Recent discussions between the European Union and Starlink have drawn attention to the future of satellite communications.
The debate intensified after European regulators proposed reserving a larger share of the mobile satellite spectrum for European operators. Under the plan, roughly two-thirds of the band would be allocated to EU-based operators (with one-third specifically reserved for government and security services), while leaving one-third open to non-EU operators such as Starlink.
Starlink has criticized the proposal, arguing that it could limit future services, reduce competition, and risk fragmenting the spectrum.
The debate reflects a broader question about communications infrastructure and the role governments play in it. While satellite operators provide commercial services, communications networks also support public services, emergency response, government operations, and national security.
Modern communications systems are built on multiple layers — from ground networks and traditional satellite systems to a new generation of low-Earth-orbit constellations.
As these networks become more important, governments are increasingly deciding how they should fit within existing communications systems.
This article examines the different layers of communications infrastructure, the role governments play in the sector, and how countries are responding to the emergence of large satellite communication networks.
Communications Infrastructure
Modern communications systems rely on several layers of infrastructure.
The first layer is ground-based. Mobile towers, cable networks, data centers, and undersea cables carry most of the world's communications traffic and form the foundation of national communications systems.
A second layer consists of traditional communications satellites. For decades, governments, broadcasters and telecom operators have used satellites — typically a relatively small number of large satellites operating in higher orbits — to provide television services, government communications, and connectivity in remote areas.
More recently, low-Earth-orbit (LEO) satellite constellations have become a larger part of the communications industry. Examples include Starlink, OneWeb, China's Guowang project, Canada's Telesat Lightspeed, Amazon's Project Kuiper, and the European Union's planned IRIS² network.
Unlike traditional satellite systems, these networks use hundreds or thousands of satellites operating closer to Earth. Their goal is to provide communications services across large geographic areas while supporting higher data capacity and lower latency.
Together, these layers form the communications infrastructure that supports businesses, public services, governments, and other critical functions.
While much of this infrastructure is built and operated by private companies, governments have long played a central role in the sector. Governments classify large parts of it as critical infrastructure and maintain oversight through licensing, spectrum allocation, security requirements, and competition rules.
For satellites, communications rely on radio spectrum. The amount of spectrum available for satellite services is limited, which influences how much data a satellite network can transmit and how many users it can support at the same time. Because spectrum is limited, governments need to balance competing demands between commercial services and strategic needs.
This has produced different responses around the world.
Different National Approaches
In Canada and Australia, governments have largely incorporated commercial satellite services such as Starlink into their strategies to address connectivity gaps in large territories and remote populations. At the same time, Canada is developing its own satellite network — Telesat Lightspeed. The network is focused primarily on business, aviation, and government users.
China has taken a different approach. Alongside restrictions on foreign platforms, it is building large domestic constellations, notably Guowang (state-led, targeting thousands of satellites for national infrastructure and military use) and Qianfan, to ensure connectivity under Chinese control and reduce reliance on foreign systems and compete directly with starlink for global coverage.
Russia has followed a similar path, integrating satellite development into its national space and communications programmes to support strategic autonomy.
The United States presents a different model again. Alongside Starlink, Amazon's Project Kuiper has emerged as a second major commercial LEO constellation, having begun satellite deployments in 2025. Rather than building state-owned infrastructure, the United States relies on a competitive domestic industry, with government agencies procuring services commercially.
Europe occupies a more complex position. Starlink already operates widely across the continent and is actively used by consumers, businesses, and public organizations. At the same time, Europe maintains a strong industrial base with established satellite operators, manufacturers, and launch providers.
As satellite communications gained strategic importance — particularly after Starlink’s role in Ukraine — European policymakers focused on the risks of heavy dependence on non-European operators for critical infrastructure. The discussion centred not on whether to use satellite services, but on how much of Europe’s vital communications capacity should rely on operators outside the continent.
This has led to major initiatives such as the multi-billion euro IRIS² (Infrastructure for Resilience, Interconnectivity and Security by Satellite) project, whose total estimated cost has evolved significantly since it was first conceived.
Operated by the SpaceRISE consortium (SES, Eutelsat, and Hispasat), IRIS² is a multi-orbit system designed for high security and resilience, with first launches targeting 2029 and initial government services expected in the early 2030s.
Alongside this, Europe continues to support established operators such as Eutelsat OneWeb, which has completed its first-generation satellites and is now investing in next-generation replacements to ensure long-term service continuity. Rather than excluding commercial services, Europe is building a hybrid model that combines market competition with stronger domestic capabilities.
These varied approaches illustrate the tension between global commercial deployment and national efforts to secure control over critical communications infrastructure in an era of limited spectrum.
| Programme | Operator | Orbit | Primary Users | Status (mid-2026) |
|---|---|---|---|---|
| Starlink | SpaceX (USA) | ~550 km LEO | Mass market, consumer, government | 10,000+ satellites, fully operational |
| Project Kuiper | Amazon (USA) | ~630 km LEO | Consumer, enterprise, government | Deployments began 2025, expanding |
| Eutelsat OneWeb | Eutelsat (France/UK) | ~1,200 km LEO | Enterprise, government, mobility | ~650 satellites operational; next-gen on order |
| Telesat Lightspeed | Telesat (Canada) | LEO | B2B, aviation, government, defense | Pre-deployment; pathfinder launches due late 2026 |
| Guowang | State-led (China) | LEO | National infrastructure, military | Hundreds deployed, expanding |
| IRIS² | EU / SpaceRISE | Multi-orbit LEO/MEO | Government, security, commercial | Contracts signed; first launches targeted 2029 |
Conclusion
The discussion between the European Union and Starlink is not simply a debate about one company or one spectrum allocation decision. It reflects a broader evolution in communications infrastructure.
Modern communications systems rely on multiple layers — ground-based networks, traditional satellites, and low-Earth-orbit constellations. These layers together support the movement of information across economies, governments, public services, and security institutions.
As satellite networks become a larger part of this infrastructure, governments are deciding how best to integrate them into existing communications systems.
Countries have adopted different approaches. Some have incorporated commercial providers such as Starlink alongside their own initiatives, while others are developing domestic constellations to strengthen national capabilities. Europe is pursuing a hybrid path that includes both commercial services and major projects such as IRIS².
The debate therefore concerns not only technology and spectrum allocation, but also how future communications infrastructure will be developed, operated, and integrated into national systems.
