[glend (Glen)]

In the end spectrum domination, and hence sat launches, are pretty much sewed up by the wealthy nations (or individuals in Musk's case), so the US FCC is signing off on the Starlink system. Starlink already has US Army as a customer, and it will be a cash cow to help fund the Mars program, because right now it is still privately held. At some point Musk might offer shares to investors and use the cash to pay for his Mars venture.
I am far from convinced any ITU, Outer Space Treaty, or other body can control what is going on up there. If you have the money to get there first, you can create whatever you want. Musk has recently stated that Starships sent to the Moon will be left there as Moon base components, thus they don't need to carry heat shields for Earth re-entry. His cheap one way transports will clutter up the Moon. Exploitation is the priority. I would bet he establishes a Starlink ring around the Moon, and Mars eventually, to dominate the comms carrier traffic.