A critical review of existing fuel poverty definitions in England: Problematisation, obfuscation and compatibility with a just energy transition

Semple, Torran; Rodrigues, Lucelia; Harvey, John; Figueredo, Grazziela; Gillott, Mark

Abstract

The way that fuel poverty (or energy poverty) is defined and quantified continues to divide opinion. In England, modern fuel poverty definitions, such as Low Income High Costs (LIHC) and Low Income Low Energy Efficiency (LILEE), have increasingly emphasised energy-efficiency-induced fuel poverty, to the detriment of income-poverty- and energy-costs-induced fuel poverty. Moreover, LIHC and LILEE assume that fuel poverty is a relative condition, such that fuel poverty rates are necessarily capped below the median household; in effect, this also implies that fuel poverty is ineradicable. The LIHC and LILEE methodology’s assumption of relativity is potentially invalid and highly likely to induce the underestimation of fuel poverty in low- and middle-income homes, particularly amid periods of economic recession and high consumer energy costs. In this article, we scrutinise the evolution of fuel poverty politics in England to better understand its modern problematisation as an issue that is primarily caused by energy inefficiency. Subsequently, existing fuel poverty definitions are critically examined, via the application of a novel Fuel Poverty Definition Evaluation Framework (FPDEF). We conclude that the majority of existing fuel poverty definitions have limited modern applicability, especially LIHC and LILEE, which explicitly obfuscate fuel poverty in some low-income, high-efficiency homes. Policy recommendations are provided for a fairer fuel poverty definition that satisfies modern needs. Specifically, we argue that budget standard approaches to measuring fuel poverty can better account for the potentially adverse impacts of energy transitions on fuel poverty and living standards.

Citation

Semple, T., Rodrigues, L., Harvey, J., Figueredo, G., & Gillott, M. (2025). A critical review of existing fuel poverty definitions in England: Problematisation, obfuscation and compatibility with a just energy transition. Energy Research and Social Science, 127, Article 104263. https://doi.org/10.1016/j.erss.2025.104263

• Journal Article Type: Review
• Acceptance Date: Jul 30, 2025
• Online Publication Date: Aug 12, 2025
• Publication Date: 2025-09
• Deposit Date: Aug 7, 2025
• Publicly Available Date: Aug 13, 2027
• Journal: Energy Research and Social Science
• Electronic ISSN: 2214-6296
• Publisher: Elsevier
• Peer Reviewed: Peer Reviewed
• Volume: 127
• Article Number: 104263
• DOI: https://doi.org/10.1016/j.erss.2025.104263
• Public URL: https://nottingham-repository.worktribe.com/output/52567273
• Publisher URL: https://www.sciencedirect.com/science/article/pii/S2214629625003445