Space Technology Regulation: Analysing through the Samaaj-Sarkaar-Bazaar Framework
Published March 10, 2025 | This is a working paper presented at the Takshashila Institution Internal Conference on ‘Analysing Emerging Technologies through the Samaj-Sarkaar-Bazaar Framework’, February 2025
Authors
Abstract
In this working paper, we argue that space technology has limited direct involvement with society (Samaaj) compared to the government (Sarkaar) and the market (Bazaar). Society is more connected to the downstream application of space technology. The paper provides policy recommendations to strengthen the ISRO’s role in downstream applications, enabling industry-led growth and improving access to space-based data.
Introduction
Humans have been passionately exploring the sky since the beginning of their existence. Varied drawings of the sun, moon, planets, stars and their patterns have been discovered on cave walls the world over. The space technology era started with breakthroughs made in the mid-1920s. While Germany led the large-scale rocket development program, it was the Soviet Union which successfully reached space with its satellite, animal and human programs. This launched the revolution of space exploration with the development of space technology. From satellite-based communication and navigation to space tourism, asteroid mining and interplanetary missions—space technology touches every aspect of modern life, even transcends it.
This internal conference paper looks into the regulation needed for limiting space technology to downstream in accordance with the Samaaj, Sarkaar and Bazaar framework. The discussion starts by analysing stakeholders of this ecosystem and their interaction with each other. This will help understand the dynamics among stakeholders and within the ecosystem. The document then introduces the framework and tries to use it for space technology and its applications. This document will end with regulatory recommendations.
Space Technology
Space or outer space is the expanse beyond the earth's atmosphere. This would include every celestial body, such as the moon, planets, sun, stars, galaxy, etc. Earth’s atmosphere does not have any boundaries as the density of the atmosphere attains zero in a continuous manner. Hence, the Kármán line is usually used to define the boundary of the atmosphere and outer space, which is 100 km above mean sea level. In this document, the term outer space will be used interchangeably with space.
Technologies which leverage space for their applications are termed space technologies. This includes satellites, launch vehicles, observatories, interplanetary spacecraft, and allied technologies, including ground stations that are part of space technology. Based on its applications, space technology is divided into two categories—upstream and downstream. Downstream applications use space technology, which deals with the earth below. For example, navigation, communication and earth observation are downstream applications. Upstream applications include transporting spacecraft to space, interplanetary missions, and observing outer space. This document will mainly focus on downstream applications of space technology, as they are more connected to Samaaj.
Satellites are used for communication, navigation and remote sensing. Space stations are built so humans can spend time conducting various experiments in space. Spacecrafts are developed to explore the heavenly bodies inside and outside the solar system. This includes the technology used in multiple applications, like space sensors, communication systems, and on-the-board propulsion systems.
Space technology has an indirect impact on people and a direct impact on the economy (business) and Government (military and administration). The following chart shows the space technology applications with respect to their commercial and strategic utility. Applications in the 2nd and 3rd quadrants have high economic utility and would be taken up by the market. On the other hand, applications in the 1st and 4th quadrants, which have lower economic utility, will be more likely to be taken up by the government or research communities.
Figure 1. Military and Economic Utility of Space Technology. (Author's Own)
Discussion on the framework
Writer and Philanthropist Rohini Nilekani has proposed the concept of Samaaj, Sarkaar and Bazaar, which refers to Society, Government and Market. In this framework, the author talks about the dynamic relations amidst these three spheres of the ecosystem. These three interconnected sectors must balance each other for equity. The framework defines these three sectors as follows;
Samaaj: This sphere is foundational and contains the nation's individuals or citizens. Samaaj represents people through their social and cultural identities and institutions. Samaaj should keep Sarkaar and Bazaar accountable. Citizens must be considered, first and foremost, as members of society and not the subject of government or the market.
Bazaar: This sector represents economic forces like businesses and corporations. The market has to foster innovation and provide goods and services. They also create economic opportunities for the nation.
Sarkaar: This refers to the government and its institutions. The role of Sarkaar is to provide public infrastructure and services, ensure justice, and make laws and enforce them. Sarkaar has to maintain order and resolve conflicts within the Samaaj.
Figure 2. Samaaj, Sarkaar and Bazaar (Author's Own)
The key idea of this framework is that all three sectors have to work in tandem with mutual respect. They should balance each other, not letting any of the two sectors amass power. This would result in an imbalance. For example, if Sarkaar and Bazaar get powerful, they will likely exploit Samaaj. As per the author Rohini Nilekani, Samaaj should be at the apex of the system and balance the power of Sarkaar and Bazaar.
Stakeholder Analysis
The stakeholder analysis is done based on each stakeholder's interest and influence on the development and implementation of space technology. As we will notice from this, the ministries that are part of Sarkaar have more impact in driving space technology while also deriving more benefits from the same. India has very new private industries that rely on ISRO for guidance and technology transfer. Hence, they have a low impact on driving the space ecosystem, but the returns they will get from utilising the technology are immense. As an emerging technology, space technology has limited applications that are directly used by Samaaj. Samaaj has no direct say in the direction of space technology’s development and implementation. This can be seen in Figure 3 provides a broad representation of Samaaj, Sarkaar and Bazaar regarding their influence on the space technology ecosystem and its influence on the stakeholders in this domain.
Figure 3. Stakeholder Analysis for Space Technology. (Author's Own)
Samaaj
As per the framework, Samaaj is a foundational sector. Unlike other technologies like AI or cybersecurity, space technology’s penetration in the Samaaj sphere is limited. Samaaj is surrounded by downstream applications such as satellite-based communication, navigation and remote sensing. The most used satellite service is the direct-to-home cable connection. Navigation systems like GPS are another important downstream application directly benefiting Samaaj. Satellite communication helps connect remote areas. Satellite Internet, too, will be a reality soon once Statlink and Kuiper systems are introduced in India.
Space technology also has applications that indirectly benefit Samaaj, such as remote sensing for weather forecasting, disaster management, environmental monitoring, and resource management. Ecological monitoring includes keeping track of forest cover and pollution. Resource management includes mapping resources like agriculture, water, mining, and land.
Unfortunately, the Samaaj does not have enough leverage to drive the development and implementation of space technology. There are no civil society organisations (CSOs) in India that would represent society and convey Samaaj’s concerns and feedback to Sarkaar and Bazaar. This showcases the need for Samaaj to have better representation among Sarkaar and Bazaar in the policy-making of space technology and its applications.
Bazaar
The Bazaar undertakes the building infrastructure for the applications Samaaj will utilise. In the initial days, the government took the initiative to kick-start the ecosystem by building and deploying earlier communication satellites via ISRO. Beyond 2020, with reforms introduced in space policy, private industries are now stepping up to build India’s space technology ecosystem.
The Bazaar is divided into three segments:
Primary
Secondary
Tertiary.
These segments are created based on their direct relation with the Samaaj. Primary Industries provide services to the Samaaj and use space technology to do so. For example, broadcast companies like Tata Play, Airtel, and Jio use satellites to deliver television content. Google Maps provides information on the use of navigation data. These services, in turn provide geospatial data for its application in weather forecasts, agriculture, traffic, and disaster management. Secondary Industries are the ones that develop these technologies. These technologies are then used by the primary industries to provide the services. These are the industries which develop products like satellites and sensors. Tertiary Industries develop the technology for secondary industries to take up their systems to space. This includes the launch vehicles for the transportation of these satellites. Public agencies like the ISRO or private players like Agnikul and Skyroot, build these launch vehicles.
Figure 4. Type of industries that make up the Bazaar of Space Technology. (Author's Own)
If we analyse, only the primary industries directly connect with the Samaaj, use space technology and provide services. Secondary and tertiary industries are responsible for technology development for primary industries' use. Unlike Samaaj, the Bazaar has an industry association called the Indian Space Association (ISpA). The ISpA's role is to articulate the views of space industries, including startups, on space sector reforms and provide guidance to the industry.
Sarkaar
There are various ministries that work on governing Samaaj and regulating the Bazaar in space technology. Space technology is a highly capital-intensive domain. Hence, Sarkaar plays a pivotal role. The government of India has two crucial departments that cover the space technology domain.
The first is the Department of Space (DoS) under the Prime Minister’s Office. This overlooks regulation, promotion and administration of the Indian space programme. The government established the Indian Space Research Organisation (ISRO) in 1969. The Department of Space (DoS) was established in 1972, and ISRO was brought under it the same year. The DoS watches over space technology and most applications, such as remote sensing and navigation.
ISRO, New Space India Limited (NSIL), and Indian National Space Promotion and Authorisation Centre (IN-SPACe) are bodies under the DoS. ISRO is a space agency that has undertaken most space technology development tasks. They have developed satellites, launch vehicles, spacecraft and allied technologies. In 2019, NSIL was established as a Public Sector Undertaking (PSU) to take over the commercial role of ISRO. NSIL is tasked to maximise the commercial opportunities using ISRO technology. They will also assume operational tasks from ISRO, which means that the NSIL will build, launch and operate launch vehicles and satellites. IN-SPACe is an organisation under the DoS which regulates and furthers space activities. It promotes space activities by nurturing the ecosystem and supporting the private sector, academia, and manufacturing facilities.
The second one is the Department of Telecommunications (DoT). Satellite communication, a very mature application of space technology, is under the purview of DoT, which is part of the Ministry of Communications. This department develops policies for the growth of telecommunication services. They are responsible for granting licenses for telecom services and frequency management for radio communication.
Telecom Regulatory Authority of India (TRAI) regulates India's telecommunication and broadcasting sectors. TRAI was established to provide a fair, transparent and competitive market. It regulates the downstream application of space technology, which is widely used by the Samaaj. Hence, it is also responsible for consumer protection. TRAI’s adjudicatory and dispute functions are carried out by an independent agency, the Telecom Disputes Settlement and Appellate Tribunal (TDSAT). It establishes the interface between Samaaj and Sarkaar in the telecommunication application of space technology.
The third one is the Department of Science and Technology (DST), which overlooks geospatial applications. DST comes under the Ministry of Science and Technology. There is a national mapping agency called Survey of India (SoI), and a promotion committee called The Geospatial Data Promotion and Development Committee (GDPDC) under the DST. Headquartered in Dehradun, SoI is a central agency in charge of mapping and surveying. It has 18 divisions which undertake operations ranging from the prediction of tides to aerial surveys.
Figure 5. Departments which govern and regulate Space Technology and its applications in India. (Author's Own)
Samaaj - Bazaar Interaction
Samaaj is directly connected with the primary industries at the application level of the technology, as seen in Figure 4. Industries providing services like direct-to-home television, telecommunication, weather forecasting, navigation and disaster mitigation are provided to the Samaaj. Industries that develop, build, and deploy the technology to help establish the infrastructure are the primary industries. Hence, Samaaj interacts more with primary industries in terms of using the service, providing feedback and lodging complaints. Primary industries have to access the needs of society and address their feedback and complaints in order to provide better services.
Space technology plays a significant role in digitally integrating more people. Going ahead, this will lead to broader adoption of digital technology, which will help Samaaj better integrate with both Bazaar and Sarkaar.
Samaaj - Sarkaar Interaction
The relationship between Samaaj and Sarkaar is only one-sided. Sarkaar has actively participated in adopting space technology for the service of society. However, space technology has never been a direct concern for society. Hence, most policies and regulations are more top-down, with limited participation from the people.
Sarkaar tried adopting space technology as early as 1967 when the country didn't have a launch vehicle or satellite technology. They established the first Experimental Satellite Communication Earth Station (ESCES), which led to multiple controlled experiments to transmit television programs via satellite for national development, especially in agriculture. Since then, ISRO has launched 48 communication satellites, including the INSAT and GSAT series. It has also launched 44 earth observation satellites, such as IRS, CARTOSAT, and EOS series. India has also launched nine IRNSS and two of five NVS navigation satellites for its indigenous navigation system called NavIC.
Over the years, the successful missions to the Moon and Mars have earned recognition for the country’s space programme. This showcases the nation's technical advancement and, hence, its national power. It has worked well in bringing the Samaaj together in taking pride in and uniting the country’s diverse society.
Sarkaar - Bazaar Interaction
For a long time ISRO was the sole entity in India responsible for developing space technology. It undertook research, design, development, deployment, commercialisation, and operation of space technologies, including launch vehicles, satellites, and complex interplanetary crafts. The ever-expanding space market and emerging private sector startups and manufacturing units deliberated the need to recognise and nurture the ecosystem, which would take the load off the ISRO.
In 2020, the Indian government introduced reforms to accelerate technological advancement, focus on international partnerships, increase private players' participation, and build a national space technology ecosystem. This move by the government opened the gates for the Bazaar. The Indian Space Policy 2023 provided the level playing ground for non-governmental entities across the supply chain of space activities. ISRO is hand-holding Indian industries, startups and manufacturing facilities by transferring the technologies. The government has opened up Foreign Direct Investment (FDI) in this sector and allocated Rs.1,000 crore in venture capital funds for startups.
In the past four years, Sarkaar and Bazaar have seen close interactions. The Indian space sector has now transformed into an expanded ecosystem with new startups tapping into the deep tech domains, such as developing launch vehicles and satellites. Manufacturing entities too have succeeded in entering the market of high-precision manufacturing with substantial support from the ISRO.
Implementation of Framework
Figure 6a. highlights the depth of interaction among the three stakeholders - Samaaj, Sarkaar, and Bazaar. (Author's Own)
Figure 6b. Depth of Interaction between the three stakeholders. (Author's Own)
Recommendations
To make space technology more accessible and beneficial for Indian citizens, businesses, and the government, several concrete recommendations can be implemented, particularly in the downstream sector:
Strengthening ISRO’s Role in Downstream Applications
Integrating downstream applications into ISRO’s core strategic framework: Integrate downstream applications into ISRO’s core strategic framework to fully capitalise on its technological prowess. By balancing cutting-edge upstream research with practical downstream innovations, ISRO can transform scientific advancements into tangible societal benefits. This approach will help increase research investment, which drives real-world applications.
Tailored approach towards processing remote-sensing data: Establish a dynamic environment that encourages the critical re-examination and evolution of existing algorithms and data processing techniques. Instead of adopting off-the-shelf solutions, this is the time for stakeholders to focus on developing new ideas to enhance remote sensing data processing, visualisation and modelling. This will promote more efficient, accurate, and innovative solutions.
Funding beyond the RESPOND programme: ISRO should look beyond the RESPOND (Research Sponsored) programme and promote funding opportunities to reach a wider audience. With such outreach, ISRO can use a broader spectrum of ideas and projects. This will catalyse further breakthroughs in downstream applications.
Enabling Industry-Led Growth in Downstream Applications
Fostering startups working on downstream application: Startups building downstream technology need to connect with ISRO’s centres, like the Space Application Centre (SAC) and the National Remote Sensing Centre (NRSC). By offering access to cutting-edge data and application development platforms, ISRO can stimulate entrepreneurial ventures and nurture disruptive innovations. This initiative will foster a vibrant ecosystem where new businesses can thrive by leveraging ISRO’s technological expertise. Encourage startups and private entities to use indigenous geospatial datasets to create innovative applications that simplify everyday life.
Open the market beyond government contracts: The government opens the market beyond its contracts by supporting commercially viable and public benefit-driven solutions. Private players must be encouraged to tackle indigenous challenges with locally sourced products and services.
Promote and integrate Indigenous navigation technologies: The Indian Regional Navigation Satellite System (IRNSS), or NavIC, is operational for military and civil applications. However, this system is not yet used in both domains. Military equipment usually relies on global navigation systems from seller countries. Right now, the NavIC chips are mandated for public and commercial vehicles, but their implementation has yet to be accessed. Similar mandates should be used for other sectors, such as smartphones and drones. Limited private players are working on designing NavIc-compatible chips. Push has to be made to support more such startups or established private entities that are open to venturing into this.
Improving Accessibility of Space-Based Data
Open all non-critical datasets to spur innovation: Government agencies should open nearly all datasets, excluding the highest resolution images below one meter. Release historical datasets with standardised metadata to support long-term analysis and automated applications. This can be done by developing a seamless portal for raster datasets with improved API access, similar to platforms like Sentinel Hub. This will enable startups to leverage raw datasets to create public-centric solutions that drive commercial growth and national development. DST can offer comprehensive geospatial datasets collected from various sources, including IOT-based and meteorological spatial data, via a comprehensive, unified portal that can handle both raster and vector forms of data for robust spatial analysis.
Develop and manage the Indigenous dataset: To achieve national autonomy, authorities must develop and manage indigenous datasets using local resources. A self-sufficient ecosystem not only bolsters domestic innovation but also positions Indian data as a competitive asset for global use. Ensuring accessibility of high-quality, well-documented local datasets, such as satellite images, without restrictions to Indian researchers and startups will drive innovative applications and mirror the success seen with initiatives like Landsat and Sentinel programmes.
Building Capacity and Awareness in Society
Unify expertise in geospatial at DST and downstream application at DoS: Creating a shared pool of technical expertise from the downstream applications of the DoS and geospatial of the DST to better address real-world challenges. By combining efforts, professionals can create solutions that directly connect with and benefit local communities. The objective can be expanded by aligning space and geospatial policies by identifying shared objectives and streamlined strategies. Respective nodal directories from DoS and DST can promote, acknowledge and incentivise exceptional research publications emerging from their respective datasets.
*AI Disclaimer: This working paper uses Notebook LM for insights from Samaaj, Sarkaar, and Bazaar and ChatGPT for writing refinement, with no AI-generated content copied directly.
