The term “consumer” suggests a commercial transaction, a purchase of some sort. Conversely, using a broader term such as “public” wouldn't limit the legislation's application to a consumer exchanging money for a product or service. The term “consumer” suggests that a commercial transaction is taking place. The term “public” would allow for a much broader application of the legislation.
Take a consumer in an airport, for example. That refers to the individual with the airline ticket who is taking the flight. However, is the person who drops the passenger off at the airport a consumer asking for service at the counter, because the flight is delayed? Something is going on there.
In my view, anyone should be entitled to receive the service, even if they didn't engage in a commercial transaction with the airport.