PNNL

Abstract

A record amount of large-scale solar development is proposed and under construction in the US Midwest, much of it on agricultural land. This article contributes to the social science literature on renewable energy and public acceptance by addressing stakeholder perspectives on developing utility-scale solar power on agricultural land and complex institutional dynamics that shape these siting decisions. How do stakeholders’ interactions coproduce solar siting decisions? How are the existing complex contexts of energy and agricultural systems affecting solar siting? Who are the stakeholders involved in agricultural solar siting, and how do their epistemic paradigms about using agricultural land, especially prime farmland, differ? To answer these questions, interviews were conducted and analyzed across energy, agriculture, government, and expert stakeholder groups, focusing on Michigan, with comparison to other states. The results provide a conceptual map of stakeholder interaction related to solar development on farmland and characterize the main epistemic paradigms shaping stakeholder conflict. Issues shaping agricultural community perceptions include identity and farmland, the decisions of local farmland renters and non-operating landlords, prime versus lower quality farmland, farm financial viability, and farmland as private property or a public good. Some scientists and engineers seek to alleviate conflicts and drawbacks of agricultural land conversion for solar use by combining farming and solar energy generation: a practice called agrivoltaics. We argue that agrivoltaics are currently treated as a technological fix by not accounting for stakeholder interaction in complex policy, community, and scientific institutions. We conclude by identifying interdisciplinary research priorities to develop socially robust designs.