Empowering and protecting EU consumers in an evolving energy landscape

This online FSR Debate explored the current level of protection of household consumers entering energy-related services. The starting point for the Debate was the recently published Citizen Energy Package, which was supported by the evidence collected in the FSR Study (De Almeida, Pototschnig, Porcari and Rossetto 2026) on the relevance of consumer rights and protections in the context of innovative energy-related services. The event has been scientifically organised by Lucila de Almeida and Alberto Pototschnig, with the latter giving the introduction. 

In the first part of the event, Massimo Bengt Serpieri, Deputy Head of Unit at DG Energy Justice & Consumer, presented the Pillars and Actions of the Citizens Energy Package, clarifying the rationale behind the Package and the European Commission’s mission, notably combining consumer protection with consumer empowerment. Mr Serpieri stressed that the idea behind the Package is not only to react to identified consumer protection issues, but also to reduce and prevent negative impacts on consumers that could materialise in the coming years.  

This introduction provided the context for the presentation of the FSR Study, which was outlined by Lucila de Almeida and Alessandra Porcari. 

Consumer rights and protection applicable to these services are analysed along the ‘Energy Consumer Journey’, covering all touchpoints a consumer encounters, from the initial stages before entering into an agreement, such as exposure to different selling practices, during the contract performance, such as billing information, and after the termination. The result of this systematic legal analysis enables the identification of common issues, informing a set of seventeen policy recommendations. 

The second part of the debate featured a panel discussion, moderated by Nicolò Rossetto, bringing together high-level experts representing key stakeholder perspectives: consumers, regulators, and the industry. 

Frederico Oliveira da Silva, head of Energy Policy at BEUC, commented that the Citizens Energy Package is timely and important, especially given current concerns about increasing energy prices. According to Mr Oliveira da Silva, the Package is important because it guides Member States in implementing and enforcing key EU law provisions on energy consumer rights. He also welcomed the AcceleratEU Communication, specifically regarding the Commission’s encouragement, addressed to Member States, to lower electricity taxes and levies. In addition to that, Mr Oliveira da Silva assessed the Commission’s measures on ‘best tariff advice’ as very useful, since it would facilitate supplier switching by increasing consumers’ awareness. Finally, he stressed the need to simplify the language on pre-contractual information and billing, therefore appreciated the Commission’s effort in providing standardised templates.  

Bram Claeys, Secretary General of CEER, presented the regulators point of view. He identified risk management by energy suppliers, particularly through adequate hedging, as a key regulatory priority, noting its importance in preventing negative impacts on consumers, as observed during the 2021-23 energy crisis. He also underlined that energy markets are rapidly evolving and becoming more complex, requiring regulators to strike a balance between adaptability and stability. Mr Claeys pointed out the growing diversity of consumer profiles, arguing that traditional “one-size-fits-all” approaches no longer work and that more personalised information and services are needed. 

Rita Alexandra Mota, Chair of Retail Market Design at Eurelectric, outlined three key considerations on consumer protection. First, she stressed that consumer protection frameworks should be broad and cross-sectoral, in order to avoid loopholes and inconsistencies, while still recognising sector-specific provisions where necessary. Second, she warned against creating regulatory asymmetries between traditional energy actors and new market participants, as this could increase risks and undermine consumer protection. Third, she emphasised that consumer protection should not be equated with over-regulation: innovation can deliver significant benefits to consumers and should be enabled rather than constrained by excessive regulatory burdens. 

The last panellist, Laurent Schmitt Chair of the Digital Agenda Committee at SmartEn, addressed the relationship between transparency and complexity, maintaining that many energy suppliers remain insufficiently digitalised. He underlined the importance of data exchange, consent management and interoperability, advocating for the development of a common European energy data space. Additionally, he focused on the information about (near) real-time data: rather than navigating complex billing details, consumers should receive timely and actionable information, for example, alerts when it is advantageous to switch tariffs or when contractual thresholds are exceeded. 

The final part of the debate actively engaged the audience through three polls focusing on forthcoming actions announced under the Citizens Energy Package. The polls concerned specifically: (I) standardised templates for energy bills; (II) barriers regarding data interoperability and the use of energy data for innovative energy-related services; and (II) initiatives aimed at rebuilding consumer trust.  

The concluding remarks provided by Mr Serpieri both summarised the debate main takeaways and illustrated the way ahead. First, he highlighted the increasing dynamicity of the energy market, characterised by a growing number of actors and offers. In this evolving context, characterised by diverse consumer segments and transparency issues, he raised a fundamental question: Is there a need to rethink the current energy market governance framework? While implementation remains central – and the Citizens Energy Package is primarily focused on this – there is still a need to reflect on both current developments and future trends. Second, Mr Serpieri emphasised the importance of interoperability. He noted that three implementing acts are being developed in this area, two of which have already been adopted, while the third, focusing on energy sharing, is forthcoming. Third, he stressed the importance of not overlooking vulnerable and energy-illiterate consumers, who require particular attention to ensure they are not left behind in the transition. Finally, he pointed to the untapped potential of cross-border retail energy markets. This is an area with significant room for growth, as consumers could benefit from increased choice and the possibility to switch suppliers across borders.