international postal issues, coordinated its international

activities with the Department of State—the President’s representative for

foreign affairs. Although other agencies were regularly invited to the

briefings leading up to the 1994 UPU Congress, agency officials said their

attendance varied, depending upon whether the issues being discussed

related to their responsibilities. The Department of State sent a

representative to these briefings on a regular basis. The Departments of

Commerce and Justice, OMB, and USTR occasionally sent representatives.

Private-sector stakeholders have also been involved in U.S. postal policy

development. Some of the private-sector participants that have regularly

attended the briefings related to the 1994 UPU Congress have included

competitor and mailer associations, such as ACCA, the American Business

Press, and the Association of American Publishers. Some of the individual

company customers and suppliers that have been involved in the 1994 UPU

Congress briefings included Time-Warner, Tritech Services, and Pitney

Bowes.

Page 33 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

GAO

Telecommunications sector:

Formalized committee structure

Ongoing meetings

Public notice of meetings

Required documentation, including 

minutes

U.S. Policy Development: Process in 

the Telecommunications Sector

 

In the international telecommunications sector, the Department of State

was required to coordinate with other federal agencies and private-sector

advisory groups. The process for involving government and private-sector

stakeholders in U.S. policy formulation involved a formalized advisory

committee structure headed by the Department of State, with regularly

scheduled meetings that required public notification in the Federal

Register. Required documentation included detailed minutes of the

Page 34 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section II 

U.S. Policy Development: International

Postal and Telecommunications Issues

proceedings as well as annual status reports to Congress through a formal

reporting process.

The Department of State established the International

Telecommunications Advisory Committee (ITAC), which was chartered in

accordance with FACA. FACA and its implementing regulations generally

require that (1) agendas and meeting information, such as time, date,

place, and purpose, be published in the Federal Register; (2) detailed

minutes of each advisory committee meeting be kept;7

 (3) an annual report

be sent to GSA, which then is to report to Congress on the activities, status,

and any changes in the advisory committees; and (4) the membership of

the advisory committee be fully balanced in terms of the points of view

represented. ITAC advised the Department of State on matters concerning

U.S. participation in ITU conferences and advisory group meetings; it was

also the steering committee for U.S. study groups.

Private-sector organizations that participated in policy development

through the advisory committee and study groups included major industry

associations, such as the Alliance for Telecommunications Industry

Solutions (ATIS) and the Telecommunications Industry Association (TIA).

ATIS represents private carriers and is chartered to develop and

recommend national standards. ATIS is a source of technical support to

study groups and working parties. TIA represents U.S. equipment

manufacturers and suppliers of communication and information

technology products. TIA contributes to voluntary industry standards and

sponsors international trade shows and missions to promote industry

products. Individual companies, such as AT&T and Rockwell, also

participated in these committees and study groups.

7

Detailed minutes are to include, among other things, the time, date, and place of the meeting; a list of

attendees, names of members of the public who presented oral and written statements, an estimate of

the number of other members of the public present, an accurate description of matters discussed and

resolutions, if any; and copies of documents received.

Page 35 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

GAO Comparison of Sector Representation in 

the Supreme Bodies

Sector Representation in the UPU Congress and ITU 

Plenipotentiary Conference

Participants at supreme 

bodies UPU Congress

ITU Plenipotentiary 

Conference

Head of U.S. delegation USPS Department of State 

Members of U.S. 

delegation

USPS

Department of State

Department of State 

NTIA (Commerce)

FCC

Defense Department

Private-sector companies

Supreme bodies

 

Source: USPS and Department of State documents.

Page 36 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

Comparison of Sector

Representation in the

Supreme Bodies

The U.S. delegations to the UPU and ITU supreme bodies are accredited by

the Department of State. Delegates to international organizations must

have credentials from their governments and were generally selected by

their respective governments for their technical expertise. The credentials

can grant the delegate (1) full powers—the right to speak, vote, and sign

the organization’s acts or (2) only partial powers—the right to speak

and/or vote. Both the UPU and ITU have requirements for observer status to

the supreme bodies. Observers may also participate, under separate status

from membership in country delegations, in international organizations

under limited circumstances that may not include the right to speak or

vote.

For comparison of the U.S. representation to the UPU and ITU, we reviewed

the U.S. delegations to the meetings of the supreme bodies in 1994. These

delegations generally included a head of delegation, deputy head(s), and

members. However, significant differences existed in the composition of

the U.S. delegations to the supreme and permanent bodies of the UPU and

ITU, a reflection of the different legally defined roles of the government

agencies and private-service providers involved in each sector.8

 Some

agencies had specific legally defined postal or telecommunications

responsibilities, while others had general legally defined responsibilities

that were not sector specific. The U.S. delegation to the UPU Congress was

led by and predominantly made up of USPS officials and staff and a few

Department of State officials; it did not include private-sector companies.9

In comparison, the U.S. delegation to the ITU Plenipotentiary was led by

the Department of State and included a broad range of government and

private stakeholders, mainly from the Department of State, NTIA, FCC, and

private-sector companies.

Both international organizations have grappled with adapting their

organizations’ structures to the evolving competitive postal and

telecommunications environments, which have seen rapid changes in the

roles of public and private service providers. In the postal sector, the

distinction between public and private-service providers is becoming more

blurred as several foreign postal administrations have recently acquired or

developed partnerships with private delivery companies. Thus, as in the

telecommunications sector, postal delivery services are increasingly being

provided by private as well as public service providers.

8

See br. section II for a discussion of the agencies’ legally defined roles.

9

A private-sector organization requested that it be included in the U.S. delegation to the 1994 UPU

Congress, but the request was denied by USPS.

Page 37 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

GAO Postal Sector Representation in the 

UPU Supreme Body

U.S. Participation in the UPU Congress

UPU Congress

 Not part of U.S. delegation

 Legend:

USPS

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Source: UPU documents.

Page 38 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

Postal Sector

Representation in the UPU

Supreme Body

The U.S. delegations to the UPU Congresses typically consisted of a head of

delegation, a deputy head, delegates and accompanying officials. The

composition of the U.S. delegation was identified by USPS and accredited

by the Department of State. The head of the U.S. delegation has been a

USPS official, usually the Postmaster General. Members of the delegation

have typically included other postal officials as well as officials from the

Department of State. USPS headed the delegation to the 1994 UPU Congress.

Twenty seven of the 32-member delegation to the UPU Congress in 1994

were from USPS; the remaining 5 members of the delegation were from the

Department of State. No private-sector representatives were included in

the U.S. delegations to the UPU Congress. ACCA had asked to be included,

but its request was denied by USPS. ( See app. II for a listing of the U.S.

delegation to the 1994 Seoul UPU Congress.)

Observers to the UPU delegation may be allowed, under certain

circumstances, to take part in the debates without the right to vote.

Observers may include representatives of the U.N. organizations,

intergovernmental organizations, and Restricted Unions.10 For example, at

the 1994 UPU Congress in Seoul there were observers from the U.N.

International Civil Aviation Organization, the Conference of European

Post and Telecommunication, and the Postal Union of the Americas, Spain

and Portugal. Nongovernmental international organizations may also

request admission to the UPU Congress as nonvoting observers.

Proposals are being developed for consideration at the next UPU Congress

that would include a “consultative status” for international

nongovernmental organizations. The proposed consultative status would

allow nongovernmental international organizations to be present and

deliver opinions, but not vote, in most of the UPU meetings without a

formal invitation. It is also proposed that organizations having consultative

status would contribute to the costs of the UPU.

10A restricted union is a group of member countries that are formed for the purpose of further

advancing cooperation among postal administrations and to improve postal services. There are

presently 14 restricted unions covering most of the world’s regions.

Page 39 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

GAO International Telecommunications Sector 

Representation in ITU Supreme Body

U.S. Participation in the ITU Plenipotentiary Conference

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AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

ITU Plenipotentiary 

Conference

 Not part of U.S. delegation

 Legend:

Members

AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA

AAAA

AAA AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

Observers

U.N. representatives

Intergovernmental 

organizations

Nongovernmental 

organizations

Private-sector 

companies

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA

AAAA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

U.S. delegation to ITU

Department of State

NTIA (Commerce)

FCC

Defense Department

Private-sector 

representatives

Head of delegation

Department of State

Members

Supreme body

 

Source: ITU and Department of State documents.

Page 40 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

International

Telecommunications

Sector Representation in

the ITU Supreme Body

The U.S. delegation to the 1994 ITU Plenipotentiary Conference was drawn

from the government and private sectors. The Department of State led the

delegation to the ITU Plenipotentiary Conferences and designated an

appointee from the private sector to head the delegation and gave him

temporary special government employee status with ambassador rank.

Five deputy heads of delegation were appointed—one from the

Department of State, one from FCC, one from NTIA, and two from the

private sector. The Department of State attempts to limit the number of

delegates from the government to 10. In 1994, there were 6 delegates and 4

advisers, in addition to the head of delegation and the 3 deputies from the

government sector, for a total of 14 in the delegation from the government

sector.

U.S. delegates were also chosen from the private sector. In 1994 there

were 17 private-sector delegates and 6 advisers, in addition to the 2

deputies and the chair of delegation, for a total of 26 in the delegation from

the private sector. According to Department of State officials, generally

delegates were selected and assigned to attend certain committee

meetings based on their knowledge and expertise. (See app. II for listing of

U.S. delegation to the 1994 ITU Plenipotentiary Congress.)

Certain organizations are permitted to attend the ITU Plenipotentiary

Conference and participate as observers. These observers do not vote and

are allowed to speak if called upon by the Chair of the Conference. The ITU

is struggling with issues related to how private-sector service providers

should participate. For example, one issue that has been discussed in

recent meetings held by the Department of State is the potential that

conflicts may develop when multinational telecommunications

corporations have delegates on more than one country’s delegation.

Page 41 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

GAO Comparison of International 

Representation in the Permanent Bodies

Sector Representation in the UPU and ITU Permanent Bodies

Permanent bodies Agency participants

Private-sector 

participants

Policy Issues:

CA (UPU) USPS, 

Department of State

Private Operators Contact 

Committee

Council (ITU) Department of State

FCC, NTIA

None

Technical issues:

POC (UPU) USPS None

TSAG and study 

groups (ITU)

Department of State 

FCC, NTIA, 

Department of 

Defense

Private-sector companies, 

industry associations, 

recognized operating 

authorities,

regional standards 

organizations, and

scientific and industrial 

organizations

 

Source: USPS, UPU, ITU, and Department of State documents.

Page 42 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

U.S. International

Representation:

Comparison of U.S.

Delegations to the UPU

and ITU Permanent Bodies

The permanent bodies can be classified, in general, as those bodies that

address policy and administrative issues and those bodies that address

technical issues. The UPU Council of Administrations (CA) and the ITU

Council focus primarily on administrative policy. The UPU Postal Operation

Council (POC) and its committees and working parties and the ITU

Telecommunications Sector Advisory Group (TSAG) and its study groups

and working parties address primarily technical issues.

U.S. delegations to the UPU CA have been made up predominantly of USPS

officials and staff. A Department of State official has been included in the

U.S. delegation to the UPU CA. One CA committee involves private-sector

representatives primarily from associations representing private

competitors and was established to address issues of interest to private

competitors. In comparison, the delegation to the ITU Council includes no

private-sector participants and has been composed of officials from the

Department of State, NTIA, and FCC.

The U.S. delegations to the UPU POC meetings have been made up

exclusively of USPS officials. In contrast, the delegations to the ITU study

groups and working parties have been composed of a broad range of

government and private stakeholders. In addition, private-service

providers could participate in ITU permanent bodies as sector members on

their own behalf, rather than as U.S. delegates. U.S. participation in the ITU

study groups and working parties is primarily by the private sector.

Page 43 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

GAO Postal Sector Representation in the 

UPU Permanent Bodies

U.S. Participation in the UPU Conferences, Advisory Groups, 

and Working Parties

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

Private Operators Contact 

Committee

 Not part of U.S. delegation

 Legend:

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

UPU 

CA and POC

AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

U.S. delegation to UPU

USPS

Department of State

Head of delegation

USPS

Members

Permanent bodies

 

Source: USPS and UPU documents.

Page 44 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

Postal Sector

Representation in the UPU

Permanent Bodies

As previously stated, the UPU permanent bodies consist of the CA, with 41

members, and the POC, with 40 members. Individual committees are

supported by various study groups that assist in developing proposals to

be presented to the next UPU Congress.

CA meetings were attended by members from postal administrations

and/or regulatory agencies. The UPU General Regulations required that

each member of the CA appoint a representative competent in postal

matters. Both USPS and Department of State officials attend CA meetings on

behalf of the United States.

Participants in the POC committee meetings were members of the postal

administrations. The UPU General Regulations required that each member

of the POC be appointed by the postal administration of his or her country

and that the representative be a qualified official of the postal

administration.

Private-sector participants, including ACCA, were generally limited to the

Private Operators Contact Committee, which is a CA committee.

Page 45 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

GAO

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

AA

ITU Conferences, Council, 

Advisory Committees, and 

Study Groups

AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA

AAAA

AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA AAAA AAAA AAAA AAAA

AAAA AAAA

AAAA AAAA AAAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

AAA

U.S. delegation to ITU

Department of State

NTIA (Commerce)

FCC

Trade groups: TIA, ATIS

Private-sector companies

Congressional 

representatives

Head of delegation

Department of State

Members

International Telecommunications Sector 

Representation in ITU Permanent Bodies

U.S. Participation in the ITU Conferences, Advisory Committees, 

and Study Groups (Telecommunications Standardization Sector)

Permanent bodies

 

Source: ITU and Department of State documents.

Page 46 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Briefing Section III 

U.S. Policy Representation in International

Postal and Telecommunications

Organizations

International

Telecommunications

Sector Representation in

the ITU Permanent Bodies

The Telecommunication Standardization Sector is the part of the ITU

permanent body that hosts the World Telecommunications

Standardization Conference, which has an advisory body—TSAG—and

study groups. World Telecommunications Standardization Conferences,

TSAG, and the study groups are open to representatives of administrations,

organizations authorized to participate in the work of the union, and

representatives of other study groups. Generally, the U.S. delegations to

the permanent bodies included representatives from FCC, NTIA, and the

Department of State. Private-sector stakeholders attended permanent

body meetings as delegates of the member country or separately as sector

member representatives. As sector representatives, they could voice

positions that may be different from the official U.S. positions. The ITU

Council, which focuses primarily on administrative policy, was attended

exclusively by representatives from the major government agencies.

World Telecommunication Standardization Conferences are generally held

every 4 years. These Conferences may approve, modify, or reject

standards (called Recommendations because of their voluntary character),

although this approval may also be attained at the study group level. They

also approve the program of work for the study groups and review

progress on the implementation of the work program, provide guidelines

for the work of the study groups, and recommend measures to foster

cooperation and coordination. The U.S. delegation to the conferences

generally included officials from NTIA and FCC as well as individuals from

private-sector companies.

Likewise, U.S. delegations to the advisory committees and study groups

generally have included public and private-sector stakeholders. They were

assigned as delegates to group meetings, depending on their roles,

responsibilities, and expertise. For example, in recent meetings of the TSAG

and Study Group 3, Tariff and Accounting Principles, government

delegates included officials from the Department of State, NTIA, and FCC;

and private-sector delegates included representatives from AT&T, MCI,

and Ameritech. State and FCC representatives, along with GTE, Comsat,

and Bellcore representatives, among others, were delegates to Study

Group 2, Network and Service Operations. In addition, AT&T and several

other companies sent additional representatives as sector members

participating on their own behalf.

Page 47 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Appendix I 

Comparison of Legal Roles and

Responsibilities of U.S. Agencies Involved in

the UPU and ITU

Agency/Legal authority Roles and responsibilities

USPS

39 U.S.C. 407(a) and (b) • Negotiates and concludes postal treaties or conventions with the consent of the President

• Transmits copies of each postal convention concluded to the Secretary of State for publication

• Establishes the rates of postage or other charges on mail matter between the United States and

other countries

Department of State

22 U.S.C. 2656 • Serves as President’s principal adviser on U.S. foreign policy and is responsible for formulating

and executing U.S. foreign policy

1 Foreign Affairs Manual 331.1 • Accredits U.S. delegations to international organizations and conferences

22 U.S.C. 2707 • Formulates, coordinates and oversees foreign policy related to international

telecommunications and information policy issues including:

• Exercises primary authority for determining U.S. positions and conducting negotiations with

foreign governments and international bodies with respect to telecommunications policy 

• Coordinates with FCC, Department of Commerce, USTR, and other agencies in developing

international telecommunications policy

• Supervises and coordinates senior interagency policy groups on international

telecommunications and information policy, chairing meetings as appropriate

• Acts as liaison with representatives of the private sector to ensure that matters of concern

are considered by the Department of State or other executive branch agencies

• Assists in arranging meetings of public sector advisory groups that are to advise the

Department of State and other executive branch agencies of international communications

and information policy issues

Department of Commerce

19 U.S.C. 2114b • Establishes a Service Industry Development Plan in which it (among other things) develops, in

consultation with other federal agencies as appropriate, policies regarding services

(including telecommunications) that are designed to increase the competitiveness of U.S.

service industries in foreign commerce

• Prepares a biannual report to Congress and President analyzing information pertaining to

competitiveness collected under the Plan

19 U.S.C. 2114c • Provides staff support and other assistance for negotiations on service-related issues by the

USTR and the domestic implementation of service-related agreements

47 U.S.C. 902

(NTIA)

• Serves as the President’s principal adviser on telecommunications policies pertaining to the

Nation’s economic and technological advancement and to the regulation of the

telecommunications industry

• Develops plans, policies, and programs relating to international telecommunications issues,

conferences, and negotiations in coordination with Department of State and other agencies

• Coordinates economic, technical, and operational preparation for U.S. participation in

international telecommunications conferences and negotiations

• Advises and supports Department of State in developing international telecommunication

policies

• Establishes, as permitted, interagency committees and working groups composed of

representatives of interested agencies

• Conducts studies and evaluations on telecommunications research and development and use

of federal telecommunications systems

• Advises OMB on development of policies on procurement and management of federal

telecommunications systems

(continued)

Page 48 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Appendix I 

Comparison of Legal Roles and

Responsibilities of U.S. Agencies Involved in

the UPU and ITU

Agency/Legal authority Roles and responsibilities

Federal Communications Commission

47 U.S.C. 151 • Regulates and develops policies concerning interstate and international telecommunication

• Administers the implementation of international telecommunication policies and obligations

• Participates in international conferences and provides advice and technical assistance to U.S.

 trade officials in negotiation/implementation of telecommunications trade agreements

• Conducts economic, legal, technical, statistical/other appropriate studies in support of

international telecommunications policies and programs

• Encourages competition in all communications markets and protects the public interest

• Promotes competition in the public interest 

• Coordinates with Department of State in advisory groups in preparation of negotiations

Department of Justice

15 U.S.C. 1-7 • Reviews antitrust issues and mergers and enforces federal antitrust laws

• Reviews competition issues

U.S. Trade Representative

19 U.S.C. 2114c • Negotiates service-related issues (including telecommunications service) with staff support

provided by Commerce together with other appropriate agencies as requested by USTR

19 U.S.C. 2171 • Lead responsibility for developing and coordinating implementation of U.S. international trade

policy

• Lead responsibility for conduct of, and shall be the chief representative of the U.S. for,

international trade negotiations, including all negotiations on any matter considered under the

auspices of the WTO in which the U.S. participates

• Issues and coordinates policy guidance to departments and agencies on basic issues of policy

and interpretation arising in the exercise of international trade functions

• Acts as principal trade advisor, negotiator, and spokesperson for the President on trade issues

• Receives staff/other assistance from Commerce and other agencies for negotiation and

implementation

• Responsible for complaints regarding unfair trade practices

Office of Management and

Budget

31 U.S.C. 1111 • Coordinates and manages the executive branch

40 U.S.C. 25 • Leads in domestic telecommunications procurement along with the GSA

Sources: U.S. Code and the Foreign Affairs Manual of the Department of State.

Page 49 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Appendix II 

U.S. Representation at UPU and ITU 1994

Supreme Bodies

Table II.1: U.S. Delegation to 1994 UPU Congress

U.S. Delegation Agency

Delegation heads

Postmaster General/CEO

Senior Director, International Postal Affairs

USPS

USPS

Assistant head

Deputy Postmaster General

Chief Operating Officer/Executive V.P.

USPS

USPS

Delegates

U.S. Ambassador to Korea

Deputy Chief of Mission

Senior Adviser to Postmaster General

Chief Postal Inspector

Vice President, Controller

Vice President, Operations Redesign

Program Manager, UPU Affairs

Program Manager, Terminal Dues

Program Manager, Tech. Cooperation

Manager, International & Military Mail Operations

Manager, Strategic & International Finance

Group Manager, External Liaison

Manager, Administration Office of PMG

Group Manager, International Product Development

Attorney

Program Manager, Classification

U.S. Postal Inspector, External Liaison Group

U.S. Postal Inspector, External Liaison Group

International Postal Affairs Specialist

International Postal Affairs Specialist

International Relations Specialist

Deputy Director, Industrial and Communications Programs

Financial Management Officer

Second Secretary

State

State

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

USPS

State

State

State

Advisers

Manager, Stamp Services

Marketing Specialist

Office Manager

Staff Assistant

USPS

USPS

USPS

USPS

Sources: USPS and UPU documents.

Page 50 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Appendix II 

U.S. Representation at UPU and ITU 1994

Supreme Bodies

Table II.2: U.S. Delegation to 1994 ITU Plenipotentiary Conference

U.S. Delegation Agency or company

Delegation head

Ambassador Special Government Employee at State

Deputy head

Senior Deputy U.S. Coordinator 

Senior Attorney Adviser

Director, Int’l Regulation and Technology Division

Senior Engineer

Executive Director, International Relations

State

FCC

NTIA

Computer Sciences 

Bell South

Private-sector delegates

Program Director

Director, International Government Affairs

Director, Federal Government Affairs

Director, Industry and Government Planning

Assistant VP, Government and International

Relations

Senior Partner 

Electrical Engineer

Director, Telecommunications and Standards

Senior Staff Specialist

V.P. and Director, Global Telecommunications

Relations

V.P. and Regulatory Counsel

Senior V.P.

Deputy to Chief Executive Office

Manager, International Public Policy

Manager, Technical Relations

Director, International Standards

Associate Program Manager

SEA Incorporated

Iridium

AT&T

COMSAT

Southwestern Bell

Fisher, Wayland, Cooper and Leader

Stanford Telecom

IBM

MCI International

Motorola

American Mobile Satellite Corp.

Hill and Knowlton

Motorola

ICA

American Radio Relay League

Nynex

Computer Science Corporation

Government agency delegates

Telecommunications Manager

Attorney Adviser

Director, Telecom Policy, Mexico and Micronesia

Multilateral Affairs Officer

Senior Legal Adviser

Associate Administrator

U.S. Information Agency

State

State

State

FCC

NTIA

Private-sector advisers

Director, Technical Standards

V.P., International Services

Manager, Global Telecom

International Telecom Partner

President

Executive Staff Member

AT&T

AT&T

Motorola

Reid & Priest

CompassRose International

MCI International

(continued)

Page 51 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Appendix II 

U.S. Representation at UPU and ITU 1994

Supreme Bodies

U.S. Delegation Agency or company

Government agency advisers

Senior Counsel

Adviser for ITU Affairs

Deputy Director, Space & Nuclear

Chairman for the Radio Consultive Committee

National Committee

NTIA

State

Defense Department

State

Source: ITU documents.

Page 52 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Appendix III 

Comments From USPS

Page 53 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
Appendix IV 

Major Contributors to This Briefing Report

General Government

Division, Washington,

D.C.

Teresa L. Anderson, Assistant Director

Thomas M. Sharkey, Senior Economist

Bradley Dubbs, Evaluator

Hazel Bailey, Evaluator (Communications Analyst)

Office of the General

Counsel, Washington,

D.C.

Jill Poses Sayre, Senior Attorney

(240315) Page 54 GAO/GGD-99-6BR Postal/Telecom Representation in UPU and ITU
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