Authors: Samuel N Nimaful, Joel Holison, Gloria O. Darkoh, Augustine Hanyabui, Faith Esther Holison, Laureta Tatenda Nyamsutswa
Abstract: Community solar – shared solar projects that deliver benefits to multiple customers – holds promise for improving energy equity among low-income (LMI) households. These programs can enable renters and multifamily residents (often excluded from rooftop solar) to access solar benefits, potentially reducing energy burdens. Federal and state experts note that well-designed community solar “supports equitable access to renewable energy” by extending savings to underserved groups (U.S. Dept. of Energy, 2023). However, evidence is mixed: community solar subscribers tend to have lower incomes than rooftop adopters (about 23% lower on average) and are far more likely to be renters or live in multifamily housing (4–6 times higher) (O’Shaughnessy et al., 2024). Yet, many programs see only a small fraction of LMI households participating, and benefits have been modest (e.g. ~$40–60/month in bill savings per LMI subscriber). Barriers include upfront costs, complex enrollment, and billing issues. Successful policies combine subsidies and incentives (tax credits, rebates), financing tools (on-bill financing, green banks), and supportive rules (income verification alternatives, bill protections) to lower barriers. Case studies (e.g. Minnesota, Illinois, New York, New Jersey) show that targeted carve-outs and outreach increase LMI uptake, but vigilance is needed to prevent cost-shifting to non-participants. We synthesize quantitative and qualitative findings, showing that community solar can improve equity if program design is intentional. We offer policy recommendations (e.g. simplified eligibility, consolidated billing, strong LMI set-asides) and identify research gaps (e.g. long-term outcomes, distributional modeling).
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