International Telecommunication Union

The International Telecommunication Union (ITU) is a specialised agency of the United Nations with a legacy stretching back to 1865. Originally founded to coordinate international telegraphy, ITU today plays a much broader role, in developing global standards for telecommunications and digital technologies, from radio spectrum management to cutting-edge issues like 5G and AI​. ITU supports work on ICT  (information and communication technologies) for all communities, making it a part of international efforts at global digital inclusion. 

ITU’s role in developing digital standards

ITU’s core mandate is to ‘ensure networks and technologies seamlessly interconnect’ and to ‘improve access to ICTs to underserved communities worldwide’. Information and communication infrastructure development is one of ITU’s priority areas. The organisation seeks to assist member states, sector members, associates, and academia in the implementation and development of broadband networks, wired (e.g. cable) and wireless technologies, international mobile telecommunications (IMT), satellite communications, the internet of things (IoT), and smart grids, including next-generation networks, as well as in the provision of telecommunications networks in rural areas. ITU’s structure is organised into three main sectors, each addressing a critical area of telecommunications. 

• ITU-R (Radiocommunication Sector) – Manages international radio-frequency spectrum and satellite orbits, and develops standards (Radio Regulations and recommendations) for wireless communications​.
• ITU-T (Telecommunication Standardization Sector) – Develops technical standards (‘ecommendations’) for telecommunications networks and services​. This ranges from fundamental phone signalling protocols to broadband internet specifications and emerging tech like multimedia codecs and cybersecurity frameworks.
• ITU-D (Development Sector) – Focuses on bridging the digital divide by providing capacity building, policy guidance, and technical assistance to developing countries​.

A central mechanism through which the ITU develops its technical and policy outputs is the system of study groups. These are expert working groups tasked with addressing specific issues through in-depth analysis, collaboration, and consensus. Study groups exist in each sector and play a foundational role in the ITU’s work, often referred to as the organisation’s technical ‘engine rooms.’

Each study group operates under a four-year work cycle known as a study period, during which it is assigned specific topics, known as ‘questions’, to investigate. Study groups are chaired by individuals elected from among ITU members and operate based on contributions submitted by participants. These contributions are examined and debated in meetings, held in person, regionally, or virtually, through working parties and rapporteur groups that focus on subtopics or technical details.

The study group process is collaborative and consensus-based. While formal voting is possible, decisions are usually adopted when broad agreement is reached. Outputs typically include:

• Draft Recommendations, which may become widely adopted international standards;
  
• Technical reports and handbooks, which consolidate best practices or technical findings; and
  
• Policy guidelines, designed to support national or regional ICT strategies.
  

Participation in study groups is open to all ITU members. This includes 193 member states and over 900 non-state members, referred to as sector members, which include private companies, academic institutions, and civil society organisations. Although only member states may vote on certain matters, all participants engage equally in technical discussions and standard-setting.

The impact of study group work is substantial. For example, standards developed by ITU-T define how communication systems interconnect globally, how international telephone numbers are structured, and how digital services like video conferencing or secure data exchange operate. While ITU Recommendations are not legally binding, they are widely implemented and incorporated into national frameworks due to their technical reliability and interoperability benefits.

In addition to study groups, ITU also holds treaty conferences to adopt legally binding instruments. The World Radiocommunication Conference (WRC), held every four years, revises the Radio Regulations—the global treaty governing spectrum use. The World Conference on International Telecommunications (WCIT) may revise the International Telecommunication Regulations (ITRs), which address broader principles governing international communications services.

Key digital standards developed by ITU

As technology evolved from telegraphs to the internet, ITU’s remit expanded to encompass telephony, radio, television, satellites, mobile networks, broadband, and more​.

Presently, 95% of international traffic runs over optical infrastructure built in conformance with ITU standards. Video now accounts for over 80% of all internet traffic; this traffic relies on ITU’s Primetime Emmy-winning video-compression standards.

Below are some key areas where ITU-led standards have been instrumental:

• 5G Mobile networks: ITU plays a leading role in defining standards for each generation of mobile technology. For 5G, ITU’s Radiocommunication Sector established the framework known as IMT-2020, setting performance requirements and spectrum arrangements for 5G worldwide​. In 2021, ITU-R finalised the first 5G specifications (Recommendation M.2150), which incorporate technologies developed by outside industry groups (like 3GPP’s 5G NR) into a single global standard.. Thanks to this process, all 3G, 4G, and now 5G systems are based on ITU’s IMT standards, enabling global interoperability of mobile phones and networks.​ This, in turn, means a smartphone can work and roam in many countries, and manufacturers can achieve economies of scale. By the mid-2020s, hundreds of 5G networks will have launched across the world in line with ITU’s internationally agreed specs.​
  
• IoT: With billions of devices – from sensors to appliances – connecting online, ITU has developed foundational standards for the IoT. An example is ITU-T Recommendation Y.2060, which provides an overview and common definition of the internet of things as a ‘global infrastructure for the information society, enabling advanced services by interconnecting things’​. ITU’s standards for IoT include network architectures, device addressing, and security. ITU launched a Global Standards Initiative on IoT, and subsequent recommendations have covered IoT reference models and requirements for things like smart city platforms and wearable devices. These standards help ensure that IoT devices and systems can interoperate globally. As a result, IoT deployments – from smart grids to connected cars – can rely on common frameworks rather than fragmented protocols.
  
• AI: While AI algorithms themselves aren’t standards in the traditional sense, ITU has focused on standards for applying AI in telecom networks and for AI governance. For instance, ITU established a Focus Group on AI for Health (in partnership with WHO) to develop a standardised assessment framework for AI-based medical diagnostics​. In its standardisation work, ITU has developed recommendations for utilising AI in 5G networks, multimedia, and service quality management​. One example is the ITU-T Y.3172/Y.3173 series on machine learning in future networks, which sets an architectural framework for integrating AI into network management.
  
• Broadband and connectivity: ITU standards have underpinned many broadband innovations. ITU-T recommendations in the G-series (for example, G.992 for ADSL, G. fast, and G.984 for GPON fibre networks) standardised the technologies that deliver broadband over telephone lines and fibre-optics. By agreeing on these technical specs, ITU enabled mass production of interoperable equipment, driving down consumer costs and expanding broadband availability. Telephone standards set by ITU earlier, such as the E.164 international numbering plan, made it possible to route calls (and later SMS) globally with a simple country code system. In recent years, ITU’s work on broadband has extended to satellite and wireless broadband standards and initiatives like the Broadband Commission for Sustainable Development (run with UNESCO) to advocate policy and investment for connectivity.
  
• Cybersecurity standards: ITU has been active in cybersecurity, producing standards and frameworks to help secure communications. A notable example is ITU-T Recommendation X.509, which defines the format of digital certificates used in public key cryptography​. X.509 is the foundation for SSL/TLS certificates that secure websites and online transactions worldwide – a fundamental cybersecurity building block originating from ITU (in collaboration with ISO). Additionally, ITU standards such as X.805 provide architectures for end-to-end network security, and Y.2705 addresses identity management in telecom networks.
  
  

Engagement of CSOs in ITU’s Work

ITU has historically been a club of member states and industry players, but the landscape is gradually evolving to include more diverse voices. ITU membership comprises member states, sector members (private industry and other approved organisations), associates, and academia. It brings together 194 national governments and over 1,000 companies and organisations to advance global connectivity, and only member states have voting rights. However, sector members can fully participate in the discussion and contribute to consensus-building towards the conference outcomes. Other organisations and individuals, as described in Article 25 of the ITU Convention, can attend as observers.

Civil society organisations (CSOs) have a critical interest in ITU decisions (which can affect internet governance, affordability, human rights, etc.). Engaging with ITU, however, is not as straightforward as in some multistakeholder forums (like ICANN or the IGF), because ITU remains an intergovernmental organisation at its core. 

While civil society faces barriers of access, cost, and structural rigidity at ITU, the importance of the issues at stake and gradual moves toward openness may offer avenues for engagement. Modalities for stakeholder participation in the member delegation often vary from country to country, and as such, it is essential for CSOs to have an accurate understanding of the delegation’s structure and the rules of engagement.

How CSOs can participate in ITU

1. Sector membership and associates: The primary formal route for non-governmental actors to engage in ITU is by becoming a sector member or an associate in one of ITU’s sectors. CSOs (including international NGOs and academic institutions) are, in principle, eligible for ITU membership​. As of recent counts, around 130 international and regional organisations (which can include civil society groups) have joined ITU as members​. By becoming a Sector Member, a civil society organisation can attend ITU study group meetings, submit contributions to debates, and observe most proceedings – essentially gaining a seat at the table (though without voting rights, which are reserved for states)​.

2. Joining national delegations: A valuable strategy involves civil society experts participating as part of a national delegation to ITU conferences or meetings. Some governments strengthen their delegations by incorporating representatives from civil society or academia in advisory or observational roles. A civil society participant can gain a seat at the negotiations and provide input into their country’s positions by being on a delegation​. This can be a powerful way to influence outcomes. For example, if an NGO representative is part of a national delegation, they might draft language for a resolution or suggest support/opposition to proposals that affect digital rights. However, this depends entirely on the openness of one’s national government.

ITU has occasionally permitted observers from the public or civil society to participate in certain meetings under special, one-time arrangements.

3. Attending as an observer or public attendant: On limited occasions, ITU has opened its doors to observers from the public or civil society in specific meetings, typically event-specific arrangements. For instance, the World Telecommunication Policy Forum (WTPF) – a high-level policy dialogue held every few years – has allowed civil society to register as public attendants. In the 2013 WTPF on internet policy, civil society participants could apply to attend and were generally allowed to observe most sessions, though not to make interventions on the floor.​

ITU sometimes establishes Informal Expert Groups (IEGs) before such forums, which invite experts (including from civil society) to help draft documents. Outside WTPF, ITU Plenipotentiary Conferences historically have been closed to non-members, but in recent years ITU has explored limited observer arrangements (e.g. inviting organisations with which ITU has formal relations). Some civil society groups with ECOSOC status or other UN credentials have occasionally gotten observer access at development conferences or workshops on the sidelines of ITU meetings.

4. Participating in Open Consultations and Working Groups: ITU’s governing Council has established certain Council Working Groups (CWGs) that deal with specific issues, and a few of these have open consultation processes. Notably, the Council Working Group on International Internet-related Public Policy (CWG-Internet) holds open consultations where any stakeholder, including civil society, can submit comments on chosen topics (e.g. bridging the digital divide, OTT services, the role of IXPs). While these consultations do not give a direct decision-making role, they are key opportunities for civil society to put expert opinions and concerns on record​.
The contributions from civil society can be leveraged by supportive member states in the closed meetings that follow​. For example, when CWG-Internet consulted on over-the-top (OTT ) services regulation in 2017, civil society groups like Article 19 and APC submitted detailed responses cautioning against over-regulation and highlighting human rights implications. These views armed allied governments with arguments to resist heavy-handed proposals behind closed doors.