I agree John and I think that the wording is poor. Plastics can be manufactured with flame retardants, but obviously any plastic will combust eventually.
Die-cast aluminium is obviously also out of the question, aluminium burns well.
But as John rightly points out, even Steel is combustible. But your not going to be getting 1,500 degree electrical fires.
This should really have been addressed through product standards, not the wiring standards. Unless electricians are expected to undertake lab tests on any products they use, they should be expected to use products which were manufactured in accordance with an appropriate standard. Let the manufacturers decide how to comply. But then they couldn't apply it to product standards because this is a UK only regulation (this requirement isn't in the parent standard IEC 60364). Product safety standards are subject to European harmonisation. Hence manufacturers are free to sell plastic consumer units in the UK, its just that electricians can't install them.
The EN standards need to be tightened up - consumer units shouldn't be combustable anyway. This is all a bit back to front.
According the London Fire Brigade, consumer unit fires have increased an order of magnitude in the past decade. London is a growing and viberant city, but there aren't 10 times as many consumer units in london now as there were a decade ago. I suspect that the new one's have been cheep Chinese rubbish without the appropriate fire retardant additives in the plastic.
For TT installs, which is basically anywhere in rural Britain, these new metal boxes pose more of a hazard. Why not require IP66 rated enclosures? fire's don't last very long without an oxidising agent, an IP66 consumer unit without any drain holes.