Telecommunications (Mobile Network Coverage Maps) Industry Standard 2026

Administered by Department of Infrastructure, Transport, Regional Development, Communications, Sport and the Arts

Legislation au F2026L00381 In force Legislative Instrument

Legislation content

EXPLANATORY STATEMENT

Approved by the Australian Communications and Media Authority

Telecommunications Act

Telecommunications (Mobile Network Coverage Maps) Industry Standard 2026

Authority

The Australian Communications and Media Authority (the ACMA) has made the Telecommunications (Mobile Network Coverage Maps) Industry Standard 2026 (the Standard) under subsection 125AA(1) of the Telecommunications Act 1997 (the Act) and in accordance with sections 5, 6 and 7 of the Telecommunications (Mobile Network Coverage Maps) Direction 2025 (the Direction).

Under subsection 125AA(4) of the Act, the Minister for Communications (the Minister) has the power to direct the ACMA to:

  1.            determine a standard under subsection 125AA(1) of the Act that:
    1.           applies to participants in a specified section of the telecommunications industry;
    2.           deals with one or more specified matters relating to the activities of those participants; and
  2.            do so within a specified period.

The Direction was given to the ACMA by the Minister under subsection 125AA(4) of the Act and commenced on 13 December 2025. The explanatory statement for the Direction states that the Direction requires the ACMA to determine an industry standard under subsection 125AA(1) of the Act that deals with the way mobile coverage maps are prepared and presented by the providers of certain telecommunications services, to ensure comparability, to provide clear and useful information about each such service that can be reasonably expected in a given geographical area, and to capture different network technologies and platforms.

The Standard meets the requirements, and gives effect to the objectives, in sections 5, 6 and 7 of the Direction. In accordance with subsection 5(2) of the Direction, the Standard was determined no later than 31 March 2026 and commences in full no later than 30 June 2026. 

Purpose and operation of the instrument

Background

Mobile network coverage maps are an important source of information for consumers choosing mobile services and for understanding service availability across Australia. However, current industry practices vary significantly. Differences in modelling approaches, underlying assumptions and presentation conventions mean that coverage maps are not directly comparable between mobile network operators (MNOs). This weakens the usefulness of coverage maps for consumers and undermines broader policy goals, such as improving transparency and supporting informed choice. The Direction and, consequently, the Standard seek to address these issues by requiring MNOs to adopt a consistent approach to modelling and presenting coverage.

Consumer experiences with the 2024 switch-off of 3G networks in Australia, recent Triple Zero outages and the 2024 Regional Telecommunications Review, have highlighted the limitations of current practices and the need for accurate and comparable maps. These limitations were recognised in the explanatory statement for the Direction.

In developing the Standard, the ACMA had regard to:

  • the objectives set out in the Direction
  • the findings of the National Audit of Mobile Coverage
  • international approaches to mobile coverage mapping
  • Australian industry practice
  • feedback received during consultation on the draft Standard.

Purpose and operation

The purpose of the Standard is to give effect to the objectives set out in subsection 7(1) of the Direction by establishing consistent requirements for the preparation and publication of mobile network coverage maps for Relevant Mobile Telecommunications Services (RMTS).

The Standard is intended to improve the comparability, clarity and usefulness of mobile coverage maps published by MNOs and mobile virtual network operators (MVNOs), so that consumers, emergency services organisations (ESOs) and other stakeholders can better understand the outdoor mobile coverage that can reasonably be expected in different geographic locations in Australia.

The Standard gives effect to the objectives set out in the Direction by:

  • requiring MNOs to prepare mobile coverage maps using a predictive coverage modelling methodology with standardised modelling assumptions, including parameters relating to receiver characteristics, propagation environment and mapping resolution;
  • establishing a consistent set of coverage level categories and descriptions (good, moderate, basic and no coverage) with defined signal-strength thresholds for 4G and 5G RMTSs;
  • mandating caveats to be published alongside maps, explaining key factors that influence mobile connectivity and the limitations inherent in predictive coverage modelling; and
  • ensuring published maps are accessible and comply with the Web Content Accessibility Guidelines (WCAG) 2.2 service level AA or AAA. 

The Standard also requires MVNOs, which rely on host networks to provide RMTSs, to publish coverage maps that accurately represent the coverage available to their customers. MNOs must provide the coverage maps to the MVNOs that use their networks.

The Standard also requires that the geospatial data that underpins the coverage maps prepared under the Standard, be capable of being extracted by ESOs and other specified organisations for analytical purposes. 

The Standard is a disallowable legislative instrument for the purposes of the Legislation Act 2003 (the LA), and is subject to the sunsetting provisions in Part 4 of Chapter 3 of the LA.

A provision-by-provision description of the Standard is set out in the notes at Attachment A.

Documents incorporated by reference

Subsection 589(1) of the Act provides that an instrument under the Act may make provision in relation to a matter by applying, adopting or incorporating (with or without modifications) provisions of any Act as in force at a particular time, or as in force from time to time.

Subsection 589(2) of the Act provides that an instrument under the Act may make provision in relation to a matter by applying, adopting or incorporating (with or without modifications) matter contained in any other instrument or writing as in force or existing at a particular time, or as in force or existing from time to time, even if the other instrument or writing does not yet exist when the instrument made under the Act is made.

 

The Standard incorporates all or part of the following Acts and legislative instruments (including by the adoption of definitions) as in force from time to time:

  • the Act;
  • the Direction;
  • the Telecommunications (Consumer Protection and Service Standards) Act 1999.

Each of these Acts and instruments is available, free of charge, from the Federal Register of Legislation at www.legislation.gov.au.

The Standard also incorporates part of the Government Telecommunications Act 2018 (NSW), as in force from time to time. That Act can be accessed, free of charge, from the NSW legislation website at www.legislation.nsw.gov.au.

The Standard also incorporates the Web Content Accessibility Guidelines (WCAG) 2.2, published by the World Wide Web Consortium, as existing from time to time, in accordance with subsection 589(2) of the Act. The Guidelines may be accessed, free of charge, on the website of the World Wide Web Consortium at www.w3.org.

Consultation

Before the Standard was made, the ACMA was satisfied that consultation was undertaken to the extent appropriate and reasonably practicable, in accordance with section 17 of the LA. The ACMA also conducted the consultation required by subsection 125AA(3), and sections 132, 133, and 135 of the Act.

The ACMA consulted with Australian Mobile Telecommunications Association (being a body that represents the telecommunications industry), the Telecommunications Industry Ombudsman (the TIO), the Australian Competition and Consumer Commission (the ACCC), the Australian Communications Consumer Action Network (being a body that represents the interests of consumers), industry stakeholders, consumer groups, and the public on the making of the Standard. Between 28 January and 1 March 2026, the ACMA conducted a public consultation process, through the release of a draft Standard and a consultation paper on the ACMA’s website.

On 29 January 2026, the ACMA also published a notice in The Australian newspaper, being a newspaper circulating nationally. It stated that the ACMA had prepared a draft Standard, advising that a copy could be accessed via the ACMA’s website and invited interested persons to give written comments by 1 March 2026.

The ACMA informed key stakeholders of the publication of the documents and invited comment on the draft of the Standard and on the issues set out in the accompanying consultation paper. During the consultation period, the ACMA also met with stakeholders representing industry and consumers including the ACCC, Better Internet for Rural, Regional and Remote Australia, Telstra, TPG and the Victorian Government.

The ACMA received 22 submissions from a range of stakeholders, including participants in the telecommunications industry, consumer advocates, the TIO and government agencies. The ACMA considered all relevant issues raised by the submissions in the consultation process when determining the Standard.

All non-confidential submissions have been or are proposed to be  published, together with an Outcomes Paper for the consultation, on the ACMA website.

Stakeholders generally welcomed the proposed Standard, noting strong consumer demand for access to consistent and comparable coverage maps. The submissions provided a broad range of feedback on the draft Standard including suggestions to:

           refine the way that the proposed coverage levels and caveats are described;

           reconsider the proposed signal-strength metrics for 4G and 5G services;

           clarify the WCAG 2.2 compliance requirements;

           clarify the application of the Standard;

           clarify the circumstances under which an MNO may prepare and publish multiple coverage maps;

           require verification of the map data, for example, through audits, in-field testing, or through consumer feedback;

           include additional coverage layers such as for indoor and in-vehicle coverage;

           make the mapping data extractable to a broader audience than ESOs including, potentially, the public; and

           specify additional modelling parameters to ensure full comparability of maps produced under the Standard.

In response to the feedback received, ACMA made amendments to the Standard to:

         refine the way that the proposed coverage levels are described, including the addition of service level indicators for voice, SMS and data services;

           clarify that published maps must, at a minimum, satisfy the success criteria for Level AA in the WCAG 2.2;

           clarify the circumstances under which MNOs can publish multiple maps and that published maps showing coverage of 4G and 5G services must always be prepared in compliance with the Standard;

           specify organisations, in addition to ESOs, that can extract published maps’ underlying geospatial data.

As noted above, submissions were made about requiring verification of map data, including additional coverage layers such as indoor and in-vehicle coverage, and specifying additional modelling parameters. The ACMA considers that these matters require further consideration and may consider these as part of any future review of the Standard

Statement of compatibility with human rights

Subsection 9(1) of the Human Rights (Parliamentary Scrutiny) Act 2011 requires the rule-maker in relation to a legislative instrument to which section 42 (disallowance) of the LA applies to cause a statement of compatibility with human rights to be prepared in respect of that legislative instrument.

The statement of compatibility with human rights set out in Attachment B has been prepared to meet that requirement.


Attachment A

Notes to the Telecommunications (Mobile Network Coverage Maps) Industry Standard 2026

Part 1–Preliminary

Section 1 Name

This section provides that the name of the instrument is the Telecommunications (Mobile Network Coverage Maps) Industry Standard 2026.

Section 2 Commencement

This section provides that the Standard commences at the start of the day after the day it is registered on the Federal Register of Legislation.

Section 3 Authority

This section identifies the provision of the Act that authorises the making of the Standard, namely subsection 125AA(1) of the Act. The Standard has been made in accordance with the Direction.

Section 4 Application and purpose

In accordance with subsection 125AA(1) of the Act, section 4 sets out the part of the telecommunications industry to which the Standard applies, namely, MNOs and MVNOs that supply RMTSs.

The Direction defines an RMTS as a service that, among meeting other requirements, is supplied to the public (paragraph (d) of the definition in section 4 of the Direction). The Standard adopts the Direction’s definition. Accordingly the Standard does not apply to persons who are carriers or carriage service providers (CSPs) and do not supply RMTSs to the public, such as private network operators.

Subsection 4(2) describes the purpose of the Standard and its relationship to the objectives of the Direction.

Section 5 Definitions

This section defines key terms used throughout the Standard.

Some other expressions used in the Standard are defined in the Act, the Direction, or the Telecommunications (Consumer Protection and Service Standards) Act 1999.

Section 6 References to other instruments

This section provides that in the Standard, unless the contrary intention appears:

  • a reference to any other legislative instrument is a reference to that other legislative instrument as in force from time to time; and
  • a reference to any other kind of instrument is a reference to that other instrument as in force or existing from time to time.

Part 2–Mobile network coverage maps

Division 1 Mobile Network Operators

Section 7 Preparation of mobile network coverage map

Section 7 requires an MNO to prepare mobile network coverage maps for the RMTSs using 4G and 5G that it supplies, or offers to supply, to wholesale or retail customers in accordance with the requirements in section 7. In preparing the maps, MNOs are required to use a predictive coverage modelling methodology with the standardised modelling assumptions specified in Schedule 1 to the Standard.

Section 7 also requires that mobile network coverage maps prepared in compliance with the Standard include clear, up-to-date information about the service coverage levels that can be reasonably expected in a given geographic area. This “network coverage information”, which MNOs are required to publish with the map, includes consistent coverage labels specified as “Good”, Moderate “Basic” and “No Coverage”, the coverage label descriptions specified in Table 3 of Part 2 of Schedule 1, and the caveats about the potential limitations affecting the accuracy of the maps in Part 3 of Schedule 1.

Section 8 Publication of maps and network coverage information

Subsection 8(1) provides that an MNO must not publish, or make publicly available, a map that provides a visual representation of network coverage for an RMTS provided using 4G or 5G that it supplies or offers to supply, unless the map is a mobile network coverage map that is prepared in accordance with section 7.  This provision ensures that any published coverage maps of RMTS using 4G or 5G are consistent and comply with the Standard.  The note to subsection 8(1) clarifies that the Standard does not prevent an MNO from publishing a map that provides a visual representation of the network coverage information of an RMTS that uses network technology other than 4G or 5G.

Section 8 also requires MNOs to first publish coverage maps and associated information prominently on their websites and no later than 30 June 2026, and to continue to publish the maps on the website. MNOs must ensure the maps are freely accessible, easy to find, and comply with Web Content Accessibility Guidelines (WCAG 2.2) level AA or AAA.

Under subsection 8(6), MNOs must also ensure that the underlying geospatial dataset used to generate the coverage map (which does not include other data, such as engineering design data including transmitter parameters) is able to be extracted by specified organisations or kinds of organisations for analytical purposes. These include emergency services organisations, the Triple Zero Custodian, the ACMA, the ACCC, AMSA, the Department of Infrastructure, Transport, Regional Development, Communications, Sports and the Arts, the NSW Government Telecommunications Authority, and other public bodies whose functions include the management or coordination of responses to emergencies. This provision is intended to meet the objective in subparagraph 7(1)(b)(vi) of the Direction.

MNOs can determine the format in which data is made available, for example KML file. MNOs may consider making the mapping information more widely available, for example by publishing the accompanying KML files on its website. Further, subsection 8(7) provides that for the purposes of the requirements in subsection 8(6), it is immaterial whether an MNO has to take one or more steps, after the mobile network coverage map has been published, to enable a specified organisation to extract the underlying geospatial map data contained in the map. This allows an MNO to, for example, verify that a person seeking to extract the data is or represents a particular organisation.

Section 9 Mobile network coverage maps and network coverage information must be kept up-to-date

Section 9 requires MNOs to ensure coverage maps are kept up-to-date. MNOs are required to update maps as soon as practicable after becoming aware of a change to the network coverage information. A change to the network coverage information may occur if, for example, a new facility is installed or an existing facility is upgraded or decommissioned and this results in a change to network coverage information such as coverage levels.

As a mobile network coverage map is prepared using predictive methodologies, it is not intended that this provision applies to temporary or planned outages that may affect network coverage information for a relatively short period. It would be impractical for an MNO, after becoming aware of a temporary outage, to be required to also re-draw their coverage maps.

Outside of such changes, section 9 requires MNOs to review the maps and the coverage information at least once every three months, and to update the map or information if required after the review.

Section 10 Giving access to maps and information to Mobile Virtual Network Operators

Section 10 requires MNOs to provide access to published mobile network coverage maps and network coverage information to MVNOs who are wholesale customers (defined in section 5) of the MNOs, to support MVNO compliance with the Standard. The section also requires MNOs to provide access to updated maps or network coverage information as soon as possible after the map or information is updated.

Section 11  Giving access to maps and information to other Mobile Network Operators

Section 11 requires an MNO that is party to network-sharing arrangements with another MNO to provide the other MNO with access to coverage maps and network coverage information, including updated maps or information, to support their compliance with the Standard. The requirement applies to each MNO that is party to the arrangements. For example, where there is an agreement between two MNOs to share the operation of a radiocommunications transmitter used to provide 5G services, under the spectrum licence of only one of those MNOs, the Standard requires the MNOs to provide each other with access to their relevant coverage maps and network coverage information as parties to that agreement.

Division 2 Mobile Virtual Network Operators

Section 12 Publication of  maps and network coverage information

Similar to subsection 9(1), subsection 12(1) provides that an MVNO must not publish, or make publicly available, a map that provides a visual representation of network coverage for an RMTS provided using 4G or 5G that it supplies, or offers to supply, unless the map is a mobile network coverage map. This provision ensures that any MVNO-published coverage maps of RMTS using 4G or 5G are consistent and comply with the Standard.

Section 12 requires MVNOs by 30 June 2026, to publish mobile network coverage maps and associated network coverage information, and to continue publishing the maps. The published maps must be substantially the same as the most recent map and information provided by their host MNO.

Maps must be prominently displayed on the MVNO’s website, freely accessible and easy to find, and must include the name of the host MNO. MVNOs must publish mobile network coverage maps and network coverage information that complies with WCAG 2.2 level AA or AAA.

Subsection 12(7) provides that the obligation in subsection 12(2) does not apply to an MVNO if their host MNO has not complied with its obligations under section 10 to give access, to the MVNO, to a published mobile network coverage map and network coverage information for the map.

Section 13  Mobile network coverage map and network coverage information must be kept up-to-date

Section 13 requires MVNOs to keep their published mobile network coverage maps and network coverage information up-to-date. Updated maps or information must be published as soon as practicable after an MNO has given access to updated maps or information.

Schedule 1 – Predictive coverage modelling assumptions and network coverage information

Schedule 1 sets out the technical specifications that underpin the predictive coverage modelling methodology and other information that is to be displayed with the mobile network coverage maps prepared in compliance with the Standard, as referred to in sections 5 and 7 of the Standard. This includes:

  • signal-strength coverage thresholds for 4G and 5G (Table 1 in Part 1);
  • standardised modelling assumptions (Table 2 in Part 1);
  • coverage level descriptions (Table 3 in Part 2); and
  • prescribed assumptions and limitations to be published with coverage maps (Part 3).

 


Attachment B

Statement of compatibility with human rights

Prepared by the Australian Communications and Media Authority in accordance with Part 3 the Human Rights (Parliamentary Scrutiny) Act 2011

Telecommunications (Mobile Network Coverage Maps) Industry Standard 2026

Overview of the instrument

The Australian Communications and Media Authority (the ACMA) has made the Telecommunications (Mobile Network Coverage Maps) Industry Standard 2026 (the Standard) under subsection 125AA(1) of the Telecommunications act 1997 (the Act) and in accordance with sections 5, 6 and 7 of the Telecommunications (Mobile Network Coverage Maps) Direction 2025 (the Direction).

Under subsection 125AA(4) of the Act, the Minister for Communications (the Minister) has the power to direct the ACMA to:

  1.            determine a standard under subsection 125AA(1) of the Act that:
  1.             applies to participants in a specified section of the telecommunications industry;
  2.             deals with one or more specified matters relating to the activities of those participants; and
  1.            do so within a specified period.

The Direction was given to the ACMA by the Minister under subsection 125AA(4) of the Act and commenced on 13 December 2025. The explanatory statement for the Direction states that the Direction requires the ACMA to determine an industry standard under subsection 125AA(1) of the Act that deals with the way mobile coverage maps are prepared and presented by the providers of certain telecommunications services, to ensure comparability, to provide clear and useful information about each such service that can be reasonably expected in a given geographical area, and to capture different network technologies and platforms.

The Standard establishes requirements for the preparation and publication of mobile network coverage maps by mobile network operators (MNOs) and mobile virtual network operators (MVNOs). The purpose of the Standard is to ensure that consumers and other users have access to clear, accurate and consistent information about mobile network coverage for Relevant Mobile Telecommunications Services (as defined in the Direction) provided using 4G or 5G network technology.  

Human rights implications

The ACMA has assessed whether the Standard is compatible with human rights, being the rights and freedoms recognised or declared by the international instruments listed in subsection 3(1) of the Human Rights (Parliamentary Scrutiny) Act 2011 as they apply to Australia.

Having considered the likely impact of the Standard and the nature of the applicable rights and freedoms, the ACMA has formed the view that the Standard engages and promotes the following rights or freedoms:

  • The following rights for persons with disabilities under the Convention on the Rights of Persons with Disabilities (the CRPD):
    • to access, on an equal basis with others, information and communications (Article 9); and
    • the right to freedom of expression and opinion, including the freedom to seek, receive and impart information and ideas on an equal basis with others and through all forms of communication of their choice (Article 21).

 

Rights for persons with disabilities

The Standard supports the rights of people with disabilities (among others) to receive information on an equal basis, consistent with Articles 9 and 21 of the CRPD. 

The Standard promotes these rights by requiring mobile network coverage maps and associated coverage information to be published in a manner that complies with the Web Content Accessibility Guidelines (WCAG) 2.2, or any guidelines that replace or supersede them. Compliance with these guidelines supports accessibility for people with a range of disabilities, including visual, auditory, motor and cognitive impairments.

The Standard also requires coverage information to be published in a publicly accessible section of MNOs’ and MVNOs’ websites, without the need for login or the provision of personal information, and to include plain language descriptions of coverage levels. These measures support effective access to important consumer information and facilitate informed decision-making

By embedding accessibility requirements, the Standard supports equal access to telecommunications coverage information and promotes the rights of persons with disabilities to access information on an equal basis with others.

Conclusion

The Standard is compatible with human rights and, to the extent that it engages those rights, the Standard promotes the rights of persons with disabilities by ensuring that important telecommunications coverage information is accessible to them and widely available.

 

 

Interactions

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Sourced from the Federal Register of Legislation at 26 August 2026. For the latest information on Australian Government law please go to https://www.legislation.gov.au.