The NRRP and the Italian energy transition. Interest groups in implementation, between structural power, insiderness and new coalitions

ABSTRACT

Italian energy policy has traditionally been significantly influenced by large state-owned companies, commonly referred to as national champions, as well as by fossil fuel interests. The impact of the energy transition on this situation has been limited, as the adoption of renewables in Italy has not been accompanied by the emergence of a robust green coalition. The National Recovery and Resilience Plan provided an opportunity to address this situation. Through process tracing and interviews with key policy actors, this article examines the implementation of energy transition measures outlined in the plan during the recent administrations of Draghi and Meloni. The analysis underscores the changing role of relevant interest groups and business actors in this sector. It reveals that the structural power of national champions and the influential position of core insiders have not diminished, particularly following adjustments to the recovery plan prompted by the Russia-Ukraine war. Nonetheless, the article notes that green outsiders have, through coalition dynamics, increased their involvement in policy implementation. Additionally, it emphasizes that the unfolding energy transition is driving a reconfiguration of interests that transcends the traditional divide between fossil fuels and renewable energy.

KEYWORDS:

• Italy
• National Recovery and Resilience Plan
• energy transition
• renewable energy
• implementation
• interest groups
• national champions

Disclosure statement

No potential conflict of interest was reported by the author(s).

Notes

1. The Recovery and Resilience Facility (RRF) is the temporary and key instrument of NGEU, https://commission.europa.eu/business-economy-euro/economic-recovery/recovery-and-resilience-facility_en

2. See for instance, ‘Le mani del settore dei combustibili fossili sul Recovery Plan’, Report ReCommon 28 June 2021, available at: https://www.recommon.org/le-mani-del-settore-dei-combustibili-fossili-sul-recovery-plan/ (accessed 22 October 2023).

3. Structural power refers to business interests – such as those of banks, large electricity or fossil fuels companies – which have this power automatically thanks to their strategic position in the economy and politics (including foreign relations) of the country. Instrumental power instead derives from the ability to promote sectoral interests thanks to lobbying capacities, informational and relational resources that allow systematic access to policy makers (Culpepper 2011, 2014).

4. For instance, in Spain, ENEL Green Power has respectively 2.08 GW and 2.90 GW of solar and wind installed capacity, whereas in Italy the capacities are only 0.35GW and 0.87GW (https://www.enelgreenpower.com/it/impianti). But even outside Europe, in countries like Brazil and Chile, ENEL Green Power has more installed solar capacity than in Italy.

5. This exclusion was applauded by environmental associations and local communities, but criticized by the trade unions (Filctem of CGIL). QualeEnergia, January 2021, https://www.qualenergia.it/articoli/il-ccs-a-ravenna-e-fuori-dal-piano-di-ripresa-ma-che-ci-fa-eni-al-g20/

6. Regarding Coldiretti’s commitment to biogas and digestate, see lobbying and specific amendment to the 2020 budget law (December 2019, https://www.cuneo24.it/2019/12/biogas-e-digestato-grande-risultato-di-coldiretti-51662/); on collaboration between ENI and Coldiretti, see: https://www.ilpuntocoldiretti.it/attualita/energia/energia-firmato-laccordo -tra-coldiretti-ed-eni/.

7. Legambiente has been demanding incentives and new regulations on bio-methane since 2011; see.

https://www.qualenergia.it/articoli/20111028-spingere-il-biometano-rinnovabile-le-reti-del-gas-e-le-pompe-di-carburante/); but Kyoto Club in December 2020 also underlined the strategic role of methane in the ecological transition (https://www.iesbiogas.it/blog/forum-qualenergia-il-ruolo-strategico-del-biometano-nella-transizione/), and SNAM Environment was present at the same meetings to present the commitment to the bio-methane supply chain of the SNAM Plan 2020–2024.

8. A joint note demanded greater commitment from the government on simplifications and the unlocking of renewables (5 July 2021); see: https://www.qualenergia.it/articoli/rinnovabili-decreto-semplificazioni-cosi-non-si-sbloccano-progetti/

9. All written briefs filed by the cited associations can be consulted at: https://www.camera.it/leg18/1347?shadow_organo _parlamentare = 2801&id_tipografico = 01

10. Numerous hearings were held and more than 30 briefs were filed; see the Chamber of Deputies website, https://www.camera.it/leg18/1347?shadow_organo_parlamentare = 2810&id_tipografico = 10

11. Position paper, ‘Sistemi Agro-fotovoltaici’ March 2022 by Confindustria, Anie Rinnovabili, Elettricità Futura, Italia Solare, see: https://www.elettricitafutura.it/public/editor/Press_Room/CS/AR-EF-IS%20Position%20Paper%20 Agrovoltaico.pdf

12. Enel, ANEV, Elettricità Futura, AnieRinnovabili and Electricity trade unions participated in the Energy consultations. The demand for these consultations came from the Unions themselves, and from Confindustria in a joint letter to the MITE and MISE ministers, see https://uiltec.it/lettera-congiunta-sindacati-confindustria-a-cingolani-giorgetti/

13. https://www.qualenergia.it/articoli/rinnovabili-non-possono-aspettare-nuovo-governo/

14. See Annex II for details on decrees and auctions.

15. Position paper Fondazione Symbola, June 2023, https://symbola.net/approfondimento/le-comunita-energetiche-rinnovabili-cer-indagine-di-fondazione-symbola-ipsos-e-gruppo-tea/, but see also Orange paper 2022 by Utilitatis and REF Ricerche (2022), and Elettricità Futura: https://www.elettricitafutura.it/News-/News/Comunit-Energetiche-Rinnovabili-Elettricit-Futura-sul-Magazine-WEC-Italia-Dialogues-_5517.html

16. Common document on New PNIEC in the formulation phase to underline goals and intermediate steps, 8 June 2023, https://www.free-energia.it/pniec-istruzioni-per-luso-2/.

17. https://www.mase.gov.it/notizie/global-biofuel-alliance-gava-soddisfatta-sigillo-ufficiale-lavoriamo-con-visione-e

18. Elettricità Futura, a statement to government, MASA, MASE ministers and political parties, https://www.elettricitafutura.it/News-/News/Appello-di-Elettricit-Futura-ai-Partiti-politici-necessario-correggere-il-DM-Aree-Idonee-pena-il-blocco-delle-rinnovabili-e-di-_5404.html. Il Sole24ore, 29 September 2023, https://inu.it/wp-content/uploads/sole-rinnovabili-23-settembre-2023.pdf

19. The same document (Camera 2023) specifies that these meetings took place in July, on two days (18 and 19 July), when the Italian RepowerEu proposal had already been completed. The formal rather than substantial nature of the consultation was confirmed by our interviews (Interview No. 7, 8 and 9).

20. Documents: https://www.confservizi.emr.it/wp-content/uploads/2023/09/2-ODG-LO-STATO-DI-AVANZAMENTO-DEL-PNRR-1.pdf

https://www.innovationpost.it/attualita/incentivi/la-proposta-italiana-per-la-revisione-del-pnrr-404-miliardi-per-transizione-5–0/

21. Specifically articles 47 and 49 of Law 41/2023 expand the list of potential eligible areas and contain further measures of simplification for photovoltaic and agri-photovoltaic (see Annex II). https://www.qualenergia.it/pro/articoli-pro/rinnovabili-come-cambiano-regole-dopo-conversione-dl-pnrr-3/.