Annual Reports of the Telecommunications Ombudsman Service
2025 annual report
In 2025, the Office of the Ombudsman for Telecommunications received 15 087 written requests for intervention. Despite a decline of 6.31% compared with 2024, the demand for mediation remained high throughout the past year.
The two main operators, i.e. Proximus Group (-19.65% vs. 2024) and Telenet Group
(-24.42%), saw a drop in the number of mediation complaints, confirming the downward trend observed since 2023. On the contrary, Orange Belgium shows an increase in the total number of mediation complaints between 2024 and 2025, with a significant increase by 32.93%. Digi, newcomer in the sector and commercially active since December 2024, ranks fourth in terms of number of complaints (461 complaints in 2025 vs. 45 in 2024).
As part of its mandate, the mediation service has identified several structural issues that affected users in 2025. The Telecommunications Ombudsman highlights, in particular, issues relating to contract termination, compensation following service disruptions, and the customer-oriented approach of customer service departments.
15 087 requests for intervention submitted in 2025
In 2025, the Office of the Ombudsman for Telecommunications registered 15 087 written requests for intervention and answered over 4 000 requests for information by way of its telephone hotline. The total number of requests decreased by 6.31% compared to 2024 (16 104 complaints). The number of mediation complaints filed stood at 12 445 in 2025 (vs. 13 319 in 2024), whilst complaints relating to the malicious use of electronic communications networks, such as telephone harassment, totalled 2 642 (vs. 2 785 in 2024). The number of complaints handled in 2025 (including those filed at the end of 2024) stood at 15 009, indicating that the volume of complaints to be handled remains substantial.
The ranking of the top five operators by number of complaints in 2025 largely reflects their positions in the telecommunications market, although with the arrival of newcomer Digi Communications Belgium:
Proximus Group (including Scarlet) recorded the highest number of complaints (4 539) but saw a drop of nearly 20% in the number of mediation complaints compared with 2024. Telenet Group (including Base) also saw a significant drop in the number of complaints (3 884 in 2025), representing a decrease of nearly 25% compared with 2024. Orange Belgium (including VOO and Hey !) rounds out the podium with, unlike the first two operators mentioned, a significant increase in mediation complaints by 32.93 % in 2025, the year 2024 having already seen a 6% increase for this operator.
Newcomer Digi Communications Belgium, commercially active since December 2024, directly takes fourth place in terms of volume of complaints filed with the Telecommunications Ombudsman with 461 complaints in 2025. Finally, Unleashed (brands Mobile Vikings and JIM Mobile) rounds off the top five, with a significant rise in complaints (+32.29%, with nearly 300 complaints).
Termination of contract: structural issues
For many years, the Telecommunications Ombudsman has been highlighting in its annual reports the difficulties associated with the termination process in the electronic communications sector. In 2025, 909 disputes relating to this issue were recorded, i.e. an increase by 4% compared with the previous year.
The structural issues identified regarding the termination of telecommunications contracts remain identical, year after year. In particular, complainants mention a failure to process their termination requests or delays in doing so. Complaints also show that the detailed procedure for termination is not clearly communicated; this concerns in particular the procedures for returning equipment, which is often a source of problems for complainants.
The Telecommunications Ombudsman notices in many cases the lack of written confirmation from the operator. In view of the issues identified, it is advisable for operators to formally acknowledge and confirm any request for termination. On the one hand, confirmation of the termination helps to ensure clear and transparent communication; on the other hand, it serves as proof, in the event of a subsequent dispute, that the termination was effective.
The Telecommunications Ombudsman calls for a balance between the process of subscribing a contract and its termination. It should be just as easy to terminate a contract as it is to enter into one, and simplifying the process in this way would benefit both the sector and users.
Service disruptions and legitimate compensation
In 2025, the Telecommunications Ombudsman received a very large number of complaints (a total of 3 381 complaints) concerning disruptions to electronic communications services (outages, instability, and absence of service). In these disputes, the plaintiffs’ main objective was to urge their operators to resolve the disruption as quickly as possible, so that they could once again use their electronic communications services as normal. Meanwhile, a significant number of users also requested compensation due to the quality deterioration or the complete unavailability of their connection. In 2025, this represented 996 complaints, i.e. a 12% increase compared to 2024.
Since 1 November 2024, end users are entitled to financial compensation from telecommunications operators in the event of a complete interruption of their telecommunications services lasting at least eight consecutive hours.
The legal framework and conditions are detailed in Article 113/2 of the Act of 13 June 2005. It is the operator’s responsibility to establish the duration of the interruption and to automatically grant compensation to those entitled to it.
Complaints submitted to the Telecommunications Ombudsman often highlight the difficulty operators face in handling these cases first-hand. Customers report a lack of information regarding the cause of the problem and time for repair. Others find themselves caught in the middle of several operators who are passing the buck when it comes to the cause of the problem. In other cases, complainants are denied compensation on the grounds of force majeure.
Although the rapid resolution of a disruption remains the customers’ priority, claims for compensation are also often justified on the part of the complainants.
The legal compensation provided for by law since November 2024 is often considered insufficient by customers. The applicable conditions are strict, and the service interruption must be complete. However, it is clear from the reports that even repeated short interruptions or a structural decline in quality cause significant disruption, which may justify a claim for reasonable compensation.
The Telecommunications Ombudsman therefore calls on operators to comply with contractual and legal provisions and to respond to their customers’ legitimate claims for compensation, even in cases that do not meet the conditions for legal compensation under the Act of 13 June 2005.
Customer service: the challenge of customer-orientation
The Telecommunications Ombudsman, as an appeal body, is regularly called upon to deal with complaints regarding the operation of operators’ customer service departments. Indeed, a complaint submitted to the Telecommunications Ombudsman will only be dealt with once you have tried to reach a resolution with your operator. And the results are clear: customer service departments account for a significant proportion of the total number of complaints handled by the Telecommunications Ombudsman, representing over 10% of complaints and a total of 2 471 disputes in 2025.
Customer orientation, i.e. an operator’s ability to meet its customers’ expectations, has proved to be the most common problem: 1 160 complainants expressed disappointment at the inadequate solutions offered to their problems and therefore lodged an appeal with the Telecommunications Ombudsman. Operators face a clear challenge: customers expect their questions to be answered promptly, in clear language and through accessible channels.
The telecommunications sector, which has undergone rapid technological and digital change, must strike the right balance between adopting digital solutions to enhance customer experience and maintaining accessible and effective support for all types of customers. In light of this, the Telecommunications Ombudsman urges operators to pay particular attention to ensuring that human contact remains a possibility in their interactions with customers. On the one hand, to be able to serve customers who require a specific approach and, on the other hand, to be able to handle more complex or specific situations.
2024 annual report
In 2024, the Telecommunications Ombudsman received 16,104 written requests for intervention. Following a significant increase in complaints in 2023, this represents a 7.5% decrease in the total number of interventions. However, the number of complaints handled by the Ombudsman in 2024 reached a new record with 16,619 complaints. While the Telenet Group (-22% compared to 2023) and Proximus Group (-10%) experienced a decline in mediation complaints, Orange recorded a 6% increase in complaints between 2023 and 2024. The Ombudsman also identified several structural issues impacting users in 2024, including the Easy Switch procedure and disputes related to network infrastructure works and maintenance
7.5% decrease in complaints compared to 2023
In 2024, the Telecommunications Ombudsman registered 16,104 written requests for intervention and responded to over 5 000 information requests via its telephone service. The number of complaints decreased by 7.5% compared to 2023 (17,413 complaints). This decline was observed in mediation complaints (from 15,168 in 2023 to 13,319) while complaints about malicious use of electronic communications networks, such as telephone harassment in particular, increased from 2,245 in 2023 to 2,785. Despite the overall decrease, the Ombudsman handled 16,619 requests in 2024, reflecting a slight increase from 2023 (16,457) and highlighting a consistently high volume of complaints requiring resolution.
This year, the ranking of the top five operators in terms of complaints returned to a more typical pattern. Due to a sharp decline in mediation complaints registered by Telenet Group (-22% compared to 2023), Proximus Group takes back its position as the operator with the highest number of complaints. However, the operator registered a 10% decrease in complaints. Orange ranked third with a 6% increase in mediation complaints in 2024, unlike the two aforementioned operators. Finally, VOO (-7%) and Unleashed (Vikings Mobile and JIM Mobile brands) ocuppied the last positions in the top 5 with Unleashed experiencing a notable 34% increase in complaints.
Easy Switch procedure*: a persistent problem
More than 7 years after the entry into force of the Easy Switch legislation, the Telecommunications Ombudsman still reports more than 500 complaints in 2024, despite the recent enhancements to the legal framework. Many customers still face double billing when switching fixed services providers. The Telecommunications Ombudsman also notes that the Easy Switch procedure, designed to simplify switching operators for fixed services, is not consistently offered as a standard procedure by the new operators. Too many communication problems between operators or with the customer are also noted and prevent the procedure from running smoothly. Additionally, complaints reveal a lack of adequate support when customers contact the operators’ customer services.
The Telecommunications Ombudsman strongly recommends that operators comply with the Royal Decree on Easy Switch by offering this service in a standardized and consistent manner when new customers subscribe to fixed services. Moreover, better operational implementation and improved communication between the new operator and the customer are essential to reducing complaints. Finally, the Telecommunications Ombudsman recommends that operators handle complaints related to Easy Switch more effectively with their customer service and urges operators to collaborate directly with one another in order to resolve disputes efficiently in first line.
(*) Easy Switch is a facility applicable since 1 July 2017 for telecommunications users who decide to transfer their fixed services (including at least one fixed internet or TV service) to another operator
Infrastructure and maintenance works: disputes on the rise
Although maintenance and infrastructure works are essential to improve electronic communications services and the technological transition, the Telecommunications Ombudsman records a significant number of complaints submitted. In 2024, complaints regarding damages caused by infrastructure and maintenance works totalled 451, marking a 17% increase compared to 2023. Approximately 31% of these complaints concerned the installation of equipment on building façades.
Many operators are currently deploying a new generation network (optical fibre). Pursuant to the Act of 21 March 1991, operators are permitted to install telecommunications cables on and attach support structures to facades.
However, the Telecommunications Ombudsman regularly observes that some installations have been fixed in a disorderly manner and that the architectural or aesthetic aspects of certain buildings are not sufficiently taken into account. The law requires providers to seek an agreement on the place and method of performing the works with the owner. In practice, however, and as shown by the complaints analysed, this search for an agreement occurs very rarely. Futhermore, the works undertaken by the operators must comply with the methods and techniques determined by regional or municipal regulations.
In many other complaints, the Telecommunications Ombudsman must intervene in cases related to damage and degradation in the public domain or to private property.
These are complaints related, for example, to damage to roads during excavation works or damage to walls, ceilings or private property during maintenance or installation works. Operators are advised to promptly repair affected properties to prevent further deterioration. They remain responsible for repair costs and compensation for damages caused by their technicians or subcontractors.
The Telecommunications Ombudsman recommends that operators improve consultation and communication with property owners before and during installations. Additionally, operators should ensure rapid response and repair in cases of damage to the public or private domain and compliance with urban and environmental standards.
Vulnerable users require continuous support
In 2024, the Telecommunications Ombudsman received 647 mediation requests from users identified as vulnerable. This group faces significant challenges, such as difficulty navigating through customer service channels, expressing concerns clearly, or defending their rights in disputes with operators. They also tend to have limited knowledge of their legal and contractual rights. It explains the reasons why the Telecommunications Ombudsman pays special attention to this group.
Vulnerable users encountered various challenges in 2024. The revision of the social tariff led to a significant increase in mediation requests, with 358 complaints recorded—an increase of nearly 40% compared to 2023. The unexpected discontinuation of the old discount scheme appears to be the main reason for the disputes. The Telecommunications Ombudsman also observed a consistently high number of complaints regarding third-party services (M-Commerce, 090X numbers, etc.), where vulnerable users are frequently targeted by fraud attempts or less likely to realise the activation of an unwanted additional service. Furthermore, the analysis of complaints also shows that vulnerable users also face significant difficulties when they contact their operator’s customer service or go to a point of sale for a question or dispute.
The Telecommunications Ombudsman reiterates the need for an easily accessible and efficient hotline for vulnerable users. In this context, the Telecommunications Ombudsman advocates for the implementation by operators of a specific policy for vulnerable users in first-line contacts.
2023 annual report
On the occasion of the publication of the 2023 annual report the Telecommunications Ombudsman points out an exceptional increase of about 65% of the complaints compared to 2022. After several years of diminishing complaints, last year they totalled to 17,413, the highest number since 2015. This increase involves all the operators and was mostly marked in the case of the Telenet Group following problems with its new IT platform. Apart from that increase, the Mediation Service identifies several issues that impacted users in 2023 and formulates a number of recommendations in its annual report.
65% increase of complaints compared to 2022
In 2023 the Mediation Service for telecommunication registered 17,413 written requests for intervention and answered close to 7,000 requests for information by way of its telephone service. The number of complaints increased by 65% compared to 2022 (10,574 complaints). This increase is observed both for mediation complaints (from 8,605 in 2022 up to 15,168) and for investigations about malicious use of electronic communications networks, such as telephone harassment (from 1,969 in 2022 to 2,245). This year the ranking of the first five operators in terms of complaints is unprecedented: for the first time in the existence of the Mediation Service, Telenet Group takes first position followed by Proximus Group, Orange Belgium, VOO and Unleashed (better known by the brand names Mobile Vikings and Jim Mobile). For each of those five operators the number of registered complaints increased by at least 20%. Telenet Group takes the lead with an exceptional increase of complaints in 2023 (+188.62%). In second position Proximus Group, which includes operators Proximus and Scarlet, shows a 30.07% increase of its number of complaints compared to 2022. Finally, Orange Belgium (+23.96%), VOO (+20.27%) and Unleashed (+31.40%) end 2023 with notable increases of the number of complaints addressed to the Office of the Ombudsman.
Telenet: annus horribilis
Telenet Group generated 6,620 complaints in 2023, which is more than triple the amount of 2022, when 1,980 mediation complaints were lodged against Telenet. This increasing inflow started as early as November 2022, continued throughout 2023 and remains high even at the start of 2024. Not only the significant increase in number, but also the nature, seriousness, structural, persistent and, in some cases, unique nature of the problems, justify the attention the Mediation Service devotes to Telenet in this annual report.
The complaints covered a large spectrum of the contractual relation between users and the operator, involving issues ranging from the activation of services, billing, customer service and unexecuted termination requests. Conciliations in thousands of complaints show that the launch of a new IT platform by Telenet has generally been the cause of the countless persistent problems that have often strongly impacted its customers. More specifically regarding the front-line services, customers were faced with long waiting times or found they had not been properly helped, so they often turned to the Mediation Service as a last resort.
Two categories of complaints on the rise: malfunctions/breakdowns and customer service
In 2023 the Office of the Ombudsman was confronted with a significant rise in complaints regarding the customer service and several breakdowns and malfunctions. A bit more than 2,500 complaints were introduced in 2023 for problems regarding the customer service (1,182 in 2022). Those complaints are about the accessibility of the operators (long waiting times) and the lack of means of communication to reach them, among other things. The rest of the complaints concern the quality and efficiency of the customer services, with complainants raising issues with customer-orientation, no internal follow-up and referral to digital solutions or online platforms.
Considering the number of complaints the Office calls on the operators to ensure that the customer service is operational, solution-oriented and easily accessible. The persistent complaints about long waiting times and (telephone) accessibility are worrying. The breakdowns, malfunctions and unavailability of services resulted in nearly 4,000 complaints in 2023, which means an increase of more than double the number registered in 2022 (1,685 complaints). Examples of issues raised are unavailable services following a breakdown, fibre roll-out, infrastructure works or bad weather.
In such cases the Office urges the operators to show diligence, proactivity and anticipation. It is indeed the operator’s duty to make every effort to restore the services or to offer alternative solutions without extra costs for subscribers as soon as possible. Finally automatic repayment of the subscription fee corresponding with the time of unavailable service should be made to subscribers. Because of the inconvenience suffered, operators should also consider compensating.
Contract termination: still not a streamlined process in 2023
Despite the legal adjustments made in 2012 and 2021 regarding contract termination and limiting the termination fees, terminating an electronic communications service contract is still complicated. The Office of the Ombudsman registered a bit more than 1,000 complaints in 2023, i.e. close to double the number of complaints in 2022 about this issue. Examples are the difficulties to introduce and receive the termination, the issues during the Easy Switch procedure, the termination of bundled offers or the complexity of terminating “business” contracts in which a telephone central is involved. Taking into consideration the competitiveness of the electronic communications sector, the possibility of unilateral termination constitutes a key issue. In a constantly evolving market it is important for end-users to be able to opt out of a particular service or even potentially change operators, if they need to. However, based on the complaints treated, the conclusion must be that subscribers are not well informed, despite the various legal obligations for operators to provide information. Apart from that, as regards professional subscribers in particular, certain commercial practices (penal clauses, renting of terminal equipment) appear to be real obstacles to terminate a contract. Therefore the Office of the Ombudsman recommends operators to show more diligence when handling requests to terminate a contract, to confirm every such request and to proactively reimburse any payments wrongfully received after the termination.
Annual report 2022
On the occasion of the publication of its 2022 annual report the Mediation Service looks back to its 30 years of existence and its equally long experience in handling complaints in the telecommunications sector. Since 1993 we have handled a total of a little over 420,000 complaints in the context of our missions. Since 2018 we are witnessing a downward trend for the evolution of the number of complaints. Nevertheless, the Mediation Service notices an increase within certain categories of complaints and issues a number of recommendations in its annual report.
More than 10,000 written complaints
In 2022, the Mediation Service for Telecommunications received 10,574 written complaints and in addition answered approximately 6,000 requests for information in the context of its telephone helpdesk. This represents a decrease in the number of complaints compared to 2021 (13,355 complaints). This decrease regards both the mediation complaints (from 10,648 in 2021 to 8,605) and the complaints regarding the malicious use of communications networks such as harassment by telephone (from 2,706 in 2021 to 1,969). In 96.91% of the mediation complaints it was possible to reach an acceptable solution for the telecommunication user through an amicable settlement. In the context of the requests for identification of suspected perpetrators of malicious calls and messages, it was possible to identify the perpetrator in nearly half of the cases.
Vulnerable users: specific customer service and electronic invoicing
In 2022, 367 requests for mediation were registered (+32% compared to 2021), submitted by consumers who had been identified as vulnerable users. The complaints in particular regard fraud through premium-rate numbers (090X, …), phishing, digital invoicing (e-invoicing) and interference of fixed lines.
The Mediation Service wishes to emphasize once more the need for operators to ensure an easily accessible and efficient telephone helpdesk. In this context the Office of the Ombudsman pleads for the implementation of a dedicated policy for vulnerable users by the operators. After the example of an initiative in the United Kingdom, operators could be requested to appoint a specific person as point of contact for requests of vulnerable telecom users.
Finally, the Office of the Ombudsman finds that the e-invoicing trend is winning ground rapidly. Some categories of subscribers need a guiding hand in this digital transition and more specifically our elders who are sometimes not or insufficiently familiar with the new information technologies. In any case, operators have to respect the freedom of choice of the consumer, regarding the format of the invoices (electronic or paper).
Fibre roll-out: complaints are multiplying
In 2022, 155 complaints were submitted to the Mediation Service, following the roll-out of fibre. The main issues found were the compulsory switch to fibre, without explanations or consent from the subscriber, a price increase following the switch to fibre and the issues relating to the installation and activation of this new technology (facade right).
A number of users on the contrary, complain about the waiting times for a fibre connection. The latter wish to enjoy a faster and more stable Internet connection. That does not only apply to private persons but also to companies situated in rural or remote areas.
In light of the intensification of the fibre roll-out on Belgian territory, the Office of the Ombudsman invites the players in the field to safeguard the rights and interests of the end-users. On the one hand by honouring the obligations regarding transparency and communication upon installations and activations of new subscription formulas and on the other hand by reconciling the facade right of the telecommunications company with the building owners’ right of use.
Keeping in check the final invoice: a necessity in the current context
In light of the current situation (increasing energy costs, inflation, etc.) it is becoming ever more important for telecommunications customers to avoid additional fees and to keep their invoices in check. In 2022, 4,570 telecom users lodged a complaint about an irregularity regarding their monthly subscription, such as unexpected consumption charges, additional one-time fees, discounts that have not been granted and administrative issues to be dealt with. The complainants’ testimonies show that the complainants were not informed or informed too late and/or did not have sufficient means to avoid additional costs.
A clear trend to shift the responsibility towards the user is standing out as well. The latter is considered to be sufficiently informed through an operator’s application or website, while the Mediation Service notices in the complaints that this information is not always reliable. This is the operators’ way of making their customers accountable, whereas the latter do not always know how to manage such tools, for instance elders and vulnerable users in particular.
The Office of the Ombudsman also pleads for an improved information of the user, for instance via real-time notifications for mobile (roaming) consumption and by blocking third-party services (M-commerce) by including a mandatory opt-in for those services in the telecommunication contracts.
ANNUAL REPORT 2021
DIGITAL EVOLUTION REMAINS A CHALLENGE FOR MANY.
The ongoing pandemic measures in 2021, such as structural working from home and distance learning, once again demonstrated the need for well-functioning telecom services.
However, on the basis of the complaints received in 2021, the Telecommunications Ombudsman found that both switching operators (via Easy Switch) and the right to social tariff and e-invoicing in particular caused difficulties for vulnerable users.
Easy Switch procedure still not applied by default
The Easy Switch mandate was created to facilitate the transition between operators for telecom users. Despite this, the Ombudsman service notes an increase in the number of complaints and this procedure is still not sufficiently regarded as the standard procedure for changing operators. Subscribers are still too often confronted with double invoicing and are too often sent from box to wall by the operators involved.
Structural user problems around social tariff
Several structural problems came to light in the complaints regarding the social tariff. The Ombudsman continues to believe that many complaints could be avoided if the social rate were automatically granted to all beneficiaries. This would not only ease administrative formalities for users and operators, but would also lead to greater fairness. It would also ensure that the social tariff is not unfairly withdrawn when beneficiaries change their subscription, switch to another operator or move.
E-invoicing: a growing phenomenon
Electronic invoicing is becoming increasingly common in the telecommunications sector and is on the rise. However, e-invoicing is still proving to be a real challenge for a large part of the population, especially for some elderly people. A transition to digital invoicing therefore requires a gradual approach and guidance of the operators for certain, vulnerable users.
Unlimited offers
Attractive advertisements about ‘unlimited’ surfing, calling or texting must be clarified to the end user before the start of a subscription if restrictions or a Fair Use Policy would nevertheless apply to the proposed offer. After all, a reduction in internet speed or even a sudden blockage of services must be avoided in times of structural homeworking.
2021 in figures
In 2021, the Telecommunications Ombudsman Service registered 13,355 written requests for intervention. The number of complaints shows a decreasing trend (-4.87%) compared to 2020 (then 14,039 complaints). This decrease was noticeable both in mediation complaints (from 11,142 in 2020 to 10,648) and in complaints relating to telephone harassment (from 2897 in 2020 to 2706).
In 2021, 14,049 cases were analysed, handled and closed, which is an increase compared to 2020 (with 13,676 complaints handled). In 96.96% of the complaints, the telecom user agreed to an amicable settlement.
Previous years’ annual reports
