Planned 100 MW solar park in the municipality of Tarmstedt (municipality of Breddorf) in Lower Saxony – Creative image: Xpert.Digital
Local energy transition: How a huge solar park puts a small community to the test
### Mega solar park divides entire village: Why there is now resistance ### 100-megawatt plant planned: Is this solar park too big for the community? ### Financialsegen or environmental destruction? The dispute over a solar project is boiling over in this town ### Citizens' initiative against 50-million-euro project: "Our landscape is not an industrial zone" ### Despite almost €200,000 in revenue: Why residents are fighting against the new solar park ###
Breddorf municipality strengthens its position on solar park project: Controversy surrounding planned photovoltaic system
The Lower Saxon municipality of Breddorf in the Rotenburg district is at the center of an intense dispute over one of the largest planned solar parks in the Tarmstedt collective municipality. The project, developed by the Dortmund-based project developer ON-Energy, envisions the construction of a ground-mounted photovoltaic system with a total capacity of 99.9 megawatts on an area of 68 hectares. The plant would extend between Friedhofstraße in Breddorf and the municipal boundary with Hepstedt and could generate approximately 97.8 million kilowatt-hours of electricity annually, equivalent to the needs of 21,700 four-person households.
The planned solar power plant is part of a larger renewable energy development in the region. According to current plans, the project would represent an investment of approximately 50 million euros, with roughly 500,000 euros estimated per megawatt of capacity. The rows of modules are to be installed 1.50 meters apart, with a lower edge 80 centimeters high to allow for sheep grazing and a top edge 3.50 meters high.
Resistance is forming
The Breddorf citizens' initiative, a registered association with around 50 members, has formed to oppose the ambitious project. The initiative is led by Mario Kück as chairman, Gabriele Fox as vice-chairwoman, and Angela Klagge as secretary and treasurer. The critics explicitly emphasize that they are not fundamentally opposed to renewable energies, but reject this particular project due to its scale and location-related factors.
The citizens' initiative argues that the project is incompatible with the natural habitat and that the beauty, tranquility, and biodiversity of the landscape must be preserved for future generations. They plan to summarize their concerns in a comprehensive 100-page document and submit it to both the local and regional authorities. A petition drive has already begun, aiming to compel the local council to reconsider the issue in detail.
The initiative accuses the municipal council of having made the decision regarding the development plan prematurely, without sufficiently examining the project or adequately considering the potential impacts on people, the environment, flora, and fauna. They also claim that public information was inadequate and that some council members may be too inexperienced to assess such a complex issue.
The municipality justifies its actions
Mayor Susanne Schmiedel responded to the criticism with a detailed statement, emphasizing that the municipality has been addressing the issue of solar parks intensively and transparently since 2022. The plans were presented, discussed, and documented in several public meetings, with corresponding articles appearing in local newspapers for each meeting. The municipality intends to continue providing open information and involving citizens in the decision-making process.
The process began in 2022 when a private group of property owners approached the municipality requesting the initiation of a planning approval process for land on Friedhofstraße. Initially, a community solar park was planned, but it turned out that the owners would not be able to obtain a grid connection. Therefore, the professional project developer ON-Energy, which is open to the participation of citizens and municipalities, was brought on board. Citizen participation through an energy cooperative with up to 20 percent direct ownership is possible.
The municipality argues that the proposed plots correspond to the designated areas in the municipal development plan of the Tarmstedt joint municipality. While the district does not specify a minimum distance to residential areas and the joint municipality stipulates 100 meters, the municipality of Breddorf has decided on a minimum distance of 200 meters to residential areas and the cemetery. The facility must be landscaped to provide visual screening.
Energy transition and municipal responsibility
Mayor Schmiedel points out that limiting local energy production to local needs would jeopardize Germany's economic competitiveness and energy supply in the medium term. She emphasizes that community projects generate local added value and revenue that directly benefits the municipality and can be used for clubs, kindergartens, playgrounds, and general infrastructure. The project could make a significant contribution to climate-friendly energy supply and the regional energy transition.
This argument aligns with Lower Saxony's broader climate goals. The state has committed to becoming greenhouse gas neutral by 2040 and reducing greenhouse gas emissions by 75 percent by 2030 compared to 1990 levels. To achieve these goals, the energy and hydrogen demand is to be met entirely by renewable energy sources by 2040. Specifically, at least 65 gigawatts of installed capacity for electricity generation from photovoltaic systems are to be realized by 2035, of which at least 50 gigawatts must come from systems other than ground-mounted installations.
The Lower Saxony Climate Protection Act stipulates that ground-mounted solar power plants should be used for electricity generation on at least 0.5 percent of the state's land area by 2033. The municipality of Tarmstedt would significantly exceed its target of 0.47 percent with the planned solar parks, should all projects be realized. This demonstrates the substantial contribution the region would make to the energy transition.
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Solar park between conflicts and opportunities: The Breddorf solution
Planning law challenges
The Breddorf municipal council has approved the creation of a development plan for a special photovoltaic zone. To enable the project, the Tarmstedt joint municipality must amend its land-use plan accordingly. The matter could be discussed at the next meeting of the joint municipality council, although the process is still in its very early stages.
The challenges of land-use planning are also evident in other projects in the region. For example, a farmer in Breddorf who wants to build a solar park of approximately 48 hectares received a preliminary rejection from the local council because he could not prove that the planned facility would actually be connected to the regional power grid. This illustrates the technical and administrative complexities involved in the realization of solar parks.
Economic aspects and citizen participation
The economic dimensions of the project are considerable. Under the Renewable Energy Sources Act, municipalities can directly participate in the revenues of solar parks, with 0.2 cents per kilowatt-hour generated flowing into the municipal coffers. With the planned annual production of 97.8 million kilowatt-hours, this would amount to approximately €195,600 annually for the municipality. In addition, there will be business tax revenues and lease payments for the landowners.
The possibility of direct citizen participation through an energy cooperative with up to a 20 percent stake in the project represents an important aspect of local acceptance. Such participation models have proven successful in other regions in increasing public support and simultaneously strengthening regional economic development.
Nature conservation and landscape protection
A key point of criticism from the citizens' initiative concerns nature conservation and the preservation of the landscape. The proposed area is currently used largely as farmland, which, according to the mayor, is a veritable corn desert. She argues that a well-planted photovoltaic field is by no means worse for people and nature than an agricultural steppe, but on the contrary, could improve biodiversity.
This assessment reflects current scientific findings on solar parks. Studies show that properly planned ground-mounted photovoltaic systems can indeed have positive effects on biodiversity, especially when combined with extensive grazing or near-natural landscaping of the interstitial areas. The planned sheep grazing under the modules could contribute to the ecological enhancement of intensively farmed arable land.
Regional energy transition strategy
The project is part of a broader regional strategy for expanding renewable energies. In 2024, the municipality of Tarmstedt commissioned a study of potential sites for ground-mounted photovoltaic systems, based on various working aids and planning documents. This study categorizes areas into favorable, restricted, and exclusion zones and serves as the basis for further planning decisions.
The planned area in Breddorf is classified as a restricted area II in the potential area analysis, meaning that it is generally not suitable for the construction of ground-mounted photovoltaic systems, but this restriction can be overcome in individual cases. The municipality nevertheless sees the possibility of implementation, as no other suitable areas are available within the municipality.
Comparable conflicts and solutions
The situation in Breddorf is exemplary of similar conflicts throughout Germany. In many communities, large solar park projects are encountering resistance from citizens' initiatives, which raise similar arguments to those in Breddorf. Acceptance of ground-mounted photovoltaic systems varies considerably regionally, with Lower Saxony boasting a relatively high approval rate of 80.7 percent.
Successful projects are often characterized by early and comprehensive citizen participation, transparent communication, and tangible benefits for the local population. The possibility of financial participation, as planned in Breddorf, can significantly increase acceptance. At the same time, careful site selection, taking into account nature conservation and landscape aspects, is crucial.
Technical and legal framework
The legal framework for ground-mounted photovoltaic systems is complex. While the Renewable Energy Sources Act defines specific areas where systems are eligible for subsidies, special zoning plans are usually required for agricultural land. Lower Saxony is one of the German states that has created the possibility for projects with a total installed capacity of up to 150 megawatts per year to be awarded contracts through competitive bidding.
Remuneration for large-scale installations is determined through tenders by the Federal Network Agency, with average prices in recent rounds ranging from 5 to 5.5 cents per kilowatt-hour. This makes solar parks economically attractive and explains the strong interest of project developers in suitable sites.
Compromise solutions
The discussions in Breddorf exemplify the challenges of implementing the energy transition at the local level. While climate policy goals necessitate an accelerated energy transition, the needs of the local population and nature conservation must also be considered. The citizens' initiative has signaled its willingness to engage in dialogue and would potentially agree to a reduction in the area.
Such compromise solutions could be a way to both support energy transition goals and address local concerns. The mayor has already announced that the area could be significantly reduced and that wildlife corridors are desired. This shows that, despite the controversial discussion, there is room for constructive solutions.
The developments in Breddorf are being closely followed by other municipalities in the region, as they could set a precedent for similar projects. The way the conflict is resolved could serve as a model for the further development of solar energy in Lower Saxony and demonstrate how local energy transition projects can be successfully implemented with citizen participation.
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