Conservation, Community, and Clean Energy

• Why do conservation organizations support transitioning to clean energy?
• What constitutes well-sited renewable energy?
• Why isn't there more focus on putting solar in brownfields or on rooftops?
• What land-saving techniques can be deployed to reduce the footprint of utility scale renewable energy?
• What are ways communities can guide clean energy investments?
• What other community conversations are beneficial when thinking about clean energy investments?
• What conservation practices can be paired with solar farms?

Why do conservation organizations support transitioning to clean energy? 

Nebraska is home to the largest intact grassland system in the world, encompassing 12 million acres of ecologically sensitive lands. This landscape supports a diverse array of flora and fauna and is located centrally within the central migratory bird flyway. These grasslands not only provide for wildlife but also for the livelihood of thousands of ranching families and the local communities, which is why community engagement and science-informed land-use discussions are so important. Amplified wildfires, droughts, and flooding threaten Nebraska livelihoods, our homes, and our wildlife, which is why conservation organizations are leveraging their skillsets to support clean energy deployment.

Every form of energy comes with tradeoffs. With clean energy, the amount of land required for utility scale projects is not insignificant. Researchers estimate an area the size of Texas is needed to meet growing clean energy demand.

Our core land management and conservation practices already help capture and store atmospheric carbon in our working lands, however, we recognize that greater decarbonization is needed.

What constitutes well-sited renewable energy? 

Responsible expansion of wind and solar energy is necessary to ensure the well-being of our communities, businesses, and natural resources. Any type of infrastructure development has potential to negatively impact habitats, wildlife, water and air quality. However, many resources are available to help communities and developers understand potential impacts to at-risk species, migration corridors, wetlands, birds and biologically unique landscapes. Proactive planning can reduce project delays, resulting in lower costs, more efficient use of time and resources, and ensuring our natural resources continue to thrive.

To accelerate the deployment of renewable energy in a way that helps people and nature thrive, the Nature Conservancy's Site Renewables Right tool provides a foundation for science-informed conversations between communities and developers, helping to avoid project delays and impacts. The map synthesizes more than 100 layers of engineering, land-use and wildlife data. The result is an illustration of where extra care may need to be taken in conducting site-specific and on-the-ground evaluations to determine whether or not sensitive resources are present at specific locations. If they are, Nebraska-based wildlife and habitat organizations, such as The Nature Conservancy of Nebraska and Audubon Society of the Great Plains, are available to help ensure that impacts are minimized or avoided, and if this is not possible, that impacts be offset through conservation action nearby.  This FAQ addresses how this tool is intended to be used.

Why isn't there more focus on putting solar in brownfields or on rooftops? 

As utility-scale solar has become more prevalent in Nebraska, a common question asked is why these solar farms are often located on greenfields (land that hasn’t been developed) rather than on rooftops and/or brownfields (land that contains potentially hazardous materials, limiting their future uses). There are a variety of answers to this question that we’ll provide here. 

Rooftop solar is beneficial to the homeowner, local communities and the environment. Homeowners will see the benefit when that energy is used for their home or business, because it is “behind the meter.” This means that the owner of the rooftop solar is producing their own power, reducing the amount of energy they need from their utility as well as lowering their bill.  Additionally, in the event of a tornado or ice storm that knocks out power lines, the site can (with the right setup) continue to produce power from its panels, providing a level of security and peace of mind. Rooftop solar can also have a positive community-wide impact when strategically used on rural hospitals, schools, and other buildings that would benefit most from low energy costs and need to operate regardless of weather conditions because of the services they provide.

While rooftop solar offers many benefits at the residential level, there are several considerations that may affect how appealing it is to utilities. The first to take into account is how economies of scale work. With a large solar farm, developers can often negotiate lower prices for purchasing equipment in bulk, reducing the overall cost of the supplies for developing the farm. Additionally, because the solar arrays are more concentrated, it is simpler and more cost effective to connect the arrays to the power grid than it would be to connect hundreds or thousands of rooftop solar arrays. In fact, large solar farms generally cost about 1/3 the price of equivalent amounts of rooftop solar.

Another consideration that makes rooftop solar less appealing to utilities is the fact that it has far more variables involved than a large farm. A few examples include the quality of sunlight at any individual location and how much energy the homeowners use. Each home’s roof is not created equal in terms of the size and quality of solar generation. For example, if a homeowner has a tree planted in their yard, this may reduce the energy generated by solar panels on their roof as well as neighboring roofs. Additionally, each individual home might use more or less power than their neighbors at different times of day. This variation can lead to swift changes in supply and demand, which can put additional strain on the grid.

Regarding locating solar farms on brownfields, it can be a very appealing option for the communities located near the brownfield. Not only can solar development improve a site that would likely sit vacant otherwise, it can also provide substantial tax payments and increase nearby home values, benefiting communities that may have been impacted by harmful industrial practices that had occurred there previously. Developers can also benefit from building on brownfields such as abandoned mines, as they often have existing connections to the electrical grid, making it easier to develop in the area.

Despite these benefits, locating a site in a brownfield can lead to increased costs and potential issues for the developer and the communities near it. Because of the hazardous materials in the area, solar developers often must navigate complex legal situations that they wouldn’t deal with in other locations. For example, a solar developer may be legally liable for any cleanup/remediation costs on the property, even if they had nothing to do with the contamination. There are also typically more intense and longer permitting and review processes since there is potential for contaminants to be disturbed and released into neighboring communities during installation of solar arrays.

For further discussion on potential benefits brownfield development can provide to communities and solar developers, as well as some of the challenges it presents and ways to address them, read this report from the Nature Conservancy.

What land-saving techniques can be deployed to reduce the footprint of utility-scale renewable energy? 

One way to mitigate the landscape impact of solar farms is to practice agrivoltaics or, in other words, farm or graze livestock in the area in and around the solar facility. Agrivoltaics have garnered quite a bit of attention in recent years, as they can have several potential benefits. It can allow farmland to remain in production, provide and improve habitats for pollinator species, and create new economic opportunities such as solar grazing for agricultural markets. Below is a short video detailing some of the ways that agrivoltaics can be used.

Let’s talk about one type of agrivoltaic practice, solar grazing. Solar grazing is an agreement between the solar developer and local rancher where the rancher will bring in livestock (most commonly sheep to avoid potential damage to panels) to graze the area. This keeps plants from growing too tall and obstructing the solar panels. In this situation, not only does a rancher get to feed their livestock but they are paid to do so by the developer! Beyond the economic opportunities, solar grazing has been shown to improve the health of the soil by increasing the organic content in soil, reducing the acidity of soil, significantly increasing the availability of crude protein in the areas under panels, and potentially increasing pasture condition scores.

As for farming around and under solar panels, there are several ways to approach this strategy. An important consideration is whether the rows of solar panels and crops will alternate or overlap. When alternating rows, the layout will typically have larger gaps between the solar rows to allow for farming equipment to move through the area. This configuration, if intended to produce a commercial level of crops, may require more land to match the energy output of a traditional solar farm. In the overlapping layout, solar panels are installed higher off the ground to allow farmers to move underneath them and pick crops. Crops grown in this layout are typically shade-tolerant plants like tomatoes and raspberries that benefit from the protection the solar panels provide both from the sun and severe weather. Temperatures under the panels also tend to be cooler, meaning that crops require less watering. Additionally, while the crops benefit from added protection, the solar panels often benefit as well as water evaporates from the plants under them, cooling the panels and increasing their efficiency.

What are ways communities can guide clean energy investments? 

Community Benefit Agreements:

One tool for a community to use with developers is a community benefit agreement. Community benefit agreements (CBAs) can be utilized to create additional benefits from the development of a project. Through direct negotiation with the developer, the community can require developers to make a wide range of commitments beyond the scope of the project. Additionally, by working with the community, developers are more likely to secure necessary public support to move the project forward and ensure it lasts. The greatest appeal of a CBA comes from the fact it is legally binding, meaning that the community is able to hold developers accountable to their commitments.

As mentioned, CBAs have a wide scope, and often reflect the economic or social needs of a community at the time of negotiation. Some communities seek out immediate investments from project developers. These can include items like new emergency vehicles or immediate funding for infrastructure repairs. Typically, a CBA is more long-term focused, highlighting economic revitalization, development, and stability. For example, a rural community may seek a preferential hiring process in the local community before hiring outside the area, while also requiring a training program to encourage young people to stay in the community.

Several communities around the country have entered CBAs with renewable companies. Columbia Law School has begun to document some of the existing community benefit agreements between communities and renewable energy suppliers:

The above examples highlight the opportunities that engaging with the CBA process offer. Many of the communities have sought long-term financial benefits specifically for redevelopment and revitalization. Many of the smaller and more rural communities like Ripley, New York and Charlotte, Pennsylvania have used the funds for revitalization of their historic areas and main streets. 

Other success stories from rural communities have had specific benefits traced directly to the CBA connected with them. Lincoln County, Minnesota saw thirty new jobs connected to their wind farm go to the local community. In addition, annual payments of $80,000 are put into a grant that is used for services around the city.  The City of Hendricks was able to use this money to purchase a new fire truck and renovate city parks. The Fire Chief of Hendricks cited this money as essential to securing better equipment for the community in a timely manner. Clark County, South Dakota reported similar benefits from their CBA. They will receive $800,000 over the lifetime of their project which will be used to modernize their emergency services and fund beautification projects. These projects highlight how, with active and careful negotiation, CBAs can alter the course of renewable energy development in rural communities and provide a much needed funding source for areas that may struggle to otherwise acquire adequate funds.

According to the Center for Rural Affairs, community benefit agreements are particularly important for rural communities, where up to ninety percent of solar projects by 2050 will be located. By developing a robust process for creating a CBA, rural community leaders and organizations can be prepared to effectively negotiate with renewable developers and ensure the best possible outcome for their community. 

Resources for Engaging in Community Benefit Agreements:

• Center for Rural Affairs - Empowering Rural Development through Community Benefit Agreements
• Environmental Protection Network - Guide to Community Benefit Agreements (Including Templates)
• Columbia Law School - Best Practices for Community Benefit Agreements
• Citizen Planning Institute - Common Challenges in Negotiating Community Benefit Agreements

Ensuring Habitat Mitigation:

Renewable energy projects require land for development. This means limiting ecological disturbance is key for sustainable development. Avoiding ecological disruption can be particularly important when land usage is high, permitted land is also home to at-risk species, or the site encompasses a migration pathway. It’s important for communities to engage with developers and seek expertise from wildlife and natural resource experts both formally and informally, to ensure that their projects are not only providing clean energy but having as little of an impact on the location where they are constructing as possible. 

Formal methods for habitat mitigation can involve community benefit agreements (CBA), as discussed in the previous section, but where
natural areas are restored, protected or enhanced. Through a CBA, the community can ensure that the developer is following their ecological preferences for the project. 

Understanding common demands for habitat mitigation can help communities craft a sound strategy for approaching a developer or implementing municipal code changes for local government. Commonly in municipal codes, habitat mitigation has taken two forms: off-site land preservation and habitat banking. Off-site land preservation, otherwise known as Biodiversity Net Gain (BNG), is a policy where developers, in exchange for the land impacted during the process of development, must preserve a greater acreage of land elsewhere. Countries like the United Kingdom have standardized this practice with a ten percent BNG ratio, while the United States has left state and local governments to create their own policies for BNG. 

Snowmass Village, Colorado has implemented a BNG policy meant to preserve elk and mule deer winter habitats. Not wanting to fully block new development, the city requires a 1:8 ratio for land use. Essentially, for every one acre of development, eight acres must be restored as winter habitat for ungulates. The goal of this project is to ensure that more long-term wildlife areas are preserved and increase the town's biodiversity. Link to Snowmass Municipal Code.

The second strategy typically deployed in municipal habitat mitigation is habitat banks. Habitat banks are the ability of developers to buy credits that represent preservation of land. In part, they work similar to BNG where land is preserved in exchange for land damaged. However, communities may not directly benefit from habitat banks. For example, Hendry County, Florida is home to a Florida Panther Conservation Bank. Developments outside of Hendry County are allowed to purchase credits that go towards funding the panther conservation bank, meaning that preservation efforts are not necessarily seen in counties other than Hendry.

Camas, Washington has taken a stricter approach to habitat banking, seeking to ensure that habitat preservation remains local, while also mitigating the cost of disasters connected with ecological destruction. The city is required to approve a habitat bank prior to the dispersion of credits. Additionally, the habitat bank must be within the same watershed as the project to ensure that the local community benefits from preservation. Link to Camas Municipal Code.

What other community conversations are beneficial when thinking about clean energy investments? 

The tax revenue generated by renewable energy projects presents local governments with unique opportunities for revitalization and redevelopment. Opening this process to public discussion allows new avenues to be explored and can help engender public support for continued success of the renewable project. This holds especially true in rural communities where tax generation from a renewable energy project can be game changing.

Communities throughout the Midwest have gotten to experience the benefits of renewable energy projects:

One example close to home would be Allen Consolidated Schools in Dixon County, NE. In 2018, A wind farm finished construction and has since been paying $600,000 annually to the school district. Because of this increased revenue, Allen School District was able to reduce their tax rate by 29.7% from 2018 to 2023. According to the superintendent, Mike Pattee, “[Allen Consolidated Schools] have been able to reduce taxes greatly and a big part of that is the taxes generated from the turbines.” In Nebraska, many residents are burdened by high property taxes. Revenue from renewable energy projects provides funding for a school, county, or community that would otherwise be raised by taxes on residents, so as Allen Consolidates Schools demonstrates, renewable energy development can significantly reduce the tax burden on Nebraskans.

Outside of Nebraska, Minnesota counties were able to take in $14.1 million in wind energy tax revenues, and an additional $2 million was generated in solar taxes. These taxes are paid directly to the county and benefit the host community with 80% of the tax going to the county and the other 20% to the town or city that hosts the project.

Iowa has also seen communities flourish from wind energy tax revenue. Story County, Iowa, with a population of 98,000, is able to generate nearly $2 million a year from their 228 MW project. The County Board of Supervisors has used this to assist towns throughout the county, redeveloping town centers (like in Slater, IA) and updating infrastructure.

Michigan has been able to prevent tax increases on its citizens by paying for costs with renewable energy tax revenues. Three school districts in Isabella County needed over $35 million for school improvements. Typically, this would mean tax increases in the county to fund the improvements. However, as the school district superintendent noted, there was no need for tax increases due to the money from the local wind farm. The land where the wind farm had been built generated roughly 3.5 times more tax revenue than before its construction - paid for by the wind company.

Wisconsin uses a wealth sharing formula that provides benefits to the entire county. Richland County announced that, with the completion of the 50 MW solar project at Bear Creek, it would gain $80,000 annually from tax revenue for thirty years. The remaining funds would be given to the county - roughly $120,000 annually. The town clerk said that the money was going to general improvements such as infrastructure repairs, emergency service modernization, and more. 

As Nebraska continues to grow its renewable energy projects, more opportunities will emerge for the public to engage with elected officials to reap benefits seen in other states. Input from residents will be a necessity to ensure that the entire community benefits. An open process allows for more ideas for targeted economic development, community revitalization, and smart spending. 

What conservation practices can be paired with solar farms? 

Similar to agrivoltaics, the practice of ecovoltaics involves pairing solar with environmentally beneficial planting practices. The most common example of ecovoltaics, planting pollinator species in and around a solar farm, can have a number of benefits. The primary benefit is to create habitat for various pollinator species like bees and butterflies which are critical to a healthy and productive environment and are often threatened by habitat loss and pesticide use. Besides creating a safe habitat for pollinators, pollinator-friendly solar farms also help increase water infiltration and reduce runoff/erosion as the plant roots increase permeability and stabilize soil.

One study, conducted over 5 years and published in late 2023, measured effects on insect biodiversity and abundance as well as the quality of flowering plants in solar plots that had new pollinator habitat planted on them. Researchers found that plant richness - the sum of flowering species in the area - increased by sevenfold, the abundance of beneficial insects tripled, and insect biodiversity increased on average by 13% each year. Specifically, the population of native bees increased 20-fold over the course of the study.

At the Audubon Society's Rowe Sanctuary in Gibbon, NE, a portion of the transmission infrastructure have had UV-A lights installed with the purpose of illuminating the transmission lines to help prevent avian collisions with the structures. This addition, according to representatives from the Audubon Society, has reduced bird mortality caused by collision with the transmission lines by 90%.

Another up and coming conservation practice for solar farms is the use of wildlife-friendly fencing. With traditional chain-link fencing, nothing but relatively small animals can pass through. This can lead to an issue called habitat fragmentation, where animals are blocked from their typical travel paths and are potentially cut off from necessary resources or habitats. To avoid this, solar developers have begun to look at a variety of options to accommodate larger animals like turtles, foxes, rabbits, and more.

A few examples of wildlife-friendly fencing/practices given by the Nature Conservancy include raising fencing ~6” off the ground, installing 8” diameter pipes at regular intervals, installing wildlife-permeable fencing (fencing with larger gaps), and maintaining wildlife corridors for animals of all sizes to pass through. While there is a wide range of options, many are still being studied for effectiveness and require an understanding of the local wildlife behavior for proper siting.