Copper to fibre migration
The rollout of fibre networks in Germany is progressing, and the transition from copper to fibre networks - known as the copper to fibre migration - has become a focal issue for the market and the Bundesnetzagentur. While in many cases the switch to fibre is already taking place on a voluntary basis, the switch-off of the copper network will be a controlled and regulated process. The Bundesnetzagentur’s regulatory approach is intended to contribute to the ongoing discussions at European and national level.
- Bundesnetzagentur’s regulatory approach to the copper to fibre migration
- Background: broadband coverage in Germany
Bundesnetzagentur’s regulatory approach to the copper to fibre migration
The regulatory approach that was put out to consultation presents the Bundesnetzagentur’s vision for a fair, transparent and pro-competitive migration process. The aim is for this rule-based process to start when certain conditions are met in a specific area. However, the Bundesnetzagentur needs additional instruments and broader legal scope to implement this. The regulatory approach builds on the discussion paper published by the Bundesnetzagentur in April 2025 and the key elements paper published by the Federal Ministry for Digital Transformation and Government Modernisation (BMDS) in October 2025 and presents concrete proposals for changes to the current legal framework.
The Bundesnetzagentur considers it crucial to achieve (virtually) nationwide fibre coverage and enable end-users to have a choice between different service providers in the fibre world too.
To create equal conditions in rollout competition and thus reliable investment conditions for the companies involved in fibre rollout, the copper network in an area should be switched off as soon as objective criteria relating to network coverage and wholesale offers are met in that area. What is important is that this happens irrespective of which network operator has rolled out fibre in the area concerned.
The consultation process initiated with the publication of the regulatory approach did not mark an end point but was designed to provide impetus for the ongoing discussions as well as concrete proposals towards developing expedient solutions for an overall regulatory approach as swiftly as possible as part of the next steps.
All stakeholders and other interested parties had the opportunity to comment on the regulatory approach until 16 March 2026.
Background: broadband coverage in Germany
In mid-2025, at least the preparatory infrastructural work had been completed for around 55% of all end-user connections. This typically means that there is a fibre network close to an end-user’s premises, usually up to the curb (“homes passed”). Approximately 21% of all end-user connections were fully equipped with fibre (“homes connected”). A substantial part of the fibre rollout is therefore still to come.
At present, end-user demand is mostly met using the existing copper network (VDSL), the existing TV cable network (HFC) and the new fibre networks (FTTH/FTTB), which compete with each other at the infrastructure level. The Bundesnetzagentur assumes that in the long term demand will be met using pure fibre networks. It will only be possible to provide the necessary bandwidths and speeds using fibre. Continued operation of the copper network will be economically unprofitable, and the copper network will ultimately be switched off. Fibre rollout and demand for fibre connections vary from region to region. It is still not clear when the copper network will be switched off in the first areas.