The government has got it into its head that it needs to set a deadline for when mobile operators must switch off their legacy 2G and 3G networks. It doesn’t, and doing it is not helpful.
Former communications minister Khumbudzo Ntshavheni initially suggested June 2024 — this month — for shutting down 2G mobile infrastructure, with the termination of 3G to follow in March 2025.
Late last month, her successor, Mondli Gungubele, set a new “preliminary” deadline of December 2027 to shut down both. That date is more sensible, but it still isn’t required. No, it’s the operators, not the government, that should decide when to pull the plug.
For decades, South Africa has used a technology-neutral approach to spectrum licensing. This means Vodacom, MTN, Telkom, Cell C, rain and others can use spectrum assigned to them to deliver services using technology of their choosing.
This is right: if the regulator or the government were to mandate that they use a specific technology in a certain frequency band, very little innovation would happen. But in the current environment, where they aren’t dictated to, they are free to use their spectrum assets in ways that make most commercial sense.
Under Gungubele’s plan:
- The Independent Communications Authority of South Africa (Icasa) must stop approving 2G- and 3G-only devices by no later than September 30 2024. This makes sense, but only if 4G and 5G handsets can be made more affordable for the poor.
- Network operators, in turn, must stop activating 2G- and 3G-only devices by December 31 2024, meaning that from January 2025 no devices that are not capable of at least connecting to a 4G network may be added to their networks. Again, OK.
- Network operators must then start with a shutdown of their legacy 2G and 3G infrastructure from June 1 2025. This is not helpful.
- A total shutdown of 2G and 3G networks must be completed by no later than December 31 2027. Also not helpful.
So, there is a role for the government in encouraging the adoption of more modern technologies. But setting deadlines for switching off networks is not it. Instead, the communications minister should focus on:
- Creating a policy environment that supports technological advancement through the rapid licensing of spectrum bands identified globally for broadband services.
- Working with Icasa to ensure these bands are cleared for this purpose.
- Reducing or scrapping import taxes on smartphones so that they become more affordable for the millions of consumers who still rely on older handsets that support only 2G or 3G.
Many embedded systems need 2G, and forcing a shutdown could prove hugely disruptive in sectors such as mining, security and agriculture
Nomvuyiso Batyi, CEO of the Association of Comms & Technology — an industry body that represents the major operators — has argued that a state-directed approach to shutting down legacy technologies is not warranted.
Instead, she has argued, sensibly, that the government should take a “more supportive and enabling role to allow for an industry-led transition”. Imposing deadlines runs “contrary to the successful transitions seen in other markets”, she says. “It is not enabling, as it does not accommodate the realities of the consumer market and the risks to communities and businesses that still rely on the older technologies and need time and assistance to prepare for the transition.”
Consumers aside, many industries are dependent on these legacy networks, especially the older 2G system. Many embedded systems need 2G, and forcing a shutdown could prove hugely disruptive in sectors such as mining, security and agriculture.
It may actually make sense to keep 2G networks operational well into the 2030s, but to reduce the scarce radio bandwidth they need to a sliver of spectrum.
Operators that can move to newer technologies are already doing so: Telkom has shifted exclusively to 4G and 5G, but it’s only been able to do that because it launched mobile services much later than its rivals. It had few 2G and 3G handsets on its network, making it relatively easy to pivot to modern mobile carriers.
Ironically, it may make sense for Vodacom and MTN to terminate 3G before they switch off 2G, as doing so would cause much less disruption: 3G never became as entrenched as 2G, which has been around since 1994.
It is encouraging that the government wants to move South Africa forward technologically. And there is plenty it can do to help grease the wheels of progress. But imposing deadlines on the industry doesn’t help. The operators should be left to decide themselves when the right time is to consign their 2G and 3G networks to history.
* McLeod is editor of TechCentral
Would you like to comment on this article?
Sign up (it's quick and free) or sign in now.
Please read our Comment Policy before commenting.