DALTON, Ga. — Growing up in Cartersville, Georgia, Lisa Nash saw what happens to communities when factory jobs disappear. It was the 1980s and corporations were offshoring production to reduce costs and raise profits. The jobs that remained in this northwest corner of the state were typically lower-paying ones that didn’t offer the same ladder to the middle class.

“My parents and grandparents were in manufacturing, and they were the ones saying, ​‘Don’t do it,’” Nash recalled.

Nash disregarded their advice, embarking instead on a long career in manufacturing — first in textiles, followed by stints in aviation, automotive, and steel. Now she’s helping to bring higher-tech, higher-paying factory work back to the corridor between Atlanta and Chattanooga. 

Nash is the general manager of the Qcells solar panel factory in Dalton, a town of 34,000 located 50 miles up I-75 from her hometown. It opened in January 2019, after the Trump administration imposed a fresh round of tariffs on Chinese-made panels. The Korean conglomerate Hanwha owns Qcells, and initially planned to hire several hundred people at the site, Nash told me on a recent visit to the factory. By the end of 2019, it employed more than 800. 

Then, in 2020, Georgia helped elect President Joe Biden and sent two Democrats to the Senate, clinching a thin majority. Senators Jon Ossoff and Raphael Warnock got to work crafting detailed policies to promote domestic manufacturing of clean energy technologies, which China had dominated for years; they wanted solar panels and batteries made in America — specifically Georgia — instead of in China, a geopolitical rival.

Those measures made it into the Inflation Reduction Act, which passed in August 2022 — two years ago this week. The legislation created the nation’s first comprehensive policies to support domestic clean energy manufacturing. Qcells broke ground on a second facility in Dalton in February 2023. Completed that August, the expansion added two football fields’ worth of manufacturing space with four new production lines — which produce 1.5 times more solar panels than the original three lines, thanks to technological advances. Now the whole complex employs 2,000 people full time and makes 5.1 gigawatts of solar panels a year, more than any other site in the U.S.

Politicians have been promising for decades to retrain American workers and revive long-lost manufacturing, with little to show for it. Now, though, the U.S. has entered a new era on trade: Leaders of both parties have rejected the long-standing free-trade consensus and its penchant for offshoring jobs. Biden married that reshoring impulse with a desire to boost clean energy production, to both stimulate the economy and fight climate change. 

This grand experiment remains in its infancy, and the success of the clean energy manufacturing revolution is by no means guaranteed. Cheap imports could outcompete even newly subsidized American products. 

And if Republicans win the presidency and retake Congress, they’ve threatened to stop subsidizing low-carbon energy resources and instead double down on fossil fuel production. House Republicans — including Dalton’s representative, Marjorie Taylor Greene — have voted repeatedly and unsuccessfully to repeal the domestic manufacturing incentives in the IRA. (Greene’s press office did not respond to multiple requests for comment.)

“Donald Trump and his Republican allies promised to gut the Inflation Reduction Act if he’s reelected, so there’s a lot at stake here,” Representative Nikema Williams, who leads the Georgia Democrats, told me.

Since the IRA passed, Georgia has received $23 billion in clean energy factory investment, much of it flowing to northwest Georgia. I wanted to see what impact this is having on communities formerly hit hard by industrial decline, so I followed the money trail to Dalton earlier this summer. 

I found a population that seems to like having advanced solar manufacturing in their backyard. Dalton’s solar jobs are boosting wages, invigorating the historic town center, and employing local high school graduates. Those benefits are starting to spread to nearby communities, where new solar factories are springing to life. In November, voters will weigh two very different visions of America’s energy future on the ballot, but Dalton is already reaping the rewards from slotting solar into its storied history of industrial production.

From carpets to solar

Both CSX and Norfolk Southern run Class I rail lines through Dalton, a testament to its industrial legacy, and freight trains bellow day and night.

That legacy harks back to 1900, according to local historians, when Catherine Evans Whitener sold a hand-tufted bedspread from her front porch for $2.50. The cottage industry took off in this land of forested ridges and stream-crossed valleys, and over time, local factories consolidated into global carpeting giants Shaw Industries and Mohawk Industries.

“The carpet industry was born here,” Carl Campbell, executive director of economic development at the Greater Dalton Chamber of Commerce, told me when I visited the Chamber. The New Georgia Encyclopedia states that 80 percent of America’s tufted carpet production happens within 100 miles of Dalton.

The conference room where we spoke sported large-format aerial photographs of the major factories nearby: the largest Shaw site, 650,000 square feet; and the new Engineered Floors colossus, 2.8 million square feet. 

“You feel like there’s enough carpet in that building to cover the whole world,” said Campbell, who grew up in Dalton. 

Dalton employment numbers peaked at 80,200 in 2006, per the Chattanooga Times Free Press. But the Great Recession crushed the homebuilding industry, cratering demand for Dalton’s carpeting products. 

Dalton ​“was a ghost town in 2011, nothing going on because everybody was hurting,” Campbell added. From June 2011 to June 2012, Dalton notched the dubious distinction of most jobs lost of all 372 metro areas surveyed by the Bureau of Labor Statistics. By that point, one-quarter of Dalton’s pre-recession jobs had vanished, and unemployment surged to 12.3 percent. 

Since then, the industry has recovered somewhat. Engineered Floors, Mohawk, and Shaw still dominate local employment, with some 14,000 jobs among them, Campbell said. Those companies have had to adapt to evolving consumer tastes, shifting from wall-to-wall carpets to hardwood and other flooring materials. They’ve also automated aspects of production, reducing the number of workers needed.

In the wake of the Great Recession, local leaders sought to diversify Dalton’s industry. The county acquired an undeveloped lot south of town, and Campbell later pushed to clear and level the site, so it was shovel-ready for some future tenant. When Trump’s solar tariffs kicked in, Campbell’s counterparts at Georgia’s Department of Economic Development sent Qcells his way. 

Qcells showed up in February 2018, looking to spin up its first American solar-panel factory in less than a year. ​“Suddenly, we had exactly what they needed,” Campbell said.

Thus Dalton managed to bring in new industry to balance out its base of carpets and flooring. Qcells originally promised to invest $130 million and hire 525 people within five years, Campbell said. 

“They did it in three months,” he added. ​“In terms of an economic development project, they check all the boxes: Everything they said they would do, they did it faster than they said they would do it.”

Domestic solar manufacturing, by humans and robots

When I asked folks around town what they thought of Qcells, they kept mentioning the dozens of air-conditioning units arrayed on the factory roof, like a field of doghouses, easily visible from I-75. I later learned that Qcells brought in helicopters to install those units, which made for a bit of small-town spectacle. Still, it struck me as a surprising detail to dwell on for a business that somehow turns the sun’s rays into cheap, emissions-free electricity. 

Once I crossed Qcells’ sizzling parking lot and stepped indoors, it started to make sense. Georgia gets hot, and carpet factories get hot, but the vast floors of the twin solar factories are quite literally cool places to work. 

The climate control is not unique to assembling solar panels, but it is required for the sensitive, precisely calibrated product. The air conditioners are but one sign that high-tech manufacturing has arrived, and that it makes for pretty comfortable work.

I met my two tour guides, Wayne Lock and Alan Rodriguez, in the factory lobby, and they quickly confirmed the physical appeal of Qcells jobs. Lock, now a quality engineer at Qcells, previously worked in carpet manufacturing; he had to wear special heat-resistant gear to handle carpeting materials that would otherwise deliver third-degree burns. Rodriguez, an engineering supervisor at Qcells, used to apply the coating material underneath carpets.

“You’re sandwiched between the steamer and the oven, so it gets quite hot,” Rodriguez told me. Attending to those machines exposed him to temperatures that could exceed 100 degrees Fahrenheit.

Even more than Qcells’ air conditioning, though, people I spoke to kept bringing up the pay.

By offering more for zero-skill, entry-level positions than the other factories in town, Qcells started attracting workers and pushed up wages across Dalton, Campbell said: ​“Competition brings everybody, so everybody’s had to kind of equalize to keep employees.” 

Now Qcells hourly wages for non-experienced hires start at $17.50 to $22 — that amounts to $36,400 to $45,760 a year for full-time work. Workers with experience in robotics and manufacturing can take home much more than that. Employees can raise their pay through a variety of on-the-job training, most of which involves handling and troubleshooting the in-house fleet of robots.

Lock, Rodriguez, and I walked into the newest factory, past meeting rooms with names like Naboo and Mandalore, Star Wars locales where quirky robots coexist with all manner of creatures. As we strolled across the floor, squat wheeled autonomous vehicles rolled past us down pathways marked by tape on the smooth floor, ferrying bales of materials or hauling out hulking boxes of finished panels.

“We try to stay out of their way, and if we don’t, they yell at us,” said Lock. ​“It’s fun.”

As we stood talking, I noticed that one such robo-buggy was waiting for us to move. Barely discernible over the background drone of machines, a female voice intoned, ​“Robot is moving. Please look out.” When humans hold up more time-sensitive deliveries, Lock explained, the voice switches to male and gets louder. 

Other robots remain fixed in place, carrying out repetitive precision tasks. I stared, mesmerized, at one machine that split wafer-thin silicon cells in half, first scoring them with a laser, then slicing them with a concentrated jet of water. A taller machine grabbed nearly 8-foot metal frames and sliced them through the air like a master swordsman in a Kurosawa film, to slot them around glassed-in silicon panels. 

Throughout the process, cameras scan cells and use artificial intelligence to shunt defective items off the line for manual correction. 

In the 2019-era factory next door, humans carry out many of these tasks. Lock, though, didn’t see the robots as competitors — he said they were taking on more physically demanding jobs so the humans could step into higher-skilled roles tending to robots.

“The ergonomics are better for you,” he said, and the new lines are more productive. 

Hiring local, spending local

When Qcells was first staffing up, it relied on Quick Start, a Georgia state program that funds worker training for new factories before they open — a major draw for executives deciding where to locate their factories.

Qcells still recruits to meet ongoing staffing needs, and it has been paying special attention to high schoolers who are graduating and looking for employment. Nash speaks passionately about Qcells’ recruitment efforts; she’s seen the civic fallout from decades when local families encouraged kids to avoid manufacturing.

“Small communities cannot thrive with kids graduating and leaving those communities to live elsewhere, to get high-paying technical jobs,” Nash said. ​“That’s what’s happening across the country. Bringing manufacturing back, and bringing highly automated manufacturing, is offering job opportunities where now these students are staying here.”

Some 56 percent of Dalton-area students enroll in postsecondary education within 16 months of graduating high school, said Stephani Womack, director of education and workforce development for the Greater Dalton Chamber of Commerce. For the remainder, the chamber wants to make sure family-supporting jobs are available.

For two weeks in June, Womack helped run Project Purpose, a crash course in how to start and navigate careers that pay living wages. Recent high school graduates prepped for interviews, shopped for professional clothes, and toured housing options and downtown hotspots — the kinds of places they could frequent once they join the workforce. 

But the centerpiece of the program amounted to professional speed dating, as Dalton’s major employers offered tours and entry-level jobs. Last year, Dalton’s first time running Project Purpose, seven young adults completed the program, and Qcells hired one of them. This time, 18 finished, and Qcells hired 12 of them to start on July 1.

“Next year, we hope to double that, or more,” Nash said. 

Several participants came in knowing about Qcells, betting that the intensive crash course would increase their odds of landing good roles there, Womack told me over a table at Garmony House, a downtown coffee shop that draws lines for its statuesque strawberry cupcakes and coffee-glazed cinnamon rolls.

“Qcells is providing a diverse set of options for our students who need to go to work but want to stay in our community,” Womack said. ​“They see a climate-controlled facility with entry-level opportunities — that’s exciting for them. … Manufacturing isn’t what it used to be.”

For younger people to stay in town and build a life, Dalton needs more housing, and now it’s getting its first large apartment complex in over two decades, Campbell said. In total, 900 apartment units are slated to come online from last August through this November — not enough to catch up on a long-running housing deficit, but a step in the right direction.

That renewed real estate activity is reflected in downtown Dalton’s bustling core. 

Locals pack the booths at the Oakwood Cafe, perhaps the only place in America that sells a platter of egg, sausage, toast, and grits for just $3.65. Multiple microbreweries beckon, as does a plush cocktail bar, the Gallant Goat, which stocks fresh mint by the fistful to garnish its drinks. Down the road, diners can sample ceviche of shrimp shipped in from coastal Mexico, succulent chicken wings, and high-end Southern cuisine. 

This spring, the plush Carpentry Hotel opened across from the Oakwood Cafe, decked out with vibrant textile art to commemorate the town’s carpeting heritage.

“That’s been big for us, getting that hotel in downtown. That’s indicative of a robust local economy that people are coming to participate in,” local real estate agent Beau Patton told me as the late afternoon sun streamed into the Gallant Goat. Patton works with Qcells employees who want to buy homes in the area. He sees the factory’s decision to locate there as ​“very mutually beneficial” for Qcells and Whitfield County: ​“What you hope is Whitfield County grows with it, and it grows with Whitfield County.” 

From Dalton to towns across Georgia

Dalton got in early on the national clean-energy factory revival, and has already seen its solar factory push up wages, enable high school graduates to stay and start careers, and inject money into a reinvigorated downtown. Many more communities in Georgia are following close behind with their own cleantech factories, seeking a similar economic jolt.

“There is a palpable and intense sense of excitement across the state about how these manufacturing and infrastructure policies are supercharging Georgia’s economic development,” said Senator Jon Ossoff, the Georgia Democrat who authored the IRA manufacturing incentives that Qcells is tapping into. ​“And I would add, it’s not just the primary industrial facilities; it’s all of the secondary and tertiary suppliers and vendors and service companies and the financial services firms needed to support them.”

Qcells is building an even bigger factory compound down in Cartersville, which won a conditional $1.45 billion loan guarantee from the Department of Energy on August 8. This facility will take advantage of Inflation Reduction Act tax credits to onshore more steps of the solar supply chain: slicing silicon wafers, carving them into solar cells, and assembling finished modules with even newer robots than the ones I saw in Dalton. Until now, those high-value precursors to solar panels were shipped in from overseas. Workers in Dalton complete just the last step: assembling modules. Cartersville promises to bring the dream of American-made solar a bit closer to reality.

To achieve that dream, the industry has a few other challenges to confront. For one, 97 percent of the glass that encloses solar panels comes from China. Besides the geopolitical implications of that dependence, glass is so fragile and heavy that its shipping costs make domestic production enticing both economically and environmentally. 

“We need domestic glass to have an efficient supply chain,” said Suvi Sharma, founder and CEO of solar recycling startup Solarcycle. His company is breaking ground on a combination solar-panel recycling facility and solar-glass factory in Cedartown, some 70 miles southwest of Dalton. Sharma expects to invest $344 million in the community and hire 600 full-time employees.

Compared with Dalton and Cartersville, ​“Cedartown is more off the beaten path — this would be the first large-scale factory going up there,” said Sharma. After years in which the population declined and young people looked elsewhere for jobs, ​“this enables them to keep people and bring in more people. There’s a cascading impact.”

Solarcycle will use its rail spur to ship in low-iron silica from a mine in Georgia, plus soda ash and limestone. Over time, it will supplement those raw ingredients with increasing amounts of glass the company will pull from decommissioned solar panels, including those made by Qcells. The goal is to produce enough glass for 5 gigawatts of panels per year; Solarcycle will ship the glass to nearby customers. At that point, workers in northwest Georgia will have a hand in all the major steps of solar-module production except the processing of raw polysilicon. Hanwha recently became the largest shareholder in REC Silicon to secure access to domestic polysilicon from the Pacific Northwest. 

Georgia also nabbed a hefty chunk of the electric-vehicle factory buildout catalyzed by IRA incentives. Hyundai is dropping nearly $1 billion on its ​“Metaplant” near the deepwater port of Savannah and building an adjacent $4.3 billion battery plant with LG. Kia erected a new EV9 SUV manufacturing line at its plant in West Point, about halfway down Georgia’s border with Alabama. The first EV9 rolled off the line in June — less than two years after the IRA was signed into law.

Dalton, then, is a leading indicator of the industrial invigoration that clean energy factories are bringing to cities and towns across Georgia. People broadly appreciate it — if not for the role in combating climate change or countering China’s industrial might, then for high starting wages, comfortable working conditions, and opportunities for advancement. 

But for this nascent factory boom to endure, the policies that triggered it need to stay in effect. The people of Georgia played a decisive role in spurring this manufacturing revival; this November, they’ll have an outsize role in deciding if it continues.

How Dalton, Georgia, went from Carpet Capital to Solartown, USA is an article from Energy News Network, a nonprofit news service covering the clean energy transition. If you would like to support us please make a donation.

North Carolina regulators have approved a controversial green tariff proposal from Duke Energy, rejecting protests from critics who argue it won’t bolster the company’s transition to zero-carbon electricity. 

Originally designed as a way for large electric customers to chip in extra for renewable energy projects Duke is already mandated to build, an amended tariff offered in April could allow some customers to speed up construction of new solar farms by about two years.

The revision appeared to help sway the Utilities Commission. The change, the panel said in its Jul. 31 order, is an “improvement” because the change “adds additional accelerated capacity” of renewable energy. 

The revised tariff, called Green Source Advantage Choice, has backing from the Carolina Industrial Group for Fair Utility Rates, an association of some of Duke’s largest customers. The utility says it plans to formalize the program soon in the wake of the regulators’ order. 

“The [commission] didn’t give us a deadline but asked that we do so when reasonably feasible,” spokesperson Logan Stewart said over email, “so it will be in the coming weeks. In conjunction, we will be working on updating the Green Source Advantage public webpage to include the new program details.” 

A question of ‘regulatory surplus’ 

For large customers with 100% clean energy commitments, a green tariff is a necessity in North Carolina, where Duke has a monopoly and cities, data centers and the like can’t buy clean energy directly from solar farms.  

In theory, a green tariff allows a company such as Google or Amazon to spur a new supply of clean energy equal to their electric demand, with Duke acting as an administrative go-between. An earlier iteration of Green Source Advantage more or less did just that. 

But the accounting got more complicated in 2021, when a bipartisan state law required Duke to cut its carbon pollution at least 95% by 2050. If the company is legally required to build scores of solar farms anyway, can a large customer legitimately claim its sponsorship of one project makes a difference? 

This question of “regulatory surplus” sparked a flurry of arguments and counter-arguments before the commission for some 18 months. Duke initially claimed such “additionality” was neither feasible nor necessary, and some businesses said chipping in to support the clean energy transition was good enough for them. More than a dozen local chambers of commerce and potential customers wrote regulators in support of the original program.  

But Google, the U.S. Department of Defense, and other large customers joined clean energy advocates to flag the problem of regulatory surplus, as did the Center for Resource Solutions, the nonprofit that certifies voluntary renewable energy purchase programs. Duke University, which has no connection to the utility, said it wouldn’t participate in the tariff.  

‘A small step in the right direction’ 

The debate, along with prodding from commissioners, prompted Duke to add a “resource acceleration option” to its proposal. The alternative allows large customers to advance about 150 megawatts of solar energy each year by sponsoring projects not selected in the company’s annual competitive bidding process. Every two years, Duke gets retroactive credit for this “extra” solar as part of its compliance with the 2021 law.

Clean energy advocates believe the new option is a “small step in the right direction.” But they note it accounts for 1 gigawatt of clean energy over ten years, a fifth of the entire program. Customers who lay claim to the remaining 4 gigawatts would not be impacting the state’s transition to clean electricity, they say. 

“If you’re the customer of a business who claims to support our state’s clean energy transition by participating in the program, you’re going to expect that business to be making a difference – not just subsidizing what Duke was going to do anyway,” said Nick Jimenez, senior attorney at the Southern Environmental Law Center. 

The Carolinas Clean Energy Business Alliance, a group of clean energy suppliers, also criticized the acceleration option. And though the Carolina Utility Customers Association, another group of large industrial customers, didn’t oppose the amended proposed tariff, it registered skepticism. 

“[Our] members have little interest in the Resource Acceleration Option,” the group said in a letter to regulators, “which would deliver electricity at a premium cost without providing the benefit of regulatory surplus-based environmental attributes that would be useful in meeting corporate environmental, social, and governance goals.” 

Cause for hope? 

While advocates see little good in the commission’s approval of the Green Source Advantage Choice program, they still have some faint cause for hope. 

One is the so-called Clean Transition Tariff, which Duke could propose later this year. An outgrowth of a May agreement between the utility and Amazon, Google, Microsoft, and Nucor, that program could allow participating customers to spur new projects, such as solar-battery storage combos or small nuclear energy, that provide carbon-free electricity around the clock. 

“This is not within the order,” said Jimenez, but the May memorandum of understanding, “is the big opportunity for something better.” 

Duke says the Clean Transition Tariff would be another voluntary option for customers, not a replacement for the one just greenlighted. “We see the approval of Green Source Advantage Choice as a first step,” the company’s Stewart said, “enabling us to move forward with new tariffs like the Clean Transition Tariff.” 

Maggie Shober, research director at the Southern Alliance for Clean Energy, agrees the memorandum of understanding is cause for some optimism. But she also notes that it’s only “an agreement to talk about something. It could be an opportunity,” she said, “or it could be a missed opportunity. “ 

And no matter what, the Clean Transition Tariff won’t cater to municipalities and other midsize customers with climate commitments. If these customers decline to pursue Green Source Advantage Choice, their only option is to wait for Duke to adjust.  

Commissioner Jeff Hughes pointed to that possibility in a concurring opinion. 

“Once the program offerings are launched, it will quickly become clear whether the program is as attractive as Duke asserts,” Hughes wrote. “If concerns continue and interest is modest from the outset, it is my hope that Duke will work quickly on new programs that will have a greater impact.”

N.C. regulators approve controversial Duke Energy plan that lets large customers chip in for solar projects is an article from Energy News Network, a nonprofit news service covering the clean energy transition. If you would like to support us please make a donation.

Before pivotal hearings that begin Monday, Duke Energy has made a few small concessions to its plans for a giant fossil fuel buildout in North Carolina, winning over the once-skeptical state-sanctioned ratepayer advocate.

Duke’s proposed settlement with Public Staff and Walmart needs approval from the state’s Utilities Commission to take effect. It comes as dozens of experts plan to appear before the panel to debate the company’s biennial carbon plan, including its controversial bid to invest in 9 new gigawatts of natural gas plants and punt on a key state climate deadline.

The agreement still shows Duke determined to construct five large combined-cycle gas plants in the coming decade, but only three would get a preliminary blessing for now. Public Staff earlier had wanted only one such plant to be considered “reasonable for planning purposes.”

While state law requires Duke to cut its carbon emissions 70% by 2030, in line with scientists’ recommendations for avoiding catastrophic global warming, the agreement stipulates that a pollution cut of that magnitude by decade’s end is “unachievable and presents unacceptable risks to the reliability of the grid.” 

Duke also agrees to study the $250 billion Energy Infrastructure Reinvestment Program it had earlier eschewed, though the settlement’s wording seems to reject what experts say is the program’s best use: financing up to 80% of new clean energy projects and remaining debt on retiring coal units with government loans. 

Apart from a few other changes around the edges, the settlement is aligned with the plan Duke filed in January. And while the deal means the utility and Public Staff won’t spend time debating each other next week in Raleigh, clean energy groups and other intervenors still have plenty to litigate.

‘A risk of stranded investments?’

Perhaps most notable, critics say the January blueprint, combined with Duke’s spirited defense of it in hundreds of pages of testimony filed July 1, runs headlong into a new federal rule on coal and gas plants finalized in April.

In effect, the rule forces any new large gas plants to run no more than 40% of the time beginning in 2032. Public Staff, the office of the Attorney General and clean energy groups had urged Duke to reconsider its plan in light of the new regulation, perhaps by replacing some or all of the planned gas with renewables or rolling out new initiatives to reduce electric demand.

Duke is suing to try to overturn the new rule, which is now final. But the company avowed that if the regulation remains, its only option was still to build five new, combined-cycle turbines, even if they only ran at half their potential capacity. 

Having placed manual constraints on renewables and battery storage in its computer forecasting program, Duke said in its testimony, “the model is not able to shift this ‘lost’ gas generation to renewable resources.” 

Instead, the company asserted it would have to generate more power from its existing gas and coal plants, causing 4 more million tons of carbon pollution in the year 2035, a “likely delay” in 70% pollution cuts to 2036 or later, “and an increase in the total system cost of more than $600 million.”

In its July 1 filing, Duke also brushed aside doubt from Public Staff and clean energy groups that its new gas plants could ultimately run on emissions-free hydrogen fuel, which is not yet commercially viable and many experts say may never be practical.

“Several parties incorrectly assume that the addition of new gas resources will subject customers to the risk of stranded investments,” the company wrote in its testimony, “but fail to consider the critical value of these resources over the planning horizon and lack detailed analysis regarding how such a risk would actually materialize three decades from now.”

‘A desperate attempt’

The question of timing also still looms large. Though approval of the settlement would foreclose a 2030 compliance date, clean energy advocates still hold out hope that Duke will make deep pollution cuts consistent with climate science and not delay them until late in the next decade.

In fact, the North Carolina Sustainable Energy Association and three groups represented by the Southern Environmental Law Center were so dismayed by Duke’s July 1 testimony that last week they moved for regulators to declare that they wouldn’t approve a plan that violated state or federal law, before the meat of next week’s expert witness hearings begin.

That provoked a blistering countermotion from Duke. The groups, said the utility, “were inexcusably dilatory in filing their motion, and their desperate attempt to introduce legal and procedural complexity into this proceeding at the 11th hour should be stricken.”

The commission denied both motions.

Before key hearings in North Carolina, Duke Energy makes tiny concessions to big gas ambitions is an article from Energy News Network, a nonprofit news service covering the clean energy transition. If you would like to support us please make a donation.

Duke Energy has been laying the groundwork for a new gas power plant in North Carolina’s Person County for years, touting it as the “next generation” of electricity production and lining up support from local politicians eager to hold on to the utility’s tax dollars. 

With acknowledgement from regulators and even some clean energy experts that new gas infrastructure may be needed as Duke shutters its coal fleet, the long-planned gas turbines once seemed like an inevitability.

But now, the 1,360 megawatt combined-cycle facility poised to replace the company’s aging coal smokestacks on Hyco Lake has become a major point of contention. And while the odds still favor Duke, community members and advocates alike say they have cause for hope.

First, there’s the reality of new Biden administration rules on fossil fuel power plants. Beginning in 2032, any new large, combined-cycle plant like that proposed in Person County must either cut its carbon emissions drastically or run 40% of the time or less. 

Because North Carolina’s geology isn’t suited to carbon sequestration and emissions-free hydrogen fuel isn’t yet viable, the company would have to limit the plant’s operations — either making it unavailable at key times or requiring costly startups and shutdowns, said Ridge Graham, the North Carolina program manager for Appalachian Voices.

“Either of these options make this combined cycle plant a bad investment and a much more expensive form of electricity generation than clean or renewable energy sources,” Graham told commissioners at a public hearing in Roxboro last month. “This is especially true for Duke customers as the purchase of gas fuel is passed on and has led to multiple rate increases through riders on electricity bills since 2017.”

Bolstering that concern, Public Staff, the state’s ratepayer advocate, notes that Duke lists a proposed new pipeline to transport gas to the plant as an operating cost that would “presumably” be recovered through the fuel rider.

Even if the actual fuel costs were cut in half, engineers for the agency said, “total transportation charges would mostly be unchanged within the ‘Fuel’ category because of the significant pipeline costs that would be necessary to provide natural gas service to the Roxboro site.”

In addition to these charges, ratepayers would also have to pay the full cost of the plant, amortized over 35 years, plus Duke’s regulator-approved profit margin, energy analyst Elizabeth Stanton said in written testimony on behalf of Sierra Club, Southern Alliance for Clean Energy, and the Natural Resources Defense Council.  

What’s more, she noted, ratepayers would cover whatever “replacement resources” were needed to meet demand “after the facility’s expected generation was decreased.”

In contrast, Stanton says, Duke’s estimated costs for ratepayers assume the plant will run at over 40% capacity through 2042 — a scenario squarely at odds with the new Biden administration regulation. 

“Duke needs to account for the rule in their planning, and they have not done that,” Mikaela Curry, a North Carolina-based campaign manager at the Sierra Club, said in an interview. “Who pays for a gas plant that can only run 40% of the time?”

While Public Staff supports the new plant, it also asserts in testimony that Duke hasn’t developed a plan for how it will comply with the new federal rule.

“We have concerns about the impact and implementation of the recently issued [Clean Air Act] Rule,” engineers Dustin Metz and Evan Lawrence wrote. “We cannot yet identify how [the] proposed Roxboro facility may be impacted and to what extent.”

‘That modeling … was flawed’ 

The agency also hasn’t seen a comprehensive analysis from Duke to justify the location for the combined cycle unit. “The Public Staff cannot say definitively that the proposed Roxboro… project is least cost for [Duke’s] ratepayers,” Metz and Lawrence said in their testimony.

Other critics also question whether the gas plant is Duke’s most economical option, though for different reasons.

In testimony for the environmental groups, Stanton asserts that Duke artificially limits renewables in its carbon-reduction models; assumes clean energy is 60% costlier than industry standards; and, in the plan that most quickly transitions the company away from fossil fuels, makes all resources 20% more expensive. Plus, new generation built before 2030 — which would be mostly solar — gets an 8% penalty.

“Duke’s rationale for requesting the [Hyco Lake plant… is the] selection of gas resources in its least-cost modeling,” Stanton wrote. “That modeling, however, was flawed, including multiple biases for gas resources and against renewable resources.”

Detractors also doubt the company’s plan to convert the gas plant to run on emissions-free hydrogen as late as 2049 – just in time to comply with state law. That “presumption,” said consultant Bill McAleb in testimony on behalf of the Environmental Defense Fund, “is not based on substantive evidence presented in this docket proceeding.”

Detailing an array of challenges, including uncertainty from equipment manufacturers, McAleb concludes a zero-carbon, hydrogen-fueled facility, “is not only speculative but unlikely.”

‘A very nuanced topic’ 

While advocates wage a legal campaign against the gas plant, activists are reaching out to the people of Person County face-to-face, knocking doors on the roads surrounding the existing coal facility.

Juhi Modi, North Carolina field coordinator for Appalachian Voices, says the canvassing effort so far has identified more opponents than not – surprisingly so. 

“Given that it’s a very nuanced topic, and the fact that people appreciate Duke’s economic presence in the county,” Modi said, “it’s been really meaningful to just hear what they think.” 

Referencing the yearslong campaign to get Duke to excavate its leaking coal ash pits, Modi added: 

“These people were also impacted by coal ash contaminating their well water and were part of a long fight to get their water cleaned up, and still have a lot of skepticism about Duke’s ability to responsibly operate in this community.”

Along an existing pipeline right-of-way, the new pipeline Dominion Energy plans to transport gas to Duke and other customers has also given some in the community pause. Activists say it appears to pass dangerously close to Woodland Elementary School in Semora.

“What would happen if there is an accident? If there is a fire or an explosion?” Modi said. “It’s a real concern for the children, the teachers and the staff that work in the school.”

While cleaner than coal in terms of smog-and soot-forming air pollution, the gas plant’s emissions of methane — a potent greenhouse gas — will negate its climate benefits, said Katie Moore, an air quality researcher who lives in Roxboro.  

“Not only do we not have enough time to use [gas] as a ‘bridge fuel,’” she said,  but it doesn’t even make sense because the climate impacts are the same, essentially, as coal.”

Moore also believes there’s an incorrect assumption that either Duke replaces its Hyco Lake coal units with gas or the company leaves the county altogether.

“Those are not the only two options,” said Moore, who grew up in neighboring Durham County and moved to slower-paced Person 2.5 years ago. “I don’t want people to be out of jobs and I don’t want to lose 20% of the tax base. But that’s not an inevitability. I think there are lots of ways that we could embrace renewables in this county.” 

Long odds remain

Still, at an in-person public hearing last month, Moore and other locals against the plant were outnumbered by supporters, who ranged from tourism boosters to local elected officials to the superintendent of Person County Schools, Rodney Peterson. 

“A school district like ours could not recover from the loss of our local tax base,” said Peterson, who noted he was appearing in a personal capacity. “I ask you to remember our students, our parents, our teachers in Person County.” 

Besides support from many community leaders, many other factors still weigh in Duke’s favor.  

Notwithstanding its concerns about the plant’s cost and its compliance with the new Biden administration rules, Public Staff believes the energy it will provide will be vital as the company works to reduce its carbon pollution as required by law.

“There is a need for [combined cycle and combustion turbine] natural gas generation in [Duke’s] service territories,” the engineers wrote in their testimony. Denying the company a permit to build the plant, they asserted, “could delay interim carbon emissions reduction compliance and coal plant retirements set forth in the Carbon Plan Order.”

While solar combined with battery storage could in theory provide similar economic and energy benefits as the gas plant, Person County leaders would have to repeal a 2022 ordinance that effectively bans large-scale solar farms. 

Meanwhile, Duke is eschewing an Inflation Reduction Act loan program meant to encourage clean energy investments in communities with retired coal plants.

And even though the commission is dominated by appointments from Gov. Roy Cooper, a Democrat who’s embraced the clean energy economy and criticized fossil fuels, the panel has so far exhibited little resistance to the utility’s gas expansion plans.

“It just makes me feel sad,” said Crystal Cavalier-Keck, the co-founder of the Indigenous activist group Seven Directions of Service, referencing how the panel approved Duke’s last carbon reduction plan with few edits. “It’s disheartening.”

A spokesperson for Duke declined to comment for this story, but the company’s formal responses to Public Staff and clean energy advocates intervening in the case are due later this month. An expert witness hearing is expected as soon as early August.

In the meantime, organizers like Cavalier-Keck say they’ll keep getting the word out. “We’re just going to continue to knock on all the doors,” she said, “and continue to educate people.”

Can a long-planned Duke Energy gas plant in North Carolina be defeated? is an article from Energy News Network, a nonprofit news service covering the clean energy transition. If you would like to support us please make a donation.

Duke Energy’s plan to zero out its carbon pollution all but ignores a federal loan program that could save ratepayers hundreds of millions of dollars and enable more clean energy, the state’s ratepayer advocate said in recent filings.

And since the loans run out in September 2026, state Public Staff and clean energy advocates say time is running out for Duke to correct course. 

“This is a singular bite at the apple that they’re going to get,” said Jeremy Fisher, principal adviser for climate and energy at the Sierra Club. “So, we’re not in a position to sit here and say, ‘hey Duke, in your next [long-term plan], you should model it.’ This is the moment.” 

Public Staff called attention to the $250 billion federal Energy Infrastructure Reinvestment Program in its assessment of Duke’s proposed biennial carbon reduction plan, the first of which was approved by state regulators at the end of 2022, months after the surprise passage of the Inflation Reduction Act.

In accepting Duke’s plan that year, regulators noted: “it is appropriate for Duke to incorporate the impacts of the Inflation Reduction Act… and other future legislative changes… into its [Carbon Plan and long-range generation] proposal that it will file with the Commission on or before September 1, 2023.”

But Public Staff and other intervenors say the utility did not fully do so, at least when it comes to the Energy Infrastructure Reinvestment Program. 

“The Public Staff has concerns regarding Duke’s failure to model the [loan] program,” wrote Jeff Thomas, an engineer with the agency. The program, he added later, “represents a significant opportunity for cost savings for ratepayers tied to the deployment of new clean energy resources.”

Bundling retirement refinancing with new clean energy

The loans are perhaps less well known than the Inflation Reduction Act’s tax incentives for everything from electric vehicles to solar panels to offshore wind turbines. 

But they’re just as important, if not more so, especially in light of the North Carolina law that requires Duke to reduce its carbon emissions in a “least cost” manner.

Fisher said utilities can take advantage of the program to varying degrees, with proportionate savings for ratepayers. 

In the “ideal use of this program,” Fisher said, utilities can refinance outstanding loans for their retiring coal plants and combine them with new clean energy investments, all for a low interest rate. Then there’s a “lesser version,” in which a utility doesn’t transfer its balance on old coal plants but does finance new clean energy projects through the federal government. Finally, he said, there’s “one more step down.” That’s where a company like Duke essentially switches to the government debt it would otherwise owe a bank.

In a recent paper, the clean energy think tank Rocky Mountain Institute explained why this last option is least desirable for ratepayers.  

“If utilities do nothing more than use [Energy Infrastructure Reinvestment] loans to displace corporate debt,” researchers wrote, “overall ratepayer savings will be minimal, since most utilities can already borrow at reasonably attractive interest rates without the added complication and expense of participating in a government program.” 

Yet, Fisher said, testimony from the state-sanctioned customer advocate suggests this “stepped down” version of the loan program is what Duke envisions.  

Michelle Boswell, director of Public Staff’s accounting division, relayed an example of a Missouri utility that could maximize the Energy Infrastructure Reinvestment program and save its customers over $900 million. “While these ratepayer benefits come at the expense of lower earnings for the utility,” Boswell noted, “they are consistent with the least-cost mandate contained in [state law].” 

‘Take aggressive advantage?’ 

At a technical hearing last week before regulators, Thomas reiterated that position. “As the ratepayer advocate, cost is a major concern,” he said. “We believe there are ways to control costs. One proposal is that Duke should take aggressive advantage of the Energy Infrastructure Reinvestment loan program.”

Doing so could save ratepayers more than $400 million through 2032, Thomas said last week, and lead to increased renewable and storage deployment.

Testifying on behalf of Attorney General Josh Stein, expert witness Edward Burgess stressed the loan program could be utilized to cover transmission upgrades needed to connect more solar and storage to the grid. 

“Reconductoring of transmission lines could allow for significantly greater renewable resource availability,” Burgess wrote. “This could be done much more cost-effectively with assistance from the Energy Infrastructure Reinvestment program.”

Indeed, advocates say the federal program doesn’t just promise to lower ratepayer costs for the clean energy Duke currently proposes. By changing the economic calculus, the loans could spur the company to invest in more storage and solar and retire its coal plants sooner. 

Duke’s proposed 1,360-megawatt gas plant outside Roxboro in Person County is a case in point.

In theory, rather than replace coal smokestacks on Hyco Lake with gas-fired units, Duke could build battery storage and clean energy on the site instead. 

That investment would qualify the utility for an additional 10% federal tax incentive, since it would be located within 30 miles of a retiring coal plant. Much of the outstanding debt on the old fossil fuel plant and the solar and battery investments could be leveraged into a low-interest loan through the federal government.

Testifying for several clean energy advocacy groups, expert witness Maria Roumpani said that Duke may not be taking full advantage of this additional 10% incentive, since it assumes that 60% of its new standalone batteries will be sited at retired coal sites.

“Although the approach seems reasonable,” Roumpani wrote, “it might lead to the analysis overlooking certain opportunities to replace coal capacity.”  

The Energy Infrastructure Reinvestment Program and the 10% bonus credit for former coal plant communities could also work in concert with so-called securitization of Duke’s coal-fired power plants, in which the remaining book value of plants is paid off through bonds backed by ratepayers. 

The same state law requiring Duke to zero out its carbon pollution also calls for only half of the book value of its least efficient coal plants to be securitized. Theoretically, advocates say, the remainder could be paid off through the federal loan program.

‘A once-in-a-decade opportunity’ 

Asked about Public Staff’s assertion that the utility didn’t account for the federal loan program in its latest proposal for phasing out carbon, spokesperson Bill Norton said Duke was still reviewing the filing. 

He added, “we have already engaged with the Department of Energy and other utilities to learn more about the… program and see if it provides benefits to our customers. We will pursue all federal funding that we believe can reduce energy transition costs for our customers in a manner that protects reliability, supports our coal plant communities and accommodates North Carolina’s growing economy.”

Public Staff and others say time is of the essence. The loan program has a limited amount of funds, and records suggest other utilities have already applied for nearly half the total. That means Duke needs to begin applying for the loans as soon as possible, and, critics argue, should have already started.

“By failing to examine this option,” the attorney general said in its filing, “Duke may be missing out on a once-in-a-decade opportunity to save millions for its customers.”

N.C.’s ratepayer advocate: Duke Energy ‘failed’ to consider incentives that would cut costs & enable more clean energy is an article from Energy News Network, a nonprofit news service covering the clean energy transition. If you would like to support us please make a donation.