When It Comes to Large-Scale Solar, One Size Does Not Fit All
When APA and ICMA launched Solar@Scale in late 2020, relatively few communities had much direct experience with large-scale solar development. Even in rural and exurban areas, local zoning codes rarely referenced large-scale solar energy systems, and any code that explicitly authorized ground-mounted systems seemed noteworthy. Nearly five years later, zoning regulations for community– and utility-scale solar energy systems are much more common. We are also seeing the emergence of more nuanced regulatory approaches that recognize the diversity of development contexts, the range of potential project designs, and related co-benefits.
This was the frame for "Breaking Through the Pro-Solar/Anti-Solar Binary," a Solar@Scale-sponsored learning lab at NPC25 in Denver. During the session, the Solar@Scale team introduced agrivoltaics, ecovoltaics, and low-impact solar projects as meaningfully distinct — and less controversial — forms of large-scale solar development. Then, we highlighted the power planners and local officials have to use zoning to encourage project designs that confer local benefits. Finally, participants workshopped ideas for refining approaches to defining and regulating different types of large-scale solar projects to capture local benefits and help assuage concerns.
Through live polling, participants weighed in on the locational conditions (Figure 1) and co-located uses (Figure 2) that could affect the acceptability or desirability of projects in their communities. And their responses suggest that relatively few contemporary zoning codes include definitions or standards that distinguish between different types of large-scale solar facilities (Figure 3).
Working in small groups, participants brainstormed ideas for new large-scale solar development thresholds and criteria. A key question they wrestled with was how to distinguish authentic agrivoltaics, ecovoltaics, and low-impact solar projects from those where beneficial features may be present but aren't integral to the project design. In response, one group suggested tying zoning incentives for agrivoltaics and ecovoltaics projects to the percentage of the project site area with fully integrated agricultural or ecological uses. Another group proposed classifying large-scale solar facilities on brownfield sites as a distinct land use. This would make it possible to permit these facilities by right in districts that would otherwise require discretionary use permits for large-scale solar development.
These discussions dovetailed with the core themes of the Solar@Scale guidebook. When it comes to large-scale solar development, "large" is context sensitive. Large-scale solar development can confer significant benefits on host communities, but as with any development, there can be tradeoffs. Consequently, planners and local officials have a responsibility to work with community stakeholders to establish a vision for large-scale solar development. With this vision as a guide, they can craft zoning updates and shape land-use decision-making processes in ways that maximize the benefits and minimize tradeoffs.
Solar@Scale
Solar@Scale is a partnership between the International City/County Management Association (ICMA) and the American Planning Association (APA) that aims to help cities, towns, counties, and special districts understand and realize the potential benefits of large-scale solar development.
Have a question about Solar@Scale or want to share your experiences with planning and zoning for large-scale solar development? Contact solar@planning.org.
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