170 mobile operators worldwide have already shut down their 2G networks, with 87 more closures planned over the next decade — and the GSMA warns that emergency calls made by roaming users on the remaining 4G and 5G networks too often depend on a slow, trial-and-error process that could put lives at risk.

The mobile industry association is now pushing operators, device manufacturers and regulators to work together to guarantee emergency call access as the global shutdown of 2G and 3G networks accelerates. In its Network Closures report, the GSMA's network group details how the transition from circuit-switched voice on 2G and 3G to voice over LTE (VoLTE) on 4G and 5G creates technical pitfalls for roamers.

"The circuit-switched era is gradually drawing to a close," the GSMA states. "170 operators globally have no 2G service, with a further 87 planned closures in the next decade, and 190 operators globally have no 3G service, with a further 107 planned closures in the next decade."

Why do roaming emergency calls fail?

All mobile networks and devices comply with 3GPP standards, but "they can be configured differently", the report notes. That configuration gap means "making a packet-switched emergency call while roaming isn't always straightforward. In many cases, a roamer's handset engages in what amounts to a trial-and-error process."

The device first attempts to complete the call via 4G/5G IP multimedia subsystems (IMS), then defaults to traditional circuit-switching. The fallback mechanism costs time.

"This situation is far from ideal, given the potential safety implications of failing to quickly connect an emergency call," the GSMA says. The organisation also criticises a lack of transparency about why emergency calls might not be completed, arguing operators must adhere to standards "when lives are at risk".

How far has VoLTE actually rolled out?

The commercial picture is mixed. According to the report:

• 400 of 730 mobile operators worldwide run live commercial VoLTE services across 156 markets.
• Of these, 280 have inbound roaming agreements — agreements the GSMA calls "not necessary for emergency calls but a precondition for closing down 2G and 3G networks".
• 190 operators have no 3G service, with 107 further closures planned in the next decade.

Many roaming devices can no longer fall back on 2G and 3G infrastructure at all, because operators are refarming those bands to free up spectrum for 4G and 5G.

The 2026 World Cup, most of which was held in the US, sharpened the issue. "The major operators no longer operate 2G and 3G networks, meaning any emergency calls made by football fans visiting the US need to be handled by their packet-switched networks," the report states. That event, the GSMA argues, has accelerated the need for VoLTE adoption by operators and manufacturers worldwide.

Beyond safety, the association frames a commercial case: "the absence of VoLTE services can negatively impact mobile operators' reputations and revenues, as customers instead turn to Internet-based services to make calls." It adds that "VoLTE can support the live location and video sharing that could aid the emergency services" — capabilities circuit-switched voice cannot deliver.

Can lengthy device upgrade cycles be shortened?

Part of the problem sits in the device ecosystem. While emergency-call reliability while roaming depends on standards, 3GPP specifications have changed over time, and "some devices were initially customised to meet the requirements of specific operators and need to be reconfigured," the GSMA says.

Reconfiguration can often be achieved through a software update. Where a device cannot be brought into line with the standards, "the end-user needs to be informed and encouraged to purchase a replacement," the report notes — a prescription that shifts cost and effort onto consumers holding older handsets.

The GSMA wants interoperability testing — measures ensuring a voice call works regardless of the components, mobile network or roaming partner involved.

"Interoperability testing is important because VoLTE is not a single product," a GSMA spokesperson said. "Different customer mobile networks, roaming partner networks, devices and other equipment can all potentially be set up differently, so further testing is needed to ensure they work properly in real-life situations."

What role could satellite D2D play?

The report also points to direct-to-device (D2D) satellite services, which communicate directly with standard mobile handsets, as a potential complement to terrestrial networks that could ease unreliable emergency calling.

"This is particularly the case in very remote locations, such as mountains or forests, where 5G mobile coverage sometimes doesn't reach," the spokesperson said. The caveat: "it will be equally important for new technologies like D2D to be fully tested and standards-compliant to ensure service reliability. This is especially the case when supporting emergency services."

What do emergency services themselves say?

The European Emergency Number Association (EENA), which works to ensure all European citizens can access emergency services, has backed the GSMA's push.

"We have contacted them several times on this issue, so it's great to see these steps taken seriously," EENA technical director Cristina Lumbreras said. "I think it's good that they are pushing for the standardisation of 3GPP, but also that they want to do end-to-end testing… as far as we know, there was not previously testing in real environments."

Lumbreras wants the device industry drawn deeper into the process. "We need the devices, the networks and also the public safety answering points," she said. "They also need to be part of it and also to give some facilities to the industry to test; that is something important."

With nearly 200 additional 2G and 3G shutdowns scheduled over the coming decade, the pressure on operators, handset makers and regulators to make packet-switched emergency calling work first time — everywhere — will only intensify.