HomeMy WebLinkAbout01-10-2022 Climate Action CommissionIowa City Climate Action Commission Agenda
Monday, Jan. 10, 2022, 3:30 – 5:00 p.m.
Emma J. Harvat Hall
Iowa City City Hall
410 E Washington Street
Meeting Agenda:
1. Call to Order
2. Roll Call
3. Approval of Nov. 1, 2021 minutes
4. Public Comment of items not on the Agenda
Commentators shall address the Commission for no more than 3 minutes. Commissioners shall
not engage in discussion with the public concerning said items.
5. Staff Announcements
a. Welcome New Climate Action Commission Appointees:
i. Gabe Sturdevant
ii. Michal Eynon-Lynch
b. Action items from last meeting (November)
c. Climate Action Plan Update (Staff request deferring discussion to Feb.)
6. Officer Elections
a. Chair
b. Vice-Chair
7. Old Business:
a. Presentation of Iowa City Climate Action Marketing Study by Cause Impacts
b. Presentation of Draft Iowa City Solar Study by Johnson Clean Energy District
8. New Business:
a. Updates on working groups (see reports in agenda packet)
i. Buildings (Krieger, Soglin, Grimm)
ii. Outreach (Krieger, Fraser, Bradley)
iii. Equity (Hutchinson, Hill)
iv. Adaptation (Leckband, Giannakouros)
9. Recap of actionable items for commission, working groups, and staff
10. Adjourn
If you will need disability-related accommodations in order to participate in this meeting, please contact
Sarah Gardner, Climate Action Engagement Specialist, at 319-887-6162 or at sarah-gardner@iowa-
city.org. Early requests are strongly encouraged to allow sufficient time to meet your access needs.
MINUTES PRELIMINARY
IOWA CITY CLIMATE ACTION COMMISSION
NOVEMBER 1, 2021 – 3:30 PM – FORMAL MEETING
EMMA J. HARVAT HALL, CITY HALL
MEMBERS PRESENT: John Fraser, Stratis Giannakouros, Ben Grimm, Megan Hill, Matt
Krieger, Becky Soglin, Eric Tate, Kasey Hutchinson (via zoom),
Jesse Leckband (via zoom)
MEMBERS ABSENT: Grace Holbrook
STAFF PRESENT: Daniel Bissell, Sarah Gardner, Rachel Kilburn
OTHERS PRESENT: V Fixmer-Oraiz, Judy Joyce
CALL TO ORDER:
Fraser called the meeting to order at 3:46 p.m.
Noted technical difficulties impacting Hutchinson and Leckband ability to participate virtually.
APPROVAL OF OCTOBER 4, 2021 MINUTES:
Krieger moves to approve the minutes from October 4, 2021.
Soglin seconds the motion, a vote was taken and the motion passes 7-0.
PUBLIC COMMENT OF ITEMS NOT ON THE AGENDA:
None.
STAFF ANNOUNCEMENTS:
Action Items from last meeting:
Staff researching repair costs for covered equipment for energy efficiency incentive
program.
Jane Wilch, Iowa City Recycling Coordinator, will present at January 2022 meeting.
Fraser encouraged watching the UN advertisement for COP 26: Dinosaur lobbies
against extinction.
2020 Greenhouse Gas Inventory Updates:
Achieved 49% reduction from 2010 to 2020 (surpassed goal of 45% reduction by 2030),
Kilburg noted significant drop in industrial sector and impacts from MidAmerican’s shift to
83.6% renewable energies.
Results will be reported with Annual Climate Action Report in late Fall
Climate Action Commission
November 1, 2021
Page 2 of 4
2
Discussed opportunity to revise timeline and adopted climate actions in coordination with
accelerated progress.
Climate Action and Outreach Staffing Updates
o Coordinator job description revised to include supervisory responsibilities and
budget authority and will require City Council approval. Plan to seek Council
approval in November. Kilburg acknowledged work of Gardner and Bissell during
Coordinator position vacancy.
o Introduced new Commission member, Clarity Guerra
Updated Action Plan Report:
Kilburg noted updates to reporting format in conjunction with larger Office organizational
efforts and reviewed progress updates:
o Bissell developing Climate Action equity mapping tool
o Hiring for additional building inspector underway with plan to get all inspectors
trained in energy code and add additional building envelope inspection items
o Bissell and Gardner to attend Iowa Energy Summit and hope to translate what
they learned to a contractor Lunch & Learn
o HID to LED lighting replacement project underway for all City parking ramps
o Downtown/RFX TIF Energy Efficiency Matching Grant program anticipated to roll
out soon, will start with 10 awards.
o Electric buses expected to be in operation Mid-December
o Gardner and Wilch developing an outreach and engagement campaign focused
on various resource management and climate action issues, will be piloted in
November.
o 1,200 new trees were planted in 2021
o Education and outreach on Resilience Hubs conducted during ClimateFest 2021.
Gardner collaborating with community partners to advance concept of Teen
Resilience Corps.
Tate encouraged re-evaluating actions and priorities. Discussed lack of details on
adaptation section of Climate Action Report and suggested evaluating other metrics
Discussed inviting Building Inspection Services staff to report on energy code inspector
program
Krieger expressed approval of new reporting method and action plan timeline and
accountability measures.
Climate Action Staff will begin reporting on both Climate Action Office Updates and
Updated Action Plan progress in tandem, bi-monthly.
OLD BUSINESS:
Discussion of updated residential incentive programs for energy efficiency:
Bissell reported staff are evaluating options for bolstering existing Community
Development Energy Efficiency Rehab Loan program to address gaps
Presentation on Flood Resilience Action Plan for Coralville, by Astig Planning and Impact
7G:
Fixmer-Oraiz and Joyce presented on outreach and planning work in developing Flood
Resilience Action Plan for Coralville, including targeted outreach efforts, business pledge
component, and asset mapping
Climate Action Commission
November 1, 2021
Page 3 of 4
3
Commissioners expressed praise for efforts to reach diverse populations
Discussion of the role cities can play in building a support network, being proactive, and
planning for displacement and compound disasters
Soglin and Krieger recommended working with Johnson County and Business
Partnership to promote this work and directory/map of resources
Krieger noted intersection with resilience hubs
Giannakouros encouraged evaluating these issues beyond preparing marginalized
individuals for loss and focusing proactive efforts at an institutional level
NEW BUSINESS:
Update on Working Groups:
Buildings: Met after agenda packet was released and will include October meeting
report in next agenda packet.
Outreach: report in agenda packet
Equity/Adaptation: October report will be included in next agenda packet
General Discussion:
None
RECAP OF ACTIONABLE ITEMS FOR COMMISSION, WORKING GROUPS, AND STAFF:
Working Groups to review new Updated Action Plan format
ADJOURNMENT:
Motion to adjourn at 5:05 p.m.
Motion seconded.
A vote was taken and the motion passed unanimously. Meeting adjourned.
Climate Action Commission
November 1, 2021
Page 4 of 4
4
NAME TERM EXP.
5/3/2021 6/7/2021 7/5/2021 8/
2/2021 9/6/2021 10/4/2021 11/1/2021 Madeleine Bradley
12/
31/2022 NM x O/E NM -- -- -- John Fraser 12/
31/2021 NM x x NM x O/E x Stratis Giannakouros
UI Rep NM x x NM x x x Megan Hill 12/31/2022 NM x x
NM x x x Grace Holbrook 12/31/2021 NM O/E O/
E NM O/E O/E O/E Kasey Hutchinson 12/31/2022
NM x
x
NM x x O/E Matt Krieger 12/31/2023
NM O/E x NM x x x Jesse Leckband MidAmerican Rep
NM x O/E NM x x O/E Becky Soglin 12/31/
2022 NM X x NM x x x Eric Tate 12/31/
2021 NM x O/E NM
x x x
Ben Grimm
10/31/2022 NM
x x
NM
x x x
Clarity Guerra
12/
Summary of New Updates to Climate Action Work Plan – Updated January 6, 2022
Buildings
Energy Efficient City Rehab Projects: Climate Action and Neighborhood Services staff collaborated to develop a
process and update energy efficiency and electrification improvement priorities and guidelines for City rehab
projects. First tier improvement priorities include insulation, electrical panel upgrades, house wrap, and window
replacements. A pre- and post- home energy audit of all rehabbed units benefitting from Climate Action funds
has also been incorporated into the process. Staff will begin rehab on the next duplex to be sold as part of the
South District Homeownership Program, with the additional layered benefit of work being performed in
collaboration with a women in construction trades course through Kirkwood Community College (BI-2, BI-5).
Neighborhood Energy Blitz Expansion: The Climate Action Engagement Specialist and Neighborhood Services
Coordinator have partnered to plan a neighborhood-driven Energy Blitz Phase 2 with the South District
Neighborhood. Planning has also begun to launch a Phase 1 Energy Blitz in the Lucas Farms neighborhood in
April 2022 (BI-3).
Commercial/Industrial Energy Efficiency Incentive Program: In December 2021, the City launched a Commercial
Energy Efficiency Matching Grant Program for property owners in the Downtown, Riverfront Crossings, and
Northside Marketplace areas. The Heinz/Sycamore/Scott/Six Industrial Program remains open.
Residential Electrification & Energy Efficiency Rehab Grant Program: Based upon Commission feedback,
Climate Action staff collaborated with Neighborhood Development Staff to implement a residential rehab grant
available to existing rehab loan participants in targeted neighborhoods. The grant will fund additional
electrification improvements (i.e. panel upgrades) and energy efficiency improvements (i.e. insulation or
appliances) that would otherwise not be made or would require the household to take on more loan debt (BI-9).
Municipal Facility Efficiency and Electrification Updates: The City is undertaking a full upgrade from HID to LED
lighting on all parking ramp top decks. 10 have been completed on the Court St. Ramp and an additional 31 are
planned for Spring 2022 at the Dubuque, Capitol, and Swan ramps. Public Works staff are proceeding with a
direct purchase solar installation on the new Public Works Facility (approx. 39kw).
Upcoming Priorities:
Hold educational Lunch & Learn with building and construction professionals (BE-2).
Re-engage potential community partners (contractors, community college, economic development
groups, landlords and tenants) (BI-5)
Review recommendations and outcomes of Solar Study (BP-1).
Long-term/ongoing opportunities:
Promote energy efficiency, weatherization, and performance tips to the public, focusing on cross-
promotion of incentives from multiple parties and targeted landlord outreach (BE-1)
Continue to support and promote Green Iowa AmeriCorps Energy Audits (BI-1)
Transportation
EV Readiness Plan Implementation: Staff developing a multi-family EVSE rebate program to assistant multi-
family property owners with electrical upgrades and installation costs of EV charging units (TI-2)
Upcoming priorities:
Establish regular reporting protocol for tracking adherence to City idling policy (TCP-2).
Assist with promotion of new electric buses, expected to be in operation in January 2022 (TE-1).
Long-term/ongoing opportunities:
Explore Sunday service, late night on-demand, and low-income fare programs (TPP-1)
Waste
Organic Waste Initiatives: As part of the partnership with Table to Table on a residential food waste reduction
outreach campaign and a small-scale commercial food waste processing system, In November 2021, staff
completed a food waste audit with Table to Table and CommUnity in November. 600 pounds of food and 50
pounds of trash were recorded in one week, representing the potential for about 15 tons of potential food
waste reduction per year. Resource Management continues to advance this project and have also initiated an
accompanying campaign for household food waste reduction. Planning underway for Zero-Waste 2022 Farmer’s
Market. Wintertime organics collection tips were disseminated in December (WE-1).
Construction Waste Diversion: Public Works’ staff have completed a rock crushing program which converted
road rehabilitation waste to usable rock for various City departments. Resource Management staff are also
beginning to explore possible partnerships for a construction and demolition recycling program (WI-1).
Upcoming priorities:
Explore opportunity for first regional mattress recycling facility in the state.
Adaptation
Teen Resilience Corps: The next steering committee meeting will be held in February. This is a concept
spearheaded by the Engagement Specialist and is a skill-building program intended to engage teens in local
resilience work and emergency preparedness (AE-2).
Athletic Field Environmental Certifications: Iowa City Parks & Recreation earned an Environmentally
Responsible Management Certification from the Sports Turf Managers Association. There are currently only 45
facilities worldwide that have achieved the Environmentally Responsible Management certification. Iowa City
currently holds the record for having the most fields/complexes certified. The facilities include, Mercer Park ball
diamonds, City Park ball diamonds, Iowa City Kickers Soccer Complex, and Napoleon Softball Field Complex.
Natural Areas Management Plan Update: The 100+ prairie acres planted between 2019 and 2020 are
progressing nicely with pioneering native species like black-eyed susan putting on a colorful yellow show this
year. Other native species are developing a strong root system before they begin to flourish in the coming 2-3
years. All areas were mowed 2-3 times this season at a high mowing height to help the natives establish and
keep weeds from developing seed. Parks staff are working to prepare 50 more acres for seeding in 2022.
Extreme Weather Preparedness: Funded through a Climate Action Grant, the Multicultural Development Center
held an Extreme Weather Event targeting underserved youth. As part of the event, Raspberry Pi computer kits
were distributed to youth with barriers technology access. In addition to gaining STEM skills in assembling the
technology, the students used the computers to play educational extreme weather games, learned to assemble
an emergency preparedness kit, learned about a watershed and flood risks, and learned to build an air-
conditioning unit out of a cooler, fan, and frozen water bottles. A partnership with Johnson County also enabled
distributed of 30 emergency backpack kits.
Upcoming priorities:
Launch Climate Ambassador Program Climate Leader component (AE-1)
Evaluate EAB tree removal impact on low-income populations (ACP-4)
Follow up on outcomes of AWSPO Resilience Hub study (AE-2)
Educate and Coordinate with Local Agencies on Health Impacts (AE-3)
Sustainable Lifestyle
Community Garden Expansions: In December, Iowa City Parks & Rec conducted a survey to collect
public input on improving and expanding the City’s Community Garden Plot program. Planning is also
underway for expansion and enhancement of community garden plots at Chadek Green Park, with work
anticipated to be completed in 2022 (SLP-1).
Speaking Of…” Education & Engagement Series: Climate Action & Resource Management staff held
the first event of a public outreach series designed to generate organic conversation with the
community around different climate action/resource management topics each month. January’s topic is
weighing the impacts of climate actions (SLE-1, WE-2).
Upcoming priorities:
Receive mid-year report from FY22 grant awardees, begin planning for FY23 Grant Program (SLI-1)
Develop a City Sustainability Operations Guide to share with the public (SLCP-2)
Phase Action Task Lead Jan Feb Mar Apr May
O/A SLI 1 Expand Community Climate Grants Climate Coordinator)
O/A
ACP 2 Continue Implementation of the Natural Areas
Management Plan Parks Rec
O/A ACP 3 Expand Public Tree Planting Parks Rec
O/A SLE 1 Host Sustainability Forum and Events Climate Engagement Specialist)
O/A
SLE 2 Launch a Green Business Program:Climate
Action at Work"Economic Development
O/A
BI 4 Launch a TIF funded climate action incentive
program aimed at reducing industrial energy
consumption Economic Development
O/A AE 1 Develop Climate Ambassador Team Climate Engagement Specialist)
O/A
BI 1 Offer Free Home Energy Assessments through
Green Iowa AmeriCorps Climate Engagement Specialist)
O/A
BI 3
Coordinate Neighborhood Energy Blitz Events Climate Engagement Specialist)
O/A
BE 1 Promote Energy Efficiency and Performance
Tips to the Public Climate Engagement Specialist)
O/A
BCP 2 Advocate for Aggressive Energy Code
Development and Adoption NDS
1
SLPP 2 Develop a Climate Action Strategic
Communications Plan Climate Engagement Specialist)
2
BI 9 Launch an Electrification
Incentive Program Climate Analyst)
1
WE 1 Engage the Public to Compost Organic Waste
Resource Management
1
BR 1 Create a More Robust Energy Code Inspection
Program NDS
1
BI 5 Develop or Partner with Local Stakeholders on a
Comprehensive Climate Action Rehabilitation
Program Climate Coordinator)
1
BP 1
Solar Partnership Climate Coordinator)
2
AP 1 Develop Review Standards for New City Facility
Construction and Major Rehabilitation
Adaptation Government Buildings
2
BI 6 Consider a Building Permit Fee Rebate Program
for Enhanced Energy Standards Climate Analyst)
3
TI 2 Explore Electric Vehicle EV)Incentives Based on
the Readiness Plan Climate Analyst)
1
BE 2 Partner with Stakeholders to Promote Green
Building Construction Rehab Climate Engagement Specialist)
2
SLCP 2 Develop a City Sustainability
Operations Guide and Make Climate Intern)
1
AE 3 Educate and Coordinate with Local Agencies on
Health Impacts CMO/NDS
2
WCP 1 Require All Park/Public Space Rentals to Recycle
and Use Green"Event Best Practices.
Parks Rec
2
AE 2 Establish Resilience Hubs"
Climate Coordinator)
FY22
Iowa City Climate Action Projects & Priorities Outlook (Updated 1/5/2022)
IOWA CITY SOLAR 2035
A strategy for expanding solar energy
in the coming decade
December 2021
Draft 3.7***
1IOWACITYSOLAR2035 ***DRAFT***
Acknowledgements
The Johnson Clean Energy District led the development and creation of this
report in partnership with the University of Iowa’s Iowa Initiative for Sustainable
Communities, with contributions from faculty and students in the School of
Planning and Public Affairs and the Department of Geography and Sustainability
Sciences. Survey design and administration was done by Bailey Leadership
Initiative.
Many individuals from both public and private sectors aided in the development
of the project as advisors and consultants. In particular, City of Iowa City staff
provided valuable insight and feedback throughout the process. We thank all
contributors for generously sharing their time and expertise.
Organizing Committee
Cheryl Miller, Johnson Clean Energy District
Craig Mosher, Johnson Clean Energy District
David Osterberg, Common Good Iowa
Warren McKenna, consulting solar engineer
Collaborators
City of Iowa City
Rachel Kilburg
Ashley Monroe
Ron Knoche
Sarah Gardner
Raymond Heitner
Mohsen Vahidzadeh
University of Iowa
Travis Kraus, Director, Iowa Initiative for Sustainable Communities and
Associate Professor of Practice, School of Planning and Public Affairs
Scott Spak, Professor, School of Planning and Public Affairs
2IOWACITYSOLAR2035 ***DRAFT***
Adam Skibbe, GIS Administrator, Department of Geographical and
Sustainability Sciences
Students: Madeleine Bradley, Joshua Engelbrecht, Mia Gerace, Spencer
Gibson, Flavia Hauss, Molly Hooks, Julia Krist, Ellie Mullins, Caleb Smith,
Henry Wakamiya, Matthew Little, Ian Ochoa
Regenia Bailey, Bailey Leadership Initiative
Steve Fugate, solar consultant
Advisors
Ben Grimm, Iowa City Consolidated Community School District
Becky Soglin, Sustainability Coordinator, Johnson County
Matt Krieger, Neumann-Monson Architects, Iowa City Climate Action
Commission
Brian Gibbs, MidAmerican Energy
Wim Murray, MidAmerican Energy
Don Roth, Eastern Iowa Light and Power
Dave Mohr, Eastern Iowa Light and Power
3IOWACITYSOLAR2035 ***DRAFT***
Executive Summary
This report examines the role of solar energy in meeting Iowa City’s energy
needs now and in the future. Currently, solar electricity represents less than one-
half percent of the city’s energy load1. Iowa City’s leadership in combatting
climate change is focused primarily on energy efficiency and electrification, with
solar energy generation playing a much lesser role. In 2020, the City’s
partnership with MidAmerican Energy to develop a solar farm at Waterworks
Park drew strong community opposition, as many residents objected to the loss
of open space at the park. What is solar’s future in Iowa City?
Iowa City’s greenhouse gas emissions have declined 49% since 2010, largely the
result of MidAmerican Energy’s deep investments in wind energy in the state.
Despite this success, there are important reasons to keep solar energy a
significant part of the community’s energy mix. The modular nature of solar
photovoltaics allows them to be deployed virtually anywhere, connected to the
electric grid or not. Technological advances and falling prices have enabled more
people to generate their own solar energy, lower their energy bills and carbon
footprint, and contribute excess electricity to the grid. This locally- generated
energy can help offset rising demand caused by the push for greater
electrification of buildings and transportation. Paired with storage batteries and
microgrids, both rapidly evolving technologies, solar energy would support
community resilience during extended outages from weather-related events.
These and other developments are behind a paradigm shift in how people make,
use, and either store or sell electricity they produce.
In the months after the Waterworks Park project was halted, a small group of
solar and policy experts gathered to discuss Iowa City’s solar future. Based on
these discussions, Johnson Clean Energy District and the University’s Iowa
1 Estimate based on I.5 MW interconnected solar nameplate capacity (2020) compared to City’s
most recent GHG emissions report (2017).
4IOWACITYSOLAR2035 ***DRAFT***
Initiative for Sustainable Communities organized a collaborative study to explore
alternative project sites and strategies and to solicit public input on solar
expansion. Four action steps in the City’s Climate Action and Adaptation Plan
and Accelerating Iowa City’s Action Plan provided direction in calling for: (1)
increased on-site renewable energy and electrification; (2) community solar
projects; (3) support for electric vehicles; and (4) weather preparedness. That
guidance, along with the City’s strong commitment to social justice, framed the
approach described in this report.
Study participants obtained technical and siting information from Google’s
Project Sunroof, geospatial information assembled at UI’s Department of
Geographical and Sustainability Sciences, and from an earlier city-commissioned
report by Bluestem Energy Solutions on the feasibility of solar on municipal
buildings in Iowa City. 1F
2 Policy research was conducted through the School of
Planning and Public Affairs Environmental Policy and Management course. An
online community survey was conducted by Bailey Leadership Initiative.
Key Findings
The technical potential for distributed rooftop photovoltaic in Iowa City is large
but not universally accessible.
About 60% of Iowa City buildings are considered solar-viable, potentially giving
the city an estimated 238 MW of rooftop solar energy. However, access to
rooftop solar PV is not consistent across residential neighborhoods. Renters,
people unable to cover capital costs, and the 40% of homeowners and
businesses without suitable roofs cannot currently access the benefits of solar.
See map of solar values.
A lack of available land has constrained efforts to develop centralized solar
farms and solar gardens in Iowa City.
2 Madala, Srikanth et al. A Comprehensive Study of the Solar Energy Power Systems for the City
of Iowa City. Bluestem Energy Solutions, Omaha NE, 2018.
5IOWACITYSOLAR2035 ***DRAFT***
Solar farms (usually investor-owned) and solar gardens (usually community
solar) are large PV arrays that, because they are sited for maximum solar
potential and to capture economies of scale, can dramatically reduce the costs of
solar2F 3. Finding acceptable public sites for large arrays in Iowa City has proved
difficult (e.g., floodplain issues at the Iowa City airport, competing uses at
Meskwaki Park and the Wastewater Treatment Center). Portions of the 420th
Street Industrial Park may provide a viable option, along with smaller projects
250 - 500kW) that utilize urban infill (parking lots or small, unused areas near
city buildings). Renting or purchasing land outside Iowa City may also be an
option. See map of public lands and impervious surfaces.
Community solar, an innovative approach to make solar more affordable, is
further constrained by utility policies governing net metering and a lack of clarity
in state law. Community solar refers to projects in which members – residents,
businesses, nonprofits, and government – can purchase or lease PV panels at a
centralized project and receive credit on their utility bill, just as they would by
installing solar on their own roof. Many states, including Minnesota, Illinois, and
Wisconsin, and numerous municipal and rural energy cooperatives in Iowa, offer
this type of off-site net-metering to their customers, but it is not currently
allowed by MidAmerican Energy and it is not specifically enabled in state law.
This may be changing: MidAmerican is expected to ask for legislation to allow
greater flexibility for the company to build a solar farm for selected subscribers.
This legislation may prove a pathway for broadening access to Iowa City
customers. Alternative solutions, such as the “Sustainable Energy Utility”
outlined in an October 2021 City of Ann Arbor report, could also be explored.
Capturing tax incentives is a key strategy for improving the economics of solar
and stimulating local investment.
The Bluestem feasibility study concluded that the City should scale up the size of
solar projects and utilize third-party public-private partnership to take advantage
3 Feldman, David, at al. U.S. Solar Photovoltaic System and Energy Storage Cost Benchmark: Q1
2020. National Renewable Energy Laboratory. Golden, Colorado 2020.
6IOWACITYSOLAR2035 ***DRAFT***
of substantial tax incentives3F 4. Solar partnerships called third party power
purchase agreements (PPAs) are long-term arrangements in which an investor
installs, maintains, and operates solar arrays on a tax-exempt host’s property,
sells the electricity generated to the host at a contracted rate, and uses solar tax
credits and other tax effects, depreciation, and electricity income to cover
expenses. Typically the host buys out the system at a lower price when it is fully
depreciated. The relative profitability for such arrangements versus cash
purchase, along with other strategies to attract private capital (homeowners and
investors) needs further study.
Iowa City does not have specific targets or action plans for broad solar
deployment.
Iowa City has taken steps to promote solar to homeowners, incentivize solar on
commercial developments, and install solar on several municipal buildings but
currently does not have a cohesive set of planning, zoning, and permitting
policies for wide-scale solar energy. Model ordinances covering solar zoning,
design standards, solar easements, solar-ready building codes, and other issues
not currently operational in Iowa City can be obtained through Midwest
Renewable Energy Association and Great Plains Institute4F 5.
Iowa City residents and businesses who participated in a 2021 community survey
have strong interests in solar energy, driven largely by people’s stated desire to
do my part to combat climate change”. Many Iowa City residents are concerned
about the climate crisis and want to do something about it. People interested in
solar expressed interest in rooftop PVs on individual buildings, utility-provided
solar, and the lesser-known community solar. The upfront costs of solar panels
on individual buildings present significant challenges to many survey
4 Madala, et al. Page vi-v.
5 Great Plains Institute. Iowa Local Government Solar Toolkit. 2020.
https://www.betterenergy.org/wp-content/uploads/2016/08/Iowa-Toolkit-May2020.pdf and
Midwest Renewable Energy Association. Iowa Solar Model Ordinance. 2020.
https://www.growsolar.org/wp-content/uploads/2020/09/IA-Solar-Ordinance-2020.pdf
7IOWACITYSOLAR2035 ***DRAFT***
respondents. Large majorities of survey respondents support municipal policies
to increase solar, including financial incentives for nonprofit organizations and
residents (78%); incentives to businesses (69%); requiring solar on new buildings
receiving financial benefits from City (70%); and solar-ready new building
requirements (62%). Survey results indicate support for the existing City of Iowa
City programs and policies related to solar, as well as additional proactive
efforts.
Recommendations
We recommend scaling up and integrating solar energy into Iowa City’s
infrastructure and neighborhoods, with a focus on strategies combining
mitigation and adaptation that support the City’s goals to increase
electrification, resilience, and social equity. Because of site limitations,
opportunities for urban infill scale projects mounted on rooftops, parking
canopies, and marginal areas should be sought. Leasing or purchasing land
should also be considered.
Recommendation 1: Iowa City should conduct new demonstration projects of
solar project types with high intrinsic value, equitable access, and wide public
support.
Demonstration projects educate the community (the East Side Recycle Center
with solar, wind, and LEED platinum designation is a good example) and test
environmental, equity, and resilience co-benefits. They examine new financial
and legal models. Three project types with important equity co-benefits are
described below. Further engineering and analysis to fully understand direct and
ancillary costs and benefits are needed.
1A: Solar energy generation and battery storage for emergency
services, critical infrastructure, and resilience hubs at City-owned
buildings. Solar energy generation and storage should be targeted and
sized strategically for emergency services and essential City operations
during extreme weather events and grid outages. Potential
8IOWACITYSOLAR2035 ***DRAFT***
demonstration sites for rooftop systems are City Hall Complex (city hall,
police, fire station), Mercer Park, and other municipal facilities evaluated
in the Bluestem report5F 6. A separate Iowa City-funded project is presently
evaluating sites for more broadly-defined resilience hubs.
1B: Solar parking lot canopies. Solar panels over parking lots near
schools, government buildings, business districts, and recreational areas
are an option where rooftop and ground-mounted arrays are not
optimal. They can provide numerous benefits on urban spaces otherwise
entirely devoted to parked automobiles. Such canopies could include EV
charging stations, help reduce the urban heat island, protect vehicles
from hail, and enable popup events such as farmers markets. Parking lots
adjacent to buildings should be targeted, e.g., Mercer Park. If off-site net
metering becomes a reality, the canopies could generate electricity for
nearby buildings.
Caveats: The cost of parking canopies is higher than roof- or
ground-mounted systems. Estimates contained in the Bluestem
report (2018) were $1.86/watt for carport solar versus $1.67/watt
for commercial rooftop6F 7 but more recent estimates from local
installer are higher7F 8.
1C: Combined utility and community solar demonstration project with
MidAmerican Energy. Electricity generated at a joint site would be
divided between the utility and community solar subscribers, with
carveouts for low-income participants. The project would replace the
Waterworks Park proposal, which was to produce only utility-owned
power. A joint project would better align with the actions called for in the
Climate Action Plan. It could serve as a demonstration project of off-site
6 Madala, et al.
7 ibid, pp. 143
8 Interviews with Vu Nguyen (Tenaska Power Services), Josh Clark (Simpleray), and Chris Hoffman
Moxie Solar) by Cheryl Miller and Craig Mosher, August – September, 2021.
9IOWACITYSOLAR2035 ***DRAFT***
net metering called for by the Iowa Utility Board in 2015. Potential sites
are a portion of the 420th Street Business Park and parcels for sale or
lease outside the city limits.
Caveat: Community solar is currently constrained by state and
utility policies (see discussion at 2B below). Also, the City and
MidAmerican have been unable to find a mutually acceptable
parcel for a centralized solar project. It may be necessary for the
City to undertake the project alone (third party developers
currently are not allowed to initiate community solar projects). In
this case, the City would negotiate with MidAmerican on
allowable size of project (net metering is currently limited to 1
MW) and apply for interconnection to the distribution grid.
Recommendation 2: Create an environment in which rapidly advancing solar
technologies can be adopted into Iowa City’s energy portfolio.
2A: Create cohesive energy efficiency and solar policies in zoning,
building code, city operations, and comprehensive planning to enhance
quality of life, resilience, and economic and environmental objectives.
Scaling up public and private efforts to capture the solar benefits
discussed in this report would be helped by setting a long-term vision and
targets, such as “local generation of 10% of the community’s energy
load”. These solar policies should directly support Climate Action Plan
goals, support successful solar deployment, and promote local
investment in solar.
2B: Support legislation or action at the Iowa Utility Board to allow
community solar programs. Enabling legislation for virtual net-metering
would open the door for municipalities and third-party PPAs and greatly
expand options for community solar. Unlike many other states, third
party partners in Iowa can only develop solar projects for individual
buildings. A bill in the coming legislative session would allow a utility
greater flexibility to offer programs, such as MidAmerican Energy’s
10IOWACITYSOLAR2035 ***DRAFT***
Renewable Subscription Program, outside of a rate case, as is normally
required. The City of Iowa City’s support could help advance legislation
that includes robust language regarding aggregation in net-metering
programs. Aggregation allows electric customers to offset energy use at
all meters or building with solar at a large site, a key component of
community solar.
2C: Support funding and continuation of existing state and federal
incentives and explore new local incentives. Iowa’s solar energy tax
credit expires on December 31, 2021: it is no longer available for
residential buildings after 2021 and for businesses after 2022. Federal tax
credits are funded through 2024, although at declining levels. The City of
Iowa City should advocate to preserve and fund state and federal tax
credits and explore additional local incentives, including working with the
local banking community to expand loan and grant opportunities.
Recommendation 3: Develop a solar vision for the community by engaging
residents from different neighborhoods, demographic groups, business
communities, and other groups to tailor solar programs for discrete sections of
the city.
Over the next ten years, Iowa City neighborhoods should have the opportunity
to develop a set of projects, including resilience hubs, parking canopies, and
community solar that benefit neighborhood residents and businesses. Engaging
community groups, business, banking, and other groups early in conceptual
stages will help establish priorities, identify concerns and areas of opposition,
engage partners, increase financing options, and build trust, support, and
participation. Exemplary community-hosted solar projects sited on city-owned or
leased properties may feature:
PV arrays and storage batteries for emergency services and resilience
hub;
one or more 500kW opt-in community solar arrays with virtual net
metering. In business districts without adjacent public land; community
11IOWACITYSOLAR2035 ***DRAFT***
solar could also be possible by leasing accessory use from landowners for
panels on roofs and parking lots;
one or more solar parking lots with shaded multi-use spaces for covered
bicycle parking, electric vehicle charging, and pop-up events;
a solar garden with interpretive displays and real-time energy production
indicators;
discounted group buys for residences, businesses, and non-profits, and
special programs for low-to-moderate income (LMI) consumers.
Caveats: A modest goal for locally-generated solar – 10% of the community’s
electricity usage – is approximately 100 MW of solar energy8F 9. Even with
falling prices, this represents a sizeable investment from governments and
the private sector over the coming decade. However, lower energy costs and
other avoided costs over time help offset upfront investments. New business
and job opportunities in the solar market would also benefit from these
investments.
The high cost of land and aesthetic requirements in Iowa City require
thoughtful and innovative siting decisions. Sites should be evaluated for their
potential to produce additional “stacked benefits”, such as those mentioned
above.
Recommendation 4: Create and market a highly visible, well-integrated, and
socially beneficial solar program.
Iowa City is home to one of the state’s most important educational resources
and, as such, has a crucial role in advancing the proliferation of solar technology
in Iowa. Educating visitors and students about the potential of a well-designed
solar energy program to address a range of environmental and social issues
would have far-reaching benefits now and in the future. A portfolio of
educational outreach programs is contained in the Bluestem report.
9 Iowa City Community-wide Greenhouse Gas Emissions, Inventory Update. June, 2017.
12IOWACITYSOLAR2035 ***DRAFT***
13IOWACITYSOLAR2035 ***DRAFT***
Table of Contents
Acknowledgements 1
Executive Summary 3
Key Findings 4
Recommendations 7
Table of Contents 13
Introduction 16
Study goals and methods 18
Public Input 20
Key findings 20
Recommendations for additional outreach 24
Distributed Solar Systems 25
Potential for Greenhouse Gas Emissions Reduction 25
Other Environmental Impacts 30
Potential Rooftop Capacity 30
Solar Costs 38
Solar Incentive Programs 38
Federal Renewable Energy Tax Credits 38
State of Iowa Solar Rebates and Incentives – expired 2020 39
Funding Models and State Policies 40
Net Metering and Interconnection 41
Collective Purchasing 41
Alternative Energy Revolving Loan Program 41
14IOWACITYSOLAR2035 ***DRAFT***
Solar Loans 42
HomeStyle Energy Program 42
Third Party Power Purchasing Agreements 42
Commercial Operating Leases 44
Property assessed clean energy financing (PACE) 44
Municipal Subsidies 45
Social Equity Options + Resiliency Needs 45
Centralized Solar Systems 46
Projected Projects to Reach Targets 48
Ownership Models and State Policies 49
Investor Owned 49
Power Purchase Agreements 52
Community Solar 53
Community Solar Economic Analysis Error! Bookmark not defined.
Virtual Net Metering 56
Solar Crowdfunding 59
Microgrids 59
Social Equity Options + Resiliency Needs 60
Solar Policy: Planning, Zoning, Easements, and City Operations 66
Contemporary Zoning in Iowa City 66
Iowa Law 67
Iowa Smart Planning 68
Planning and Zoning: Prior Implementation in Iowa 70
Solar Access Rights and Solar Easements 70
Planning and Zoning: Best Management Practices 71
15IOWACITYSOLAR2035 ***DRAFT***
Iowa Solar Model Ordinance 71
Iowa Government Solar Toolkit 72
Solar-ready building code 74
Certification Programs and Guidance 75
Principal Findings & Planning Considerations 76
Demonstration Projects & Partnerships 82
Example Iowa City Community Solar Projects and Criteria 82
Design Criteria 83
Site Analysis 84
Sourcing and Disposal 88
Solar Sourcing 88
Disposal and recycling 91
References 93
Appendix I: Maps 100
16IOWACITYSOLAR2035 ***DRAFT***
Introduction
In September 2018, the Iowa City City Council established its first community-
wide greenhouse gas emissions target and created a Climate Action and
Adaptation Plan to achieve emission reductions. The following August, the
Council declared a Climate Crisis and approved new emissions goals in
accordance with those set by the Intergovernmental Panel on Climate Change
IPCC): reduce carbon emissions by 45% from 2010 levels by 2030 and achieve
net zero carbon emissions by 2050. City staff were charged with creating the
Accelerating Iowa City's Action Plan to meet these goals.
In drafting the Climate Action & Adaptation Plan, the City was influenced by
MidAmerican Energy’s commitment to 100% renewable energy, which, as of
2020, is credited with the majority of the City’s emission reductions. Accordingly,
the Accelerated Action Plan prioritizes electrification and reducing energy
consumption, with belief that this could have a greater impact and higher return
on investment (dollars spent on these activities yield greater emissions reduction
results). To cover gaps left by other emission reduction activities, the City has
also taken steps to promote solar, including:
Grow Solar Linn + Johnson Counties, which incentivizes rooftop solar
projects;
Municipal Facilities, starting with a solar feasibility study by Bluestem
Energy Solutions (2018) and recent solar Power Purchase Agreement for
PV installations on the Iowa City Public Works Facility and the Terry
Trueblood Recreation Area Lodge.
Building & Development Incentives for three projects in the Riverfront
Crossings District require the developer to attempt to provide solar.
TIF & Financial Incentives: Tax Increment Financing (TIF) was used to
promote stricter energy efficiency and solar at Riverside West
Apartments and Hieronymus Square/Element Hotel and a
17IOWACITYSOLAR2035 ***DRAFT***
commercial/industrial matching grant program for energy efficiency
projects in the Sycamore/First Ave./Heinz/Scott 6 Urban Renewal Areas.
The City is preparing to launch a similar matching grant program for
commercial properties in the Downtown/Riverfront Crossings district and
will require solar proposals to be bundled with an energy efficiency
project.
City Housing Rehab Projects in the South District Homeownership
Program, including rooftop solar panels.
In 2019, MidAmerican Energy approached the City of Iowa City with a proposal
to develop a utility-scale solar complex on City-owned property. The City
explored several location options, including the municipal airport, with
MidAmerican and selected Waterworks Prairie Park due to its proximity to
electrical infrastructure and high visibility along Interstate 80. The project
proposed development of a 3 MW, 10,000-panel solar complex on 19 acres of
City leased-parkland. The City Council approved code changes to consider the
lease, but the proposal received significant public opposition towards the end of
deliberations and the project was ultimately rejected by City Council vote in
March 2020. Several Council members urged the City to step back, consider
alternative strategies and sites, and develop a long-term vision for solar energy
in the City. City staff and MidAmerican Energy re-reviewed alternative locations
and were unable to identify a location that would meet infrastructure, flood
plain, and public support needs. In 2021, MidAmerican developed a similar
project north of Hills, IA.
In the weeks after the Waterworks project vote, members of Johnson Clean
Energy District convened a small discussion group of solar and policy experts to
consider the situation and options for moving forward. The group was
determined to prevent a loss of momentum in the City’s solar efforts and set
about identifying alternative sites for the project. The group also took note of
statements by Council members calling for a larger and longer-term vision for
solar energy in the community and a better understanding of community views
on solar projects. In October 2020, they presented a proposal to the Climate
18IOWACITYSOLAR2035 ***DRAFT***
Action Commission to study feasibilities and public support for an expanded
solar program. In November, the City Council unanimously endorsed the
proposal and awarded $12,500 to conduct the study.
Study goals and methods
The Johnson Clean Energy District, the University of Iowa’s Iowa Initiative for
Sustainable Communities, and the City of Iowa City are the lead institutional
partners behind this study. Three working committees - technical, policy and
economics, and public outreach -- were formed to conduct the study. An
advisory committee comprised of representatives from Iowa City’s Climate
Action Commission, Johnson County, Iowa City Community School District,
MidAmerican Energy, and Eastern Iowa Light and Power was recruited to provide
input. Together, the collaborators worked out a list of topics to be covered, task
list, and timeline to further define and assist interaction between the
committees and partners.
To assess public attitudes about solar expansion, Bailey Leadership Initiative
conducted an online survey, distributed through social media and listservs of
nonprofit, government, academic/educational, religious, and business
organizations. A total of 464 people responded, including 15 business owners.
Respondents were primarily homeowners (91%); highly educated (56% with
advanced degrees); and wealthier (40% over $100,000 income) than Iowa City
averages. Analysis of results did not find significant differences among different
income levels (<$75K, < $50K) and from different sections of the city. Renters, a
key demographic in Iowa City, are not well-represented among survey
respondents.
Technological analysis focused on identifying optimal sites for distributed and
centralized solar projects. Staff and students at UI’s Dept of Geographical and
Sustainable Sciences used ArcGIS 10.8, ESRI Solar Radiation toolset, and Google’s
Project Sunroof to assess the city’s solar resources and identify potential project
sites. These data were combined with policy criteria to identify viable sites,
regulatory or landscape constraints, etc. Information from “A Comprehensive
19IOWACITYSOLAR2035 ***DRAFT***
Study of the Solar Energy Systems for the City of Iowa City Locations” by
Bluestem Energy Solutions (2018) was used to quantify energy demand and solar
potential at potential project sites.
The public policy context and options for financing solar was researched by UI’s
Urban & Regional Planning 6246: Environmental Policy & Management. The
report below contains in-depth information and analysis of funding models and
programs for distributed and centralized solar, with case studies of applications
in other communities, and a particular focus on social equity options. Current
state and local regulations are described, along with best practices, model solar
ordinance, model building code, and a detailed set of possible reforms to
support solar development.
20IOWACITYSOLAR2035 ***DRAFT***
Public Input
An online survey was conducted in May, 2021 to assess the level of interest Iowa
Citians have in solar energy and, importantly, their preferences and opposition
to different solar options that may be employed if a solar expansion program is
undertaken. The survey also sought information on what motivates people’s
interest in solar energy and what challenges they face to taking action. Finally
the survey asked people what they believe is the proper role of City government
in transitioning to solar energy and what kinds of programs they would support
or oppose. This last set of questions is designed to help city planners focus
efforts on projects with wide public support.
Key findings
A survey of Iowa City residents and business-owners found:
Strong interest in solar energy in Iowa City, with 94% of survey-takers
either “very interested (67%) or “somewhat interested” (27%). Interest
was equally strong across income groups.
People interested in solar want options. Three options form a tightly-
clustered group of favored options: rooftop panels on individual buildings
80%); utility-provided solar electricity (77%); and opportunity to buy into
community solar gardens (68%).
Across the board, the upfront costs of solar panels on individual
buildings are the primary challenge. Other challenges are structural
issues, shade trees, and duration of residence.
Support is strong for Iowa City government assisting the transition to
solar energy. Most popular are placing solar panels on public buildings,
parking lots and garages (90%), and financial incentives for residents
and non-profit organizations (78%).
21IOWACITYSOLAR2035 ***DRAFT***
Interest and Preferences
Respondents expressed interest in both distributed (rooftop panels), solar farms,
and solar gardens. When asked which options were of most interest, people
ranked three options high:
Most people expressed interest in solar panels on their own building
80%); along with desire for electricity produced at utility-scale solar
farms (77%); and community solar gardens, where residents and
businesses could own or lease solar panels (68%).
Interest in owning ground-mounted panels is lower, with 23% expressing
interest in this option.
In addition to their own homes, respondents also want to see solar energy
projects in their neighborhood. Rooftop solar on neighbor’s houses has strong
94%) support, and even ground-mounted solar arrays on neighborhood lots has
considerable support (66%).
Survey-takers expressed strong interest in community solar gardens. When
asked if they would consider leasing or owning panels at a solar garden, the
average score among 363 respondents was 74%; one third of respondents gave
it top (100%) approval.
Among business owners, 73% say they are “very interested” in solar, with the
majority (58%) preferring that the utility company provide solar energy rather
than take independent action. One commenter said “I do not want to hire
someone to maintain my alternate source of energy. I am a small business and
can’t afford more overhead.” The key motivations with this group, some of
whom had already added panels to their building, are energy cost savings and
enhancing business image.
Motivations
The survey found that overwhelming majorities of people are interested in solar
energy because of climate change: 93% responded “I want to do my part to
address climate change” and 91% indicated they didn’t want to rely on fossil
22IOWACITYSOLAR2035 ***DRAFT***
fuels. Other drivers are spending less money on electricity (69%) and greater
energy self-reliance (60%).
Business owners ranked cost savings over time as the most important driver of
switching to solar.
A small percentage of respondents (6%) are not interested in solar energy, saying
it is not a priority (50%), is too expensive (33%), or that they do not plan to stay
in current housing (29%). Several people expressed satisfaction that
MidAmerican Energy was already providing clean energy.
Challenges
The upfront costs of installing solar arrays on individual buildings are a significant
challenge to 72% of respondents. Additionally, a range of issues exist on
individual buildings that discourage people from purchasing rooftop solar arrays
including the building’s structural condition, anticipated length of residence,
presence of shade trees, zoning and condominium or HOA restrictions. A
comment that captured some of these hesitations: “I live in a historic district and
need to comply with improvements to the exterior of my house and 2) I’m not
sure my old house (roof) has the right design to accommodate solar panels.”
In addition to upfront costs, 42% of business owners reported that they lease
their property and are uncertain how solar energy might benefit them.
People expressed a range of opinions on where solar panels are placed.
Numerous people commented on their opposition to loss of green space or
parks to solar installations or cutting down trees for solar projects. Other
commenters want ground-mounted systems to be hidden with fencing and
wanted guidelines for the ground beneath the panels and the aesthetics of the
whole package.
Inducements
Given the widespread concern about upfront costs, financial incentives rank
highest as inducements for taking action. Tax credits, low interest loans or
23IOWACITYSOLAR2035 ***DRAFT***
grants, and getting money back on electrical bills ranking highest, followed more
specific information about solar on one’s own property.
For respondents in households with incomes <$75K or <$50K, getting money
back on electrical bills and low interest loans and grants were highest ranked
inducements.
Support or opposition to City solar energy programs
A majority of respondents want the City to assist in the transition to solar
energy. 90% of respondents want to see solar panels installed on City buildings,
parking lots and garages, and other properties, where feasible. 78% also support
financial incentives for nonprofit organizations and residents, irrespective of
income level. Between 60 – 70% of respondents also support a variety of
programs, including sponsorship of community solar (71%); requiring solar on
new buildings receiving financial benefits from City (70%); incentives to
businesses (69%); solar EV charging stations (66%); solar education (64%); and
solar-ready new building requirements (62%).
A policy restricting financial incentives to LMI residents had very little support,
nor did public funds to privately-owned utility for solar projects. Some people
opposed use of public funds to support transition to solar. As one commenter
said “Stay out of funding and promoting this. If people/business want (because it
makes sense) they will find a way to do it.”
Numerous people praised the Solarize Johnson County or Grow Solar programs
for providing a combination of solar education, efficient process, and low (group-
buy) costs to consumers.
Conclusions
This survey tapped into a segment of Iowa City residents and businesses that are
personally interested in transitioning to solar energy and support an expansion
of solar energy in the community. Iowa City policymakers can expect a strong
cadre of supporters that are concerned about climate change, want to do
something about it, and would participate in well-organized solar programs that
24IOWACITYSOLAR2035 ***DRAFT***
can address financial and site-specific challenges many people face. Policymakers
will also have strong support for solar panels on public buildings and spaces,
though they risk opposition to solar projects in public parks and where trees and
other green space are replaced with solar panels.
Recommendations for additional outreach
1. Solicit input about solar projects in different sections of Iowa City. The
solar study, of which this survey is a part, envisions a set of solar projects
resilience hubs, community gardens, solar parking, etc) tailored to
opportunities and needs in discrete sections of the City. Specific project
ideas, while still in concept stage, could stimulate community
conversation and partnerships.
2. Engage Iowa City residents from different demographic groups in
targeted discussions about options and challenges for participating in
solar energy programs.
3. Ground-mounted solar arrays raise aesthetic, land-use, and wildlife
considerations. Focus groups could provide useful information to
improve social acceptability (siting, fencing, vegetation, etc).
4. Many people mentioned the prevalence of restrictions on solar arrays in
historic districts, on condos, and by housing associations. Solicit input on
acceptable options in these settings.
5. Community solar projects are of interest to many residents and business
owners who cannot put solar panels on their own buildings. An in-depth
outreach program to solicit input on preferences for leases or ownership,
number of panels, price points, etc., would be helpful in developing pilot
projects.
6. Financial incentives are crucial to motivating action. Engage community,
business, banking, and other groups in drafting incentive programs.
25IOWACITYSOLAR2035 ***DRAFT***
Distributed Solar Systems
The City’s Climate Action Plan targets new buildings thermal decarbonization and
energy efficiency and adoption of electric vehicle. For new buildings, the targets
are to achieve 45 to 48 percent energy savings in new buildings due to code
enforcement by 2025 and 80 percent energy savings by 2050 due to code
enforcement and phased-in approach to net zero energy policies” and for
renewable energy to “transition 3 percent of buildings with natural gas to high
efficiency electrical heat, powered through low-carbon electricity sources by
2025 and 25 percent by 2050.” Distributed solar on new solar-ready construction
and existing buildings contributes to both goals.
Potential for Greenhouse Gas Emissions Reduction
Solar photovoltaic (PV) energy provides an immediate emissions reduction and
potential long-term emissions reductions. While distributed and community
solar are not expected to contribute substantially to total long-term emissions
reductions, and no targets for solar have been set based on emissions,
substituting solar PV for utility generation in the next 5-10 years will likely lead to
substantial net emissions reductions over the lifetime of the panels.
In the most recent National Renewable Energy Laboratory (NREL) review,
median estimates of life cycle CO2e GHG emissions from distributed and utility-
scale photovoltaic are 3.7 to 4.4 times higher than from wind (Figure 1.1, Figure
1.2), and remain higher after accounting for transmission losses between distant
wind and local solar. However, solar PV emissions are just 21% of the net CO2e
for Mid-American’s current mix of generation and purchases, estimated at 278 g
CO2e/kWh for 2020 (Table 1.1). At present, both distributed and utility-scale
solar are far lower in life cycle emissions than grid energy, as fossil fuels in Mid-
American generation and purchases from the regional Midcontinent
Independent System Operator (MISO) grid dominate the utility emissions profile.
26IOWACITYSOLAR2035 ***DRAFT***
As this mix continues to change, even a reduction in coal to less than 10% of
Mid-American generation and grid imports using the lowest GHG MISO 2039
generation scenarios (Table 1.2) would still lead to grid CO2e emissions more
than double those of contemporary solar. Thus, near-term lifecycle emissions
reductions and avoided emissions from distributed, City, and community solar
are expected to continue throughout the panels’ deployment.
Figure 1.1. Life Cycle GHG Emissions for Wind Energy (gCO2e/kWh) Source:
NREL, 2013
27IOWACITYSOLAR2035 ***DRAFT***
Figure 1.2. Life Cycle GHG Emissions for Solar Photovoltaic (gCO2e/kWh)
Source: NREL, 2013
Table 1.1 CO2 emissions and life cycle CO2e (g/kW) estimates for Mid-
American Energy’s 2020 Generation Portfolio. Generation and CO2 emissions
rate data from Mid-American Energy (2021), CO2e rates from IPPC (2014), grid
purchase CO2e estimated from MISO generation mix (MISO, 2021).
Life Cycle gCO2e/kWh 2020 Emissions
Fuel Type GWh % of Mix gCO2/
kWh Min Median Max Tons CO2e
median) Tons CO2
Coal 6,518 20.7 1022 740 820 910 5,344,760 6,661,028
Natural Gas 668 2.1 4156 410 490 650 327,320 277,851
Nuclear 3,464 11.0 - 3.7 12 110 41,568 -
Oil 1 - 767 460
Wind 20,371 64.6 - 7 11 56 224,081 -
28IOWACITYSOLAR2035 ***DRAFT***
Solar - rooftop - 26 41 60 -
Solar - utility - 18 48 180 -
Biomass 60 0.2 - 130 230 420 13,800 -
Null 433 1.4 223 96,632
Unknown
purchases 4,263 385 441 547 1,878,576
Total 35,784 7,830,105 7,035,971
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Table 1.2. MISO grid estimated life-cycle fuel-weighted net CO2e (g/kW) for
2020 and 2039 low-emissions scenario. Data from MISO (2021), CO2e rates
from IPPC (2014).
2020 2039
Fuel type % of mix
CO2e
contribution % of mix
CO2e
contribution
Coal 33 271 0 0
Natural Gas 34 167 31 152
Nuclear 17 2 6 0.72
Oil
Wind 13 1 40 4
Solar - rooftop - - -
Solar - utility - 10 5
Biomass -
Null -
Other 3 13
Total 100 441 100 162
Table 1.3. Projected Mid-American CO2e (g/kWh) estimate for a low-
emissions generation scenario with 10% grid purchases from the 2039 low-
emissions MISO scenario.
CO2e (g/kWh)
Fuel Type % of mix Minimum Median Maximum
Coal 10 74 82 91
Natural Gas 2 9 10 14
Nuclear 11 0.4 1 12
Oil - - - -
Wind 75 5 8 42
Solar – rooftop - - - -
Solar – utility 2 0.4 1 4
Biomass - - - -
Null - - - -
Unknown purchases 10 13 16 25
Total 102 119 187
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Other Environmental Impacts
Large solar farms can generate flashy runoff, especially over non-vegetated
surfaces (Cook and McCuen, 2013), and some states classify panels as
impervious. Six states currently regulate stormwater permitting for solar sites
Kennedy Jenks, 2017), considering slope, vertical clearance, ground cover, panel
arrangement, and support structures. Minnesota regulates siting of solar farms,
requiring that all construction projects that disturb one or more acres of land
apply for a Minnesota NPDES/SDS Construction Stormwater General Permit and
apply best management practices during construction, and any construction
project that creates one or more acres of new impervious surface must design
and construct a permanent stormwater management system (MPCA, 2021).
Recent preliminary research suggests that heavy metals in some solar panels can
leach into sediment, but not at concentrations that would pose a risk to nearby
ecosystems (Robinson and Meindl, 2019). The city is encouraged to consider
implementing national best practices in siting for stormwater in its own building
code and zoning.
Solar PV panels reflect more and absorb and radiate less heat than parking lots,
roofing shingles, and asphalt roofs, so rooftop solar and solar parking lots can
reduce the Urban Heat Island effect. By shading roofs, urban distributed solar
panels slightly increases the need for domestic heating, but reduce the energy
needed for air-conditioning (by 12%) and reduce daytime and nighttime UHI
Masson et al., 2014). Impacts are higher for solar thermal panels.
Solar gardens with native plantings further reduce Urban Heat Island effect and
yield stormwater management co-benefits. The Center for Rural Affairs provides
best practices for low-cost native vegetation management at solar sites (CFRA,
2020).
Potential Rooftop Capacity
In 2021, there are 323 permitted solar arrays in Iowa City on roughly 3% of city
properties. How much potential exists for rooftop solar in Iowa City? Data from
31IOWACITYSOLAR2035 ***DRAFT***
Google Sunroof and ESRI’s solar toolkit characterize the opportunity (listed
below), while the map in Appendix I shows solar potential considering aspect
and tree cover.
1. Distributed rooftop photovoltaic potential in Iowa City is significant.
The city has over 238 megawatts direct current (MWDC)of solar rooftop
potential on all buildings (Figure 1.3). Small household-scale installations
100 kW) represent nearly 60% of the total rooftop generation
potential. Half of all potential is on flat roofs, including large commercial
and industrial buildings that account for the largest potential installations
Figures 1.3, 1.7). Even the census tracts with the lowest distributed
rooftop potential in the city still represent larger opportunities for
generation capacity than any existing utility-scale or community solar
projects in the state.
2. Access to distributed rooftop solar PV is not consistent across
residential neighborhoods and not universal.
Total annual generation potential (Figure 1.4), rooftop capacity (Figure
1.8), and potential reduction in CO2 emission (Figure 1.8) are correlated
and vary by a factor of four across city census tracts.
An estimated 64% of the buildings in Iowa City are solar-viable [9], within
the range of solar viable properties in other Iowa metros. This leaves
between 30% and 40% of homeowners and businesses to join renters,
students, and others unable to actively participate in on-site residential
solar PV. This includes renters in the downtown business district, which
has the highest median technical rooftop potential (Figure 1.7).
City census tracts vary in buildings suitable for solar range from <50% to
86% (Figure 1.6), and low and middle income (LMI) census tracts are
among areas with the highest number of eligible buildings (Figure 1.5).
Nationally, 42% of residential rooftop solar potential is located on
buildings in LMI neighborhoods and over 45% in Johnson County (Sigrin
and Mooney, 2018).
32IOWACITYSOLAR2035 ***DRAFT***
3. Iowa City’s distributed rooftop solar photovoltaic resource potential is
lower than most peer cities nationally and in Iowa.
The metropolitan area’s per capita generation potential is 329th of 484
nationally, and lowest among Iowa metros (Table 1.4). Adjusted for
incident sunlight, per capita generation potential is 398th nationally
Google Sunroof, 2021).
4. Opportunities for rooftop solar on multifamily buildings is substantial,
and a potential contributor to environmental justice.
Solar development on existing multifamily buildings is currently limited
due to owner-tenant principal agent barriers to adoption. Deployment on
multi-family and renter occupied buildings would be needed to reach
substantial deployment of rooftop solar on LMI residential buildings in
residential areas and in the downtown business district. Realizing the
solar potential in future new multifamily construction could be enabled
by city policies on solar-ready buildings.
5. Rooftop solar thermal and ground-mount solar and are also large
potential low-carbon renewable energy resource for residential and
commercial properties in Iowa City.
While this analysis focuses on rooftop solar PV as the most widely
installed and has the highest potential for energy, economic, and climate
change mitigation returns, solar hot water is feasible on nearly all
buildings that can support a small solar PV system, and ground-mount
solar PV is feasible for many parcels not suitable for rooftop solar.
33IOWACITYSOLAR2035 ***DRAFT***
Table 1.4. Rooftop solar potential across Iowa metropolitan areas. Data from
Google Sunroof (2021) by census tract, aggregated to metropolitan area.
Total Per Capita
Metropolitan Area Potential
kWDC) Panels Potential
kWDC) Panels
Waterloo-Cedar Falls 701,931 2,807,725 4.17 16.66
Cedar Rapids 1,161,832 4,647,329 4.26 17.02
Quad Cities 1,618,594 6,474,377 4.27 17.08
Des Moines 2,954,438 11,817,753 4.22 16.90
Sioux City 617,378 2,469,512 4.27 17.07
Dubuque 303,957 1,215,827 3.12 12.49
Ames 274,717 1,098,868 2.23 8.91
Iowa City 351,539 1,406,157 2.03 8.12
34IOWACITYSOLAR2035 ***DRAFT***
Figure 1.3. Google Sunroof Estimated Rooftop Solar (Google
Sunroof, 2021).
35IOWACITYSOLAR2035 ***DRAFT***
Figure 1.4. Total annual rooftop solar PV generation potential (kWh/year) by
census tract. Data: Google Sunroof.
Figure 1.5. Number of buildings suitable for solar PV. Data: Google Sunroof.
36IOWACITYSOLAR2035 ***DRAFT***
Figure 1.6. Percent of buildings suitable for solar PV by census tract. Data:
Google Sunroof.
Figure 1.7. Median number of solar PV panels per roof by census
tract. Data: Google Sunroof.
37IOWACITYSOLAR2035 ***DRAFT***
Figure 1.8. Potential rooftop solar PV capacity (kWDC) by census tract.
Data: Google Sunroof.
Figure 1.9. Potential avoided CO2 emissions (metric tons/year) from all viable
rooftop solar by census tract. Data: Google Sunroof.
38
Solar Costs
Costs for solar have dropped significantly in recent years, making solar a more
viable alternative to fossil fuels.
Figure XX Utility scall solar costs 2010-2020. Source: Rameznaam.com.
Solar Incentive Programs
A total of 26% of the total cost of all private solar electricity and thermal
installations are eligible for federal tax credits, the systems are exempt from
sales tax, and the assessed value of a solar installation is exempt from property
taxes for 5 years. Mid-American customers with systems less than 500 kW are
eligible for net-metering, which sells energy back to the utility as a credit on
monthly bills.
Federal Renewable Energy Tax Credits
All private solar arrays in Iowa City are eligible for federal tax credits.
Investment Tax Credit extends to entire system
39IOWACITYSOLAR2035 ***DRAFT***
30% for systems placed in service by 12/31/2019
26% for systems placed in service after 12/31/2019 and before
01/01/2023
22% for systems placed in service after 12/31/2022 and before
01/01/2024
State of Iowa Solar Rebates and Incentives – expired 2020
There are no current state incentives. The most recent state incentives, expired
in 2020, consisted of:
Iowa residential solar tax credit: 15% back on state Income Tax, up to
5,000
System exempt from state sales tax
Assessed value exempt from property taxes for 5 years
40IOWACITYSOLAR2035 ***DRAFT***
Funding Models and State Policies
A wide range of financing options are available from federal, state, and local
governments, public utilities, solar installers, and private lenders.
Table 1.5 Distributed Ownership Models and State Policies Overview
Is it legal in
Iowa?
Does Iowa
Code include
enabling
legislation?
Does the
Iowa Utility
Board have a
directive for
this?
Is this
approach
currently
operational
in the state?
Is this
approach
currently
operational
Iowa City?
Net Metering YES "# N/A YES "# YES* "# YES "#
Collective
Purchasing YES "# NO X NO X YES "# YES "#
AERLP YES "# YES "# N/A YES "# YES "#
HomeStyle Energy
Program YES "# N/A N/A YES "# YES "#
Solar Loans YES "# N/A N/A YES "# YES "#
Commercial
Operating Leases YES "# NO X YES "# YES "# ??
Third-Party
Ownership PPAs YES "# YES "# YES "# YES "# ??
PACE YES "# NO X NO X NO X NO X
Local Subsidies YES "# NO X NO X YES "# NO X
41IOWACITYSOLAR2035 ***DRAFT***
Net Metering and Interconnection
Net metering is a utility rate structure program that requires regulated public
utilities to purchase excess solar energy produced by customers’ solar panels at
retail rates. All customers of Iowa’s two investor-owned utilities (IOUs) are
eligible for net metering, all grid-connected PV systems currently operating in
Iowa City are net metered, and net metering is foundational to cost recovery in
financing programs.
While there is no explicit limit on the size of net-metered systems, separate rule
waivers have allowed each of the utilities to limit individual systems to 500 kW.
Interconnection standards for IOUs apply to distributed generation facilities no
greater than 10 MW. There are four levels of review for interconnection
requests, which must all be met before they can be approved. General
interconnection rules apply to all utilities, both rate regulated and non-rate-
regulated, and rules cover power quality, safety, and technical standards. Net
metering applies independent of the solar array’s financing model and
ownership.
Collective Purchasing
Collective purchasing group buys have been available through Midwest
Renewable Energy Association’s Solarize Johnson County programs in 2018 and
2020 and Grow Solar Linn + Johnson Counties program in 2021.These large,
collective educational and purchase offerings at discounted rates have led to
nearly 250 residential solar installations in Johnson County. Iowa City households
have participated in all three years and account for just over one-third of the
group buy installs in the county.
Alternative Energy Revolving Loan Program
Iowa’s Alternative Energy Revolving Loan Program (AERLP) provides 20-year 0%
interest loans for up to 50% of the cost of a renewable energy system, from a
minimum of $25,000 up to $1 million. All Iowa residents and businesses are
eligible (Iowa Energy Center, 2020). This $5.9 million revolving loan fund is
42IOWACITYSOLAR2035 ***DRAFT***
managed by the Iowa Energy Center. This “green bank” is currently limited by
the size of the revolving fund.
Solar Loans
In addition to standard home equity loans for solar, specialized residential and
commercial solar loans have increased in popularity in recent years. One
example is Mosaic of Connecticut, which loans funds to homeowners to install
residential solar. Residents are able to own their solar panels and reap tax
credits and other benefits, while the lender gathers interest on repayments.
Multiple solar lenders currently operate in the state.
HomeStyle Energy Program
The HomeStyle Energy Program is a Fannie Mae financing program for new and
existing properties to fund energy and/or water efficiency and decrease utility
costs. It provides up to 15% of the “as completed” appraised value of the
property for renovation to make energy-related improvements and pay off
secured or unsecured debt that financed energy-related improvements.
HomeStyle Energy may also be used to create home resiliency for environmental
disasters such as floods, storms, and earthquakes, or to repair damage from
these types of disasters. All one-to-four-unit existing properties are eligible and
all occupancy types permitted, and there are no other eligibility criteria.
Third Party Power Purchasing Agreements
A Solar Power Purchase Agreement (PPA) is a long-term agreement where a
business agrees to purchase all of the electricity generated by a solar system at a
contracted rate. The PPA provider installs, maintains, and operates the solar
system and the business only pays for the power that is generated. Power
Purchase Agreements require no upfront costs for the property owner. The
contract typically lasts for the lifetime of the system and may include an annual
rate increase escalator. At the end of the contract, a new PPA can be negotiated
or the system purchased. PPAs provide customers low-cost renewable electricity
43IOWACITYSOLAR2035 ***DRAFT***
at no upfront cost, while enabling the system’s owner to take advantage of tax
credits and obtain income from net-metered electricity sales.
A Solar PPA can be a low-risk financing option for distributed solar and is often
the only way for a non-profit or government to realize tax benefits of solar PV.
Local installers and specialized firms offer PPAs for commercial and residential
customers in Iowa, but awareness among potential residential and small
commercial purchasers in the area is low, and Iowa does not feature the
ubiquitous advertisements for PPAs seen in areas with higher solar resource
potential.
PPAs were approved for use in Iowa through a 2014 Iowa Supreme Court
decision, SZ Enterprises LLC v. Iowa Utilities Board (Iowa Supreme Court, 2014).
Third-party generation can happen through a non-rate-regulated utility, or
through a purchase agreement from a third-party producer to a rate-regulated
utility. Third-party purchase allows these non-utility operations to sell to power
to utilities. In practice, this most frequently means a solar installer or third-party
financer paying for a system, recovering the cost with monthly payments from
the customer, and selling power to the utility. There are multiple ways that
payment can be set, but many pay based on avoided costs. These purchase
agreements can satisfy utility Renewable Portfolio Standards.
Multiple Iowa state laws deal with the operations of third-party energy
production after the legalization of these agreements. Detailed information on
the functions and abilities of third-party generation and purchase can be found
in the Iowa State Code in Title XI: Natural Resources, Subtitle 5: Public Utilities,
Chapter 476: Public Utility Regulation and rules detailed in Chapter 15:
Cogeneration and Small Power Production. Some highlights applying the third-
party generation and rates include:
15.5(5) Purchases “as available” or pursuant to a legally enforceable obligation. Each qualifying
facility shall have the option either:
a. To provide energy as the qualifying facility determines the energy to be available for the
purchases, in which case the rates for the purchases shall be based on the purchasing utility’s
avoided costs calculated at the time of delivery;
44IOWACITYSOLAR2035 ***DRAFT***
or b. To provide energy or capacity pursuant to a legally enforceable obligation for the delivery of
energy or capacity over a specified term, in which case the rates for the purchases shall, at the
option of the qualifying facility exercised prior to the beginning of the specified term, be based on
either: The avoided costs calculated at the time of delivery; or the avoided costs calculated at the
time the obligation is incurred.
476.47 Alternate energy purchase programs. 1. Beginning January 1, 2004, an electric utility,
whether or not rate-regulated under this chapter, shall offer an alternate energy purchase
program to customers, based on energy produced by alternate energy production facilities in
Iowa.2. The board shall require electric utilities to file plans for alternate energy purchase
programs offered pursuant to this section.
Commercial Operating Leases
The traditional operating lease provides a low-cost path to ownership at a more
affordable price than upfront purchasing and extends the benefits of residential
PPAs to larger commercial applications. Many Iowa solar installers offer
operating leases.
Property assessed clean energy financing (PACE)
Property assessed clean energy financing (PACE) is 100% upfront financing
repaid on property tax bill over the life of the project, enabling longer payback
periods and positive cash flow throughout. Through PACE, private lenders and
state and local governments can provide loan funds to eligible properties, and
local government then remits tax payments to the financer. Governments can
finance PACE programs through bond offerings. Began in 2010 and overseen by
the U.S. Department of Energy, PACE is supported by enabling legislation in 37
states and PACE programs are now active in 26 states. Most PACE programs are
for commercial properties, while residential PACE is currently offered in
California, Florida, and Missouri. A hybrid “PACE-secured PPA” approach can
maximize benefits and reduce limitations of each individual model.
45IOWACITYSOLAR2035 ***DRAFT***
There are no historic or current commercial or residential PACE programs in
Iowa. As Iowa is a home rule state, passage of enabling legislation for PACE by
the state would be supportive but not essential.
PACE financing is available to residential or commercial property owners within
local jurisdictions that "opt in" to or create a program. For localities to establish a
PACE program, a local government must create a PACE assessment through a
land or real property secured benefit district. Localities will issue bonds to
finance projects, while administrative costs are usually paid by bond interest.
Localities can choose to administer programs, contract an administrator or allow
private organizations administer programs. Municipalities can also develop a list
of pre-approved contractors that can conduct energy audits or complete projects
for weather sealing, insulation, window replacements, HVAC, roofing, low-flow
toilets or renewable energy projects, such as solar panels or solar thermal.
Programs may include education for building owners, contractors and lenders, as
well as program evaluation and quality assurance measures (NCSL, 2016).
If available, PACE could be the most effective and cost-effective way for the City
to assist in making distributed solar widely affordable for commercial and
residential buildings.
Case Study: Municipal Subsidies
In July 2021, the Dubuque City Council unanimously approved the Renew DBQ
pilot project, which will provide $3,285 to 10 LMI residents to install 5 kW
rooftop solar installations, reducing up-front costs from $10,000 (pre-tax credits)
to less than $2,600 and saving each household $800-1,000 per year (Hildebrandt,
2021; Hinga, 2021).
Social Equity Options + Resilience Needs
All financing models have potential roles in expanding affordable access to
distributed solar ownership and its private goods of cost savings and grid backup
46IOWACITYSOLAR2035 ***DRAFT***
resilience and public good of lower GHG emissions. Residential loans and PPAs
represent the only models without significant up-front costs.
Distributed solar contributes to resilience to extreme weather and grid outages
when combined with battery storage and microgrids.
Distributed solar becomes equitable only when all residents have an equal and
attainable opportunity to gain equity in owning a productive solar installation
that yields economic, environmental, and resilience benefits. In 2021, the up-
front cost of meeting household demand through solar on the median home
would require 18% of median annual disposable income. This puts solar
ownership out of reach for most households, including LMI homeowners, all
renters, and all homes without the roof area, angle, or insolation for a viable
solar installation.
Until prices and area requirements drop substantially, distributed rooftop and
ground-mount solar will not be equitable. Without PACE, the city has few
options other than incentives for directly making distributed solar more
attainable for more homeowners. Three consecutive years of widely publicized
county-wide discounted group buys have led to 3% adoption, state tax credits
are oversubscribed and set to expire on December 31, 2021, and residential
PPAs are not common in the area. These limitations on distributed residential
and commercial solar PV support the development of large-scale solar with
higher potential for widespread equitable benefit and access to capital.
Centralized Solar Systems
Centralized solar systems may be described as “shared,” “community-hosted,”
community solar,” or “locally controlled.” Each of these terms represent
different concepts to different stakeholder groups:
47IOWACITYSOLAR2035 ***DRAFT***
When the solar industry and utilities use the term “community solar,” they
generally refer to a large shared solar installation in which customers can
purchase subscriptions or ownership of part of the array. The installation does
not necessarily have to be in the same community as the subscribers and can
often be located elsewhere in an electric utility’s service territory. The
subscribers do not all need to come from the same town or city. The subscribers
receive credit on their electricity bills for their share of the electricity generated
by the solar installation. Not all states allow these types of projects. Depending
upon the rules and practices in a state, such shared solar installations can be
developed by private developers, utilities, nonprofit organizations, or groups of
residents. Participation in a large shared solar project can be especially appealing
for households and organizations without suitable roofs for their own onsite
solar installation.
Community groups in under-resourced communities and environmental justice
organizations mean something very different when they talk about “community
solar.” They seek to advance solar projects that are located in the community,
are shaped by the community, and provide tangible benefits to the community,
including local wealth building. The projects do not necessarily have to involve
subscriptions for individual customers, and they can also be located at and
provide electricity for community institutions, such as schools, churches, and
social service organizations. Some community representatives link projects that
are locally owned to their definition of community solar (CESA, 2019).
Centralized solar initiatives may be owned by utilities, PPAs, special purpose
entities, or non-profits. In a utility shared solar program, utilities or third parties
own the solar array. It is financed by the utility, grants, or ratepayer
subscriptions and hosted by the utility or third-party operator.
In a special purpose entity program (SPE), the solar infrastructure is owned by
the members of the SPE. It is financed by member investments, grants, and/or
incentives and hosted by a third party. Those subscribing to the solar are
community investors, and they are looking for a return on their investment or to
48IOWACITYSOLAR2035 ***DRAFT***
offset their electricity usage. These may eventually be sold to the host and
retained for electricity production.
In a non-profit program, this non-profit owns the solar infrastructure. It is
financed by memberships, donor contributions, and grants and hosted by the
non-profit. Subscribers include donors and members looking for a return on
investment or as philanthropy.
This report does not promote any specific version or definition of community
solar, and rather highlights the many potential opportunities that currently do
and could, with regulatory approval, power communities in Iowa.
Projected Projects to Reach Targets
49IOWACITYSOLAR2035 ***DRAFT***
Ownership Models and State Policies
Table 2.1 Ownership Models and State Policies Overview
Is it legal in
Iowa?
Does Iowa
Code include
enabling
legislation?
Does the Iowa
Utility Board
have a
directive for
this?
Is this
approach
currently
operational in
the state?
Is this
approach
currently
operational
Iowa City?
INVESTOR-
OWNED Investor-Owned YES "# YES "# YES "# YES "#
NO
X
Power
Purchasing Agreements YES "# YES "# YES "# YES "#
NO
X COMMUNITY SOLAR Community-hosted Solar YES "# NO X
YES "# YES "#
NO X Virtual Net Metering YES "# NO X
YES "# YES "# NO X Microgrids YES "# NO X
NO X YES "# YES "# Crowdfunding YES "# NO X NO
X YES "#
NO X Investor Owned Investor-owned centralized solar provides a direct path
to solar energy access with the fewest legal, regulatory, and financial challenges. It
could yield a small reduction in Mid-American’s GHG emissions profile,
but otherwise does not inherently provide the community benefits
sought from solar: community resilience potential for powering microgrids,
50IOWACITYSOLAR2035 ***DRAFT***
control, and equity. The nature of public community solar programs for Iowa
City, if any, would determine potential private and community benefits from
additional Mid-American grid energy generation facilities located within city
limits or on city land, beyond lease payments.
Investor interest
Mid-American Energy previously proposed a 3 MW Iowa City solar
public-private partnership on land leased from the city
Economics, Environmental, Social Equity benefits
While all customers have equal access to utility generation and
affordability programs, investor-owned solar does not yield local energy
control, ownership, resilience, economic or equity benefits to residents
or businesses. Regulated utility rates do not change, and generation
does not exclusively serve the city.
There are public benefits of grid resilience and climate adaptation for
grid-tied investor-owned utility solar complementing wind.
Legal/Regulatory
Utility ownership greatly simplifies the legal and regulatory path to
large-scale solar PV generation in the city.
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Case Study: Community-hosted Utility Solar in Perry
In 2021, Perry became the first Iowa city with a community-hosted solar
project without a municipal electric utility. Alliant Energy will build a 1
MWDC solar facility on a 7-acre remediated brownfield site and lease the
land from the City of Perry for roughly $45,000 per year for at least 25 years,
with options to extend after the initial period. Alliant will oversee
construction, own, operate and maintain the facility. The city will buy back
renewable energy credits to offset up to 50% of city electric use and
consumption including all electricity used by the wastewater treatment
plant, the city’s largest user (Teays, 2021).
52IOWACITYSOLAR2035 ***DRAFT***
Power Purchase Agreements
Utility-scale corporate PPAs operate similarly to residential PPAs and are
widespread. In Iowa, PPAs are common with rural electric cooperatives. A 2014
Iowa Supreme Court decision allows municipalities to enter third-party PPAs
without becoming subject to rate regulation as public utilities under state law.
There is an active corporate solar PPA industry serving the MISO grid (Level10
Energy, 2020) with both brownfield and greenfield development.
Investor interest
According to the Renewable Energy Buyers Alliance's (REBA) recent
analysis of corporate purchases by state, investor interest in Iowa has
been relatively low, with 16 projects in 2018 (REBA 2019).
Economics, Environmental, Social Equity benefits
PPAs can help municipalities access tax credits, but otherwise bring no
inherent additional local economic, environmental or social equity
benefits, but offer flexible contracts and incentives to meet community
needs.
As with investor-owned, the nature of the public program determines
the potential scope of local benefits
Legal/Regulatory
PPAs add complex legal, regulatory, financial, and operational
relationships with installer, operator, owner, public utility, and ISO.
53IOWACITYSOLAR2035 ***DRAFT***
Community Solar
Community solar describe local projects or purchasing programs that benefit
multiple customers at multiple locations. In most cases, customers benefit from
energy generated at an off-site, grid-tied utility-scale or neighborhood-scale
solar array owned and operated by local government, a non-profit or special
purpose entity, an investor-owned or municipal utility, a third party or
community members. 22 states have adopted enabling legislation for
community solar. In 2020, community solar projects represent more than 3 GW
of installed capacity (NREL, 2020). While Iowa does not have enabling legislation
for community renewable energy, 15 community projects by electric
cooperatives and municipal utilities account for 4,538 kW capacity (NREL, 2020),
and the state’s first community solar project with an investor-owned utility was
announced in April 2021 (Tayes, 2021).
Economics, Environmental, Social Equity benefits
allows all community residents and businesses to directly benefit from
and invest in local solar affordably
supports community control over generation for community benefit
provides power for public purposes, including municipal operations
allows communities to hold and buy back renewable energy credits and
claim GHG emissions reductions
requires clear public purpose
Legal/regulatory issues
additional legal and regulatory complexity, even with utility ownership
As noted in the Bluestem report, “MidAmerican Energy’s net metering policy
does not allow for sharing of energy among neighboring facilities, nor does it
allow for the remote location of the generating PV facility (i.e. the PV facility
must be located at the site property of energy usage.” A revision or exception to
this policy seems necessary for a community solar project to move forward.
54IOWACITYSOLAR2035 ***DRAFT***
In Iowa, community solar customers usually buy or lease a share of the solar
panels in the array and receive a utility bill credit for electricity generated by
their share of the community solar system. In a subscription model, customers
commit to purchasing electricity from the community array, which may be at
lower or higher prices than standard utility rates.
Community solar has numerous potential direct benefits to the community (SF
Environment, 2012):
Democratizes the benefits of solar and the enables more residents and
businesses to take part in the “clean economy” – particularly important in
regions where all ratepayers help fund solar incentive programs;
Reduces greenhouse gas emissions and emissions of other air pollutants
from electricity demand;
Supports the local solar industry and fosters local green jobs;
Enables participants to keep their solar energy when they move (within
the eligible territory);
Enables use of sites with high solar potential that would otherwise
remain undeveloped due to regulatory barriers or lack of financial
impetus (e.g., parking structures, warehouses, landfills);
Increases financial viability due to increased and reliable consumer
demand, economies of scale from larger systems and use of best sites
with highest solar potential; and
When located in the communities it serves, reduces transmission and
distribution costs compared to utility-scale electricity generation.
In Iowa, community solar programs need different approval depending on their
type. Investor-owned utilities need state legislation or approval from the Iowa
Utilities Board to create public programs for public purpose. Municipalities and
PPAs require utility interconnection approval, and solar energy systems with a
total capacity of 25 MW or more require a generating certificate from the Iowa
Utilities Board.
55IOWACITYSOLAR2035 ***DRAFT***
Case Study: Community Municipal Utility Solar in Cedar Falls
Cedar Falls’ 8-acre Simple Solar project provides an early example of virtual
net metering in a community solar project.
As a municipal utility, Cedar Falls can offer virtual net metering. Simple Solar
is the largest community solar project in Iowa, and in operation since 2016.
The project includes families, businesses, and organizations who have
purchased a portion of the energy generated by the 6,516-panel installation
at a park (Kinney, 2017).
The project provides virtual utility credits to around 6% of the total customer
base of the Cedar Falls Utilities (Cedar Falls Utilities, 2021). Subscribers
receive credits on their energy bill based on the amount of energy produced
by their shares of the solar installation. Each refundable share, with an
upfront cost of $174, is equivalent to about a 170 Watt of solar panel or
about 300 kWh/month, and its refund value depreciates with the production
efficiency of the panels. One share generates on average $14.40/year per
month in bill credit, and each customer can purchase up to 100% of their
average monthly usage.
The University of Northern Iowa purchased roughly 20% of the solar project
Cedar Falls Utilities, 2021). In an interview with Matt Hein, an energy
services manager at Cedar Falls Utilities, Mr. Hein declared the Simple Solar
project to be an overall success.
The project was initially set to provide 500 kW of energy, but with interest 3x
larger than expected they increased the size to 1.5 MW (Hein, 2021). He
spoke about how the City of Cedar Falls has a strong interest in finding ways
to be “green”, and that this gave people an outlet to participate if they
couldn’t afford their own panels or didn’t have the space for them on their
own home. One strength of the simple solar framework was that it took care
of the complexity that can come with owning and permitting residential solar
panels. With no installation needs, and a program to easily increase or
decrease the number of units as well as buy back units, the customer doesn’t
face risks from participation.
56IOWACITYSOLAR2035 ***DRAFT***
Virtual Net Metering
Virtual net metering is a system for crediting utility bills for community solar
installations. Off-site or on-site solar generates credits that are then shared on
the utility bills of subscribers based on their share of a solar garden or solar
array. Under a virtual net metering agreement, generation credits mirror the
value of the retail rate for electricity.
Virtual net metering reduces expenses at the building and community scales.
Virtual net metering is essential for Homeowners Associations (HOAs) and multi-
family property owners who wish to provide tenants with solar. Multifamily
properties would otherwise need to install discrete solar arrays on its roof, each
serving an individual unit, or to include utilities with rent.
Larger systems are less expensive than residential arrays, often by a factor of 2
or more per kW, meaning that costs would be cut for customers participating in
community solar projects using virtual net metering instead of purchasing their
own systems. Community solar also eliminates the up-front cost burden on low-
and middle-income households, while eliminating property ownership as a
prerequisite for benefitting from solar.
While not yet adopted in Iowa, at least 15 states have virtual net metering
policies, and awareness of virtual net metering and its benefits is growing across
the U.S.
Case Study: Community Municipal Utility Solar in Ames
The SunSmart project, operational in 2020, is a 2 MW community solar farm.
Customers of Ames Electric Services can buy shares in the solar farm, called
Power Packs.” Each Power Pack is a one-time investment of $300 and
represents 175W of generating capacity. Owners of Power Packs receive
monthly credits on their utility bill based on production. Payback is possible
by years 16-18 of the 20-year contract (Ames, 2021).
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58IOWACITYSOLAR2035 ***DRAFT***
Case Study: Virtual Net Metering Policy in Austin, TX
In 2018, Austin Energy in Texas committed to developing a virtual net
metering policy that would align with the city’s goal of bringing solar to
multi-family and affordable housing, low-income residents, renters, and
non-profits” (a goal aligning with many of the values described by the City of
Iowa City’s Climate Action Plan) (White, 2017). The virtual net metering
policy for Austin will significantly lessen expenses for multifamily property
owners hoping to provide their tenants with access to solar arrays. One
example from a multifamily property in Austin exemplifies the benefits of
virtual net metering. This property originally installed 140 discrete solar
arrays on its roof, each serving a different individual unit and each with their
own meter. Due to the city’s updated policy around virtual net metering, a
larger array could be installed eliminating the need for the individual and
more expensive arrays.
Case Study: Virtual Net Metering and Economic Net Benefits in California
California created a virtual net metering program in 2009 within MASH, the
state’s multifamily solar program (SF Environment, 2012). However, they
found a result of virtual net metering was that the utility allowance structure
in California made it challenging to provide a net monthly benefit to
participating households living in HUD subsidized housing. In HUD subsidized
housing in California, rent and utilities combined paid by tenants is adjusted
to less than 30% of their income, so in some cases the proportion of rent
paid by the tenant increases when the utility costs decrease due to solar
credits [6]. This creates no monthly net financial benefit to the household,
which is a primary purpose of the community solar arrays. The impacts of
utility allowance structure and rental and utilities subsidy profiles on
potential benefits of virtual net metering in Iowa City would need to be
evaluated to ensure that proposed programs can provide consistent benefit
to low-income households.
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Solar Crowdfunding
Crowdfunded solar allows individuals or investors to fund or invest in a solar
installation. This allows the upfront costs of solar to be divided among multiple
participants and to allow the growth of solar as part of the grid, without
necessarily using it directly. It incentivizes its installation by allowing people to
reap the net benefits of their investiture. As well, it allows communities to install
and use solar with reduced upfront costs.
Solar crowdfunding can also be achieved through crowdfunded loans. This
involves a crowd-funding company and some sort of financial institution. In this
model, investors back the loans for homeowners to purchase solar and are able
to get a return on their investment. The bank provides these loans on the
assumption of future energy savings from solar installation.
In 2020 the Security and Exchanges Commission (SEC) clarified crowdsourcing
rules. A main takeaway from these rulings is that the commission allows
companies to be funded by crowdsourcing up to $1 million a year. While this rule
does not solely apply to renewables and energy production, it does pave the way
for these types of investments (Montgomery, 2013). With rules opening up the
path for new financing models, special attention should be paid to this form of
community solar for local ownership of neighborhood and city-scale projects.
Microgrids
Microgrids are localized grids, installed redundantly with grid infrastructure, that
can disconnect from the traditional grid to power neighborhoods or campuses
and operate autonomously during outages. They can strengthen grid resilience
and help mitigate grid disturbances as well as function as a grid resource for
faster system response and recovery. The University of Iowa’s semi-independent
local energy infrastructure functions as a form of microgrid within the city.
Microgrids can provide efficient, low-cost, clean energy from local sources,
enhance local resiliency, and improve the operation and stability of the regional
electric grid. The DOE Smart Grid R&D Program considers microgrids as a key
60IOWACITYSOLAR2035 ***DRAFT***
building block for a Smart Grid and has established microgrid R&D as a key focus
area. The Energy Act of 2020 establishes a Department of Energy storage and
microgrid grant and technical assistance program to help public utilities and rural
electric cooperatives design energy storage and microgrid projects that use
renewable energy.
Microgrid management practices beyond single-user municipal, corporate, and
campus applications are not well established. While there are many projects in
development and application (Wood, 2021), microgrids are in an early stage of
testing and are not yet commercially viable but have proven to be valuable at
creating resilience and energy independence co-located with grid energy. Case
studies to date (California Energy Commission 2018, 2019a, 2019b; Microgrid
Projects, 2021) have identified common contemporary challenges: multiple value
streams are essential to cover the installed cost of a microgrid, local zoning and
set-back requirements can be a primary limitation, no rate structures or tariffs
exist that benefit microgrid users and utilities in blue sky and outage conditions,
and intermittent generation and distribution protection require energy storage
systems and smart technology to match renewable energy supply and demand.
Social Equity Options + Resilience Needs
Community solar can contribute to climate adaptation and resilience to extreme
weather and grid outages only when co-located with and able to directly power
Resilience Hubs, city operations, and neighborhood microgrids.
Community solar represents the solar model that can most directly enable
equitable, affordable, universal opt-in access to the economic, environmental,
and local resilience potential of solar. The public program and its terms
determine these features, and project siting determines the potential for on-site
microgrids. The optimal model for community solar in Iowa City will depend
most on the nature of the community solar program. Investor-owned, PPA, and
community ownership are broadly compatible with these benefits, with major
differences in regulatory, operational, and financing issues.
61IOWACITYSOLAR2035 ***DRAFT***
While community solar is an effective tool for expanding solar access, it does not
create or ensure low-income participation. According to the low-income solar
policy guide, “Almost all of the same barriers to entry–particularly financing,
education and outreach, and market forces–exist for community solar as for
rooftop solar”. The Clean Energy States Alliance Solar with Justice report (CESA,
2019), the most recent and authoritative report social equity strategies in solar,
identifies ten common obstacles to solar for under-resourced communities:
1. The solar market is still developing in many places
2. Lack of solar marketer interest and customer awareness in under-
resourced communities
3. Financial barriers for community institutions
4. Competition between solar and existing LMI energy programs
5. Policy barriers
6. Utility opposition
7. Competing priorities for advocates and service groups
8. Housing policies
9. Finance policies
10. Vestiges of discriminatory practices and residential segregation
National experience to date has shown that a targeted policy and programmatic
focus on serving low-income consumers is necessary to successfully expand
community solar’s reach to low-income communities at scale. At least 14 states
have included low-income provisions in their community solar programs. States
have taken various approaches to date, including:
Carveouts: A carveout designates a certain amount of program or project
capacity to LMI customers. Project carveouts have been included under
community solar programs in initial years of Colorado and New York
Phase 1, which mandate that a certain percentage of all community solar
projects be dedicated to low-income, and for utility-led facilities in
Hawaii. Program carveouts have been included in Maryland and Oregon,
which mandate a certain percentage of overall program dedicated to
low-income customers
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LMI-only projects: Projects designed specifically to serve only low to
moderate income households
Anchor-tenant projects: project developers can seek a single non-
residential anchor tenant to subscribe to a large portion of the project’s
capacity
Incentives: Incentives and adders have been used to incentivize low-
income participation in states like Illinois and Massachusetts, with higher
payback rates
Purchasing Programs: Programs have been designed specifically for low-
income community solar, towards the goal of low-income participation
and benefit. Colorado Energy Office deployed a dedicated low-income
community solar program aimed at reducing low-income energy burden,
California’s Community Services Department and New York (NYSERDA)
has developed a program under which the state entity serves as an
intermediary purchaser of community solar and allocates capacity to low-
income customers through electric bill assistance offerings.
Each of these options have been analyzed by NREL (2016), finding the most
effective strategy will be based on the characteristics of the community. The
shared primary finding from NRL and CESA is that partnerships with community
groups and existing LMI energy programs are important and effective means of
including LMI communities in community solar expansion.
CESA’s general recommendations for communities include:
1. Partnerships involving trusted community organizations are essential
2. LMI solar is still in the experimental phase
3. Installations for community institutions deserve special consideration
4. Resilience should be a component of LMI solar
5. Financial risk needs to be minimized for LMI households and community
organizations
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6. Strong consumer protection is crucial
7. Shared solar projects can play a useful role, but they are not a panacea
8. Training and workforce development should remain a priority
9. Solar education is important
10. Increasing the availability of financing for solar projects in under-
resourced communities is essential
The NAACP Solar Equity Initiative (NAACP, 2021) recommends that to create
tangible progress for BIPOC and other frontline communities, equitable solar
policy should:
1. Reflect an inclusive and community-driven theory of change guided by
the Principles of Environmental Justice and the Jemez Principles of
Democratic Organizing.
2. Address past, current, and future impacts of climate change by fostering
the development of solar energy policies that move us toward a resilient
and just transition. Solar energy policies should exist as part of a suite of
policies to direct a Just Transition towards a decarbonized economy.
3. Result in measurable improvements in solar adoption rates and
whenever possible ownership and control of solar with strong consumer
protections in place.
4. Increase and advocate for resilience (grid, community, and individual).
5. Be cross-cutting, so that they address water quality, housing affordability,
community development, clean air, workforce equity, and jobs,
contracting equity, economic development, education, food access and
affordability, transportation, utility regulation, community engagement,
and other concerns.
6. Be integrated with energy efficiency, grid upgrades, other renewables,
building, and transportation/transit electrification, storage, etc.
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7. Drive both economic and political benefits of solar to reduce energy
burdens, make energy more affordable, increase ownership
opportunities, create jobs within these communities, and support
entrepreneurs and minority and women-owned businesses. Policies
should also foster the creation of an inclusive solar energy workforce and
business community.
8. Strive for equitable, accessible solar that also delivers net positive
impacts or benefits, educates consumers, and empowers them to make
their own, informed decisions. Companies and organizations should
operate at the highest ethical standards and not engage in deceptive or
abusive acts or practices.
CESA recommendations for state governments and community organizations
relevant to the city include measuring progress towards energy equity, designing
solar programs for specific market segments, and ensuring financial benefits
reach LMI households (CESA, 2019). Best practices from the Low Income Solar
Guide (2018) include:
1. Customer Preference – “When starting a new community solar program,
it is essential to keep low-income customers at the forefront of the
discussion to ensure they will be able to participate and benefit. Inclusion
of language that establishes prioritization and enables preference for
low-income customers will allow regulators, utilities, and stakeholders to
create targeted, low- income community solar policies that ensure strong
low-income participation and flow of program benefits to these
customers.”
2. Equitable Benefit – “The program should be structured to ensure that
low-income customers in all housing types receive proportionate access
and economic benefits under the program. Generally, programs should
strive to enable proportionate access for all rate classes, and low-income
participation should reflect low-income demographics within the rate
base/utility/state service territory. For example, if 30% of residential
65IOWACITYSOLAR2035 ***DRAFT***
customers are low- income, and 10% of the commercial rate class is
affordable housing, these demographics should inform the structure of
the program and any participatory targets. This principle ensures that a
program is not disproportionately weighted towards a certain customer
class and that benefits flow equitably to all eligible customer classes and
income levels. Program designers may also want to include low-income
service providers, such as nonprofits serving low-income communities, in
policies”
3. Housing Considerations – “Low-income customers reside in a diverse
range of housing, from single family homes to multifamily rental
properties. Often, low-income customers may not pay their bills directly,
and are represented by an affordable housing operator or other service
organization. These unique housing characteristics create both barriers
and opportunities. For example, low-income affordable housing
operators are often able to serve as financeable offtakers for projects and
can serve as passthrough intermediaries for their tenants to benefit from
community solar. Single-family households can capture program benefits
bill credits) directly, but typically face the highest financial barriers to
entry for programs. As such, it is essential to ensure that all low- income
customers are included in policy and program design, to ensure
opportunity for participation regardless of housing type, and that
incentives are structured which account for difference in financing
barriers between low-income residential customers, low- income housing
providers, and low-income service organizations (if included). Low-
income residential customers who pay their bills directly will typically
require the highest incentives as they face the highest financial barriers
to entry.”
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Solar Policy:Planning,Zoning,Easements,
and City Operations
Local government solar policy can be limited or supported by state legislation
and the Iowa Utility Board. Table XXX shows the relationship between solar
approaches in Iowa City relevant to state policy.
Table 3.1. Solar policies overview
Is it legal in
Iowa?
Does Iowa
Code include
enabling
legislation?
Does the
Iowa Utility
Board have a
directive for
this?
Is this
approach
currently
operational in
the state?
Is this
approach
currently
operational
Iowa City?
Solar Zoning YES "# YES "# NO X YES* "# YES "#
Solar Easements YES "# YES "# NO X YES "# NO X
Solar-ready
building code YES "# NO X NO X YES "# NO X
Solar in
comprehensive
planning
YES "# YES "# NO X YES "# NO X
Certification
programs YES "# NO X NO X YES "# NO X
Contemporary Zoning in Iowa City
Utility-scale ground-mounted solar facilities are currently allowed in Iowa City in
areas zoned commercial, industrial/research, interim development, and public.
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Some zones may be provisional or require special exception (Iowa City Zoning
Code, Iowa City, 2021b). The American Planning Association (APA, 2014) finds
one of the biggest potential barriers to solar energy use is the lack of clarity in
the local zoning code about what types of solar energy systems are permitted in
what locations.”
In Iowa City, most solar panel installations are categorized as accessory
mechanical structures (more specifically as utility equipment), per section 14-4C-
2N of the City Code. These accessory structures are allowed in all zones, but do
have some additional requirements pertaining to location and setbacks of the
structure on each property. These additional requirements can also be found in
section 14-4C-2N of the City Code.
https://codelibrary.amlegal.com/codes/iowacityia/latest/iowacity_ia/0-0-0-
23239
The City also has a separate code section detailing the allowance of Utility-Scale
Ground-Mounted Solar Energy Systems, which can be found in section 14-4B-4D-
18 of the City Code. These structures, which are intended for larger utility-scale
solar operations, are allowed via special exception in all commercial zones, RDP,
ORP, and ID-RP zones, and as a provisional use in P-1 and P-2 zones.
Iowa Law
Iowa statutes leave most solar development regulation to local governments.
The State does not pre-empt or guide solar development. Most importantly,
Iowa law mostly leaves to local governments the challenge of defining solar
rights, including when property owners have an as-of-right solar development
opportunity, when solar rights trump or are trumped by other property rights,
and how or whether to protect solar installations from trees or buildings on
adjacent properties. State law specifically enables certain actions, such as
creation of solar energy “easements” and standard to limit HOAs from restricting
solar development, but local governments must take the initiative to adopt and
administer these protections (Great Plains Institute, 2020).
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Iowa state law allows the purchase and holding of easements protecting access
to solar. In situations where easements are not voluntarily agreed to, the
individual or entity installing the solar energy system may apply to have a local
board review and potentially grant an easement (Iowa Code 564A.7. Access to
Solar Energy.) Iowa code authorizes municipalities to issue zoning ordinances
prohibiting subdivisions from including restrictions that limit the use of solar
collectors (Iowa Code 564A.8. Restrictive Covenants.)
Iowa Smart Planning
The State of Iowa smart planning law (State of Iowa, 2011) requires state
agencies, local governments, and other public entities to consider 10 principles
during deliberation of all appropriate planning, zoning, development, and
resource management decisions. Several of these principles provide a pathway
to the integration of solar development best practices into community
regulations and programs:
Principle 2. Efficiency, Transparency, and Consistency: “Planning, zoning,
development, and resource management should be undertaken to
provide efficient, transparent, and consistent outcomes. Individuals,
communities, regions, and governmental entities should share in the
responsibility to promote the equitable distribution of development
benefits and costs.”
Solar Best Practice: “Regulation and permitting process should be
transparent, predictable, and consistent with surrounding jurisdictions.”
Principle 3. Clean, Renewable, and Efficient Energy: “Planning, zoning,
development, and resource management should be undertaken to
promote clean and renewable energy use and increased energy
efficiency.”
Solar Best Practice: “Acknowledge the value of solar resources and
recognize and enable the varied forms of solar development in plans,
policies, and regulations.”
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Principle 4. Occupational Diversity: “Planning, zoning, development, and
resource management should promote increased diversity of
employment and business opportunities, promote access to education
and training, expand entrepreneurial opportunities, and promote the
establishments of businesses in location near existing housing,
infrastructure, and transportation.”
Solar Best Practice: “Recognize the economic development and job
creation benefits of solar development in economic plans and programs.”
Principle 7. Community Character: “Planning, zoning, development, and
resource management should promote activities and development that
are consistent with the character and architectural style of the
community and should respond to local values regarding the physical
character of the community.”
Solar Best Practice: “Proactively plan for addressing potential conflicts of
solar development with other valuable community resources, such as
historic community character, urban forest, agricultural practices, and
natural systems.”
Principle 8. Natural Resources and Agricultural Protection: “Planning,
zoning, development, and resource management should emphasize
protection, preservation, and restoration of natural resources,
agricultural land, and cultural and historic landscapes, and should
increase the availability of open spaces and recreational facilities.”
Solar Best Practice: “Recognize the environmental benefits of solar
energy production as articulated in local, state, or national policy and
regulation.”
Principle 9. Sustainable Design: “Planning, zoning, development, and
resource management should promote developments, buildings, and
infrastructure that utilize sustainable design and construction standards
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and conserve natural resources by reducing waste and pollution through
efficient use of land, energy, water, air, and materials.”
Solar Best Practice: “Include solar development as a component of public
and private sector building and infrastructure standards development.”
Planning and Zoning: Prior Implementation in Iowa
In 2017, Johnson County revised their solar ordinances and made the solar
application process more efficient as part of earning a SolSmart Gold
designation. More recently, Johnson County updated their utility-scale
ordinance. Similarly, Linn County is a part of the Iowa Solar Readiness Initiative
and has amended their zoning standards to permit consumer and utility scale
solar installations. Linn County received Solsmart Gold Designation for making
solar more accessible to homes and businesses.
Fayette, IA adopted a Solar Energy Systems Ordinance as part of the City Code
that outlines the permit process and requirements (i.e., height, location,
setbacks, easements, screening, aesthetics, etc.)
Decorah, IA allows solar “by-rights” as an accessory structure in all residential
zones and is permitted as an accessory use in all other zones as accessory uses
and structures customarily incidental to any principal permitted use.”
Solar Access Rights and Solar Easements
Easements provide long-term assurance of access to incident sunlight and
ensure compensation for any lost access. Easements are necessary prerequisites
for distributed and centralized solar investment in dense and growing areas
where vertical development could limit solar resource during the lifetime of the
panels. Iowa City does not currently support solar easements.
71IOWACITYSOLAR2035 ***DRAFT***
Planning and Zoning: Best Management Practices
1. An amendment to the comprehensive plan should precede a solar
ordinance/zoning to state intentions for solar development, the benefits of
investments in solar, and the key considerations around regulating solar
siting (Johannsen et al., 2020). Spatial analysis in GIS is recommended to
evaluate candidate zoning policies, determine potential parcels for utility
scale solar that won’t be visible from residential areas, create visibility
standards, and enable primary solar uses in appropriate locations for large-
scale centralized solar installations.
2. Solar facilities generating power for on-site use should typically be regulated
as “by right” uses (depending on size and location), while utility-scale solar
should typically be “conditionally” permitted regardless of the zoning district,
and best in brownfields, remote areas, and agriculture areas (Coffe, 2019).
This regulatory approach is true in Iowa City.
3. “The zoning ordinance should be amended to more specifically set forth the
process and requirements necessary for a thorough land-use evaluation of an
application” (Coffe, 2019).
Iowa Solar Model Ordinance
The Great Plains Institute suggests an Iowa Solar Model Ordinance (Great
Plains Institute, 2020) with state-specific standards to:
a. Create an as-of-right solar installation path for property-owners.
Create a clear regulatory path (an as-of-right installation) to solar
development for accessory uses and - if appropriate - for principal
uses such as large-scale solar and ground-mounted community
shared solar installations.
72IOWACITYSOLAR2035 ***DRAFT***
b. Enable principal solar uses. Define where community- and large-solar
energy land uses are appropriate as a principal or primary use, set
development standards and procedures to guide development, and
capture co-benefit opportunities for water quality, habitat,
agriculture.
c. Limit regulatory barriers to developing solar resources. Ensure that
access to solar resources is not unduly limited by height, setback, or
coverage standards, recognizing the distinct design and function of
solar technologies and land uses for both accessory and principal
uses.
d. Define appropriate aesthetic standards. Retain an as-of-right
installation pathway for accessory uses while balancing design
concerns in urban neighborhoods and historic districts. Set
reasonable aesthetic standards for solar principal uses that are
consistent with other principal uses that have visual impacts.
e. Address cross-property solar access issues. Consider options for
protecting access across property lines in the subdivision process and
in zoning districts that allow taller buildings on smaller (urban
density) lots.
f. Promote “solar-ready” design. Every building that has a solar resource
should be built to seamlessly use it. Encourage builders to use solar-
ready subdivision and building design.
g. Include solar in regulatory incentives. Encourage desired solar
development by including it in regulatory incentives; density bonuses,
parking standards, flexible zoning standards, financing/ grant
programs, promotional efforts.
Iowa Government Solar Toolkit
As part of The Great Plain Institute’s Solar Ready Iowa, the Local Government
Solar Toolkit: Iowa (Great Plain Institute, 2020) has been developed to equip
local governments in Iowa with information regarding solar development as it
relates to planning, zoning, and permitting. The toolkit provides resources and
73IOWACITYSOLAR2035 ***DRAFT***
BMPs that will assist communities in addressing barriers to solar energy
installations in a manner tailored to each community’s needs. These model
ordinances offer language to address a variety of solar land uses, aligned with
local conditions and priorities. Zoning elements include:
1. Use – Which land uses are permitted, which are conditional, and which
are prohibited in each zoning district? Should the community allow solar
farms in industrial districts, or ground-mount accessory solar in the
backyards of residential districts?
2. Dimensional standards – Where on the lot can solar land uses be
placed? If the solar resource is only viable in the front yard, or only
available above the peak of the roof because of the neighbor’s trees,
should the community allow solar development in those locations? Most
communities allow some exceptions to height and setback requirements.
Does solar meet the same standard to qualify for an exception?
3. Coverage and bulk – How much of the property can be developed
consistent with the preferred development pattern for that zoning
district? Should solar panels in the backyard count as an accessory
structure if the number of accessory buildings is limited on the lot? Does
the surface of a solar collector count as impervious surface for storm
water standards?
Some communities’ zoning ordinances have more advanced elements that
should also be addressed to remove barriers and to take advantage of
incentives. Examples include:
Design standards - Are community aesthetic or character standards part
of local regulations? How can solar development fit into areas where the
community has set design goals?
Solar easements or cross-property protection – Iowa law enables the
creation of easements across property lines to protect solar resources,
and the use of a local solar access regulatory board to create easements
74IOWACITYSOLAR2035 ***DRAFT***
through a regulatory process. Should local regulation protect the solar
resource when someone makes a long-term investment in solar
infrastructure? Is there a public purpose in protecting solar access across
property lines?
Homeowners Associations – Iowa law allows communities to limit
private covenants that prevent individual homeowners’ investment in on-
site solar. Should the community guide homeowners’ association choices
on solar installation design?
Integrating with other processes – How does solar development conflict
or support agricultural protection, historic preservation, urban forests,
urban expansion areas, municipal utility goals?
Capturing co-benefits – Solar farms or other principal uses are subject to
stormwater management regulations. Properly designed ground cover
requirements for solar farms can create a stormwater amenity or
pollinator” habitat.
Solar-ready building code
Iowa State Energy Code for residential and commercial buildings, based on the
2012 International Energy Conservation Code (IECC), does not regulate solar-
ready building. While local governments cannot modify the code or adopt
stricter standards on regulated topics, they can adopt supplemental building
codes on other issues, and Iowa Code 414.3 allows for regulations to promote
reasonable access to solar. IECC Appendices RB and CA prepare buildings for
future installation of solar energy equipment, piping, and wiring.
The California Energy Commission introduced the California solar mandate which
requires rooftop solar photovoltaic systems to be equipped on all new homes
built on or after January 1, 2020 (California Energy Commission, 2019c) The 2019
Building Energy Efficiency Standards requires that all new single-family homes
and multi-family buildings that are under three stories must conform to the new
solar code standards and is climate zone-specific depending on the sizing of a
75IOWACITYSOLAR2035 ***DRAFT***
home’s floor area. The Building Energy Efficient Standards also encourages home
batteries and heat-pump water heaters. The size of the equipped system will be
determined by the ability to offset 100% of the home’s electricity usage. Homes
do not need to offset 100% of their home’s energy with solar.
Solar-ready residential and commercial building codes from California (2019),
International Energy Conservation Code (2021), the North Carolina Clean Energy
Technology Center’s DSIRE database, and an NREL sample of U.S. municipal
codes (Cook et al., 2016) provide contemporary examples of adopted in-use
codes. No Iowa building codes were included in the NREL study due to
insufficient data.
Certification Programs and Guidance
SolSmart, funded by the U.S. Department of Energy Solar Energy Technologies
Office, provides a comprehensive state-specific certification program and no-
cost technical assistance to help communities develop municipal solar policies.
Designees must meet requirements across the five categories of the SolSmart
criteria. Communities must meet program prerequisites and requirements in the
foundational categories of Permitting and Inspection and Planning and Zoning
and elective focus areas of Government Operations, Community Engagement,
Market Development (Solsmart, 2021).
The Great Plains Institute, the Iowa Environmental Council and Center for Rural
Affairs, the Grow Solar program, and the American Planning Association provide
best practices, model ordinances, and tools, and the North Carolina Clean Energy
Technology Center’s DSIRE database comprehensively catalogs state, county,
and municipal solar policies.
76IOWACITYSOLAR2035 ***DRAFT***
Principal Findings Planning
Considerations
Iowa City can become a state and national leader in applying renewable energy
and energy efficiency policy through cohesive and comprehensive solar policies
in zoning, building code, easements, city operations, and comprehensive
planning to enhance quality of life, resilience, and economic and
environmental objectives.
Solar policies provide direct support for Climate Action Plan goals of increasing
on-site renewable energy systems and electrification and initiating community
solar projects while integrating solar with the goal of increasing compact and
contiguous development.
Iowa City can apply proactive solar policies, planning and zoning, utility and
community-scale projects, solar thermal, and ground-mount solar PV to offset a
lower potential for rooftop solar on existing residential and commercial buildings
than peer communities in Iowa and among college towns and small metros.
Solar policy is foundational to the success of all specific projects and objectives,
and each component is essential. Establishing solar easements and solar-ready
building, planning, and zoning in the near term is necessary if distributed solar is
to contribute meaningfully to city objectives within the planning time horizons of
the current Comprehensive Plan and Climate Action Plan.
On-site solar and microgrids for existing and proposed city buildings can help
accomplish climate action plan recommendations for existing city buildings,
ensure continuity of city operations, establish Resilience Hubs, and achieve
other public purposes during extreme weather events, grid outages, and
emergencies.
77IOWACITYSOLAR2035 ***DRAFT***
On-site solar maximizes City government’s ability to implement the action plan
to increase on-site renewable energy systems and electrification of City
operations and assure coordination in preparedness planning with relevant
agencies. Applying a portion of this solar for the public purpose of electric
vehicle charging by city vehicles at city facilities will support efforts to embrace
electric vehicles and reduce the City’s vehicle emissions footprint and accelerate
investment in electrical and facilities upgrades for vehicle charging to enable
electric and plug-in hybrid City vehicle fleets. On-site solar with backup supports
existing City buildings participating in transitioning 3 percent of buildings with
natural gas to high efficiency electrical heat, powered through low-carbon
electricity sources by 2025 and 25 percent by 2050.
If the regulatory environment permitted, ideally by legislation enabling virtual
net-metering in Iowa, City-wide and neighborhood community solar programs
could help allow all residents to benefit from solar savings and household
resilience and contribute to the environmental benefits of solar.
Community solar is foundational to solar equity and an example funding
mechanism to support community-wide climate action. Important considerations
for implementing community solar include:
Passing state legislation to enable subscription-based community solar
projects, or identifying alternatives within the existing regulatory
environment.
Identifying ground mount and rooftop community solar capacity on city
properties
Partnering with Mid-American Energy on community solar ownership and
operations to reduce regulatory, financial, and operational complexity
and enable the city to focus on the public program, public purposes, and
public benefit.
78IOWACITYSOLAR2035 ***DRAFT***
Ensuring net economic benefits to low-income residents and prioritize
LMI households, renters, students, and buildings not suitable for solar in
initial programs to build an effective and inclusive community solar
program. Conduct the financial analyses to ensure viability for the entire
community, and especially for energy cost-burdened households.
Considering community objectives in community solar and develop local
community projects based on neighborhood needs and characteristics
and public participation. Public participation is essential in developing
community solar projects, and especially for neighborhood-scale
community solar and microgrids.
Applying community solar installations and solar gardens to reduce
Urban Heat Island (UHI) impacts for neighborhoods and buildings with
high UHI.
Measuring progress toward energy equity, solar equity as defined by
communities, and reduced energy cost-burden for LMI households
Catalyzing private investment in solar PV and thermal by homeowners,
businesses, and investors, and leveraging interest in solar ownership to
increase energy efficiency through weatherization, high efficiency electrical
heating, and solar hot water can help achieve climate action goals.
Strategies to accomplish these objectives might include:
Educate and encourage households, businesses, and landlords on the
specific benefits and costs of going solar for their buildings and adding
battery storage. Increase awareness of reliable estimates of the
economic benefits of investment in solar after federal tax credits, AERLP,
and other state and federal programs. Conduct outreach with businesses
on benefits of investing in solar across the city and in federally designated
Opportunity Zones.
79IOWACITYSOLAR2035 ***DRAFT***
Educate and encourage households, businesses, and landlords on the
larger benefits of pursuing energy efficiency improvements before adding
solar or battery storage.
Connect residents and businesses to firms offering PPAs and commercial
operating leases in the state to enable competitive private-sector
financing options for larger investments.
Applying distributed and community solar to power thermal decarbonization
and pair community solar with energy efficiency and weatherization programs
can help maximize potential life-cycle greenhouse gas mitigation.
A solar-ready electrical and construction workforce can help grow a solar
community. Pertinent training and certification is likely possible through
Kirkwood Community College.
Encouragement and commitment to responsible solar panel purchasing and
supply-side certification addresses negative issues related to human rights and
environmental impact. This goal directly connects going solar with the Climate
Action Plan goal of encouraging the purchase of local products and responsible
purchasing.
The following local actions and needs can help accomplish the objectives
mentioned above:
1. Continue to implement best practices in city solar policies for
permitting and inspection, building code, planning and zoning, solar
easements, and historic preservation, and prepare city staff and
operations for a solar city. The city can complete the SolSmart program
as a path to adopting best practices in solar tailored to community plans,
80IOWACITYSOLAR2035 ***DRAFT***
characteristics, opportunities, and needs. Iowa City can join Johnson
County, Linn County, Cedar Rapids, and 8 other Iowa counties and
municipalities as a SolSmart Gold Designee. The SolSmart process and
guidance and Midwest Renewable Energy Association’s Grow Solar
program provide state-specific planning, zoning, and permitting toolkit
and model ordinances. Immediate steps toward this milestone include:
map current solar zoning by parcel
consider a comprehensive solar zoning ordinance
consider rooftop solar guidelines for designated historic buildings
and historic districts
evaluate opportunities and implement solar-ready building code
requirements according to Iowa Code 414.3 that allows for
regulations to promote reasonable access to solar
adopt solar easements to support distributed solar throughout
dense neighborhoods
identify community public purposes for community solar projects
consider both PV and solar thermal in all applications
consider municipal adoption of corporate and residential PACE
2. Develop community solar options for renters, students, and LMI
households. Community solar has the highest potential for solar PV
generation to contribute to climate action goals for existing buildings,
especially when paired with community energy efficiency and thermal
decarbonization programs. This significant goal faces the regulatory and
operational challenges of implementing one of the first community-
hosted solar programs in Iowa without a municipal electrical utility.
3. Seek IUB clarification on community-hosted projects including business
district solar, neighborhood solar gardens, microgrids, and other
community purposes for community-hosted solar.
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4. Conduct public participation on solar planning. Identify community
public purposes for community solar projects. Scale and implement
community solar projects based on neighborhood needs.
5. Create a Comprehensive Waste Management Plan for solar
decommissioning and recycling. Integrate solar into a Comprehensive
Waste Management Plan and prepare to administer a recycling program.
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Demonstration Projects Partnerships
Demonstration projects introduce innovative ideas and approaches to address
needs and areas of concern, requiring relatively low capital investment and
providing an opportunity to determine whether the project can be scaled up or
replicated. Demonstration projects are effective mechanisms for forging
partnerships between public and community sectors, garnering public input, and
generating measurable results.
Example Iowa City Community Solar Projects and Criteria
Community solar is foundational to broad and equitable participation in solar
and responds to the Climate Action Plan’s call to initiate community solar
projects.
Caveat: Absent enabling state legislation for property assessed clean
energy, the city has limited options to support private commercial or
residential solar purchases. In business districts without adjacent public
land, community solar could be possible by leasing accessory use from
landowners to place panels on roofs and parking lots. It is important to
note that utility policy currently only allows for solar projects to serve on-
site usage- off-site subscriber-based community solar would require a
change or exception to this policy.
Exemplary community-hosted solar projects generate electricity on city-owned
or leased properties to support multiple public goods and private co-benefits.
The objectives for community-hosted solar projects might include:
resilient city services and emergency services
cost savings for net-metered city operations
equitable access to solar cost savings for all residents and businesses
lower greenhouse gas emissions
reductions in the urban heat island effect
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a visible commitment to the city’s climate action plan
anchors for solar business districts
initial seeds to catalyze neighborhood microgrids
Features of a community solar project might include:
photovoltaic arrays on public buildings
one or more 500kW opt-in community solar arrays with virtual net
metering
one or more solar parking lots with shaded multi-use spaces for covered
bicycle parking, electric vehicle charging, and pop-up events
a solar garden with interpretive displays and real-time indicators
discounted group buys for residences, businesses, and non-profits
At 500 kW capacity per community-hosted solar array, each project meets the
electricity resilience needs of the city host buildings plus:
572 MWh/year, the equivalent of 60+ residential rooftop solar
installations
205 metric tons of avoided CO2 emissions per year relative to Mid-
American Energy’s 2020 Iowa emissions rate, equivalent to taking 45 cars
off the road
Design Criteria
A neighborhood community solar demonstration project using city buildings and
public spaces in each neighborhood and business district should consider design
criteria, such as:
maximize equitable access through initial projects in low and middle-
income areas, neighborhoods with high rental and student populations
who cannot directly invest in residential solar, federal opportunity zones,
and public housing
prioritize resilience and greenhouse gas reductions for city operations
a visible solar cityscape for residents and visitors
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city buildings to serve as anchors for adjacent solar business districts
projects at multiple scales
Site Analysis
Solar projects on City-owned properties can provide local public benefits, such as
resilience to power outages and extreme weather events, may help increase
project feasibility, and can help provide equitable access to solar benefits.
Appendix I includes a map of public lands in Iowa city 3-acres or larger, identified
as parks or not parks.
Facilities to be considered for on-site solar and storage, subject to limitations
and feasibility, include:
Iowa City Public Library
City Hall
Police Station
Fire Station #1
Robert A. Lee Community Recreation Center
Senior Center
Downtown Parking Ramps
Mercer Park Aquatic Center and Scanlon Gym
Fire Stations #2 and #3
Airport
South Side Recycling Center
Landfill
Terry Trueblood Recreation Area
Napoleon Ln
Water Department
Absent enabling state legislation for property assessed clean energy, the city has
limited options to support private commercial or residential solar purchases. In
business districts without adjacent public land, community solar could be
possible by leasing accessory use from landowners to place panels on roofs and
85IOWACITYSOLAR2035 ***DRAFT***
parking lots. Again, it is important to note that utility policy currently only allows
for solar projects to serve on-site usage- off-site subscriber-based community
solar would require a change or exception to this policy.
This analysis considers all city-owned non-school buildings and adjacent parking
facilities, parks, open spaces, and residential and commercial buildings. These
projects total 10-30 MW of generation capacity and supplement potential
community-hosted solar projects in residential neighborhoods.
Potential pilot project sites combining City Operations, Business Districts, and
Community Solar opportunities are shown below.
Downtown Business District
Iowa City Public Library
City Hall
Police Station
Fire Station #1
Robert A. Lee Community Recreation Center
Senior Center
Downtown Parking Ramps
Towncrest (Opportunity Zone)
Mercer Park Aquatic Center and Scanlon Gym
Sycamore Mall (Opportunity Zone)
Fire Station #2
Highway 1/6 corridor (Opportunity Zone)
East Side Recycling Center/ReStore
Roosevelt
Airport
South Side Recycling Center
Additional City Operations locations
Fire Station #3
Landfill
Terry Trueblood Recreation Area
Napoleon Ln
Water Department
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Business districts and LMI residential areas with high potential for commercial
and utility-scale solar, adjacent private parking lots, nearby public parks and
public schools, but no city buildings, could also be potential project sites. They
include:
Fairmeadows
North Dodge/Pearson/ICCSD
Riverfront Crossings (Opportunity Zone)
South District/Pepperwood Plaza/Wetherby Park
Walden Square
Figure 4.1 Potential pilot projects for city operations and business districts.
Strategy: pilot projects
for city operations,
business districts, and
opportunity zones
Resilient
City
Operations
Solar
business
district
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Figure 4.2 Potential pilot projects incorporating city operations, business
districts, and federally designated Opportunity Zones.
Potential priority
pilot projects
combine multiple
objectives
Resilient
City
Operations
Solar
business
district
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Sourcing and Disposal
Solar Sourcing
The questions surrounding the conditions and inputs used to produce solar panel
components have been a more recent area of concern. While questions
surrounding the environmental impacts of production have been circulating for a
few years (Mulvaney, 2014), recent concerns of forced labor and worker safety
have pushed solar consumers and sources to examine where their solar products
come from (Murtaugh, 2021; Swanson and Buckley, 2021).
Recent reports have raised concerns that polysilicon factories in China’s Xinjiang
region are used forced labor from ethnic minorities. The solar issue is a
component the wider concerns of the oppression of the Uighur and other
minorities in China. While the claims of forced labor are being denied by
companies operating in the region, multiple reports cite ‘red flags’ in Chinese
documents that may indicate that these workers are being coerced and forced
into these factory positions. It has pushed sourcing companies to cut ties with
the region and look for polysilicon in other places, a difficult thing to do as China
produces 82% of global silicon (Swanson and Buckley, 2021). In a year that was
already seeing increases in solar installation, limiting of the Chinese supply may
result in a tighter, backed up market for solar components and, thus, solar
panels (BloombergNEF, 2021).
The situation in China is still developing, and legislation or other sanctions may
be enacted in the coming months (Swanson and Buckley, 2021). However, when
sourcing solar it is prudent to ask local suppliers where they source their panels
from and to investigate whether those companies have signed on to a pledge
opposing forced labor put forth by the Solar Energy Industries Association in
early February 2021 (SEIA, 2021).
In addition to these recent concerns, there are also other resources for sourcing
solar responsibly. While the carbon-free energy provided by solar can offset
89IOWACITYSOLAR2035 ***DRAFT***
some of its production energy, there are still environmental concerns when it
comes to the energy and chemical usage used to create the cells. It is important
to, again, investigate the regions where the solar you are sourcing is produced
and what practices they may be using. What types of energy is predominantly
used for industrial practices? What sorts of precautions and regulations do they
have for dealing with hazardous materials? What are their workers right and
protections?
To aid this process, the Silicon Valley Toxics Coalition prepares a scorecard rating
solar companies on multiple metrics. These include the following: Extended
Producer Responsibility; Emissions Reporting; Worker Rights, Health, and Safety;
Supply Chains; Module Toxicity & Materials; Emissions; Water; and Conflict
Materials (Silicon Valley Toxics Coalition, 2019). Figure 4.3 shows their solar
scorecard for 2018-2019 (keeping in mind that circumstances may have changed,
especially emerging concerns in Xinjiang).
As newer solar cell technologies develop into mainstream production, there may
be a greater variety of environmentally responsible and sustainable options.
From the mine to assembly, the sourcing of components and labor fall on a
spectrum of sustainability and ethics. Environmental and human rights sourcing
issues also apply to battery storage systems for solar. For implementation of
solar to be truly sustainable, these factors must be considered and shape
sourcing decisions.
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Figure 4.3. SVTC 2018-2019 Solar Scorecard
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Disposal and recycling
More than 95% of materials in contemporary solar panel and rack system
materials are recyclable, but separating the materials and recycling them is
complex and often expensive. PV recycling in the US is voluntary, except in
Washington, where manufacturers are required to collect panels at their end of
life for recycling free of charge. There will be two decades after initial launch
before the recycling program hits its peak, which provides a window to define
and expand the program. In 2021, the Iowa Department of Natural Resources is
forming a subcommittee to investigate and propose strategies for the disposal of
material from solar generation and other renewable energy sources.
Considerations for the group include:
Which brands of solar panels will be used?
The city should consult with its waste management in selecting panel
technologies. The many solar installers in the Midwest install multiple
types of panels, such as monocrystalline, polycrystalline, thin film, etc.
The North Carolina Department of Environmental Quality provides
guidance on how to classify whether a solar panel is hazardous waste and
could be used as a framework for Iowa City to select panels for municipal
installations and establish regulations (NC DEQ, 2019).
What is the estimated rate of solar panel decommissioning?
Estimates for the maximum number of solar panels that would need to
be recycled depend on the peak installation rate. Google Sunroof
estimates total rooftop potential in Iowa City at 10.2 million panels.
Assuming 10% of the total potential is installed in one year and that these
panels would all need to be decommissioned and recycled at the same
time yields a maximum of 1 million recycled panels per year. As solar
panels have a lifespan of 25 to 30 years, there is time for the program to
reach full capacity (Richardson, 2021).
92IOWACITYSOLAR2035 ***DRAFT***
Who are the local and regional recyclers?
Area solar installers and solid and hazardous waste management firms do
not provide recycling for solar panels. There are few dedicated solar
panel recyclers in the Midwest, and several specialized national firms
with regional depots. The Solar Energies Industry Association has a
national recycling program to help find recyclers and facilitate panel
recycling (SEIA, 2019). Cascade Eco Minerals has a zero-landfill policy,
Midwest depots, and recycles solar panels in-house. Recycle PV offers
nationwide solar panel services for domestic re-use or recycling. PV panel
manufacturers First Solar and SunPower have recycling programs for
scrap, warranty returns, and end of life.
93IOWACITYSOLAR2035 ***DRAFT***
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Appendix I:Maps
101
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Adaptation/Equity Working Groups, Meeting Minutes
Tuesday, Dec. 21, 2021, 2-3 p.m.
Present: Megan Hill, Matt Walter, Sarah Gardner, Daniel Bissell
1. Welcome and Introductions
Volunteer to take minutes - Sarah
2. Updates
ISU Social Justice and Climate Planning student project: the students submitted their
final report on the project on Dec. 17. Proposals included a suggestion to add a
human capital” section focused on green jobs and workforce development issues for
the next Climate Action and Adaptation Plan update. The plan also includes maps
that aim to frame vulnerabilities within Iowa City along different criteria. The bulk of
the plan focuses on programs in other parts of the country that might be adopted in
Iowa City with suggestions as to how that might be achieved, including projects
related to urban agriculture, transit, parking regulations, and cool roofs.
AmeriCorps activity: Sarah shared that efforts to promote home energy audits seem
to be paying off as the team has been visiting several homes a week, with most of
January already booked. In addition to energy efficiency opportunities, the GIA team
has identified a number of gas leaks in homes recently and have helped bring
MidAmerican to the properties to address those leaks. Megan noted that in her time
in AmeriCorps the team only identified gas leaks on two occasions, so the number
this team is identifying is notable. Megan also suggested a bill insert might be a good
way to advertise GIA services in the future, and Matt suggested looking into how to
reach those receiving electronic billing.
3. Discussion
The working group discussed the following ideas and questions related to the solar study
by JCED:
Working group members noted surprise at the relatively small percentage of
energy generation for Iowa City that comes from solar and found the table
showing what was allowed in Iowa and what was occurring in Iowa City to be
useful in understanding options and current efforts
The group discussed some of the City’s previous efforts related to solar,
including participation in the Grow Solar program, TIF-funded solar projects in
commercial areas, and the Bluestem report that evaluated city-owned facilities
for their solar potential
Working group members asked what the genesis for this report was and to what
degree it reflected a continuation of the City’s previous approach to solar versus
a departure from it. In response, staff talked about the cancelled plans for a solar
installation at Water Works park and how JCED approached the city with an offer
to create this report, noting the report could be used as a resource in future
discussion to help shape the City’s approach to solar in the future.
The working group members noted the proposal does a great job of laying out all
the different options; the challenge now is narrowing them down to the ones that
make the most sense. In particular, the group discussed the trade-offs at different
scales – that small scale solar installations on rooftops might not meet the same
kind of resistance that a large-scale installation would, but large scale
installations might be more cost effective and better meet equity goals. Parking
lot installations were identified as a potential mid-sized development, but
questions were raised if that size of installation would have the same economies
of scale benefits of a larger scale installation or if it would have the broad support
of rooftop solar.
Working group members discussed how microgrids might fit the City’s plans for
resilience hubs and the related battery storage technology.
Working group members also asked about the regulatory/legal hurdles to
community solar referenced in the report and what the prospects might be for
overcoming those hurdles.
The need for a solid public outreach and education efforts ahead of any large
solar development was identified as a key strategy, including the report’s call for
real time data displays on solar generation.
4. Other Items
Next meeting Tuesday, January 18th, 2 p.m. The Equity and Adaptation groups
will meet concurrently for this next meeting and decide then if they would like to
continue doing so.
Outreach Working Group, Meeting Minutes
Wednesday, Dec. 15, 2021, noon – 1 p.m.
Present:
Sarah Gardner, Marcia Bollinger, Tena Kapp, John Fraser, Michal Eynon-Lynch, Anna Clowser
1. Welcome and Introductions
Volunteer to take minutes - Sarah
2. Updates
Marketing Plan – the plan is in its final stages of development and City staff have
been presented with designs for a campaign logo, social media tiles, key
strategies, and a mascot for future Climate Action initiatives. A final presentation
on the project will be given to the Climate Action Commission at the Jan. 10
meeting.
AmeriCorps – efforts to promote home energy audits seem to be paying off as
the team has been visiting several homes a week, with several more weeks of
audits already booked. In addition to energy efficiency opportunities, they have
identified a number of gas leaks in homes recently and have helped bring
MidAmerican to the properties to address those leaks.
3. Discussion: Draft solar study by JCED
The working group discussed the following questions as opportunities for further
discussion:
What are the barriers to reaching the projected solar capacity on public buildings
that have already been identified?
Knowing the limitations of the Project Sunroof data (which is based on roof area,
orientation, and shading, but not engineering of the building or structural age), is
there a more accurate solar potential number we could work with?
As we think about potential funding mechanisms, how much of the cost
would/should be shouldered by the city and by residents, particularly as it relates
to payback period?
What kinds of resistance might we anticipate to large scale solar, based on what
we’ve seen in Linn County?
How should tax incentives on the federal and state level factor into incentives
developed on the local level?
What more can we learn about revolving loan programs and PPAs as possible
mechanisms? Would a solar revolving loan program resemble other revolving
loan programs the city administers?
How could we get buy in for PACE loans at the state level?
How do we best encourage a diverse energy generation portfolio for the city?
Who are the people doing the work if we get a solar program going and what are
the teaching and learning opportunities? How do we make it a workforce
development opportunity?
Each area of the report identified both positive aspects and negative aspects to
the various approaches. How do we prioritize the program to identify low-hanging
fruit or which approach to pursue first? Where do we start if we recognize we
can’t do it all at once?
How does solar fit into the current incentives used for development (like density
bonuses in return for energy investments)?
Could we start with the landlords? Is this something that might be more
appealing to them than energy efficiency for their buildings, or do we face the
same challenges in this sector?
Could education for the private sector builders of larger multifamily structures
provide the most benefits for the most people? Are older homes the “high
hanging” fruit?
Next Meeting Wed, 1/19
1
Iowa City: Climate Action Plan Equity Implementation Toolkit (June 2021)
Step 1: Desired Outcomes and Goals
1a. Project Name:
1b. Project Description:
1c. Project Area:
1d. Project Type:
1e. What is the desired outcome for this proposal?
2
Step 2: Data
2a. Who is the targeted audience for this action? (Select all that apply)
City-wide
OR
Residential
Single-Dwelling Residential
Owner-Occupied
Rental
Multi-Dwelling Residential
Owner-Occupied
Rental
Commercial
Small Business
Large Business
Industrial
Other:
Public/Non-Profit Institutions
Non-Profit Organizations
University of Iowa
Kirkwood Community College
Other:
2b. Are there impacts on specific neighborhoods or geographic areas?
Yes
No
If yes, which neighborhoods or regions will be impacted by this action?
Select all that apply)
Regions
North
West
East
South
Central
Neighborhoods
Bluffwood
College Green
Country Club Estates
Creekside
Eastside
Galway Hills
Goosetown
Longfellow
Lucas Farms
South District
Ty’n Cae
Walnut Ridge
Waterfront
Washington
Hills Windsor
Ridge
Other:
Manville Heights
Melrose Ave
Miller Orchard
Morningside/Glendale
Parkview Ter./Normandy
Northside
Oak Grove
Peninsula Area
Penny Bryn
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Please review the Climate Action Equity Map to
consider other geographic factors that may be
impacted by the proposed action(s).
What are the observations?
2c. What are the primary demographics of those that would be impacted by
the proposal? Consider who is being affected or involved in the action and
whether all are able to participate and/or benefit to the same degree. (Select
all that apply)
Communities/people of color
Young people
People with disabilities
Older people
LGBTQ+ community
Communities of immigrants and/or limited English proficiency
People without employment
People who depend on public transit or other non-single-driver
transportation
Other individuals or communities that have been disenfranchised
Will remove, or potentially remove, barrier(s) that caused inequity in the
first place (justice)
Other:
2d. What is the budget of the work of the action and will that impact the ability
to successfully address equity?
Why use mapping as a tool to analyze
the distribution of city services?
It can demonstrate how differently a
city action can affect different
populations or geographical areas. It can
illustrate the community’s assets and
weaknesses.
4
2e. Is the individual or household’s personal wealth a determining factor in the
ability to benefit from this action?
2f. Is there any essential data missing or need further exploration?
How do you plan to find out the information?
5
Step 3: Stakeholder Involvement / Community Engagement
3a. Who are the stakeholders involved
in this action?
3b. Which groups have been part of the
decision-making?
3c. Are there groups that have been missing in the conversation? Which
ones?
If yes, what are opportunities for outreach to engage these groups?
Who are the “stakeholders”? Stakeholders are
those impacted or interested in the action.
Examples include residents, city staff, community
organizations, businesses, etc.
6
IOWA CITY COMMUNITY ENGAGEMENT & STAKEHOLDER MAP
The Community Engagement & Stakeholder Map from the Addressing Climate Change,
Health, and Equity in Iowa City Report is aimed to help the City understand how
different stakeholders may be impacted by environmental policies differently due to
client vulnerabilities and connectedness to the city. The purpose is to promote
engagement between the City and community organizations. Depending on where the
stakeholder is located on the map will impact how they will be engaged and reached by
the City.
Impacted by environmental policies and/or
climate changes. Influence in environmental decision-
making (
time, resources,
information, perceived
7
3d. Using the Iowa City Community Engagement & Stakeholder Map above,
where do the involved stakeholders fall in the quadrant(s)? How have the
stakeholders or community member/groups been involved in the
development of this proposal? (Fill in as applicable)
Stakeholder #1:
Quadrant:
Informed
Consulted
Collaborated
Shared Decision-Making
Stakeholder #2:
Quadrant:
Stakeholder #3:
Quadrant:
Stakeholder #4:
Quadrant:
Stakeholder #5:
Quadrant:
Stakeholder #6:
Quadrant:
Stakeholder #7:
Quadrant:
Stakeholder #8:
Quadrant:
Informed
Consulted
Collaborated
Shared Decision-Making
Informed
Consulted
Collaborated
Shared Decision-Making
Informed
Consulted
Collaborated
Shared Decision-Making
Informed
Consulted
Collaborated
Shared Decision-Making
Informed
Consulted
Collaborated
Shared Decision-Making
Informed
Consulted
Collaborated
Shared Decision-Making
Informed
Consulted
Collaborated
Shared Decision-Making
8
3e. How does the quadrant impact how the stakeholders are engaged?
3f. If applicable, where do the groups most impacted by the action fall in the
quadrant(s) (identified in Step 2c)?
3g. What are the strategies to gather input and feedback from stakeholders?
One-on-one interviews
Focus groups
Online survey
Small group facilitated workshops
Collaboration on activities or projects
Other:
3h. Do the materials used to market this program need to be translated into
other languages other than English?
Yes
No
Maybe
Not Applicable
9
Step 4 – Benefit / Burden Determination
4a. Are there other non-economic or non-direct-GHG-reduction benefits or
advantages? (Select all that apply)
Neighbors get to know each other
Advances knowledge of some aspect of climate change or sustainability
Provides for childhood learning or development in general
Leads to access to other education or training for adults
Improves air, land and/or water quality
Improves healthier living in general
Supports biodiversity
Makes travel/transit easier/efficient, safer or reliable, especially people
who are vulnerable
Makes “greener” travel more possible for all by bus, walking, biking, etc.
Otherwise supports part or all of action in one of the other action areas:
Buildings, Transportation, Waste, Adaptation, Sustainable Living
Easily replicable and scalable
Engagement with community stakeholders or agencies
Other:
4b. Are there other economic benefits? (Select all that apply)
Increases home or building value
Adds new or advances existing jobs/profession
Supports local economy
Other:
4c. Does it conflict with any other action in the 100-day plan?
Buildings
Transportation
Waste
Adaptation
Sustainable Lifestyle
If yes, how?
10
4d. Which group(s) will be more positively impacted by the outcome of this
action?
4e. Are there any obstacles that are keeping particular groups from
participating in the benefits of this action? (Select all that apply)
Education
Financial
Time
Physical accessibility
Lack of cultural sensitivity
Language barriers
Other:
11
Step 5 – Strategies / Recommendations
5a. If applicable, what are the strategies for addressing the potential identified
burdens/obstacles?
5b. How can partnerships with stakeholders be continued throughout the
implementation process?
5c. What remains unresolved? What resources or internal/external
partnerships do you still need to make changes?
12
Step 6 – Evaluation and Accountability
6a. In what ways would this action be considered “successful” for equity in
the Iowa City community?
6b. How can the impacts and outcomes be documented and evaluated over
time?
6c. Is there a clear way for stakeholders or community members to contact
with questions or concerns over this action?