CANBERRA — In a comprehensive analysis published Thursday, February 19, 2026, Monique Taylor via the East Asia Forum detailed how China is pivoting from technical catch-up to a sophisticated “regulatory flooding” strategy in Low Earth Orbit (LEO).
As earlier SatNews filings show the Chinese and SpaceX efforts at max satellites, this report digs deeper into the regulations and situations to be overcome to make any of this happen.
This shift, marked by unprecedented filings with the International Telecommunication Union (ITU), seeks to redefine orbital governance as a domain of state-supported critical infrastructure rather than purely commercial exploitation.
The report highlights a pivotal moment in December 2025, when China submitted filings for satellite constellations totaling roughly 203,000 spacecraft. This administrative surge effectively challenges the first-mover advantage established by SpaceX’s Starlink and signals a new phase in the “Sovereign-Commercial Nexus.”
Regulatory Flooding and the “EPFD Trap”
The core of China’s recent strategy lies in the weaponization of Equivalent Power Flux Density (EPFD) limits. By filing for massive numbers of satellites—most notably through the Institute of Radio Spectrum Utilization and Technological Innovation (RSDTII) registered in the Xiong’an New Area—China is effectively “reserving” vast portions of the finite interference budget.
- Regulatory Denial of Service: Subsequent operators must prove their real-world hardware will not cause interference to these “ghost constellations.” This forces Western firms like SpaceX and Amazon to design systems that dodge theoretical Chinese signals, potentially throttling their network performance.
- ITU “Use-it-or-Lose-it” Dynamics: While ITU rules mandate deployment within seven years, the sheer volume of these filings allows China to maintain a dominant regulatory position during the coordination phase, effectively slowing competitors’ deployment timelines.
Comparative Industrial Models: Vertical vs. Distributed
The analysis highlights a fundamental divergence in how the two space powers have industrialised satellite production.
- The SpaceX Model: Achieves scale through vertical integration, bringing rocket manufacturing, satellite design, and user terminals within a single corporate hierarchy. This allows for rapid iteration and feedback loops.
- The Chinese Model: Utilizes a state-supported distributed manufacturing approach. Production of chips, launch vehicles, and payloads remains spread across specialized state-owned and private firms. While this can slow iteration at the individual firm level, it allows the state to concentrate massive industrial resources once a specific constellation, such as Guowang or G60 (Spacesail), becomes a national priority.
Defense Implications and Sovereignty
Low Earth Orbit has transitioned from a sparsely populated technical domain to a dense layer of critical infrastructure with profound political consequences. China’s push for a PRC-aligned space ecosystem is driven by a desire to avoid dependence on Western infrastructure, particularly as satellite networks become embedded in military command-and-control (C2) and emergency systems.
“Governance is increasingly shaped by infrastructure, not the other way around,” Taylor notes. As dense satellite networks integrate into economic and security systems, global access and resilience are determined by those who control the orbital architecture.
Strategic Outlook: The Governance Gap
The Atlantic Council and East Asia Forum both suggest that existing frameworks—designed for a slower era of infrequent launches—are failing to manage industrial-scale constellations.
- Congestion Management: There are currently few mechanisms to manage orbital congestion after the fact, rewarding those who deploy first and expand continuously.
- Standards Competition: China is using its “systemic” approach to form synergies in technical standards and terminal compatibility across partner nations, particularly in the Global South, creating long-term technological dependencies.
- Future Milestones: The industry is now monitoring whether Chinese firms can manufacture and operate these mega-constellations within the seven-year ITU deployment window, a feat that would fundamentally shift the balance of power in LEO by 2032.