DCF Examine Other Countries to Reveal Learnings for UK 2G Mobile Switch-off

A new report from Plum Consulting and the Digital Connectivity Forum (DCF), an industry think-tank, has today been published that attempts to identify what UK mobile operators can learn from the switch-off of legacy 2G networks in other countries. Needless to say, there are a few recommendations.

The government has already agreed with EE, O2 and VodafoneThree (Vodafone and Three UK) to phase-out existing 2G and 3G signals by 2033 (here), which will free up radio spectrum bands so that they can be used to further improve the network coverage and mobile broadband speeds of more modern networks (4G, 5G and eventually 6G). The switch-off will also reduce the operators’ costs and power consumption.

Mobile operators have already switched off their 3G networks and are now beginning preparations for 2G to be shut down too. The situation around 2G tends to be more complicated, not least because its signals remain useful as a low-power fallback when 4G/5G isn’t present and are still necessary for some rural areas, as well as for particular applications (e.g. certain IoT / M2M services, lift alarms, telecare systems, energy smart meters etc.). The degree to which these issues exist does, however, tend to vary between operators.

The 78-page report – ‘A Generational Shift: international lessons from 2G network sunsetting‘ – echoes many of the above points, but it also finds that while there is no single international model for sunsetting 2G networks, successful approaches tend to share common features, including early engagement with affected sectors, clear communication with customers, coordination between operators, and proportionate involvement from government and regulators. It also warns that “delaying action once 2G traffic has fallen to low levels can increase costs and risks, rather than reducing them“.

Lindsey Fussell, Chair of the DCF, said:

“The UK’s 2G switch-off is both necessary and achievable, but international experience shows it needs to be handled carefully. This report highlights that the biggest risks are not technical, but relate to visibility of remaining 2G use, coordination across sectors, and protecting vulnerable users. By learning from other countries’ experience now, the UK has an opportunity to manage this transition in a way that supports network modernisation while maintaining trust and continuity for consumers and businesses.”

Some mobile operators have technically already begun the process of switching-off their 2G networks, which typically starts with a customer engagement exercise to help migrate users that remain on 2G devices over to modern 4G or better handsets. Due to some of the complications mentioned above, the actual physical network switch-off won’t occur until a few years later.

For example, EE will “begin closing the 2G network from May 2029“, while Vodafone plan to switch off their 2G network during 2030 (after a phased shutdown) and O2 may need to take a little longer than those two due to their adoption inside Energy Smart Meters (those are being upgraded to 4G modems, but it’ll take a long time to execute that across millions of homes).

The report itself then concludes by making a series of recommendations to the government and industry, which are mostly fairly logical and likely to already be part of the plan. But some suggestions, such as the idea of a single wholesale network for “small areas“, could be more contentious for competition.

DCF Recommendations for the 2G Switch-Off

Recommendations for Ofcom, DSIT and Government

➤ Ofcom and DSIT should help operators understand the scale of potential issues. Other regulators and government should inform their industries and consumers of potential impacts.

➤ Ofcom should also continue to participate in extensive engagement with stakeholders to examine whether there are uses or requirements which are unfulfilled by the planned network upgrades.

➤ There may be a need for investigation whether funds are needed to assist with migration, and if so how these can be absorbed without impacting consumers.

➤ There may be a role for Ofcom to consider consumer contractual rights and ensure that service quality is not adversely affected.

Recommendations for operators

➤ Communication with all stakeholders is vital, and timetables should be set well in advance.

➤ The industry should look at international standardisation and harmonisation activities which may replace existing 2G uses, such as NG eCall.

➤ Operators should consider whether there is a need for a single wholesale network, or assistance with providing private networks if users are all located in small areas.

➤ Operators should work with charities and consumer groups to identify and contact the most vulnerable users who will be affected by network switch-off.

➤ Once it has been identified that 2G traffic has dropped to a suitable level, operators should not delay in switching off the 2G network.

Recommendations for service providers and users

➤ Service providers must stop providing devices which rely on 2G networks, and move to other connectivity options.

➤ Service providers and users should liaise with network operators to identify areas with no LTE or 5G coverage in which 2G connections are currently used.

➤ Service providers should examine all supply chains and connectivity services to identify current 2G use cases, and start to migrate these.