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Local Best Practices for Solar: Planning, Zoning, and Permitting1

Best Practices WebinarDecember 5, 2012

Brian Ross, Principal, CR Planning, Inc.AgendaWelcome to the Solar Challenge WebinarWhat is the Minnesota Solar Challenge?Solar energy primerPlanning best practicesZoning best practicesPermitting best practicesLocal Best Practices for Solar

Minnesota Solar Challenge3Part of the U.S. Department of Energy SunShot Initiative PV Rooftop ChallengeProgram Goal:To make solar electric generation (photovoltaic, or PV) widely cost-competitive with conventional grid sources of electricity by 2020.Minnesota Solar Challenge Initiative

U.S. DOE Rooftop Solar Challenge

Source: U.S. DOE SunShot Initiative

Creating a Self-Sustaining Solar Energy Market5Source: GTM Research, The Wall Street JournalSolar Panel Price Drops6

Logarithmic Volume, Costs 7

Source: Solar Energy Industry Association, 2012Downward Cost Trend8

Source: U.S. DOE SunShot InitiativeFocus on Cost Components9

Source: Benchmarking Soft Costs for PV Systems in the United States, Ardani, NREL, 2012Non-Structural Balance of System Costs10

Source: http://www.goingecogreen.com/go-green-news/german-solar-installations-coming-in-at-2-24-per-watt-installed-us-at-4-44-2/In German11

So, is everyone clear on that? Minnesota Solar Challenge Initiative

Local governments are a critical partner in the task of creating a self-sustaining solar energy market in Minnesota

If you remember justone thing . . .13

Photo credit: Meet MinneapolisPhoto credit: Applied Energy InnovationsPhoto credit: CR PlanningU.S. Department of Energy SunShot Initiative PV Rooftop ChallengeProgram Goal:To make PV cost-competitive with conventional grid sources by 2020Minnesota Department of Commerce Focus:Improve solar access, zoning, development regsStreamline permitting and interconnectionImprove net meteringImprove financing options for solar

Minnesota Solar Challenge Initiative

Minnesota Solar ChallengeDevelop best practices consistent with Minnesotas local government environment and lawsPromote best practices to local governments through a variety of organizations and outreach effortsProvide direct assistance to local governments in adapting the best practices to local conditions and prioritiesMinnesota Solar Challenge Initiative

Understanding Solar Energy Resources and Technology16Solar ResourceMinnesota has a favorable solar resource . . .

Minnesota Solar ReservesTest: How much of Minnesotas land area would we need to meet 100% of the state's electricity needs with solar electricity (on a net production basis)?

(67,800 million kWhs)

?If solar energy was oil or natural gas, how much would we have?18Minnesota Solar ReservesTest : How much of Minnesotas land area would we need to meet 100% of the state's electricity needs with solar electricity (on a net production basis)? A: Less than 0.25% of the states area (an area the size of Lake Mille Lacs or Ramsey County)

?If solar energy was oil or natural gas, how much would we have?19

Minnesota Solar ReservesTest: How much of Minnesotas land area would we need to meet 100% of the state's electricity needs with solar electricity (on a net production basis)?

?If solar energy was oil or natural gas, how much would we have?20Solar ResourceMinnesotas solar resource varies by:Time of daySeasonLocal Weather

andLocal Landscape

Credit: MnDOC21Solar ResourceThe local landscape defines whether a given site has a solar resourceTopographyOn-site obstructionsObstructions on adjacent landFuture obstructions

An adequate solar resource location is unshaded for several hours every day (around solar noon), both now and well into the future.22Solar in MinnesotaThe local landscape defines the solar resource and access to the resource. Various technological options allow property owners to capture the solar resource, depending on:the resource location;the resource quality, and the desired energy use.

23Solar Technologies in MinnesotaTechnology options include:Photovoltaic (PV) or solar electricity. Modules produce electricity from sunlight using semi-conductor technology.Solar Thermal. Collectors capture sunlight and transfer heat for water or space heatingPassive Solar. Uses the basic structural elements of a building, careful site selection, and various homebuilding strategies to provide daylighting, ventilation, or heat.

24Solar Technologies in MinnesotaTechnology options include:Roof-mounted systems. Attached to the buildings roof. Can be:Flush-mountedNon-flush-mountedGround-mounted systems. Free-standing systems on a pole or a rack. Can be:Stationary (pole or rack)Tracking (pole-mounted)Building-integrated systems. Solar system is built into a building component, such as a shingle or roof tile, an awning, or a gazebo

Photo Credit: Powerfully GreenPhoto Credit: Able Energy

25Solar Technologies in MinnesotaTechnology options include:Grid-intertie systems. Only solar electric (PV), connected to the electric grid, no energy storage is needed.

Credit: MnDOC26Solar Technologies in MinnesotaTechnology options include:Storage systems. All solar thermal systems store heat in a water tank or other heat sink, and PV systems that store energy in a battery.

Credit: MnDOC27

Renewable Energy in Planning and Policy28Renewable energy is an important local resource

People in your community will want to take advantage of their renewable energy resources

Communities will need to make decisions about how and where solar installations are doneRemember This!Planning Issues Summarized 29

Best PracticesPutting Solar in Plans and Policy30

Solar in the Comprehensive PlanSolar energy as a property rightThere is no Federal constitutional protection for access to sunlight for the generation of solar energy

The bundle of rights that comes with owning property does not include a right to direct sunlight for solar energy production except to the extent that State or local law creates such a provision.Solar in Plans and Policy31Metropolitan Land Planning ActSubd. 2. Land use plan. (b) A land use plan shall contain a protection element, as appropriate, for historic sites, the matters listed in the water management plan required by section 103B.235, and an element for protection and development of access to direct sunlight for solar energy systems.

Solar in Plans and Policy32

. . . and an element for protection and development of access to direct sunlight for solar energy systems. This provision has been given mostly perfunctory attention in plans. The evolution of local government best practices for protecting and developing the solar resource now offers new opportunities for metro-area communities to meet the statutory standard. Solar in Plans and Policy33

Thinking about your communitys solar resource in order to plan for developmentGeographic Access. Where is the resource? If you cant reasonably get to it, its not a resourceTechnology. What are the characteristics of how the resource is harvested or used?Markets. What is the use of the resource that gives it value, and how is that affected by local regulation?Solar in Plans and Policy34Understanding solar energy as a resourceGeographic characteristics

Solar in Plans and Policy35

Energy Innovation Corridor Minneapolis, Saint PaulExample: Olmsted CountyResource Protection AreasThe Resource Protection Area includes areas intended for exclusive resource related use . . . Locational criteria include . . .3. Wind Energy Potential: In a study completed in 1994 (validated subsequently by site-specific meteorological studies), sites with high potential for wind energy production were identified based on land cover, land uses, elevation and topography, and proximity to transmission lines. The study has been updated to reflect changes since 1994 in land cover. Sites with high wind energy potential are more likely to be included in the Resource Protection Area.Solar in Comprehensive Plans36Example: City of MinneapolisPolicy 6.4: Expand the use of renewable energy.6.4.4 Take measures for the protection and development of access to sources of renewable energies, especially solar and wind power.Solar in Comprehensive Plans37Understanding solar energy as a resourceTechnological characteristics how is the resource harvested?

Solar in Comprehensive Plans38Photo Credit: CR Planning, Inc.

Understanding solar energy as a resourceTechnological characteristics how is the resource harvested?

Solar in Comprehensive Plans39Photo Credit: CR Planning, Inc.

Example: City of Shakopee, MinnesotaSolar Access - In the use of any solar energy system, the most important factor involved is the assurance of direct access to sunlight. The required level of access to sunlight varies according to the type of solar heating system used.Rooftop Protection South Wall ProtectionSouth Lot ProtectionDetached Collector ProtectionSolar in Comprehensive Plans40City of Shakopee 2030 Comprehensive Plan Solar Access Protection (PAS Info Packet)Understanding solar energy as a resourceEconomic characteristics how does the resource have, or give, value?Solar in Comprehensive Plans41Graph from SAC presentation at the ICMA Conference.Source of information on solar jobs: The Solar Foundations National Solar Jobs Census 2010

2010 Solar Jobs

New Jobs (12 Months)Example: Stearns County Economic Development Policy 3. Promote diverse agricultural markets. Encouraging small wind energy production facilities or other energy production based on agricultural products, as a diversification strategy. The County could investigate opportunities for Federal financial assistance that is directed to rural alternative energy investments.Economic Development Goal 4. Promote sustainable development initiatives.Objective 5. Encourage the appropriate development and use of electricity from wind energy as a means of substituting underutilized local renewable resources for non-renewable, non-local, energy sources.Solar in Comprehensive Plans42Minnesota Solar ChallengeWorking with the Metropolitan Council to recommend solar energy best practicesProvide direction in the Local Planning Handbook for cities to consider in meeting statutory solar access requirementRecommend sources of information for implementation best practices such as National APA Planners Advisory Service and National Renewable Energy Lab guidance

Solar in Comprehensive Plans

Solar energy in zoning and development regulation44Questions before writing your solar zoning standards. . . How does the comprehensive plan address your communitys solar resource?How does your existing ordinance affect solar energy installations? What are the potentially competing property interests?What are the potentially competing community resources?Do you want to encouraging action or investment, or just settle conflict?

Solar Energy Zoning Issues45Best PracticesSolar Energy Standards

Ordinance StructureSolar Energy StandardsScopePurposeDefinitionsPermitted Accessory UseAdministrative VarianceRestrictions on Solar Energy Systems LimitedSolar AccessRenewable Energy Conditions for Certain PermitsSolar Roof Incentives Minimize conflicts and create transparency and predictabilityBasic ZoningAdvanced Zoning Proactively encourage solar development Incentive ZoningSolar regulatory requirements

Solar Energy Standards48Using basic zoning tools to address solar energy installations uses, setbacks, heightsAre solar land uses allowed?Do existing standards, such as setbacks and height standards create barriers to capturing solar resources? Do existing standards (use, setback, height) allow for flexibility to capture solar resources?

Basic Energy Zoning and Regulation49IV. Permitted Accessory Use - Active solar energy systems shall be allowed as an accessory use in all zoning classifications where structures of any sort are allowed, subject to certain requirements as set forth below. Active solar energy systems that do not meet the visibility standards in C. below will require a conditional use permit, except as provided in Section V. (Administrative Variances).A. Height - Active solar systems must meet the following height requirements:1. Building- or roof- mounted solar systems shall not exceed the maximum allowed height in any zoning district. For purposes for height measurement, solar systems other than building-integrated systems shall be considered to be mechanical devices and are restricted consistent with other building-mounted mechanical devices.2. Ground- or pole-mounted solar systems shall not exceed 20 feet in height when oriented at maximum tilt.B. Set-back - Active solar systems must meet the accessory structure setback for the zoning district and primary land use associated with the lot on which the system is located.1. Roof-mounted Solar Systems - In addition to the building setback, the collector surface and mounting devices for roof-mounted solar systems shall not extend beyond the exterior perimeter of the building on which the system is mounted or built. Exterior piping for solar hot water systems shall be allowed to extend beyond the perimeter of the building on a side yard exposure.Solar Energy StandardsIV. Permitted Accessory Use - Active solar energy systems shall be allowed as an accessory use in all zoning classifications where structures of any sort are allowed, subject to certain requirements as set forth below. IV. Permitted Accessory Use - Active solar energy systems shall be allowed as an accessory use in all zoning classifications where structures of any sort are allowed, subject to certain requirements as set forth below. Active solar energy systems that do not meet the visibility standards in C. below will require a conditional use permit, except as provided in Section V. (Administrative Variances).A. Height - Active solar systems must meet the following height requirements:1. Building- or roof- mounted solar systems shall not exceed the maximum allowed height in any zoning district. For purposes for height measurement, solar systems other than building-integrated systems shall be considered to be mechanical devices and are restricted consistent with other building-mounted mechanical devices.2. Ground- or pole-mounted solar systems shall not exceed 20 feet in height when oriented at maximum tilt.B. Set-back - Active solar systems must meet the accessory structure setback for the zoning district and primary land use associated with the lot on which the system is located.1. Roof-mounted Solar Systems - In addition to the building setback, the collector surface and mounting devices for roof-mounted solar systems shall not extend beyond the exterior perimeter of the building on which the system is mounted or built. Exterior piping for solar hot water systems shall be allowed to extend beyond the perimeter of the building on a side yard exposure.Solar Energy StandardsA. Height:Building- or roof- mounted solar systems shall not exceed the maximum allowed height in any zoning district. For purposes for height measurement, solar systems other than building-integrated systems shall be considered to be mechanical devices and are restricted consistent with other building-mounted mechanical devices.Ground- or pole-mounted solar systems shall not exceed 20 feet in height when oriented at maximum tilt.IV. Permitted Accessory Use - Active solar energy systems shall be allowed as an accessory use in all zoning classifications where structures of any sort are allowed, subject to certain requirements as set forth below. Active solar energy systems that do not meet the visibility standards in C. below will require a conditional use permit, except as provided in Section V. (Administrative Variances).A. Height - Active solar systems must meet the following height requirements:1. Building- or roof- mounted solar systems shall not exceed the maximum allowed height in any zoning district. For purposes for height measurement, solar systems other than building-integrated systems shall be considered to be mechanical devices and are restricted consistent with other building-mounted mechanical devices.2. Ground- or pole-mounted solar systems shall not exceed 20 feet in height when oriented at maximum tilt.B. Set-back - Active solar systems must meet the accessory structure setback for the zoning district and primary land use associated with the lot on which the system is located.1. Roof-mounted Solar Systems - In addition to the building setback, the collector surface and mounting devices for roof-mounted solar systems shall not extend beyond the exterior perimeter of the building on which the system is mounted or built. Exterior piping for solar hot water systems shall be allowed to extend beyond the perimeter of the building on a side yard exposure.Solar Energy Standards1. Roof-mounted Solar Systems - In addition to the building setback, the collector surface and mounting devices for roof-mounted solar systems shall not extend beyond the exterior perimeter of the building on which the system is mounted or built. Exterior piping for solar hot water systems shall be allowed to extend beyond the perimeter of the building on a side yard exposureExample: City of Woodbury24-406 Solar energy systems.Zoning districts. Solar energy systems in accordance with the standards in this section are allowed as a permitted accessory use in all zoning districts.Standards.Exemption. Passive or building-integrated solar energy systems are exempt from the requirements of this section and shall be regulated as any other building element.Minimum Lot Size. In the R-4, Urban Residential Zoning District, a minimum lot size of 8,000 square feet is required for ground-mounted solar energy systems. Height. Roof-mounted solar energy systems shall comply with the maximum height requirements in the applicable zoning district. Ground-mounted solar energy systems shall not exceed 15 feet in height.Solar Energy Standards53Example: City of Saint Paul(a) Building mounted systems shall be subject to the dimensional standards that apply to the building, provided that the height standards for building mounted systems in residential districts shall be as follows: The system shall extend no more than three (3) feet above the surface of a roof at its exterior perimeter, and shall be set back at least one (1) foot from the exterior perimeter for every additional foot that the system extends above the height of the roof at its exterior perimeter; The system may extend up to three (3) feet above the ridge of a gable, gambrel, hip or mansard roof.

Solar Energy Standards54Advanced zoning toolsDesign standards - Are community aesthetic or character standards part of local regulations?Home Owners Associations Does the community have an interest in ensuring solar development rights in common interest communities?Solar easements or cross-property protection - Does state or local regulation protect the long-term solar resource when someone makes a long-term investment in solar infrastructure?

Advanced Zoning Concepts55C. Visibility - Active solar energy systems shall be designed to blend into the architecture of the building or be screened from routine view from public right-of-ways other than alleys. The color of the solar collector is not required to be consistent with other roofing materials.1. Building Integrated Photovoltaic Systems - Building integrated photovoltaic solar energy systems shall be allowed regardless of whether the system is visible from the public right-of-way, provided the building component in which the system is integrated meets all required setback, land use or performance standards for the district in which the building is located.2. Solar Energy Systems with Mounting Devices - Solar energy systems using roof mounting devices or ground-mount solar energy systems shall not be restricted if the system is not visible from the closest edge of any public right-of-way other than an alley. Roof-mount systems that are visible from the nearest edge of the street frontage right-of-way shall not have a highest finished pitch more than five (5) percent steeper than the roof pitch on which the system is mounted, and shall be no higher than twelve (12) inches above the roof.Solar Energy Standards

Design standards and aesthetic considerationsVI. Restrictions on Solar Energy Systems Limited - No homeowners agreement, covenant, common interest community, or other contract between multiple property owners within a subdivision of Model Community shall restrict or limit solar energy systems to a greater extent than Model Community solar energy standards.

VII. Solar Access - Model Community encourages solar access to be protected in all new subdivisions and allows for existing solar to be protected consistent with Minnesota Statutes. A. Model Community has elected to allow solar easements to be filed, consistent with Minnesota Stat. Chapter 500 Section 30. Any building owner can purchase an easement across neighboring properties to protect access to sunlight. The easement is purchased from or granted by owners of neighboring properties and can apply to buildings, trees, or other structures that would diminish solar access.B. Model Community may require new subdivisions to identify and create solar easements when solar energy systems are implemented as a condition of a PUD, subdivision, conditional use, or other permit, as specified in Section 8 of this ordinance.

Solar Energy StandardsVI. Restrictions on Solar Energy Systems Limited - No homeowners agreement, covenant, common interest community, or other contract between multiple property owners within a subdivision of Model Community shall restrict or limit solar energy systems to a greater extent than Model Community solar energy standards.Design standards and aesthetic considerationsExample: City of Roseville3. Visibility: Active solar energy systems shall be designed to blend into the architecture of the building or be screened from routine view from public rights-of-way other than alleys. The color of the solar collector is not required to be consistent with other roofing materials.Solar Energy Systems with Mounting Devices: Roof- or ground-mount solar energy systems shall not be restricted if the system is not visible from the closest edge of any public right-of-way other than an alley. Roof-mounted systems that are visible from the nearest edge(s) of the street frontage right(s)-of-way shall be reviewed and approved by Community Development staff to ensure the system meets the wind load standards for the roof and there are not major aesthetic impacts with the system to the surrounding properties.Solar Energy Standards58Example: City of Saint Paul63.110(e) The visual impact of rooftop equipment shall be reduced through such means as location, screening, or integration into the roof design . . .

Saint Paul Design Standards and Guidelines Permit solar energy access while minimizing visual impact.Visual impact mitigation that considers the function of the solar installation. Visual impact assessed primarily from public streets Reduce visual impact by integration into the roof design Limited allowance for solar energy systems above the roof peak

Solar Energy Standards59VI. Restrictions on Solar Energy Systems Limited - No homeowners agreement, covenant, common interest community, or other contract between multiple property owners within a subdivision of Model Community shall restrict or limit solar energy systems to a greater extent than Model Community solar energy standards.

VII. Solar Access - Model Community encourages solar access to be protected in all new subdivisions and allows for existing solar to be protected consistent with Minnesota Statutes. A. Model Community has elected to allow solar easements to be filed, consistent with Minnesota Stat. Chapter 500 Section 30. Any building owner can purchase an easement across neighboring properties to protect access to sunlight. The easement is purchased from or granted by owners of neighboring properties and can apply to buildings, trees, or other structures that would diminish solar access.B. Model Community may require new subdivisions to identify and create solar easements when solar energy systems are implemented as a condition of a PUD, subdivision, conditional use, or other permit, as specified in Section 8 of this ordinance.

Solar Energy StandardsA. Model Community has elected to allow solar easements to be filed, consistent with Minnesota Stat. Chapter 500 Section 30. Any building owner can purchase an easement across neighboring properties to protect access to sunlight. . . B. Model Community may require new subdivisions to identify and create solar easements when solar energy systems are implemented . . . Solar and Wind Easements Minnesota Stat. 500.30 Subd. 3. allows the purchase and holding of easements protecting access to solar and wind energy. Required Contents - Any deed, will, or other instrument that creates a solar or wind easement shall include, but the contents are not limited to: A description of the real property subject to the easement and a description of the real property benefiting from the solar or wind easement; and For solar easements, a description of the vertical and horizontal angles, expressed in degrees and measured from the site of the solar energy system, at which the solar easement extends over the real property subject to the easement. . . Advanced Energy Zoning61394.25, Subd. 7.Variances; practical difficulties.The board of adjustment shall have the exclusive power to order the issuance of variances from the requirements of any official control including restrictions placed on nonconformities. Variances shall only be permitted when they are in harmony with the general purposes and intent of the official control and when the variances are consistent with the comprehensive plan. . . . Economic considerations alone do not constitute practical difficulties. Practical difficulties include, but are not limited to, inadequate access to direct sunlight for solar energy systems. . . . Advanced Energy Zoning62Going beyond removing zoning barriersRegulatory incentivesFinancial incentivesRenewable energy requirementsSolar ready constructionStreamlining permitting

The community has an long-term interest in sustainable infrastructure housing, transportation, energy systems

Advanced Energy Zoning63

Permit Process and Permit FeesImplementing Best Practices64Permitting best practice goalsReduce time spent on acquiring permits and conducting inspectionsMake the permit process transparent and predictable to both staff and applicantsEnsure the permit process reflects industry best practicesEstablish a permit fee that appropriately covers local government review and inspection costs

Solar Market Transformation Tools65

Identifies when a permit is required. Collects basic information about the installationIdentifies minimum submittal requirements and technical information to acquire a permitIdentifies criteria and submittals for electric permit consistent with the National Electric Code.

Permitting Best PracticesExpedited Permit Solar ABCS

Permitting Best Practices

Solar America Board of Codes and Standards (Solar ABCS)

www.solarabcs.org/about/publications/reports/expedited-permit/Identifies when the checklist is applicableCollects basic information about the installationIdentifies required drawings and technical information to acquire a permitIdentifies when structural engineering review is necessaryIdentifies criteria for other permit or process requirements

Permitting Best PracticesSolar Permit Checklist Saint Paul

Before approval and issuance of permit(s) for solar installations, applicant shall submit the following minimum information. . .Building integrated solar installations, where the solar collector replaces or substitutes for a component of a building or structure such as roof, shingle, or awning, do not require completionof this checklist separately from the building permit application for the building, structure, or building modification.Permitting Best PracticesSolar Permit Checklist Saint Paul

Required Drawings and Plans7. Provide construction drawings that include a building section detail and completenotation of method of fastening equipment to the roof of the subject property, includingthe following details:Permitting Best PracticesSolar Permit Checklist Saint Paul

Structural Assessment11. The minimum structural threshold for installing a flush mounted PV system is a roof structure with at least 2 x 4 rafters no more than 24 on-center spacing. . . 12. Non-flush-mount installations have different potential structuralconsiderations. If the answer to question 10 (is the systemflush-mounted?) is no, please provide the following additionalinformation. . .Permitting Best PracticesSolar Permit Checklist Saint Paul

Ground Mount Submittal infoElectrical InformationHeritage Preservation18. Legislative Code 73.06 provides that exterior work, including installation of solar energy systems, within city designated heritage preservation sites and districts is subject to review and approval by the Heritage Preservation Commission (HPC) prior to the issuance of city permits. Permitting Best PracticesSolar Permit Checklist Saint Paul

Permit FeesMost local governments use the value of the work to be done to determine the permit fee. Permitting Best Practices

Valuation of a residential PV installation results in permit fees of $400 to $800Permit Fees Permit fee best practices . . .

Continue to use value, but exclude the cost of the solar panelsSet a fixed fee for residential installations ($100 250) based on internal costs for reviewConsider an incentive fee to encourage investment in solar resourcesPermitting Best PracticesPermit FeesMost communities make exceptions to value based fees for standard projects

Permitting Best Practices

Permitting Best PracticesPhotovoltaic on-line training (PVOT) for code officials

Go to www.nterlearning.org(Search for photovoltaics or PV)

Permitting Best PracticesStructural engineering study on Minnesota residential rooftop solar installations.http://mn.gov/commerce/energy/images/SolorRoofsReport.pdf

The Minnesota Solar Challenge offers free technical assistance to local governmentsImplementing Best Practices78Technical assistance includes:Workshops presenting local government best practices and how to adapt the best practices. Assessing existing plans, ordinances and permitting processes for barriers to local solar investment. Assisting individual local governments to adapt best practices to existing processes and regulations.Writing draft language or guidance documents for permitting and land use standards to fit the local conditions and circumstances of the individual city.Solar Challenge Technical Assistance79

Thank You!8081Principal, CR Planning, Inc.612-588-4904bross@crplanning.comBrian Ross

Laura CinaSolar Coordinator Team LeaderMinnesota Renewable Energy Society Team612-963-4757LauraC@mnrenewables.orgMinnesota Solar Help Hotline Stacy Miller (855) 374-6822

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