Heat networks regulation: consumer protection guidance​

Feedback updated 13 Jan 2026

We asked

We asked for views on the draft consumer protection guidance under the forthcoming heat networks regulatory framework. The areas of draft guidance included:

  • Standards of Conduct
  • quality of service
  • billing and transparency
  • back-billing 
  • heat supply contracts
  • protections for consumers in vulnerable situations
  • security of supply

The consultation asked stakeholders for their views on whether the draft guidance areas are relevant to the authorisation conditions, and useful. It also invited feedback on how the draft guidance could be improved.

You said

We received 37 responses from a range of stakeholders, including: 

  • operators and suppliers 
  • local authorities
  • housing associations 
  • consumer organisations 
  • trade bodies 
  • property managers
  • consumers

Stakeholders broadly agreed with the draft guidance, with constructive feedback highlighting areas for improvement and further clarity.

We did

We have decided to proceed with the intended guidance, using stakeholder suggestions to make changes where appropriate in order to finalise the guidance ahead of regulatory commencement. 

View our consultation decision (PDF, 784 KB)

Published responses

View submitted responses where consent has been given to publish the response.

Closed 17 Oct 2025

Opened 5 Sep 2025

Contact

heatnetworksregulation@ofgem.gov.uk

Overview

We are consulting on our draft guidance for consumer protections for heat networks in Great Britain (England, Scotland and Wales).

This consultation follows the heat networks regulation: implementing consumer protections consultation, published by the Department for Energy Security and Net Zero (DESNZ) and Ofgem on 7 November 2024. The responses to this consultation have been analysed and the government response was published on 8 August 2025.

We are now seeking views on our draft guidance for consumer protections for heat networks, including on areas such as complaint handling, billing practices and protections for vulnerable consumers.  

The consultation will be of interest to the heat network industry, including:  

  • consumer advocacy groups 
  • industry trade associations 
  • energy supply companies 
  • local authorities 
  • housing associations 
  • managing agents, property management companies and developers 
  • landlords 
  • building owners 
  • heat network consumers 

Background 

The Energy Act 2023 named Ofgem as the regulator for heat networks in Great Britain. Our most recent Forward Work Programme outlines how we intend to develop a regulatory framework for heat networks which is proportionate, in line with our duties to protect consumers, and which supports:   

  • investment 
  • market growth 
  • meeting the government’s net zero targets 

In addition to the 2024 consultation and the 2025 government response, this consultation builds on the approaches proposed in:   

Before you start

Read the 'Heat Networks regulation: consumer protection guidance’ consultation and draft guidance document. You’ll find them in the ‘Related’ section on this page. Please refer to the guidance document when giving us your views. 

Why your views matter

Your feedback will help us develop new regulations to protect consumers and improve network reliability, while allowing growth in the sector.

What happens next

This consultation closed on 17 October 2025. Feedback received, and further stakeholder engagement, will be used to finalise this first iteration of guidance on the areas of consumer protection covered here. This will be published before regulatory commencement in January 2026. 

Audiences

  • Business bill payer
  • Consumer groups
  • Energy industry employees
  • Heat network operators
  • Heat network suppliers
  • Household bill payer
  • Landlords
  • Local authority
  • Social housing providers
  • Trade associations

Interests

  • Heat networks