Interpreting non-contestation: Institutional understandings of renewable energy projects and participation dynamics in Portugal

Local decision-makers play a central role in shaping how renewable energy projects are governed, yet their interpretations of public attitudes often rely on limited forms of participation. This study examines how municipal councils, parish councils, and common lands committees in Portugal understand and manage wind and solar developments, with attention to participation, institutional friction, and energy justice. Drawing on semi-structured interviews with four municipal councils, seventeen parish councils, and four common lands committees, the findings show that support for Renewable Energy Sources (RES) is primarily framed in economic terms. Decision-making authority remains concentrated in formal institutions, while public participation is minimal and frequently viewed as unnecessary. This limited involvement is normalized by local actors and reinforced by institutional frictions—including unclear mandates for participation, low administrative capacity, and path-dependent routines—that constrain more inclusive engagement. In this context, the absence of contestation is often interpreted by institutional actors as acceptance, even when it is shaped by structural constraints rather than by meaningful consent. The results indicate that non-contestation is necessary but insufficient for assessing social acceptance or procedural justice. The prevailing pattern reflects governance arrangements in which distributive benefits are prioritized over participatory rights. The study highlights the need for policies that clarify participation requirements, strengthen administrative capacity, and embed transparency and deliberation in the governance of renewable energy projects.