Solar parks on agricultural land – more complex than “food or energy”

The study analyses the factors that in practice determine where solar parks are developed – including legislation, grid capacity, local values and land conditions.

Large-scale solar development in Sweden is growing rapidly, particularly in the south where electricity demand is high. At the same time, many projects face opposition. In public debate, solar parks are often described as a threat to food production, since they are frequently planned on agricultural land. 

– Describing this as “food or energy” is misleading. We need both food and climate-friendly energy for a functioning modern society. Planning solar parks requires broader trade-offs, where multiple interests must be considered, says Oskar Belzons Berthelemot, doctoral student at the Division of Physical Resource Theory and one of the researchers behind the study.

The study, Fields for food or electricity: revisiting spatial analysis to evaluate land-use priorities for solar siting in Swedish agricultural landscapes, illustrates how these factors interact in practice.

– The title connects to the ongoing discussion about how agricultural land is used to meet different societal goals. It also reflects how the debate is often framed today – as either/or – rather than focusing on how different actors can work together to find solutions, he says. So far, many projects have targeted agricultural land. According to the researchers, there are several practical reasons.

– The location and design of solar parks are largely determined by proximity to the electricity grid, which reduces connection costs, and access to large open areas with few landowners. This often makes agricultural land attractive, says Jimmy Ehnberg, at the Division of Electric Power Engineering at Chalmers and co-author of the study.

For landowners, the decision often comes down to weighing stable income from energy production against long-term agricultural use.

– At the same time, developers are increasingly looking at forest land, partly due to opposition to projects on agricultural land. Project applications have also been rejected because agricultural land is considered a national interest that should be protected. Another factor may be that natural and cultural values, as well as local preferences, are not always fully taken into account, says Oskar Belzons Berthelemot.

Different decisions across Sweden

Media reports, including from SVT, have highlighted that County Administrative Boards make different assessments of solar parks on agricultural land in different parts of Sweden. According to the researchers, this may partly reflect ambiguities in legislation. The County Administrative Boards play a key role in determining which societal interests take precedence. Since conditions vary regionally, so may the assessments.

– It is not unreasonable that decisions differ, as regional conditions must be taken into account, says Oskar Belzons Berthelemot.

– At the same time, clearer national frameworks and better coordination between authorities could help ensure that differences in decisions reflect real regional differences rather than variations in administrative practice.

Solar parks can be adapted to local conditions

One frequently discussed option is to combine solar panels with agriculture or grazing on the same land – known as agrivoltaics. 

– We have included such solutions in our analysis, and they are interesting. However, more knowledge is needed about crop yields and electricity output. It is also important to ensure that long-term soil fertility is not negatively affected, for example by water erosion, says Oskar Belzons Berthelemot.

Another option highlighted in the study is combining solar parks with the rewetting of organic agricultural soils, such as peatlands. These make up a small share of agricultural land but account for a significant proportion of greenhouse gas emissions from agriculture. If rewetting is combined with solar energy production, it could help landowners offset lost income when agricultural production stops.

– The debate around new solutions is often polarised. Some present agrivoltaics as a universal solution, while others are more sceptical. As knowledge increases, the discussion will hopefully become more nuanced, he says.

Clearer rules and transparent processes can reduce conflicts

– Conflicts around solar park development ultimately come down to which values and needs are prioritised. Trade-offs are unavoidable, but clearer regulations and greater transparency could help reduce conflict and guide development in a more balanced direction, says Oskar Belzons Berthelemot. 

– Transparency and predictability are key. Uncertainty around grid capacity and permitting leads many developers to apply for multiple projects in parallel, hoping that one will succeed. This increases the workload for authorities and can create additional conflict, as more people are affected by proposed developments in their local area, says Jimmy Ehnberg.

A recent government report highlights the need for clearer guidance, stronger coordination between authorities and better planning data. At the same time, challenges remain in balancing competing interests. Landowners, municipalities, authorities and energy companies all play different roles, making early dialogue and clear rules particularly important.