BRICS

Introduction

Today’s space sector faces complex challenges that make international cooperation more important than ever. This is especially relevant for BRICS countries, which are increasingly developing their own approaches to space exploration. In a time of rising global competition and economic uncertainty, working together in space activities has become a key strategic priority.

This article examines the role of BRICS in global space exploration, especially with a focus on Martian projects and lunar exploration, as a reflection of the new technological ambitions of the participating countries. Special attention will be devoted to Brazil, examining its national space policy, institutional capacities, and contributions within the broader framework of BRICS cooperation in space endeavors.

What is BRICS?

BRICS is an interstate association that initially includes five countries: Brazil, Russia, India, China and the Republic of South Africa. In 2023-2025, the organization expanded to include new states: Egypt, Ethiopia, Iran, Indonesia and the UAE.

BRICS positions itself as an alternative to Western-centric structures, developing cooperation in the economy, science, technology and, increasingly, in the space sector.

Participating Countries

As of July 2025, BRICS includes 10 countries:

• Brazil
• Russia
• India
• China
• South Africa
• Egypt
• Ethiopia
• Iran
• Indonesia
• United Arab Emirates

In addition, work is underway with observer states and partners, such as Algeria, Turkey, Belarus, Kazakhstan, Cuba, etc., which expands the geography of interaction.

The High Cost of Space and Economic Rationalization

Space exploration requires significant financial costs, and even developed economies feel this burden. BRICS seeks to overcome this barrier by pooling resources, sharing technology and infrastructure.

One of the proposals is the creation of a common module for the Russian orbital station ROS, where each country can contribute. Such a model not only reduces costs, but also stimulates the exchange of scientific and engineering experience.

On 2 June 2025, the BRICS Ministers of Communications adopted the Ministerial Declaration of Cooperation in Information and Communication Technologies (ICTs), with a notable emphasis on the sustainability and equitable governance of outer space.

An annex to the declaration explicitly highlighted the critical importance of ensuring fair access to outer space for purposes including communication, scientific research, and technological development.

Brazil, serving as the BRICS Chair in 2025, played a pivotal role in promoting this agenda—particularly with regard to the regulation of non-geostationary satellite systems, a domain presently marked by insufficient international regulatory oversight.

Daniel Cavalcanti, Chair of the BRICS ICT Working Group, underscored the imperative to strengthen the mandate of the International Telecommunication Union (ITU), positioning it as a central institution in safeguarding space as a globally shared and equitably managed resource.

The annex further called on BRICS member states to actively support international governance structures led by the ITU and the United Nations. It encouraged the exchange of national regulatory frameworks governing space operations and advocated for increased collaboration in research—especially in areas involving artificial intelligence—to enhance satellite coordination, mitigate orbital congestion, and prevent signal interference.

The urgency of these initiatives was echoed by India’s Minister of Communications, Pemmasani Chandra Sekhar, who highlighted the growing accumulation of space debris and the associated risks stemming from uncoordinated satellite deployments.

During the 17th BRICS Summit held from 6 to 7 July in 2025 in Rio de Janeiro, Brazil, member states considered a proposal—reportedly introduced by Roscosmos Director Dmitry Bakanov—for the establishment of a “BRICS Space Council.” Conceived as an advisory body, the council would aim to coordinate joint programs in space exploration and policy development.

Although the proposal remains in its preliminary conceptual phase, it garnered broad support in principle, reflecting a collective interest in the institutionalization of BRICS space governance.

Consistent throughout the declaration and summit discussions was a reaffirmation of BRICS' commitment to the exclusively peaceful use of outer space. Member states explicitly rejected the militarization of space and the deployment of weapons beyond Earth’s atmosphere. In alignment with this stance, the declaration emphasized the importance of joint scientific and technological initiatives.

One illustrative example is the PanEOS project—a collaborative effort between South Africa and Russia—focused on tracking and managing orbital debris, which poses an increasing threat to the sustainability of near-Earth space.

Space Leaders Among the BRICS and Their Martian and Lunar Missions: Russia, China, India

Russia

Russia, China and India occupy leading positions in the space race within the BRICS. Russia continues to develop its lunar program and plans to participate in Martian missions;

• Development of its own lunar program (including the Luna-25 missions and the planned Luna-26, Luna-27, etc.). Preparation for participation in international Martian projects. Proposal to create a BRICS Space Council (initiative of the head of Roscosmos Dmitry Bakanov, 2025). Participation in the International Lunar Research Station (ILRS).

China

China is successfully implementing the Chang'e lunar exploration program, which includes a series of robotic missions to explore and study the Moon;

• Chang'e-4: First successful landing on the far side of the Moon (2019).
• Chang'e-5: Returned lunar samples to Earth (2020).
• China has launched the Tianwen-1 mission to Mars, with a successful orbiter, lander, and rover (2021).

China has developed its own Tiangong space station and is promoting international cooperation on its future lunar base projects, such as the International Lunar Research Station (ILRS).

Long-term plans include future manned missions to Mars. China plans to launch the unmanned mission Tianwen-3 in 2028. Its main goal is to return samples of Martian soil to Earth.

Among the key priorities are the search for signs of ancient life and the execution of complex technical operations: collecting samples, launching from the surface of Mars, docking with an orbital module, and returning the samples to Earth.

Previously, in 2021, China successfully carried out the Tianwen-1 mission, which placed a probe into Mars orbit. On May 15, 2021, the Zhurong rover successfully landed on the Martian surface. This made China the third country in history, after the USSR and the USA, to reach the surface of Mars.

India

India, through the Chandrayaan-3 mission, has successfully reached the lunar south polar region and has expressed plans to expand its interplanetary exploration efforts.

• Chandrayaan-3 mission (2023): First-ever successful landing near the Moon’s south pole. Plans announced for Martian exploration, including a proposed Mars Orbiter Mission 2. Preparations ongoing for new interplanetary missions, including Gaganyaan, India’s first planned human spaceflight, and expansion of orbital satellite systems.

Joint Initiatives within BRICS

• Confirmation of the commitment to the peaceful exploration of space (Summit in Rio de Janeiro, 2025). Proposal to establish a BRICS Space Council as a coordinating body for joint programs Proposal to create a newsletter for sharing data and coordinating the activities of space agencies. Potential cooperation on the development of a joint module for the Russian Orbital Station (ROS). Discussion of joint participation in the International Scientific Lunar Station and deep space exploration.

How BRICS Affects Space Exploration

The BRICS countries are actively developing cooperation in the field of space, which makes it possible to significantly reduce costs and increase the efficiency of scientific projects through joint financing, exchange of resources and technological developments. Instead of competition, the members of the association focus on the peaceful use of outer space, which contributes to the sustainable development of the industry and strengthens international trust.

The BRICS leaders emphasize the importance of joining efforts in the implementation of major international projects, such as the creation of the International Lunar Research Station (ILRS) (Международная научная лунная станция (МНЛС)).

Russia, China and India, which have the most advanced space programs in the group, play a key role in these initiatives, spurring technological progress and scientific discovery.

BRICS cooperation contributes to the development of national space programs of countries with less developed space infrastructure, such as Brazil and South Africa, through knowledge sharing and joint research projects. This increases global access to space and contributes to a more equitable distribution of technology.

Let's take a closer look at the space program of one of these countries, Brazil. We will elaborate on Brazil's space program, including key space agencies, the legal framework for regulating space activities, as well as the country's potential for space exploration.

Such navigation will help to better understand the role of Brazil in the modern space industry. The review will cover the following topics:

Brazil's Space Program[1]

The Brazilian Space Program (PEB) is strategically outlined in the National Program for Space Activities (PNAE) 2022-2031, a comprehensive framework that defines the country’s long-term goals for the exploration and utilization of outer space. The PNAE underscores the vital role of space infrastructure in national development, highlighting that its outputs - such as products, applications, and services - are foundational to nearly every sector of Brazil’s economy.

The current PNAE edition emphasizes that space systems have a broad and transformative impact, supporting a wide range of areas, including communications, logistics, urban mobility, civil defense, mining, environmental monitoring, health, education, and scientific research.

Furthermore, they are essential for driving innovation in precision agriculture, enabling smart cities, expanding the use of renewable energy, and fostering a more digital and inclusive society. From this perspective, space activities fundamentally underpin all current and future human progress.

The PNAE 2022-2031 structures Brazil's space sector through three key dimensions:

The Strategic Dimension lays out a comprehensive vision for the Brazilian Space Sector, serving as the foundation for a National Space Strategy. It defines the strategic directions for the country's space activities, aligning them with the needs of the Brazilian State.

Next, the Tactical Dimension details the operational axes that will support the Strategic Dimension. This includes guiding principles for deliverables and an organizational framework for Sectoral Programs.

Finally, the Sectoral Dimension shows the full range of deliverables from PNAE 2022-2031. This version of the PNAE offers a broad spectrum of contributions to society, encompassing not only space artifacts but also structuring programs, plans, and initiatives. Its scenario-based approach provides the necessary flexibility for the Brazilian Space Program to adapt to evolving national circumstances, especially given the urgent need to strengthen space activities in Brazil.

Brazil Space Agencies

The activities outlined in the National Program of Space Activities (PNAE) are centrally coordinated by the Brazilian Space Agency (AEB), a federal civil authority linked to the Ministry of Science, Technology, and Innovation (MCTI). It is the institution responsible for formulating, coordinating, and executing Brazil’s national space policy.

Established by Law nº. 8,854 on February 10, 1994, the Agency has since been dedicated to advancing the Brazilian government's efforts to achieve autonomy in the space sector. Its mission is to foster the development of space activities that serve the strategic interests of the nation.

There are two other government bodies that contribute to the Brazilian Space Agency's mission. They are:

Brazil's National Institute for Space Research (INPE)

The National Institute for Space Research (INPE), a research unit connected to the Ministry of Science, Technology, and Innovations (MCTI), plays a crucial role in advancing scientific and technological knowledge in Brazil. Furthermore, INPE is actively involved in developing, operating, and utilizing space-based systems to drive progress in both outer space and the terrestrial environment.

Its significant contributions to Brazilian society include the design, construction, integration, and control of satellites by national industry, numerical weather and climate forecasting (both terrestrial and space), monitoring Brazilian biomes, and creating scenarios for global climate change.

Department of Aerospace Science and Technology (DCTA)

The Department of Aerospace Science and Technology (DCTA) is a military organization of the Brazilian Air Force Command, under the authority of the Ministry of Defense, it develops scientific and technological solutions for the aerospace field through education, research, development, innovation, and specialized technical services.

The DCTA brings together a wide range of engineers, researchers, and technicians who work on cutting-edge and strategically important projects for Brazil.

Legislation, Regulation and Government Standards

Brazil's space activities are now governed by Law No. 14.946 of July 31, 2024. The law establishes a comprehensive regulatory framework for space exploration and encourages private sector investments. This legislation modernizes the sector by regulating a wide range of activities, which include:

• The transportation of people and materials into space.
• The development of satellites, rockets, spacecraft, and stations. The exploration of celestial bodies, such as the Moon and asteroids.
• Space tourism.
• The removal of space debris.

In essence, this law provides the necessary legal certainty for Brazil to develop a more dynamic and competitive space sector on the global stage.

Arbitration: How Space Disputes Are Resolved

Aerospace arbitration is still an emerging field in Brazil, and no arbitration chamber in the country has a specific and exclusive focus on the aerospace industry, but several leading institutions are well-equipped to handle complex commercial disputes that arise in this sector. These chambers are highly regarded for their expertise in managing disputes related to large-scale infrastructure projects, technology, and international contracts, all of which are common in aerospace.

Here are two examples of arbitration chambers in Brazil that can be used for aerospace-related disputes:

CIESP/FIESP Chamber of Conciliation, Mediation, and Arbitration, it is backed by São Paulo's industrial federations (CIESP and FIESP), this chamber is exceptionally well-positioned to handle disputes involving manufacturing, technology, and complex industrial processes.

FGV Chamber of Mediation and Arbitration (CMA FGV), it is linked to the prestigious Getulio Vargas Foundation (FGV), this chamber is renowned for its academic rigor and a strong reputation for managing complex commercial and corporate disputes.

Who Can Deal With the Space Sector: Only the State or Legal Entities and Individuals Too?

The recent Law nº. 14.946/2024 introduces the concept of a Space Operator in its CHAPTER III - THE EXPLORATION OF SPACE ACTIVITIES, in the following terms:

“Article 9

A space operator is a public or private entity with legal representation in Brazil that performs space activity in accordance with the provisions of this law.

1. A private space operator may carry out space activities through a partnership with the public sector or through an authorization, a permission, an assignment, or other similar instruments provided for in law. 2. Two or more legal entities may associate to form a space operator, by defining a lead legal entity that will be responsible for fulfilling legal obligations, without prejudice to the joint and several liability of the other associated or consortium members”.

The law defines a space operator as an entity, whether public or private, with legal representation in Brazil, that is authorized to carry out space activities. This comprehensive definition paves the way for private sector participation by outlining different operational models and specifically regulating the formation of consortiums.

Participation in International Space Projects

Brazil participates in several international space projects, both through bilateral agreements with space agencies from other countries and in global consortium programs. These collaborations are fundamental for the advancement of science, technological development, and the application of data for the benefit of society.

Here are some of the main international projects and programs with Brazilian participation:

The CBERS Program (China-Brazil Earth Resources Satellite)

The China-Brazil Earth Resources Satellite (CBERS) Program is a bilateral partnership between Brazil and China that began in the 1980s. Its objective is to develop, build, and operate remote sensing satellites to monitor the environment, natural resources, and territory.

The CBERS satellite series is one of Brazil's most successful space cooperation projects, with data used for agriculture, disaster management, and deforestation monitoring.

NASA's Artemis Program

In 2021, Brazil signed a cooperation agreement that formalizes its participation in the U.S.-led Artemis Program. The program establishes principles for the exploration of the Moon and, in the future, Mars.

International Charter Space and Major Disasters

Brazil, through its National Institute for Space Research (INPE), is a member of the International Charter, a global consortium of space agencies. In the event of natural disasters (such as earthquakes, floods, or hurricanes), members pool their efforts to provide satellite images and data quickly and free of charge to support humanitarian and rescue operations. Brazil contributes data from satellites such as CBERS-4A and Amazônia-1.

Brazil's Potential in Space

Brazil has significant potential in the space sector, driven by a unique strategic location, a new regulatory framework (Law nº. 14.946/2024), and broad possibilities for international partnerships.

A Strategic Launch Site: Alcântara

Today, Brazil's most significant asset is the Alcântara Space Center (CLA) in the state of Maranhão. Located near the equator, the CLA offers a major advantage for launching geostationary satellites. Earth’s rotation at the equator provides an extra "boost," which reduces the amount of fuel needed and allows for heavier payloads.

This translates into significant cost savings for commercial launches. Furthermore, the CLA is situated in a sparsely populated area with favorable weather conditions, making it a safe and logistically viable site for launches.

New Law and Private Sector Investment

A comprehensive regulatory framework for civilian space activities was established in 2024 with the approval of Law nº. 14.946. This law defines the functions of space operators and establishes clear rules for national space activities. The legal text also highlights the possibility for private companies to partner with the government or operate under specific legal instruments, such as authorizations and permits. This flexibility was designed to attract private investment and foster a commercial space market.

Therefore, the combination of a strategic launch site, a modern legal framework, and a commitment to international cooperation positions Brazil as a promising player in the global space industry.