02 Okt. BMDS key points on copper-to-fibre migration: A crucial opportunity for greater competition – Federal Network Agency must proactively implement the copper network shutdown
Berlin, 2. October 2025. The Federal Ministry for Digital Affairs and State Modernisation (Bundesministerium für Digitales und Staatsmodernisierung, BMDS) is ready to make key strategic decisions for the shutdown of DSL networks and has today presented comprehensive Key Points for an Overall Copper-to-Fibre Migration Strategy. The VATM sees this as a crucial opportunity to promote stronger competition, transparency, and planning certainty in the German fibre market, provided that the Federal Network Agency (BNetzA) makes full use of its regulatory and intervention powers, and that restrictions in the Telecommunications Act (TKG) are systematically revised.
“Finally, the challenges that have been known for years in relation to fibre migration are being addressed – along with potential solutions. The BNetzA must take an action, not just moderate. The Federal Ministry for Digital Affairs is right to expect this if we are to catch up on the expansion and deployment of fibre networks”, said Dr Frederic Ufer, Managing Director of VATM, in response to the consultation paper.
That is good for competition
Over 60% of connections on the network have been set up by competitors. These provide fibre optics to more than twice as many customers as Telekom does (see the accompanying chart).
“Giving Telekom the sole right to decide on the shutdown, as the law currently allows, is not enough and risks abuse of its dominant market position,” says the head of the association. “The BMDS has understood this. The paper finally acknowledges the efforts of competitors and aims to create fair solutions for the migration process.” This includes: the non-discriminatory shutdown of copper networks – even in areas where competitors have expanded fibre networks; the proposal for a rules-based process once a certain level of fibre rollout is reached, including by competing companies; and stronger intervention and regulatory powers for the Federal Network Agency (BNetzA). Going forward, the BNetzA should be able to prevent discriminatory shutdown practices by Telekom and enforce a comprehensive shutdown and migration plan from Telekom. “We expressly welcome that the Federal Network Agency (BNetzA) is also set to present a regulatory framework clarifying the definition of shutdown areas, the supply benchmark, alternative access products, and the allocation of migration costs in advance.”
In future, large nationwide marketers should also be able to switch to competitors‘ fibre optic networks without any obstacles. The creation of a special termination right in Telekom’s volume discount system, known as the commitment model, is the right way forward and has long been demanded by VATM.
The Ministry also recommends imposing further transparency obligations on Telekom and is considering amending the Telecommunications Act (TKG) if necessary, so that the Federal Network Agency (BNetzA) can demand a binding migration plan. “The Ministry recognises that the migration from copper to fibre cannot be left solely at the discretion of Telekom and requires effective supervision,” emphasises VATM Managing Director Dr Frederic Ufer. “This will boost investor confidence, which is crucial for expanding fibre-optic networks.”
Market needs orderly processes
As outlined in the key issues paper, it is also appropriate to set a clear timeframe for the copper switch-off once a sufficient level of coverage has been achieved. “Naturally, clear criteria must be defined — including the number of connected homes rather than just homes passed, along with functioning open access offers,” explains Ufer. “In addition, the process must follow a rule-based procedure that complies with European law. To ensure this, the Federal Government must take a firm position in Brussels, as also highlighted in the key issues paper.”
Of the more than 23 million active DSL connections in Germany, almost 10 million are provided by competitors through regulated access to the Telekom network. “Alongside speed in initiating migration measures, what we need above all is an orderly process that offers a clear future perspective for successful nationwide access seekers such as 1&1, Vodafone and Telefónica,” emphasises Ufer. “This includes adequate replacement products on the new networks and a competition-compliant arrangement for covering migration costs. It should fairly reflect the fact that, since the beginning of market liberalisation, Telekom has generated excess profits of over €30 billion through regulated wholesale prices, much of which has not been reinvested in the expansion of fibre networks.”
The interests of business customer providers specialising in the supply of services to industry and the national economy are also not addressed in the Ministry’s key issues paper. This market segment generates over €20 billion in revenue annually, representing around one third of the sector’s total turnover, and has specific requirements for the copper switch-off, particularly regarding timelines and the exceptionally high quality of the replacement products to be offered as wholesale services.
Federal Network Agency takes on major responsibility
“We believe that the direction taken by the ministry is the right one,” summarises the managing director. Involving citizens in the migration process at an early stage and in a transparent manner creates trust in the further process.
“The key points published today can give a strong boost to the debate on fair and competition-compliant migration to FTTH. Clear tasks have been set, and they must now be implemented in a structured and consistent way. Non-discriminatory switch-off, transparency, and a regulatory framework from the Federal Network Agency (BNetzA) are the main tools. Above all, the BNetzA has a major responsibility to support competition and ensure the copper-to-fibre migration is a success. In the coming months, it will need to meet this responsibility more effectively.”
Current analyses and figures on the competitive situation in the telecommunications market can be found here:
• 3. Analyse der Wettbewerbssituation auf dem deutschen Festnetzmarkt
