• Rwanda plans phased shutdown of 2G, 3G networks

• Shift to 4G, 5G under 2024-2029 digital strategy

• Transition raises concerns over affordability, rural access, device readiness

Rwandan authorities are preparing to phase out 2G and 3G mobile networks to accelerate broadband rollout and adoption as part of the country’s broader digital transformation.

On March 26, ICT and Innovation Minister Paula Ingabire met device importers and private-sector stakeholders to discuss how the transition will be implemented. The aim was to ensure the process remains inclusive and that all Rwandans can access handsets compatible with 4G and 5G networks.

A transition anchored in national strategy

The shift to 4G and 5G forms part of the ICT Sector Strategic Plan 2024–2029, which outlines the country’s digital transformation roadmap. In November 2024, the government, in partnership with Germany, sought expressions of interest for a technical assessment of the phased shutdown of 2G and 3G networks.

The study aims to assess infrastructure readiness and the broader technology ecosystem. It will also examine the cost of maintaining legacy networks, the gradual withdrawal of manufacturer support, and rising security and compliance risks.

It will further evaluate the impact on network coverage, particularly in rural areas, and whether 4G and 5G can provide reliable, affordable and inclusive connectivity nationwide.

Economic factors are also under review, including changes in average revenue per user (ARPU), potential revenue losses for operators, user migration conditions, handset affordability, pricing dynamics, competition, and regulatory and energy-efficiency constraints.

Telecom operators in Rwanda have already started preparing. Airtel Rwanda said in December 2024 it plans to phase out 3G by the end of 2025 and 2G by 2026, in line with global trends and national broadband ambitions.

Emmanuel Hamez, then chief executive of Airtel Africa’s Rwandan unit, said the transition was both necessary and inevitable, with the operator investing in a modern network to support a more connected, digital economy.

Rising demand makes transition unavoidable

Demand for high-speed connectivity is increasing rapidly, while 3G is no longer sufficient for many data-intensive applications. Authorities say the transition is needed to keep pace with global trends and the growing use of data-driven services, while reducing reliance on traditional voice networks.

Rwanda aims to use newer technologies to narrow the digital divide, improve service quality and support a more inclusive digital economy. The National Broadband Strategy highlights broadband access as a key driver of productivity, innovation and job creation.

Across sub-Saharan Africa, many operators still maintain 2G networks to serve users without smartphones, support voice services in underserved areas and deliver SMS. Globally, however, operators are phasing out 3G, and in some cases early 4G, to free up spectrum for more advanced 4G LTE and 5G services.

The World Bank says retiring legacy networks can improve investment efficiency in Africa by enhancing coverage and service quality. Maintaining these networks is seen as an inefficient use of capital, given their lower ARPU compared with 4G and 5G. Shutting them down also frees up spectrum for faster and more reliable technologies.

Persistent digital inclusion challenges

Despite the expected benefits, the transition raises concerns about digital inclusion. According to the International Telecommunication Union, 2G and 3G covered 98.8% of the population in 2024, a level similar to 4G. While the coverage gap is limited, disparities may persist in rural or remote areas where newer networks remain uneven.

Adoption remains another challenge. Mobile broadband subscriptions accounted for 54% of the population in 2024, indicating incomplete uptake. Access to compatible devices remains a key barrier. Smartphones were owned by only 45% of the population. Data costs, digital literacy and the availability of relevant content also constrain usage.

In addition, 2G and 3G still support certain machine-to-machine applications, including payment terminals, ATMs, smart meters and some industrial and transport systems. It remains unclear whether these users can transition smoothly to reliable alternatives.

Isaac K. Kassouwi