Inequality at the switch: How energy poverty undermines territorial resilience

Energy poverty is no longer a small issue but a structural challenge affecting millions of Europeans and threatening long-term sustainability goals. A new academic review published in Sustainability examines the intersection of energy access and territorial resilience, outlining a governance model that integrates equity, adaptability, participation, and proximity to guide future policy.

The study, “Energy Poverty and Territorial Resilience: An Integrative Review and an Inclusive Governance Model”, offers both a systematic review of current approaches and a framework for inclusive governance that could transform how governments, institutions, and communities address energy poverty.

Why energy poverty threatens resilience across Europe

Energy poverty has grown into a critical social and environmental concern, affecting more than 41 million Europeans according to Eurostat data. Defined as the inability to secure adequate energy services for daily life, energy poverty is directly tied to health, housing conditions, and quality of life. Beyond individual impacts, it weakens the resilience of entire territories by amplifying inequalities, reducing adaptive capacity, and undermining trust in institutions.

Despite its scale, policy responses remain fragmented. National and regional initiatives often adopt narrow definitions of vulnerability, leaving many households outside official support. Indicators used to measure energy poverty vary significantly, making comparisons across countries inconsistent. In many cases, policies fail to link energy measures with related domains such as health, climate adaptation, and housing rehabilitation. This siloed approach prevents the design of comprehensive strategies that address the structural nature of the problem.

The authors stress that without cohesive governance, energy poverty risks becoming entrenched, undermining social justice and the capacity of territories to adapt to energy transitions and climate pressures.

What gaps exist in current approaches?

The integrative review identifies recurring shortcomings that weaken existing policies and projects. These include:

• Scattered indicators and definitions: The lack of standardized metrics complicates cross-country comparisons and limits the ability to track progress.
• Neglect of vulnerable groups: Migrants, elderly populations, and residents in informal housing are often excluded from targeted programs.
• Weak cross-sector integration: Policies on energy, health, and housing rarely intersect, resulting in fragmented interventions.
• Limited access to finance: Households most affected by energy poverty face barriers to funding energy efficiency upgrades or renewable energy adoption.
• Uncoordinated governance: Multiple institutions act in parallel without clear coordination mechanisms, creating inefficiency and duplication.

The authors argue that these gaps not only diminish the effectiveness of interventions but also perpetuate inequalities. Energy poverty, they emphasize, is a multidimensional issue that requires multidimensional solutions.

How does the proposed governance model work?

To address these challenges, the authors introduce the Integrated Energy Resilience and Inclusion Network (IERIN) model. This governance framework is built on four pillars: equity, adaptability, participation, and proximity.

• Equity: Ensuring that policies and programs are accessible to all, especially marginalized groups often left out of conventional frameworks.
• Adaptability: Designing governance structures flexible enough to respond to local needs, shifting energy markets, and climate-related shocks.
• Participation: Embedding co-design processes with communities to ensure that solutions reflect lived realities rather than top-down assumptions.
• Proximity: Anchoring decision-making at the local level, where energy poverty manifests most tangibly, while maintaining coordination with national and regional policies.

The model encourages stakeholders to integrate technical, financial, and social considerations within a unified framework. It also presses inclusive financing strategies, where financial tools are tailored to reduce barriers for vulnerable households.

As a practical application, the authors propose testing the model in the Nesima district of Catania, Italy, a context marked by socio-economic vulnerability and energy challenges. This pilot would serve to refine participatory tools, coordinate institutions, and assess how well the four pillars function in practice before broader rollout.

What does this mean for future policy?

Combating energy poverty requires moving beyond fragmented initiatives toward a comprehensive governance model capable of bridging multiple policy domains. By situating equity and participation at the center, the IERIN model aims to prevent vulnerable groups from being overlooked. Adaptability ensures that governance remains relevant as energy markets and climate conditions evolve, while proximity grounds strategies in local realities.

The implications extend beyond Europe. As the energy transition accelerates globally, developing frameworks that link sustainability, inclusion, and resilience will become increasingly critical. The authors argue that the governance of energy poverty should not be treated as a peripheral concern but as a central test of whether the energy transition can deliver just and sustainable outcomes.

The Nesima case study is expected to offer practical insights into how the model can be implemented, monitored, and scaled. If successful, it could guide not only municipalities and national governments but also international organizations seeking to design equitable energy transition pathways.