Guernsey telcos have been blocked from allocating new +44 numbers for two years - the proposed solution includes free access to vital helplines
- GCRA proposes new numbering framework after Ofcom discovered it lacked legal powers to allocate +44 numbers in Crown Dependencies, leaving Guernsey operators unable to obtain new numbers since mid-2024
- Legislative amendment passed in March 2025 enables GCRA to establish formal arrangements with Ofcom through a Memorandum of Understanding and new Guernsey Numbering Scheme
- Free access to 116 services of social value mandated, with billing suppression to protect privacy of vulnerable persons contacting support hotlines including missing children services
- 14 telecommunications licence holders affected, with consultation deadline of 5pm on Friday 3rd July 2026 for public comments and representations
Key terms
The Guernsey Competition & Regulatory Authority has issued a proposed decision to modify telecommunications licences across the island, establishing a new numbering framework following the resolution of a significant legal jurisdictional issue regarding telephone number allocation.
The changes come after Ofcom informed the GCRA during 2024 that it may not have the necessary legal powers under the Communications Act 2003 to administer +44 telephone numbers in the Crown Dependencies, as previously understood.
Ofcom subsequently confirmed that the Act did not confer jurisdiction to allocate telephone numbers in the Crown Dependencies, and that the Telecoms Law did not clearly provide Ofcom with the necessary authority to exercise that function in Guernsey.
As a consequence, Ofcom paused the allocation and reservation of telephone numbers and network codes for licensed operators in the Crown Dependencies. Licensed operators in Guernsey have been unable to obtain new telephone numbers or network codes since the middle of 2024.
To resolve the issue, the governments of the Crown Dependencies, including the States of Guernsey, the UK Government and Ofcom worked together during 2024 and 2025 to establish a coordinated legislative response.
The Telecommunications (Bailiwick of Guernsey) Law, 2001 (Amendment) Ordinance, 2025 was made and laid before the States Assembly in March 2025.
The ordinance amended the law to allow the GCRA to enter into formal arrangements with Ofcom for the establishment and administration of a numbering scheme for use in the Bailiwick.
Following the legislative amendment, the GCRA and Ofcom developed a Memorandum of Understanding establishing the working arrangement between the two bodies, along with a Guernsey Numbering Scheme setting out the numbering rules and processes which apply in the Bailiwick.
Together, these documents establish the legal and operational framework under which Ofcom will administer the allocation, reservation and withdrawal of numbering resources for use in the Bailiwick.
The proposed licence modifications include significant obligations relating to "116" telephone numbers.
Under the UK Plan, 116 telephone numbers are harmonised six-digit non-geographic numbers reserved for services of social value, including hotlines and helplines intended to support children, vulnerable persons and individuals experiencing distress, abuse or other forms of harm. These services include hotlines for missing children, emotional support services, and helplines for victims of abuse or exploitation.
Licensees will be required to provide access to services of social value via six-digit non-geographic numbers free of charge to the caller. Licensees must ensure that any subscriber can access a hotline for missing children by using the number "116000".
Licensees must also ensure that any calls or SMS to 116XXX numbers are not identified in the subscriber's itemised billing or any other records that the licensee makes available to the subscriber. The GCRA considers that children and vulnerable persons in Guernsey must be able to access these services free of charge and in a manner which protects their privacy and safety.
The billing suppression requirement is intended to ensure that individuals seeking confidential advice, support or protection are not discouraged from contacting these services because of concerns that another person may later discover evidence of the communication through billing information or account records. In some circumstances, disclosure of calls to such services could expose the caller to intimidation, coercion, abuse, retaliation or other forms of harm.
In February 2026, licensed operators were asked to provide information regarding the rates charged to customers for calls to UK geographic and non-geographic telephone numbers, including the likely cost and revenue implications of introducing a free-to-caller requirement for 116 telephone numbers.
Responses were received from JT (Guernsey) Limited and Sure (Guernsey) Limited. The GCRA concluded that the likely costs associated with these obligations are modest and significantly outweighed by the public interest benefits of ensuring that children and vulnerable persons in Guernsey can access important support services safely, confidentially and without financial barriers.
The proposed modifications establish a formal withdrawal process. Where the GCRA considers it appropriate for Ofcom to withdraw all or some of the numbers allocated to a licensee, for example due to failure to comply with directions or cessation of being a licensee, the GCRA must inform the licensee of the intended recommendation, give the licensee a reasonable opportunity to make written representations or objections, and consider any such representations before deciding whether to proceed with the recommendation.
Under the terms of the MoU, Ofcom will continue to administer relevant numbering resources from the UK National Telephone Numbering Plan for use in Guernsey.
Licensed operators will be able to apply directly to Ofcom for the allocation or reservation of telephone numbers and network codes in accordance with the Guernsey Numbering Scheme.
Ofcom will assess and determine those applications in accordance with the UK Plan, subject to modifications and exclusions set out in the Guernsey Numbering Scheme.
The arrangement does not remove the GCRA's role as the telecommunications regulator for the Bailiwick.
The GCRA will remain responsible for issuing and modifying telecommunications licences, monitoring the use of numbers in Guernsey, ensuring compliance with licence conditions, and taking enforcement action where appropriate.
The MoU also provides for ongoing cooperation and consultation between Ofcom and the GCRA regarding changes to the Guernsey Numbering Scheme and the UK Plan.
The proposed modifications will affect 14 telecommunications licence holders: 5th Dimension (Guernsey) Ltd, Base Limited trading as Genesis AV, BT Jersey Ltd (Guernsey), Business Telecom Limited, Flo Connect Ltd, Gamma Telecom Holdings Ltd (Guernsey), JT (Guernsey) Ltd, Logicalis Guernsey Ltd, Ninou Investments Ltd trading as GuernseyTel, Offshore Leisure Limited trading as Coop Mobile, Richard Bird trading as Links Communications, Starlink Internet Services Limited, Sure (Guernsey) Limited, and TP Global Operations Limited trading as 1GLOBAL.
The GCRA invites comments and representations from all interested parties.
Representations must be submitted before 5pm on Friday 3rd July 2026. Responses can be submitted by email to [email protected] or in writing to GCRA, Suite 4, 1st Floor, La Plaiderie Chambers, La Plaiderie, St Peter Port, GY1 1WG. All written comments should be clearly marked "Matter T1677G: Proposed Licence Modification".
Q&A
Q: Why were telecoms operators unable to get new telephone numbers?
A: Ofcom discovered during 2024 that the Communications Act 2003 did not give it legal jurisdiction to allocate +44 telephone numbers in Crown Dependencies including Guernsey. It paused all number allocations until the legal issue could be resolved through legislative amendment.
Q: What are 116 numbers and why must they be free?
A: 116 numbers are six-digit non-geographic numbers reserved for services of social value, including hotlines for missing children, emotional support services, and helplines for victims of abuse. The GCRA requires free access and billing suppression to ensure vulnerable persons can contact these services without financial barriers or privacy concerns.
Q: How can the public comment on the proposed changes?
A: Representations must be submitted before 5pm on Friday 3rd July 2026 by email to [email protected] or in writing to GCRA at Suite 4, 1st Floor, La Plaiderie Chambers, St Peter Port, clearly marked 'Matter T1677G: Proposed Licence Modification'. Commercially confidential sections should be highlighted in yellow.
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