The GSM Association (GSMA) has launched a new regulatory framework aimed at helping governments navigate the growing role of satellite communications in the global connectivity ecosystem, as Low Earth Orbit (LEO) satellite services gain momentum worldwide.
The industry body recently unveiled its Satellite Regulatory Playbook, a practical guide designed to support policymakers in developing clear, consistent and future-ready regulations for the rapidly evolving satellite sector.
The initiative comes as satellite broadband and direct-to-device (D2D) technologies increasingly complement traditional mobile and fixed broadband networks, expanding connectivity to underserved and remote areas. According to the GSMA, the new playbook provides governments with a structured approach to modernising regulatory frameworks while safeguarding consumers, promoting investment and supporting innovation across communications networks.
Developed in partnership with Access Partnership, the guide focuses particularly on emerging satellite broadband and D2D services that are delivered directly to consumers without the involvement of mobile network operators. The GSMA noted that such services often operate in areas where existing regulatory frameworks provide limited guidance, creating potential policy gaps that regulators may need to address.
Where mobile operators participate in the delivery of satellite services, the association said existing telecommunications regulations generally provide adequate safeguards. However, the playbook seeks to provide policymakers with adaptable recommendations that can be tailored to national circumstances while encouraging greater consistency in regulatory outcomes across markets.
The GSMA stressed that no single connectivity technology can meet the long-term communications needs of societies, arguing that future digital ecosystems will depend on a combination of mobile, fixed and satellite networks working together.
As a result, regulatory approaches should evolve to ensure that different connectivity platforms are treated consistently and that users receive similar levels of protection and service quality regardless of the technology used to deliver communications services.
Michaela Angonius, head of policy and regulation at the GSMA, said governments have a critical opportunity to establish regulatory frameworks capable of supporting the next phase of communications innovation.
“As satellite connectivity becomes an increasingly important part of the global communications landscape, policymakers have an opportunity to create regulatory frameworks that are fit for the future,” Angonius said.
She explained that the playbook provides practical guidance to help governments develop policies that protect consumers, support law enforcement activities, attract investment across the communications sector and keep pace with technological advancements.
Angonius also emphasised the importance of viewing satellite and terrestrial networks as complementary rather than competing technologies.
“Connectivity is not a choice between terrestrial and satellite networks. Meeting the needs of citizens, businesses and governments requires a diverse and complementary connectivity ecosystem,” she said, adding that regulatory frameworks should remain technology-neutral and focus on achieving consistent outcomes for consumers and society regardless of how services are delivered.
The Satellite Regulatory Playbook outlines eight key policy areas that regulators should consider when establishing or updating rules for satellite services. These include local establishment requirements, national security considerations, consumer protection measures, infrastructure and facility obligations, deployment of end-user terminals, fiscal policies, emergency services and public safety provisions, as well as enforcement mechanisms.
According to the GSMA, the guidance is built around five core principles: transparency, regulatory parity, harmonisation, collaboration and balanced innovation. The organisation believes these principles can help strengthen regulatory certainty, encourage infrastructure investment, build consumer trust and foster fair competition across the wider communications industry.
Recognising the diversity of regulatory environments across countries, the GSMA said the playbook is not intended to impose a uniform model. Instead, it offers a flexible framework that governments can adapt to their own priorities and market conditions while reducing unnecessary fragmentation and promoting greater international alignment.
With satellite communications expected to play an increasingly important role in extending digital access and supporting next-generation connectivity services, the GSMA said forward-looking and harmonised regulation will be essential to unlocking the full social and economic benefits of the technology for consumers, businesses and governments worldwide.
