Firstly where is the incentive to save energy if its going to be capped at 2.5k.
It confused me at first, because it's not obvious - it is the average of everyone's bill which is capped and it's not an absolute cap on annual cost at all. The cap is a cap on cost per kw, so you will still pay for each and every kw you use. Less cost if you use less, more cost if you use more.