The Incarnate, was a special kind of being, formed by a joining of the Apollo Eleven into a single, powerful meta-entity. His most important task was to serve as the ultimate emissary for judging humankind's fate. He first appeared in the winter of 1977.
Xosmos serves as a voice for the group, or did as of 1982. That particular year, the Apollo Eleven were trying to postpone the judgement of Earth, and prevent the Sol System from experiencing the same oblivion as the four sun systems of Deneb 13.
They are likely on a higher echelon than the Galactic Council, which might just be concerned with more local matters. Starwoman's race, the K'ntarians are a driving force on the Council. She went to the Continuum on our behalf in 1982 when the Continuum passed judgement on Earth.