Pennsylvania needs more energy. Data centers are pushing demand skyward, utilities can’t build new capacity fast enough, and electric bills are on the rise. Medium-sized solar installations — smaller than utility-scale farms but larger than home rooftop arrays — could help ease the pressure.

But state lawmakers, utilities, regulators, and solar developers are tussling over the rules that govern such installations, and it’s unclear whether new legislation to resolve their disputes will be passed this year. That worries Victoria Stulgis, president of Black Bear Energy.

Last month, her company and its partners celebrated the energization of 4.9 megawatts of solar on the roofs of two warehouses owned by EQT Real Estate in Mountain Top, Pennsylvania. The two projects, developed by Sigma Renewables and Scale Microgrids and managed by Black Bear Energy, are among roughly 2,100mid-sized generation projects being planned in the state, most of them distributed solar.

What makes these projects possible is Pennsylvania’s Alternative Energy Portfolio Standards Act, a 2004 law allowing medium-sized projects that generate power with a range of technologies, from solar and wind to waste biomass and coal-bed methane, to earn a relatively high rate for the energy they feed to the grid.

After years of battling with utilities, solar developers won a 2021 decision from the Pennsylvania Supreme Court that laid the groundwork for a rapid expansion of mid-sized projects throughout the state.

But in the past few years, Pennsylvania utilities have cast a pall over that growth with a series of actions that could curtail the revenues these projects can earn, Stulgis said.

“Developers and institutional property owners have invested significant time and capital to develop these solar projects,” she said. Black Bear Energy has completed 15 megawatts of projects, has 22 more megawatts under construction, and has secured interconnection rights for another 106 megawatts across 34 projects, she said.

“Changing those rules midstream would undermine confidence and create real risk for projects already in development,” she said. ​“Some developers are still leaning in, believing there may be a viable path forward, while others are walking away from shovel-ready projects because of the uncertainty.”

Unlike neighboring states such as Maryland, New Jersey, and New York, Pennsylvania hasn’t adopted a program to enable community solar. Such projects are designed to provide enough revenue to spur third-party developers to build mid-sized solar arrays, to which utility customers can subscribe to lower their bills.

Instead, solar projects of up to 3 megawatts in Pennsylvania are compensated through net metering, a system that’s more commonly used with residential rooftop solar and other small-scale installations. The projects earn a close-to-retail rate for power they send to the grid, notably more than the wholesale rate that larger projects earn.

Solar developers argue that the existing rules allow businesses, school districts, public agencies, and farms to offset rapidly rising electricity costs by hosting solar projects. But utilities argue that paying close to retail rates for electricity from these arrays forces them to raise rates on the rest of their customer base — a version of the cost-shift argument that has dogged battles over rooftop solar net-metering programs over the past two decades.

The Pennsylvania Public Utilities Commission supports the utilities’ cost-shift argument. In March testimony before the state’s House Energy Committee, PUCChair Stephen DeFrank said that costs from distributed generation projects moving through the interconnection process are projected to exceed $90 million per year by 2027, and could reach $700 million per year if the more than 2,100 projects seeking to be built ​“proceed under existing rules.”

If utilities aren’t able to recover those costs, they’ll have to increase other rates, he said. Those increases will be ​“first borne by commercial and industrial customers, including small businesses operating on narrow margins,” he said.

The argument for adding solar to lower utility bills

Advocates of distributed solar are pushing back against this cost-shift argument. Rather than increasing everyone’s utility bills, distributed solar will lower utility costs at large, they say, by bringing much-needed new clean generation to a state facing increasing electricity costs driven by the data center boom.

Those are the findings of an April report by Aurora Energy Research commissioned by community-solar developer Dimension Energy. The report analyzed whether building 2 gigawatts of distributed solar by 2030, a number that’s in line with current market growth, would reduce demand for power across the low-voltage distribution grids they’re connected to.

Aurora found that additional solar power could generate a total savings of $1.7billion over the next 20 years, compared with a scenario under which it wasn’t built. Utilities would still need to pay those projects about $780 million over that time. But that would leave just under $1 billion in net savings that could be applied toward lowering utility customers’ energy bills.

“There are multiple mechanisms by which distributed solar can reduce costs,” said Zachary Edelen, a senior associate at Aurora.

For example, there is the roughly $1.2 billion over 20 years that Pennsylvania utilities could save in decreasing ​“capacity procurement obligations,” the costs they pay for resources to keep the grid running when demand for electricity peaks, he said. That change could make a substantial difference in Pennsylvania, which is part of PJM Interconnection, the grid operator serving 13 states and Washington, D.C.

PJM’s skyrocketing capacity costs have been a major factor in pushing up utility rates between 12% and 26% for customers of the state’s major utilities from December 2024 to December 2025. That has driven politicians including Pennsylvania Gov. Josh Shapiro (D) to demand reforms from both PJM and the state’s utilities.