Achieving the EU’s commitment under the Paris Agreement, the Energy Union Strategy, and the European Green Deal, requires a significant transformation of current energy systems. Renewable energy is a major component of this transition, and thus, policymakers face the challenge of making decisions about new renewables-dominated energy systems. Because real world experimentation is in large scale not possible, models can serve as ‘laboratories’ by allowing policymakers to explore different decarbonisation options in a virtual world and generate a better understanding of the policy domain.
While many energy policies are backed by computational models, we do not know exactly how and when policymakers use models, and to what extend policymakers influence modelling performed. We take these gaps as a starting point to empirically investigate the twofold processual interaction between computational energy modelling and energy policymaking. In particular we study: (i) how and when models are used in the policymaking process, and (ii) whether and how policymakers influence the design, use and results of energy modelling. Thus, we investigate how energy modelling and energy policymaking affect each other, so as to advance future model development for sounder policymaking. We conducted analyses of modelling and policy documents and performed 32 interviews with four different stakeholder groups in five different jurisdictions within Europe.
First, we show that models are used and have an impact on policymaking. Depending on countries context, we reveal that models are used to push ambitious climate and energy policy, while in other cases models are not used at all, or model results are used to justify political inaction. Furthermore, we show that modelling tools function as ‘laboratories of sustainable transition’ and support decision-making processes along the whole policy-cycle: from target setting, through policy formulation to evaluation. Models are especially useful when they are set up to directly answer specific questions that policymakers might have, i.e. to explore the implications of options that they are considering. In contrast, they are less useful when they tell policymakers what course of action, from the modeller’s perspective, would be best. We find, however, that model use is also limited, because of the complexity of modelling processes, as well as the lack of open data and open-source models. In the end, models have to compete with other information sources and concerns.
Second, we also show that policymakers influence models and modellers. Especially, ‘in-government’ and government-commissioned modelling allows policymakers to set the framework conditions of modelling performed. Even a higher level of the policymakers’ influence is reflected by deciding over how models and their results are politically used. Overall, the case studies demonstrate, energy modelling and policymaking can influence each other ‘for the good and for the bad’: they can foster radical policy changes and ambitious target setting, or they can be instrumentalised to justify inaction and radical no-change, respectively.
Based on our research, we draw implications for the development and use of models for and in policymaking: first, models should be improved to be applied as ‘sustainable energy transition laboratories’, not delivering exact numbers, but to be used for exploring questions and policy measures policymakers are having in mind. In this regard, they can be applied within stakeholder processes to catalyse the political and societal debate on what are the pros and cons of different possible energy futures. Second, open-source models and an open modelling platform can foster model understanding, trust and use, as well as deliver comparable and credible results for European and national policymaking. Importantly, all interested stakeholders from the energy sphere should have an equal and understandable access to such tools, even if they are not modelling experts and developers, because it could increase model legitimacy and impact in policymaking. To conclude, computational energy models can assist in exploring different energy futures towards Europe’s climate neutrality, but it requires ambitious modelling in line with the Paris Agreement, the Energy Union’s objectives and the European Green Deal.