Billing error was top problem for heat network consumers last year

It’s 1 year since Citizens Advice became the statutory advocate for heat network consumers in England and Wales. On 1 April 2025 we launched a new advice service, offering tailored support for heat network consumers via a specialist team in our Consumer Service. Ofgem issued new regulations for heat networks in January this year. This introduced consumer protections to give people living on heat networks similar protections to those using mains gas and electricity. This is a major step in the right direction. Citizens Advice has called for this regulation since 2017. We’ve used early data insights from our new advice service to support Ofgem’s development of the consumer protections.

Over the past year, we’ve gained detailed insight into individual cases where consumers have been at risk of serious harm. We’ve also analysed a broader overview of key trends based on the clients who have reached out to us. Our data highlights 3 areas where consumers are experiencing issues:

• billing error
• debt and disconnection
• reliability of supply

1. Billing error, particularly back-billing, is the most common problem for heat network consumers

Billing error is the single most common type of problem our advisers have helped people with. Half (52%) of the cases advisers have dealt with have been related to billing error, compared to a third (32%) for mains gas and electricity customers. This includes inaccurate bills, catch-up bills and, more recently, an increase in back billing issues.

Our advisers record detailed case notes when heat network consumers come to us for help. This rich data provides insight into the individual experiences of consumers. In a recent case, advisers supported Tariq* who received a back-bill of over £1,000 covering a period between 2023 and 2025. This was due to the housing provider previously charging an incorrect estimated bill. However, Tariq was told that if he questioned the back bill formally it would be increased. Our adviser shared details about how to make a complaint.

2. Disconnection is putting vulnerable consumers at risk

With a year’s worth of data, we can track changes over time and spot seasonal trends. Whilst billing error remains a key issue, issues relating to debt management, affordability and disconnection have become more prevalent. At its peak, this made up 34% of issues in December (see the orange bar in the chart below).

The overall debt issues are predominantly driven by issues related to prepayment meter self-disconnection. That’s where a consumer can’t afford to top up their meter and is left without heating. This makes up over half of the debt cases (56%). The data indicates an increase in this specific problem since December 2025.

In February, Jodie* came to our advice service as she’d been unable to top up her prepayment meter. She didn’t receive her Universal Credit payment in January and informed her supplier she wouldn’t be able to top up. She explained she has a 1 year old child and shouldn’t be disconnected. Despite this, her supply was cut off. She was told a £70 debt needed to be paid in full before she could be back on supply, which she couldn’t afford. Jodie was referred to our tier 2 advice service, which helps people in vulnerable circumstances, and was supported until she was able to get back on supply.

3. Reliability of supply disproportionately affects heat network consumers

Our data shows a growing prevalence of network issues, with quality and reliability of supply showing a seasonal profile. This can be where consumers experience short outages or where their heating is off for days or weeks. This is a particular concern for heat network consumers. More than 1 in 10 (13%) of the cases our advisers dealt with since April 2025 have involved heat network consumers who are off supply or have unreliable supply. This is more than 10 times higher than the rate we see for mains gas and electricity where only 1% report unreliable energy supply.

Our advisers have helped clients the most with reliability issues over the winter months. That’s exactly the time of year when a heating outage will cause the most harm and risk leaving people in the cold. A quarter (25%) of all the cases our advisers helped clients with in January 2026 were related to unreliable heating (see purple bar in the chart above).

In a recent case, advisers supported Colin*, an 81 year old council tenant with medical vulnerabilities. In January Colin experienced a heating outage, which had happened repeatedly due to an old boiler and could take weeks to resolve. Our adviser arranged temporary heating and organised repairs ensuring that Colin’s heating was back up and running less than a week after getting in touch with us.

We’re here to help when heat network consumers face problems

The heat networks advice service will give us more data on the issues consumers need help with. We’ll continue to use this frontline insight to make the case for protections which meet consumers’ needs.

If you live on a heat network and need help with back-billing, disconnection, heating outages or anything else, call an adviser on 0808 223 1133 (Monday to Friday, 9am to 5pm) or visit our website. Consumers in Scotland can access similar support from Advice Direct Scotland.

*Names have been changed