In Dubbo more than half the people seeking assistance from the Salvation Army need help with power bills they cannot pay, said Salvation Army's Lieutenant Mark Townsend.

"A number of people find it difficult to understand their bill," he said.

"It still remains a very big issue in Dubbo."

The Australian Energy Regulators has revealed high and confusing energy bills are two major issues faced by NSW residents.

Electricity retailers experienced double the amount of complaints in 2013-14 than in 2012-13 with 650 complaints recorded each day.

The price of bills and difficulty understanding bills were the top two reasons more than 237,000 households, or one in seven customers, complained to their retailer in 2013-14.

NCOSS, or the Council of Social Services of New South Wales, CEO Tracy Howe said access to energy is essential for community members with a big family, who are aging or have a disability.

"Low-income households have been the hardest hit by escalating electricity and gas prices, and too many people are spiraling into debt," she said.

Ms Howe encouraged the introduction of a percentage-based rebate system to assist those struggling to pay the bills.

"This would also correct the urban-regional divide, where regional households pay more for their electricity even when they use the same amount as city-based counterparts," she said.

Lieutenant Townsend said it is particularly crucial for community members to keep cool as the mercury climbs.

"Particularly during hotter days people, especially those experiencing bad health and the aging, need to regulate their temperatures," he said.

"But this can lead to excessive energy bills."

The quality and age of appliances being used may also determine the energy output and price of bills.

"Older appliances may be less energy efficient, but newer equipment can be expensive," he said.

The Salvation Army aim to assist those who are struggling to pay utility bills by providing vouchers, hampers or food assistance.

The report also found the highest average annual bills, of almost $2500, were in the Essential Energy area.