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This report is available at no cost from the National Renewable Energy

Laboratory (NREL) at www.nrel.gov/publications.

Contract No. DE-AC36-08GO28308

Technical Report

NREL/TP-6A20-72575

May 2019

Up to the Challenge: Communities 

Deploy Solar in Underserved Markets

Jeffrey J. Cook,1 Sydney Forrester,1 Bryn Grunwald,1

Jenny Heeter,1 Clark Henry,2 and Monisha Shah1

1 National Renewable Energy Laboratory

2 International City/County Management Association (ICMA)
NREL is a national laboratory of the U.S. Department of Energy

Office of Energy Efficiency & Renewable Energy

Operated by the Alliance for Sustainable Energy, LLC

This report is available at no cost from the National Renewable Energy

Laboratory (NREL) at www.nrel.gov/publications.

Contract No. DE-AC36-08GO28308

National Renewable Energy Laboratory

15013 Denver West Parkway

Golden, CO 80401

303-275-3000 • www.nrel.gov

Technical Report

NREL/TP-6A20-72575

May 2019

Up to the Challenge: Communities 

Deploy Solar in Underserved Markets

Jeffrey J. Cook,1 Sydney Forrester,1 Bryn Grunwald,1

Jenny Heeter,1 Clark Henry,2 and Monisha Shah1

1 National Renewable Energy Laboratory

2 International City/County Management Association (ICMA)

Suggested Citation

Cook, Jeffrey J., Sydney Forrester, Bryn Grunwald, Jenny Heeter, Clark Henry, and 

Monisha Shah. 2019. Up to the Challenge: Communities Deploy Solar in Underserved 

Markets. Golden, CO: National Renewable Energy Laboratory. NREL/TP-6A20-72575.

https://www.nrel.gov/docs/fy19osti/72575.pdf.
NOTICE

This work was authored in part by the National Renewable Energy Laboratory, operated by Alliance for Sustainable 

Energy, LLC, for the U.S. Department of Energy (DOE) under Contract No. DE-AC36-08GO28308. Funding 

provided by U.S. Department of Energy Office of Energy Efficiency and Renewable Energy Solar Energy 

Technologies Office. The views expressed herein do not necessarily represent the views of the DOE or the U.S. 

Government.

This report is available at no cost from the National Renewable 

Energy Laboratory (NREL) at www.nrel.gov/publications.

U.S. Department of Energy (DOE) reports produced after 1991 

and a growing number of pre-1991 documents are available 

free via www.OSTI.gov.

Cover Photos by Dennis Schroeder: (clockwise, left to right) NREL 51934, NREL 45897, NREL 42160, NREL 45891, NREL 48097, 

NREL 46526.

NREL prints on paper that contains recycled content.
iii

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Acknowledgements

This work was funded by the Solar Energy Technologies Office. The authors would like to thank 

all the interviewees for contributing their expertise to this study. We would also like to thank the 

following individuals for their review of this work: Ganesan Visvabharathy (Affordable Solar 

King), Ben Underwood (Boston Solar Access), Jill Cliburn (Cliburn and Associates LLC), Vicki 

O’Day (Community Solar for Community Action), Kedin Kilgore (FAC Solar—Gowanus Grid 

& Electric), Shubha Jaishankar (Department of Energy), Matt Doyle (Duluth Community Solar 

Coalition), Ramsey Cripe (Kerrville Area Solar Partners), Bennie Hayden (Marketing for Green 

LLC), Alison Holm, Travis Lowder, and Jaquelin Cochran (National Renewable Energy 

Laboratory), Bentham Paulos (Paulos Analysis), Emily Schapira (Philadelphia Energy 

Authority), Anthony Rose (Power52 Foundation), Mary Rottman (Rottman-Associates), Sarah 

Conley-Ballew (Solar Access UpGrade Ohio), Dan Conant (Solar Holler), Jim Moran (Solar 

Synthesizers), David Beavers (Sunvesty), David Hill (Sun Shares [VEIC]), and Mike Myers 

(Team Wasaya). Finally, we would like to thank Mary Lukkonen, Stacy Buchanan, and Sam 

Koebrich (National Renewable Energy Laboratory) for their editing and graphics support.
iv

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Executive Summary

The U.S. Department of Energy (DOE) launched the Solar in Your Community Prize Challenge

(SIYC Prize Challenge) in 2016 to identify innovative approaches to support solar deployment 

among underserved markets, including low- and moderate-income (LMI) populations, nonprofit

organizations, and other community-serving entities, such as municipal governments. These 

sectors face unique barriers relating to financing, ownership structure, and upfront costs. DOE 

designed the SIYC Prize Challenge to help local teams develop novel approaches to resolve 

them. This report describes the SIYC Prize Challenge structure, participating teams, their top 

technical challenges, and profiles 10 innovative teams and related business models. It concludes 

with some key takeaways that others might consider when developing projects and programs 

tailored to these market segments.1

DOE accepted 178 teams in the SIYC Prize Challenge spanning 40 states, the District of 

Columbia, Guam, and Puerto Rico. If all the teams successfully execute their business plans, the 

SIYC Prize Challenge is expected to generate 1,600 MW of solar by 2020, serving as many as 

900 nonprofits and 48,000 LMI households. During the 18-month challenge (May 2017 –

October 2018), DOE provided teams with technical and financial resources to help them 

implement their projects. All teams received at least some technical assistance in the form of 

trainings, workshops, and direct coaching. Also, 121 teams received technical assistance 

vouchers to pursue additional support from third-party consultants. A smaller set of 34 teams 

received direct financial resources in the form of seed funds. In 2019, DOE will award five teams 

final prizes totaling $1 million.

Teams adopted a range of business models and innovations to better address the unique barriers 

faced by underrepresented markets. The leading types of innovations were related to financing 

and opening new markets. Technology innovations, such as pairing solar with other energy 

technologies or new software, along with novel partnership structures, were also common 

approaches taken by teams. 

The profiled teams are implementing a wide variety of approaches to serve the LMI, nonprofit, 

and municipal market segments (see Table ES-1). Three of the ten teams are focused specifically 

on LMI households, while four teams focus on LMI households and nonprofits. Finally, three 

teams focus on nonprofits, municipal governments, or a combination of the two.

 

1 This study relied upon archival research and interviews with over 40 subject-matter experts, including DOE 

personnel, program consultants, coaches, and team members. The interviews revealed innovative approaches and 

lessons learned based on the experience of all participating teams. Select interviewees also provided perspectives on 

the 10 profiled teams. 
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Table ES-1. Comparison of Profiled Teams by Target Market and Business Model/Approach

Profiled

Team

Target

Market(s)

Business 

Model/Approach

Financing Approach

Tax IncentivesPPALoanDemand ResponseCrowdsourcingFees

Renewable Energy CertificatesOther

Boston Solar 

Access

LMI households 

and nonprofits

Community solar 

hosting ● ●

Duluth 

Community 

Solar Coalition

Nonprofits and 

municipal 

governments

Crowdsource social 

impact investing ●a

FAC Solar—

Gowanus Grid 

& Electric

LMI households 

and nonprofits

Solar financing for 

nonprofit multi-family 

housing

● ● ●b

Kerrville Area 

Solar Partners

LMI households 

and nonprofits

LMI community solar 

rate design ● ● ●c

Power52 

Foundation LMI households Anchor-supportedLMI community solar ● ●

Solar Access 

UpGrade Ohio

Municipal 

governments

Community-choiceaggregation-supported 

solar deployment

●d

Solar Holler Nonprofits

Workforce training

and place-based

solar deployment

● ● ● ●

Solar 

Synthesizers 

Meriden

LMI 

households, 

nonprofits, and 

public housing

Low-income-housingtax-credit-supported 

solar financing

● ● ● ●e

Solarize Philly LMI households

Solarize program

fees to support

LMI solar leases

● ● ●f

Sun Shares 

(VEIC) LMI households Employer-offeredsolar program ●g ● ●

a The Duluth Community Solar Coalition team has not developed a project. When they do complete a project, it is 

possible they will leverage other financing approaches beyond crowdsource donations or investments. 

b The FAC Solar – Gowanus Grid & Electric team also leveraged a state grant. 

c The Kerrville Area Solar Partners team is recovering costs for the PPA through customer participation in a unique 

community solar rate. 

d The Solar Access UpGrade Ohio team has not developed a project. When they do complete a project, it is possible 

they will leverage other financing options beyond collected fees such as a PPA.

e The Solar Synthesizers Meriden team also leveraged energy savings performance contracting, property assessed 

clean energy, and community reinvestment act financing for some of its projects. 

f The Solarize Philly team uses solarize fees to support leases to LMI participants. 

g Only a portion of Sun Shares (VEIC) project was funded by a loan, the remaining financing is unknown though it is 

expected that available tax incentives were monetized. 
vi

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Though each of the profiled teams generated unique insights specific to its business model or 

approach, we conclude with three key takeaways. Communities interested in replicating these 

approaches in their jurisdictions might consider the following:

• Develop a clear understanding of how federal, state, and local policy enable local 

solar projects. These policies can influence the team’s target audience, project selection, 

and financing approaches.

• Build durable and long-term partnerships with community members and solar 

stakeholders. These partnerships can ensure that pilot projects are implemented and 

followed by second-generation projects for more widespread deployment.

• Develop a creative portfolio of financing solutions for small and medium sized solar 

projects. Some innovative financing options or approaches may include securing a

creditworthy anchor tenant, using crowdsourced funding, compensation from virtual or 

net metering, or compensation for other grid services.

Overall, this report provides key insights from a subset of innovative projects that demonstrate 

that expanding solar access to underrepresented markets is economically feasible in a variety of 

markets. Interested communities may wish to use this report as a resource when considering 

projects and programs to achieve their own energy-related objectives.
vii

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Table of Contents

1 Introduction.............................................................................................................. 1

2 SIYC Prize Challenge Program Background ......................................................... 3

2.1 Technical Support ......................................................................................................................... 3

2.2 Financial Support .......................................................................................................................... 4

3 Participating Teams................................................................................................. 6

3.1 Lead Project or Program Organizations........................................................................................ 7

3.2 Solar Site Locations ...................................................................................................................... 7

3.3 Innovative Approaches.................................................................................................................. 8

3.4 Project and Program Financing ..................................................................................................... 9

4 Key Challenges and Considerations for PV Project Deployment from the SIYC 

Prize Challenge ...................................................................................................... 11

4.1 Financing Barriers and Considerations ....................................................................................... 13

4.2 Policy Barriers and Considerations............................................................................................. 13

4.3 Legal/Business Structure Barriers and Considerations ............................................................... 13

5 Profiles of Innovative Teams and Related Market Strategies ............................ 15

5.1 Boston Solar Access: Maximizing LMI Benefits in Solar Hosting Programs............................ 18

5.1.1 Contributors to Success.................................................................................................. 19

5.1.2 Considerations for Replication....................................................................................... 20

5.2 Duluth Community Solar Coalition: Crowdsource Social Impact Investing .............................. 21

5.2.1 Contributors to Success.................................................................................................. 22

5.2.2 Considerations for Replication....................................................................................... 22

5.3 FAC Solar—Gowanus Grid & Electric: Unlocking Nonprofit-Owned Multi-Family Housing for 

PV................................................................................................................................................ 23

5.3.1 Contributors to Success.................................................................................................. 24

5.3.2 Considerations for Replication....................................................................................... 25

5.4 Kerrville Area Solar Partners: Leveraging Municipal Utility Rate Design to Support LMI Solar 

Access ......................................................................................................................................... 26

5.4.1 Contributors to Success.................................................................................................. 27

5.4.2 Considerations for Replication....................................................................................... 28

5.5 Power52 Foundation: Leveraging a Corporate Partnership to Support LMI Community Solar in 

Baltimore..................................................................................................................................... 29

5.5.1 Contributors to Success.................................................................................................. 30

5.5.2 Considerations for Replication....................................................................................... 30

5.6 Solar ACCESS UpGrade Ohio: Deploying Community Solar Through CCAs.......................... 31

5.6.1 Contributors to Success.................................................................................................. 32

5.6.2 Considerations for Replication....................................................................................... 32

5.7 Solar Holler: Workforce Training and Place-Based Solar Deployment...................................... 33

5.7.1 Contributors to Success.................................................................................................. 34

5.7.2 Considerations for Replication....................................................................................... 35

5.8 Solar Synthesizers Meriden: Leveraging Low-Income Housing Tax Credits to Support PV 

Deployment ................................................................................................................................. 35

5.8.1 Contributors to Success.................................................................................................. 37

5.8.2 Considerations for Replication....................................................................................... 37

5.9 Solarize Philly: Using Solarize Program Fees to Guarantee LMI Solar Leases ......................... 38

5.9.1 Contributors to Success.................................................................................................. 39

5.9.2 Considerations for Replication....................................................................................... 40

5.10 Sun Shares (VEIC): Solar as an Employer-Offered Program ..................................................... 40

5.10.1 Contributors to Success.................................................................................................. 41
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5.10.2 Considerations for Replication....................................................................................... 42

6 Conclusions ........................................................................................................... 43

References................................................................................................................... 45
ix

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List of Figures

Figure 1. Geographic distribution of participating teams in the SIYC Prize Challenge ............................... 6

Figure 2. Teams by lead organization........................................................................................................... 7

Figure 3. Expected SIYC Prize Challenge solar site locations..................................................................... 8

Figure 4. Types of innovative approaches taken by SIYC Prize Challenge teams....................................... 9

Figure 5. Financing mechanisms used in SIYC Prize Challenge projects.................................................. 10

Figure 6. Number of technical assistance requests by type ........................................................................ 11

Figure 7. Top challenges identified by interviewees .................................................................................. 12

Figure 8. Geographic distribution of profiled teams................................................................................... 16

Figure 9. One example of Boston Solar Access program structure ............................................................ 19

Figure 10. Duluth Community Solar Coalition program structure ............................................................. 21

Figure 11. FAC solar project structure........................................................................................................ 24

Figure 12. Kerrville Area Solar Partners program structure ....................................................................... 27

Figure 13. Power52 program structure ....................................................................................................... 30

Figure 14. Solar ACCESS UpGrade Ohio program structure..................................................................... 31

Figure 15. Example Solar Holler project structure ..................................................................................... 34

Figure 16. Select Solar Synthesizers LIHTC-supported solar project model ............................................. 36

Figure 17. Solarize Philly program structure .............................................................................................. 39

Figure 18. Sun Shares (VEIC) program structure....................................................................................... 41

List of Tables

Table ES-1. Comparison of Profiled Teams by Target Market and Business Model/Approach .................. v

Table 1. Seed Fund Distribution, Allocation, and Milestone Requirements by Team Type ........................ 4

Table 2. Comparison of Profiled Teams by Target Market and Business Model....................................... 17
1

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1 Introduction

Low- and moderate-income (LMI) residents, nonprofits, and other community-serving entities 

have been underrepresented in the growing residential solar photovoltaics (PV) market (Barbose

et al. 2018). Despite significant rooftop PV potential at LMI homes nationwide (Sigrin and 

Mooney 2018), existing PV adopter incomes average $13,000–$32,000 higher than median 

income (Barbose et al. 2018). This discrepancy is driven in part by the challenges that LMI 

residents face when pursuing solar, including home ownership status, roof suitability, upfront 

solar investment costs, and relatively few financing options tailored to this market segment

(Cook and Bird 2018).

These challenges, especially those related to financing, serve as barriers to nonprofits and other 

community-serving entities. In particular, these market segments often cannot monetize available 

tax incentives that have helped support PV adoption. These barriers are not unique to rooftop 

solar and may affect households, nonprofits, and other entities’ access to community solar 

programs.

Innovative approaches to support PV deployment by LMI residents, nonprofits, and other 

community-serving entities have begun to emerge (Cook and Bird 2018). To accelerate this 

trend, the U.S. Department of Energy (DOE) launched the Solar in Your Community Prize 

Challenge (SIYC Prize Challenge) in 2016. In total, DOE selected 178 teams to participate and 

find innovative pathways to support PV adoption in underserved markets. Teams were composed 

of a group of local stakeholders such as municipal governments, solar developers, nonprofits, 

and housing agencies that came together to support the design and installation of a communityoriented solar project or program. If all the teams successfully execute their business plans, the 

SIYC Prize Challenge could result in 1,600 megawatts (MW) of solar by 2020, serving as many 

as 900 nonprofits and 48,000 LMI households.2

This report provides a summary of the SIYC Prize Challenge design, participating teams, key 

lessons learned, and profiles 10 teams that have developed especially innovative approaches to 

serve these markets. These profiles describe the model each community has developed to enable 

solar deployment, along with the factors that have made it successful and considerations for 

replication in other markets. 

This study relied upon archival research and interviews with over 40 subject-matter experts,

including DOE personnel, program consultants, coaches, and team members. The interviews 

were used to identify innovative approaches and key lessons learned across the experiences of all 

178 participating teams. Select interviewees also provided specific insights for the 10 profiled 

teams.

The remainder of this report is structured as follows. Section 2 describes the design of the SIYC

Prize Challenge. Section 3 provides a broad overview of the participating teams and their 

attributes. Section 4 summarizes some of the key challenges faced by teams along with some 

considerations for next-generation programs and initiatives targeting these markets. Section 5

 

2 These estimates are based on an assessment of each team’s initial application to the SIYC Prize Challenge. 
2

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includes the profiles of 10 teams and provides perspectives on how to deploy these approaches 

nationwide. Section 6 concludes with key takeaways from the SIYC Prize Challenge and profiled 

teams for future project or program design. 
3

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2 SIYC Prize Challenge Program Background

On November 21, 2016, DOE launched the SIYC Prize Challenge to facilitate replicable 

business models that bring solar to LMI, nonprofit, state, local, tribal, and other communityserving entities that face financing, regulatory, and technological barriers. To meet this 

challenge, DOE offered $4 million in technical and financial resources to grassroots teams. The 

challenge will conclude in 2019 when DOE will announce $1 million in final prizes distributed 

across the five most innovative teams.

DOE selected teams through a competitive application process.3 In total, over 200 teams applied

to participate in the challenge and 178 were accepted in two tracks: project or program. Teams 

that self-selected the project track were intent on developing a specific PV project(s), while those 

that selected the program track were focused on creating a new approach or model to support 

solar deployment within the LMI, nonprofit, and/or other community-serving markets.

Over the 18-month performance period (May 2017–October 2018), participating teams were 

“challenged” to develop innovative, replicable, and scalable models for solar energy deployment 

that directly benefit LMI communities, nonprofit organizations, and other entities. Projects and 

programs targeted at LMI populations were expected to direct at least 20% of the electricity 

generated from solar installations to LMI households. For projects at nonprofit or other 

community-serving entities, the target was 60% of electricity generation benefiting the relevant 

market segment.

4

Those teams that were accepted in the program had the opportunity to receive technical and/or 

financial support to help meet the goals of the challenge. All teams were provided some technical 

support, with many teams also receiving at least some financial support. The description and 

allocation of this support is summarized in the sections that follow.

2.1 Technical Support

DOE offered technical support for accepted teams, including an assigned coach and access to a 

variety of training materials, events, and workshops. Through a competitive application process, 

24 coaches were selected, with each coach to help 5–10 teams implement their projects or 

programs. In this capacity, coaches served as sources of information and could help teams 

identify technical assistance (TA) resources to carry out their projects. They also helped ensure 

compliance with the rules of the challenge and were required to communicate team progress to 

DOE and the SIYC Prize Challenge administrator.

5

In addition to being assigned a coach, all teams had access to educational resources on the SIYC 

Prize Challenge’s website.6 Teams could participate in the online solar curriculum that provided 

trainings on policy, project design, customer acquisition, and financing (Solar in Your 

 

3 https://www.energy.gov/eere/solar/sunshot-prize-solar-your-community-challenge 4 https://www.solarinyourcommunity.org/rules.html

5 The SIYC Prize Challenge administrator for the first half of the SIYC Price Challenge was the State University of 

New York system, while the International City/County Management Association (ICMA) was selected as the 

administrator for the last half of the challenge.

6 The website can be accessed at https://www.solarinyourcommunity.org/. 
4

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Community 2018). The website also included links to reports, case studies, best practices, 

videos, project questionnaires, and template financial models.

Throughout the course of the program, DOE sponsored events, conferences, and workshops

where teams could troubleshoot their projects with their peers, identify key lessons learned, and 

discuss best practices across teams for addressing certain challenges. For example, DOE and

Cadmus, a consulting firm, hosted a 2-day workshop on March 13–14, 2018, with sessions to 

help teams address financing, regulatory, and other technical challenges associated with their 

projects or approaches. Teams were also offered free access to one-on-one sessions with proven 

experts in the regulatory, technology, and financial sectors of the solar industry.

2.2 Financial Support

In addition to the technical resources offered to all teams, some received financial resources. 

DOE provided two types of financial assistance: seed funds and TA vouchers. 

A limited amount of seed funds were distributed to 34 teams in Round 1. If a team successfully 

met all their milestones (e.g. project approvals, financing, and underserved market participation),

it could receive up to $60,000 in direct financial assistance. Seed funding allocations varied by 

round and project size (small projects: <100 kilowatts [kW]; large projects: ≥100 kW) (see Table

1). Over the course of the program, nine teams successfully achieved all four milestones and 

received their full allotment of seed funds.7

Table 1. Seed Fund Distribution, Allocation, and Milestone Requirements by Team Type

Distribution Small Project/Large 

Project

Milestone

Round 1: Selection $6,000/$15,000 Active participant and selected by DOE to receive 

seed funding

Round 2: Permission $6,000/$15,000 Program teams: Approval of program design from 

governing board or authority

Project teams: Obtained permits

Round 3: Financing $8,000/$20,000 Program teams: Evidence of approved 

appropriations or other agreements 

Project teams: Loans, cash on hand, crowdfunding 

awards, or anything proving they have secured 

financing

Round 4: LMI Bonus $4,000/$10,000 Program team: Program has launched and at least 

50% energy forecast to serve LMI households 

directly

Project teams: Customer acquisition complete and 

at least 50% energy delivered to LMI households

 

7 The nine teams include Clean Affordable Solar for All, Community Solar for Community Action, Just Community 

Solar, Kerrville Area Solar Partners, RE-volv, Solar Pioneers, Solar Synthesizers Meriden, Team Wasaya, and 

Baltimore Shines. For more information on these teams see: https://www.solarinyourcommunity.org/teams.html.
5

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In addition to seed funding for certain project teams, teams were eligible to receive free 

assistance from a consultant via a technical assistance voucher program. DOE selected 121 teams 

to receive free assistance and selected 126 consultants (“TA providers”) via a separate

competitive selection process to provide assistance.

8 Teams that were awarded free assistance

(up to $10,000 per voucher) could spend their allocation of funds via an online marketplace (“TA 

marketplace”).9 All transactions were facilitated through the online platform and managed by the 

SIYC Prize Challenge administrator. This allowed teams to avoid entering into contractual 

arrangements directly with consultants. Over the performance period, about $2 million in 

vouchers was allocated to teams of which $1.5 million was spent in the marketplace. 

 

8 These consultants were selected from a pool of 314 consultants who began the application process. Many of these 

applicants did not complete the process, so their applications were not considered in the selection process.

9 Each voucher was worth $10,000 of services in the TA marketplace, and teams could receive more than one 

voucher. 
6

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3 Participating Teams

One of the primary objectives of the program was to incubate innovative rooftop and community

solar projects with a wide variety of organizations nationwide. In total, 178 teams were accepted 

into the SIYC Prize Challenge, and no two are exactly alike.10 Their profiles showcase a 

diversity in partnership and collaboration among businesses, nonprofit organizations, local 

governments, and individuals. From Maine to Alaska, teams created new models for bringing 

solar energy to LMI households, nonprofits, and other community-serving entities (see Figure 1).

Figure 1. Geographic distribution of participating teams in the SIYC Prize Challenge

Teams represented over 40 states, districts, and territories across the United States. While states 

with robust solar or community solar markets, such as California, New York, Illinois, and 

Minnesota, had over 10 teams, several other states with more emerging markets such as 

Michigan, Pennsylvania, South Carolina, and Texas had five or more. The remainder of this 

section compares participating teams by lead organization, project location, financing, and 

innovation.

 

10 Additional information on all the teams can be accessed at https://www.solarinyourcommunity.org/teams.html. 
7

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3.1 Lead Project or Program Organizations

A wide variety of organizations led SIYC Prize Challenge teams. Most teams were led by forprofit organizations, typically local solar or renewable energy companies. In some cases, these 

for-profit organizations were new market entrants, such as the HBCU Coalition, a minorityserving institution leading the HBCU Clean Energy Consortium in Florida. Community-based 

nonprofits were the second-most common organization to lead teams, followed by local 

governments, community groups, and utilities (Figure 2). 

Figure 2. Teams by lead organization

This figure is based on the 115 teams where a lead organization was identified based on the team’s initial application.

3.2 Solar Site Locations

Teams pursued a range of locations for their rooftop and community solar projects from 

municipal buildings to brownfields (see Figure 3). Most teams planned to locate solar projects on 

at least some municipal buildings, reflecting local government involvement in teams. Singlefamily homes and multi-family buildings were two of the more common locations to deploy 

solar that benefitted low-income households. Local nonprofits and schools also served as sites 

for systems, including three Texas nonprofits associated with the Kerrville Area Solar Partners 

team (profiled in Section 5). Religious institutions, tribal lands, and brownfields were also 

selected for solar projects, such as the St. Stephen’s Episcopal Church in Virginia, the Blue Lake 

Rancheria Reservation in California, and the Ecogy Solar for Affordable Housing brownfield 

project in Delaware.

0%

5%

10%

15%

20%

25%

30%

35%

40%

For-Profit Nonprofit Local

Government

Community

Group

Utility

Percentage of Teams
8

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Figure 3. Expected SIYC Prize Challenge solar site locations

This figure is based on the 161 teams where a project location(s) was identified based on the team’s initial 

application.

3.3 Innovative Approaches

Collectively, teams developed innovative approaches through a combination of new financing 

models, markets, technologies, and partnerships to achieve their objectives (see Figure 4). 

Innovations around financing projects were most common across teams, and these pathways are 

discussed in detail in Section 3.4. Many teams were focused on deploying solar in a new market,

such as rural and tribal communities, and more challenging market segments, such as multifamily housing and mobile home communities. In addition, some teams incorporated new 

technologies or partnerships into their projects. In terms of technology, some teams were focused 

on pairing solar with other technological advances such as energy efficiency measures, electric 

vehicles, and microgrid controls. For example, the Community Clean Energy Project in 

Massachusetts incorporated energy efficiency, demand response, and PV to right-size PV 

systems and maximize savings for LMI households in their project. Teams pursued a variety of 

innovative partnerships that included affordable housing providers, community organizations, 

commercial partners, and households. Lastly, some teams incorporated policy and workforce

training opportunities, including training former coal miners as done by the Solar Holler team in 

West Virginia (profiled in Section 5).

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

Percentage of Teams
9

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Figure 4. Types of innovative approaches taken by SIYC Prize Challenge teams

This figure is based on the 155 teams where an innovative approach was identified based on the team’s initial 

application.

3.4 Project and Program Financing

Financing is one of the key deployment barriers in underserved market segments. Teams 

typically used multiple pathways to fund or finance their projects. These funding and financing 

pathways included conventional (such as power purchase agreements [PPAs] and leases) and 

unconventional (such as donations and crowdsource investing) approaches.11 Many teams 

planned to enlist at least some crowdsource donations or investments for their projects. Teams 

also commonly sought grants, loans, and tax equity (Figure 5). There were far fewer teams that 

pursued lease or fee structures to support solar projects, such as the Green the Church Red team 

with projects in California, Maryland, and New York and the Solar Access UpGrade Ohio team. 

The type of organization (e.g. tax-exempt) along with state policy (e.g. ability to sign a power 

purchase agreement) shaped the type of financing mechanisms teams pursued.

 

11 PPAs are either physical or virtual contracts between an LMI household, nonprofit, or other community-serving 

customer and a third party, where the customer secures the physical or financial rights to the electricity generation 

and, in some cases, the environmental attributes of the project (Heeter, Bird, and Cook 2018). 

0%

5%

10%

15%

20%

25%

30%

35%

40%

Percentage of Teams
10

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 5. Financing mechanisms used in SIYC Prize Challenge projects 

This figure is based on the 113 teams where a financing mechanism was identified based on the team’s initial 

application.

0%

5%

10%

15%

20%

25%

30%

35%

Donations/

Crowdfunding

Grant Debt Tax Equity PPA Lease Fees

Percentage of Teams
11

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

4 Key Challenges and Considerations for PV Project 

Deployment from the SIYC Prize Challenge

This section provides insights from the questions teams faced when developing their projects. 

These questions were documented via requests teams made of consultants and perspectives 

generated from interviewed coaches, consultants, and team members. Based on this data, the 

section ends with a summary of three barriers and considerations for future projects relating to 

financing, policy, and legal/business structure. 

Teams could select from a set of approved services from consultants in an online TA 

marketplace. 121 teams were provided TA vouchers and they made a combined 653 TA requests 

across 14 categories, as summarized in Figure 6.

Figure 6. Number of technical assistance requests by type

System design, marketing/engagement, and financing were the three most frequently requested 

TA topics (Figure 8). On average, teams used between $2,500 and $4,200 of their allotted 

funding per request on these services ($10,000 per voucher). In comparison, workforce training, 

utility and interconnection, and business/legal structure TA requests were some of the least 

frequently requested topics. However, the teams that did request these services used on average 

between $4,700 and $5,100 per request.

$0

$1,000

$2,000

$3,000

$4,000

$5,000

$6,000

0

20

40

60

80

100

120

Average Cost

Number of Requests

Topic Area

Total Requests Average Cost per Request
12

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

The marketplace requests in Figure 6 represent what teams initially requested from consultants; 

in some cases, the requests could have evolved from what was originally articulated. To augment 

this information, interviewees were asked to identify the key technical challenges faced by 

teams. These perspectives are summarized in Figure 7.

12

Figure 7. Top challenges identified by interviewees

Financing, policy, legal/business structure, and marketing/engagement were the most commonly 

identified challenges referenced by interviewees. The perspectives of interviewees are somewhat 

different than those illustrated by the analysis of the TA marketplace (see Figure 6). Although 

more teams made system design and marketing/engagement requests in the marketplace,

interviewees suggested that financing, policy, and legal/business structure challenges were often 

more problematic for achieving their goals than system design in particular. This may suggest 

that while PV system design is important for project development, interested communities may 

face more challenges with financing, policy, and legal/business structure when carrying out their 

projects.

Interviewees provided insight on the types of challenges that teams faced in each of these topic 

areas, along with possible solutions that might be adopted in the future. The remainder of this 

section summarizes these insights relating to three of the four topics including financing, policy, 

and legal/business structure.13

 

12 In some cases, interviewees mentioned more than one challenge, and each was counted separately in Figure 7. 13 Marketing/engagement was excluded because many of these requests were related to developing marketing 

materials for program or project outreach. Though outreach is an important component of any program, interviewees 

did not suggest that these requests were tailored to these underserved markets. Rather, the teams were requesting 

more general marketing/engagement expertise. As a result, less can be gleaned from these marketing/engagement 

activities specific to future PV projects in these market segments.

0

2

4

6

8

10

12

14

Interviewee References

Topic Area
13

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

4.1 Financing Barriers and Considerations

Interviewees identified a few key financing barriers, specifically project size and access to tax 

equity. Most teams are developing relatively small community or rooftop solar installations. PV 

projects, especially those less than 100 kW, may be too small to receive competitive power 

purchase agreement or interest rates. Interviewees suggested this was because there are few 

financiers that have experience with or have interest in financing small projects.

14

In addition, many teams were interested in monetizing federal tax incentives through tax equity 

partners for these small-scale projects. Tax equity structures are complex and can be difficult and 

expensive to develop. Additionally, there is a limited universe of available tax equity investors

and, as a result, less interest and capacity for individual projects or portfolios below a certain 

value threshold (generally less than $25 million) (Feldman and Schwabe 2018).15

Interviewees commented that teams developing smaller projects might be more successful 

identifying financial partners by relying on local community lending or crowdsource donations

instead of traditional lending. This approach may also be a more effective means to identify and 

secure a project partner that can monetize available tax incentives and reduce overall project 

costs, such as a local private donor or corporate partner. 

4.2 Policy Barriers and Considerations

Though policy barriers trailed behind financing and other TA requests in the marketplace, 

interviewees clarified that policy considerations often were incorporated across requests and, in 

many cases, were central to their assistance to teams. This is because state and local policy 

influences the types of projects that teams can consider implementing. For example, as of 2018, 

community solar programs are only offered in certain utility service territories across 35 states 

(Cook and Shah 2018), and third-party ownership of rooftop solar projects is disallowed or 

restricted in 9 states and unclear or unknown in an additional 15 states (DSIRE 2018). 

According to interviewees, some teams had more limited knowledge of how to apply an 

innovative concept within their unique policy and regulatory structure. Interviewees noted that 

teams could have benefitted from first considering what might be possible within their local 

policy framework prior to considering project specifics such as site feasibility and system design. 

Policy-related challenges may still arise as projects unfold. Even so, interviewees asserted that 

considering policy challenges at the outset can help a team maximize the use of limited resources 

to achieve their solar objectives.

4.3 Legal/Business Structure Barriers and Considerations

Relatively few teams requested legal/business structure TA in the marketplace, yet those that did 

paid relatively more for these services. In some cases, interviewees posited that assistance was 

 

14 These entities may offer traditional loan products but not financing options tailored to solar or renewable energy 

projects. In general, small “one-off” solar projects can be viewed as uneconomic for traditional financial providers 

or outside their traditional lending expertise.

15 Without a tax equity partner to monetize the federal tax incentives, the ultimate cost of energy from a solar project 

will, all else being equal, generally be higher than it would with tax equity in the financial structure.
14

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

needed in developing business partnerships with tax equity investors or other partners to provide 

financing, and in other cases, they were driven by tax filing or program design considerations. 

Given the innovative nature of these teams, there were few existing examples of successful 

ownership structures that they could easily reference or modify to meet their project needs. Thus, 

the teams often had to start from scratch and develop their own business or ownership 

framework. Interviewees suggested that as teams begin to implement their projects, the SIYC 

Prize Challenge should generate replicable business models that can be adopted elsewhere. 

Interviewees suggested that as teams create new models, they should limit the number of parties 

included in formal project design, ownership, and implementation agreements. This can 

streamline contract approval processes. In addition, it can help reduce the complexity of 

contracts, including those describing ownership of assets. 
15

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5 Profiles of Innovative Teams and Related Market 

Strategies

As discussed in Section 3, each of the teams selected for the SIYC Prize Challenge adopted an

innovative approach to address challenges to LMI, nonprofit, and other community-serving 

entities’ adoption of PV. This section profiles 10 of these teams and their innovative business 

models or approaches that could be successfully replicated in other contexts. The 10 teams

included in this section were selected after consultation with the SIYC Prize Challenge 

administrator, DOE personnel, and coaches. The goal of these consultations was to identify 10

teams that demonstrate novel approaches that show potential for replication nationwide. This 

selection is not associated with decisions around final prize award allocation and does not reflect 

a short list for those awards.

The teams highlighted in this section demonstrate variation in geography, population, target 

market(s), and business models. Most of the teams profiled in this section are located in the 

Northeast and Mid-Atlantic (see Figure 8). The remaining teams are located in Appalachia, the 

upper Midwest, and Texas. The teams differ in terms of the type and size of the population being 

served, with some targeting small, rural communities (e.g., Shepherdstown, West Virginia), and 

others addressing more urban communities (e.g., Brooklyn, New York). Most importantly, the 

profiled teams are implementing a variety of approaches to serve LMI, nonprofit, or other 

underserved market segments (see Table 2). Three of the ten teams are focused specifically on 

LMI households, while four teams focus on LMI households and nonprofits. The remaining three 

teams focus on nonprofits, municipal governments, or some combination of the three. Finally, 

each of the teams has adopted a different business model and financing approach to support 

rooftop or shared solar deployment in the designated market segments. The remainder of this 

section profiles each team with an emphasis on their approach, success factors, and 

considerations for replication.
16

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 8. Geographic distribution of profiled teams
17

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Table 2. Comparison of Profiled Teams by Target Market and Business Model

Profiled

Team

Target

Market(s)

Business 

Model/Approach

Financing Approach

Tax IncentivesPPALoanDemand ResponseCrowdsourcingFees

Renewable Energy CertificatesOther

Boston Solar 

Access

LMI households 

and nonprofits

Community solar 

hosting ● ●

Duluth 

Community 

Solar Coalition

Nonprofits and 

municipal 

governments

Crowdsource social 

impact investing ●a

FAC Solar—

Gowanus Grid 

& Electric

LMI households 

and nonprofits

Solar financing for 

nonprofit multi-family 

housing

● ● ●b

Kerrville Area 

Solar Partners

LMI households 

and nonprofits

LMI community solar 

rate design ● ● ●c

Power52 

Foundation LMI households Anchor-supportedLMI community solar ● ●

Solar Access 

UpGrade Ohio

Municipal 

governments

Community-choiceaggregation-supported 

solar deployment

●d

Solar Holler Nonprofits

Workforce training

and place-based

solar deployment

● ● ● ●

Solar 

Synthesizers 

Meriden

LMI 

households, 

nonprofits, and 

public housing

Low-income-housingtax-credit-supported 

solar financing

● ● ● ●e

Solarize Philly LMI households

Solarize program

fees to support

LMI solar leases

● ● ●f

Sun Shares 

(VEIC) LMI households Employer-offeredsolar program ●g ● ●

a The Duluth Community Solar Coalition team has not developed a project. When they do complete a project, it is 

possible they will leverage other financing approaches beyond crowdsource donations or investments. 

b The FAC Solar – Gowanus Grid & Electric team also leveraged a state grant. 

c The Kerrville Area Solar Partners team is recovering costs for the PPA through customer participation in a unique 

community solar rate. 

d The Solar Access UpGrade Ohio team has not developed a project. When they do complete a project, it is possible 

they will leverage other financing options beyond collected fees such as a PPA.

e The Solar Synthesizers Meriden team also leveraged energy savings performance contracting, property assessed 

clean energy, and community reinvestment act financing for some of its projects. 

f The Solarize Philly team uses solarize fees to support leases to LMI participants. 

g Only a portion of Sun Shares (VEIC) project was funded by a loan, the remaining financing is unknown though it is 

expected that available tax incentives were monetized. 
18

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.1 Boston Solar Access: Maximizing LMI Benefits in Solar Hosting 

Programs

The Boston Solar Access team located in Boston,

Massachusetts, is focused on increasing the value 

LMI residents receive from rooftop solar projects 

under emerging solar hosting models. In typical 

solar hosting programs, an electric utility pays a

property owner for access to install and operate a 

rooftop solar system. The utility then controls the 

rights to the output of the PV system, and the 

property owner receives a monthly lease payment

for use of their rooftop (Cook and Bird 2018). The 

Boston Solar Access team took a different 

approach, in which the solar systems are owned 

by a third-party financier instead of the utility. In 

addition, project hosts receive a lease payment for 

the rental of their roof space along with some 

virtual net metering generation credits from the 

system’s generation, thereby reducing or 

offsetting LMI and nonprofit energy costs 

(Resonant Energy 2017a).

In this model, the solar projects are installed on LMI homes and on nonprofits. The solar 

developer sets up a PPA with a local “anchor institution,” typically a creditworthy nonprofit, for 

80% of the generation (see Figure 9). The remaining 20% of the generation is credited to the 

project host providing between 10% and 30% electric bill savings (on average, about $360/year) 

with no accompanying upfront costs, ongoing payments, or credit score requirements (Resonant 

Energy 2017b). To reduce the cost of the PPA, relevant tax incentives are monetized by social 

impact investors16 identified and aggregated by project partner Sunwealth, a clean energy 

investment firm.

17 To date, interviewees commented that the program has installed 263 kW,

which includes projects at 10 LMI households and 8 nonprofit hosts.

18 The team has contracts 

signed to add an additional 12 LMI households and 19 nonprofit hosts to the program in 2019, 

with expected capacity totaling 890 kW. 

 

16 These types of investors are interested in supporting projects with social benefits that also provide a financial 

return that may be lower than traditional investments. 

17 For more information on Sunwealth, see: https://www.sunwealth.com/. 18 These nonprofit hosts have systems installed on their own property and are distinct from the anchor institutions 

supporting the LMI household projects. 

Boston Solar Access 

Summary Profile

Market 

Segment(s)

LMI individuals and 

nonprofits

LMI Participants 10 households and 8

nonprofits*

Project Size 263 kW DC

Project Type Community solar

Business 

Model/Approach Community solar hosting

Location Boston, Massachusetts

Population 685,094

* The team expects 12 additional households and 

19 nonprofits to participate in the program through 

2019.
19

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 9. One example of Boston Solar Access program structure

5.1.1 Contributors to Success

Interviewees identified a range of factors that have contributed to the success of this team,

including adequate state policy, access to social impact investors, and data on housing stock roof 

age. The program is successful in Massachusetts, given that state policy allows for virtual net 

metering and this type of solar hosting to qualify as a community or shared solar project. 

The team was able to reduce the cost of the PPAs by securing funds from social impact investors 

that could monetize the solar tax incentives, including the business investment tax credit (ITC) 

and accelerated depreciation (U.S. Department of Energy 2018). The team also had ease of 

access to these investors through their partnership with Sunwealth, which aggregates these 

investors and connects them with project developers such as the Boston Solar Access team. 

Sunwealth’s ability to reduce the transaction costs for these investments by aggregating funds 

from multiple investors into a single tranche helped reduce PPA prices and maximize savings for 

LMI residents. 

Finally, LMI residents are more likely to reside in older housing with roofs that may need to be 

replaced prior to installing solar. Identifying homes with relatively new roofs can be challenging,

and the team was able to reduce customer acquisition costs by leveraging digital permitting data 

provided by the City of Boston. This helped the team overlay publicly available median area 

income data with permitting data to identify potential LMI household leads, thereby reducing 

customer acquisition and overall project costs.
20

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.1.2 Considerations for Replication

Though the project was successful, interviewees noted that those interested in replicating this 

model should consider differences in state policy, roof suitability, electrical permitting 

requirements, and community interest for future projects. 

The team benefitted from a favorable virtual net metering policy where these community solar 

projects were eligible for generation incentives. Not all states allow virtual net metering or

community solar more broadly, and those that do may preclude this type of solar hosting. Some 

states such as Colorado, Minnesota, and New York require a minimum of 5–10 subscribers to

participate in a community solar project (Cook and Shah 2018). Identifying 10 subscribers for 

LMI rooftop installations increases costs and may not be practical. Determining whether this 

model will be eligible for existing community solar incentives will be important to determine 

how much LMI residents may benefit from solar hosting.

Interviewees commented that their access to digital permitting records was helpful for

identifying homes with recent roof replacements. A similar digital records system may not be 

available in many jurisdictions. This may require reviewing permit data by hand or relying on 

other customer acquisition processes, thereby increasing project costs. If a roof is suitable, 

interviewees commented that the cost to bring the electrical system of the house to code can also 

reduce potential LMI customer savings.19 Interviewees noted that places like Boston, with old 

building stock and underground electrical systems, will likely require significant electrical 

upgrades that should be considered when designing programs. To address this challenge, 

interviewees suggested that state programs could adopt stipulations similar to those for energy 

efficiency that provide resources to address these barriers prior to deployment of certain 

efficiency measures. Absent this type of program, interviewees suggested that social impact 

investors may also be open to a lower rate of return to accommodate electrical upgrade costs. If 

not, this model may still work in those cities with newer building stock and fewer electrical 

upgrade needs. 

The Boston Solar Access team, originally called the Cambridge Solar Access team, expected to 

launch its program in Cambridge, Massachusetts, but eventually shifted to deploy the bulk of 

their systems in Boston. Interviewees noted that this was due to substantially greater interest 

from nonprofits and members of LMI communities to support the program in Boston. Future 

developers might engage with stakeholders, including longstanding nonprofits, residents, and

municipal personnel, upfront to ensure they will be willing and supportive partners of the effort. 

 

19 Although roof suitability will ultimately be determined on a case-by-case basis, Sigrin and Mooney (2018) have 

estimated PV potential, accounting for some building characteristics, including building age, that can help project 

developers identify census tracts with higher densities of potentially suitable buildings.
21

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.2 Duluth Community Solar Coalition: Crowdsource Social Impact 

Investing

The Duluth Community Solar Coalition was 

established in Duluth, Minnesota, with the intent 

to connect local social impact investors with 

nonprofit and governmental entities pursuing solar 

projects. The team developed an online web portal 

managed by Lake Superior Solar Finance LLC 

(LSSF) to link these investors with potential 

projects, while avoiding cumbersome U.S. 

Securities and Exchange Commission (SEC)

regulatory processes (Lake Superior Solar Finance 

2018).

For projects to be published on the LSSF portal, 

they must be compliant with the MNvest 

Securities Registration Exemption (MN 

Commerce Department 2018). In 2015, the 

Minnesota state legislature enacted House File 3 

to allow residents to invest in certain businesses 

without being subject to SEC regulations (Revisor of Statutes 2018). If the solar project complies 

with all requirements of the exemption, LSSF will host the project on its portal and interested 

Minnesota-based investors can review projects, review their rate of return, and invest (see Figure 

10). If the project achieves its minimum capital investment goal, the project developer can access 

the capital and begin implementation. If not, all investors are refunded. The portal is publicly 

available, and interviewees expect the first project to be published in early 2019.

Figure 10. Duluth Community Solar Coalition program structure

Duluth Community Solar Coalition

Summary Profile

Target 

Market(s)

Nonprofits and municipal 

governments

LMI Participants TBD*

Project Size TBD**

Project Type TBD**

Business 

Model/Approach

Crowdsource social impact 

investing

Location Duluth, Minnesota

Population 86,066

* Direct LMI participants are not the focus of this 

program.

** The first project has not yet been announced on 

the portal.
22

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.2.1 Contributors to Success

As of January 2019, no project has been completed through the portal. Even so, interviewees 

provided some perspectives on what has contributed to their success to date, including state 

crowdfunding policy, the team’s expertise, and its flexible financing model. 

Interviewees noted that the state’s MNvest law and related guidance lays out a clear path for 

state residents to invest in businesses without being concerned about SEC regulations. In 

addition, interviewees commented that the MNvest process can help social impact investors 

understand the commitment of project developers because it can take significant time and 

resources to qualify for the MNvest exemption and be included in the LSSF portal. 

Given the complexity of the MNvest law, an interviewee asserted that the team also benefitted 

from expertise within the team relating to the law and its requirements. Even with this internal 

expertise, the team sought additional TA to ensure that LSSC complied with the law as a portal 

manager, including its approval process for specific projects. 

Finally, the flexible crowdsource investment platform allows for investors to participate as 

equity or debt investors. Those investors that can monetize relevant tax credits, such as the ITC, 

can elect to do so as tax equity investors. Others can participate as debt investors.20 This 

flexibility expands the potential pool of investors that can participate while providing them with 

different investment options and rates of return.

5.2.2 Considerations for Replication

There are some emerging considerations for adopting a similar approach elsewhere relating to 

state crowdfunding policy, project approval processes, and investor interest. Minnesota is one of 

a few states that provide legislative guidance on how solar project developers can seek 

crowdsource investment from in-state residents. This model may be more difficult to replicate in 

states that have not developed similar guidance. Even with this guidance, interviewees attested 

that setting up the portal and approving projects has been a complex and time-consuming 

process. These processes can influence the portal’s ongoing operation and maintenance costs.

Interviewees suggested that as first-generation solar projects get approved using this model, it 

may reduce these costs on a per-project basis. 

Finally, interviewees noted that receiving enough investment to begin the project is not a given, 

and project developers should consider the potential level of local investor interest prior to listing 

a project on the portal. On this front, interviewees asserted that project developers should solicit 

interest from community investors that are already supportive of their missions and then use the 

portal as an avenue for these and other interested parties to invest and receive a rate of return 

from the project. If project developers do not have a sense of what types of investors may be 

interested in a project, it may be more difficult to ensure that the project reaches its investment 

capital goal. 

 

20 These investors essentially loan capital to the project and receive a return via interest payments on their 

investment.
23

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.3 FAC Solar—Gowanus Grid & Electric: Unlocking NonprofitOwned Multi-Family Housing for PV

The Fifth Avenue Committee (FAC) Solar—

Gowanus Grid & Electric team is based in 

Brooklyn, New York, with a mission to find 

innovative methods to support PV deployment 

at nonprofit-owned multi-family housing. The 

team has secured financing for 400 kW of 

rooftop community solar distributed across 18 

sites owned by the nonprofit FAC, which has a 

portfolio of 46 buildings across New York City 

(Paulos 2018a). The electricity generated from 

the projects will be used to offset both common 

area and direct tenant load, providing an average 

of 15%, or approximately $10/month, in 

electricity bill savings for residents (Paulos 

2018a).

In this model, FAC serves as the leaseholder for the rooftop PV systems, while third-party 

investors pay for this system and monetize the ITC.21 The solar developer, Gowanus Grid & 

Electric, signed individual PPAs with each of the FAC facility operating companies that own and 

manage the buildings (see Figure 11). Gowanus Grid & Electric operates as the project service

company managing allocation, distribution of solar benefits, and monetization of the on-bill solar 

credits. Gowanus Grid & Electric then provides FAC facility managers and tenants with reduced 

electric bills that reflect the bill credits generated from their participation in the project. 

Contracts with residents are month-to-month and can be transferred to new residents when a 

participant moves.

 

21 The project also received a grant from the New York State Energy Research and Development Authority.

FAC Solar—Gowanus Grid & Electric 

Summary Profile

Target Market(s) LMI residents in multifamily housing

LMI Participants 300 households

Project Size 400 kW*

Project Type Rooftop community solar

Business 

Model/Approach

Solar financing for 

nonprofit multi-family 

housing

Location Brooklyn, New York

Population 2.649 million

* Project capacity is split across 18 rooftops.
24

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 11. FAC solar project structure

5.3.1 Contributors to Success

According to interviewees, this project’s success has been driven by the commitment and vision 

of FAC, the availability of code-compliant technology, and favorable financing and metering 

arrangements. 

According to one interviewee, the commitment of FAC to both deploy solar and provide benefits 

directly to tenants was important in ensuring the project was implemented as designed. In 

addition, most of the facilities included in the project have flat roofs, which produced a 

technology challenge because local fire code requires a 6-foot-wide and 9-foot-high unrestricted 

roof path (Baldwin 2018a). The team was able to rely on a novel solar canopy design that meets 

this and other code stipulations (Nonko 2018). An interviewee noted that although this system 

configuration comes at a higher cost than traditional PV systems, the additional cost still 

rendered the systems cost-effective at all the selected sites, ensuring the projects could move 

forward. 

Finally, each housing unit is individually metered, allowing tenants to benefit directly from 

rooftop PV systems. In addition, the financing structure for each of the affordable housing 

properties allowed tenants to retain the benefits they received from the solar credits without 
25

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

having to adjust rent as might be the case for some housing subsidized by the U.S. Department of 

Housing and Urban Development or other agencies.22

5.3.2 Considerations for Replication

Successfully adopting this model elsewhere may be impacted by state and local policy, nonprofit 

housing ownership and financing structures, and developing billing and payment structures that 

match the market. Interviewees noted that the team benefitted from state policies allowing virtual 

net metering or community solar. Even so, the team still faced challenges navigating these state 

policies to achieve their objectives. One interviewee noted that it was difficult, though not 

impossible, to deploy small community solar projects with fewer than 10 subscribers, which is 

typically required for the state’s community solar program. The team was able to deploy the 

projects based on exceptions in the regulation, but understanding this policy nuance took time 

and resources from many team members. In addition, the rooftop community solar projects faced 

local code barriers that precluded traditional rooftop solar. The team had to elevate the solar 

panels on canopies to maintain compliance, which could be cost prohibitive in other locations 

that might have similar code requirements but different solar market considerations (i.e., 

electricity rates, solar resource, and market maturity). Alternatively, project developers that do 

not face the same code requirements may be able to provide more PV benefits to participating 

facility managers and tenants, provided they can install lower-cost rooftop systems. 

Though the developer worked with one housing provider, FAC, it still had to develop and sign 

PPAs with each of the facility’s operating companies. Interviewees noted that this required 

understanding the nuances of the varying ownership structures by facility and designing PPAs 

that align with each unique structure. This contracting process added time and cost to the project. 

In addition, some nonprofit housing providers may have more master metered housing stock or 

may manage federally subsidized housing, which can influence the benefits that tenants might 

receive from solar projects (Cook and Bird 2018).23 Interviewees asserted that it took time and 

resources to evaluate the financing structure of each facility to ensure tenants would receive the 

benefits of the solar project. The results of these analyses may not always generate the same 

favorable results for distributing benefits as articulated here.

Finally, an interviewee noted that most investors prefer automatic direct deposit transactions to 

reduce uncertainty and risk around debt repayment. Some low-income customers do not use or 

do not prefer these automatic payment structures. Thus, the project developer had to create 

alternative customer account management tools to decrease the risk of nonpayment and secure 

investor participation in the projects.

 

22 This is most typical for public housing and project-based rental housing that is subsidized by HUD. For more 

information, see Cook and Bird (2018). 

23 In master metered buildings, tenants pay utilities based on a predetermined method for allocating costs as opposed 

to actual electricity consumption (Cook and Bird 2018). 
26

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.4 Kerrville Area Solar Partners: Leveraging Municipal Utility Rate 

Design to Support LMI Solar Access

The Kerrville Area Solar Partners team was 

established in Kerrville, Texas. The team is led 

by the Kerrville Public Utility Board (KPUB),

the community’s municipal utility. The team is 

focused on developing a new pathway to 

provide low-income residents access to 

community solar, while at the same time 

meeting the needs of some of their large 

nonprofit customers and other ratepayers

(Arnold 2017).

To achieve these goals, KPUB procured 3.72 

MW of community solar capacity spread across 

four community projects. Each project is located 

on land leased from local nonprofits, with three 

projects interconnected at 0.999 MW each and a 

fourth at 0.75 MW. Interviewees clarified that 

each project was sized below 1 MW to 

maximize project savings within the Electric Reliability Council of Texas (ERCOT) market. 

Interviewees suggested that these projects reduce the utility’s wholesale peak load, generating 

about $143,000 in ERCOT transmission cost savings annually. In addition to receiving 

competitive lease payments, 50% of the capacity of each community solar project is reserved for 

the relevant anchor nonprofit (see Figure 12). The remaining 50% of the project is reserved for 

low-income residents that live within income-qualified housing (Arnold 2017). As a part of the 

program, KPUB developed a new rate structure for these eligible low-income residents that 

passes on the savings a customer might expect on their monthly utility bill. Eligible low-income 

residents are credited at 8.225 cents per kWh (¢/kWh) for the generation of the community solar 

project, while the cost of generation is 7.073¢/kWh (City of Kerrville, Texas 2018). Thus, for 

each kilowatt-hour credited to the low-income resident, the resident sees a utility bill savings of 

$1.152¢/kWh. This savings is estimated to provide about a 14% electric utility bill savings each 

month. 

Kerrville Area Solar Partners

Summary Profile

Target Market(s) LMI individuals and 

nonprofits

LMI Participants 302*

Project Size 3.72 MW AC**

Project Type Community solar

Business 

Model/Approach

LMI community solar rate 

design

Location Kerrville, Texas

Population 23,386

* Customer count as of October 31, 2018.

** This capacity is split across four projects (three

0.999 MW and one 0.75 MW).
27

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 12. Kerrville Area Solar Partners program structure

5.4.1 Contributors to Success

Interviewees identified a set of key factors that were pivotal in the success of this effort relating 

to project procurement, program administration, and market structure. 

Interviewees commented that KPUB was well positioned to serve a key facilitation and 

procurement role. The utility has long-term relationships with the participating nonprofits who 

served a critical role as anchor tenants. These anchor tenants can reduce customer acquisition 

costs, while improving financing terms and the opportunity to mitigate LMI household turnover 

in projects (Heeter et al. 2018). The utility’s energy procurement expertise and its ability to 

leverage its relationships with nonprofits to negotiate competitive land lease arrangements 

further reduced project costs. 

Interviewees also suggested that KPUB’s efforts to simplify program administration was another 

key factor in keeping overall program costs low. KPUB served as the singular leaseholder and 

developed one blended rate for all the community solar projects as opposed to separate rate 

schedules for each nonprofit and participating low-income residents. In addition, KPUB will 

subscribe low-income customers that live in designated income-qualified housing. This housing 

will be identified primarily through partnerships with affordable housing providers, including 

those that have developed LIHTC facilities. This approach minimizes customer acquisition and 
28

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

retention costs because the credits will be associated with the income-qualified housing unit, as 

opposed to the residents that might be tenants in the housing over the life of the project.24

KPUB was also able to benefit from market and regulatory structures that incentivize distributed 

PV or load reductions projects to reduce wholesale peak demand charges. KPUB is located 

within ERCOT where transmission costs are assigned on KPUB’s percentage contribution to the 

ERCOT summer system peaks. Solar projects with capacity less than 1 MW are not required to 

register with ERCOT as a generation asset (ERCOT 2018). Rather, the systems appear as load 

reductions on the ERCOT system, thereby reducing KPUB’s contribution to peak load and 

resulting in transmission savings to the utility on behalf of all customers. Interviewees also 

confirmed that the project benefits participating nonprofits, low-income customers, and all 

ratepayers serving as a win-win-win for all parties.

5.4.2 Considerations for Replication

Interviewees asserted that their approach could be replicated by other municipal utilities in 

certain circumstances. Interviewees noted that ERCOT’s market design and transmission cost 

allocation process was important in generating favorable community solar rates. Interviewees 

believed that other municipal and cooperative utilities could adopt similar projects across 

ERCOT, while those in other market contexts will need to evaluate regulatory structures with 

care prior to proceeding. 

Limiting project costs was also critical to ensuring low-income residents received a benefit from 

participation in the project. In this context, interviewees argued that KPUB’s relationships with 

the local anchor nonprofits were important for securing lower-cost financing and competitive 

land lease rates. Some of these savings could then be passed on to low-income customers 

through more attractive rates. Importantly, these nonprofits had large land holdings, so they 

could locate relatively large projects onsite. This partnership structure could be more challenging 

in urban areas with land constraints or where there are few large corporate customers willing to 

serve as anchor tenants. 

Finally, KPUB was able to work with the solar developer to monetize tax incentives, such as the 

ITC, that neither the utility nor nonprofits could monetize directly, providing additional 

financing revenue for the projects.

 

24 The tenants still receive the benefits directly through credits on their electric bill. 
29

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.5 Power52 Foundation: Leveraging a Corporate Partnership to 

Support LMI Community Solar in Baltimore

The Power52 Foundation leads a team in 

Baltimore, Maryland, that is committed to 

reducing low-income residents’ energy burden, 

while providing workforce training opportunities 

for local residents (Wells 2015a). Power52 owns 

and operates two private career schools including

the Power52 Energy Institute, which offers the

Energy Professional Training program accredited 

by the National Center for Construction, 

Education, and Research. The program covers the 

basic concepts of PV systems, as well as system 

sizing, design, and installation and runs for 16 

weeks (McIver 2017). Trainees receive 320 hours 

of classroom instruction, interactive labs, life 

skills, job readiness, and on-the-job training 

(McIver 2017). Approximately 70% of program 

graduates have prior criminal convictions on their 

record, and a key goal of the program is to help these individuals attract and retain long-term 

jobs (Schuh 2018). Interviewees reported that the team has provided 126 individuals with solar 

development workforce training, boasting an 88% graduation rate and a 75% job placement rate. 

In addition, the team is in the process of deploying a 2.5-MW direct current (DC) community 

solar project (Power52 2018).

The team has relied on a traditional, subscription-based community solar structure, but the 

project benefits from an innovative partnership with a Baltimore-based athletic company 

(Power52 2018). The company serves as the anchor tenant and receives two-thirds of the 

project’s generation. The remaining capacity is expected to reduce energy bills for about 153 

subscribed residents in the Cherry Hills neighborhood when completed in 2019 (see Figure 13). 

This approach allows the corporate partner to benefit from lower and more consistent energy 

costs, while serving as a strong creditworthy customer to attract private financing in the project. 

Once the project is constructed, interviewees asserted that individuals from the training program 

would be enlisted to help complete the project.

Power52 Foundation

Summary Profile

Target 

Market(s)

LMI individuals

LMI Participants ~153 residents in the 

Cherry Hills neighborhood

Project Size 2.5 MW DC*

Project Type Community solar

Business 

Model/Approach

Anchor-supported LMI 

community solar

Location Baltimore, Maryland

Population 611,648

* 66% of this capacity is reserved for a Baltimorebased athletic company.
30

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 13. Power52 program structure

5.5.1 Contributors to Success

According to interviewees, a variety of factors led to this team’s success, including a strong 

partnership, a local champion, and favorable state policy. The project has benefitted from both a 

strong team with relevant engineering expertise and strong external partners. The project is 

located on land owned by Baltimore Gas and Electric, which is the electric service provider for 

the corporate partner, and the Cherry Hills neighborhood (Power52 2018). The company is 

another key partner that plays a critical role as a creditworthy off-taker to attract favorable 

financing terms for project construction. 

The project also benefitted from a strong champion, former National Football League player Ray 

Lewis. Ray Lewis is a co-founder of the Power52 Foundation, and interviewees suggested he 

played a pivotal role in supporting the low-income resident solar workforce training program and 

securing the local athletic company as an anchor tenant in the project. 

Finally, Maryland has adopted a Community Solar Pilot Program that sets aside about 60 MW 

for projects focused on LMI customers, including 30.2 MW of reserved capacity in Baltimore 

Gas and Electric’s service territory (Maryland Public Service Commission 2018; Baltimore Gas 

and Electric Company 2018). This project helps the utility meet its target, and in return, the 

project receives full retail rate compensation for solar generation, maximizing savings for the 

company and low-income participants (Wells 2015b).

5.5.2 Considerations for Replication

Interviewees suggested that others considering replicating this approach may wish to consider

the availability of corporate partners, project champions, and state policy to ensure project 

success. As noted, a key factor in the success of the project was recruiting the company as an

anchor tenant on the project. Other communities interested in this program structure might 

consider what large corporate customers are headquartered in their community and pursue them 

as possible anchors to secure favorable financing. In addition, champion Ray Lewis was a key 
31

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

player in bringing the corporate partner into the project, and other communities may be more 

successful if they can secure a similar project champion to reach out to potential partner 

companies. This project team also benefitted from state community solar policy that incorporates 

low-income participant requirements along with favorable compensation rates that may not be 

available in all locations. Despite these limitations, interviewees asserted that this model can be 

replicated in other locations, and it can provide attractive economic development, corporate 

responsibility, and social benefits.

5.6 Solar ACCESS UpGrade Ohio: Deploying Community Solar 

Through CCAs

The Solar Appalachian Citizens’ Community 

Economy Solar Shares UpGrade Ohio (Solar 

ACCESS UPGrade Ohio) team oversaw the 

implementation of a carbon fee campaign for 

those residents that participate in the City of 

Athens CCA program (Baldwin 2018b; Paulos 

2018b).

25 In 2018, city residents approved a

measure to adopt an opt-out $0.2 ¢/kWh carbon 

fee (Baldwin 2018b). Future revenues collected 

by the fee will be used to invest in community 

solar projects developed at certain municipal 

and school buildings in the City of Athens. The 

fee is planned to take effect in 2020 (Beard 

2018), and interviewees posited it could support 

up to 60 kW of rooftop solar annually, 

potentially providing $100,000 in electric bill 

savings each year. These savings will accrue to 

the city, which can then reallocate dollars to provide additional services to the community (see 

Figure 14). After successful passage of the measure, the team is now focused on implementing 

the program and is considering options to expand the carbon fee in the region.

Figure 14. Solar ACCESS UpGrade Ohio program structure

 

25 In a CCA, a government entity procures electricity on behalf of retail electricity customers within its jurisdiction 

(O’Shaughnessy, Heeter, and Sauer 2018). 

Solar ACCESS UpGrade Ohio

Summary Profile

Target Market(s) Municipal governments

LMI Participants Indirect benefits through 

lower municipal energy 

costs

Project Size TBD*

Project Type Rooftop solar

Business 

Model/Approach

CCA-supported solar 

deployment

Location Athens, Ohio

Population 25,214

* Could support up to 60 kW of rooftop PV per year.
32

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.6.1 Contributors to Success

Several factors supported the success of this team’s approach, including the state’s enabling 

statute for CCAs, alignment with the city’s sustainability goals, and a robust engagement 

strategy. Ohio is one of eight states that allows communities to procure electricity on behalf of 

retail electricity customers (O’Shaughnessy, Heeter, and Sauer 2018; Lean Energy 2017). The 

City of Athens has developed a CCA program for city residents who can then opt out of the 

program and select a different energy supplier. This regulatory model provided the city with the 

ability to include a carbon fee on willing residents’ electricity bills. 

The team also sought public buy-in for the carbon fee, and interviewees suggested that the city’s 

long-term commitments to sustainability, including a goal to increase residential and municipal 

consumption of renewable energy 50% by 2030, was a factor in the successful passage of the 

ballot measure (City of Athens 2017). 

Interviewees highlighted the team’s robust engagement and information campaign to inform city 

voters of the details of the initiative and its benefits for the community. One interviewee noted 

that it was important to clarify that this was not a mandatory carbon tax; rather, it was a 

voluntary fee and residents could opt out. The team used public forums, social media, and other 

engagement strategies to clarify this point and highlight the emission and electricity bill savings 

potential associated with the measure.

5.6.2 Considerations for Replication

Though successful in this community, replication elsewhere may be contingent upon regulatory 

structures that enable CCAs. As noted, only eight states allow CCAs, limiting the opportunity for 

other communities to adopt this approach. Outside of this regulatory framework, communities 

served by municipal utilities might be another regulatory structure where city leaders could

consider incorporating a similar carbon fee into their rates. If a community can pursue this 

approach, interviewees commented that the size of the community and the associated fee is a 

critical element in the viability of it. Smaller communities may have to place higher fees on 

participating customers to support solar deployment, which could limit public support. 

Interviewees suggested that one solution would be for communities to work together and pool 

resources to develop a regional program to address this challenge. This approach can minimize 

individual bill impacts but may cause additional administrative and implementation challenges. 
33

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.7 Solar Holler: Workforce Training and Place-Based Solar 

Deployment

The Solar Holler team is headquartered in 

Shepherdstown, West Virginia, and is 

committed to deploying solar in this emerging 

market. The team has championed a solar 

workforce training program that is integrated 

with developing place-based solar projects 

typically at nonprofit and municipal facilities.

In partnership with Coalfield Development,

Solar Holler operates the first solar job training 

and apprenticeship program in West Virginia

(Solar Holler 2018). To date, Solar Holler has 

trained 35 participants, providing 33 hours of 

paid on-the-job training, 6 hours of community 

college course work, and 3 hours of life-skills 

mentorship (Margolis 2017).

Solar Holler enlists these apprentices to help 

install solar at typically crowdsource-funded 

projects at public and social service 

organizations. In 2015, Solar Holler installed a 

rooftop solar project at Shepherdstown Presbyterian Church, relying on crowdsource funding 

from 100 community members (Barrick 2015).

26 These individuals agreed to install demand 

response controllers on their water heaters by Mosaic Power (Barrick 2015). Mosaic then 

controls the water heaters to provide grid services, and participants receive $100 per year. These 

individuals agreed to donate these savings to support the solar project loan, providing the system 

at no cost to the church (see Figure 15). More recently, Solar Holler has installed a variety of 

solar projects, including one at Harmony House, a nonprofit homeless and social services 

provider (Pace 2018). Solar Holler initially installed energy efficient lighting, followed by solar,

after an anonymous donor contributed $65,000 to cover the cost of the solar project (Pace 2018). 

Employing this place-based model, Solar Holler has about 1 MW of solar in various stages of 

development with 100 ongoing projects across the residential, commercial, and nonprofit sectors 

(Clouse 2017; Pace 2018).

 

26 This project was completed prior to the SIYC Prize Challenge, but this approach could be replicable in other 

market contexts with similar demand response programs. 

Solar Holler

Summary Profile

Target Market(s) LMI individuals and 

nonprofits

LMI Participants 35*

Project(s) Size ~1 MW*

Project Type Rooftop solar

Business 

Model/Approach

Workforce training and 

place-based solar 

deployment

Location Shepherdstown, West 

Virginia

Population 1,802

* This refers only to the 35 individuals that have 

received workforce training.

** This capacity includes constructed and planned 

capacity across all Solar Holler projects—not only 

those related to nonprofits and municipalities.
34

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 15. Example Solar Holler project structure

5.7.1 Contributors to Success

The Solar Holler team has taken a variety of approaches to support nonprofit and LMI-related 

solar projects in West Virginia. Interviewees highlighted the value of the solar training program, 

the team’s place-driven business model, and its flexible product/project portfolio as important 

factors in the team’s success. 

The West-Virginia-based solar training program has been cited as an important and successful 

element of the team’s approach (Clouse 2017). This training program provides Solar Holler with 

project installation teams that are then overseen by Solar Holler staff. This approach allows Solar 

Holler to reduce recruitment and retention needs related to solar projects (Clouse 2017).

Interviewees noted that for many of these projects there has been community support or a willing 

donor to help finance the project. The team’s fundraising success was attributed in part to the 

team’s place-driven business model that was focused on promoting energy development in West 

Virginia that is affordable to all West Virginians. 

Even with supportive funders, interviewees noted that project design and financing will likely 

vary based upon the unique context of the facility. Given this reality, the team does not provide 

one financing or project approach but rather tailors their product to each partner’s facility. This 

place-based flexibility allows the team to serve more customers—even those that may be 

especially difficult cases from a financing or project development perspective.
35

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.7.2 Considerations for Replication

For teams considering replicating Solar Holler’s model, interviewees provided some key 

considerations relating to utility and state policy, training program design, and business model 

structure. West Virginia is an emerging market, with relatively low-cost electricity that can make 

it difficult to deploy solar projects (Clouse 2017). Even so, the team’s success illustrates that 

there are some options to deploy solar, and interviewees highlighted Solar Holler’s growth to 

show that focusing in new markets can be fruitful. 

Though interviewees pointed to the training program as a component of the team’s success, 

interviewees also stressed the importance of designing training programs to match the growth of 

the market. Interviewees noted that training too many individuals may require those individuals 

to look for work outside of the target region, which may not be the favored outcome, particularly 

as local markets begin to expand. One option is to cross-train solar installers in energy efficiency 

measures to help fill gaps between solar projects (Clouse 2017). 

Identifying and sustaining funding for similar training programs can be challenging, as 

demonstrated by funding volatility concerns for workforce training (Margolis 2017). Finally, 

interviewees pointed to the flexibility and place-based focus of their business model as essential 

to their success. Fundraising was key for some of their projects, and interviewees noted that this 

has become easier as Solar Holler has built its brand in West Virginia as a place-driven company 

focused on reducing energy costs for West Virginians. 

Lastly, Solar Holler’s willingness to work with partners to find solutions that work for them has 

helped them build brand recognition in the community. Interviewees suggested that this placebased and flexible approach may be helpful for other teams to have similar success deploying PV 

projects in other emerging markets. 

5.8 Solar Synthesizers Meriden: Leveraging Low-Income Housing 

Tax Credits to Support PV Deployment 

Meriden Housing Authority (MHA) partnered 

with Advanced Energy Group (AEG) to form 

the Solar Synthesizers Meriden team located in 

Meriden, Connecticut. The team is focused on 

providing solar benefits to affordable housing 

providers and residents and has so far developed 

two community rooftop solar projects (229 kW) 

that provide energy bill savings to 110 

households. In 2018, the team added 1.19 MW 

of additional PV projects to its pipeline that will

serve 371 low-income households (AEG 2017).

This project team has sought several innovative 

financing options to support PV deployment on 

behalf of low-income residents in multi-family 

housing. The first projects relied on traditional 

PPA financing to support the installations that provided fewer direct benefits to LMI residents. 

Solar Synthesizers Meriden

Summary Profile

Target Market(s) LMI individuals and 

nonprofits

LMI Participants 110 households

Project(s) Size 1.75 MW*

Project Type Rooftop community solar

Business 

Model/Approach

LIHTC-supported solar 

financing

Location Meriden, Connecticut

Population 59,927

* 229 kW is already installed capacity.
36

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

The team’s ongoing projects leverage a variety of other more favorable financing approaches,

including Property Assessed Clean Energy (PACE), LIHTC, and state grant financing, among 

others.

This profile describes the team’s effort to secure LIHTC funds complemented by financing from 

other federal incentives, including the ITC and Modified Accelerated Cost Recovery System 

(MACRS), for a 440-kW roofing-integrated PV system serving 148 low-income households at 

Yale Acres.

27 The team submitted the new construction project in the Connecticut Housing 

Finance Authority’s annual competitive LIHTC solicitation. The state then awards the LIHTC 

allocations to projects based on a set of application criteria. If a project is selected, LIHTC can 

be used to offset up to 70% of qualified expenses over a 16-year period (Hefferren 2017). This

440-kW PV project was approved in the 2018 competitive LIHTC solicitation (see Figure 16). 

MHA is a nonprofit, and the project team secured a third party to monetize available federal tax 

incentives (ITC and MACRS) covering about 40% of the cost of the PV installation. These 

financing streams covered virtually all the expenses to deploy PV at the site, allowing the 

savings from the PV projects to be used to support low-income household energy bill reduction,

providing about $135 of bill savings per household in year one. Savings are expected to increase 

by about 3% per year over the 25-year life of the project, providing as much as $1,500 in savings 

by the end of the project.

Figure 16. Select Solar Synthesizers LIHTC-supported solar project model

 

27 For more information on this and other Solar Synthesizers Meriden projects, see:

https://aeggroup.wordpress.com/. 
37

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.8.1 Contributors to Success

Interviewees asserted that the team was able to succeed given its knowledge of affordable 

housing financing and compensation structures, favorable state policy, and the emergence of 

more cost-effective integrated solar and roofing products. 

Interviewees noted that the opportunity for affordable housing providers to deploy solar on 

behalf of low-income residents varies based on the myriad of different affordable housing 

structures. The team had the relevant expertise to understand the intricacies of affordable housing 

portfolios and was able to work with providers to find innovative financing approaches that met 

the different needs of the relevant facilities. 

The projects also benefitted from favorable renewable energy credits (RECs) offered by the State 

of Connecticut for solar projects (NREL 2018). These credits improved the economics of the 

projects, making them an easier sell to affordable housing providers. 

Finally, the team’s use of an integrated solar and roofing product was highlighted as a key reason 

that MHA’s solar project was approved in the competitive LIHTC solicitation.28 According to 

interviewees, this approval was based on the fact that the integrated solar roofing product was 

rated as a 100-year roof, thereby minimizing reroofing requirements over the life of the building. 

According to this interviewee, the fact that the roof also generates solar was an added benefit but 

not the driver of the state’s approval for its construction. 

5.8.2 Considerations for Replication

Replicating the success of the Solar Synthesizers team is possible for other affordable housing 

projects, but interviewees noted that replication will take time, strong knowledge of the 

intricacies of affordable housing types and financing, and possibly favorable state policy and 

decisions. 

The project team has had long-standing relationships with affordable housing providers and 

relevant state regulators and has been working with these entities for years to find innovative 

pathways to deploy solar on affordable housing. This long-term partnership has borne fruit in the 

form of deployed PV, but developing similar relationships with providers and regulators will 

take time in other locations. 

If providers are interested in deploying solar on behalf of residents, the project team will also 

need to accurately describe the best pathways for financing solar projects and how solar benefits 

might be distributed to housing providers and residents. 

Finally, the team benefitted from favorable state project incentives and, in at least one case, a 

competitive LIHTC award. Not all projects may have access to these incentives or win 

competitive LIHTC awards, influencing the economics of the project.

 

28 For more information on the building integrated product, see:https://aeggroup.wordpress.com/2018/09/12/aegcontinues-to-make-progress-with-solar-at-yale-acres/. 
38

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.9 Solarize Philly: Using Solarize Program Fees to Guarantee LMI 

Solar Leases

The Solarize Philly team, led by the 

Philadelphia Energy Authority, took the 

traditional solar group buy model and modified 

it to enable participation by LMI customers. The 

traditional “solarize” campaign bundles 

procurement of a rooftop solar system within a 

community, leading to economies of scale for 

developers and lower costs for purchasers (Cook 

and Bird 2018).

The Solarize Philly team used this model to 

lower solar costs and then adopted a small 

program fee to offset some of the savings to 

participating solarize customers (Jaramillo 2018; 

Paulos 2018c). This fee was then used to 

facilitate solar projects on LMI households by guaranteeing payments to the solar developer who 

loans systems to LMI residents (see Figure 17). As of July 2018, 3,665 individuals had signed up 

for a free solar assessment, and 232 solar contracts had been signed by participating Philadelphia 

residents (Rigell 2018; Maykuth 2017). These signed contracts generated $200,000 in LMIrelated fees. With that funding, the team expects to support an additional 45 LMI solar projects 

(Jaramillo 2018). Under the solar lease terms, LMI customers will save about 20% on their 

electricity bills, or about $240 per year. They are not required to put any money down, and the 

lease runs for 15 years, at which point the homeowner takes ownership of the system with a 

useful economic life of about 25 years (Rigell 2018).

Solarize Philly

Summary Profile

Target Market(s) LMI individuals

LMI Participants 45 households (expected)

Project Size 225 kW*

Project Type Rooftop solar 

Business 

Model/Approach

Solarize program fees to 

support LMI solar leases

Location Philadelphia, Pennsylvania

Population 1.581 million

* Assuming each LMI household installs 5 kW.
39

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Figure 17. Solarize Philly program structure

5.9.1 Contributors to Success

Interviewees concluded that the Philadelphia Energy Authority was poised for success because 

they had full-time staff, city support, relatively high electricity costs, and coordination with 

existing social service agencies.

Staff expertise and city support enabled a successful solarize campaign, generating significant 

signups and enough program fees to develop a non-payment guarantee program. City support 

may have been advantageous from a customer outreach perspective because residents could have 

placed more trust in the city government than a private sector company. 

Interviewees also noted that the city’s relatively high residential electricity costs averaging about 

14 ¢/kWh supported higher savings from participating solar customers. Because of this, 

participants in the solarize campaign were saving money on day one; this makes for a more 

compelling sales pitch and also enabled the Philadelphia Energy Authority to add a fee to the 

solar cost while still preserving savings for all solar customers. 

Lastly, interviewees noted that the program benefitted by being connected with the city’s social 

support centers, such as those implementing energy assistance programs. This helped identify 

potential LMI customers to participate in the program.
40

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

5.9.2 Considerations for Replication

Interviewees suggested that this successful model can be adopted in other markets relatively 

easily because there is no need to adjust legal or regulatory frameworks. It also does not need to 

rely on favorable incentive structures like high solar renewable energy credit markets. Even so,

interviewees noted that other solarize programs may face challenges with customer acquisition 

and projects costs. It remains difficult to find households that meet the criteria outlined in the 

program: they meet the income guidelines, own their home, have a roof less than 7 years old, and 

have not missed an electric bill payment (Jaramillo 2018). These challenges persist despite the 

team’s partnership with energy assistance programs, and others considering this approach may 

face similar challenges. Interest in the program may also be influenced by the value rooftop solar 

provides to market-rate and LMI customers. Having a solar market where non-LMI customers 

can save money can make it easier to add on a small program fee to support broader deployment. 

In addition, having a market where LMI customers can save money from day one makes it easier 

for program fees to be applied to a non-payment guarantee rather than buying down system costs

to support LMI adoption. This latter approach can ensure more LMI customers can participate in 

the program. 

5.10 Sun Shares (VEIC): Solar as an Employer-Offered Program

The Sun Shares Vermont Energy Investment 

Corporation (VEIC) (Sun Shares [VEIC]) team is 

located in Burlington, Vermont. In this innovative 

model, VEIC worked with its landlord to develop 

a 200-kW rooftop community solar project,

including a lease for the roof space (Buell 2017). 

VEIC serves as an anchor tenant for the project,

receiving 50% of the solar project’s output.

Employees then can subscribe to the other 50% of 

the output without individual employee credit 

checks or upfront payments. 

Employees that voluntarily sign up for the 

program receive 10% of the credit associated with 

their share of the project (typically 2 kW), and the 

remaining 90% of the credit goes back to VEIC to 

pay for the project (Harringer 2017). Employees 

receive the full utility bill credit and then VEIC recovers costs through a payroll deduction (Buell 

2017; Figure 18). According to interviewees, about 75% of eligible employees (i.e., reside in 

Burlington Gas & Electric’s service territory) participate in the program and receive about a 10% 

savings on their electric bill (Meehan 2017).

Sun Shares (VEIC)

Summary Profile

Target 

Market(s)

LMI households and 

nonprofits

LMI Participants 18% of participating 

employees qualify as LMI

Project Size 200 kW DC

Project Type Community solar

Business 

Model/Approach

Employer-offered solar 

program

Location Burlington, Vermont

Population 42,239

* Company does not collect income information on 

employee subscribers.
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Figure 18. Sun Shares (VEIC) program structure

5.10.1 Contributors to Success

Interviewees highlighted several key factors that helped ensure the success of this model,

including the involvement of an internal champion, corporate leadership support, a willing 

landlord, and a competitive, mature solar market.

Interviewees suggested that developing this project was a 2-year process that required significant 

internal and external negotiations with the property landowner. These negotiations took time, and 

interviewees posited that without an internal champion these discussions may not have been 

successful. 

In addition, interviewees noted that VEIC leadership provided the team some initial resources to 

pursue this approach, and this support was important for ensuring the project was implemented. 

Given VEIC does not own its facility, they were required to work with their landlord to deploy 

the project. The landlord was ultimately willing to work with the team to develop this project. 

Interviewees commented that this interest was driven largely by the landlord’s tangible benefits 
42

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from the project through monetizing tax incentives, lowering electricity costs, and receiving

rooftop lease payments. 

Finally, interviewees noted that the mature nature of Vermont’s solar market ensured they 

received competitive prices for solar projects that helped maximize the opportunity for employee 

bill savings.

5.10.2 Considerations for Replication

This successful project offers several considerations for replication relating to project approvals, 

building ownership structures, credit distribution, and state policy. The negotiation processes 

took about 2 years to complete, demonstrating the amount of time and related resources needed

from the company and the landlord to successfully complete this project. Subsequent projects

may be able to reduce these negotiation timelines but not eliminate them. Interviewees suggested 

that landlords and companies are risk averse, and this project’s success may make it easier for 

others to convince landlords and corporate leadership to adopt similar projects elsewhere. If the 

company owns its buildings, it can avoid negotiations with a landlord, thereby reducing a 

significant component of the negotiation process. This can also allow the company to retain more 

of the benefits from the solar installation, but determining how best to share those benefits, if at 

all, with employees is up to each individual company. Finally, this approach is predicated on the 

ability to seek virtual net metering so that credits can be allocated to employees that live off-site. 

Even in this arrangement, employees must reside within the same electric service territory, which 

may be problematic when employees live far from the facility and are served by another 

provider.
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6 Conclusions

DOE launched the SIYC Prize Challenge to facilitate new models to support solar in 

underrepresented markets, namely LMI households, nonprofits, and other community-serving 

entities. This report summarized some of the key challenges faced by teams in achieving the 

goals of the SIYC Prize Challenge. In addition, it provided profiles of 10 innovative teams with 

considerations for how those models may be successfully replicated elsewhere. We conclude 

with three key takeaways that may be valuable for other communities considering their own solar 

projects.

Develop a clear understanding of how federal, state, and local policy enable local solar 

projects. Nine of the ten teams profiled highlighted the important role that enabling policy 

played in shaping their project structure and financing. The availability of virtual net metering or 

community shared solar programs was a key factor in enabling 8 of the 10 profiled teams’ 

projects while the Solar ACCESS UpGrade Ohio team benefitted from state legislation allowing 

CCAs. Policy can also influence financing pathways. For example, the Duluth Community Solar 

Coalition highlighted the importance of the state’s crowdsource investment law. Additionally, 

the Boston Solar Access, FAC Solar, and Solar Synthesizers teams sought third parties to 

monetize federal tax incentives on behalf of ineligible clients. 

Future solar project teams will need to understand how federal, state, and local policies (e.g., 

interconnection, third-party ownership) influence the team’s target audience, project selection, 

and financing approaches. In emerging markets where the policy environment may not be clearly 

defined, teams may need to design projects on a case-by-case basis, as the Solar Holler did. After 

some of these projects are completed and policy uncertainties are resolved, the team may then be 

able to build a more replicable approach for the given market segment.

Build durable and long-term partnerships with community members and solar 

stakeholders. These partnerships can ensure that pilot projects are implemented and followed by 

second-generation projects for more widespread deployment. Each of the profiled teams 

developed long-term partnerships between some combination of project developers, investors, 

property owners, utilities, and community organizations, among others. In many cases, these 

partnerships took time to develop and were driven by committed individuals that played a pivotal 

role in identifying a target audience, addressing challenges, and securing approval to carry out 

the project from all relevant parties. Absent these champions, these pilot projects may never have 

been adopted, making it more difficult to offer blueprints for future projects.

In at least six of the projects, the teams had to secure buy-in or support from LMI household, 

nonprofit, and property owner partners to implement their projects. For example, Boston Solar 

Access, Kerrville Area Solar Partners, Power52 Foundation, and Sun Shares (VEIC) all secured 

large corporate or nonprofit anchor tenants to help reduce customer acquisition, financing, and 

siting costs. In the case of FAC Solar, Kerrville Area Solar Partners, and Solar Synthesizers, 

affordable housing providers were not only important partners in deploying the projects but also 

distributing benefits of the projects to relevant LMI households. This and other partnerships with 

community organizations can help project developers reduce customer acquisition costs given 

these groups’ access to residents and the higher level of trust between these entities and LMI 

households.
44

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

Develop a creative portfolio of financing solutions for small and medium sized solar 

projects. Each of the 10 teams used different finance and funding methods, but there were some 

similarities. Monetizing federal tax incentives was critical across most of these projects; some 

developers sought third-party tax equity investors to monetize the ITC (e.g., Boston Solar 

Access, FAC Solar, Kerrville Area Solar Partners, and Solar Synthesizers). Monetizing this

credit can finance as much as 30% of the project. If a team cannot monetize the ITC, it does not 

mean a project is not financially viable, as exemplified by the Solar Holler team. Teams also

used creative solutions including securing anchor tenants, crowdsource philanthropy, 

compensation from virtual or net metering, or compensation for other grid services (e.g., demand 

response and load reduction).

Each built stack was impacted by the partners included in the project, the policy landscape, and

the project structure. This environment required each team to be flexible and creative in the types 

of financing they secured. Although building a unique financing stack accounting for these 

variables can take time, the success of each team demonstrates the range of funding options that 

might be possible to implement. 

Overall, this report provides key insights from a variety of innovative projects that demonstrate 

that expanding solar access to underrepresented markets is feasible in a variety of markets. 

Interested communities may wish to use this report as a resource when considering projects and 

programs to achieve their own energy-related objectives. 
45

This report is available at no cost from the National Renewable Energy Laboratory (NREL) at www.nrel.gov/publications.

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