The trusted voice

Marking the Consumer Council’s 40th anniversary, its CEO, Noyona Chundur, meets with agendaNi to discuss consumer protection during the transition to net zero GHG emissions by 2050, the role of behavioural change in this transition, the characteristics of the contemporary consumer, and her organisation’s vision for the future.

Leading the Consumer Council into its 40th year, Noyona Chundur identifies the anniversary as an inflection point. Following her appointment as CEO at the height of the Covid pandemic in January 2021, her organisation has relentlessly worked to protect the rights of consumers, champion their interests, influence policy and regulation to meet their needs, and empowered them to make informed choices.

“The Consumer Council has been on a transformative journey, and we have an incredible team. Our foundational statute anchored our purpose through the Covid pandemic, a cost-of-living crisis, and an energy crisis,” she reflects.
A nimble organisation, the Consumer Council supported over 100,000 citizens through its consumer helpline and outreach programmes in the last five years, returning over £2.3 million to consumers from independent complaint investigations.

“Our insights inform cross-cutting strategies and partnership working with government, civil society, academia, and industry, including supporting Northern Ireland’s Economic Vision and Energy Strategy led by the Department for the Economy, and have advanced consumer protection, affordability, and broader consumer interests,” Chundur says, adding: “While we are a small organisation, the Consumer Council is the independent, trusted voice for consumers.
“We empower consumers, giving them support, advice and tools to make informed decisions, as illustrated by the fact that our online resources have been accessed over three million times.”

Consumer protection

However, even amid reducing inflationary pressures following the peak of the energy crisis, consumer price inflation is still significantly above pre-pandemic levels. Given that a quarter of Northern Ireland households have an average disposable income of £53 per week, there is not much capacity among some to absorb, for example, the cost of the net zero transition.

“A sustainable energy future hinges on affordability and security of supply, equally, robust consumer protection is a fundamental building block of the transition and a non-negotiable if consumers are expected to embrace change,” the Consumer Council CEO begins.

“Without this protection, we risk creating a two-tier system where more affluent and digitally literate cohorts will confidently engage in the transition, while others are left behind.”

In its latest quarterly Pulse Survey – a snapshot of consumer sentiment – the Consumer Council finds that 82 per cent of consumers are concerned about fuel prices, 40 per cent of consumers felt that their household was worse off compared to 12 months ago, and 46 per cent find dealing with their finances a burden.

“Consumers need guarantees. Consumer protection is critical to fostering trust, confidence, participation and driving behavioural change, but it must also safeguard a consumer’s right to access, choice, safety, fairness, information, representation, redress, and education.

“These are the core principles used by the Consumer Council to assess where consumer interest lies, the minimum standards expected from any market, and to validate and develop consumer-orientated outcomes for policymaking and regulation.

“Ultimately, everything we do aims to provide a holistic view of the choices facing consumers, given the multifaceted circumstances they experience,” Chundur explains.

“While we are a small organisation, the Consumer Council is the independent, trusted voice for consumers.”
Noyona Chundur, CEO, Consumer Council

Fair and just net zero transition

Describing the transition to net zero as “the most significant multi-generational change of our time”, Chundur insists decarbonising the energy system must be pursued in an equitable and socially inclusive manner, with “consumers’ interests underpinning the design of public policy, legislation, regulation, and other interventions”.

Within a small economy with a high prevalence of rurality and limited resources, the challenges associated with delivering a fair and just transition are considerable.

“We cannot ignore the fact that the most significant proportion of net zero transition costs will be recouped in one of three ways: energy bills, taxes, or payment for products and services,” she outlines.

The Consumer Council’s research indicates inequalities in income, energy costs, and energy efficiency disproportionately impact vulnerable consumer groups, including those on low incomes, living with disabilities or long-term health conditions and in rural areas, and older consumers.

In this context, an integrated energy system that is reliable, flexible, and maintains security of supply at the lowest cost to consumers is essential, Chundur outlines.

“The Consumer Council supports Northern Ireland’s climate ambitions, and we protect consumer interests by advocating for a fair and just transition where consumer journeys are central to thinking, debate, and action,” she says.

Discussing the specifics of this transition, Chundur emphasises that attempts to scale the energy system are inevitably expensive because net zero cannot be delivered without investing in infrastructure. Therefore, costs must be fairly distributed and balanced with affordable access, choice, and convenience.

“We need equitable cost sharing models that are progressive and protective. Examples include grants and affordable finance for households to make the switch to low carbon heating, upgrade insulation, and adopt electric vehicles.”

Acknowledging the potential for flat rate charges to be regressive, she advocates for “targeted social tariffs across energy, water, and transport, specifically designed to support people most exposed to affordability pressures”.

“While levies are a policy instrument which might be considered, they must be transparent and tested, incorporating affordability assessments before they are implemented.

“We do not want to sleepwalk into a scenario in which hidden or regressive charges disproportionately impact vulnerable households.”

Amplifying consumers’ voices

Amplifying consumer voices, the Consumer Council asserts, means moving towards tangible participation in the design and delivery of solutions on the net zero journey. Consumers, especially those who are in vulnerable circumstances, must be actively involved so they can shape the policies, products, and services from the outset.

“We must recognise consumers do not live their lives in silos. They understand the transition to net zero through a connected prism encapsulating energy, water, and transport.

“Success, in terms of the net zero transition, will depend equally on delivering the infrastructure and the associated public acceptance and consent to do so. Public acceptance hinges on engagement, consultation, and co-design with communities.

The Consumer Council responds to this challenge by capturing consumer voices via its advocacy, outreach, and research. For instance, its Household Expenditure Tracker divides the household population of Northern Ireland into four income quartiles and has recorded household income and essential spending since 2021.

Today, the highest earning households have over 13 times more discretionary income each week compared to the lowest earning households. “This is in contradiction of an equitable and just transition, so we must do better,” Chundur observes.

Consumer behaviour

Having referenced the role of consumer behaviour, Chundur emphasises that behavioural change is fundamental for a climate neutral economy. Consumers need to understand what to expect, which requires energy and climate literacy as part of a connected conversation.

“Most consumers are not ready to engage on the journey ahead of them. To deliver the net zero transition, we need behavioural and societal change at scale.

“While infrastructure, finance, and regulation are all recognised as fundamental components of the transition, success ultimately hinges on behaviours; how people heat homes, how they travel, how they consume, and how they manage resources.”

Drivers of behavioural change

Consumer Council research shows that consumer willingness to engage is not the most significant barrier to the transition. In fact, most consumers believe it is important to make sustainable choices and want to do so.

Rather, as Chundur highlights, feasibility is the predominant barrier, which has three main drivers.

1. Affordability: Consumers must be able to afford low carbon alternatives.

2. Accessibility: Products and services must be available, reliable, and easy to use.

3. Trust: People must have confidence in new technologies and suppliers.

“We must acknowledge that, currently, these conditions are not being met for many households in Northern Ireland,” the Consumer Council CEO comments.

“On affordability, for example, the cost of retrofitting a home or switching to a heat pump, can total thousands of pounds. This is in the context of one-quarter of the households having an average disposable income of £53 per week, and half left with £110 or less per week. Furthermore, 94 per cent of consumers are worried about rising energy prices, limiting their willingness to invest in new technologies.”

Consumer Council research also indicates that most want to trust the energy system and its suppliers. To do so, consumers must understand the rationale informing the need for behavioural change, feel empowered to embrace this change, and to be offered appropriate support, encouragement, and recourse.

In short, consumers want to be incentivised rather than mandated to change their behaviour.

Collaboration

Discussing the collaboration between government, industry, and civil society to help consumers change behaviours and embrace the net zero transition, Chundur suggests it is fundamental to coalesce around shared principles.

“If we want consumers to change, we must make change easy, fair, and worthwhile. Rather than penalising consumers’ choices, we must empower them to take practical actions that align with their values and socioeconomic contexts,” she says.

The Consumer Council CEO identifies five spheres across which this collaboration must occur. The first is to ensure affordability through targeted grants, subsidies, and low interest loans, “to help households reduce energy consumption, invest in low carbon technologies, and increase energy efficiency”.

Secondly, an ambitious net zero transition cannot be delivered until basic infrastructure needs are met. This includes access to public transport and broadband, particularly for rural communities, EV charging infrastructure in underserved areas, and climate resilience.

Thirdly, consumers require a trusted space whereby they can access simple advice, grants, and accredited providers. “Most people lack time and confidence to navigate the information, solutions, and suppliers to successfully participate in the transition to net zero,” Chundur remarks.

Fourthly, cross-sectoral market regulation for a fair and just transition “must deliver strong standards, redress systems, and consumer protection in emerging markets”, including with regard to retrofitting, smart home devices, and battery energy storage systems.

Fifthly, the Consumer Council CEO believes “government and industry should collaborate closely with consumer bodies and civil society” on co-design and communication. “We are all working towards a common purpose for the greater good,” she says, adding: “We must therefore engage consumers together, in a timely manner, to co-design schemes and services and deploy tailored messaging to help remove barriers for inaction, while considering lived experiences and the digitally excluded.”

The modern consumer

Describing the modern consumer as “complex, adaptable, and increasingly values-driven” across the population spectrum, Chundur outlines that while the Covid pandemic heralded much greater awareness of consumer rights, awareness of and access to the tools to exercise these rights is less prevalent.

“Many consumers still struggle to access redress, confidently switch services, or engage with digital tools,” she says. “Navigating multiple systems and markets can feel overwhelming and at times quite exclusionary. While many of us are more informed because equipped with digital tools, we are also managing heightened cross-pressures.”

These include income disparity, contrasting expectations about digital engagement, and competing concepts of environmental responsibility, meaning that many can slip into inertia when faced with market complexity.

Simultaneously, the Consumer Council CEO believes the role of the consumer is also evolving. “Consumers are not simply purchasing goods or services. It is no longer transactional, rather it is relational. Consumers are being asked to take on more responsibility for the decisions that were once centrally managed, whether that is in renewable energy generation, transport choices, home energy efficiency, or even waste management. For most of us, that is okay, but for others the shift is daunting.”

Contemporary consumers, Chundur outlines, expect transparency, fairness, ease of use, and the ability to make informed choices. Above all, they want to feel protected, supported, and heard, especially in a rapidly changing environment catalysed by the transition to net zero.

Vision

Meanwhile, economic uncertainty and associated social challenges prevail. However, Chundur believes this context presents an opportunity for Northern Ireland to “exhibit leadership on the global stage as we build a sustainable, climate neutral economy, bringing citizens on the journey with us so they see the value of actively participating in our collective energy future”.

Acknowledging that the opportunity of enhanced consumer participation and empowerment hinges on political will, connected policymaking, and agile regulation, the Consumer Council CEO is assured that her organisation is “perfectly placed” to support the delivery of the Executive’s Programme for Government and strategies implementing this ambition.

“What consumers face today is very different from five years ago, and whilst we might not be experiencing the same degree of economic volatility, the lived reality for many remains uncertain.

“My priority, and the Consumer Council’s priority, is to consolidate the power of the consumer and position them at the heart of policymaking and regulatory reform,” she asserts.

Message for policymakers

Advocating for the voice of consumers to be heard in the policymaking process – directly influencing the decisions that impact them – Chundur reiterates the need for “harmonised, cross-sectoral regulation” that protects consumers, prioritises their rights, and minimises the inequality of access and experience of vulnerable groups.

“The role of the Consumer Council is to improve people’s lives by protecting and empowering consumers to drive positive and lasting change. We can only do that by being the trusted voice for consumers, supporting them through the challenges that they face, and enabling them to fully grasp the opportunities that lie ahead in the net zero transition,” she concludes.

Profile: Noyona Chundur
Noyona Chundur is Chief Executive of the Consumer Council, Northern Ireland’s statutory consumer body, having previously served on the board. She is a board member of the Progressive Building Society and the Arts Council of Ireland, a former Chair of the Cathedral Quarter Arts Festival, an IOD Chartered Director and the IOD 2023 Northern Ireland Public Sector Director of the Year. In her spare time, she enjoys books, gigs, and galleries.