In the first two articles of this three-part series, the Basic Principles and Common Barriers of zoning for solar have been discussed thus far. Now: a look at zoning for large-scale solar, commonly referred to as utility-scale solar or solar farms.
For most communities, large-scale solar is best regulated by conditional or special-use permits, and restricted to certain districts, such as industrial or commercial. With a conditional use permit, each site is considered with respect to its specific design aspects and relationship to the surrounding community. Even as a conditional use, municipalities can implement development standards for large-scale solar installations, with some popular regulations to consider below.
Buffers, Screening and Setbacks
Setbacks are a common tool to address visibility concerns, but adding extra setback requirements for solar that is more onerous than for other types of development should be carefully considered. Excessive setback requirements could impede development in some cases. Increasing setbacks may even have unintended consequences, like pushing developments further into natural areas, or ending up with large swaths of vacant land that could have been used for another purpose. Instead, other requirements like landscape buffers or vegetated screens may provide the aesthetic benefits for which communities are looking.
In the image below, you can see an example of a vegetative buffer, with shrubs planted along the bottom fenceline and new saplings planted to help block the solar farm from the road.
Alignment with State Codes
Ensure that local requirements for projects are not in conflict with state electrical safety standards. For example, projects not owned by a utility over 5,000 kW must comply with the National Energy Code (NEC), enforced in all 50 states. The NEC has fencing and other fire safety requirements to help first responders.
Prioritizing Brownfields
Closed landfills, brownfields (federally designated, potentially polluted sites) and other vacant lots are of particular interest for large-scale solar development. Prioritizing such sites can prove popular with the public and officials alike as they are not suitable for competing land uses. To learn more about the special requirements of such projects, review the toolkit Solar Development on Public Facilities and Under-Utilized Land.
Agrivoltaics and Environmental Quality
In the first article, Basic Principles, we introduced the concept of agrivoltaics. Allowing large-scale solar to be co-located with agricultural purposes in the zoning ordinance, such as animal grazing, can encourage such development.
Municipalities can also encourage or require large-scale solar installations to plant native plants or pollinator vegetation, improving the local environment by providing habitat for animals. Ensuring the vegetation planted below and around solar panels is a mix of native species will improve water filtration and runoff, as native plants often have deeper root systems.
Decommissioning
Solar panels have a lifespan of over 20 years, but as large-scale installations reach the end of their lifecycle, zoning ordinances should hold owners accountable in the responsible recycling and disposal of panels, as well as any land restoration. Decommissioning regulations can be triggered when systems are not in operation over a certain threshold of time. A good decommissioning plan should also outline the party financially responsible for all costs.
For model ordinance language, especially regarding decommissioning and agrivoltaics, visit GPI’s Model Solar Ordinances. These guides were written for specific Midwest states, but the content is widely applicable to most communities, taking into consideration that your state laws may differ.
Large-scale solar may not be appropriate for all communities, especially if your jurisdiction does not have open and developable land, brownfields or industrial districts. However, smaller installations on rooftops and yards are still a viable option to include in your zoning ordinance. Lastly, other land use priorities, such as housing, agriculture, parks and conservation should be balanced against your energy goals to determine the highest cost/benefit ratio for your community. Working regionally and collaboratively with other local jurisdictions can ensure that development occurs in the most efficient and sustainable manner possible.
Additional Resources
- Solar@Scale: A Local Government Guidebook for Improving Large-Scale Solar Development Outcomes, International City/County Management Association (ICMA) and American Planning Association (APA)
- Large-Scale Solar and Energy Storage Systems Toolkit for Local Governments, Interstate Renewable Energy Council (IREC)
About the Author
Zoning for Solar: Common Barriers
- Kelly Aves
Zoning for Solar: Basic Principles
- Kelly Aves
Powering The Future: How Chick-fil-A is Testing Solar Microgrids
- NLC Partnerships
Innovative Approaches to Dual-Purpose Solar
- Kelly Aves
Streamline Solar Permitting and Zoning with SolSmart
- Kelly Aves
