Under the proposal presented in January 2026, copper network shutdowns can begin in specific connection areas once 80% of households are covered by fibre infrastructure. Crucially, suitable wholesale products, including robust open access agreements—must be available to ensure competition remains viable after the legacy network is decommissioned.
The regulator is proposing a three-year transition period from the point at which these prerequisites are met. Shutdown plans must be announced at least three years in advance. Within this timeframe, a "marketing stop" would be enforced: DSL products would cease to be offered to new customers in affected areas two years before the planned copper switch-off date.
Regulatory hurdles and legislative action
The concept builds on a discussion paper from spring 2025 and is currently positioned as a recommendation. However, full implementation faces a significant legal hurdle: it would require amendments to Germany's Telecommunications Act (TKG). Under current law,
Deutsche Telekom holds the sole right to apply for copper shutdowns. The new proposal suggests a "rule-based process" that could be triggered by the regulator or third-party altnets who have built out the local fibre infrastructure.
A central element of the proposal is the requirement for an "overarching migration plan" covering the entire country. This roadmap would include the date of the first shutdown, key milestones, and a planned completion date. This is intended to address industry concerns regarding "information asymmetries" and investment barriers that currently favour the incumbent.
Safeguarding competition and consumers
Klaus Müller, President of the Bundesnetzagentur, stated that the agency aims to shape the framework to secure competition and safeguard consumer interests throughout the transition. The authority suggests that migration areas should generally be based on existing copper network infrastructure, such as distribution boxes, but could also align with city district or municipal boundaries where feasible.
"The switch to fibre optics is a future-oriented internet upgrade for Germany," Müller noted. "Copper networks can only be shut down when fibre optics are available almost nationwide and competition on the new networks is ensured."
The incumbent's challenge
Germany has historically lagged behind other European nations in its copper-to-fibre migration. Recent analysis shows that while fibre coverage (homes passed) has reached roughly 60% of households, actual take-up remains low at approximately 23.6%. Deutsche Telekom has expressed concerns regarding the proposal, particularly pointing to the risk of "forced provider changes" for customers during the mass migration phase.
The proposal is now open for consultation with industry stakeholders until mid-March 2026, after which it will move toward the legislative phase.
References
Original Bundesnetzagentur press release: "Pilot projects for copper to fibre migration completed"
Heise Online: "Regulators: Switch off copper networks at 80 percent FTTH"
Telecompaper: "German regulator lays out proposal for copper network shutdown"
