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This paper is about the Internet's future, but the authors begin with its past. The history of network routing began as a topological problem: how does one find the shortest paths in a graph? However, with the advent of domain-based Internet routing, policy became an important consideration. In fact, policy concerns were embedded in the 1989 requirements document (RFC 1126) that set the groundwork for the first version of BGP: those resources used by (and available for) routing are to be allowed autonomous control by those administrative entities which own or operate them. Specifically, each controlling administration should be allowed to establish and maintain policies regarding the use of a given routing resource.
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