Summary
This article examines the political dynamics of regulating decarbonised energy such as agrivoltaics and questions the intersectoral logics inherent in this energy. It examines the political dynamics of multi-level and multi-sector regulation of decarbonised energy such as agrivoltaics between the local and national levels and between the agricultural and energy sectors. It hypothesises that the political dynamics of agrivoltaics regulation are first and foremost multi-level: The national framework for agrivoltaics regulation is based on incentive instruments, in which the state attempts to develop a market to achieve its decarbonisation policy objectives via guaranteed feed-in tariffs, and also on an imprecise regulatory framework. At the same time, the regulation of agrivoltaic projects is a prerogative of the local level, paving the way for the development of diversified projects. Agrivoltaics also raises the question of the encounter between two historically well-established areas of public policy: energy decarbonisation policies and agrivoltaics. These strongly mobilise agriculture and farmers and call into question the traditional balances, institutions and sectoral divisions between the energy and agriculture sectors and their players.
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Notes
PV production capacity increased 100-fold between 2008 and 2014 for France as a whole.
A public policy sector is here understood as an ‘assembly of social roles structured by a logic of operation, usually professional’ (Jobert & Muller, 1987, p. 55).
Multilevel governance refers to ‘non-hierarchical systems of political negotiation, regulation and administration that go beyond the traditional understanding of the hierarchical, sovereign state as the ultimate arena for decision-making and conflict resolution’ (Christiansen, 1996, p.13).
In fact, the light occultation rate was too high (over 70% on average over the year; DREAL PACA, 2019) and climate controls insufficient because ventilation was limited in the first models (La Plateforme Verte interview, 2022).
Notice Circulaire Du 18 Décembre 2009 Relative Au Développement et Au Contrôle Des Centrales Photovoltaïques Au Sol, 2009.
Sun'Agri confirmed this bypass during our interviews.
Umbrellas fall within the scope of article R. 422–2-1 of the French urban planning code.
Another strategy for gaining access to agricultural land is to classify certain plots as ‘agricultural wasteland’, thereby bringing them under an exceptional land tenure regime.
Interview with Mr François de Rugy on France Bleu Gard on 5 June, 2019 on environmental policy.
In 2021, APCA, FNSEA and EDF Renouvelables signed a charter to develop and better supervise ground-mounted photovoltaic projects on farmland (EDF Renouvelable et al., 2021). The Jeunes Agriculteurs (Young Farmers) did not sign this charter as it did not meet their expectations in terms of land transfer issues (FNSEA interview).
Many departmental and regional Chambers of Agriculture have drawn up documents to ensure the controlled development of agrivoltaics, taking various forms (motions, doctrines, deliberations, charters, regional frameworks, etc.) on the subject of photovoltaics or specifically agrivoltaics. Within these documents, they establish the conditions that will enable projects to obtain a favourable opinion from the agricultural profession when planning permission is granted. These conditions are varied: they concern, for example, the farm’s sustainability, the project’s integration into the local environment, a fair balance of resources, the reversibility of the installation and agronomic monitoring (Chambre d’Agriculture de la Nièvre, 2021; Chambre d’Agriculture des Pays de la Loire et al., 2021; Chambre d’Agriculture du Lot, 2021; Chambre d’Agriculture du Vaucluse, 2020; Chambre d’Agriculture Hautes Alpes, 2020; Chambre d’Agriculture Pyrénées Orientales, 2021).
INRA and IRSTEA merged in 2020 to become INRAE.
Created in 2007, the Sun’R group became a company with a mission in 2021, and it is the parent company of Sun’Agri.
A recent motion adopted by the Confédération Paysanne states, ‘Working under the panels means degrading our quality of life at work, but also the environment and landscapes for all, for the benefit of a few landowners and developers. Whatever its surface area, a photovoltaic park on agricultural and natural land is an installation of an industrial nature’. Motion of 15/11/2021 quoted in ‘L’âge de faire’, n°180, January 2023, p.10.
Fabien Balaguer, quoted in ‘L’âge de faire’, n°180, January 2023, p.10.
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Hrabanski, M., Verdeil, S. & Ducastel, A. Agrivoltaics in France: the multi-level and uncertain regulation of an energy decarbonisation policy. Rev Agric Food Environ Stud (2024). https://doi.org/10.1007/s41130-024-00204-1
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DOI: https://doi.org/10.1007/s41130-024-00204-1