Any electromagnetic wave can be considered to be comprised of photons, although the term photons is most commonly associated with a particular kind of electromagnetic wave, namely light.
As I indicated in an earlier post in this thread, in the case of an electrical signal that is being conducted via wires the near light speed propagation of that electromagnetic wave is intimately related to movement of electrons within the conductor, even though that electron movement occurs at a **vastly** slower speed.
Sfroyen’s comment that "the energy flow takes place in the dielectric surrounding the conductors -- including the surrounding air" is absolutely correct. Photons do not travel within metallic conductors, electrons do. Ralph (Atmasphere) has made the same point, btw, in prior threads here that have involved similar controversies.
Regards,
-- Al