(fra kommisjonsforordningen)

(1) Directive (EU) 2019/944 provides market participants with tools for accessing and exchanging data for seamless customer switching and minimises as much as possible the barriers to switching, while ensuring that consumers retain the freedom to choose their electricity supplier. To that end, Member States are to consider relevant available standards, including those that enable interoperability at the level of the data model and application layer. Additionally, Directive (EU) 2019/944 highlights the importance of adopting best practices and establishing solid systems to streamline data exchanges and enhance market efficiency. 

(2) In order to facilitate interoperability across Member States, enhance the effectiveness in data exchanges, foster competition in the retail electricity market and reduce administrative costs for stakeholders, it is necessary to set out interoperability requirements and establish non-discriminatory and transparent procedures for data access and exchange in the context of customer switching, in accordance with Article 24 of Directive (EU) 2019/944. 

(3) Pursuant to Article 23(1) of Directive (EU) 2019/944, and in order to ensure that final customers can exercise their right to freely choose their supplier in a nondiscriminatory manner regarding cost, effort and time, as stipulated by Article 4 of that Directive, this Regulation focuses on the data required for final customers to switch electricity supplier. While customer switching could also involve changing an aggregator, pursuant to Article 12 of Directive (EU) 2019/944, or an energy sharing organiser in accordance with Article 15(a) point (3) of Directive (EU) 2024/1711, this Regulation focuses on electricity supplier switching. 

(4) Complementing the rules on metering and consumption data set out in Implementing Regulation (EU) 2023/1162, this Regulation provides a harmonised and comprehensive framework for data access and exchange in the context of customer switching ensuring that data access and exchange among electricity market participants is timely, simple, and secure. Administrative barriers should be reduced, and greater consumer engagement should be fostered. Duly authorised suppliers should be able to transparently and seamlessly access accounting point data. 

(5) In order to allow national customisation to address Member States’ needs, a technology-neutral ‘reference model’ should be established. The model should set out common Union-wide rules and procedures, focusing on the three upper layers of interoperability, as recognised in industry practice: the business, function, and information layers. It should not be tied to any specific implementation details, but it should reflect, to the extent possible, the definitions and terminology taken from relevant standards and European initiatives, such as the Harmonised Electricity Market Role Model and the International Electrotechnical Commission’s Common Information Model. By standardising workflows across the Union, the reference model should facilitate the seamless and efficient data exchange, supporting the broader objectives of transparency, competition, and consumer empowerment in the retail electricity market. 

(6) The reference model should include workflows for specific services and processes, based on a minimum set of requirements designed to ensure that a given procedure can run correctly, while allowing flexibility for national adaptations. Therefore, it should comprise three key components: (i) a ‘role model’ outlining the roles, responsibilities and their interactions; (ii) an ‘information model’ setting out information objects, their attributes and relationships; and (iii) a ‘process model’ detailing procedural steps. 

(7) Successful implementation of this Regulation depends on Member States applying this reference model, ensuring that market participants share a clear and mutual understanding of the roles, responsibilities, information model, and procedures for accessing and exchanging data. At the same time, the implementation of the reference model provides Member States with the flexibility to tailor the communication and component layers to their national specificities and practices, while maintaining consistency in core processes across the Union. This approach aligns with Article 3(4) of the Directive (EU) 2019/944, which requires transparent and non-discriminatory rules for switching processes, ensuring that customers’ rights are upheld regardless of Member-State-specific arrangements. 

(8) This Regulation describes the roles and responsibilities of market participants in the exchange of information under the reference model, including those of the new and previous supplier, and the switching-specific responsibilities of the metering point administrator, or of the delegated entity where Member States have so provided. Market participants that exchange information following the specific procedures set out in this Regulation, should be able to assume roles and responsibilities assigned by the reference model either individually or jointly, and should also be able to carry out more than one role where appropriate. Therefore, it is necessary to specify the roles and responsibilities of market participants in the exchange of information pursuant to the reference model, including those of the new and previous electricity supplier, and the switching-specific responsibilities of the metering point administrator, or of a delegated entity where Member States have so provided. 

(9) In order to ensure smooth implementation of this Regulation, market participants should be able to test their products and procedures before deployment. Metering point administrators, or delegated entities where Member States have so provided, should therefore provide market participants with access to testing facilities where possible to help minimise technical challenges and fine-tune operations. 

(10) To achieve a smooth implementation of the reference model for switching electricity supplier, procedural steps should be laid down. Therefore, the reference model includes a set of procedures for data access and the required information exchanges between the roles performed by market participants in that specific context and the respective sets of information. To accommodate specific implementation requirements, it should be possible to combine or apply the procedural steps in a different sequence at the national level. 

(11) In order to ensure consistency with the provisions of Article 12(1) of Directive (EU) 2019/944 and improve transparency, empower consumers to make timely informed choices and foster retail competition by enabling electricity suppliers with competitive offers to attract customers more effectively, the technical process of switching electricity supplier should be established in accordance with the provisions of that Article. This process involves registering a new supplier at a metering or accounting point with the market operator, or the delegated entity where Member States have so provided, and, by the end of 2026, must be completed within 24 hours on any working day. 

(12) To enable a smooth technical process of switching electricity supplier, the switching framework should include automation to expedite operations, ensure interoperability for seamless and secure data exchange, and maintain robust data security to safeguard sensitive information. Moreover, to ensure grid stability, minimal disruptions and a seamless experience for all stakeholders, it is necessary for all market participants to collaborate closely, including those directly affected, such as parties gaining or losing responsibility for the accounting point as a direct result of a switch or cancellation of a switch, and those entitled to be informed of changes. 

13) In order to support broader consumer empowerment by facilitating efficient and transparent switching processes, whether individually or collectively, allow final customers to access competitive offers while ensuring strong protection, free from regulatory or administrative barriers, and to ensure conformity with the right of household consumers to participate in collective switching schemes pursuant to Article 12(5) of Directive (EU) 2019/944, the reference model for switching electricity supplier should not only address the process of individual final customer switching supplier at a single accounting point, but its procedures should be designed in such a way that they can be adapted to collective switching schemes. It should be possible to apply and repeat those procedures for each participant and their associated accounting and metering points, ensuring compatibility with collective switching initiatives. This type of switching poses challenges, particularly when large numbers of consumers switch simultaneously. To prevent delays or service disruptions, suppliers must be equipped to efficiently and accurately manage increased demand. This entails adhering to clear technical rules and procedures, following well-defined steps as outlined by the reference model introduced in this Regulation, and integrating automation into these operational processes. Such measures are key for achieving supplier readiness, ensuring a smooth process, maintaining consumer trust, and supporting market competition. 

(14) Consumer protection rules apply at all stages of the switching process described in this Regulation. Final customers may conclude different types of electricity supply contracts — such as on-premises or distance contracts — by various means, in accordance with applicable Union and national contract law. Moreover, and as part of the consumer safeguards, final customers could exercise their right to change their mind and withdraw from the new supply contract within the allowed withdrawal period, as defined at national level, in accordance with applicable Union rules on consumer protection, including Directive 2011/83/EU6 of the European Parliament and of the Council and its corresponding guidance of application. 

(15) Member States should be allowed flexibility to combine or rearrange the procedural steps of the common reference model as applied at national level. Additionally, they should be permitted flexibility concerning the communication and component interoperability layers, which are not prescribed in the reference model. However, to prevent that such flexibility results in challenges for suppliers and other eligible parties in understanding how the reference model is applied across Member States, potentially hindering market entry, a common repository of national practices should be maintained. This repository should build upon the one developed for access to metering and consumption data pursuant to Implementing Regulation (EU) 2023/1162. That publicly available repository should document how each Member State implements the reference model, increasing transparency and supporting nondiscriminatory procedures. By increasing awareness and clarity on applicable rules, the repository should help lower barriers for new market entrants. Additionally, it should allow stakeholders to compare national arrangements, identify similarities and differences, and facilitate the exchange of best practices, ultimately improving interoperability across the Union. 

(16) In order to contribute to the harmonised implementation of Directive (EU) 2019/944 and to foster enhanced interoperability across the Union, the European Network of Transmission System Operators for Electricity (‘ENTSO-E’) and the European Entity for Distribution System Operators (‘EU DSO Entity’) should, in addition to their advisory role, be tasked with developing, publishing and keeping up to date guidance for reporting of national practices. Furthermore, they should be given the responsibility of collecting the reports submitted by the competent authorities or entities appointed by Member States and making these reports publicly accessible through the existing repository established pursuant to Implementing Regulation (EU) 2023/1162. Member States shall appoint a competent authority or another entity responsible for preparing and submitting the required reporting directly to the ENTSO-E and the EU DSO entity. These arrangements should be clearly communicated and incorporated into the national implementation framework, ensuring transparency and accessibility. 

(17) Metering point administrators, or delegated entities where Member States have so provided, and current electricity suppliers, should be able to trust the declared customer identity in data exchanges during the switching process. Therefore, new electricity suppliers must appropriately identify final customers. To that end, and to reduce the risk of fraud and identity theft, electricity suppliers should rely on solutions that effectively verify the final customer’s identity, preferably using at least two authentication factors, such as the European Digital Identity Wallets, provided in accordance with the European Digital Identity Framework established by Regulation (EU) No 910/2014 of the European Parliament and of the Council. 

(18) Within the context of the procedures described in the reference model introduced in this Regulation, market participants receive and process data. The processing of personal data, including customer identifying data, exchanged using the procedures set out in this Regulation is to comply with the applicable data protection law, in particular Regulation (EU) 2016/679 of the European Parliament and of the Council, ensuring the protection of personal data throughout the supplier switching process. Furthermore, when smart meters are involved, given that they qualify as terminal equipment, the provisions of Directive 2002/58/EC of the European Parliament and of the Council10 concerning the processing of personal data and the protection of privacy in the electronic communications sector, are to apply. Relevant eligible parties should accordingly comply with their obligations stemming from this Directive, including Article 5(3). 

(19) The European Data Protection Supervisor was consulted in accordance with Article 42(1) of Regulation (EU) 2018/1725 of the European Parliament and of the Council11 and delivered an opinion on [12 June 2025]. 

(20) This Regulation introduces binding requirements for trans-European digital public services within the meaning of Regulation (EU) 2024/903 of the European Parliament and of the Council. Accordingly, an interoperability assessment has been conducted, and the resulting report has been made publicly available on the Interoperable Europe Portal.