Interconnection fees are a bad idea from an "older mindset" of telecom regulation, Kramer said. They would be difficult to implement, with difficult questions about who the sending and receiving entities are, he said. In addition, they could lead to a less open Internet, with some users potentially unable to access some Web content, he said.

The Internet, compared to voice telecom networks, is a "new and different phenomenon entirely," Kramer said.

Also at WCIT, Russia, China and other countries may push for the ITU to take Internet governance away from the Internet Corporation for Assigned Names and Numbers (ICANN) and other organizations. Some countries may push for more surveillance of Internet users in the name of fighting spam or fraud, observers have said.

The U.S. would oppose both proposals, Kramer said. "The Internet has grown precisely because it has not been micro-managed, regulated or owned by any government or intergovernmental organization," he said. "No government or single organization can or should attempt to control the Internet."

The U.S. delegation will attempt to work with allies to get some proposals that stretch the scope of the ITU pulled from consideration, Kramer said. With the ITU hoping for a consensus agreement at the meeting, controversial topics may get left out, he said.