only for five years, after which negotiations for permanent arrangements would be opened. During the interim period, while there was rapid progress towards creating an efficient global network of satellite communications, the United States, both at the government and the Comsat level, proved very hesitant to share the technology upon which the system was based with its European partners. Comsat worked to assure its control of the organization at both the managerial and technical levels. Thus by the time negotiations over a permanent agreement opened in February 1969, the U.S.- European conflict over the character of the organization was, if anything, greater than it had been in 1964. The conflict was worked out during two years of hard bargaining between 1969 and 1971. While the Europeans demanded access to the technological as well as communication benefits of INTELSAT, continued Comsat control was supported not only by the United States but also by new members such as Australia and Brazil more concerned with efficiency of system operation than with distributing its procurement contracts and the access to'technology they carried. The compromise finally reached created the INTELSAT organization as it exists today. The Definitive Agreements, which were signed in May 1971, created an international organization consisting of I. an Assembly of Members, 2. a Board of Governors, 3. a Meeting of Signatories, 4. a management body which, after a six year transition, would be international in character. The Assembly of Parties would consist of government representatives and would operate on a one-nation, one-vote basis; it would deal with policy matters of interest to governments. The Meeting of Signatories would consist of representatives of communication entities (most of which were also government bodies) and would operate on a one-country, one-vote basis. It would deal with financial, operational, or technical issues. The Board of Governors was the executive organ of INTELSAT and would operate on the basis of weighted voting; the United States finally agreed to give up its majority position as shareholder in the organization. Finally, Comsat was to remain as system manager for six years, but during that period would begin turning over management control to a Director General and an international secretariat. This hard fought compromise structure, agreed upon after many thought that agreement was impossible, appears today to be functioning smoothly. Certainly the cost of international telecommunications has continued to drop dramatically, and INTELSAT has operated at a profit and with a high degree of technical excellence. Communications with the rest of the world, and even domestically, have been made possible for a number of developing countries which otherwise might not have had such capabilities easily available. By most reasonable criteria, INTELSAT is an extremely successful international organization. Created out of conflict and in the face of highly divergent interests and perspectives, it stands as an example of the fact that the common interest can sometimes be made to prevail. REASONS FOR INTELSAT SUCCESS This very compressed policy history of INTELSAT is intended as a corrective to
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