Report
21.09.2026
Customers

CEER Report on Consumer Protection Issues 2026

Context and Purpose

After 25 years of EU energy market liberalisation, retail markets have become more complex. Dynamic pricing, self-generation, energy sharing and digital services make it harder for consumers to understand their bills, compare offers and exercise their rights.

Building on recent ACER-CEER Market Monitoring Reports, this report examines five priority topics identified by national regulatory authorities (NRAs): bill design, complaint handling, switching, contract termination fees and unfair commercial practices in distance selling. It draws on case studies from NRAs across the EU, Great Britain and Norway, complemented by a survey of 21 NRAs.

Key Findings

Bill design: Bills have become longer and more technical, making them harder to understand. Sample bills and templates are among the recent efforts to address this.

Complaint handling: Approaches vary widely, shaped by complaint volumes, market maturity, supplier and DSO procedures, as well as regulators' resources.

Switching: Despite automation, many consumers stay with their supplier for long periods. Limited energy literacy, operational inefficiencies and the need for stronger safeguards against unauthorised switching all play a part.

Contract termination fees: Calculation methods are rarely set in legislation and are largely determined by suppliers. NRAs are strengthening transparency, clarifying scope and stepping up monitoring.

Unfair commercial practices: Consumers with limited market knowledge are exposed to aggressive tactics, often through distance channels, including artificial urgency. Effective enforcement and cooperation between authorities are key.

Recommendations

  • Prioritise concise key information and clear, comparable templates developed through stakeholder consultation, while keeping bills accessible to consumers with limited digital capacities.
  • Introduce a legal definition of a complaint, simple submission tools, clear responsibilities and response deadlines, with compensation when they are missed.
  • Support user-friendly comparison platforms, harmonise procedures through standardisation and strengthen cybersecurity and supervision.
  • Define eligible contracts clearly, improve transparency on potential costs and promote common principles for calculating fees.
  • Tackle rushed-decision tactics, back this with proper enforcement tools and strengthen collaboration between authorities.