This isn't a government failure. The government is correctly pricing the true cost of industrial land use: the loss of farmland and natural space.
Rooftop solar is cost-effective because it cleverly avoids that cost by using land that's already developed. It's not winning because of bureaucracy, but because it's using a limited resource in a smarter way.
Acquiring land-use rights, permitting, environmental reviews, and zoning changes for an industrial power plant costs far more than the raw rent.
>Power consumption in the EU has flatlined
This is dangerously short-sighted, the mass adoption of electric vehicles and heat pumps will place enormous new demands on the grid.
> put the solar farms next to some of the shut down nuclear plants
Solar is much more land demanding than what the decommissioned sites of nuclear power plants can offer.