Ofgem published its first Consumer Vulnerability Strategy (CVS) Progress Report on 21 July 2026, assessing how suppliers deliver support to consumers in vulnerable situations. The report draws on Vulnerability Focus Sessions held with suppliers during 2025/26 and covers the first two themes of the strategy, identification and smarter use of data, and support for those struggling to pay, alongside supplier governance1.
Ofgem says delivery is improving but inconsistent. It found that identification of consumers in vulnerable situations "is improving, but is not yet consistent across the sector", and that support for those struggling to pay "is strengthening, but delivery remains uneven in places"1. The report states that at the end of 2025, around 58% of consumers who were behind on their bills were in arrears without a repayment plan1.
"This first Progress Report focuses mainly on the first two themes and considers supplier governance, reflecting the current debt and affordability context"
The report sets out several figures on debt and payment behaviour. Average weekly repayment amounts rose from around £7 to £9 per week in 2020 to around £12 to £14 per week in 2025, while the average number of weeks to repay debts was lower in 2025 (107 for electricity and 102 for gas) than in 2020 (127 and 121 respectively)1. Average debt levels fell from around £8 for both electricity and gas in 2022 to around £5 in 2025, but the average age of debt increased from 158 weeks at the end of 2020 to 269 weeks for electricity, and from 130 weeks to 276 weeks for gas in 20251.
| Measure | Earlier figure | 2025 figure |
|---|---|---|
| Average weekly repayment | £7 to £9 (2020) | £12 to £14 (2025) |
| Weeks to repay debt, electricity | 127 (2020) | 107 (2025) |
| Weeks to repay debt, gas | 121 (2020) | 102 (2025) |
| Average debt level | Around £8 (2022) | Around £5 (2025) |
| Average age of debt, electricity | 158 weeks (end 2020) | 269 weeks (2025) |
| Average age of debt, gas | 130 weeks (end 2020) | 276 weeks (2025) |
Ofgem also lists work it has carried out alongside the strategy, including a consultation on lower standing charge tariffs in September 2025 and a one-year pilot launched in April 2026; a consultation on the proposed Debt Outcome in June 2026; a call for input on the Cost Allocation Review in July 2025; guidance on the ethical use of AI in the energy sector published in May 2025 and updated in May 2026; and 24/7 emergency contact requirements introduced from August 20251. It says supplier practices on Additional Support Credit have changed since an expectations letter on the original policy intent in August 2025, and that it published a letter to suppliers and a guide for energy suppliers and debt advice providers in January 20261.
Why it matters for households
The report concerns how suppliers identify households that need help and how quickly that help arrives. Ofgem says identification can remain too reactive, particularly for less engaged consumers who may not know what support is available or be less likely to disclose their circumstances, and that where need is not identified early, consumers may be missed or only receive help once problems have escalated1. It also notes concerns about how consistently needs are recorded on the Priority Services Register and how effectively that data is used to target support1. For a household, the practical link is between being known to a supplier and receiving timely help with bills, payment arrangements or meter access. The report says billing accuracy and meter access issues, particularly for those with traditional meters, can make it harder to understand what is owed and to agree support1. Details of supplier obligations are set out in what suppliers must do for vulnerable customers, and the role of Citizens Advice, Consumer Scotland and the Consumer Council is covered separately.
What happens next
Ofgem says the next cycle of focus sessions is planned for early 2027, to align with annual Social Obligations Reporting data1. It also says it will review the Priority Services Register, take forward measures to reduce the amount of debt consumers are building up, and drive improvements in billing standards through compliance and potentially rule changes1. The report states that Ofgem will continue to work with government on efforts to enable data sharing and more joined-up approaches to identifying vulnerability and targeted affordability support1.
Sources1 cited
- Coumer Vulnerability Strategy: Progress Report, ofgem.gov.uk