What does governance mean in the Internet context?

• governance means answering two questions

  Who says who makes the rules?
  
  Who says who pays for what?

• easy in most current technology areas

  railroad regulations, TV content, nutrition labeling
  
  some fuzz when signal leaks across a border

• but hard for the Internet

  unbounded connectivity and access
  

• but that is (theoretically) not what we are talking about

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