Network Agency Presents Roadmap for DSL Shutdown and Fiber Optic Conversion

Summary

The Federal Network Agency published a regulatory framework on 19 January 2026 for the transition from copper to fiber optic networks. The roadmap provides that in addition to Deutsche Telekom, the regulatory authority itself and competitors may also initiate copper shutdown – but only under strict conditions such as at least 80 percent fiber optic availability. The framework is designed to alleviate customer fears of a "forced shutdown" and ensure greater competition on new networks, but requires legislative changes and new competencies for the regulatory authority.

People

• Klaus Müller – President of the Federal Network Agency
• Jonas Jansen – Author of the article

Topics

• Fiber optic expansion and infrastructure
• DSL shutdown and copper network decommissioning
• Regulation and competition law
• Consumer protection and disclosure obligations
• Market dynamics and customer choice

Detailed Summary

The current situation shows that most German households still connect to the internet via outdated copper networks. These offer significantly slower speeds than forward-looking fiber optic technology, which enables greater bandwidth and requires less energy. With increasing fiber optic distribution, internet prices are expected to fall due to intensified competition.

The core problem with existing regulation: Currently, only Deutsche Telekom, as the operator of the copper network, is permitted to request a shutdown. This leads to suspicion that Telekom conducts shutdowns strategically only in areas where it offers fiber optics itself – to avoid losing customers to competitors. Competitors also criticize that without a concrete shutdown roadmap, their fiber optic expansion plans are uneconomical, as they cannot recover their capital costs.

The Federal Network Agency's proposal: To accelerate the transition, in the future the regulatory authority itself and Telekom's competitors should also be permitted to initiate a shutdown process. However, strict conditions must be met: at least 80 percent of households and businesses must be supplied with fiber optics to the home (FTTH – Fiber to the Home).

Current expansion status (as of mid-2025): Of 45 million end customer connections, while more than half were theoretically available (homes passed), only just under ten million were actually connected, and only 5.8 million paid contracts were in place. Regional differences are significant – Hamburg shows good progress, while Saarland is falling significantly behind.

Customer acceptance and choice: The hesitant contract conclusion rate is due to several factors: price, satisfaction with existing DSL solutions, and concerns about becoming dependent on a single provider. Therefore, the Network Agency calls for a binding "open access" model: all fiber optic network operators – not just Telekom – must grant competitors access to their infrastructure against agreed fees.

Timeline and consumer protection: The roadmap provides that new DSL contracts must not be offered at least two years before a shutdown, and customers must be notified at least one year in advance. This is intended to prevent surprising shutdowns without available alternatives.

Key Statements

• The Federal Network Agency demands greater regulatory competencies in order not to leave copper shutdown to Telekom alone and thereby ensure competition.

• A shutdown should only be possible under strict conditions – particularly when at least 80 percent of households are supplied with fiber optics and competitors receive network access.

• Consumer protection through time buffers: two-year moratorium on new DSL contracts before shutdown, at least one year advance notice to customers.

• The previous voluntary "open access" model should become mandatory – all network operators must enable third-party co-use.

• Regional differences in fiber optic expansion are substantial; without a clear shutdown roadmap, many competitors lose the economic viability of their expansion plans.

• Considerable time is likely to pass before actual implementation: companies have until mid-March to submit comments, after which legislative changes must be enacted.

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