What does Ofcom’s Media Nations 2025 report reveal about the future of UK radio? Why is a full digital switchover unlikely anytime soon? How do FM and AM still serve millions of listeners despite DAB growth? Should Ofcom reopen analogue licensing to maximise access? How could on-demand FM and AM licences support community media, diversity, and local innovation? What policy steps can ensure efficient spectrum use and stronger public service media?
The UK’s push toward all-digital radio has been underway for over a decade, yet analogue FM and AM broadcasting remains remarkably resilient. Early plans envisioned a full switchover in which major stations would vacate analogue frequencies for Digital Audio Broadcasting (DAB), leaving only small community stations on FM. According to Ofcom’s Media Nation Report 2025, in reality, we find ourselves in 2025 with a hybrid radio landscape: DAB is firmly established, but a large segment of listeners still tune in via traditional FM/AM.
According to the government’s 2022 Digital Radio and Audio Review, about 33% of all adult audio listening was via DAB, while 23% still came through FM/AM radio. Even as of late 2024, RAJAR audience data shows analogue listening held around 27–28% of radio listening hours (with roughly 72% on digital platforms). These figures make one thing clear: a complete digital switchover – turning off FM/AM – is not imminent, and millions of people continue to rely on analogue radio.
Government and broadcasters have effectively acknowledged this reality; for instance, the BBC stated back in 2018 that it would keep some FM radio services “for the foreseeable future,” underscoring that any digital switchover would be a gradual, long-term process. In short, a full “digital switch-off” of analogue radio is off the table for now, given the enduring audience for FM/AM and the need to proceed at a pace driven by listener uptake rather than arbitrary deadlines.
Promises of Digital Radio vs. Reality
From the outset, digital radio was sold on several key promises – improved efficiency, more choice, better quality, and so on. It’s important to examine how these goals have played out in practice, and what issues have emerged along the way:
Spectrum Efficiency
Moving from analogue to digital was expected to free up valuable spectrum space (much as the digital TV switchover did) for new uses or services. In practice, however, the FM/AM spectrum isn’t highly sought-after for non-radio telecoms and offers no major new value beyond existing uses. This means the economic or technical gains from shutting off FM/AM have proved limited, reducing one incentive for a quick switchover.
More Stations & Choice
DAB technology can carry multiple stations on one frequency multiplex, theoretically allowing many more radio services and greater listener choice. The reality has been more muted. While DAB did introduce new stations, much of the market has been consolidated by a few large broadcasters. Major commercial networks (e.g. Bauer and Global) have filled DAB multiplexes with sister stations and similar formats, resulting in branded content overlap rather than a diverse explosion of new local stations. The promise of a richer plurality of voices has only partially materialised.
Better Audio Quality
Digital broadcasts were supposed to deliver static-free, crystal-clear sound. In practice, audio quality improvements with DAB have been marginal. Unless a DAB signal is strong and broadcast at a high bitrate with robust error correction, listeners may experience drop-outs or tinny audio. Low-bit-rate DAB+ streams can even sound worse than FM in some cases. Thus, the expected leap in quality hasn’t consistently reached consumers, especially on the new small-scale DAB multiplexes where many stations use very low bitrates.
Lower Costs for Broadcasters
One big driver for radio going digital is cost savings. Running a single digital network is cheaper long-term than maintaining parallel FM or AM transmitters. Indeed, we’ve seen broadcasters begin to shut down expensive analogue transmitters – for example, the BBC is phasing out BBC Radio 5 Live’s AM medium-wave broadcasts to cut energy and maintenance costs. However, because Ofcom has put a hold on new analogue licensing, those freed frequencies often sit idle; potential new operators can’t step in to use vacated AM/FM channels. The market demand can’t even be tested under the current policy of no new analogue licences.
Consumer Benefits
The ultimate test of any tech transition is whether consumers are better off. DAB offers conveniences like on-screen info and more stations, but many listeners compare it against internet streaming or podcasts. Standalone DAB radios have struggled to prove their value-for-money, especially as smartphones and smart speakers provide vast audio choices. Ofcom’s data suggests DAB radio set sales have plateaued, indicating that consumers aren’t universally convinced to buy dedicated digital radios. With many people perfectly content with FM radios (in cars, kitchens, etc.) or online audio, the rush to digital has slowed from the consumer uptake perspective.
These issues highlight that while the digital transition has brought progress, it hasn’t rendered analogue radio obsolete. Analogue listening is declining in percentage terms, but not disappearing – and the anticipated benefits of all-digital have been only partially realised. This context is crucial for policymakers and industry practitioners considering next steps for UK radio.
Analogue Radio’s Enduring Role
Why does analogue radio (FM/AM) still matter in 2025? What can it offer that complements the digital future? Several practical and public interest reasons stand out:
Wider Accessibility
Traditional FM/AM remain the most universal and cost-effective broadcast method to reach certain audiences. Many rural communities and economically disadvantaged groups rely on analogue signals due to patchy DAB coverage or lack of digital receivers. In areas with spotty DAB reception, a basic FM signal can still reliably deliver local radio. The infrastructure and receivers for FM are inexpensive and ubiquitous, which helps bridge access gaps that digital radio hasn’t fully closed.
Resilience in Emergencies
FM/AM radio provides a vital lifeline during emergencies or outages. Analogue broadcasts don’t depend on internet or mobile networks, so they continue to work when digital systems fail or when power is out (battery-powered radios can still receive FM). This makes them crucial for public safety messaging in crises. The analogue network’s simplicity and reach offer a layer of resiliency – a point even more relevant as concerns grow about over-reliance on internet infrastructure.
Local Content & Diversity
The homogenisation of UK radio content is a growing concern. As large commercial networks centralise their programming, local news and diverse voices are often cut back. Opening up analogue frequencies offers a chance for smaller community-oriented broadcasters to thrive, delivering genuinely local content and niche programming that big national stations overlook. FM and AM frequencies can serve grassroots media – community radio, student stations, minority language broadcasters – that reflect local cultures and needs. In short, analogue spectrum, if made available, can increase pluralism in the media by enabling new entrants that cater to local or under-served audiences.
Considering these roles, it’s evident that analogue radio complements the digital ecosystem. FM/AM is not a relic to simply abandon; it’s a platform that can still provide value, especially where digital hasn’t fully delivered. However, current policy has effectively frozen this potential. Ofcom has largely halted issuing new FM or AM licences while focusing on the rollout of small-scale DAB. This means even as some big broadcasters withdraw from analogue (for instance, closing AM relays in remote areas due to cost), would-be community operators or innovative startups have no pathway to apply for those frequencies. Valuable spectrum lies fallow when it could be put to use serving local listeners.
Ofcom’s Latest Update: No Switch-Off in Sight
Recent data and decisions reinforce the above picture. Ofcom’s periodic radio industry updates and market research show no imminent analogue shutdown. Digital listening has grown but seems to be plateauing around the 70-75% mark of radio hours. Notably, the growth of digital’s share slowed in late 2024, and even dipped slightly as DAB listening hours fell quarter-on-quarter.
This suggests that a chunk of the audience is sticking with familiar analogue, or at least not abandoning it entirely. Ofcom’s own research into DAB+ adoption, published in 2023, underscored uncertainty in the pace of change: while about 36% of UK households have a DAB+ capable radio (often via newer car radios), many owners don’t even realise their set is DAB+ enabled. There are still millions of legacy DAB sets that cannot receive DAB+ (the newer standard) and of course countless analogue-only radios in use.
Crucially, government policy has shifted to a cautious, market-led approach. When the threshold of 50% digital listening was crossed in 2018, it triggered a review of digital radio policy – but the outcome was no fixed date for an FM switch-off. The then draft Media Bill and official statements indicated that any future transition will be gradual and listener-driven, not mandated by a hard deadline. Small stations are to be protected on FM for now, and even major broadcasters must judge carefully before turning off analogue signals (as the Nation Radio Wales case in Ofcom’s June 2025 update illustrates, where a station was allowed to shut two FM transmitters only after demonstrating that DAB coverage and online streaming would adequately serve the affected area).
In that case, no listeners objected during the consultation period, and the alternative would have been the station surrendering its FM licence entirely. Ofcom’s decision to approve the partial shutdown was pragmatic – but it also highlights that if a licence were surrendered, Ofcom currently would not re-advertise that FM frequency for someone else. Under the status quo, it would simply go silent.
Bottom line
The figures and regulatory stance in Ofcom’s latest update confirm that analogue radio will remain part of the mix for years to come. Rather than treating FM/AM as a dying legacy to ignore, there’s an opportunity here to rethink how these frequencies can be used more efficiently and inclusively in parallel with digital radio’s continued expansion.
Opening Up FM and AM – A Demand-Led Approach
Given the enduring value of analogue radio and the clear indication that a digital-only future is a long way off, a key recommendation emerges, Ofcom should reopen FM and AM licensing on an on-demand basis. In practice, this means moving away from the long freeze and infrequent, centralised licence rounds, and instead allow applications for available analogue frequencies at any time (or at regular, frequent intervals) when spectrum is technically feasible.
An on-demand or demand-led licensing process would let new entrants come forward with proposals whenever there is interest and capacity on the dial, rather than Ofcom simply declaring the analogue band closed. To implement this effectively (and fairly), Ofcom could structure the process with clear criteria and safeguards – likely via a consultation to iron out details. Key considerations might include:
Local Need and Public Value
Applicants for an FM/AM frequency should demonstrate a community or market need for their service. For example, is there a town or region not well served by existing radio (including DAB) that this station would serve? Does the proposal bring unique content (local news, cultural programming, educational content, etc.) that isn’t currently available? Prioritising genuine public interest content will ensure that new licences expand choice in a meaningful way.
Technical Feasibility
Not every area has open frequencies, but many do – especially on AM or in spectrum vacated by mergers and network reorganisation. Ofcom would need to verify that an applicant’s plan fits the technical constraints (frequency availability, interference management, reasonable coverage area). This is standard for any broadcast licence, but under a demand-led system it would be a continuous check rather than a one-off window. Spectrum should be used efficiently, so if a frequency is free, putting it to use serves the goal of maximising access.
Complementarity with Digital
A crucial point is that opening analogue licensing should not undermine the growth of DAB and digital radio, but rather complement it. Demand-led FM licensing can be targeted especially at areas or communities not yet reached by DAB multiplexes, or content that is too localised or niche to find space on the limited slots of a DAB multiplex. In this way, analogue services can fill gaps that digital hasn’t covered, while we continue to expand digital infrastructure. For instance, if a small community station wants to serve a rural valley with an FM transmitter because the nearest small-scale DAB multiplex doesn’t reach there, that should be considered complementary to digital – not a threat to it.
Public Service Commitments
New analogue licensees, whether community-based, nonprofit, or even commercial, should adhere to basic public service principles. This could mean commitments to local news or talk programming, providing opportunities for community involvement, or other social gain metrics (building on Ofcom’s existing social gain guidance for community radio). In short, if Ofcom opens the door to more FM/AM stations, it can also set expectations that these stations contribute positively to local media ecosystems – not just run jukeboxes for profit. This ensures the spirit of the analogue spectrum (as a public resource) is maintained.
Moving to an on-demand analogue licensing model would likely require a formal consultation and updated guidance from Ofcom, since it’s a shift from how things have been done in recent years. However, it aligns with the broader direction of policy: the government’s agenda emphasises localism, diversity, and levelling-up regions. Empowering new local radio voices by unfreezing the analogue spectrum fits well with those goals. It could also reinvigorate innovation in radio, as passionate new entrants (from community groups to small entrepreneurs) test ideas in places that big media has abandoned. Not every experiment will succeed, but a flexible licensing regime would allow adaptation – successful services could grow, and if something fails, another could try, rather than leaving frequencies dormant.
A Balanced Path Forward
The latest data and industry developments show that the UK’s radio future will be a mix of digital and analogue for the foreseeable future. Rather than clinging to an outdated notion that FM/AM will simply wither away, policy should actively ensure these frequencies are put to best use. Ofcom’s role as regulator is to further the interests of citizens and consumers – and in radio, that means facilitating more choice, diversity, and coverage, whether on digital or analogue platforms. Opening up FM and AM bands through a demand-led licensing approach is a pragmatic step to achieve this. It would maximise access to the airwaves, making room for community media and innovative content that complements what DAB offers, all while maintaining the safety net and accessibility of analogue radio for those who depend on it.
In summary, we recommend that Ofcom initiate a consultation on re-opening FM/AM licences on demand, with appropriate criteria to manage spectrum efficiency and public value.
The evidence is clear that analogue radio is not dead – listeners continue to tune in by the millions, and digital switchover timelines have receded. By proactively managing the FM/AM spectrum now, the UK can avoid stagnation in its radio sector. Efficient use of all frequencies – digital and analogue – will ensure a vibrant, plural radio landscape that serves urban and rural communities alike. It’s time to unlock the potential of those FM and AM dials, integrating them into a forward-looking media policy that truly maximises access and inclusion in our public airwaves.
Sources: The analysis above draws on Ofcom’s latest radio industry updates and research, the UK government’s Digital Radio and Audio Review, and commentary from Decentered Media’s policy discussions on radio. Key data points on listening habits are sourced from RAJAR Q4 2024 figures and the DCMS 2022 review of broadcasting. All quotations and statistics are cited in-line from these reports for reference.