Should Space Be Part of a Development Strategy? Reflections Based Upon the Brazilian Experience

Abstract

Brazil and Africa share deep historical, social, and cultural roots. They have also faced similar challenges in their development path. As it strived to become one of the world's largest economies during the second half of the 20th century, the South American giant confronted many of the problems African nations encounter today. Space activities took off during that period, initially motivated by national security and prestige. Civilian applications and, more recently, commercial businesses, gained momentum over time. Drawing from Brazil's experience, this article offers reflections for nations in Africa and elsewhere seeking to promote space as part of a development strategy.

Introduction

Brazil and Africa share deep historical, social, and cultural roots. The connection started during the slave trade period when the South American giant received around 5 million Africans between 1501 and 1866, more than 10 times the number of slaves brought into the United States.¹ A melting pot with the world's second-largest black population after Nigeria, Brazil continues to be strongly influenced by the African heritage.²

Until the first half of the 20th century, Brazil's Gross Domestic Product per capita was below sub-Saharan countries such as Botswana, Equatorial Guinea, Gabon, Namibia, and South Africa.³ After World War II, a period of intense industrialization led Brazil to become one of the world's fastest growing economies. R&D investment, institutional and capacity building, technical assistance, and strategic investment helped turn the country into a global agricultural powerhouse.*^,4 The model was replicated in other sectors such as the oil & gas and aeronautics sectors, where Brazil acquired world-class expertise to ensure energy independence, and national integration and defense, respectively.⁴ Space activities in Brazil took off during that period, with security and prestige providing the initial motivation. Civilian applications and, more recently, commercial businesses gained momentum over time.

Drawing from Brazil's experience, we aim to provide inputs to nations in Africa and elsewhere seeking to promote space as part of a development strategy. Next follows an account of the country's space history, institutional context, and current commercial panorama. Furthermore, we proceed with reflections based on the Brazilian space program, introduce ideas about how Africa can take advantage of the growing commercial space ecosystem, and outline mutual collaboration opportunities. Final thoughts conclude this article.

Brazil

In Brazil, the aeronautical tradition goes back to Alberto Santos Dumont, a “hero of mythical proportions” whom his countrymen consider the “Father of Aviation.”⁵ A renowned pioneer, he became famous worldwide in 1901 by conquering the Deutsch Prize for circumnavigating the Eiffel Tower in a balloon. Five years later, Santos Dumont conducted the first public demonstration of an airplane flight.⁶

After a slow start, the aerospace sector development accelerated during the second half of the 20th century. To foster the nascent field, the Brazilian government created several organizations between 1946 and 1969 (Box 1). They were instrumental for establishing Embraer in the late 1960s, a company that would become the world's third-largest aircraft manufacturer. They also played a crucial role in building the institutional framework and human capital for space initiatives.

Box 1. The Institutional Framework of Brazil's Space Sector

The Department of Science and Aerospace Technology (DCTA) was established in 1953 as the coordinating entity of space activities in Brazil, initially housing the Technological Institute of Aeronautics (ITA) and the Institute for Research and Development (IPD), respectively, in charge of academic training and experimental programs. Currently, space activities are spread out across several military and civilian agencies. The Ministry of Defense (MD) oversees DCTA and the Institute of Aeronautics and Space, which absorbed IPD and is now responsible for developing launch vehicles and related technologies. The launch centers of Barreira do Inferno and Alcantara are also under the MD's umbrella.^4,7 The Ministry of Science, Technology, and Innovation houses the Brazilian Space Agency (AEB), responsible for formulating and coordinating the execution of Brazil's space policy, and the National Institute for Space Research (INPE).^‡ Created in 1971, INPE has the mandate to develop satellites and their technologies, together with space applications.

A Brief History

Inspired by the achievements of the space race between the United States and the U.S.S.R., President Janio Quadros established a commission to launch a national space program in 1961.⁴

Decades of investment in space activities have led to significant milestones and active participation in international initiatives. With Sonda 1, a 100 kg 2-stage rocket launched in 1965, Brazil was a pioneer in the attempt to build launch capabilities among developing countries. National Institute for Space Research (INPE) generates state-of-the-art research on remote sensing, earth observation, and atmospheric sciences. Among its feats is the SCD-1, a satellite launched in 1993, and that continues to collect environmental data almost 3 decades later. The System of Vigilance of the Amazon (SIVAM) is a law enforcement and environmental monitoring system in operation for more than a decade and a half.⁸

The country is an original member of the United Nations Committee of Peaceful Uses of Outer Space (COPUOS) and signatory of the Outer Space Treaty. Andre Rypl, a Brazilian diplomat, chaired the 62nd session of the COPUOS, which approved the guidelines for the long-term sustainability of outer space activities.

A cooperation agreement with the European Space Agency has been in place since 1977 and, among others, includes collaboration on earth observation and tracking of launchers and satellites. Since 2004 Brazil has completed 31 launches of the VSB-30, a sounding rocket developed in cooperation with the German Aerospace Center (DLR). In 2018, Brazil and Russia agreed to monitor space debris, adding to a framework that brought GLONASS stations to the Brazilian territory.

In 1988, Brazil signed a partnership agreement with China to produce remote sensing satellites through the China–Brazil Earth Resources Satellite (CBERS) program. Six spacecraft have been built and launched, generating data to monitor the Amazon region and track the use of natural resources and land occupation.

Brazil and the United States have collaborated in multiple research and educational space initiatives, primarily on earth observation projects between INPE and NASA. After decades of negotiations, the Brazilian Congress approved the U.S.-Brazil Technology Safeguards Agreement (TSA) that came into force in December 2019. The TSA establishes the technical safeguards to support space launches from Brazil while ensuring the proper handling of sensitive U.S. technology.⁹

Concomitantly to its achievements, the Brazilian Space Program has also experienced downsides due to cancellations, disasters, delays, and priority changes. A historical tragedy happened when an explosion killed 21 scientists and engineers in 2003. Unable to meet the International Space Station (ISS) commitments, Brazil left the program in 2007.¹⁰ In the first decade of the 21st century, Brazil and Ukraine partnered to create the Alcantara Cyclone Space (ACS) to develop an orbital launch vehicle. The agreement ended in 2015 without producing a launcher.¹¹ The Satellite Launching Vehicle (VLS) program started in 1984 and terminated in 2016 without reaching its stated objectives. Initially proposed in 2008, the Microsatellite Launching Vehicle (VLM)—jointly developed with DLR since 2011—has seen successive delays. A joint venture between Embraer and Telebras, Visiona was created in 2013 to develop indigenous capabilities in geostationary satellite manufacturing. The company has struggled to achieve financial sustainability after the Brazilian government canceled additional contracts and recently decided to reorient its focus to small satellites.¹²

Commercial Space Activities

Lately, there has been a surge of interest in commercial space in Brazil due to institutional development, private sector engagement, and entrepreneurial activities. A Committee of Development of the Brazilian Space Program (CDPEB) was established in 2018 and comprises representatives of several Ministries. The CDPEB has the mandate to advise the President on the implementation of the Brazilian Space Program. Among its primary responsibilities is the elaboration of the General Law of Space, which is expected to provide the guidelines for commercial space activities.¹³ In May 2020, Brazilian Space Agency (AEB) issued a public call inviting local and foreign companies to use its civilian launch facilities.¹⁴

The private sector has been actively promoting commercial space. An industrial cluster now constitutes a “Space Valley” around the Sao Jose dos Campos Technology Park (PqTec), with spin-off companies impacting both space and nonspace sectors. The Aerospace Industries Association of Brazil (AIAB) is a trade organization of traditional space companies and defense contractors such as Avibras, Akaer (Opto), Atech, Fibraforte, Orbital, and SIATT. According to its website, AIAB has 30 members working in small satellites, satellite structures, payloads, satellite equipment, ground systems, propulsion, sounding rockets, and launchers.¹⁵ Braskem, the world's leading biopolymer producer, has partnered with Silicon Valley-born startup Made in Space to produce recyclable plastic objects in the ISS.¹⁶

Since 2017, AEB has organized the Brazilian Space Industry Forum, an annual event that congregates stakeholders, fosters the exchange of ideas, and promotes collaboration between domestic and international participants. The U.S.-Brazil CEO Forum, which brings together 12 U.S. and 12 Brazilian CEOs to develop joint recommendations for both governments on how to increase bilateral trade, proposed the development of a framework for joint space research programs in 2019.

A small but vibrant New Space startup community is rapidly forming. The Alliance of Brazilian Space Startups was launched in 2020. Although some companies target low earth orbit and beyond, others are creating solutions to our planet using space technologies. PION has commercial products focusing on space and education. CRON and EMSIS have developed software and hardware for CubeSat missions, whereas Alya Nanosatellites aims to launch a constellation and tap into the earth's observation market. DeltaV, a spin-off from INPE, specializes in propulsion systems. ACRUX and VSAT are working on small satellite launchers. Airvantis sent multiple educational experiments to the ISS and has partnerships with companies and space agencies worldwide. The startup is carrying out Brazil's first lunar mission.¹⁷ In parallel, Agrosmart, Solinftec, and Strider are harnessing the power of space assets to provide remote sensing, weather forecast, and image processing services to the agricultural sector.¹⁸ Data companies such as Storm have incorporated open source algorithms developed by NASA for security applications.¹⁹

Reflections

Brazil has formed highly qualified human capital, developed technical capability, created robust institutions, and accumulated scientific and technological accomplishments over the years. In contrast, despite being one of the first countries to nurture a space program, it has seen others catch up and surpass its space endeavors as a result of a lack of long-term planning, conflicting priorities, coordination challenges, and underinvestment. Hereunder we delve into specific topics as part of the Brazilian space experience, eliciting reflections for nations in Africa and elsewhere willing to harness opportunities created through space activities.

Slow is smooth, smooth is fast. Until the late 1970s, space development in Brazil was comparable with China and India. Both Asian powers continued to grow their space activities at a steady pace. In contrast, Brazil has lagged due to the difficulty of keeping up with its partners' technological progress and the country's inability to develop strategic projects.²⁰ In parallel, funding for space activities has dried up for the past decade: the budget of AEB for 2019 fell to BRL 196 million (approximately USD 38 million), from BRL 400 million in 2012, adjusted by inflation.²¹

Do not bite more than you can chew. The goal of developing both launch and satellite building expertise has not come without technical and budget challenges. In the case of launching vehicles, at one point, there were 4 parallel programs: ACS, VLS, VLM, and Sounding Booster Vehicle (VSB). Similarly, failing to meet the ISS commitments also reflected budget constraints and changing priorities. In contrast, neighboring Argentina gave up on creating rockets in 1990 and has been successfully producing commercial satellites, radars, and ground stations that are competitive in global markets (Appendix A1).^†^,22,23

It takes two to tango. Technological Institute of Aeronautics (ITA), the engineering school that has been key to the aeronautics and space sector development in Brazil, was created through a partnership with MIT. INPE has worked with the China Academy of Space Technology, the China National Space Administration, and other Chinese organizations as part of CBERS. The multidecade program has successfully developed earth observation capabilities. In contrast, the Brazilian–Ukrainian Cyclone consortium did not bear the expected fruits due to budget, technical, and commercial disagreements between the partners, with Brazil leaving the binational joint venture in 2015.¹¹

Learning from history. Protectionism and import substitution contributed to the delay of Brazilian economic development.⁴ Promoting an indigenous rocket development echoes some of the arguments used in the past by industrial policy advocates. The rocket and satellite manufacturing account for about one-third of the budget activities, according to the latest National Program of Space Activities.²⁴ As SpaceX and its competitors continue expanding the provision of low-cost access to space, is it justifiable to create an indigenous government-sponsored launching program?

Brave New Space World. The Brazilian space program has a track record in developing science and technology capabilities. INPE is recognized for its world-class earth observation expertise. At the same time, Brazilian space companies, which are associated with advanced design and manufacturing of optical cameras, solar panels, solid propulsion systems, power supply, mechanical structures, thermal control, and communications, have failed to replicate Embraer's global reach in the aviation sector. New Space creates challenges and opportunities for Brazilian companies searching for survival strategies and insertion in international markets.⁷

To go farther, go together. In Brazil, competing interests and agendas have slowed down space development. An inclusive approach involving the private sector beyond traditional contractors is necessary to bridge the gap between industries directly and indirectly connected to the space economy. Besides, as the Alcantara Launch Base expansion has shown, failing to achieve consensus about environmental and social impact can lead to substantial delays.²⁵ Carefully designed public sector institutions can facilitate the development of new frontiers.²⁶

Curb your enthusiasm. The signature of the TSA between Brazil and the United States has created high expectations on both sides. Launches are to start in 2021, and Brazilian government authorities have suggested that commercial space activities could bring USD 3.5 billion to the country every year, reaching USD 10 billion by 2040.²⁷ The definition of a clear roadmap, public and private sector alignment and resource allocation will indicate whether the potential will be realized in the upcoming years.

Opportunities for Africa

Brazil's experience provides useful insights about the role space can play as part of a development strategy by spurring innovation, creating high-quality jobs, and promoting tech entrepreneurship. Overall, the economic impact of commercial space involves upstream and downstream sectors. The former relates to suppliers through backward linkages; the latter refers to recipients of the space sector's inputs through forward linkages.²⁸ Seraphim Capital has produced a map with startups addressing technologies and solutions in the space value chain. Build, launch, and data categories are part of the upstream industries, whereas downlink, store, analyze, and product sit downstream.²⁹ The framework is also helpful as it introduces startups developing applications in multiple domains. Danielle Wood, from the MIT Media Lab, has outlined 6 areas where space supports sustainable development. They include earth observation, positioning, communication, technology transfer, microgravity research, and science, technology, engineering, and mathematics (STEM) education.³⁰

Space in Africa is developing at a fast pace. South Africa launched its first satellite in 1999 and has ambitious plans to join an international effort to build the world's largest radio telescope, the Square Kilometre Array. Since 2003, Nigeria has launched 5 satellites. The most populous African nation plans to send its first astronaut into space by 2030. Ethiopia built the world-class Entoto Observatory and Research Center in 2015.³¹ The African space sector employs 8,500 people and might grow to USD 10 billion by 2024, a 40% growth compared with USD 7 billion in 2019. Out of the 41 satellites launched since 1998, 8 were placed in orbit last year.³²

The exponential growth of small satellites and their specific functionalities, innovative design, and lower cost have the potential to produce a massive impact in Africa.³³ Such a trend can take advantage of the of the country's booming entrepreneurial ecosystem: in 2019, nearly 97 African startups raised USD 1.24 billion. Fintech and transportation have received most of the funding, with investors showing increasing interest in AgTech.³⁴ Following are some examples in those areas where New Space can seize the momentum and support the entrepreneurial ecosystem: 1.

Financial inclusion. Companies such as M-Pesa pioneered the use of electronic financial transactions using feature phones. The service was launched in 2007 by Vodafone and Safaricom, Kenya's largest mobile carrier. Last year Interswitch joined the select group of unicorns after receiving USD 200 million to provide integrated digital payments and e-commerce services. Connecting financial institutions and clients are the primary target of Starlink and other satellite internet providers.

Transportation. Local ride-sharing startups have become popular. Not only do they provide mobility solutions in urban areas, but they also support logistics. For startups such as Lori Systems, IoT will streamline operations by helping keep tracking trucks in real time. As a marketplace that connects cargo owners to transport, the company addresses the challenge of moving goods, which corresponds to up to 75% of product costs.³⁵ Some of the most exciting experiments using unmanned autonomous vehicles for delivery are taking place in the sub-Saharan region. Thanks to a friendly regulatory environment, the lack of infrastructure for ground transportation has pushed for creative ideas that will eventually rely on space-based solutions.

Agriculture. In the 1950s and 1960s, the introduction of new methods in agriculture helped save billions from starvation. Similarly, exponential technologies will impact agricultural productivity through autonomous machines, satellite imagery, data analytics, and IoT sensors will be part of the Green Revolution 2.0.³⁶

After adopting of the African Space Policy and Strategy in 2016, the African Union approved a statute creating the African Space Agency 2 years later. The document lists as a primary goal “to exploit space technologies and application for sustainable development and improvement of the welfare of African citizens.”³⁷ Such a framework creates countless opportunities for producing impact through New Space.

Mitigation and adaptation to climate change is an example. The Global Monitoring for Environment and Security and Africa, supported by the European Union, creates valuable public goods by promoting sustainable management of natural resources through earth observation. Institutions from 45 African countries have been developing solutions focusing on the continent's water and natural resources. In particular, space could support extractive industries such as the mining sector to identify mineral reserves, monitor risk, and assess environmental impact.

Communications is another area where space would play a vital role. African countries are well-positioned to pioneer large-scale wireless access using satellite internet rather than relying on terrestrial infrastructure. Ubiquitous access to the internet will produce social benefits across multiple sectors, including providing connectivity in remote regions, facilitating distance learning, promoting telemedicine services, and tracking displaced populations and refugees.

Social impact also happens by fostering an open and innovative ecosystem. A young population, a rising middle class, a large contingent of underserved customers, poor infrastructure, and less restrictive regulations create conditions for testing new approaches. Heavyweight Silicon Valley companies are among those seizing the opportunity. Google's parent company Alphabet has launched the Loon project intending to use balloons to provide internet access in remote regions and areas affected by a disaster.^§ The same out of the box approach could apply to other concept projects that depend on the space infrastructure, from spectrum usage to autonomous vehicles.

Space might catalyze entrepreneurial activities. Clusters—concentrations of interconnected companies in a common segment located in a particular area—are vital components for economic growth in the modern world.³⁸ African nations might take advantage of the infrastructure built to serve the commercial space segment. For instance, satellite constellations require various ground stations that will require skilled labor for construction and maintenance. Eventually, there will be innovation hubs formed around them. Spaceports aspire to become centers of economic development ahead of launch activities and could also help foster entrepreneurship.³⁹

In sum, New Space can set the stage for paradigm shifts, spur innovation, and positively support the neediest. Efforts should prioritize a bottom-up approach while focusing on activities that impact the lives of local populations to develop a successful strategy that can help create a space culture.

Brazil and Africa: Lessons and Opportunities for Collaboration

The Brazilian case shows that investing in high-tech areas might produce economic and social benefits. As it redefines its priorities in the space sector and learns from past mistakes, Brazil could look into its achievements as a source of inspiration and aspiration to tap into opportunities for collaborating with Africa's space efforts.

Embrapa, the Brazilian Agricultural Research Corporation, has played a central role in “Brazil's Green Revolution” and whose technology transfer program is seen as a model for south–south cooperation. The organization uses of earth observation satellites and has developed public domain tools such as GEOINFO, a space data repository.⁴⁰

Natural resources and environmental impact management is another area where Brazil's expertise could be beneficial to Africa. A partnership between Brazil and China through the CBERS program has been largely praised for its public goods using space infrastructure.⁴¹ Both countries granted free access to more than 2 million images to African nations in 2007 and made them public goods in 2010. Uses include mapping, natural resource management, environmental management, detection and mitigation of natural disasters, deforestation monitoring, and crop forecasts, among other applications.⁴² Data generated by CBERS satellite have been fed to SIVAM, the world's largest environmental monitoring system when the program was launched in 2002. On the private sector side, mining giant mining company Vale uses satellite images to streamline their operations.⁴³ A geotechnical monitoring center created in the aftermath of one of Brazil's largest environmental disasters relies heavily on satellites' data.⁴⁴

Finally, world-class AgTech startups are transforming the Brazilian economic landscape. Innovation hubs such as the municipality of Piracicaba—Brazil's agribusiness Silicon Valley—host numerous companies that are making use of data and infrastructure from space to improve agricultural productivity.^18,45,46 As African nations seek to develop local entrepreneurial ecosystems and seize opportunities through comparative advantages, the Brazilian experience in the agricultural sector and its connection with global value chains could provide valuable lessons and opportunities for mutual support.

Final Thoughts

Space activities are often perceived as too risky, costly, and lengthy. However, in space, one might also find solutions for immediate problems and shape the future generations in tandem. The lack of resources can pose a challenge for nations in Africa exploring ways to promote economic growth and social development through space. Still it also allows for rethinking ways to deploy more suitable systems to present and future needs.

Under the right circumstances, investing in space can pay off handsomely. Studies suggest that the U.S. government spending on NASA adds more than USD 8 to the economy for each dollar.⁴⁷ The Brazilian experience demonstrates that tangible and intangible benefits depend on how countries utilize their limited resources. In this article, we suggest undertaking a bottom-up approach, focusing on local challenges that could benefit from New Space. Earth observation and satellite telecommunications are some of the most promising segments with the potential to impact climate change, agriculture, resource management, transportation, health, and internet access, among others. Fostering an entrepreneurial ecosystem will enable space startups to create social and economic impact.

Thinking strategically, harnessing resources wisely, identifying suitable partners, investing in human capital formation, and building a robust entrepreneurial ecosystem are steps in the right direction The joy, creativity, and diversity that characterize the African peoples can generate novel ways to integrate New Space as part of a development strategy.

Africa is the birthplace of civilization. As we pave our journey toward becoming a multiplanetary species, the continent may play a renewed role in shaping humanity's future. Concomitantly, it can harness the power of space to address immediate challenges.

Footnotes

Acknowledgments

The author thanks for the comments and suggestions provided by anonymous peer reviewers.

Author Disclosure Statement

No competing financial interests exist.

Funding Information

No funding was received for this article

APPENDIX

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