The main theme of the Global Symposium for Regulators 2026 (GSR-26), which took place under the auspices of the International Telecommunication Union (ITU) in the spring of 2026 in Ankara, Turkey, was “Navigating the digital frontier: Regulatory pathways towards a resilient and inclusive future”. As conceived by to the organisers, this means a conceptual transition from reactive regulation to proactive shaping of the digital environment.

ITU Secretary-General Doreen Bogdan-Martin emphasised that “regulators today must do more than oversee markets — they must shape the conditions for innovation, investment and meaningful connectivity 1”. More than 1,000 delegates from over 100 countries attended GSR-26, including ministers, heads of regulators and industry leaders.

Regulation is a global process

Dr Cosmas Luckyson Zavazava, Director, BDT, ITU, believes that “Collaboration must move from consultation to shared accountability. Digital markets require joined-up governance across mandates and across borders”.  

The general conclusion of GSR-26 was that no single structure — country, organisation, commercial company — can overcome the challenges of digital transformation alone. Digital transformation requires not only technological progress, but also close cooperation, shared responsibility and ongoing dialogue between governments, regulators, industry leaders, international organisations, academia, and all digital stakeholders.

President of the Council of the Agency for Electronic Communications and Postal Services of Montenegro (EKIP), a representative of BEREC 2 and Vice-Chair of IRG 3 Milan B. Radulovic noted that regulation could no longer be isolated, fragmented or reactive. Regional regulatory associations should act as a bridge between countries, encouraging the exchange of experience, cooperation and helping to harmonise approaches in developing regulatory frameworks.

The private sector needs regulatory guarantees

Bocar Ba, Chief Executive Officer of SAMENA 4 and Chair of IAGDI-CRO 5, believes that the private sector is leading the way in investing in the infrastructure that underpins the digital economy. It is committed to further investing in innovation, contributing to national and global digital ambitions. But to do this, he needs a favourable regulatory environment that ensures the protection of these investments. Bocar Ba outlined several recommendations for policymakers and regulators from the private sector with an overall message to create favourable conditions for investment in infrastructure and the development of long-term projects under technology-neutral regulation, taking into account the development of digital skills among the population.

New toolkit for regulators

The main outcome of the forum was adoption of the Best Practice Guidelines 6 — a set of tools for regulation in a rapidly changing digital environment. These instruments will define the basic governance architecture that regulators must create to develop digital markets. The guidelines include a checklist of priority actions that regulators can implement, review, measure and monitor over time to make the core toolkit effective.

According to Dr Cosmas Luckyson Zavazava, “The GSR 26 best practice guidelines are one of the most important outcomes of the Global Symposium for Regulators. They reflect the collective experience and priorities of the regulatory community and provide practical guidance and countries can adapt to their own national circumstances. <…> Their value is that they are not abstract principles. They are intended to help regulators act. They provide a shared reference point for building regulatory institutions that can and respond to technological change while keeping people, public interests and sustainable development at the center”.  

The main directions of the new principles are: stimulating innovation and investment in the context of technological shifts; strengthening the infrastructure resilience; ensuring user security; combating digital inequality; and strengthening international coordination.

In support of the new principles, ITU presented several practical tools:

Connectivity Planning Platform: to plan and accelerate the deployment of digital infrastructure;

Global Economic Model and Study Tool: to assess the socio-economic impact of investments in communications;

Digital Readiness Framework: to evaluate the maturity of legal, policy and governance frameworks for digital transformation;

Regulatory perspectives for satellite communications to connect underserved communities: mechanisms to leverage satellite technology to provide communications in remote communities.

Satellite for remote areas: regulations and practice

As a tool for the satellite industry, ITU has released a detailed analytical report 7 on the use of satellite technology to connect remote and underserved communities in five developing countries: Regulatory perspectives for satellite communications to connect underserved communities

Dr Cosmas Luckyson Zavazava notes: “Recent advancements in satellite communications have significantly increased capacity, reduced latency, and lowered costs, making these solutions increasingly feasible for bridging connectivity gaps. At a time when deploying traditional terrestrial infrastructure in remote and hard-to-reach areas is often prohibitively expensive, satellite connectivity offers a transformative alternative for advancing digital inclusion”.

The study analysed the use of satellite communications in five emerging markets: Brazil, Indonesia, Kenya, Nigeria and South Africa. These countries have adopted universal service programmes using satellite technology. However, each of them faces unique geographic, economic and political factors in the development of satellite services.

Brazil

Since 2002, the country has adopted the GESAC (Governo Eletrônico — Serviço de Atendimento ao Cidadão) programme, later renamed Wi-Fi Brasil. More than 12 thousand 8 government institutions (schools, hospitals) are connected to this programme. By 2028, it is planned to deploy 28 thousand access points. Compared to 2023, the minimum download speed has been increased from 10 to 20 Mbps. The service is operated by the state-owned company Telebras, which utilises the capacity of not only the national SGDC satellite but also commercial operators such as SES, Hughes and Viasat. This allows for flexible capacity expansion where SGDC is already overloaded.

The main source of funding is the federal budget, but deputies can direct funds to their regions.

In 2024, it was approved to fund the connection of additional 20,000 schools in remote areas located more than 10 km from fibre optic service. These funds come from the operators' commitments received at the 5G auction.

Brazilian regulator Anatel has dramatically simplified market entry for NGSO operators, which resulted in Starlink's dominance. A key change was a regulation that introduced the “first-come, first-served” concept, making the licensing process faster and more predictable for private companies.

Anatel created so-called regulatory sandboxes — a special environment for testing innovative business models. In particular, they are testing the Direct-to-Device (D2D) technology.

Starlink's rapid growth — 58% of the market by the end of 2024 9 — has raised concerns among regulators. In April 2025, Anatel announced it would begin to investigate the impact of such dominance on digital sovereignty and market competition. 10

Indonesia

The programme to connect remote regions in Indonesia is being implemented through a public-private partnership with a consortium led by the satellite operator PT PSN. The 15-year concession agreement guarantees the allocation of satellite capacity to connect 37,500 government facilities. Connections are provided by the Satria-1 satellite launched in 2024. Its throughput is 150 Gbps, and as of May 2025, the device was 74% loaded. A total of 27.8 thousand 11 facilities are connected. The main obstacles to eliminating the digital divide are geography — the country is located on more than 17,000 islands — and the problem of electricity supply in remote regions.

To further expand access to educational, administrative and medical institutions, the launch of two more satellites with a total capacity of 300 Gbps is planned.

The main source of funding is the universal service fund, to which operators contribute approximately 2% of their income. In addition, internal funds from localities are used to purchase ground equipment. The Asian Infrastructure Investment Bank issued a $150 million loan for the creation and launch of Satria-1.

Indonesia's approach combines the involvement of foreign NGSO operators with strict requirements to maintain national control. Rules introduced in 2021 allowed 100% foreign ownership of telecommunications companies, including satellite internet providers, making the country attractive to global players.

However, the new regulation requires operators to have infrastructure in Indonesia to monitor traffic. In case of using foreign satellites, it is necessary to establish a partnership with local operators. In 2025, the regulations for non-GSO systems, as well as mobile satellite communications, were clarified and streamlined.

According to the report, Indonesia has developed a harmonious approach to digital sovereignty that allows it to take advantage of global satellite services while maintaining critical infrastructure under national control.

Kenya

Kenya integrates satellite solutions into national digitalisation projects. The key programme, the Digital Superhighway, is aimed at:

— expansion of the fibre-optic network to 100 thousand km by 2027;

— connection of 74 thousand government institutions to a single government network;

— deployment of 25 thousand public Wi-Fi hotspots.

Kenya's Kenet education network signed a pilot agreement with Starlink in 2024, and Safaricom is using Intelsat's satellite backhaul to expand 4G coverage in rural areas. Facilities located no closer than 20 km from the fibre-optic line or in areas with difficult terrain are connected via satellite. Under old contracts, schools are connected via satellite at a speed of 5 Mbps; new pilot projects with low-orbit systems provide at least 50 Mbps.

Funding comes partly from the universal service fund and is calculated for a 2-year connection period in the first stage. Some costs are covered by international grants.

Kenya has opted for maximum market openness, which has led to rapid growth on the one hand and regulatory conflicts on the other. In 2023, Kenya allowed 100% foreign ownership for satellite companies in a bid to attract foreign investment. The country has implemented the Unified Licensing Framework, which is not tied to a specific technology, allowing NGSO operators to work within existing regulatory categories (e.g., Network Facilities Provider). Starlink quickly captured 98% of the satellite broadband market, which drew sharp criticism from the local telecom giant Safaricom. It demanded that foreign satellite providers be required to work with local operators as infrastructure partners.

The report argues that Kenya's experience illustrates the difficulty of balancing openness with protecting the interests of incumbent market players, as evidenced by formal protests from existing operators and proposed increases in licensing fees.

Kenya's delay in plans to launch a national satellite in 2025 due to funding and technical constraints is a testament to this. The country cooperates with ITU to train regulators on spectrum management and universal service fund administration, thereby addressing skills gaps.

Nigeria

Nigeria's regulator is pursuing a policy of protecting the national operator, Nigcomsat, while at the same time actively attracting foreign LEO systems, such as Starlink and OneWeb.

Project 774 is an initiative to connect all 774 local government offices. The project is coordinated by the Ministry of Communications in conjunction with the state operator of all IP networks, Galaxy Backbone, and the state satellite operator, Nigcomsat. OneWeb/Eutelsat has been involved in the project.

The Nigcomsat-1R satellite is nearing the end of its service life, and its replacement is being prepared. 12  

A distinctive feature of Nigeria's regulatory framework is the clear division between Space Segment Landing Permits (for foreign satellite operators) and Ground Segment Licences (for local service providers). This allows foreign companies to sell capacity but not provide services directly to end users. In 2023, the regulator, NCC, presented the draft Commercial Satellite Regulations, which includes MSS regulations.

South Africa

In South Africa, the satellite is being integrated into the national SA Connect programme. The first phase of the project, SA Connect Phase 1, was completed by connecting 970 government institutions at 10 Mbps. SA Connect Phase 2 is being implemented starting in 2023: within 3-4 years, it is planned to connect 5.5 million households in rural areas and disadvantaged urban areas via Wi-Fi hotspots. A satellite is used as a backhaul for the most inaccessible places. At present 13, 61 schools and medical centres are connected via satellite.

In parallel, a national communications satellite project is being developed, for which the government is allocating approximately 5.2 billion rand (\~$288 million14.) However, the project is in its early stages and faces challenges in obtaining an orbital position and staffing.

Attracting foreign operators is hampered by the B-BBEE15 requirement, according to which at least 30% of shares in telecom companies must be owned by Historically Disadvantaged Individuals. In particular, this requirement prevents Starlink from entering the country's market.

In 2025, the country held public hearings on new regulations for satellite services.

Summary

The study shows that satellite technology has become a critical component of connectivity strategies in all the five countries. Evidence from these countries shows that satellite technologies can significantly accelerate progress towards universal connectivity if supported by appropriate policy frameworks, adequate funding mechanisms and continued commitment to addressing implementation challenges.

Several common factors are observed across all countries in the process of eliminating the digital divide:

— Increase in the share of low-orbit systems;

— Desire of regulators to simplify licencing for new players;

— The satellite is considered as an addition to the ground infrastructure.

But there are also serious differences. Brazil and Indonesia are heavily focused on using state-owned satellites. Kenya is an example of the fastest market monopolisation by a single private player.

The main obstacles to the development of satellite communications services in these countries are: the problem of project financing and the high cost of the final service, the preservation of digital sovereignty, the lack of reliable electricity supply in remote areas, and a shortage of qualified national personnel. The tools for solving these problems are: public-private partnerships (PPP), a multi-technological approach, and regulatory reforms.

Two strategies

The document provides tools to support the implementation of universal connectivity programmes using satellites — algorithms for implementing two strategies, with one focusing on private satellite systems and the other — on public resources. Each strategy has its own concerns, but there is also something in common.

Common (for both strategies)

What is needed: a simplified licensing process (signal landing, spectrum, ISP licenses); frequency band allocation; ensuring technological neutrality, allowing hybrid models; creating a universal service fund to subsidise satellite connections; personnel training; and generally improving digital literacy.

For the strategy using private satellite systems

It needs a transparent competitive selection with clear criteria; PPP structure with division of costs, timing and service obligations; long-term contracts with a fixed subscription fee; regulation of retail prices; speed and latency guarantees; reduction or elimination of license fees for operators connecting priority areas; the same for spectrum fees; reduction or elimination of duties on satellite terminals.

For the strategy using a state-owned satellite system

First of all, it is necessary to choose a governance model: a regulator (like Telebras in Brazil), a joint venture (like SATRIA in Indonesia) or a fully commercial state operator (NigComSat). It is also necessary to identify priority public sectors (education, healthcare, government agencies, emergency services) and establish commercial tariffs and free/discounted access for schools and hospitals. Using the state as an anchor customer (military, scientific, educational organisations) for the preliminary purchase of capacity is a priority. A plan to generate income through the sale of excess capacity should also be developed. In addition, it is impossible to do without an agreement with other operators in case of satellite failure.

Trade-offs, pros and cons of the strategies

The choice between using private satellite services and investing in a government satellite involves certain trade-offs:

The report provides practical guidance for officials and regulators. It shows that satellites are an effective, but expensive and complex tool that requires well-thought-out policies, international cooperation and continued investment in training.

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1 https://www.itu.int/en/mediacentre/Pages/PR-2026-05-15-GSR-closing.aspx

2 BEREC (Body of European Regulators for Electronic Communications) is the agency of European regulators in the field of electronic communications, the EU’s key structure for telecommunications regulation. Structure: BEREC brings together 27 national regulatory authorities of EU countries.

3 Independent Regulators Group.

4 SAMENA is an industry association that brings together telecom operators, regulators and service providers in the South Asia – Middle East – North Africa region.

5 https://www.itu.int/itu-d/sites/membership/iagdi-cro/#/ - Industry Advisory Group on Development Issues and Private Sector Chief Regulatory Officers' Meeting.

6 https://www.itu.int/net/epub/BDT/2026-GSR-26-Best-Practice-Guidelines/#p=1

7 https://www.itu.int/hub/publication/d-gen-global_rep-2026/

8 The report provides data for 2024. At the beginning of 2026, about 15,000 institutions were connected through the GESAC/Wi-Fi Brasil programme, of which about 12,000 were schools and about 900 were medical institutions.

9 Sourced from the report. Industry media suggest that Starlink's reach is around 80% of Brazil's satellite broadband market as of June 2026. Brazil is claimed to have become Starlink's second-largest market in the world after the United States.

10 Anatel has issued a license to the Chinese operator of the low-orbit constellation Spacesail to operate in Brazil, permitting the signal landing and the operation of six gateway stations.

11 Sourced from the report. According to the Anatra agency as of June 2026, there are 30,803 facilities, of which 68% are schools.

12 Initially, the Nigcomsat-1R satellite's service life was supposed to end in 2026, but due to the presence of residual fuel for the orbit correction engines, it was extended until 2028. A contract was signed with Thales Alenia Space for the delivery of two satellites - Nigcomsat-2A and Nigcomsat-2B. The launch of Nigcomsat-2A is scheduled for 2028, and Nigcomsat-2B, for 2029.

13 As of the date of the report.

14 According to the report. The current exchange rate shows the amount to be $316 million.

15 Broad-Based Black Economic Empowerment is a South African government policy enshrined in law. It is aimed at making the country's economy more inclusive of the black population (including Africans, coloureds and Indians).