So the Internet numbers community is made of up of regions, and the community in each region organizes itself into an RIR…
Each RIR community has a service organization (their RIR) which has services and fees, governed by a member-elected body.In addition, each community has a policy development process where they establish and update registry policies.
Agencies may want to "place address space requests for outer space” but it’s a little more than that - self-governance of Internetnumber resources mean that they will need to participate in these things in order to to make sure that it meets their needs.
If they want to use an existing RIR for such, that’s great - that RIR’s community will establish appropriate policies, fees, andservices. If they want to establish a new RIR,, that’s also a great option, and the resulting RIR (once recognized) will performthese functions. As to whether that’s just "a detail”, I would say it is not - since the choice will determine how you go aboutgetting the policy that you need established.
Does that help clarify things?