Reported by: Puis Althea | Edited by: Oravbiere Osayomore Promise.
The Nigerian Communications Commission has commenced a comprehensive review of the business rules governing Mobile Virtual Network Operators in the country, a strategic move aimed at deepening competition, expanding access to telecommunications services, and fostering innovation within the nation's digital ecosystem. The review process was formally launched during a one-day MVNO Business Rules Stakeholders Forum organised by the commission in Abuja on Thursday, July 16, 2026, where industry players, regulators, and legal experts gathered to shape the future of virtual network operations in Nigeria. The initiative comes nearly three years after the NCC introduced a five-tier MVNO licensing framework in 2023, with 46 licences issued so far across the five categories, yet operators continue to face significant operational hurdles that the new rules seek to address.
The Executive Vice Chairman of the NCC, Dr. Aminu Maida, who was represented at the forum by the Director of Licensing and Authorisation, Mr. Usman Mamman, underscored the commission's commitment to creating a more competitive and inclusive telecommunications environment. "The introduction of the MVNO business rule reflects the Commission's broader commitment to deepening competition, expanding access, and driving innovation in line with its strategic focus on digital inclusion and a robust telecom ecosystem," Maida stated. He explained that the MVNO business rules are designed to provide clarity on licensing, operational responsibilities, and relationships with host network operators while safeguarding consumer interest and market integrity. The EVC further emphasised that the commission expects full compliance from all operators and will continue to exercise its mandate to ensure that all stakeholders adhere strictly to established guidelines.
The journey towards introducing MVNOs into Nigeria's telecommunications sector has been a carefully planned and consultative process spanning several years, according to Mamman. He revealed that the commission began considering the virtual operator model in 2017 after commissioning studies on the readiness of Nigeria's telecom market, with findings confirming that the sector had matured sufficiently to support the model. This eventually led to the introduction of a five-tier MVNO licensing framework in 2023, designed to accommodate different business models and varying levels of technical and operational capability. Under the framework, Tier 1 licences are for full MVNOs with their own core network elements; Tier 2 for service providers with switching capabilities; Tier 3 for providers offering value-added services; Tier 4 for niche operators targeting specific communities or services; and Tier 5 for resellers of mobile services.
Mamman disclosed that the commission has so far issued 46 MVNO licences across the five licence categories, with one licence issued under Tier 1, 11 under Tier 2, 16 under Tier 3, seven under Tier 4, and 11 under Tier 5. However, he noted that experience since licensing revealed the need for clearer operational guidelines to govern the commercial and technical relationships between MVNOs and host network operators. The draft business rules, which were published for public consultation earlier this year, address a wide range of issues including onboarding and integration processes, hosting arrangements, interconnection, numbering resources, SIM and eSIM management, quality of service obligations, revenue-sharing principles, infrastructure access, consumer protection, and dispute resolution mechanisms.
The framework enables qualified operators to provide mobile communication services by leveraging the infrastructure of existing mobile network operators without the need to own dedicated radio spectrum or deploy nationwide radio access networks. This model is expected to lower barriers to entry, encourage innovation, and extend communication services to underserved communities across Nigeria. The Head of Legal and Regulatory Services at the NCC, Mrs. Chizua Whyte, highlighted that the emergence of MVNOs presents a significant opportunity to deepen competition, stimulate innovation, promote service differentiation, and expand consumer choice within the sector. She noted that the proposed rules would establish a balanced regulatory framework governing the relationship between MVNOs and MNOs, providing certainty for investors and encouraging sustainable growth in the sector.
Industry stakeholders have broadly welcomed the NCC's initiative, describing it as timely and necessary to unlock the full potential of the MVNO market. Speaking on behalf of licensed operators, the President of the Association of Mobile Virtual Network Operators, Engr. Ken Nwabueze, identified revenue sharing and enforcement as the two major issues requiring urgent regulatory attention. "The two big elephants in the room are revenue sharing and enforcement. As we define these rules, the Association of Mobile Virtual Network Operators pleads with you to make enforcement a key part of it," Nwabueze said. He noted that operators had begun generating practical operational experience since the rollout of MVNO licences, which could help shape future regulations. "The journey has not been easy. Everything up until now has been theory, but we now have real data to share with the Commission," he added.
The NCC's review comes at a critical time for Nigeria's telecommunications sector, which has experienced significant growth in recent years but continues to face challenges related to access, affordability, and quality of service. The commission has stressed that the proposed rules would eliminate uncertainties surrounding commercial negotiations, access to network resources, and technical integration, while ensuring that all operators comply with established regulatory guidelines. The draft rules also include provisions to address concerns raised by stakeholders regarding onboarding delays, technical integration challenges, commercial negotiations, and access to network resources. The commission has firmly committed to effective regulatory oversight that is transparent, predictable, fair to all market participants, and aligned with global best practices.
The public inquiry on the draft MVNO business rules, which was held on Thursday, July 9, 2026, at the NCC Head Office Annex in Abuja, provided stakeholders with an opportunity to review the proposed framework and offer feedback before final approval. The commission has indicated that the final rules will be issued after careful consideration of all inputs received from industry participants, legal experts, consumer advocacy groups, and other interested parties. With the review process now underway, industry observers are optimistic that the new regulatory framework will unlock the full potential of Nigeria's MVNO market, create new opportunities for entrepreneurs and investors, and ultimately deliver greater choice, lower prices, and improved services for millions of telecom consumers across the country.
The NCC has reiterated that the MVNO business rules are designed to provide clarity on licensing, operational responsibilities, and relationships with host network operators while protecting consumer interests and maintaining market integrity. The commission expects full compliance and will persist in exercising its authority to ensure that all operators strictly follow the established guidelines. As Nigeria continues its digital transformation journey, the successful implementation of the MVNO framework is expected to play a crucial role in expanding access to telecommunications services, bridging the digital divide, and driving inclusive economic growth. The NCC has reaffirmed its commitment to deepening competition, expanding access, and driving innovation in line with its strategic focus on digital inclusion and a robust telecom ecosystem.
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