Guidance

UK transition from analogue to digital landlines: guidance for local authorities

Published 18 November 2024

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This publication is available at https://www.gov.uk/government/publications/uk-transition-from-analogue-to-digital-landlines-guidance-for-local-authorities/uk-transition-from-analogue-to-digital-landlines-guidance-for-local-authorities

1. Overview

This overview is aimed toward Chief Executives who can direct their Local Authority (LA) to take actions they deem necessary, while the following sections will be most relevant to individual teams within each LA.

By January 2027, most UK Communication Providers (CPs) plan to retire the analogue landline network and migrate customers to digital services that transmit voice over an internet connection (also known as Voice over Internet Protocol (VoIP) or All-IP telephony). This decision was announced by CPs in 2017, as the analogue network is increasingly unreliable and costly. Government and LAs must ensure continuity of services that currently rely on analogue telephony, particularly where these services are safety critical or used by vulnerable consumers.

The analogue network, also known as the Public Switched Telephone Network (PSTN), provides connectivity for devices beyond residential telephone communication. There are over 300 known use cases for the PSTN, including alarm systems, medical devices and monitoring equipment. The impacts of this transition will be widespread, both within residential and non-domestic settings that fall within LAs’ areas of responsibility or interest, affecting many different departments within LAs. While the telecoms industry decided to retire their PSTN networks by January 2027 at the latest, customer migration is already underway, and most users will therefore be migrated before January 2027. The Integrated Services Digital Network (ISDN), which also provides voice connectivity will be switched off by January 2027. This guidance uses PSTN as a catch-all term for analogue telephony.

The migration to digital will provide many benefits to users, but LAs need to act now to avoid losing function of critical devices and services.  LAs need to identify which of their devices/services rely on the PSTN and engage with the CPs that provide them, to plan the migration. This is particularly likely to affect, but not limited to: 

  • Telecare devices
  • Fire and security alarms
  • Specialist housing and care homes

This guidance was created by the Telecoms Modernisation Team in the Department for Science, Innovation and Technology (DSIT). It alerts LAs to the breadth and severity of impacts of the switch off and signposts steps that LAs could take to prepare. It does not provide an exhaustive list of devices/services that might be affected or prescribe specific solutions for each connectivity issue. Solutions are likely to differ between LAs depending on their circumstances. DSIT intends to regularly update this guidance to reflect the latest migration developments and learnings. If there is anything you would like to be included in future iterations of this guidance, you are welcome to contact DSIT’s Telecoms Modernisation Team at [email protected].

While this guidance focuses on the PSTN switch off, LAs should remain aware that the telecoms industry is also migrating users from 2G/3G to 4G/5G mobile networks over the coming years, concluding by 2033. LAs may save time and money by identifying their 2G/3G-reliant services/devices now and planning for migration, while auditing their estates for PSTN-reliant services/devices.

2. Impact on local authorities    

LAs rely on the PSTN for a range of critical services, for example telecare, traffic management, and fire alarms. While CPs can determine how many PSTN lines for which each LA is paying fees by examining monthly invoices, they will not know what each PSTN line connected to without direct engagement with LAs. There is therefore a risk that critical LA devices and services may lose functionality if LAs do not engage with their CPs to identify where they rely on the PSTN. Given safety-critical devices and services may rely on the PSTN, we urge LAs to identify the CPs that provide them with connectivity solutions, and seek these companies’ support to identify which services rely on the PSTN and how to migrate them.

Any financial costs of identifying LA devices/services that rely on the PSTN and implementing solutions fall to LAs themselves. That said, some CPs can offer support to audit PSTN lines and in some cases, they can offer like-for-like replacement devices and affordable interim solutions. We encourage LAs to audit their estates as soon as is practicable, so they can confirm budgetary decisions and identify cost-effective solutions before their services are migrated.

While the PSTN migration may present an upfront cost to LAs, some LAs that have begun the migration process have discovered opportunities to decrease costs and innovate their services. Some government departments and LAs have already identified and ceased PSTN lines that they no longer use, eliminating significant ongoing and increasing costs in fees paid to CPs. Some LAs may be able to partially offset the upfront costs of migration by ceasing the use of their unnecessary lines immediately. Further, some organisations have used their audits as opportunities to identify cheaper or more effective methods of delivering key services.

The sections below outline the most common known issues, and actions you can take to prepare for the migration.

Key recommendations for local authorities

1. Identify which CPs with whom your LA has contracts and to whom your LA makes payments
2. Contact your CP to identify whether they deliver connectivity via the PSTN
3. Where your LA is paying for PSTN lines, seek your CP’s support to audit the use of those lines and identify options to retain ongoing connectivity

3. Risks of the PSTN migration

3.1 Non-telephone devices using the PSTN  

A large number of devices and services rely on the PSTN for connectivity. Many of these are utilised, or even provided, by LAs. We outline the most common PSTN-reliant items in the shortlist below. A longer list can be found in Annex A - though this list should not be considered exhaustive.

  • Traffic management
  • Intruder alarms
  • Kiosks (retail, petrol)
  • Telecare devices
  • CCTV
  • Electricity monitoring devices
  • Gas monitoring devices
  • Water monitoring devices
  • Medical equipment
  • Transmitters
  • Chip and PIN machines
  • Lift lines
  • Test labs

Suggested actions

These actions are (in addition to recommendations above).

  • Appoint a project manager or Single Point of Contact (SPOC). The risks of the PSTN migrations impact all parts of a LA, so a successful response will require strong intra-Local Authority coordination and clear responsibilities. Where possible, having a designated person leading the programme will help to coordinate activities, monitor progress and share learnings.
  • Seek senior and political level buy-in. By proactively informing your LA’s leadership of the risks of inaction, you are more likely to receive support for a coordinated approach across the LA. An effective response to the PSTN migration depends on achieving a strong mandate from LA leaders to take an all-of-Local Authority approach.
  • Set up channels and forums to collaborate. Bringing together all affected departments reduces blind spots and provides an opportunity to share best practice. Affected departments may include adult social care; highways; flooding; estate management; risk management etc. Some LAs have had success by approaching the migration as a Business Continuity issue.
  • Build a migration plan. Understand the important dates, and work with CPs and other suppliers to build a migration timeline. Devices/services that are business critical or otherwise carry safety implications should be identified and migrated first. Some new solutions will not be a like-for-like replacement for existing applications; for example, it may be preferable to connect replacement services using an internet connected solution instead of a digital phone line.
  • Share good practice. Discuss challenges and learn from the approaches other LAs are taking. Join the Local Government Association’s (LGA) digital switchover working group which meets every 2 months, as well as your region’s working group meetings. Find out more about the LGA’s digital switchover working group here
  • Test your equipment as required. Some network operators, including Openreach and Virgin Media, run test labs where stakeholders (including LAs) can test the VoIP compatibility of their equipment across multiple providers and connections. Reach out to your CP to learn more.

3.2 Power resilience

While the PSTN switch off will make telephone communication more resilient overall, switching to VoIP reduces some power resilience among telecommunications services. This is because the PSTN carries a low voltage power connection directly from the telephone exchange, which is sufficient to power some basic corded handsets and other devices without needing to plug them into a power socket. This means that in the event of a local power cut, these corded handsets will continue to function provided that the telephone exchange still has power. Only corded phones have this capability - cordless landline phones need mains power to work[footnote 1], so they will not work in the event of a power cut at the property.

Digital landlines need a broadband connection to work, which means handsets and routers must be mains-powered constantly, and they will not function in a power cut unless there is a backup power system such as a battery or generator. This may also present challenges for devices in non-domestic settings that use the PSTN as a power source and do not currently have access to a power source locally, such as certain telemetry devices.

Telecoms companies are required by Ofcom to take all necessary measures to ensure uninterrupted access to emergency organisations for their residential customers, including in the event of a power cut. In 2018, Ofcom issued guidance on how telecoms companies can fulfil this regulatory obligation in light of the migration to digital landlines. The guidance was issued following a consultation with industry stakeholders and the general public, using data from Ofgem on the average length of power outages in the UK.

The guidance also states that providers should have at least one solution available that enables access to emergency organisations for a minimum of one hour in the event of a power outage in the premises. This should be provided free of charge to customers who are dependent upon their landline to make emergency calls in a power cut. The government has asked CPs to go further than this by offering best-in-class battery back-up solutions, which last for significantly longer than one hour.

For most residential customers, telecoms companies recommend using a mobile phone as a backup in case of a power cut. For consumers who do not have a mobile or live somewhere where there is no signal, their landline provider should offer them a solution, such as a battery back-up unit. This will mean that they can still make emergency calls during a power cut. If residential customers have additional needs or live in an area of poor connectivity, then they are advised to make their communications provider aware.

LAs may wish to further consider their power resilience requirements and capabilities. For example, consider whether there are important buildings, processes, services or devices where power resilience is paramount. LAs may wish to consider what ways suppliers and CPs offer power resilience or alternative connectivity in the event of a power cut.

Suggested actions:

  • Assess your power resilience requirements and capabilities. Assess which parts of your estate are particularly crucial and how they would be affected in a power cut.
  • Discuss power resilience and connectivity with your Communications Providers and suppliers. Understand how your devices and services will react in a power cut and any available resilience solutions.

3.3 Awareness raising and supported journeys

LAs are a trusted voice in local communities. You may wish to provide information locally about the migration to ensure the public are aware of what they need to do.

Some people require particular support. A person may need support because of challenges related to their health, physical state, mental state, financial situation, location or technological literacy. Some groups who rely on their landline for connectivity may not understand how to ensure that their landline gets correctly migrated.

Following the establishment of the PSTN Charter, DSIT collaborated with multiple stakeholders to reach a shared understanding of which customer groups require greater support from CPs. There is also a self-identification option for those seeking additional support. DSIT have published this agreed definition and information on how people can self-identity. LAs are well-positioned to engage with communities that require bespoke support through locations like lunch clubs and community and leisure centres, and may wish to encourage certain members to self-identify to their CP as requiring extra support (or identification on behalf of a vulnerable user).

Ofcom has General Conditions in place to ensure that providers give sufficient consideration to the particular needs of people with disabilities and people who may require support. For the migration specifically, Ofcom expects providers to assess customers’ needs and offer help with migration if necessary.

LAs may consider engaging their chambers of commerce to ensure that local businesses are aware of the migration and have a forum in which they can discuss solutions. CPs are expected to communicate with their business clients, as well as their regular consumers, about the PSTN switch off. However, businesses may approach their LAs and chambers of commerce for information and advice because they will view chambers of commerce and LAs as neutral parties, without commercial interests in how businesses respond.

There are significant amounts of available collateral LAs can use to actively raise awareness. In particular, the Local Government Association (LGA) has prepared a Digital Switchover Partner Toolkit for LAs and partners to use. The toolkit contains assets aimed at residents to raise awareness of the switchover.

Suggested actions:

  • Consider if you would like to work actively to raise awareness.
  • Discuss with your Communications Provider. They should be able to provide additional information, such as when they plan on conducting residential migrations in your area. Some CPs may also offer data sharing agreements, whereby LAs and CPs can collaboratively identify customers that require support and design suitable connectivity solutions.
  • Consult existing material and get information on best practices. The LGA’s digital switchover hub and Local Government Digital Switchover Working Group may be good places to start.

3.4 Security and fraud

One of the many benefits of modernising the UK’s telecommunications network is that updated devices and services provide increased security and protection for consumers. For example, the PSTN switch-off is an opportunity to tackle the use of Calling Line Identity (CLI) spoofing which is central to many attempts of telecoms fraud, such as phishing attempts. VoIP technology offers the opportunity to introduce new identification protocols that verify the caller ID of anyone making a call, which will limit impersonation attempts. As such, the PSTN migration will decrease telecoms fraud over the long-term.

As you engage with your residents about the migration, be mindful that some criminals have used the PSTN switch off to initiate scams. These criminals have impersonated communications providers or other suppliers and asked consumers or businesses for money to migrate their services. The Local Government Association (LGA) notes that criminals are also impersonating local government officers to gain access to residential homes.

We encourage all LAs to be vigilant and report suspected scam attempts to their local trading standards team in the first instance, and to the National Trading Standards Scams Team who can then undertake enforcement action. LAs can report scam cases to [email protected].

VOIP allows calls to go through a broadband connection rather than a separate analogue phone system. Most calls will use secure “PSTN replacement” networks provided by CPs, which are protected from the public internet. However, some calls may be routed over the wider Internet, making them potentially vulnerable to interception. However, VoIP can be secured using basic cybersecurity methods and good practice, similar to other policies and practices to protect important data that likely exist for your LA.

Suggested actions:

  • Consult your IT experts regarding the configuration of replacement solutions for PSTN-enabled devices and services. Follow existing NCSC principles for establishing secure communication services.
  • Engage CPs and other suppliers to discuss the security of new services. The telecoms industry has already established standards to effectively limit any cybersecurity risks associated with digital voice calls.
  • Ensure frontline staff are aware. Train staff and ensure they are aware of the switchover and understand how to report concerns.
  • Be vigilant against scam and fraud attempts. Speak to your Communications Providers and suppliers about how they will identify themselves; report anything suspicious to the police.
  • Consider communicating the risk of scams to citizens and local businesses. You may wish to use local communications channels to raise awareness of the switch-off and to ensure consumers and businesses understand the migration process. We recommend focusing on those who may be targeted by criminals, such as the elderly, and to use language which reflects the criminal nature of the issue. LGA’s guidance about scams provides a good overview.

3.5 Mobile coverage and 2G/3G switch-off

Some devices and services rely on 2G or 3G mobile connectivity as a means of providing connectivity, either as a primary solution or as a backup. For example, smart energy meters, some telecare devices and some critical national infrastructure rely on a 2G/3G connection. If these devices lose function as 2G/3G networks are retired, impacts could be highly disruptive.

The UK’s mobile network operators (MNOs) have confirmed to the government that they do not intend to offer 2G/3G mobile networks past 2033 at the latest, with the last 3G network being closed by the end of 2025.EE and Vodafone already retired their 3G networks, while Three and VMO2 are expected to fully retire their 3G networks by the end of 2025. None of the MNOs have yet switched off 2G, but VMO2 has announced that it is deactivating roaming on its 2G network by the end of 2025. Each of the MNOs have set out advice to their customers on their websites on 3G switch off plans including setting out how customers can prepare for the switch-off, along with what support is available for consumers that require it. We expect other MNOs with 2G networks to start making plans to switch them off now that they have retired their 3G networks.

While the switch off timings and processes are decided by individual MNOs, Ofcom wants to ensure that customers are treated fairly and can continue to access the services they need. In their 3G and 2G switch-off: Our expectations of mobile providers document, originally published in February 2023, Ofcom set out several expectations of the MNOs, including communicating with, and providing support to, customers well ahead of their legacy networks being retired.

Suggested actions:

  • Awareness raising. The 2G/3G switch-off may not be widely known. Consider using internal communications channels to ensure preparations are in place ahead of the mobile 2G/3G switch-off and explain the relationship between the PSTN migration and the mobile switch-off programmes.
  • Discuss connectivity with your Communications Providers and suppliers. Identify your 2G/3G devices/services and understand options for migration.

4. Government response

The government’s strategic response to the PSTN migration focuses on (1) increasing awareness across government and industry of the PSTN migration risks, monitoring progress and gaps, (2) connecting stakeholders to enable information sharing and collaboration, and (3) working with regulatory authorities to ensure industry is migrating customers safely.

Key government actions to date:

  • DSIT has agreed 2 telecoms charters with Communications Providers and Network Operators through which companies have agreed to provide additional support and protection for vulnerable consumers.
  • Ofcom has established an incident reporting framework whereby industry is required to promptly report serious consumer incidents directly, enabling them to monitor the nature and volume of incidents.
  • DSIT holds regular cross-government roundtables in which government departments, devolved administrations and Communications Providers share updates on migration progress.
  • DSIT have published the Supported Journeys definition, agreed to by CPs, which defines the groups of people to whom CPs must provide extra support and protection through the migration process
  • Department for Health and Social Care (DHSC) will soon publish a Telecare National Action Plan (TNAP), which focuses on setting out actions that support all relevant and impacted stakeholders to engage proactively to achieve a shared goal of safeguarding telecare users during the transition’.

DSIT is also part of regular government and industry working group and board meetings for sectors including, but not limited to, fire and security, health and social care, critical national infrastructure, energy and power resilience, and local government.

5. Devices and services impacted by the PSTN retirement

This section sets out the specific devices and services impacted by the PSTN retirement that LAs are likely to want to consider.

(Select a service or device for further information).

5.1 Telecare

Telecare (also known as ‘teleheathcare’) devices typically take the form of a pendant with a button that the user can press in the event of a fall or emergency, but they can sometimes operate differently and provide other services. The devices connect to an alarm receiving centre (ARC) enabling emergency services to be called. There are an estimated 2m telecare users in the UK.

Some analogue telecare devices reliant on the PSTN will not work reliably over a digital landline, and therefore only telecare devices shown to be compatible with a digital landline should be used, or digital telecare devices (which communicate using Internet Protocol (IP) signalling), to continue to function.

Some telecare devices are also reliant on roaming SIMs and some may be reliant on 2G/3G networks. With telecoms companies in the process of phasing out 2G/3G networks in the UK, LAs should ensure that both PSTN reliant and 2G/3G reliant telecare devices are upgraded.

In addition to the digital switchover working group mentioned earlier, the LGA manage a mailbox which manages queries regarding the digital switchover and telecare. This can be found at: [email protected]

Suggested actions:

  • Consult the LGA’s digital switchover checklist. This includes;
    • Auditing your existing services. Ensure that you have accurate and current data on the scope of your existing service to understand the switchover’s impact and support planning.
    • Communication and engagement with service users. Consider how you will communicate with service users on the potential impacts of telecare and the potential for scams.
    • Monitoring of existing services including where failed calls are seen at the ARC, failures in telecare equipment.
    • Determining how new telecare equipment will be sourced to ensure that analogue telecare devices are upgraded. Consider what procurement routes are available, what is the service specification and what arrangements are needed with the move to a digital service.
  • Put in place a data sharing agreement with CPs to support identification of telecare users. LAs are asked by communications providers to share the phone numbers and type of device for clients that require more support. To support LAs to do this, the LGA and the London Office of Technology and Innovation (LOTI) have produced a data sharing agreement template and a data protection impact assessment.

5.2 Fire alarms

Like telecare devices, fire alarms could fail to signal emergency services if they are not properly migrated. Fire alarms are either monitored or unmonitored. Unmonitored’ fire alarms activate when triggered and produce an alert, usually in the form of a siren as a prompt to evacuate the building, but they do not alert external organisations. ‘Monitored’ alarms are connected to, and monitored by, Alarm Receiving Centres (ARCs). ARCs are responsible for responding to activations from alarm systems. Many monitored alarms connect to ARCs via the PSTN.

Losing the function of monitored fire alarms in January 2027 could have serious consequences. After the PSTN is switched off and depending on the devices being used, the signal sent from PSTN-dependent fire alarms may (i) not be sent at all, (ii) be stopped, delayed, or corrupted along the communication path, and/or (iii) reach the ARC but in a form such that the ARC’s software cannot interpret the information the signal contains. This means that temporary solutions installed at the premises may not send interpretable signals to ARCs without upgrades to ARC software platforms.

Suggested actions:

  • Audit your estate for alarms. Understand where alarms are installed; who the supplier is, which models are used, with whom the responsibility lies; and whether the alarms are still required.
  • Engage with your alarm supplier. Understand how their service provision and the interoperability between the alarms and ARCs may be impacted by the PSTN migration.

5.3 Intruder alarms

Other alarms are also at risk of losing function as the PSTN is switched off. Intruder alarms can also be monitored or unmonitored alarms. Unmonitored alarms produce an alert, such as a siren, when triggered.  When monitored intruder alarms are triggered, they contact a keyholder and the police, where a police response is part of the agreed service. For a response to be triggered, the police require alarm confirmation – this is when further evidence of an intrusion occurs, for example passing a further alarm signal, or audio or visual confirmation.

Suggested actions:

  • Audit your estate for alarms. Understand where alarms are installed; who the supplier is, which model is used, who the responsibility lies with; and whether the alarms are still required.
  • Engage with your alarm supplier. Understand how their service provision and the interoperability between the alarms and ARCs may be impacted by the PSTN migration. More information is also available through the British Security Industry Association (BSIA), the trade association for the professional security industry in the UK: https://www.bsia.co.uk/

5.4 Lifts

Every lift has an alarm, usually a button that connects to a rescue service via a pre-programmed phone number. It works by using an auto-dialler – a piece of hardware that sits on top of the lift car and is plugged into the phone line using a master socket. The rescue service is often run by the lift company – although not always – and both the lift company and the lift owner have different responsibilities.

The migration of PSTN lines may cause lift alarms to stop working. As the industry changes to VoIP technology, the lift maintenance companies, the lift owners, and Communications Providers will have their parts to play to ensure that lifts maintain function and it is vital that everyone knows their responsibilities.

Suggested actions:

  • Audit your estate for lifts. Understand how many you have; where they are situated; the relevant provider; and their model.
  • Identify and speak to your lift provider. Understand the connectivity solutions for your lifts; whether a back-up solution is required; and any other complications (such as if your lifts are situated in areas with poor mobile reception).
  • Plan for procuring replacement services. We have received anecdotal information that there is a shortage of equipment and skilled lift engineers; build in contingency plans to your timeline.

5.5 Door entry systems

Door entry systems, also known as access control systems, are designed to regulate access to restricted areas, allowing only authorised personnel access into a given space. There are various kinds of door entry systems, ranging from keypad door entry systems to biometric door entry systems.

Door entry systems and intercoms have traditionally run on analogue phone lines. Modern systems that already run on VoIP lines will be unaffected by the PSTN switch off - however, older intercoms connected to analogue lines will stop working; as such, all live door entry systems using PSTN lines will require adaptation or replacing.

Suggested actions:

  • Audit your estate for door entry systems. Understand where door entry systems are installed; identify the supplier and which model is used; and confirm whether the systems are digital or analogue.
  • Depending on the age of the device and the contract you have with your service provider, there may be three options available:

1. Switch devices to an IP mode, if available;
2. Speak to your service provider about adapting any existing devices to digital lines. An example of how to do this would be to use an Analogue Telephone Adapter (ATA) to convert analogue device signals into digital;
3. Upgrade to a VoIP intercom system (if devices need replacing, bear in mind that 2G/3G services will also have a limited life span)

If in doubt, contact your service provider for more information on the operating parameters of your devices.

5.6 Fax machines

Traditional fax machines use modems to transmit and decode signals over the analogue lines of the PSTN. After the January 2027 migration from PSTN to VoIP concludes, traditional fax machines cannot be guaranteed to work.

In addition to this, Parliament agreed at the start of 2023 to remove fax services from the Universal Service Order (USO), meaning there is no longer an obligation on BT and KCOM to provide fax services.

Ofcom has indicated that a number of alternatives to fax are available including email, picture messaging, document management platforms, online secure file transfer services, and electronic signature services.

There are also alternative fax services that will continue to work after the PSTN switch off. Digital cloud fax services allow you to send and receive faxes using a method whereby documents are sent over the internet, instead of a traditional phone line. This may be an option that enables you to retain fax services after the switch off.

Suggested actions:

  • Audit your estate for fax machines. Understand how many you have; and if anyone in your organisation relies on them.
  • Speak to people within your organisation. If there are people within your organisation who do still rely on fax, ensure they are aware of the PSTN switch off and any available replacement for traditional fax.
  • Plan for procuring replacement services. As noted above, there are a number of available replacements for traditional fax, whether internet-based fax services or otherwise. You should identify any business need for fax and work to identify a suitable alternative.

5.7 Contactless payment systems

EPOS (Electronic Points of Sale) systems work together with card machines (sometimes referred to as PDQs) to create a functioning payment system. Hundreds of thousands of business owners across the UK depend on this system to fulfil sales and ensure the smooth running of their businesses. If your EPOS and/or your card machine is connected to your landline phone line, it may be impacted by the PSTN switch off.

Some care settings, including day centres and care homes, also have payment systems for food and other services such as hair dressing. In addition, some LAs may take card payments at non-social care settings such as in leisure centres or to collect Council tax.

Whether your payment system continues to work after January 2027 depends on whether it is connected to traditional PSTN lines or utilises a digital phone system.

Suggested actions:

  • Audit your payment system. Understand how it works, how it can be upgraded or replaced. Speak to your provider if you are unsure.
  • Consider alerting partners and business representatives. If you attend local business forums or similar, you may wish to raise awareness of the PSTN migration and its effect on payment systems to private-sector partners and business groups.

5.8 Remote monitoring and telemetry devices

Telemetry systems sense, collect and measure data from remote devices. Data collected is then transmitted from remote devices to a central control point, which allows the remote systems to be controlled.

Any telemetry equipment which relies on the PSTN for the transmission of data will no longer function correctly after the January 2027 switch off and you will therefore need an alternative.

Suggested actions:

  • Audit your estate for telemetry systems. Understand how many telemetry devices you have; where they are situated; and whether they are connected to the PSTN.
  • Identify and speak to your provider. If you need the device to operate 24/7, including during any power outages, you’ll need to ensure that they have their own battery and network backup. The best way for you to check this is to call your device provider and speak with them directly.
  • Engage with your provider to upgrade or procure replacement systems. It may be the case that existing systems can be adapted or upgraded so they continue to function after the switch off. If not, digital replacement equipment should be put in place before the switch off to ensure non-disruption of services. The best way to do this is to speak directly with your provider.

5.9 Specialist housing

There are numerous ways in which specialis housing providers may be impacted by the January 2027 PSTN migration. For example, alarm devices in sheltered and supported schemes may need to be changed; small telephone systems in remote offices, for example on schemes, will need replacing; lifts will need to be checked to ensure emergency alarms are digitally compatible; and intercom systems or access systems may need to be replaced. It is also important to check whether your office telephony services (including fax and franking machines) will be impacted, or whether they have already been migrated.

Suggested actions:

  • Set out a plan for migration. Start by understanding what phone lines you have now; where they are located; what they are used for; and what the upgrade options are. A “top-down” approach to prioritise business & safety critical services may be advisable to ensure no essential services are negatively impacted.
  • Understand your options. Generally, the available options are a) to upgrade the service/device to one which uses a digital phone line, b) to replace the device with natively digital equipment which does not rely on a phone line whatsoever, c) to change to a solution which utilises mobile telephony - bearing in mind the upcoming 2G and 3G switchover - or d), to cease the service entirely.
  • Share knowledge and best practice. Building a culture of sharing solutions with other Housing Associations or providers of social housing will lead to a more effective migration, without each individual provider having to individually figure out connectivity solutions for all use cases.
  • Consider communications with residents and raising awareness of the implications of the migration and the importance of residents informing their telecoms provider if they have a telecare alarm or any additional needs.

5.10 Care homes

Communications technology is vital in care home settings. The PSTN switch-off could impact on many use cases in addition to telecare devices, including internal and external communications; security; and alarms. Furthermore, care homes that have specific set-ups, such as specific telephony solutions across the site or cord pull alarms in bathrooms will need to be considered. It is also important that ARCs are prepared to monitor the signals sent by alarms in care homes.

Suggested actions:

  • Coordinate migration plans wherever possible. A joined-up response across a care home (or multiple, if possible) increases the possibility for systems that can easily integrate and communicate with each other, and minimises duplication of effort. For example, there are solutions which enable warden call and access control systems to use integrated systems.
  • Consider future connectivity needs. The process of replacing incompatible devices can also be an opportunity to consider innovative technology when it comes to supporting care homes more broadly.

5.11 Schools

Education establishments will need to ensure that where their sites have infrastructure and equipment currently using PSTN, these services are - switched to a digital or mobile technology. This includes the call management system which enables contact within the school as well as with parents and other external contacts.

Other ancillary devices that are important for students and staff. For example, schools may find lifts, alarms, fax machines, intercom/access systems, and vending machines affected by the switch-off. Any service that has a safety or security function such as alarms and lifts should be on a separate circuit to the VoIP system and should use a mobile solution as a replacement to PSTN.

Suggested actions:

  • Identify each stakeholder’s role. LAs should discuss their respective roles and responsibilities in the migration with their education establishments. All stakeholders will need to collaborate to identify the required steps to ensure they are prepared for the PSTN migration.
  • Convene schools via a working group/forum. Use an official forum or working group to convene school and nursery representatives in your LA. This forum can be used to track the progress of schools in their transition, monitor major risks and share best practices.
  • Understand the scale. Education establishments will need to assess their infrastructure; this can be done through audits/inspections. The PSTN is connected to various items such as lifts, alarms, CCTV, fax machines and payment machines. Providers of PSTN lines can conduct an audit to identify what will function following the transition to VoIP.

5.12 Traffic management

Many local highway authorities are also Highway Authorities, with powers under the Highways Act 1980 and other legislation for the operation of highways in their areas, (excluding the strategic road network operated by National Highways) for the provision of a safe and efficient network for road users. This may include the provision and maintenance of various forms of equipment, including traffic signals, CCTV, counting and detection systems, variable message signs and selective priority systems. Such equipment has been in use in various forms since the 1960s, and over the years has increasingly been linked to central control and operation centres. Traditionally, this made heavy use of the PSTN network.

Many services have moved away from the PSTN network; however, there are still a significant number of analogue services, or digital services overlayed on analogue circuits still in operation, with around a third of local highway authorities still using PSTN services for between 25% and 100% of their remote-site communications. While it is now uncommon for major sites such as critical traffic signal junctions to be connected by analogue services, remote sites and those that are communicated with less frequently may well still use this technology. This particularly affects Remote fault Monitoring Services (RMS), and standalone loop-based detection systems.

Many solutions exist for the migration of analogue communications still in use to modern digital communications. Most local highway authorities have been working towards fully digital estates both through the specification of new systems as digital and through the upgrading of existing services. The Department for Transport (DfT), is able to support local highway authorities in this process;

  • The DfT sponsored Transport Technology Forum (TTF) (www.ttf.uk.net) offers a wide range of support and learning, events and guidance based on real-world learning and DfT policy support.
  • The DfT, through the TTF, has recently awarded £30 million through the Traffic Systems Obsolescence Grant to local highway authorities to address outstanding obsolescence issues, including the use of legacy communications technologies. Experience and best practice gained from this process will be shared through the TTF.
  • The United Kingdom Roads Leadership Group (UKRLG - https://ukrlg.ciht.org.uk/) offer a wide range of guidance to highways authorities, including a Code of Practice for Management of Electronic Traffic Equipment. Although released in 2011, this will be updated by the end of 2024.

Suggested actions:

  • Identify the lead in traffic management. Find the responsible official for traffic management and ensure they are aware of the PSTN migration.
  • Seek your LA’s participation in the DfT sponsored Transport Technology Forum. This forum is sponsored by DfT and offers a range of support for LAs in relation to traffic management issues.

6. Case studies

6.1 Wiltshire Council – Migrating PSTN lines in Salisbury

Background

In December 2020, Openreach started to trial moving customers to full-fibre and VoIP services in 2 cities, Salisbury and Mildenhall. This placed Wiltshire Council in a unique position to be one of the first councils to transition all its residents.

Simon Pollen, Information and Communication Technology (ICT) Project Manager from Wiltshire Council agreed to share his experience in navigating the migration.    

One key issue with the identification of network lines, and more importantly what they represent in terms of a service provision, is that they are generally classed as solely the responsibility of the ICT team. In the majority of the cases this is simply not true.

As detailed in this guide, the uses of network lines extend to a wide variety of solutions such as Alarm Lines, Air Monitoring, Prescribed Telecare, Card Payments, Lift Lines, Traffic Signals etc. These solutions will inevitably span most of the departments in an authority so the recognition of this, and the ownership of the issue at a centralised level, is vital to a successful rollout of revised solutions.

When Wiltshire Council was nominated to be a pilot in the Salisbury area, for the transition of analogue/PSTN lines over to a revised solution, the first step taken was to get the Emergency Planning team to own the initial risk, classify the impact as best as they could and to alert the senior leadership team. Issues raised by this team are known to have a significant impact on service delivery, so they are given the appropriate priority and get the right attention at a senior level. I was assigned from an ICT project team to be a point of contact so that we could understand the scope of the work and shape the delivery.

We met as a group, including key stakeholders and major suppliers, to clarify the possible impact to services and charge the respective directors with disseminating the message down within their areas and to get teams to contact me so that I could log the potential impacts and understand the higher risks.

This allowed us to plan out our response, which included the decision to send out messaging to the community allowing us to inform them of the change and potential impacts but also to carefully NOT take full responsibility of a change that we did not fully control. In addition, we gave a higher priority to services provision that could risk loss of life if they failed, such as telecare lifelines. We managed the change through timely engagement with the business teams, to not only fix the affected area, but to also build into their annual plans the work to resolve all the other solutions around Wiltshire.

At this stage, and as this guide proves, many existing services will likely have an alternative solution to a legacy line to mitigate the problem, often as a low-cost sim-based data provision rather than a more costly fibre replacement, so check in with your business areas to engage with providers at the earliest opportunity for alternative options.

7. Resources: websites and guides

General information

Non-telephone devices using the PSTN

Security and fraud

Power resilience, mobile coverage, and 2G/3G switch-off

Telecare

Transport

Alarms

Lifts

Awareness raising and support journeys

Annex A

Additional use cases

The list below contains some of the known devices or services which often utilise the PSTN network for connectivity. It should not be considered exhaustive and we still recommend that LAs conduct a thorough audit of its phone lines, where you are likely to find additional use cases to the ones listed below.

  • Air Con Units
  • ATM
  • Bus Stops
  • Car Parks (including lifts, CCTV and alarms)
  • CCTV
  • Door Entry systems
  • Electronic Points of Sale (EPOS)
  • EV Charging
  • External Bells
  • Fax
  • Fire Alarms
  • Flood Monitoring
  • Franking Machines
  • Intruder Alarms
  • Lift Alarms
  • Medical Equipment
  • Printers
  • Railway Level Crossings
  • Road Signs
  • School Security
  • Shop 3rd party terminals
  • Smart Meters
  • Telecare
  • Traffic Lights
  • Train Station Call Points
  • Utility Monitoring
  • Vending Machines

  1. The handsets have batteries, but the ‘base station’ in the property that connects to the phone line needs mains power. ↩

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