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Readers are requested to", "paragraph_id": "para_5" }, { "text": "promptly notify the Reporter of Decisions, Supreme Court of Ohio, 65", "paragraph_id": "para_6" }, { "text": "South Front Street, Columbus, Ohio 43215, of any typographical or other", "paragraph_id": "para_7" }, { "text": "formal errors in the opinion, in order that corrections may be made before", "paragraph_id": "para_8" }, { "text": "the opinion is published.", "paragraph_id": "para_9" }, { "text": "SLIP OPINION NO. 2026-OHIO-1849", "paragraph_id": "para_10" }, { "text": "IN RE APPLICATION OF OAK RUN SOLAR PROJECT, L.L.C., FOR A CERTIFICATE", "paragraph_id": "para_11" }, { "text": "OF ENVIRONMENTAL COMPATIBILITY AND PUBLIC NEED TO CONSTRUCT A", "paragraph_id": "para_12" }, { "text": "SOLAR-POWERED ELECTRIC-GENERATION FACILITY IN MADISON COUNTY,", "paragraph_id": "para_13" }, { "text": "OHIO; MADISON COUNTY BOARD OF COMMISSIONERS ET AL., APPELLANTS;", "paragraph_id": "para_14" }, { "text": "POWER SITING BOARD, APPELLEE; OAK RUN SOLAR PROJECT, L.L.C.,", "paragraph_id": "para_15" }, { "text": "INTERVENING APPELLEE.", "paragraph_id": "para_16" }, { "text": "[Until this opinion appears in the Ohio Official Reports advance sheets, it", "paragraph_id": "para_17" }, { "text": "may be cited as In re Application of Oak Run Solar Project, L.L.C., Slip", "paragraph_id": "para_18" }, { "text": "Opinion No. 2026-Ohio-1849.]", "paragraph_id": "para_19" }, { "text": "Public utilities—Certificate of construction for solar farm—R.C. 4906.10(A)—", "paragraph_id": "para_20" }, { "text": "Adm.Code 4906-4-08(D)(4)(e)—Ohio Power Siting Board did not obtain", "paragraph_id": "para_21" }, { "text": "from applicant seeking certificate to construct solar farm photographic", "paragraph_id": "para_22" }, { "text": "simulations or artist’s pictorial sketches of substations for the proposed", "paragraph_id": "para_23" }, { "text": "project, which the board needed to adequately assess the proposed project", "paragraph_id": "para_24" }, { "text": "from public vantage points under Adm.Code 4906-4-08(D)(4)(e) and to", "paragraph_id": "para_25" }, { "text": "make the substantive statutory determinations regarding the visual impacts", "paragraph_id": "para_26" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_27" }, { "text": "2", "paragraph_id": "para_28" }, { "text": "of the proposed project under R.C. 4906.10(A)—Orders affirmed in part", "paragraph_id": "para_29", "court_paragraph": 2 }, { "text": "and reversed in part and matter remanded.", "paragraph_id": "para_30" }, { "text": "(No. 2024-1477—Submitted October 28, 2025—Decided May 26, 2026.)", "paragraph_id": "para_31" }, { "text": "APPEAL from the Power Siting Board, Nos. 22-549-EL-BGN and", "paragraph_id": "para_32" }, { "text": "22-550-EL-BTX.", "paragraph_id": "para_33" }, { "text": "__________________", "paragraph_id": "para_34" }, { "text": "FISCHER, J., authored the opinion announcing the judgment of the court,", "paragraph_id": "para_35" }, { "text": "which DEWINE and DETERS, JJ., joined. KENNEDY, C.J., concurred in part and", "paragraph_id": "para_36" }, { "text": "dissented in part, with an opinion. BRUNNER, J., concurred in part and dissented in", "paragraph_id": "para_37" }, { "text": "part, with an opinion. HAWKINS, J., concurred in part and dissented in part, with an", "paragraph_id": "para_38" }, { "text": "opinion joined by KENNEDY, C.J., and SHANAHAN, J.", "paragraph_id": "para_39" }, { "text": "FISCHER, J.", "paragraph_id": "para_40" }, { "text": "{¶ 1} Appellee, the Ohio Power Siting Board, authorized intervening", "paragraph_id": "para_41" }, { "text": "appellee, Oak Run Solar Project, L.L.C., to construct a solar farm in Madison", "paragraph_id": "para_42" }, { "text": "County. The project’s opponents and appellants here, the Board of Trustees for", "paragraph_id": "para_43" }, { "text": "Somerford Township, the Board of Trustees for Deercreek Township, the Board", "paragraph_id": "para_44" }, { "text": "for Trustees for Monroe Township, and the Madison County Board of", "paragraph_id": "para_45" }, { "text": "Commissioners (collectively, “the local governments”)—have appealed the board’s", "paragraph_id": "para_46" }, { "text": "opinion and order granting that authorization, as well as the board’s order denying", "paragraph_id": "para_47" }, { "text": "their application for rehearing.", "paragraph_id": "para_48" }, { "text": "{¶ 2} The crux of their argument is that the board failed to obtain the", "paragraph_id": "para_49" }, { "text": "information necessary to engage in reasoned decision-making about whether to", "paragraph_id": "para_50" }, { "text": "approve various aspects of the project. The local governments are right in one", "paragraph_id": "para_51" }, { "text": "respect: the board did not obtain adequate visual simulations or sketches of the", "paragraph_id": "para_52" }, { "text": "proposed facility. The local governments’ remaining arguments fail either on the", "paragraph_id": "para_53" }, { "text": "merits or because they do not show prejudice from the board’s orders.", "paragraph_id": "para_54" }, { "text": "January Term, 2026", "paragraph_id": "para_55" }, { "text": "3", "paragraph_id": "para_56" }, { "text": "{¶ 3} We accordingly affirm in part and reverse in part the board’s orders,", "paragraph_id": "para_57", "court_paragraph": 3 }, { "text": "and we remand this matter to the board with instructions to more thoroughly address", "paragraph_id": "para_58" }, { "text": "the project’s visual impacts.", "paragraph_id": "para_59" }, { "text": "I. BACKGROUND", "paragraph_id": "para_60" }, { "text": "A. Legal background", "paragraph_id": "para_61" }, { "text": "{¶ 4} The General Assembly has vested the board with the authority to", "paragraph_id": "para_62" }, { "text": "approve the construction of a “major utility facility.” R.C. 4906.10(A); see also", "paragraph_id": "para_63" }, { "text": "R.C. 4906.01(B)(1) (defining “major utility facility”); R.C. 4906.04 (“No person", "paragraph_id": "para_64" }, { "text": "shall commence to construct a major utility facility in this state without first having", "paragraph_id": "para_65" }, { "text": "obtained a certificate for the facility.”). There is no dispute that, as the board found,", "paragraph_id": "para_66" }, { "text": "Oak Run’s proposed solar farm in Madison County qualifies as a major utility", "paragraph_id": "para_67" }, { "text": "facility.", "paragraph_id": "para_68" }, { "text": "{¶ 5} Before the board can approve the construction of a major utility", "paragraph_id": "para_69" }, { "text": "facility, however, “it must make eight substantive determinations,” In re", "paragraph_id": "para_70" }, { "text": "Application of Harvey Solar I, L.L.C., 2025-Ohio-1503, ¶ 10, as set forth in R.C.", "paragraph_id": "para_71" }, { "text": "4906.10(A). At issue here is whether the board’s findings support its order with", "paragraph_id": "para_72" }, { "text": "regard to the following four substantive determinations under R.C. 4906.10(A):", "paragraph_id": "para_73" }, { "text": "(2) The nature of the probable environmental impact;", "paragraph_id": "para_74" }, { "text": "(3) That the facility represents the minimum adverse", "paragraph_id": "para_75" }, { "text": "environmental impact, considering the state of available technology", "paragraph_id": "para_76" }, { "text": "and the nature and economics of the various alternatives, and other", "paragraph_id": "para_77" }, { "text": "pertinent considerations;", "paragraph_id": "para_78" }, { "text": ". . .", "paragraph_id": "para_79" }, { "text": "(5) That the facility will comply with [R.C. Ch. 3704, 3734,", "paragraph_id": "para_80" }, { "text": "and 6111] and all rules and standards adopted under those", "paragraph_id": "para_81" }, { "text": "chapters . . . ; [and]", "paragraph_id": "para_82" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_83" }, { "text": "4", "paragraph_id": "para_84" }, { "text": "(6) That the facility will serve the public interest,", "paragraph_id": "para_85", "court_paragraph": 4 }, { "text": "convenience, and necessity; . . . .", "paragraph_id": "para_86" }, { "text": "{¶ 6} The board has adopted “rules as are necessary and convenient to", "paragraph_id": "para_87" }, { "text": "implement” R.C. Ch. 4906. R.C. 4906.03(C). The board’s rules that are at issue in", "paragraph_id": "para_88" }, { "text": "this case are discussed below.1", "paragraph_id": "para_89" }, { "text": "B. Factual background", "paragraph_id": "para_90" }, { "text": "{¶ 7} In September 2022, Oak Run applied to the board for approval to", "paragraph_id": "para_91" }, { "text": "develop, construct, and operate a solar farm in Madison County. The board granted", "paragraph_id": "para_92" }, { "text": "the local governments’ motions to intervene in the case, as well as the motions to", "paragraph_id": "para_93" }, { "text": "intervene of several other parties, including Dr. John Boeckl and the Ohio", "paragraph_id": "para_94" }, { "text": "Environmental Council (“OEC”), both of whom filed amicus briefs in this appeal.", "paragraph_id": "para_95" }, { "text": "{¶ 8} The board’s staff submitted a report summarizing its investigation of", "paragraph_id": "para_96" }, { "text": "the project, with findings and recommendations for the board’s consideration. Oak", "paragraph_id": "para_97" }, { "text": "Run and some of the intervenors (including Dr. Boeckl and OEC) then filed a joint", "paragraph_id": "para_98" }, { "text": "stipulation, recommending that the board approve the project, subject to 46", "paragraph_id": "para_99" }, { "text": "conditions.", "paragraph_id": "para_100" }, { "text": "{¶ 9} The board held a hearing on the stipulation; it heard evidence", "paragraph_id": "para_101" }, { "text": "supporting and opposing the project, after which it issued a decision amending the", "paragraph_id": "para_102" }, { "text": "stipulation and approving the project, subject to the conditions in the amended", "paragraph_id": "para_103" }, { "text": "stipulation. 2024 WL 1465954, *82 (Mar. 21, 2024). It determined that the project,", "paragraph_id": "para_104" }, { "text": "as approved, satisfied the eight requirements of R.C. 4906.10(A). Id. at *81.", "paragraph_id": "para_105" }, { "text": "{¶ 10} The facility will sit on about 4,400 acres of privately owned land", "paragraph_id": "para_106" }, { "text": "within an approximate 6,050-acre project area. Oak Run procured the land by", "paragraph_id": "para_107" }, { "text": "1. Effective May 30, 2024, after it issued its opinion and order in this case, the board amended and", "paragraph_id": "para_108" }, { "text": "renumbered some of its rules. There is no dispute that the pre-amendment versions of the rules", "paragraph_id": "para_109" }, { "text": "govern here, and each rule citation in this opinion is to the pre-amendment version. The first citation", "paragraph_id": "para_110" }, { "text": "to each rule identifies the effective date of the applied version. And each subsequent citation to the", "paragraph_id": "para_111" }, { "text": "same rule is to that prior version.", "paragraph_id": "para_112" }, { "text": "January Term, 2026", "paragraph_id": "para_113" }, { "text": "5", "paragraph_id": "para_114" }, { "text": "executing agreements with the landowners. The facility will include an 800", "paragraph_id": "para_115", "court_paragraph": 5 }, { "text": "megawatt (“MW”) solar-powered electric-generating facility, a 300 MW", "paragraph_id": "para_116" }, { "text": "alternating-current battery-energy storage system (“BESS”) comprised of two 150", "paragraph_id": "para_117" }, { "text": "MW facilities, and two 3.45-mile-long transmission lines.", "paragraph_id": "para_118" }, { "text": "{¶ 11} Rows of solar panels will be secured to the ground and “grouped in", "paragraph_id": "para_119" }, { "text": "large clusters that will be fenced with gated entrances.” Oak Run will site the panels", "paragraph_id": "para_120" }, { "text": "as part of an “agrivoltaics program,” whereby agricultural products will grow and", "paragraph_id": "para_121" }, { "text": "livestock will graze between the rows of panels. The purpose of an agrivoltaics", "paragraph_id": "para_122" }, { "text": "program is to harness the dual-use capabilities of land—that is, to preserve the", "paragraph_id": "para_123" }, { "text": "agricultural productivity of the land while simultaneously using the land as a solar", "paragraph_id": "para_124" }, { "text": "farm to generate renewable energy. Other features of the facility include a seven-", "paragraph_id": "para_125" }, { "text": "foot-tall perimeter fence, access roads, two operations-and-maintenance buildings,", "paragraph_id": "para_126" }, { "text": "underground electric-collection lines, weather stations, inverters, transformers, and", "paragraph_id": "para_127" }, { "text": "collector substations.", "paragraph_id": "para_128" }, { "text": "{¶ 12} The board denied the local governments’ rehearing application, 2024", "paragraph_id": "para_129" }, { "text": "WL 4039785, *1, 10 (Aug. 22, 2024), and the local governments filed this appeal.", "paragraph_id": "para_130" }, { "text": "We granted Oak Run’s application to intervene as an appellee. 2024-Ohio-5878.", "paragraph_id": "para_131" }, { "text": "II. ANALYSIS", "paragraph_id": "para_132" }, { "text": "{¶ 13} This court may reverse, vacate, or modify a final board order “if,", "paragraph_id": "para_133" }, { "text": "upon consideration of the record,” we conclude that the “order was unlawful or", "paragraph_id": "para_134" }, { "text": "unreasonable.” R.C. 4903.13; see also R.C. 4906.12. The “unlawful” part of this", "paragraph_id": "para_135" }, { "text": "standard of review refers to our review of legal questions, “such as the proper", "paragraph_id": "para_136" }, { "text": "interpretation of a statute or whether the board followed its own administrative", "paragraph_id": "para_137" }, { "text": "rules.” Harvey Solar, 2025-Ohio-1503, at ¶ 12. Whether an order is “unlawful” is", "paragraph_id": "para_138" }, { "text": "a legal question, subject to de novo review. Id., citing In re Application of Alamo", "paragraph_id": "para_139" }, { "text": "Solar I, L.L.C., 2023-Ohio-3778, ¶ 11.", "paragraph_id": "para_140" }, { "text": "{¶ 14} The “unreasonable” part of the standard applies to the “board’s", "paragraph_id": "para_141" }, { "text": "determinations under R.C. 4906.10(A), which requires the board to determine a", "paragraph_id": "para_142" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_143" }, { "text": "6", "paragraph_id": "para_144" }, { "text": "project’s compliance with broad statutory criteria.” Id. at ¶ 13, citing In re", "paragraph_id": "para_145", "court_paragraph": 6 }, { "text": "Application of Firelands Wind, L.L.C., 2023-Ohio-2555, ¶ 14-15. The “open-", "paragraph_id": "para_146" }, { "text": "textured nature of the terms” within those statutory criteria afford the board “a", "paragraph_id": "para_147" }, { "text": "degree of discretion” in its decision-making. Firelands Wind at ¶ 15. We review", "paragraph_id": "para_148" }, { "text": "the board’s exercise of that discretion for reasonableness. See Alamo Solar at ¶ 16;", "paragraph_id": "para_149" }, { "text": "Firelands Wind at ¶ 15.", "paragraph_id": "para_150" }, { "text": "{¶ 15} A board decision is “unreasonable when the evidence clearly does", "paragraph_id": "para_151" }, { "text": "not support it or when [the] decision is internally inconsistent.” Alamo Solar at", "paragraph_id": "para_152" }, { "text": "¶ 16, citing Firelands Wind at ¶ 15. “We do not reweigh the evidence or second-", "paragraph_id": "para_153" }, { "text": "guess the board on questions of fact” when determining whether its order is", "paragraph_id": "para_154" }, { "text": "unreasonable. (Cleaned up.) Firelands Wind at ¶ 17. Nor do we decide whether a", "paragraph_id": "para_155" }, { "text": "board order is wise as a matter of public policy. See Harvey Solar at ¶ 3", "paragraph_id": "para_156" }, { "text": "(“Overarching public-policy questions about the general societal value of", "paragraph_id": "para_157" }, { "text": "commercial solar farms are the province of the General Assembly, not this court.”).", "paragraph_id": "para_158" }, { "text": "A. Whether the board obtained the required visual-impact information to assess", "paragraph_id": "para_159" }, { "text": "the project’s effect on the neighborhood viewshed", "paragraph_id": "para_160" }, { "text": "{¶ 16} In their first proposition of law, the local governments contend that", "paragraph_id": "para_161" }, { "text": "the board erred in approving the Oak Run solar-farm project because Oak Run", "paragraph_id": "para_162" }, { "text": "failed to take steps to minimize adverse visual impacts as required by Adm.Code", "paragraph_id": "para_163" }, { "text": "4906-4-08(D)(4)(f), 2017-2018 Ohio Monthly Record 2-2998, 2-3002 (effective", "paragraph_id": "para_164" }, { "text": "Apr. 26, 2018). In their view, because mitigation measures have not been put in", "paragraph_id": "para_165" }, { "text": "place, residents and passersby will have no means to escape the project’s", "paragraph_id": "para_166" }, { "text": "“unpleasant appearance.” The local governments maintain that by failing to require", "paragraph_id": "para_167" }, { "text": "Oak Run to implement effective mitigation of the facility’s visual impacts, the", "paragraph_id": "para_168" }, { "text": "board did not find and determine that the conditions for approving the facility were", "paragraph_id": "para_169" }, { "text": "met under R.C. 4906.10(A)(3) (“the facility represents the minimum adverse", "paragraph_id": "para_170" }, { "text": "environmental impact”) and (A)(6) (“the facility will serve the public interest,", "paragraph_id": "para_171" }, { "text": "convenience, and necessity”).", "paragraph_id": "para_172" }, { "text": "January Term, 2026", "paragraph_id": "para_173" }, { "text": "7", "paragraph_id": "para_174" }, { "text": "{¶ 17} Adm.Code 4906-4-08(D)(4)(f) provides that an applicant must", "paragraph_id": "para_175", "court_paragraph": 7 }, { "text": "“[d]escribe measures that will be taken to minimize any adverse visual impacts", "paragraph_id": "para_176" }, { "text": "created by the facility, including . . . visual screening.” The local governments fault", "paragraph_id": "para_177" }, { "text": "Oak Run for not including a “vegetative screening plan” in its application and for", "paragraph_id": "para_178" }, { "text": "failing to complete a comprehensive outreach to local residents to identify the", "paragraph_id": "para_179" }, { "text": "residents’ preferences regarding such screening. But the administrative rule does", "paragraph_id": "para_180" }, { "text": "not require that Oak Run submit a “vegetative screening plan,” so this argument", "paragraph_id": "para_181" }, { "text": "fails. See Alamo Solar, 2023-Ohio-3778, at ¶ 38 (observing that Adm.Code 4906-", "paragraph_id": "para_182" }, { "text": "4-08(D)(4)(f) “doesn’t require that the applicant commit to any specific type of", "paragraph_id": "para_183" }, { "text": "visual screening”).", "paragraph_id": "para_184" }, { "text": "{¶ 18} Nor does the rule require that Oak Run conduct any form of public", "paragraph_id": "para_185" }, { "text": "outreach. However, in its application, Oak Run stated that it had engaged in public", "paragraph_id": "para_186" }, { "text": "outreach and that it “is committed to working with those residents to develop and", "paragraph_id": "para_187" }, { "text": "implement a vegetative screening plan for the Project.” The local governments do", "paragraph_id": "para_188" }, { "text": "not cite any authority requiring Oak Run to perform a level of public outreach that", "paragraph_id": "para_189" }, { "text": "matches their preference.", "paragraph_id": "para_190" }, { "text": "{¶ 19} Moreover, the local governments fail to acknowledge that Oak Run", "paragraph_id": "para_191" }, { "text": "did “[d]escribe measures,” Adm.Code 4906-4-08(D)(4)(f), in its application for", "paragraph_id": "para_192" }, { "text": "minimizing any adverse visual impacts of its facility. First, Oak Run stated that it", "paragraph_id": "para_193" }, { "text": "had sited perimeter fencing at least 150 feet from the edge of adjacent roads and", "paragraph_id": "para_194" }, { "text": "established 300-foot setbacks from adjacent residences. Second, it committed to", "paragraph_id": "para_195" }, { "text": "using agricultural-style fencing that blends in with the surrounding landscape,", "paragraph_id": "para_196" }, { "text": "eschewing industrial-looking chain-link fencing with barbed wire on top as is", "paragraph_id": "para_197" }, { "text": "commonly used for such facilities. Finally, it committed to retaining existing trees", "paragraph_id": "para_198" }, { "text": "and discussed vegetative screening with adjacent residents. The local governments", "paragraph_id": "para_199" }, { "text": "are correct that these descriptions do not convey that Oak Run will “shield” the", "paragraph_id": "para_200" }, { "text": "public’s views of the facility, but the law does not require Oak Run to go so far.", "paragraph_id": "para_201" }, { "text": "See Alamo Solar at ¶ 43 (observing that the applicants seeking board approval to", "paragraph_id": "para_202" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_203" }, { "text": "8", "paragraph_id": "para_204" }, { "text": "build a solar farm were not required to “completely screen” all views of their", "paragraph_id": "para_205", "court_paragraph": 8 }, { "text": "facilities and that the law “does not require the elimination of all adverse impacts”", "paragraph_id": "para_206" }, { "text": "by such facilities).", "paragraph_id": "para_207" }, { "text": "{¶ 20} Notwithstanding the lack of an explicit statutory or administrative-", "paragraph_id": "para_208" }, { "text": "rule requirement that an applicant use vegetative screening to minimize any adverse", "paragraph_id": "para_209" }, { "text": "visual impacts caused by its facility, the board’s staff recommended that Oak Run", "paragraph_id": "para_210" }, { "text": "develop a landscape-and-lighting plan that “include[s] measures such as . . .", "paragraph_id": "para_211" }, { "text": "vegetative screening.” That recommendation was incorporated into the stipulation,", "paragraph_id": "para_212" }, { "text": "and the board adopted it as a condition of granting the construction certificate. See", "paragraph_id": "para_213" }, { "text": "2024 WL 1465954 at *55, 81. Under the board’s opinion and order, Oak Run now", "paragraph_id": "para_214" }, { "text": "must file with the board a landscape-and-lighting plan in consultation with a", "paragraph_id": "para_215" }, { "text": "licensed landscape architect, and the plan must address the facility’s aesthetic and", "paragraph_id": "para_216" }, { "text": "lighting impacts. Among other things, the plan must provide for vegetative", "paragraph_id": "para_217" }, { "text": "screening that enhances views from affected residences, blends with the", "paragraph_id": "para_218" }, { "text": "surrounding environment (unless an alternative arrangement is reached with an", "paragraph_id": "para_219" }, { "text": "affected property owner), and addresses aesthetic impacts on passersby. Oak Run", "paragraph_id": "para_220" }, { "text": "must also maintain vegetative screening for the life of the facility, replace failed", "paragraph_id": "para_221" }, { "text": "plantings to ensure a 90 percent vegetation-survival rate after five years, maintain", "paragraph_id": "para_222" }, { "text": "perimeter fencing for the life of the project, and install motion-activated lights", "paragraph_id": "para_223" }, { "text": "focused narrowly inwards toward the facility. Once filed, the board’s staff will", "paragraph_id": "para_224" }, { "text": "review and confirm that the plan complies with this condition.", "paragraph_id": "para_225" }, { "text": "{¶ 21} The local governments mostly ignore the aspects of this condition", "paragraph_id": "para_226" }, { "text": "that will help minimize any adverse visual impacts created by the facility. Instead,", "paragraph_id": "para_227" }, { "text": "they fault the board for not requiring Oak Run to consult with affected residents", "paragraph_id": "para_228" }, { "text": "about reducing the adverse visual impacts and for leaving plan details to be worked", "paragraph_id": "para_229" }, { "text": "out in the future rather than being tested at the board’s hearing. But the force of the", "paragraph_id": "para_230" }, { "text": "former concern diminishes in view of the board’s finding that Oak Run has", "paragraph_id": "para_231" }, { "text": "“promised to continue working with local residents on the development and", "paragraph_id": "para_232" }, { "text": "January Term, 2026", "paragraph_id": "para_233" }, { "text": "9", "paragraph_id": "para_234" }, { "text": "implementation of the final vegetative screening plan for the Project,” id. at *57.", "paragraph_id": "para_235", "court_paragraph": 9 }, { "text": "As to the latter concern, “[i]t is well-settled that the board is not required to resolve", "paragraph_id": "para_236" }, { "text": "every issue before issuing a certificate.” Harvey Solar, 2025-Ohio-1503, at ¶ 24.", "paragraph_id": "para_237" }, { "text": "Indeed, we have approved the board’s procedure of allowing an applicant seeking", "paragraph_id": "para_238" }, { "text": "a certificate to construct a solar farm to “flesh out details in the final version of the", "paragraph_id": "para_239" }, { "text": "landscape plan as the construction process evolves,” id. at ¶ 25.", "paragraph_id": "para_240" }, { "text": "{¶ 22} We accordingly reject the local governments’ first proposition of", "paragraph_id": "para_241" }, { "text": "law.", "paragraph_id": "para_242" }, { "text": "B. Whether the board obtained the required visual-impact information to assess", "paragraph_id": "para_243" }, { "text": "the proposed facility from public vantage points", "paragraph_id": "para_244" }, { "text": "{¶ 23} In their second proposition of law, the local governments focus again", "paragraph_id": "para_245" }, { "text": "on visual impacts, but this time under Adm.Code 4906-4-08(D)(4)(e), which", "paragraph_id": "para_246" }, { "text": "requires an applicant to “[p]rovide photographic simulations or artist’s pictorial", "paragraph_id": "para_247" }, { "text": "sketches of the proposed facility from public vantage points that cover the range of", "paragraph_id": "para_248" }, { "text": "landscapes, viewer groups, and types of scenic resources found within the study", "paragraph_id": "para_249" }, { "text": "area.” 2017-2018 Ohio Monthly Record 2-998, 2-3002 (effective Apr. 26, 2018).", "paragraph_id": "para_250" }, { "text": "The local governments claim that Oak Run’s project does not meet the rule’s", "paragraph_id": "para_251" }, { "text": "requirements because Oak Run did not provide the board with a photographic", "paragraph_id": "para_252" }, { "text": "simulation or sketch showing the facility’s substations, which contain support", "paragraph_id": "para_253" }, { "text": "structures ranging in height from about 85 to 115 feet. The local governments", "paragraph_id": "para_254" }, { "text": "maintain that an applicant’s compliance with the rule enables the board to make the", "paragraph_id": "para_255" }, { "text": "proper determinations under R.C. 4906.10(A)(2) (“[t]he nature of the probable", "paragraph_id": "para_256" }, { "text": "environmental impact”), 4906.10(A)(3) (“the facility represents the minimum", "paragraph_id": "para_257" }, { "text": "adverse environmental impact”), and 4906.10(A)(6) (“the facility will serve the", "paragraph_id": "para_258" }, { "text": "public interest, convenience, and necessity”).", "paragraph_id": "para_259" }, { "text": "{¶ 24} The board’s rules define “facility” as “the proposed major utility", "paragraph_id": "para_260" }, { "text": "facility and all associated facilities.” Adm.Code 4906-1-01(W), 2015-2016 Ohio", "paragraph_id": "para_261" }, { "text": "Monthly Record 2-1852, 2-1853 (effective Dec. 11, 2015). In its opinion and order,", "paragraph_id": "para_262" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_263" }, { "text": "10", "paragraph_id": "para_264" }, { "text": "the board did not determine that the project’s substations fall outside the meaning", "paragraph_id": "para_265", "court_paragraph": 10 }, { "text": "of that term. But neither did it find that Oak Run’s photographic simulations of the", "paragraph_id": "para_266" }, { "text": "project display the proposed substations; indeed, one of Oak Run’s witnesses", "paragraph_id": "para_267" }, { "text": "testified that the application does not contain any simulations of the substations.", "paragraph_id": "para_268" }, { "text": "Instead, the board determined that “at distances of approximately 0.4 miles, Oak", "paragraph_id": "para_269" }, { "text": "Run’s photo simulations show that the Project visibility decreases and is mostly", "paragraph_id": "para_270" }, { "text": "absorbed into agricultural landscape” and that the project’s visibility would", "paragraph_id": "para_271" }, { "text": "continue to decrease over greater distances. 2024 WL 1465954 at *72.", "paragraph_id": "para_272" }, { "text": "{¶ 25} The board’s rationale for determining that Oak Run’s proposed solar", "paragraph_id": "para_273" }, { "text": "farm “balance[s] the Project’s public interest, convenience, and necessity” and", "paragraph_id": "para_274" }, { "text": "satisfies the criteria set forth in R.C. 4906.10(A)(2), (3), and (6), 2024 WL 1465954", "paragraph_id": "para_275" }, { "text": "at *72, misses the mark. Of course an object’s visibility decreases as one gets", "paragraph_id": "para_276" }, { "text": "farther away from it, especially at a distance of almost a half mile. Adm.Code", "paragraph_id": "para_277" }, { "text": "4906-4-08(D)(4)(e), however, requires an applicant to do more than validate this", "paragraph_id": "para_278" }, { "text": "truism. By failing to provide any photographic simulations or pictorial sketches", "paragraph_id": "para_279" }, { "text": "from public vantage points that show the substations’ support structures, which", "paragraph_id": "para_280" }, { "text": "appear to be some of the project’s tallest features, Oak Run did not meet the rule’s", "paragraph_id": "para_281" }, { "text": "requirements.", "paragraph_id": "para_282" }, { "text": "{¶ 26} The board rejoins that the local governments could have issued", "paragraph_id": "para_283" }, { "text": "discovery requests and raised any issues they had with expert witnesses at the", "paragraph_id": "para_284" }, { "text": "hearing. But under R.C. 4906.06(A)(6), an applicant for a certificate of", "paragraph_id": "para_285" }, { "text": "construction of a major utility facility shall file with the board an application", "paragraph_id": "para_286" }, { "text": "containing certain required information and “[s]uch other information as the", "paragraph_id": "para_287" }, { "text": "applicant may consider relevant or as the board by rule or order may require.”", "paragraph_id": "para_288" }, { "text": "Plainly, this statutory provision contemplates that an applicant will provide the", "paragraph_id": "para_289" }, { "text": "board with the necessary information in the first instance (i.e., upon filing its", "paragraph_id": "para_290" }, { "text": "application) and not wait to do so during discovery or at the board’s hearing.", "paragraph_id": "para_291" }, { "text": "January Term, 2026", "paragraph_id": "para_292" }, { "text": "11", "paragraph_id": "para_293" }, { "text": "{¶ 27} The board also asserts that to prevail in their contest against the", "paragraph_id": "para_294", "court_paragraph": 11 }, { "text": "issuance of a construction certificate, the local governments had to present", "paragraph_id": "para_295" }, { "text": "“compelling evidence” establishing that Oak Run’s application was incomplete.", "paragraph_id": "para_296" }, { "text": "We find this argument puzzling, given that in its merit brief, the board does not", "paragraph_id": "para_297" }, { "text": "dispute the local governments’ assertion that Oak Run failed to depict the", "paragraph_id": "para_298" }, { "text": "substations in a photographic simulation or pictorial sketch.", "paragraph_id": "para_299" }, { "text": "{¶ 28} For its part, Oak Run seems to contend that the substations do not", "paragraph_id": "para_300" }, { "text": "constitute “facilities” under Adm.Code 4906-1-01(W). Under this view, Oak Run", "paragraph_id": "para_301" }, { "text": "had no obligation to provide a photographic simulation or pictorial sketch of the", "paragraph_id": "para_302" }, { "text": "substations. Although the board now seems to agree in its merit brief that the", "paragraph_id": "para_303" }, { "text": "substations do fall within the meaning of “facility,” it did not make such a", "paragraph_id": "para_304" }, { "text": "determination in its orders. However, as we recently explained, “[a]n appellee may", "paragraph_id": "para_305" }, { "text": "defend a lower tribunal’s decision by asserting alternative grounds for affirmance", "paragraph_id": "para_306" }, { "text": "than those adopted by the tribunal, without having to file a protective cross-appeal.”", "paragraph_id": "para_307" }, { "text": "In re Applications of Dayton Power & Light Co., 2025-Ohio-2953, ¶ 97, citing", "paragraph_id": "para_308" }, { "text": "Fedor v. United Healthcare, Inc., 976 F.3d 1100, 1107 (10th Cir. 2020).", "paragraph_id": "para_309" }, { "text": "Accordingly, we address Oak Run’s argument that the proposed substations do not", "paragraph_id": "para_310" }, { "text": "constitute “facilities” under the rule.", "paragraph_id": "para_311" }, { "text": "{¶ 29} As explained above, “facility” means “the proposed major utility", "paragraph_id": "para_312" }, { "text": "facility and all associated facilities.” Adm.Code 4906-1-01(W). The board found,", "paragraph_id": "para_313" }, { "text": "and there is no dispute, that Oak Run’s proposed solar farm is a “major utility", "paragraph_id": "para_314" }, { "text": "facility,” as defined in R.C. 4906.01. But the term “facility” also encompasses “all", "paragraph_id": "para_315" }, { "text": "associated facilities,” which is defined by rule as “rights-of-way, land, permanent", "paragraph_id": "para_316" }, { "text": "access roads, structures, tanks, distribution lines and substations necessary to", "paragraph_id": "para_317" }, { "text": "interconnect the facility to the electric grid . . . and other equipment used for the", "paragraph_id": "para_318" }, { "text": "generation of electricity.” (Emphasis added.) Adm.Code 4906-1-01(F)(3), 2015-", "paragraph_id": "para_319" }, { "text": "2016 Ohio Monthly Record 2-1852 (effective Dec. 11, 2015). When considering", "paragraph_id": "para_320" }, { "text": "these definitions together, it is clear that the substations for Oak Run’s project are", "paragraph_id": "para_321" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_322" }, { "text": "12", "paragraph_id": "para_323" }, { "text": "facilities and Oak Run was therefore required to provide the board with the visual-", "paragraph_id": "para_324", "court_paragraph": 12 }, { "text": "impact information set forth in Adm.Code 4906-4-08(D)(4)(e).", "paragraph_id": "para_325" }, { "text": "{¶ 30} Oak Run contends that some of the substations will be minimally", "paragraph_id": "para_326" }, { "text": "visible because they will be located well inside the footprint of the project and", "paragraph_id": "para_327" }, { "text": "others will be screened by trees. But the only evidence it offers in support of this", "paragraph_id": "para_328" }, { "text": "assertion is a top-down aerial photograph that appears to have been taken by a", "paragraph_id": "para_329" }, { "text": "camera thousands of feet in the air. A perspective from that position does not square", "paragraph_id": "para_330" }, { "text": "with the ordinary meaning of “public vantage point,” as that term is used in", "paragraph_id": "para_331" }, { "text": "Adm.Code 4906-4-08(D)(4)(e), because a depiction of the facility from a high-", "paragraph_id": "para_332" }, { "text": "flying aircraft is not from a “point of view” that is “accessible or visible to the", "paragraph_id": "para_333" }, { "text": "community,” Merriam-Webster’s Collegiate Dictionary (11th Ed. 2003) (defining", "paragraph_id": "para_334" }, { "text": "“vantage point” and “public,” respectively).", "paragraph_id": "para_335" }, { "text": "{¶ 31} We sustain the local governments’ second proposition of law: by", "paragraph_id": "para_336" }, { "text": "failing to depict the proposed substations in accordance with Adm.Code 4906-4-", "paragraph_id": "para_337" }, { "text": "08(D)(4)(e), Oak Run deprived the board of the information necessary for it to", "paragraph_id": "para_338" }, { "text": "make the substantive statutory determinations regarding the visual impact of the", "paragraph_id": "para_339" }, { "text": "proposed solar farm. We therefore reverse the board’s orders in part and remand", "paragraph_id": "para_340" }, { "text": "this matter to the board to consider evidence bearing on proper photographic", "paragraph_id": "para_341" }, { "text": "simulations or an artist’s pictorial sketches of the proposed substations.", "paragraph_id": "para_342" }, { "text": "C. Whether the board obtained the required water-related information", "paragraph_id": "para_343" }, { "text": "{¶ 32} In their third proposition of law, the local governments argue that the", "paragraph_id": "para_344" }, { "text": "board erred in approving the project because Oak Run’s application did not contain", "paragraph_id": "para_345" }, { "text": "the water-related information required by Adm.Code 4906-4-07(C)(1)(d) and", "paragraph_id": "para_346" }, { "text": "(C)(2)(b), 2015-2016 Ohio Monthly Record 2-1886, 2-1887 (effective Dec. 11,", "paragraph_id": "para_347" }, { "text": "2015). The local governments argue that had the board obtained the information,", "paragraph_id": "para_348" }, { "text": "it would have been able to make an informed decision about whether construction", "paragraph_id": "para_349" }, { "text": "activities would drive soil-laden water into streams, resulting in polluted water.", "paragraph_id": "para_350" }, { "text": "They contend that because Oak Run’s application did not contain the information", "paragraph_id": "para_351" }, { "text": "January Term, 2026", "paragraph_id": "para_352" }, { "text": "13", "paragraph_id": "para_353" }, { "text": "required by the rule, the board did not make the necessary findings and", "paragraph_id": "para_354", "court_paragraph": 13 }, { "text": "determinations under R.C. 4906.10(A)(2) (“[t]he nature of the probable", "paragraph_id": "para_355" }, { "text": "environmental impact”), 4906.10(A)(3) (“the minimum adverse environmental", "paragraph_id": "para_356" }, { "text": "impact”), 4906.10(A)(5) (the facility’s compliance with various statutes and rules),", "paragraph_id": "para_357" }, { "text": "and 4906.10(A)(6) (“the facility will serve the public interest, convenience, and", "paragraph_id": "para_358" }, { "text": "necessity”).", "paragraph_id": "para_359" }, { "text": "1. Adm.Code 4906-4-07(C)(1)(d)", "paragraph_id": "para_360" }, { "text": "{¶ 33} Adm.Code 4906-4-07(C)(1)(d) requires an applicant to provide", "paragraph_id": "para_361" }, { "text": "“information regarding preconstruction water quality and permits” by describing", "paragraph_id": "para_362" }, { "text": "“the existing water quality of the receiving stream based on at least one year of", "paragraph_id": "para_363" }, { "text": "monitoring data, using appropriate Ohio environmental protection agency reporting", "paragraph_id": "para_364" }, { "text": "requirements.” The local governments argue that Oak Run did not comply with", "paragraph_id": "para_365" }, { "text": "this provision of the rule in view of the testimony of one of Oak Run’s witnesses,", "paragraph_id": "para_366" }, { "text": "who said that the company did not submit one year of monitoring data addressing", "paragraph_id": "para_367" }, { "text": "existing water quality in receiving streams.", "paragraph_id": "para_368" }, { "text": "{¶ 34} Even if that witness’s testimony shows that Oak Run did not comply", "paragraph_id": "para_369" }, { "text": "with Adm.Code 4906-4-07(C)(1)(d), we fail to see how the local governments have", "paragraph_id": "para_370" }, { "text": "shown prejudice from Oak Run’s noncompliance with that provision of the rule.", "paragraph_id": "para_371" }, { "text": "We have said that “a showing of prejudice by the party seeking reversal” is “a basic", "paragraph_id": "para_372" }, { "text": "point of procedure that is necessary to reverse a [board] order.” (Cleaned up.) In", "paragraph_id": "para_373" }, { "text": "re Application of Ohio Power Co., 2014-Ohio-4271, ¶ 31; see also In re Application", "paragraph_id": "para_374" }, { "text": "of Duke Energy Ohio, Inc., 2021-Ohio-3301, ¶ 16 (observing that even if the board", "paragraph_id": "para_375" }, { "text": "“misapplied its filing requirements,” the appellant still had to show that it was", "paragraph_id": "para_376" }, { "text": "harmed by the misapplication to warrant reversal of the board’s order); In re", "paragraph_id": "para_377" }, { "text": "Application of Champaign Wind, L.L.C., 2016-Ohio-1513, ¶ 15 (“Even if the board", "paragraph_id": "para_378" }, { "text": "errs in a procedural or evidentiary ruling, this court will not reverse the board’s", "paragraph_id": "para_379" }, { "text": "order unless the error prejudiced, i.e., meaningfully affected, the appellant.”).", "paragraph_id": "para_380" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_381" }, { "text": "14", "paragraph_id": "para_382" }, { "text": "{¶ 35} The local governments are concerned that Oak Run’s project will", "paragraph_id": "para_383", "court_paragraph": 14 }, { "text": "drive eroded soil into nearby streams by way of stormwater runoff, thereby", "paragraph_id": "para_384" }, { "text": "degrading the water quality. While we acknowledge that knowing the preexisting", "paragraph_id": "para_385" }, { "text": "water quality of nearby streams is necessary to determine how a solar farm will", "paragraph_id": "para_386" }, { "text": "affect that quality, the local governments fail to cite any evidence establishing that", "paragraph_id": "para_387" }, { "text": "the magnitude of runoff from Oak Run’s project will be meaningful. They point to", "paragraph_id": "para_388" }, { "text": "the testimony of an Oak Run witness who said that construction work “can” carry", "paragraph_id": "para_389" }, { "text": "eroded soil into nearby streams, but that general statement fails to convey any", "paragraph_id": "para_390" }, { "text": "details. They then speculate that Oak Run’s extensive earthmoving will create", "paragraph_id": "para_391" }, { "text": "“substantial opportunities” for soil-laden stormwater to flow into streams. But they", "paragraph_id": "para_392" }, { "text": "do not cite any evidence to support that statement. The local governments simply", "paragraph_id": "para_393" }, { "text": "have not explained how the water quality will be affected by Oak Run’s project,", "paragraph_id": "para_394" }, { "text": "which makes the preexisting water quality something of a moot point. Furthermore,", "paragraph_id": "para_395" }, { "text": "as explained below, Oak Run presented evidence that the construction of its solar", "paragraph_id": "para_396" }, { "text": "farm would not have a meaningful impact on nearby receiving streams.", "paragraph_id": "para_397" }, { "text": "{¶ 36} What is more, in its application for the construction certificate, Oak", "paragraph_id": "para_398" }, { "text": "Run states that the project has been designed to avoid permanent impacts on streams", "paragraph_id": "para_399" }, { "text": "and wetlands and that stormwater discharges are not expected to be significant and", "paragraph_id": "para_400" }, { "text": "would be only temporary during construction of the project. It further states that", "paragraph_id": "para_401" }, { "text": "the project will incorporate a stormwater-pollution-prevention plan (“SWPPP”)", "paragraph_id": "para_402" }, { "text": "that, among other things, adheres to specifications set out in the Rainwater and Land", "paragraph_id": "para_403" }, { "text": "Development Manual published by the Ohio Department of Natural Resources", "paragraph_id": "para_404" }, { "text": "(“ODNR”). The application establishes that the SWPPP will prevent construction", "paragraph_id": "para_405" }, { "text": "activities from harming water resources.", "paragraph_id": "para_406" }, { "text": "{¶ 37} In sum, even if Oak Run did not strictly comply with Adm.Code", "paragraph_id": "para_407" }, { "text": "4906-4-07(C)(1)(d), the local governments have failed to show harm from Oak", "paragraph_id": "para_408" }, { "text": "Run’s noncompliance with that provision.", "paragraph_id": "para_409" }, { "text": "January Term, 2026", "paragraph_id": "para_410" }, { "text": "15", "paragraph_id": "para_411" }, { "text": "2. Adm.Code 4906-4-07(C)(2)(b)", "paragraph_id": "para_412", "court_paragraph": 15 }, { "text": "{¶ 38} Adm.Code 4906-4-07(C)(2)(b) provides that an applicant must", "paragraph_id": "para_413" }, { "text": "submit “[i]nformation regarding water quality during construction” by providing", "paragraph_id": "para_414" }, { "text": "“[a]n estimate of the quality and quantity of aquatic discharges from the site", "paragraph_id": "para_415" }, { "text": "clearing and construction operations, including runoff and siltation from dredging,", "paragraph_id": "para_416" }, { "text": "filling, and construction of shoreside facilities.” The local governments argue that", "paragraph_id": "para_417" }, { "text": "Oak Run did not comply with that provision based on the testimony of an Oak Run", "paragraph_id": "para_418" }, { "text": "witness who stated that the application does not contain an estimate of the quality", "paragraph_id": "para_419" }, { "text": "and quantity of aquatic discharge during site-clearing and construction operations.", "paragraph_id": "para_420" }, { "text": "They conclude that the board acted unlawfully and unreasonably in issuing a", "paragraph_id": "para_421" }, { "text": "certificate without this information.", "paragraph_id": "para_422" }, { "text": "{¶ 39} However, our recent decision in Harvey Solar, 2025-Ohio-1503,", "paragraph_id": "para_423" }, { "text": "counsels otherwise. In that case, we rejected a similar argument because the", "paragraph_id": "para_424" }, { "text": "application explained that the project would not create any identifiable water-", "paragraph_id": "para_425" }, { "text": "related discharges and that construction would entail limited activities requiring", "paragraph_id": "para_426" }, { "text": "management of stormwater pollutants. Id. at ¶ 47-51. The application also", "paragraph_id": "para_427" }, { "text": "explained that no significant changes in flow patterns or erosion were anticipated", "paragraph_id": "para_428" }, { "text": "given the site’s level ground, which required only limited grading. Id. at ¶ 51. We", "paragraph_id": "para_429" }, { "text": "found that those descriptions met the rule’s requirement that an application provide", "paragraph_id": "para_430" }, { "text": "an “‘estimate’ of the ‘quality and quantity of aquatic discharges’ from construction", "paragraph_id": "para_431" }, { "text": "operations.” Id., quoting Adm.Code 4906-4-07(C)(2)(b); see also Alamo Solar,", "paragraph_id": "para_432" }, { "text": "2023-Ohio-3778, at ¶ 64 (reaching a similar conclusion).", "paragraph_id": "para_433" }, { "text": "{¶ 40} Harvey Solar is instructive here. Oak Run explained in its", "paragraph_id": "para_434" }, { "text": "application that project construction will not produce point-source aquatic", "paragraph_id": "para_435" }, { "text": "discharges to streams or wetlands, and it notes that stormwater discharges during", "paragraph_id": "para_436" }, { "text": "construction will be insignificant and temporary. Additionally, Oak Run stated in", "paragraph_id": "para_437" }, { "text": "its application that significant changes in flow patterns are unexpected, noting that", "paragraph_id": "para_438" }, { "text": "the project has been sited on agricultural land that will require minimal clearing and", "paragraph_id": "para_439" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_440" }, { "text": "16", "paragraph_id": "para_441" }, { "text": "grading. We therefore conclude that Oak Run complied with Adm.Code 4906-4-", "paragraph_id": "para_442", "court_paragraph": 16 }, { "text": "07(C)(2)(b).", "paragraph_id": "para_443" }, { "text": "{¶ 41} We accordingly reject the local governments’ third proposition of", "paragraph_id": "para_444" }, { "text": "law.", "paragraph_id": "para_445" }, { "text": "D. Whether the board obtained the required plant and wildlife information", "paragraph_id": "para_446" }, { "text": "{¶ 42} In their fourth proposition of law, the local governments assert that", "paragraph_id": "para_447" }, { "text": "the board erred in approving the project without obtaining the plant and wildlife", "paragraph_id": "para_448" }, { "text": "information required by Adm.Code 4906-4-08(B)(1)(c) and (d), 2017-2018 Ohio", "paragraph_id": "para_449" }, { "text": "Monthly Record 2-2998, 2-3000 (effective Apr. 26, 2018). In the local", "paragraph_id": "para_450" }, { "text": "governments’ view, had the board obtained this information, it would have been", "paragraph_id": "para_451" }, { "text": "positioned to make an informed decision about whether the project would harm", "paragraph_id": "para_452" }, { "text": "plants and wildlife in the area. The local governments maintain that because the", "paragraph_id": "para_453" }, { "text": "board did not obtain the information required by these rule provisions, it violated", "paragraph_id": "para_454" }, { "text": "R.C. 4906.10(A)(2) (“[t]he nature of the probable environmental impact”),", "paragraph_id": "para_455" }, { "text": "4906.10(A)(3) (“the minimum adverse environmental impact”), and 4906.10(A)(6)", "paragraph_id": "para_456" }, { "text": "(“the facility will serve the public interest, convenience, and necessity”).", "paragraph_id": "para_457" }, { "text": "1. Adm.Code 4906-4-08(B)(1)(c)", "paragraph_id": "para_458" }, { "text": "{¶ 43} Adm.Code 4906-4-08(B)(1)(c) requires that an applicant “[p]rovide", "paragraph_id": "para_459" }, { "text": "the results of a literature survey of the plant and animal life within at least one-", "paragraph_id": "para_460" }, { "text": "fourth mile of the project area boundary. The literature survey shall include aquatic", "paragraph_id": "para_461" }, { "text": "and terrestrial plant and animal species that are of commercial or recreational value,", "paragraph_id": "para_462" }, { "text": "or species designated as endangered or threatened.” The local governments claim", "paragraph_id": "para_463" }, { "text": "that the board ran afoul of the rule because Oak Run performed a literature search", "paragraph_id": "para_464" }, { "text": "for only threatened and endangered plant and animal species, eschewing other", "paragraph_id": "para_465" }, { "text": "species that are of commercial or recreational value but are not threatened or", "paragraph_id": "para_466" }, { "text": "endangered.", "paragraph_id": "para_467" }, { "text": "{¶ 44} The record shows that in performing its literature search, Oak Run", "paragraph_id": "para_468" }, { "text": "relied on information compiled by ODNR and the United States Fish and Wildlife", "paragraph_id": "para_469" }, { "text": "January Term, 2026", "paragraph_id": "para_470" }, { "text": "17", "paragraph_id": "para_471" }, { "text": "Service pertaining to threatened and endangered species (“listed species”) in the", "paragraph_id": "para_472", "court_paragraph": 17 }, { "text": "project area. Based on this information, Oak Run identified 25 listed species in the", "paragraph_id": "para_473" }, { "text": "project area.", "paragraph_id": "para_474" }, { "text": "{¶ 45} But while the local governments are technically correct that Oak", "paragraph_id": "para_475" }, { "text": "Run’s literature search did not extend beyond listed species, they ignore that other", "paragraph_id": "para_476" }, { "text": "information in the record touches on the project’s potential effect on unlisted", "paragraph_id": "para_477" }, { "text": "species. For example, Oak Run presented the direct testimony of Courtney", "paragraph_id": "para_478" }, { "text": "Dohoney, a senior associate project manager with Stantec Consulting Services,", "paragraph_id": "para_479" }, { "text": "Inc., which managed the associated surveys and assessments that Oak Run provided", "paragraph_id": "para_480" }, { "text": "to the board in conjunction with its application. Dohoney has been an", "paragraph_id": "para_481" }, { "text": "environmental consultant in the renewable-energy sector for 17 years and has a", "paragraph_id": "para_482" }, { "text": "Master’s degree in environmental management from Duke University. Dohoney", "paragraph_id": "para_483" }, { "text": "testified that the project was not anticipated to affect unlisted wildlife. She", "paragraph_id": "para_484" }, { "text": "explained Oak Run’s plan to develop wildlife corridors to allow wildlife to move", "paragraph_id": "para_485" }, { "text": "through the project area and to design perimeter fencing that would keep the area", "paragraph_id": "para_486" }, { "text": "stream open and unobstructed for wildlife. Given this testimony, it is hard to see", "paragraph_id": "para_487" }, { "text": "how the local governments were prejudiced by Oak Run’s failure to conduct a", "paragraph_id": "para_488" }, { "text": "literature search for unlisted wildlife. See Ohio Power Co., 2014-Ohio-4271, at", "paragraph_id": "para_489" }, { "text": "¶ 31.", "paragraph_id": "para_490" }, { "text": "{¶ 46} As for unlisted plants, Oak Run’s application contained information", "paragraph_id": "para_491" }, { "text": "establishing that the project site is predominantly composed of cropland, with", "paragraph_id": "para_492" }, { "text": "smatterings of upland forest, grassland, scrub shrub, and hydrophytic vegetation.", "paragraph_id": "para_493" }, { "text": "That is, the application apprised the board of the existence of plant species outside", "paragraph_id": "para_494" }, { "text": "of those classified as threatened or endangered. Oak Run accordingly provided the", "paragraph_id": "para_495" }, { "text": "board with what the local governments claim is missing.", "paragraph_id": "para_496" }, { "text": "{¶ 47} In sum, we conclude that the local governments have not been", "paragraph_id": "para_497" }, { "text": "prejudiced by any deficiency in Oak Run’s literature search.", "paragraph_id": "para_498" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_499" }, { "text": "18", "paragraph_id": "para_500" }, { "text": "2. Adm.Code 4906-4-08(B)(1)(d)", "paragraph_id": "para_501", "court_paragraph": 18 }, { "text": "{¶ 48} Adm.Code 4906-4-08(B)(1)(d) requires an applicant to “[c]onduct", "paragraph_id": "para_502" }, { "text": "and provide the results of field surveys of the plant and animal species identified in", "paragraph_id": "para_503" }, { "text": "the literature survey.” The local governments argue that Oak Run did not comply", "paragraph_id": "para_504" }, { "text": "with this rule provision, because it “did no field surveys other than to look for bats.”", "paragraph_id": "para_505" }, { "text": "The literature survey submitted with Oak Run’s application identified 25 listed", "paragraph_id": "para_506" }, { "text": "species, but Dohoney testified that the field survey conducted as part of Oak Run’s", "paragraph_id": "para_507" }, { "text": "application was limited to bats. Adm.Code 4906-4-08(B)(1)(d) directs that the", "paragraph_id": "para_508" }, { "text": "applicant provide the results of a field survey of the species identified in the", "paragraph_id": "para_509" }, { "text": "literature survey, not a subset of those species, but it does not “prescribe[] a specific", "paragraph_id": "para_510" }, { "text": "methodology for how field surveys are to be conducted,” Alamo Solar, 2023-Ohio-", "paragraph_id": "para_511" }, { "text": "3778, at ¶ 51.", "paragraph_id": "para_512" }, { "text": "{¶ 49} Even with this in mind, Oak Run did not comply with the rule in", "paragraph_id": "para_513" }, { "text": "conducting its field survey, because its literature survey listed birds, fish, and", "paragraph_id": "para_514" }, { "text": "mussels, in addition to bats. However, for us to reverse the board’s orders, the local", "paragraph_id": "para_515" }, { "text": "governments must show that they have been prejudiced by this rule violation. They", "paragraph_id": "para_516" }, { "text": "have not made that showing. Dohoney testified, and the board’s staff reported, that", "paragraph_id": "para_517" }, { "text": "the Oak Run project is not expected to result in significant impacts to listed species.", "paragraph_id": "para_518" }, { "text": "And as previously stated, the evidence establishes that the project is not anticipated", "paragraph_id": "para_519" }, { "text": "to impact unlisted wildlife. As for plants, the local governments failed to furnish", "paragraph_id": "para_520" }, { "text": "any evidence establishing that a field survey for plants would have been likely to", "paragraph_id": "para_521" }, { "text": "uncover the existence of new vegetation beyond that which is already known to be", "paragraph_id": "para_522" }, { "text": "in the area. And besides, the staff report noted that vegetative impacts would", "paragraph_id": "para_523" }, { "text": "primarily affect agricultural land. In sum, we conclude that the local governments", "paragraph_id": "para_524" }, { "text": "were not prejudiced by any deficiencies in Oak Run’s field survey.", "paragraph_id": "para_525" }, { "text": "{¶ 50} We accordingly reject the local governments’ fourth proposition of", "paragraph_id": "para_526" }, { "text": "law.", "paragraph_id": "para_527" }, { "text": "January Term, 2026", "paragraph_id": "para_528" }, { "text": "19", "paragraph_id": "para_529" }, { "text": "3. The prejudice analysis for the third and fourth propositions of law differs", "paragraph_id": "para_530", "court_paragraph": 19 }, { "text": "from the analysis for the second proposition of law", "paragraph_id": "para_531" }, { "text": "{¶ 51} The first and third opinions concurring in part and dissenting in part", "paragraph_id": "para_532" }, { "text": "criticize this opinion for analyzing the second proposition of law differently from", "paragraph_id": "para_533" }, { "text": "the third and fourth propositions of law regarding the question whether the local", "paragraph_id": "para_534" }, { "text": "governments have been prejudiced by Oak Run’s statutory noncompliance. See", "paragraph_id": "para_535" }, { "text": "opinion concurring in part and dissenting in part of Kennedy, C.J., ¶ 80-81; opinion", "paragraph_id": "para_536" }, { "text": "concurring in part and dissenting in part of Hawkins, J., ¶ 116, 121. Those separate", "paragraph_id": "para_537" }, { "text": "opinions equate Oak Run’s failure to provide the board with certain visual-impact", "paragraph_id": "para_538" }, { "text": "information under Adm.Code 4906-4-08(D)(4)(e) with its failure to provide the", "paragraph_id": "para_539" }, { "text": "board with baseline water-quality information under Adm.Code 4906-4-", "paragraph_id": "para_540" }, { "text": "07(C)(1)(d) and (C)(2)(b) and plant and wildlife information under Adm.Code", "paragraph_id": "para_541" }, { "text": "4906-4-08(B)(1)(c) and (d). However, in doing so, the first and third opinions", "paragraph_id": "para_542" }, { "text": "concurring in part and dissenting in part mistakenly collapse the prejudice analysis", "paragraph_id": "para_543" }, { "text": "into the statutory-compliance analysis. Oak Run’s project would not have the same", "paragraph_id": "para_544" }, { "text": "effect on local water quality and plants and wildlife as it would have on the", "paragraph_id": "para_545" }, { "text": "neighborhood viewshed; that difference affects our prejudice analysis under each", "paragraph_id": "para_546" }, { "text": "proposition of law and results in different conclusions regarding the resulting harm", "paragraph_id": "para_547" }, { "text": "to the local governments.", "paragraph_id": "para_548" }, { "text": "{¶ 52} As explained above, an applicant’s noncompliance with a statutory", "paragraph_id": "para_549" }, { "text": "requirement alone is not enough to warrant reversal of a board order. A party", "paragraph_id": "para_550" }, { "text": "seeking reversal of a board order must also show that it has been prejudiced by the", "paragraph_id": "para_551" }, { "text": "applicant’s statutory noncompliance. See Ohio Power Co., 2014-Ohio-4271, at", "paragraph_id": "para_552" }, { "text": "¶ 31. To find prejudice, we must be presented with record evidence showing that", "paragraph_id": "para_553" }, { "text": "the project’s impact on the local area would meaningfully change whatever the", "paragraph_id": "para_554" }, { "text": "baseline metric is. Here, the local governments have not shown how Oak Run’s", "paragraph_id": "para_555" }, { "text": "project would meaningfully affect the water quality or plants and wildlife in the", "paragraph_id": "para_556" }, { "text": "project area. Therefore, the record evidence supports our conclusions under the", "paragraph_id": "para_557" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_558" }, { "text": "20", "paragraph_id": "para_559" }, { "text": "third and fourth propositions of law that the local governments have not shown", "paragraph_id": "para_560", "court_paragraph": 20 }, { "text": "prejudice. And since there would likely be minimal impact on local water quality", "paragraph_id": "para_561" }, { "text": "and plants and wildlife with construction of the project, providing baseline", "paragraph_id": "para_562" }, { "text": "information regarding those metrics becomes less essential to the analysis, because", "paragraph_id": "para_563" }, { "text": "the project would not significantly change those things. To hold otherwise would", "paragraph_id": "para_564" }, { "text": "condense the two-part inquiry into the question whether an applicant strictly", "paragraph_id": "para_565" }, { "text": "complied with the statutory requirements when seeking a certificate for the", "paragraph_id": "para_566" }, { "text": "construction of a major utility facility.", "paragraph_id": "para_567" }, { "text": "{¶ 53} However, the visual-impact information that an applicant is required", "paragraph_id": "para_568" }, { "text": "to provide the board under Adm.Code 4906-4-08(D)(4)(e) is different. Oak Run", "paragraph_id": "para_569" }, { "text": "plans to erect several support structures that will range in height between 85 and", "paragraph_id": "para_570" }, { "text": "115 feet. Oak Run does not dispute the eventual construction of these structures", "paragraph_id": "para_571" }, { "text": "and instead argues that such structures do not statutorily qualify as “facilities,” an", "paragraph_id": "para_572" }, { "text": "argument that we reject. Whereas the local governments have not shown that the", "paragraph_id": "para_573" }, { "text": "project would affect the preexisting water quality or the local plants and wildlife,", "paragraph_id": "para_574" }, { "text": "the difference in terms of Oak Run’s failure to present the requisite visual-impact", "paragraph_id": "para_575" }, { "text": "information is significant. Constructing several 85- to 115-foot structures would", "paragraph_id": "para_576" }, { "text": "present a significant departure in the viewshed from what the baseline is (i.e., the", "paragraph_id": "para_577" }, { "text": "viewshed without those structures).", "paragraph_id": "para_578" }, { "text": "{¶ 54} Because the construction of the support structures would", "paragraph_id": "para_579" }, { "text": "significantly alter the viewshed, the visual-impact information required under the", "paragraph_id": "para_580" }, { "text": "administrative rules becomes more crucial, and the local governments have been", "paragraph_id": "para_581" }, { "text": "prejudiced by Oak Run’s failure to provide that information. This is the key", "paragraph_id": "para_582" }, { "text": "difference between the local governments’ second proposition of law and its third", "paragraph_id": "para_583" }, { "text": "and fourth propositions of law and why we find that the local governments have", "paragraph_id": "para_584" }, { "text": "been prejudiced only by Oak Run’s failure to provide the board with the requisite", "paragraph_id": "para_585" }, { "text": "visual-impact information.", "paragraph_id": "para_586" }, { "text": "January Term, 2026", "paragraph_id": "para_587" }, { "text": "21", "paragraph_id": "para_588" }, { "text": "E. Whether the board adequately accounted for safety concerns", "paragraph_id": "para_589", "court_paragraph": 21 }, { "text": "{¶ 55} In their fifth proposition of law, the local governments contend that", "paragraph_id": "para_590" }, { "text": "the board erred in finding that Oak Run’s project complies with R.C. 4906.10(A)(2)", "paragraph_id": "para_591" }, { "text": "(“[t]he nature of the probable environmental impact”), 4906.10(A)(3) (“the facility", "paragraph_id": "para_592" }, { "text": "represents the minimum adverse environmental impact”), and 4906.10(A)(6) (“the", "paragraph_id": "para_593" }, { "text": "facility will serve the public interest, convenience, and necessity”), despite the", "paragraph_id": "para_594" }, { "text": "threats posed to the area by the project’s planned BESS. The local governments", "paragraph_id": "para_595" }, { "text": "say that if the BESS were to fail, then fires and toxic gas could spread into the", "paragraph_id": "para_596" }, { "text": "community. The local governments contend that despite knowing these risks, the", "paragraph_id": "para_597" }, { "text": "board did not adopt adequate measures to protect against them.", "paragraph_id": "para_598" }, { "text": "1. Jurisdiction", "paragraph_id": "para_599" }, { "text": "{¶ 56} Before addressing the merits of this argument, we must determine", "paragraph_id": "para_600" }, { "text": "whether we have jurisdiction to do so. According to Oak Run and the board,", "paragraph_id": "para_601" }, { "text": "because the local governments failed to set forth the argument in their amended", "paragraph_id": "para_602" }, { "text": "notice of appeal, this court lacks jurisdiction to address it. They are mistaken.", "paragraph_id": "para_603" }, { "text": "{¶ 57} The procedure for seeking reversal of a board order is by filing a", "paragraph_id": "para_604" }, { "text": "notice of appeal “setting forth the order appealed from and the errors complained", "paragraph_id": "para_605" }, { "text": "of.” R.C. 4903.13; see also R.C. 4906.12. We have held that “[t]he assignments", "paragraph_id": "para_606" }, { "text": "of error enumerated in a notice of appeal ‘delimit the issues’ for the court’s", "paragraph_id": "para_607" }, { "text": "consideration.” In re Complaints of Lycourt-Donovan v. Columbia Gas of Ohio,", "paragraph_id": "para_608" }, { "text": "Inc., 2017-Ohio-7566, ¶ 44, quoting Cincinnati Gas & Elec. Co. v. Pub. Util.", "paragraph_id": "para_609" }, { "text": "Comm., 2004-Ohio-5466, ¶ 21. Accordingly, “[a] claim not set forth in the notice", "paragraph_id": "para_610" }, { "text": "of appeal deprives the court of jurisdiction to consider it.” Id.", "paragraph_id": "para_611" }, { "text": "{¶ 58} In their amended notice of appeal, the local governments complain", "paragraph_id": "para_612" }, { "text": "of eight errors, none of which explicitly speak in terms of the local governments’", "paragraph_id": "para_613" }, { "text": "safety concerns associated with the BESS. Even so, the local governments’ sixth", "paragraph_id": "para_614" }, { "text": "assignment of error in its amended notice of appeal cites pages 2 and 40 through 44", "paragraph_id": "para_615" }, { "text": "of its rehearing application filed with the board, and those pages do speak to the", "paragraph_id": "para_616" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_617" }, { "text": "22", "paragraph_id": "para_618" }, { "text": "local governments’ concerns about the BESS. “We have held that the sufficiency", "paragraph_id": "para_619", "court_paragraph": 22 }, { "text": "of a notice of appeal is ‘judged not merely by the form of words used but also by", "paragraph_id": "para_620" }, { "text": "their context.’” In re Letter of Notification Application of Columbia Gas of Ohio,", "paragraph_id": "para_621" }, { "text": "Inc., 2024-Ohio-4747, at ¶ 20, quoting Lycourt-Donovan at ¶ 45 (concluding that", "paragraph_id": "para_622" }, { "text": "the appellant had preserved a claim for review because its notice of appeal cited to", "paragraph_id": "para_623" }, { "text": "the pages of its rehearing application where it raised its claim of error to the Public", "paragraph_id": "para_624" }, { "text": "Utilities Commission). Applying this precept, we conclude that the local", "paragraph_id": "para_625" }, { "text": "governments preserved their BESS argument, and we therefore have jurisdiction to", "paragraph_id": "para_626" }, { "text": "address the merits of the local governments’ fifth proposition of law.", "paragraph_id": "para_627" }, { "text": "2. Merits", "paragraph_id": "para_628" }, { "text": "{¶ 59} Turning to the merits of the local governments’ fifth proposition of", "paragraph_id": "para_629" }, { "text": "law, the record establishes that Oak Run’s project will house a BESS consisting of", "paragraph_id": "para_630" }, { "text": "approximately 328 battery containers, along with 82 inverters and 82 transformers.", "paragraph_id": "para_631" }, { "text": "The BESS will consist of two equipment areas that occupy about 11 acres each", "paragraph_id": "para_632" }, { "text": "within the project area. Oak Run plans to use lithium-ion-battery technology.", "paragraph_id": "para_633" }, { "text": "{¶ 60} The local governments maintain that the board did not go far enough", "paragraph_id": "para_634" }, { "text": "to protect against the risks of harm posed by the BESS. They point to evidence", "paragraph_id": "para_635" }, { "text": "showing that lithium-ion batteries can catch fire and release toxic gas. And there", "paragraph_id": "para_636" }, { "text": "appears to be no dispute that there is no effective way to extinguish a lithium-ion-", "paragraph_id": "para_637" }, { "text": "battery fire and that after a fire starts, the only recourse is to try to prevent the fire", "paragraph_id": "para_638" }, { "text": "from spreading. In view of these risks, the local governments assert that the board", "paragraph_id": "para_639" }, { "text": "should not have approved the project without requiring Oak Run to provide for", "paragraph_id": "para_640" }, { "text": "measures to prevent the spread of fire and the release of fumes into the community", "paragraph_id": "para_641" }, { "text": "and that the board should have been more thorough in evaluating the availability of", "paragraph_id": "para_642" }, { "text": "water supplies to contain a fire once it starts.", "paragraph_id": "para_643" }, { "text": "{¶ 61} However, the local governments fail to contend with the full", "paragraph_id": "para_644" }, { "text": "evidentiary record regarding the BESS, its benefits, any potential risks it poses, and", "paragraph_id": "para_645" }, { "text": "the steps Oak Run would take to minimize those risks. Based on its review of the", "paragraph_id": "para_646" }, { "text": "January Term, 2026", "paragraph_id": "para_647" }, { "text": "23", "paragraph_id": "para_648" }, { "text": "evidence, the board found that the risks posed by the BESS do not outweigh the", "paragraph_id": "para_649", "court_paragraph": 23 }, { "text": "benefits. See 2024 WL 1465954 at *74; 2024 WL 4039785 at *8. As the board", "paragraph_id": "para_650" }, { "text": "observed, even the evidence put forth by one member of the local governments", "paragraph_id": "para_651" }, { "text": "established that the threat posed by lithium-ion batteries is unlikely to materialize", "paragraph_id": "para_652" }, { "text": "so long as the system is properly maintained, monitored, and secured. 2024 WL", "paragraph_id": "para_653" }, { "text": "1465954 at *74", "paragraph_id": "para_654" }, { "text": "{¶ 62} The local governments have failed to show that the BESS would not", "paragraph_id": "para_655" }, { "text": "be properly maintained, monitored, or secured, especially considering that Oak Run", "paragraph_id": "para_656" }, { "text": "intends to use warning signs, fencing, and gates to restrict access to the BESS.", "paragraph_id": "para_657" }, { "text": "Further, the BESS will be sited with enough distance from other equipment to", "paragraph_id": "para_658" }, { "text": "ensure that fire propagation does not occur, and the BESS will be located almost", "paragraph_id": "para_659" }, { "text": "one mile away from the nearest neighbors. The BESS will conform to the National", "paragraph_id": "para_660" }, { "text": "Fire Protection Association’s Standard for the Installation of Stationary Energy", "paragraph_id": "para_661" }, { "text": "Storage Systems, and a fire-protection engineer will review the fire-protection", "paragraph_id": "para_662" }, { "text": "design of the facility. Oak Run will develop an emergency-services-and-response", "paragraph_id": "para_663" }, { "text": "plan in consultation with local authorities, provide fire and emergency responders", "paragraph_id": "para_664" }, { "text": "with training and proper firefighting equipment to enable them to respond to", "paragraph_id": "para_665" }, { "text": "emergency situations at the BESS, and collaborate with local authorities to ensure", "paragraph_id": "para_666" }, { "text": "that sufficient water resources and a long-term water supply are available for any", "paragraph_id": "para_667" }, { "text": "firefighting needs, in accordance with the applicable fire code.", "paragraph_id": "para_668" }, { "text": "{¶ 63} The local governments object to the board’s allowing Oak Run to", "paragraph_id": "para_669" }, { "text": "work out some of the safety-related details in the future. As an example, one of the", "paragraph_id": "para_670" }, { "text": "conditions the board imposed in approving Oak Run’s application and granting it a", "paragraph_id": "para_671" }, { "text": "construction certificate provides that at least 30 days before the preconstruction", "paragraph_id": "para_672" }, { "text": "conference, Oak Run must file its emergency-services-and-response plan on the", "paragraph_id": "para_673" }, { "text": "board’s docket for the staff’s review. See 2024 WL 1465954 at *54-55, citing Joint", "paragraph_id": "para_674" }, { "text": "Exhibit No.1 (the staff’s report), Condition 17; 2024 WL 4039785 at *8.", "paragraph_id": "para_675" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_676" }, { "text": "24", "paragraph_id": "para_677" }, { "text": "{¶ 64} “It is well-settled that the board is not required to resolve every issue", "paragraph_id": "para_678", "court_paragraph": 24 }, { "text": "before issuing a certificate.” Harvey Solar, 2025-Ohio-1503, at ¶ 24. The board is", "paragraph_id": "para_679" }, { "text": "empowered to “impose conditions that are subject to monitoring for compliance by", "paragraph_id": "para_680" }, { "text": "board staff.” Alamo Solar, 2023-Ohio-3778, at ¶ 41. Here, the board’s decision to", "paragraph_id": "para_681" }, { "text": "allow Oak Run to work out some of the safety-related details of the proposed solar", "paragraph_id": "para_682" }, { "text": "facility and to impose on Oak Run certain conditions regarding those details does", "paragraph_id": "para_683" }, { "text": "not warrant reversal here.", "paragraph_id": "para_684" }, { "text": "{¶ 65} The first and third opinions concurring in part and dissenting in part", "paragraph_id": "para_685" }, { "text": "acknowledge that “the board is not required to resolve every issue before issuing a", "paragraph_id": "para_686" }, { "text": "certificate,” only to then turn around and require exactly that with respect to this", "paragraph_id": "para_687" }, { "text": "proposition of law. (Cleaned up.) Opinion concurring in part and dissenting in part", "paragraph_id": "para_688" }, { "text": "of Kennedy, C.J., at ¶ 82; opinion concurring in part and dissenting in part of", "paragraph_id": "para_689" }, { "text": "Hawkins, J., at ¶ 123, 127. Clearly, there is a limit to the details that can be fleshed", "paragraph_id": "para_690" }, { "text": "out in the future, but the deficiencies that the local governments allege regarding", "paragraph_id": "para_691" }, { "text": "the safety concerns presented by the BESS are well within the boundaries of what", "paragraph_id": "para_692" }, { "text": "can be fleshed out at a later date. There is no evidence in the record showing that", "paragraph_id": "para_693" }, { "text": "the risks associated with the BESS will materialize into actual harm beyond the", "paragraph_id": "para_694" }, { "text": "possibility that they could materialize into actual harm—something that is true with", "paragraph_id": "para_695" }, { "text": "any potentially hazardous material, regardless of the preventative steps taken—and", "paragraph_id": "para_696" }, { "text": "the board has imposed certain requirements on Oak Run to address the local", "paragraph_id": "para_697" }, { "text": "governments’ safety concerns. We think the BESS’s ultimate compliance with the", "paragraph_id": "para_698" }, { "text": "National Fire Protection Association’s Standard for the Installation of Stationary", "paragraph_id": "para_699" }, { "text": "Energy Storage Systems is a better safeguard than this court’s collective armchair", "paragraph_id": "para_700" }, { "text": "firefighting expertise.", "paragraph_id": "para_701" }, { "text": "{¶ 66} We accordingly reject the local governments’ fifth proposition of", "paragraph_id": "para_702" }, { "text": "law.", "paragraph_id": "para_703" }, { "text": "January Term, 2026", "paragraph_id": "para_704" }, { "text": "25", "paragraph_id": "para_705" }, { "text": "F. Whether the board obtained a completed application from Oak Run", "paragraph_id": "para_706", "court_paragraph": 25 }, { "text": "{¶ 67} In their sixth proposition of law, the local governments echo", "paragraph_id": "para_707" }, { "text": "previous themes, namely, that Oak Run did not file a complete application. But", "paragraph_id": "para_708" }, { "text": "whereas before, the local governments focused on Oak Run’s compliance with", "paragraph_id": "para_709" }, { "text": "particular board rules, here they focus more on first principles. They argue that", "paragraph_id": "para_710" }, { "text": "Ohio law puts the burden on an applicant to prove that its project meets the", "paragraph_id": "para_711" }, { "text": "requirements set forth in R.C. 4906.10(A), and they stress that the fairness and", "paragraph_id": "para_712" }, { "text": "accuracy of the board’s adjudicatory process, as well as the public’s ability to", "paragraph_id": "para_713" }, { "text": "meaningfully participate in that process, depend on the existence of a completed", "paragraph_id": "para_714" }, { "text": "application that has been submitted in compliance with the board’s rules. They", "paragraph_id": "para_715" }, { "text": "argue that by allowing this matter to proceed to a hearing and decision without a", "paragraph_id": "para_716" }, { "text": "complete application, the board shifted the burden of proof from Oak Run to the", "paragraph_id": "para_717" }, { "text": "local governments, requiring the latter to prove that the project does not comply", "paragraph_id": "para_718" }, { "text": "with the statute. The local governments also suggest that allowing this matter to", "paragraph_id": "para_719" }, { "text": "proceed to a hearing without a complete application is itself grounds for reversal of", "paragraph_id": "para_720" }, { "text": "the board’s orders.", "paragraph_id": "para_721" }, { "text": "1. Jurisdiction", "paragraph_id": "para_722" }, { "text": "{¶ 68} Before addressing the merits of this argument, we must again decide", "paragraph_id": "para_723" }, { "text": "whether we have jurisdiction over it. According to Oak Run and the board, because", "paragraph_id": "para_724" }, { "text": "the local governments failed raise this argument in their amended notice of appeal,", "paragraph_id": "para_725" }, { "text": "we lack jurisdiction to address it. Again, they are mistaken.", "paragraph_id": "para_726" }, { "text": "{¶ 69} None of the eight errors complained of in the local governments’", "paragraph_id": "para_727" }, { "text": "amended notice of appeal are written in the language reflected in their sixth", "paragraph_id": "para_728" }, { "text": "proposition of law. Even so, each error listed in the amended notice of appeal cites", "paragraph_id": "para_729" }, { "text": "pages 47 through 53 of the local governments’ rehearing application, which", "paragraph_id": "para_730" }, { "text": "advances the same argument contained in their sixth proposition of law. By citing", "paragraph_id": "para_731" }, { "text": "the relevant pages of their rehearing application in their amended notice of appeal,", "paragraph_id": "para_732" }, { "text": "the local governments have preserved their sixth proposition of law under R.C.", "paragraph_id": "para_733" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_734" }, { "text": "26", "paragraph_id": "para_735" }, { "text": "4903.13. See Notification Application of Columbia Gas, 2024-Ohio-4747, at ¶ 20.", "paragraph_id": "para_736", "court_paragraph": 26 }, { "text": "Accordingly, we reject Oak Run’s and the board’s jurisdictional argument and will", "paragraph_id": "para_737" }, { "text": "address the merits of the local governments’ sixth proposition of law.", "paragraph_id": "para_738" }, { "text": "2. Merits", "paragraph_id": "para_739" }, { "text": "{¶ 70} As previously stated, an applicant for a certificate of construction of", "paragraph_id": "para_740" }, { "text": "a major utility facility shall file with the board an application containing certain", "paragraph_id": "para_741" }, { "text": "statutorily required information and “[s]uch other information as the applicant may", "paragraph_id": "para_742" }, { "text": "consider relevant or as the board by rule or order may require.” R.C.", "paragraph_id": "para_743" }, { "text": "4906.06(A)(6). After receiving an application, the board’s chairperson shall", "paragraph_id": "para_744" }, { "text": "examine it and determine whether it complies with Adm.Code 4906-1 through", "paragraph_id": "para_745" }, { "text": "4906-7. Adm.Code 4906-3-06(A), 2015-2016 Ohio Monthly Record 2-1877", "paragraph_id": "para_746" }, { "text": "(effective Dec. 11, 2015). Within 60 days of receipt, the chairperson shall either", "paragraph_id": "para_747" }, { "text": "accept the application as complete or reject it as incomplete. Id. Upon receiving", "paragraph_id": "para_748" }, { "text": "an application that complies with R.C. 4906.06, the board shall fix a date for a", "paragraph_id": "para_749" }, { "text": "public hearing. R.C. 4906.07(A).", "paragraph_id": "para_750" }, { "text": "{¶ 71} In this case, the board informed Oak Run that it had filed a statutorily", "paragraph_id": "para_751" }, { "text": "compliant application, enabling the board’s staff to begin reviewing the application,", "paragraph_id": "para_752" }, { "text": "but the board cautioned Oak Run that staff might request additional information.", "paragraph_id": "para_753" }, { "text": "Some of the local governments disagreed that Oak Run had filed a statutorily", "paragraph_id": "para_754" }, { "text": "compliant application, so they filed a motion with the board requesting that it issue", "paragraph_id": "para_755" }, { "text": "an order directing Oak Run to file a supplement to its application. Among other", "paragraph_id": "para_756" }, { "text": "things, some of the local governments argued before the board, as they do here, that", "paragraph_id": "para_757" }, { "text": "Oak Run’s application did not contain enough information concerning visual", "paragraph_id": "para_758" }, { "text": "impacts, water-quality and mitigation measures, and plants and wildlife. At the", "paragraph_id": "para_759" }, { "text": "board’s hearing, an attorney examiner orally denied the motion, and in its opinion", "paragraph_id": "para_760" }, { "text": "and order, the board affirmed this ruling, explaining that the local governments had", "paragraph_id": "para_761" }, { "text": "an opportunity to request further information through discovery and to raise issues", "paragraph_id": "para_762" }, { "text": "January Term, 2026", "paragraph_id": "para_763" }, { "text": "27", "paragraph_id": "para_764" }, { "text": "with expert witnesses during the evidentiary hearing. See 2024 WL 1465954 at", "paragraph_id": "para_765", "court_paragraph": 27 }, { "text": "*37; 2024 WL 4039785 at *9.", "paragraph_id": "para_766" }, { "text": "{¶ 72} The fact that the board disagreed with the local governments about", "paragraph_id": "para_767" }, { "text": "the completeness of Oak Run’s application does not mean, as the local governments", "paragraph_id": "para_768" }, { "text": "contend, that the board shifted the burden of proof to them to prove that the project", "paragraph_id": "para_769" }, { "text": "does not comply with R.C. 4906.10(A). To begin with, the local governments have", "paragraph_id": "para_770" }, { "text": "not identified a guiding principle to assist us in determining when an administrative", "paragraph_id": "para_771" }, { "text": "agency has flipped the burden of proof from an applicant to an intervenor. Rather,", "paragraph_id": "para_772" }, { "text": "they seem to intuit that because they perceived the application to be incomplete,", "paragraph_id": "para_773" }, { "text": "they were left to disprove its completeness. The local governments must offer more", "paragraph_id": "para_774" }, { "text": "than a bare assertion to show reversible error. See Duke Energy Ohio, 2021-Ohio-", "paragraph_id": "para_775" }, { "text": "3301, at ¶ 35 (“The lack of an authority-based argument defeats [appellant’s]", "paragraph_id": "para_776" }, { "text": "contention.”). Beyond this, the local governments’ premise is simply wrong.", "paragraph_id": "para_777" }, { "text": "Nothing in the board’s decision conveys that the board presupposed that Oak Run’s", "paragraph_id": "para_778" }, { "text": "project was in accord with R.C. 4906.10(A)’s criteria and left it to the local", "paragraph_id": "para_779" }, { "text": "governments to disprove this presupposition. To the contrary, the board’s opinion", "paragraph_id": "para_780" }, { "text": "and order plainly establishes that the board viewed the evidence as “support[ing] a", "paragraph_id": "para_781" }, { "text": "finding that all the criteria in R.C. 4906.10(A) are satisfied for the construction,", "paragraph_id": "para_782" }, { "text": "operation, and maintenance of the Facility,” 2024 WL 1465954 at *81.", "paragraph_id": "para_783" }, { "text": "{¶ 73} The local governments also suggest that their ability to meaningfully", "paragraph_id": "para_784" }, { "text": "participate in the board’s process was thwarted by Oak Run’s incomplete", "paragraph_id": "para_785" }, { "text": "application.2 In facing such arguments before, we have observed that while an", "paragraph_id": "para_786" }, { "text": "2. The local governments also say that Oak Run’s incomplete application thwarted the general", "paragraph_id": "para_787" }, { "text": "public’s ability to provide informed input on the project. Because the general public is not a party", "paragraph_id": "para_788" }, { "text": "to this case and the local governments are, we focus on the interests of the latter. See State ex rel.", "paragraph_id": "para_789" }, { "text": "Martens v. Findlay Mun. Court, 2024-Ohio-5667, ¶ 10 (“The judicial power is the power to decide", "paragraph_id": "para_790" }, { "text": "specific cases between conflicting parties.”), citing Stanton v. State Tax Comm., 114 Ohio St. 658,", "paragraph_id": "para_791" }, { "text": "671-672 (1926). That said, it bears mentioning that before the board held its evidentiary hearing on", "paragraph_id": "para_792" }, { "text": "Oak Run’s application, it held a local public hearing in the community near where the project will", "paragraph_id": "para_793" }, { "text": "be sited, and at the time of the local public hearing, the board’s publicly available docket contained,", "paragraph_id": "para_794" }, { "text": "among other things, the staff’s report and dozens of filings from Oak Run containing thousands of", "paragraph_id": "para_795" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_796" }, { "text": "28", "paragraph_id": "para_797" }, { "text": "“information asymmetry will often exist between [an applicant] and [the", "paragraph_id": "para_798", "court_paragraph": 28 }, { "text": "applicant’s] opponent,” tools remain available for an opponent “to make its case.”", "paragraph_id": "para_799" }, { "text": "Duke Energy Ohio at ¶ 25, citing Adm.Code. 4906-2-14 (discovery), Adm.Code", "paragraph_id": "para_800" }, { "text": "4906-2-18 (depositions), Adm.Code 4906-2-22 (motions to compel discovery), and", "paragraph_id": "para_801" }, { "text": "Adm.Code 4906-2-23 (subpoenas). The same is true here. In addition to the tools", "paragraph_id": "para_802" }, { "text": "outlined in Duke Energy Ohio, the local governments had the opportunity in this", "paragraph_id": "para_803" }, { "text": "case to present testimony from their own witnesses, submit evidence for the record,", "paragraph_id": "para_804" }, { "text": "and cross-examine Oak Run’s witnesses. These tools enabled the local", "paragraph_id": "para_805" }, { "text": "governments to meaningfully participate in the case.", "paragraph_id": "para_806" }, { "text": "{¶ 74} The local governments assert in their merit brief that discovery and", "paragraph_id": "para_807" }, { "text": "cross-examination of witnesses cannot produce the studies required by the board’s", "paragraph_id": "para_808" }, { "text": "rules, because those studies “do not exist until an applicant generates them.” While", "paragraph_id": "para_809" }, { "text": "that may be true, if discovery and cross-examination by an applicant’s opponent", "paragraph_id": "para_810" }, { "text": "establish that the applicant failed to produce a study contemplated by a board rule", "paragraph_id": "para_811" }, { "text": "and that the opponent suffered harm from the applicant’s violation of the rule, then", "paragraph_id": "para_812" }, { "text": "the opponent will have shown that the board committed reversible error in issuing", "paragraph_id": "para_813" }, { "text": "an order approving the application, and we may accordingly enter judgment", "paragraph_id": "para_814" }, { "text": "reversing the board’s order and directing the board on remand to comply with its", "paragraph_id": "para_815" }, { "text": "rule.", "paragraph_id": "para_816" }, { "text": "{¶ 75} Lastly, the local governments are mistaken in their argument that", "paragraph_id": "para_817" }, { "text": "allowing the matter to proceed to a hearing without a complete application is itself", "paragraph_id": "para_818" }, { "text": "grounds for reversal. R.C. 4906.07(A) provides that the commission shall fix a date", "paragraph_id": "para_819" }, { "text": "for a public hearing after receiving an application that complies with R.C. 4906.06.", "paragraph_id": "para_820" }, { "text": "But as discussed above, to secure reversal of the board’s orders, the local", "paragraph_id": "para_821" }, { "text": "governments must show that they suffered prejudice from the orders, not merely", "paragraph_id": "para_822" }, { "text": "pages. When viewed in this context, the local governments’ position that the board “eviscerated the", "paragraph_id": "para_823" }, { "text": "public’s right to [provide] meaningful input” on the matter is unpersuasive.", "paragraph_id": "para_824" }, { "text": "January Term, 2026", "paragraph_id": "para_825" }, { "text": "29", "paragraph_id": "para_826" }, { "text": "that the board violated one of its own rules or, as the local governments argue here,", "paragraph_id": "para_827", "court_paragraph": 29 }, { "text": "a statute. See In re Complaint of Buckeye Energy Brokers, Inc. v. Palmer Energy", "paragraph_id": "para_828" }, { "text": "Co., 2014-Ohio-1532, ¶ 22 (observing that “[c]ase law is clear that an allegedly", "paragraph_id": "para_829" }, { "text": "aggrieved party must show that it suffered prejudice from a [board] order to warrant", "paragraph_id": "para_830" }, { "text": "reversal,” and rejecting the appellant’s argument that a violation of a “certification", "paragraph_id": "para_831" }, { "text": "statute[] causes inherent harm”). Our analysis of the local governments’ first five", "paragraph_id": "para_832" }, { "text": "propositions of law establishes that we have already considered whether the board’s", "paragraph_id": "para_833" }, { "text": "orders were decided on an incomplete application and caused prejudice to the local", "paragraph_id": "para_834" }, { "text": "governments. That analysis suffices for the purpose of the argument that the local", "paragraph_id": "para_835" }, { "text": "governments raise here.", "paragraph_id": "para_836" }, { "text": "{¶ 76} We accordingly reject the local governments’ sixth proposition of", "paragraph_id": "para_837" }, { "text": "law.", "paragraph_id": "para_838" }, { "text": "III. CONCLUSION", "paragraph_id": "para_839" }, { "text": "{¶ 77} The Ohio Power Siting Board’s orders are affirmed in part and", "paragraph_id": "para_840" }, { "text": "reversed in part, and we remand this matter to the board with instructions that it", "paragraph_id": "para_841" }, { "text": "more thoroughly address the Oak Run project’s visual impacts in accord with the", "paragraph_id": "para_842" }, { "text": "reasoning set forth herein analyzing the local governments’ second proposition of", "paragraph_id": "para_843" }, { "text": "law.", "paragraph_id": "para_844" }, { "text": "Orders affirmed in part", "paragraph_id": "para_845" }, { "text": "and reversed in part", "paragraph_id": "para_846" }, { "text": "and cause remanded.", "paragraph_id": "para_847" }, { "text": "__________________", "paragraph_id": "para_848" }, { "text": "KENNEDY, C.J., concurring in part and dissenting in part.", "paragraph_id": "para_849" }, { "text": "{¶ 78} I fully join the third opinion concurring in part in and dissenting in", "paragraph_id": "para_850" }, { "text": "part from the court’s judgment: I agree with the lead opinion’s decision requiring", "paragraph_id": "para_851" }, { "text": "appellee, the Ohio Power Siting Board, to obtain and review photographic", "paragraph_id": "para_852" }, { "text": "simulations or pictorial sketches of the major utility facility proposed by", "paragraph_id": "para_853" }, { "text": "intervening appellee, Oak Run Solar Project, L.L.C. However, Oak Run also failed", "paragraph_id": "para_854" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_855" }, { "text": "30", "paragraph_id": "para_856" }, { "text": "to provide adequate information regarding local water quality, local plant and", "paragraph_id": "para_857", "court_paragraph": 30 }, { "text": "wildlife, and the battery-energy-storage system (“BESS”) that would be built as", "paragraph_id": "para_858" }, { "text": "part of the project. I would find that appellants, the Board of Trustees for", "paragraph_id": "para_859" }, { "text": "Somerford Township, the Board of Trustees for Deercreek Township, the Board of", "paragraph_id": "para_860" }, { "text": "Trustees for Monroe Township, and the Madison County Board of Commissioners", "paragraph_id": "para_861" }, { "text": "(“the local governments”), were prejudiced by these failures and by the board’s", "paragraph_id": "para_862" }, { "text": "impermissible burden shifting. I write separately to emphasize how arbitrary and", "paragraph_id": "para_863" }, { "text": "unreasonable the lead opinion’s decision is.", "paragraph_id": "para_864" }, { "text": "{¶ 79} The board is a creature of statute. See R.C. 4906.02. Before it may", "paragraph_id": "para_865" }, { "text": "grant a certificate for the construction of a major utility facility, the board must", "paragraph_id": "para_866" }, { "text": "make specific findings based on information submitted by the applicant under", "paragraph_id": "para_867" }, { "text": "R.C. Ch. 4906 and the board’s associated rules. The burden of providing a", "paragraph_id": "para_868" }, { "text": "complete application to the board is on the applicant. See R.C. 4906.06(A).", "paragraph_id": "para_869" }, { "text": "{¶ 80} Oak Run did not satisfy its burden. It not only failed to provide the", "paragraph_id": "para_870" }, { "text": "board with photographic simulations or pictorial sketches of the proposed facility,", "paragraph_id": "para_871" }, { "text": "see lead opinion, ¶ 25, but it also failed to provide adequate water-quality studies,", "paragraph_id": "para_872" }, { "text": "see id. at ¶ 34, precise estimates of the quality and quantity of stormwater", "paragraph_id": "para_873" }, { "text": "discharges expected during construction of the facility, see id. at ¶ 40, literature", "paragraph_id": "para_874" }, { "text": "surveys regarding nonendangered species in the project area, see id. at ¶ 45, field", "paragraph_id": "para_875" }, { "text": "surveys of wildlife in the project area, see id. at ¶ 49, and an emergency-services-", "paragraph_id": "para_876" }, { "text": "and-response plan related to the BESS, see id. at ¶ 63.", "paragraph_id": "para_877" }, { "text": "{¶ 81} The water-quality and plant and wildlife data are necessary because", "paragraph_id": "para_878" }, { "text": "they provide important baseline information about the proposed-project area,", "paragraph_id": "para_879" }, { "text": "allowing the project’s effects to be adequately gauged. It is common sense that one", "paragraph_id": "para_880" }, { "text": "cannot measure a project’s environmental impacts, or adequately estimate its risks,", "paragraph_id": "para_881" }, { "text": "without a thorough understanding of the project area before construction begins.", "paragraph_id": "para_882" }, { "text": "Granting a construction certificate to Oak Run when it has failed to provide this", "paragraph_id": "para_883" }, { "text": "January Term, 2026", "paragraph_id": "para_884" }, { "text": "31", "paragraph_id": "para_885" }, { "text": "information harms the local governments by making it impossible to assess the", "paragraph_id": "para_886", "court_paragraph": 31 }, { "text": "project’s potential and actual environmental impacts.", "paragraph_id": "para_887" }, { "text": "{¶ 82} The local governments have also been prejudiced by Oak Run’s", "paragraph_id": "para_888" }, { "text": "incomplete emergency-services-and-response plan. Again, as the applicant, Oak", "paragraph_id": "para_889" }, { "text": "Run bears the burden of providing that information. See R.C. 4906.06(A). The", "paragraph_id": "para_890" }, { "text": "local governments need not “show that the BESS would not be properly maintained,", "paragraph_id": "para_891" }, { "text": "monitored, or secured,” as the lead opinion asserts, lead opinion at ¶ 62. While", "paragraph_id": "para_892" }, { "text": "“‘the board is not required to resolve every issue before issuing a certificate,’” id.", "paragraph_id": "para_893" }, { "text": "at ¶ 21, 64, quoting In re Application of Harvey Solar I, L.L.C., 2025-Ohio-1503,", "paragraph_id": "para_894" }, { "text": "¶ 24, leaving major features of a safety plan up in the air—like the identification of", "paragraph_id": "para_895" }, { "text": "a water source for preventing the spread of a lithium-ion-battery fire—is", "paragraph_id": "para_896" }, { "text": "unreasonable.", "paragraph_id": "para_897" }, { "text": "{¶ 83} These are not minute details that can be filled in later, nor are the", "paragraph_id": "para_898" }, { "text": "harms these omissions could cause easily rectified after the fact—in no small part", "paragraph_id": "para_899" }, { "text": "because without baseline data, the actual risks and ultimate toll of Oak Run’s", "paragraph_id": "para_900" }, { "text": "proposed project are hard to know. Oak Run neglected to provide entire surveys", "paragraph_id": "para_901" }, { "text": "and plans, not just a few stray details. Drawing the line at photographic simulations", "paragraph_id": "para_902" }, { "text": "and pictorial sketches, but not at water-quality studies, wildlife surveys, or fire-", "paragraph_id": "para_903" }, { "text": "safety plans, is arbitrary. The lead opinion lowers the bar that applicants seeking a", "paragraph_id": "para_904" }, { "text": "certificate to construct a major utility facility must clear, contrary to law. There is", "paragraph_id": "para_905" }, { "text": "a difference between allowing an applicant to “‘flesh out [the] details’” of a", "paragraph_id": "para_906" }, { "text": "proposed project in its final plan, id. at ¶ 21, quoting Harvey Solar at ¶ 25, and", "paragraph_id": "para_907" }, { "text": "allowing an applicant to escape its information-production burden.", "paragraph_id": "para_908" }, { "text": "{¶ 84} I would require Oak Run to satisfy its burden to produce to the board", "paragraph_id": "para_909" }, { "text": "information regarding baseline water-quality studies and local plant- and animal-", "paragraph_id": "para_910" }, { "text": "life surveys in the proposed-project area, as well as submit to the board a detailed", "paragraph_id": "para_911" }, { "text": "emergency-services-and-response plan. Because the court does otherwise, I concur", "paragraph_id": "para_912" }, { "text": "in part in and dissent in part from its judgment.", "paragraph_id": "para_913" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_914" }, { "text": "32", "paragraph_id": "para_915" }, { "text": "__________________", "paragraph_id": "para_916", "court_paragraph": 32 }, { "text": "BRUNNER, J., concurring in part and dissenting in part.", "paragraph_id": "para_917" }, { "text": "{¶ 85} I concur in the lead opinion with the exception of Part II(B). I would", "paragraph_id": "para_918" }, { "text": "find that appellee, the Ohio Power Siting Board, had before it adequate information", "paragraph_id": "para_919" }, { "text": "from which to determine the visual impacts of the proposed project. The record", "paragraph_id": "para_920" }, { "text": "contains sufficient depictions of intervening appellee Oak Run Solar Project,", "paragraph_id": "para_921" }, { "text": "L.L.C.’s proposed major utility facility from numerous public vantage points. I", "paragraph_id": "para_922" }, { "text": "therefore concur in part in and dissent in part from the court’s judgment and would", "paragraph_id": "para_923" }, { "text": "affirm the board’s orders granting Oak Run’s application for a certificate of", "paragraph_id": "para_924" }, { "text": "environmental compatibility and public need to construct a solar-powered electric-", "paragraph_id": "para_925" }, { "text": "generation facility.", "paragraph_id": "para_926" }, { "text": "I. Determining the visual impacts of the proposed solar project", "paragraph_id": "para_927" }, { "text": "{¶ 86} Appellants, the Board of Trustees for Somerford Township, the", "paragraph_id": "para_928" }, { "text": "Board of Trustees for Deercreek Township, the Board of Trustees for Monroe", "paragraph_id": "para_929" }, { "text": "Township, and the Madison County Board of Commissioners (collectively, “the", "paragraph_id": "para_930" }, { "text": "local governments”), oppose Oak Run’s proposed project. They argue that Oak", "paragraph_id": "para_931" }, { "text": "Run did not provide depictions of the project’s substations with its application and", "paragraph_id": "para_932" }, { "text": "allege that, as a result, the board did not have the necessary information concerning", "paragraph_id": "para_933" }, { "text": "the visual impacts of the project to make necessary, informed determinations", "paragraph_id": "para_934" }, { "text": "regarding whether the project represents the minimum adverse environmental", "paragraph_id": "para_935" }, { "text": "impacts under R.C. 4906.10(A)(3) and whether the project serves the public", "paragraph_id": "para_936" }, { "text": "interest, convenience, and necessity under R.C. 4906.10(A)(6).", "paragraph_id": "para_937" }, { "text": "{¶ 87} The fact that a particular component of the proposed project was not", "paragraph_id": "para_938" }, { "text": "specifically depicted in a visual format along with the depictions of other", "paragraph_id": "para_939" }, { "text": "components of the project that were submitted with Oak Run’s application does not", "paragraph_id": "para_940" }, { "text": "necessarily mean that the board did not have the information necessary to", "paragraph_id": "para_941" }, { "text": "adequately determine the project’s visual impacts. The visual depictions of a", "paragraph_id": "para_942" }, { "text": "proposed project as described in former Adm.Code 4906-4-08(D)(4)(e) that are to", "paragraph_id": "para_943" }, { "text": "January Term, 2026", "paragraph_id": "para_944" }, { "text": "33", "paragraph_id": "para_945" }, { "text": "be submitted with an application for a construction certificate provide the board", "paragraph_id": "para_946", "court_paragraph": 33 }, { "text": "preliminary information about the visual impacts of the proposed project. 2017-", "paragraph_id": "para_947" }, { "text": "2018 Ohio Monthly Record 2-998, 2-3002 (effective Apr. 26, 2018); see, e.g., In", "paragraph_id": "para_948" }, { "text": "re Application of S. Branch Solar, L.L.C., 2025-Ohio-5679, ¶ 27 (“A wildlife-", "paragraph_id": "para_949" }, { "text": "literature survey is a component of an application, but it is not the only information", "paragraph_id": "para_950" }, { "text": "the board receives about the potential ecological impacts of a project.”). Because", "paragraph_id": "para_951" }, { "text": "the final design of a project may change during the application process in response", "paragraph_id": "para_952" }, { "text": "to concerns voiced by local citizens about the project—for example, the exact size", "paragraph_id": "para_953" }, { "text": "of the solar panels that are ultimately used may not be finalized when the", "paragraph_id": "para_954" }, { "text": "application is filed, see In re Alamo Solar I, L.L.C., 2023-Ohio-3778, ¶ 34, or the", "paragraph_id": "para_955" }, { "text": "board may impose conditions requiring that certain design elements be used in the", "paragraph_id": "para_956" }, { "text": "construction of the project, see id. at ¶ 41—these visual depictions are informative,", "paragraph_id": "para_957" }, { "text": "but they are not determinative of nor do they limit board-approved changes to what", "paragraph_id": "para_958" }, { "text": "the project will look like once it is finally approved. See S. Branch Solar at ¶ 52.", "paragraph_id": "para_959" }, { "text": "{¶ 88} This is because the certification process is a “‘dynamic process,’” id.", "paragraph_id": "para_960" }, { "text": "at ¶ 11, quoting In re Application of Buckeye Wind, L.L.C., 2012-Ohio-878, ¶ 16", "paragraph_id": "para_961" }, { "text": "(lead opinion), one in which the board has the authority to require an applicant to", "paragraph_id": "para_962" }, { "text": "provide additional information or conduct additional studies, see R.C. 4906.03(A)", "paragraph_id": "para_963" }, { "text": "and (B). Furthermore, the board may waive requirements set forth in its own rules", "paragraph_id": "para_964" }, { "text": "that are not mandated by statute. See former Adm.Code 4906-4-01(B), 2015-2016", "paragraph_id": "para_965" }, { "text": "Ohio Monthly Record 2-1882, 2-1883 (effective Dec. 11, 2015). And even after", "paragraph_id": "para_966" }, { "text": "issuing a certificate for the construction of a major utility facility, the board retains", "paragraph_id": "para_967" }, { "text": "the authority to monitor the applicant’s compliance with any conditions that the", "paragraph_id": "para_968" }, { "text": "board imposed in granting the certificate and to ensure that the applicant continues", "paragraph_id": "para_969" }, { "text": "to take steps to adequately mitigate any potential negative impacts of the facility.", "paragraph_id": "para_970" }, { "text": "See S. Branch Solar at ¶ 11.", "paragraph_id": "para_971" }, { "text": "{¶ 89} Former Adm.Code 4906-4-08(D)(4)(e) required Oak Run to provide", "paragraph_id": "para_972" }, { "text": "with its application photographic simulations or artist’s pictorial sketches of the", "paragraph_id": "para_973" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_974" }, { "text": "34", "paragraph_id": "para_975" }, { "text": "proposed facility from a range of public vantage points, with accompanying", "paragraph_id": "para_976", "court_paragraph": 34 }, { "text": "explanations of the vantage points selected. The rule did not require Oak Run to", "paragraph_id": "para_977" }, { "text": "provide the board with depictions of every feature of the proposed project from", "paragraph_id": "para_978" }, { "text": "every possible public vantage point. Applying the rule to require this would result", "paragraph_id": "para_979" }, { "text": "in a laborious if not endless application process. The local governments argue that", "paragraph_id": "para_980" }, { "text": "the project’s substations, in particular, are “intrusive[] . . . looming structures,” so", "paragraph_id": "para_981" }, { "text": "it may be expected that the board would ask for some depictions of these structures", "paragraph_id": "para_982" }, { "text": "to help it assess the overall viewshed of the project.", "paragraph_id": "para_983" }, { "text": "{¶ 90} But it is too simplistic to equate the lack of any depictions of these", "paragraph_id": "para_984" }, { "text": "“looming” structures in Oak Run’s application to a failure of the board to consider", "paragraph_id": "para_985" }, { "text": "the potential negative impacts the substations would have on the viewshed in the", "paragraph_id": "para_986" }, { "text": "proposed-project area. It is a convenient misrepresentation of the record to assert", "paragraph_id": "para_987" }, { "text": "that the only depiction of the substations that the board considered was “a top-down", "paragraph_id": "para_988" }, { "text": "aerial photograph that appears to have been taken by a camera thousands of feet in", "paragraph_id": "para_989" }, { "text": "the air,” lead opinion, ¶ 30.", "paragraph_id": "para_990" }, { "text": "{¶ 91} Contrary to the lead opinion’s myopic view of the record, even a", "paragraph_id": "para_991" }, { "text": "cursory review of it plainly shows that the board could sufficiently determine the", "paragraph_id": "para_992" }, { "text": "visual impacts of the proposed project’s tallest structures. It is quite obvious that", "paragraph_id": "para_993" }, { "text": "any depiction of any unbuilt structure would provide only a general representation", "paragraph_id": "para_994" }, { "text": "of the visual impacts it would have on the area, not a definitive visual depiction of", "paragraph_id": "para_995" }, { "text": "every detail the structure would have once built. Whether the board should have", "paragraph_id": "para_996" }, { "text": "required Oak Run to submit additional visual depictions of the substations or certain", "paragraph_id": "para_997" }, { "text": "substation components before issuing a construction certificate is immaterial", "paragraph_id": "para_998" }, { "text": "because the local governments have not shown a realistic possibility that the board", "paragraph_id": "para_999" }, { "text": "would have reached a different conclusion but for that alleged error. Compare S.", "paragraph_id": "para_1000" }, { "text": "Branch Solar, 2025-Ohio-5679, at ¶ 33 (finding that challenger to board’s approval", "paragraph_id": "para_1001" }, { "text": "of construction certificate for a major utility facility failed to show how the board’s", "paragraph_id": "para_1002" }, { "text": "decision resulted in harm to him), with In re Black Fork Wind Energy, L.L.C., 2018-", "paragraph_id": "para_1003" }, { "text": "January Term, 2026", "paragraph_id": "para_1004" }, { "text": "35", "paragraph_id": "para_1005" }, { "text": "Ohio-5206, ¶ 25 (finding harm when the appellants showed “a realistic possibility", "paragraph_id": "para_1006", "court_paragraph": 35 }, { "text": "of a different outcome but for the board’s error”).", "paragraph_id": "para_1007" }, { "text": "II. The board’s determination regarding the visual impacts of the proposed", "paragraph_id": "para_1008" }, { "text": "project was not unreasonable", "paragraph_id": "para_1009" }, { "text": "A. Understanding the components of the proposed project’s substations", "paragraph_id": "para_1010" }, { "text": "{¶ 92} Regarding the visual impacts of the proposed project, the local", "paragraph_id": "para_1011" }, { "text": "governments are concerned primarily with the project’s three substations, each of", "paragraph_id": "para_1012" }, { "text": "which would be as high as 115 feet at some points and would occupy approximately", "paragraph_id": "para_1013" }, { "text": "15 to 18 acres. When Oak Run filed its application with photographic and pictorial", "paragraph_id": "para_1014" }, { "text": "renditions of the project, the substations had not yet been designed. So it is fair to", "paragraph_id": "para_1015" }, { "text": "question how the substations could alter the existing viewshed. As explained", "paragraph_id": "para_1016" }, { "text": "below, the record evidence in this case plainly shows the potential visual impacts", "paragraph_id": "para_1017" }, { "text": "the substations would have on the existing viewshed, even without their being", "paragraph_id": "para_1018" }, { "text": "depicted in the visual simulations.", "paragraph_id": "para_1019" }, { "text": "{¶ 93} For example, Oak Run’s application includes an aerial map of the", "paragraph_id": "para_1020" }, { "text": "proposed project area depicting where the project’s substations would be located.", "paragraph_id": "para_1021" }, { "text": "According to the application, underground cables would carry the electricity", "paragraph_id": "para_1022" }, { "text": "generated from the solar panels to two substations located in the interior area of the", "paragraph_id": "para_1023" }, { "text": "project. The electricity would then be carried from the substations using generation", "paragraph_id": "para_1024" }, { "text": "tie-in (“gen-tie”) lines mounted approximately 120 feet above the ground on steel-", "paragraph_id": "para_1025" }, { "text": "monopole structures. The two interior substations appear on the map as squares", "paragraph_id": "para_1026" }, { "text": "with light-green diagonal lines, and they are shown as being surrounded by solar-", "paragraph_id": "para_1027" }, { "text": "panel arrays, which are designated in red. The gen-tie lines will connect to a “step-", "paragraph_id": "para_1028" }, { "text": "up” substation, which is shown on the map as a square with teal-green", "paragraph_id": "para_1029" }, { "text": "crosshatching and is located at the entrance of the project area.", "paragraph_id": "para_1030" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1031" }, { "text": "36", "paragraph_id": "para_1032" }, { "text": "{¶ 94} Each substation would contain a dead-end support structure3 and be", "paragraph_id": "para_1033", "court_paragraph": 36 }, { "text": "equipped with at least one lightning mast. These structures would be approximately", "paragraph_id": "para_1034" }, { "text": "85 to 115 feet tall. The board’s staff explained in its report that the major", "paragraph_id": "para_1035" }, { "text": "components of the two interior substations would include two transformers, circuit", "paragraph_id": "para_1036" }, { "text": "breakers, surge arrestors, insulators, site-security fencing, control houses, and a", "paragraph_id": "para_1037" }, { "text": "lightning mast. Staff explained that the step-up substation would have similar", "paragraph_id": "para_1038" }, { "text": "components, including two additional transformers and a concrete barrier to", "paragraph_id": "para_1039" }, { "text": "mitigate noise. The application indicates that the concrete barrier around the step-", "paragraph_id": "para_1040" }, { "text": "up substation would be approximately 22 feet tall.", "paragraph_id": "para_1041" }, { "text": "{¶ 95} Michael Ivy, a senior development engineer for the proposed project,", "paragraph_id": "para_1042" }, { "text": "testified at the board’s hearing that the transformers that would be located at the", "paragraph_id": "para_1043" }, { "text": "two interior substations could range in height from 15 to 20 feet. Even if Oak Run", "paragraph_id": "para_1044" }, { "text": "were to use the largest solar panels considered for the project, the panels", "paragraph_id": "para_1045" }, { "text": "themselves, depending on their angle, would be a maximum height of about 12 feet.", "paragraph_id": "para_1046" }, { "text": "3. A description of this structure could not be located in the record.", "paragraph_id": "para_1047" }, { "text": "January Term, 2026", "paragraph_id": "para_1048" }, { "text": "37", "paragraph_id": "para_1049" }, { "text": "{¶ 96} Yet in finding that the board lacked the necessary information to", "paragraph_id": "para_1050", "court_paragraph": 37 }, { "text": "determine the visual impacts of the proposed project, the lead opinion does not", "paragraph_id": "para_1051" }, { "text": "explain which components of the proposed project’s substations the board failed to", "paragraph_id": "para_1052" }, { "text": "consider—the 15- to 20-foot transformers, the 85- to 115-foot lightning masts, the", "paragraph_id": "para_1053" }, { "text": "dead-end support structures, the 22-foot concrete barrier, the solar panels (their size", "paragraph_id": "para_1054" }, { "text": "or placement), or all of the above. Remanding this matter to the board to further", "paragraph_id": "para_1055" }, { "text": "consider “evidence bearing on proper photographic simulations or an artist’s", "paragraph_id": "para_1056" }, { "text": "pictorial sketches of the proposed substations,” lead opinion at ¶ 31, without", "paragraph_id": "para_1057" }, { "text": "explaining what the substations actually consist of misses the mark. Understanding", "paragraph_id": "para_1058" }, { "text": "the components of the project’s substations allows us to identify what may be", "paragraph_id": "para_1059" }, { "text": "missing from the simulations and photographs that Oak Run already submitted, and", "paragraph_id": "para_1060" }, { "text": "it renders remand unnecessary.", "paragraph_id": "para_1061" }, { "text": "B. The board had sufficient evidence to consider the visual impacts of the", "paragraph_id": "para_1062" }, { "text": "components of the proposed project’s substations", "paragraph_id": "para_1063" }, { "text": "{¶ 97} Oak Run did not include with its application visual renditions of the", "paragraph_id": "para_1064" }, { "text": "proposed project’s substations or their components, but it explained to the board", "paragraph_id": "para_1065" }, { "text": "that those parts of the project would be minimally visible from public vantage", "paragraph_id": "para_1066" }, { "text": "points, given their locations inside the solar-panel arrays and their distance from", "paragraph_id": "para_1067" }, { "text": "neighboring residences. Oak Run argued in its reply brief filed with the board that", "paragraph_id": "para_1068" }, { "text": "the step-up substation would be screened by trees and would be minimally visible,", "paragraph_id": "para_1069" }, { "text": "if visible at all, from the vantage points identified in its application. Essentially,", "paragraph_id": "para_1070" }, { "text": "even if Oak Run provides the board with depictions of the project’s substations and", "paragraph_id": "para_1071" }, { "text": "their components, those parts of the project would be seen minimally, if at all, from", "paragraph_id": "para_1072" }, { "text": "public vantage points.", "paragraph_id": "para_1073" }, { "text": "{¶ 98} It is clear from the record that the board recognized this: in its", "paragraph_id": "para_1074" }, { "text": "decision, the board specifically referred to the photographic simulations that Oak", "paragraph_id": "para_1075" }, { "text": "Run submitted with its application and made the factual finding that at distances of", "paragraph_id": "para_1076" }, { "text": "about 0.4 miles, the proposed project is “mostly absorbed into agricultural", "paragraph_id": "para_1077" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1078" }, { "text": "38", "paragraph_id": "para_1079" }, { "text": "landscape,” 2024 WL 1465954, *72 (Mar. 21, 2024). It further found that the", "paragraph_id": "para_1080", "court_paragraph": 38 }, { "text": "project would “become less noticeable in views greater than one mile at which point", "paragraph_id": "para_1081" }, { "text": "the individual modules [would] not be distinguishable and [would] appear", "paragraph_id": "para_1082" }, { "text": "contained within the existing agricultural setting.” Id. The board cited numerous", "paragraph_id": "para_1083" }, { "text": "parts of the record in support of its findings and concluded that", "paragraph_id": "para_1084" }, { "text": "as a result of components incorporated into the Project design,", "paragraph_id": "para_1085" }, { "text": "including vegetation, proposed Project structures, atmospheric", "paragraph_id": "para_1086" }, { "text": "conditions, landscape and lighting plans and Oak Run’s provided", "paragraph_id": "para_1087" }, { "text": "distance decay estimates and simulations, viewshed of the Project", "paragraph_id": "para_1088" }, { "text": "should be mostly absorbed into the landscape.", "paragraph_id": "para_1089" }, { "text": "Id. at *48. This conclusion was not derived from thin air or based only on the aerial", "paragraph_id": "para_1090" }, { "text": "map that Oak Run submitted with its application, as the lead opinion irresponsibly", "paragraph_id": "para_1091" }, { "text": "states, see lead opinion at ¶ 30; the facts supporting this conclusion are found in the", "paragraph_id": "para_1092" }, { "text": "record.", "paragraph_id": "para_1093" }, { "text": "{¶ 99} In its application, Oak Run included a visual-impact report prepared", "paragraph_id": "para_1094" }, { "text": "by Stantec Consulting Services, Inc., that contains numerous pictures of the", "paragraph_id": "para_1095" }, { "text": "proposed project from different public vantage points called key-observation points", "paragraph_id": "para_1096" }, { "text": "(“KOPs),” such as the roads traveled in and around the project area. Because the", "paragraph_id": "para_1097" }, { "text": "substation facilities had not yet been designed, that report focused mainly on the", "paragraph_id": "para_1098" }, { "text": "visual effects of the solar modules and the gen-tie lines.", "paragraph_id": "para_1099" }, { "text": "{¶ 100} Oak Run’s senior development engineer, Ivy, explained to the", "paragraph_id": "para_1100" }, { "text": "board at its hearing that some figures in the report show the proposed project site", "paragraph_id": "para_1101" }, { "text": "as it currently looks and others contain simulations of the solar-panel arrays and", "paragraph_id": "para_1102" }, { "text": "other aspects of the project. For example, Figure 6a shows the western view of the", "paragraph_id": "para_1103" }, { "text": "project site as it currently appears from a nearby roadside identified as KOP 2:", "paragraph_id": "para_1104" }, { "text": "January Term, 2026", "paragraph_id": "para_1105" }, { "text": "39", "paragraph_id": "para_1106" }, { "text": "{¶ 101} The next figure in the report, Figure 6b, depicts the same area but", "paragraph_id": "para_1107", "court_paragraph": 39 }, { "text": "includes a simulation of the solar-panel arrays that would be used in the proposed", "paragraph_id": "para_1108" }, { "text": "project; the simulation shows that solar-panel arrays would be set less than 0.1 mile", "paragraph_id": "para_1109" }, { "text": "away from KOP 2:", "paragraph_id": "para_1110" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1111" }, { "text": "40", "paragraph_id": "para_1112" }, { "text": "Figure 6b does not show the fencing or vegetative screening that Oak Run agreed", "paragraph_id": "para_1113", "court_paragraph": 40 }, { "text": "to use to minimize views of the project. As the caption explains, Figure 6b also", "paragraph_id": "para_1114" }, { "text": "depicts part of a gen-tie line, which would be located about one mile away from", "paragraph_id": "para_1115" }, { "text": "KOP 2, making it barely visible above the tree line in the left-side background of", "paragraph_id": "para_1116" }, { "text": "the image. Recall that the proposed gen-tie lines would be mounted approximately", "paragraph_id": "para_1117" }, { "text": "120 feet above the ground and the proposed lightning masts and dead-end support", "paragraph_id": "para_1118" }, { "text": "structures, which are not depicted in Figure 6b, would not exceed 115 feet tall.", "paragraph_id": "para_1119" }, { "text": "{¶ 102} Figure 8b in the report shows a simulation of the gen-tie lines from", "paragraph_id": "para_1120" }, { "text": "along the northbound lane of a public highway identified as KOP 4. The caption", "paragraph_id": "para_1121" }, { "text": "under Figure 8b states that the step-up substation would be located beyond the", "paragraph_id": "para_1122" }, { "text": "clustered vegetation seen in the background:", "paragraph_id": "para_1123" }, { "text": "January Term, 2026", "paragraph_id": "para_1124" }, { "text": "41", "paragraph_id": "para_1125" }, { "text": "{¶ 103} The caption further explains that the connection from the gen-tie", "paragraph_id": "para_1126", "court_paragraph": 41 }, { "text": "lines to the step-up substation is not depicted, because that connection would", "paragraph_id": "para_1127" }, { "text": "depend on the substation’s ultimate design. However, based on the record", "paragraph_id": "para_1128" }, { "text": "evidence, no component of the substation would exceed the height of the gen-tie-", "paragraph_id": "para_1129" }, { "text": "line poles that are depicted in Figure 8b. And because the components of the step-", "paragraph_id": "para_1130" }, { "text": "up substation would be beyond the tree line shown in Figure 8b, they would be", "paragraph_id": "para_1131" }, { "text": "minimally visible, if visible at all, from KOP 4.", "paragraph_id": "para_1132" }, { "text": "{¶ 104} The local governments argue that the proposed project’s", "paragraph_id": "para_1133" }, { "text": "substations are “intrusive[] . . . looming structures.” But even the tallest", "paragraph_id": "para_1134" }, { "text": "components of the substations are no taller than the gen-tie line shown in Figure", "paragraph_id": "para_1135" }, { "text": "6b, which is barely visible. And the step-up substation components would appear", "paragraph_id": "para_1136" }, { "text": "just beyond the tree line shown in the background in Figure 8b—hardly as looming", "paragraph_id": "para_1137" }, { "text": "as the gen-tie lines simulated in the foreground of that figure. The local", "paragraph_id": "para_1138" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1139" }, { "text": "42", "paragraph_id": "para_1140" }, { "text": "governments have not explained how these simulations would change if the missing", "paragraph_id": "para_1141", "court_paragraph": 42 }, { "text": "substation components were included in the depiction. The local governments are", "paragraph_id": "para_1142" }, { "text": "not entitled to reversal of the board’s orders, even if under its own rules the board", "paragraph_id": "para_1143" }, { "text": "should have required Oak Run to submit additional depictions of the project area.", "paragraph_id": "para_1144" }, { "text": "See S. Branch Solar, 2025-Ohio-5679, at ¶ 33, quoting In re Application of Ohio", "paragraph_id": "para_1145" }, { "text": "Power Co., 2018-Ohio-4698, ¶ 50 (“This court ‘will not reverse a [board] order", "paragraph_id": "para_1146" }, { "text": "based on speculation.’” [Bracketed text in original.]).", "paragraph_id": "para_1147" }, { "text": "III. The board’s orders should be affirmed", "paragraph_id": "para_1148" }, { "text": "{¶ 105} Oak Run is not required to ensure that the proposed project is", "paragraph_id": "para_1149" }, { "text": "completely shielded from neighbors’ or the public’s view. See id. at ¶ 43 (finding", "paragraph_id": "para_1150" }, { "text": "that the applicant was “not required to ensure that the solar panels [of its project]", "paragraph_id": "para_1151" }, { "text": "would be invisible or completely screened off from a neighbor’s property”). The", "paragraph_id": "para_1152" }, { "text": "board had adequate depictions and explanations of the facilities that would be built", "paragraph_id": "para_1153" }, { "text": "as part of the project to properly determine that the visual impacts of the project", "paragraph_id": "para_1154" }, { "text": "would be minimal.", "paragraph_id": "para_1155" }, { "text": "{¶ 106} The record shows that most of the substation components would be", "paragraph_id": "para_1156" }, { "text": "shielded from view by vegetation and therefore would not be visible even in a", "paragraph_id": "para_1157" }, { "text": "photographic simulation or pictorial sketch. And the local governments have not", "paragraph_id": "para_1158" }, { "text": "offered any evidence to show how the substation components might actually appear", "paragraph_id": "para_1159" }, { "text": "in any photographic simulations or pictorial sketches to establish that the board’s", "paragraph_id": "para_1160" }, { "text": "determination would have been different but for the omitted components.", "paragraph_id": "para_1161" }, { "text": "{¶ 107} The board is entitled to make reasonable inferences so long as the", "paragraph_id": "para_1162" }, { "text": "record contains probative evidence to support those inferences, see S. Branch Solar,", "paragraph_id": "para_1163" }, { "text": "2025-Ohio-5679, at ¶ 18, and such evidence is present here. This court’s remand", "paragraph_id": "para_1164" }, { "text": "is an unnecessary act of micromanagement that has the appearance of", "paragraph_id": "para_1165" }, { "text": "oversensitivity to local political concerns and that ignores the record evidence on", "paragraph_id": "para_1166" }, { "text": "which the board plainly based its decision. Because the board’s decision was", "paragraph_id": "para_1167" }, { "text": "adequately supported by the record, see id., this court should affirm the board’s", "paragraph_id": "para_1168" }, { "text": "January Term, 2026", "paragraph_id": "para_1169" }, { "text": "43", "paragraph_id": "para_1170" }, { "text": "orders granting a certificate of environmental compatibility and public need to Oak", "paragraph_id": "para_1171", "court_paragraph": 43 }, { "text": "Run. I therefore cannot join Part II(B) of the lead opinion. I thus concur in part in", "paragraph_id": "para_1172" }, { "text": "and dissent in part from the court’s judgment and would affirm the board’s orders.", "paragraph_id": "para_1173" }, { "text": "__________________", "paragraph_id": "para_1174" }, { "text": "HAWKINS, J., joined by KENNEDY, C.J., and SHANAHAN, J., concurring", "paragraph_id": "para_1175" }, { "text": "in part and dissenting in part.", "paragraph_id": "para_1176" }, { "text": "{¶ 108} The lead opinion today concludes that this case must be remanded", "paragraph_id": "para_1177" }, { "text": "to appellee, the Ohio Power Siting Board, for further proceedings because", "paragraph_id": "para_1178" }, { "text": "intervening appellee, Oak Run Solar Project, L.L.C., failed to provide adequate", "paragraph_id": "para_1179" }, { "text": "visual simulations or sketches of its proposed project from public vantage points", "paragraph_id": "para_1180" }, { "text": "when it submitted its application for a certificate to construct a major utility facility.", "paragraph_id": "para_1181" }, { "text": "See lead opinion, ¶ 2. With that I agree. I also agree with the lead opinion’s", "paragraph_id": "para_1182" }, { "text": "conclusion that Oak Run has otherwise taken steps to minimize the adverse visual", "paragraph_id": "para_1183" }, { "text": "impacts of the project, see id. at ¶ 16-22.", "paragraph_id": "para_1184" }, { "text": "{¶ 109} I cannot, however, join in the lead opinion’s conclusion that even", "paragraph_id": "para_1185" }, { "text": "though Oak Run failed to satisfy the water-quality-study and wildlife-survey", "paragraph_id": "para_1186" }, { "text": "requirements of the Ohio Administrative Code when it submitted its application to", "paragraph_id": "para_1187" }, { "text": "the board, appellants, the Board of Trustees for Somerford Township, the Board of", "paragraph_id": "para_1188" }, { "text": "Trustees for Deercreek Township, the Board of Trustees for Monroe Township, and", "paragraph_id": "para_1189" }, { "text": "the Madison County Board of Commissioners (collectively, “the local", "paragraph_id": "para_1190" }, { "text": "governments”), have failed to show that they have been prejudiced by that failure.", "paragraph_id": "para_1191" }, { "text": "Moreover, I disagree with the lead opinion’s conclusion that the board has", "paragraph_id": "para_1192" }, { "text": "accounted for safety concerns related to the on-site battery-energy storage system", "paragraph_id": "para_1193" }, { "text": "(“BESS”) and the lead opinion’s conclusion that the board did not shift to the local", "paragraph_id": "para_1194" }, { "text": "governments the burden that Oak Run was required by statute to satisfy.", "paragraph_id": "para_1195" }, { "text": "Accordingly, I concur in part in and dissent in part from the court’s judgment.", "paragraph_id": "para_1196" }, { "text": "{¶ 110} Under R.C. 4906.10(A), the board is prohibited from “grant[ing] a", "paragraph_id": "para_1197" }, { "text": "certificate for the construction, operation, and maintenance of a major utility", "paragraph_id": "para_1198" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1199" }, { "text": "44", "paragraph_id": "para_1200" }, { "text": "facility” unless it finds that all the factors enumerated in R.C. 4906.10(A)(1)", "paragraph_id": "para_1201", "court_paragraph": 44 }, { "text": "through (8) have been satisfied. Similarly, the applicant must submit an application", "paragraph_id": "para_1202" }, { "text": "that “conform[s] to the requirements of Chapters 4906-4 through 4906-6 of the", "paragraph_id": "para_1203" }, { "text": "Administrative Code.” Former Adm.Code 4906-2-04(B), 2015-2016 Ohio", "paragraph_id": "para_1204" }, { "text": "Monthly Record 2-1859 (effective Dec. 11, 2015). The law places the burden on", "paragraph_id": "para_1205" }, { "text": "the applicant to show that it has satisfied the statutory and administrative-rule", "paragraph_id": "para_1206" }, { "text": "requirements. See R.C. 4906.06(A). The lead opinion today accepts that Oak Run", "paragraph_id": "para_1207" }, { "text": "has failed to carry this burden. See lead opinion at ¶ 34, 45, 49. I agree.", "paragraph_id": "para_1208" }, { "text": "{¶ 111} But the lead opinion then concludes that the local governments", "paragraph_id": "para_1209" }, { "text": "have not shown that they have been prejudiced by the board’s decision to approve", "paragraph_id": "para_1210" }, { "text": "Oak Run’s application—an application that does not satisfy the requirements set", "paragraph_id": "para_1211" }, { "text": "forth in the Administrative Code. See id. at ¶ 2. To be sure, our case law recognizes", "paragraph_id": "para_1212" }, { "text": "that this court will not reverse the board’s order “unless the party seeking reversal", "paragraph_id": "para_1213" }, { "text": "shows that it has been or will be harmed or prejudiced by the order,” In re", "paragraph_id": "para_1214" }, { "text": "Complaint of Buckeye Energy Brokers, Inc. v. Palmer Energy Co., 2014-Ohio-", "paragraph_id": "para_1215" }, { "text": "1532, ¶ 19. That is, the appellant—here, the local governments—must show that it", "paragraph_id": "para_1216" }, { "text": "has been or will be “meaningfully affected” by the error, In re Application of", "paragraph_id": "para_1217" }, { "text": "Champaign Wind, L.L.C., 2016-Ohio-1513, ¶ 15.", "paragraph_id": "para_1218" }, { "text": "Water-quality studies", "paragraph_id": "para_1219" }, { "text": "{¶ 112} Former Adm.Code 4906-4-07(C)(1)(d) required Oak Run to", "paragraph_id": "para_1220" }, { "text": "demonstrate the water-quality baseline of any receiving stream by providing “at", "paragraph_id": "para_1221" }, { "text": "least one year of monitoring data, using appropriate Ohio environmental protection", "paragraph_id": "para_1222" }, { "text": "agency reporting requirements.” 2015-2016 Ohio Monthly Record 2-1886, 2-1887", "paragraph_id": "para_1223" }, { "text": "(effective Dec. 11, 2015). Former Adm.Code 4906-4-07(C)(2)(b), in turn, required", "paragraph_id": "para_1224" }, { "text": "Oak Run to “[p]rovide an estimate of the quality and quantity of aquatic discharges", "paragraph_id": "para_1225" }, { "text": "from the site clearing and construction operations.” Id. Though the lead opinion", "paragraph_id": "para_1226" }, { "text": "recognizes that Oak Run failed to satisfy former Adm.Code 4906-4-07(C)(1)(d)’s", "paragraph_id": "para_1227" }, { "text": "requirements, see lead opinion at ¶ 34, it dismisses the local governments’ concerns", "paragraph_id": "para_1228" }, { "text": "January Term, 2026", "paragraph_id": "para_1229" }, { "text": "45", "paragraph_id": "para_1230" }, { "text": "about the proposed project’s impact on local water quality as speculative, and it", "paragraph_id": "para_1231", "court_paragraph": 45 }, { "text": "analogizes this case to this court’s decision in In re Application of Harvey Solar I,", "paragraph_id": "para_1232" }, { "text": "L.L.C., 2025-Ohio-1503, see lead opinion at ¶ 39.", "paragraph_id": "para_1233" }, { "text": "{¶ 113} In Harvey Solar, this court held that an applicant’s failure to", "paragraph_id": "para_1234" }, { "text": "comply with the water-quality provisions of the Administrative Code when seeking", "paragraph_id": "para_1235" }, { "text": "a construction certificate was excusable because the applicant indicated in its", "paragraph_id": "para_1236" }, { "text": "application that “its project [would] not generate any water-related discharges or", "paragraph_id": "para_1237" }, { "text": "wastewater” and the project’s opponents “did not submit any evidence to prove", "paragraph_id": "para_1238" }, { "text": "otherwise.” Harvey Solar at ¶ 49; see also In re Application of Alamo Solar I,", "paragraph_id": "para_1239" }, { "text": "L.L.C., 2023-Ohio-3778, ¶ 63 (failure to comply with water-quality provisions of", "paragraph_id": "para_1240" }, { "text": "Administrative Code deemed excusable because applicant averred that “the", "paragraph_id": "para_1241" }, { "text": "projects [would] not create any water-related discharges or wastewater and there", "paragraph_id": "para_1242" }, { "text": "[would] be no streams receiving runoff”).", "paragraph_id": "para_1243" }, { "text": "{¶ 114} In my view, though, the local governments have shown that water-", "paragraph_id": "para_1244" }, { "text": "related discharges will occur with Oak Run’s proposed project, and they have", "paragraph_id": "para_1245" }, { "text": "shown that they will be meaningfully affected by the absence of baseline water-", "paragraph_id": "para_1246" }, { "text": "quality measurements. The Oak Run project calls for the grading of approximately", "paragraph_id": "para_1247" }, { "text": "500 acres of agricultural land. A senior development engineer for Oak Run testified", "paragraph_id": "para_1248" }, { "text": "that the construction work can carry eroded soil into nearby streams, and Oak Run", "paragraph_id": "para_1249" }, { "text": "explicitly noted in its application that while no point-source water discharges are", "paragraph_id": "para_1250" }, { "text": "likely to occur, stormwater discharges are expected. Other evidence shows that", "paragraph_id": "para_1251" }, { "text": "most of the project area drains immediately downstream into the Big Darby Creek", "paragraph_id": "para_1252" }, { "text": "watershed and that that watershed is at risk of losing many of its indigenous species", "paragraph_id": "para_1253" }, { "text": "if excess soil makes its way into the water. Perhaps in view of this probability, Oak", "paragraph_id": "para_1254" }, { "text": "Run stated in its application its intent to create a stormwater-pollution-prevention", "paragraph_id": "para_1255" }, { "text": "plan (“SWPPP”) to mitigate stormwater discharges. Without the rule-required", "paragraph_id": "para_1256" }, { "text": "water-quality measurements that should have been submitted by Oak Run with its", "paragraph_id": "para_1257" }, { "text": "application, however, the local governments will be unable, except at taxpayer cost,", "paragraph_id": "para_1258" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1259" }, { "text": "46", "paragraph_id": "para_1260" }, { "text": "to gauge the efficacy of the SWPPP and discern whether Oak Run’s construction", "paragraph_id": "para_1261", "court_paragraph": 46 }, { "text": "activities are harmful to the community’s downstream water supply. Indeed, the", "paragraph_id": "para_1262" }, { "text": "lead opinion acknowledges that “knowing the preexisting water quality of nearby", "paragraph_id": "para_1263" }, { "text": "steams is necessary to determine” the impact of the project on nearby water sources.", "paragraph_id": "para_1264" }, { "text": "See lead opinion at ¶ 35.", "paragraph_id": "para_1265" }, { "text": "{¶ 115} It is simply wishful thinking—in favor of the party with the", "paragraph_id": "para_1266" }, { "text": "statutory burden—to conclude that despite anticipated stormwater discharges from", "paragraph_id": "para_1267" }, { "text": "500 acres of graded land, the local governments can point to no evidence that", "paragraph_id": "para_1268" }, { "text": "meaningful runoff will occur. See id. If Oak Run believed that water-quality", "paragraph_id": "para_1269" }, { "text": "measurements were irrelevant to its proposed project and therefore did not need to", "paragraph_id": "para_1270" }, { "text": "be submitted with its application for a construction certificate, it was required to", "paragraph_id": "para_1271" }, { "text": "request advance permission from the board to omit that information from its", "paragraph_id": "para_1272" }, { "text": "application. See former Adm.Code 4906-4-01(B), 2015-2016 Ohio Monthly", "paragraph_id": "para_1273" }, { "text": "Record 2-1882, 2-1883 (effective Dec. 11, 2015). It neither requested nor obtained", "paragraph_id": "para_1274" }, { "text": "that permission, and the local governments are now left in the dark about the", "paragraph_id": "para_1275" }, { "text": "potential harm the project may pose to local water sources and the wildlife that use", "paragraph_id": "para_1276" }, { "text": "those sources. Those failures by Oak Run meaningfully affect the local", "paragraph_id": "para_1277" }, { "text": "governments.", "paragraph_id": "para_1278" }, { "text": "{¶ 116} I also fail to see how the lead opinion can find that the local", "paragraph_id": "para_1279" }, { "text": "governments have been prejudiced by Oak Run’s failure to provide the requisite", "paragraph_id": "para_1280" }, { "text": "photographic simulations with its application, see lead opinion at ¶ 31, but not make", "paragraph_id": "para_1281" }, { "text": "the same finding regarding the absence of baseline water-quality studies. The lead", "paragraph_id": "para_1282" }, { "text": "opinion today reverses the board’s decision with regard to the local governments’", "paragraph_id": "para_1283" }, { "text": "second proposition of law. Id. That reversal is warranted, the lead opinion", "paragraph_id": "para_1284" }, { "text": "explains, because Oak Run failed to satisfy the requirements of former Adm.Code", "paragraph_id": "para_1285" }, { "text": "4906-4-08(D)(4)(e), 2017-2018 Ohio Monthly Record 2-998, 2-3002 (effective", "paragraph_id": "para_1286" }, { "text": "Apr. 26, 2018), so the board was unable to make an informed decision about the", "paragraph_id": "para_1287" }, { "text": "visual impacts of the proposed project. See lead opinion at ¶ 31. That reasoning is", "paragraph_id": "para_1288" }, { "text": "January Term, 2026", "paragraph_id": "para_1289" }, { "text": "47", "paragraph_id": "para_1290" }, { "text": "conspicuously absent from the lead opinion’s analysis of the remaining", "paragraph_id": "para_1291", "court_paragraph": 47 }, { "text": "propositions of law. If Oak Run’s failure to satisfy the requirements of former", "paragraph_id": "para_1292" }, { "text": "Adm.Code 4906-4-08(D)(4)(e) prevented the board from making an informed", "paragraph_id": "para_1293" }, { "text": "decision about the visual impacts of the project, then so too did Oak Run’s failure", "paragraph_id": "para_1294" }, { "text": "to satisfy the requirements of former Adm.Code 4906-4-07(C)(1)(d) and (C)(2)(b)", "paragraph_id": "para_1295" }, { "text": "prevent the board from making an informed decision about the project’s potential", "paragraph_id": "para_1296" }, { "text": "effects on local water quality.", "paragraph_id": "para_1297" }, { "text": "Wildlife surveys", "paragraph_id": "para_1298" }, { "text": "{¶ 117} Former Adm.Code 4906-4-08(B)(1)(c) required Oak Run to", "paragraph_id": "para_1299" }, { "text": "“[p]rovide the results of a literature survey of the plant and animal life within at", "paragraph_id": "para_1300" }, { "text": "least one-fourth mile of the project area boundary,” including both plant and animal", "paragraph_id": "para_1301" }, { "text": "species that are “designated as endangered or threatened,” as well as plant and", "paragraph_id": "para_1302" }, { "text": "animal species that “are of commercial or recreational value.” 2017-2018 Ohio", "paragraph_id": "para_1303" }, { "text": "Monthly Record at 2-3000. In line with the lead opinion, I refer to endangered or", "paragraph_id": "para_1304" }, { "text": "threatened species as listed species and to species of commercial or recreational", "paragraph_id": "para_1305" }, { "text": "value as nonlisted or unlisted species. See lead opinion at ¶ 44-45. Former", "paragraph_id": "para_1306" }, { "text": "Adm.Code 4906-4-08(B)(1)(d) then required Oak Run to “[c]onduct and provide", "paragraph_id": "para_1307" }, { "text": "the results of field surveys of the plant and animal species identified in the literature", "paragraph_id": "para_1308" }, { "text": "survey.” 2017-2018 Ohio Monthly Record at 2-3000.", "paragraph_id": "para_1309" }, { "text": "{¶ 118} The lead opinion believes that even though Oak Run never", "paragraph_id": "para_1310" }, { "text": "performed a literature survey for nonlisted animals, Oak Run nevertheless provided", "paragraph_id": "para_1311" }, { "text": "the information required by the administrative rule because “other information in", "paragraph_id": "para_1312" }, { "text": "the record touches on the project’s potential effects on unlisted species,” lead", "paragraph_id": "para_1313" }, { "text": "opinion at ¶ 45. It points to the testimony of an environmental consultant for Oak", "paragraph_id": "para_1314" }, { "text": "Run who testified that the proposed project was “not anticipated to result in impacts", "paragraph_id": "para_1315" }, { "text": "to non-listed wildlife.”", "paragraph_id": "para_1316" }, { "text": "{¶ 119} That flimsy statement cannot carry Oak Run’s burden. I fail to see", "paragraph_id": "para_1317" }, { "text": "how Oak Run could say that the proposed project would not impact unlisted", "paragraph_id": "para_1318" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1319" }, { "text": "48", "paragraph_id": "para_1320" }, { "text": "wildlife, given that it never studied what types of unlisted wildlife could be present", "paragraph_id": "para_1321", "court_paragraph": 48 }, { "text": "within a quarter mile of the project’s boundary. Moreover, it is clear that the", "paragraph_id": "para_1322" }, { "text": "testimony presented by Oak Run’s consultant is based on conjecture alone and is", "paragraph_id": "para_1323" }, { "text": "limited to narrow circumstances involving only certain aquatic birds and flightless", "paragraph_id": "para_1324" }, { "text": "mammals. That is concerning, given that the literature survey that Oak Run did", "paragraph_id": "para_1325" }, { "text": "conduct identified numerous species of bats, fish, and mussels—all animals outside", "paragraph_id": "para_1326" }, { "text": "the scope of the witness’s speculative testimony. That literature survey identified", "paragraph_id": "para_1327" }, { "text": "25 listed species within the project area. It appears exceedingly likely, then, that", "paragraph_id": "para_1328" }, { "text": "the number of nonlisted species within the project area would far exceed 25.", "paragraph_id": "para_1329" }, { "text": "Indeed, testimony before the board highlighted the presence of red-tailed hawks,", "paragraph_id": "para_1330" }, { "text": "deer, coyotes, skunks, and racoons in the area surrounding the property. The lead", "paragraph_id": "para_1331" }, { "text": "opinion and the board’s rote deference to Oak Run on this aspect of Oak Run’s", "paragraph_id": "para_1332" }, { "text": "application precludes any serious inquiry into the potential impacts the project", "paragraph_id": "para_1333" }, { "text": "would have on nonlisted wildlife—an inquiry that is required under former", "paragraph_id": "para_1334" }, { "text": "Adm.Code 4906-4-08(B)(1)(c).", "paragraph_id": "para_1335" }, { "text": "{¶ 120} Worse still is the lead opinion’s treatment of Oak Run’s field", "paragraph_id": "para_1336" }, { "text": "survey. Though the literature survey identified 25 listed species of birds, fish, bats,", "paragraph_id": "para_1337" }, { "text": "and mussels in the proposed project area, Oak Run’s field survey consisted of a", "paragraph_id": "para_1338" }, { "text": "search for only endangered or threatened bat species. That means that Oak Run", "paragraph_id": "para_1339" }, { "text": "surveyed only four out of the 25 species identified in the literature survey and that", "paragraph_id": "para_1340" }, { "text": "it did not survey any of the nonlisted species since it failed to research any nonlisted", "paragraph_id": "para_1341" }, { "text": "animal species in the project’s boundary area. The lead opinion again concludes,", "paragraph_id": "para_1342" }, { "text": "though, that this is fine because Oak Run’s environmental consultant testified that", "paragraph_id": "para_1343" }, { "text": "the project was not expected to result in significant impacts to nonlisted wildlife.", "paragraph_id": "para_1344" }, { "text": "See lead opinion at ¶ 49. The law, however, required Oak Run to conduct and", "paragraph_id": "para_1345" }, { "text": "provide with its application the results of literature and field surveys, not mere", "paragraph_id": "para_1346" }, { "text": "speculation about whether the project was anticipated to impact nonlisted animals.", "paragraph_id": "para_1347" }, { "text": "The local governments, meanwhile, will be unable—without themselves", "paragraph_id": "para_1348" }, { "text": "January Term, 2026", "paragraph_id": "para_1349" }, { "text": "49", "paragraph_id": "para_1350" }, { "text": "conducting the studies that Oak Run was required by law to conduct—to gauge the", "paragraph_id": "para_1351", "court_paragraph": 49 }, { "text": "impact that the 6,050-acre facility will have on local wildlife. That, too,", "paragraph_id": "para_1352" }, { "text": "meaningfully affects the local governments.", "paragraph_id": "para_1353" }, { "text": "{¶ 121} I also must reiterate that the reasoning that the lead opinion", "paragraph_id": "para_1354" }, { "text": "employs in its analysis of the local governments’ second proposition of law applies", "paragraph_id": "para_1355" }, { "text": "here. So if, as the lead opinion concludes, Oak Run’s failure to satisfy the", "paragraph_id": "para_1356" }, { "text": "requirements of former Adm.Code 4906-4-08(D)(4)(e) prevented the board from", "paragraph_id": "para_1357" }, { "text": "making an informed decision regarding the visual impacts of the proposed project,", "paragraph_id": "para_1358" }, { "text": "then Oak Run’s failure to satisfy the requirements of former Adm.Code 4906-4-", "paragraph_id": "para_1359" }, { "text": "08(B)(1)(c) and 4906-4-08(B)(1)(d) likewise prevented the board from making an", "paragraph_id": "para_1360" }, { "text": "informed decision about the potential impacts the project would have on local", "paragraph_id": "para_1361" }, { "text": "wildlife. In an effort to excuse its inconsistent application of the Administrative", "paragraph_id": "para_1362" }, { "text": "Code, the lead opinion assumes that “there would likely be minimal impact on local", "paragraph_id": "para_1363" }, { "text": "water quality and plants and wildlife with construction of the project,” lead opinion", "paragraph_id": "para_1364" }, { "text": "at ¶ 52. Without the rule-required baseline information, however, I view this fragile", "paragraph_id": "para_1365" }, { "text": "claim as little more than a tenuous assumption.", "paragraph_id": "para_1366" }, { "text": "Battery-energy storage systems", "paragraph_id": "para_1367" }, { "text": "{¶ 122} Oak Run will house a BESS consisting of 328 large battery", "paragraph_id": "para_1368" }, { "text": "containers on approximately 11 acres of the proposed project site. The BESS is", "paragraph_id": "para_1369" }, { "text": "expected to use lithium-ion-battery technology, which poses a significant threat to", "paragraph_id": "para_1370" }, { "text": "the environment in the event of a fire. Evidence before the board showed that if", "paragraph_id": "para_1371" }, { "text": "the BESS catches fire, it cannot be extinguished; it must instead burn continuously", "paragraph_id": "para_1372" }, { "text": "until its fuel source is spent. To protect the surrounding area during a lithium-ion-", "paragraph_id": "para_1373" }, { "text": "battery fire, firefighters must set up a defensive perimeter around the fire and use", "paragraph_id": "para_1374" }, { "text": "water to prevent it from spreading. While a lithium-ion-battery fire burns, though,", "paragraph_id": "para_1375" }, { "text": "it releases hydrogen-fluoride gas into the atmosphere, which—when combined with", "paragraph_id": "para_1376" }, { "text": "ambient moisture—becomes hydrofluoric acid, a highly corrosive liquid and", "paragraph_id": "para_1377" }, { "text": "contact poison. A witness for Oak Run highlighted multiple instances of lithium-", "paragraph_id": "para_1378" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1379" }, { "text": "50", "paragraph_id": "para_1380" }, { "text": "ion-battery fires involving the Tesla Megapack, which is the battery tentatively", "paragraph_id": "para_1381", "court_paragraph": 50 }, { "text": "selected for use in the BESS.", "paragraph_id": "para_1382" }, { "text": "{¶ 123} In its application, Oak Run did not present a plan to address the", "paragraph_id": "para_1383" }, { "text": "risks posed by the BESS. It instead promised to provide an emergency-response", "paragraph_id": "para_1384" }, { "text": "plan to the board at some later date, and it claimed that it would comply with certain", "paragraph_id": "para_1385" }, { "text": "fire codes, inquire with local firefighters about the availability of water supplies,", "paragraph_id": "para_1386" }, { "text": "and provide firefighting equipment and training to those local firefighters. The", "paragraph_id": "para_1387" }, { "text": "board approved Oak Run’s application on the condition that Oak Run follow", "paragraph_id": "para_1388" }, { "text": "through with these promises. See 2024 WL 1465954, *55, 74, 82 (Mar. 21, 2024).", "paragraph_id": "para_1389" }, { "text": "The lead opinion today acknowledges that no developed fire-safety plans are in", "paragraph_id": "para_1390" }, { "text": "place for the proposed project, but it concludes that reversal of the board’s decision", "paragraph_id": "para_1391" }, { "text": "approving Oak Run’s application for a construction certificate is unwarranted on", "paragraph_id": "para_1392" }, { "text": "this issue because the board can monitor Oak Run’s compliance with the imposed", "paragraph_id": "para_1393" }, { "text": "fire-safety conditions throughout the construction process. See lead opinion at ¶ 64.", "paragraph_id": "para_1394" }, { "text": "This, in my view, is a mistake.", "paragraph_id": "para_1395" }, { "text": "{¶ 124} To be sure, this court has recognized “that the board is not required", "paragraph_id": "para_1396" }, { "text": "to resolve every issue before issuing a [construction] certificate,” Harvey Solar,", "paragraph_id": "para_1397" }, { "text": "2025-Ohio-1503, at ¶ 24; see also Alamo Solar, 2023-Ohio-3778, at ¶ 41. But I", "paragraph_id": "para_1398" }, { "text": "find application of that general practice to be a poor fit in this particular case.", "paragraph_id": "para_1399" }, { "text": "Unlike our recent invocation of that practice in the adverse-visual-impact context", "paragraph_id": "para_1400" }, { "text": "in Harvey Solar and Alamo Solar, see Harvey Solar at ¶ 18-25; Alamo Solar at", "paragraph_id": "para_1401" }, { "text": "¶ 36-41, the BESS in this case poses an immediate threat to the health and safety of", "paragraph_id": "para_1402" }, { "text": "members of the local communities. Oak Run’s plans to address the risks, however,", "paragraph_id": "para_1403" }, { "text": "are speculative at best. Oak Run acknowledges that it has not identified a water", "paragraph_id": "para_1404" }, { "text": "source capable of containing the spread of an 11-acre lithium-ion-battery fire. Oak", "paragraph_id": "para_1405" }, { "text": "Run’s promises also contain no indication that the public would be protected from", "paragraph_id": "para_1406" }, { "text": "the chemicals that would be released into the environment during a battery fire.", "paragraph_id": "para_1407" }, { "text": "The toxic chemicals released during such fires are known to cause gastrointestinal,", "paragraph_id": "para_1408" }, { "text": "January Term, 2026", "paragraph_id": "para_1409" }, { "text": "51", "paragraph_id": "para_1410" }, { "text": "cardiovascular, endocrine, and neurological diseases. Moreover, there is no", "paragraph_id": "para_1411", "court_paragraph": 51 }, { "text": "indication that the local firefighters (to whom the inflated fire-fighting", "paragraph_id": "para_1412" }, { "text": "responsibilities will now fall) would be capable—even with equipment and training", "paragraph_id": "para_1413" }, { "text": "provided by Oak Run—of containing such a colossal fire. Until the fire-safety", "paragraph_id": "para_1414" }, { "text": "plans are more fully developed, the local governments will be unable to determine", "paragraph_id": "para_1415" }, { "text": "whether their communities will be safe from the potential harm of a battery fire.", "paragraph_id": "para_1416" }, { "text": "{¶ 125} Environmental harms, once caused, are less easily mended than", "paragraph_id": "para_1417" }, { "text": "fences and shrubs. We should not allow the board to avoid its responsibility of", "paragraph_id": "para_1418" }, { "text": "resolving this particular issue in this case. See In re Application of Buckeye Wind,", "paragraph_id": "para_1419" }, { "text": "L.L.C., 2012-Ohio-878, ¶ 53 (Lundberg Stratton, J., dissenting) (“Issues are not to", "paragraph_id": "para_1420" }, { "text": "be settled after construction is approved, much less by unaccountable staff", "paragraph_id": "para_1421" }, { "text": "members without public scrutiny or judicial review.” [Emphasis in original.]).", "paragraph_id": "para_1422" }, { "text": "Burden shifting", "paragraph_id": "para_1423" }, { "text": "{¶ 126} The aforementioned defects in Oak Run’s application share in", "paragraph_id": "para_1424" }, { "text": "common an absence of meaningful oversight from the board. To obtain approval", "paragraph_id": "para_1425" }, { "text": "of its application, Oak Run was required to submit a complete application to the", "paragraph_id": "para_1426" }, { "text": "chairperson of the board. See R.C. 4906.06(A). Oak Run did not do that. The", "paragraph_id": "para_1427" }, { "text": "chairperson was then required to examine the application to determine whether it", "paragraph_id": "para_1428" }, { "text": "complied with Chapters 4906-1 to 4906-7 of the Administrative Code, and within", "paragraph_id": "para_1429" }, { "text": "60 days of receipt, he or she was required to reject the application if it was", "paragraph_id": "para_1430" }, { "text": "incomplete. Former Adm.Code 4906-3-06(A), 2015-2016 Ohio Monthly Record", "paragraph_id": "para_1431" }, { "text": "2-1877 (effective Dec. 11, 2015). The chairperson did not do that. Instead, the", "paragraph_id": "para_1432" }, { "text": "chairperson accepted Oak Run’s “application as complete,” former Adm.Code", "paragraph_id": "para_1433" }, { "text": "4906-3-06(A)(1), 2015-2016 Ohio Monthly Record at 2-1877, and forwarded the", "paragraph_id": "para_1434" }, { "text": "application to the board’s staff for review—though not without indicating that staff", "paragraph_id": "para_1435" }, { "text": "“[could] request additional information to ensure [s]taff [could] continue to conduct", "paragraph_id": "para_1436" }, { "text": "its review of the application.” The local governments filed with the board a motion", "paragraph_id": "para_1437" }, { "text": "for an order directing Oak Run to supplement its application with the missing", "paragraph_id": "para_1438" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1439" }, { "text": "52", "paragraph_id": "para_1440" }, { "text": "information, but their request was flatly denied by an administrative-law judge. In", "paragraph_id": "para_1441", "court_paragraph": 52 }, { "text": "affirming that administrative-law judge’s holding, the board noted that the local", "paragraph_id": "para_1442" }, { "text": "governments “had an opportunity to request” the missing information “during", "paragraph_id": "para_1443" }, { "text": "discovery” and that the local governments could have raised their concerns “with", "paragraph_id": "para_1444" }, { "text": "expert witnesses during the evidentiary hearing,” 2024 WL 1465954 at *37.", "paragraph_id": "para_1445" }, { "text": "{¶ 127} Expecting the local governments to obtain by discovery and expert-", "paragraph_id": "para_1446" }, { "text": "witness testimony the information that Oak Run was required by statute to include", "paragraph_id": "para_1447" }, { "text": "in its application amounts to burden shifting. We must give effect to the words of", "paragraph_id": "para_1448" }, { "text": "a statute, see, e.g., State v. Beatty, 2024-Ohio-5684, ¶ 8, and the statute here places", "paragraph_id": "para_1449" }, { "text": "the burden on Oak Run to submit a complete application, see R.C. 4906.06(A); see", "paragraph_id": "para_1450" }, { "text": "also former Adm.Code 4906-2-04(B), 2015-2016 Ohio Monthly Record at 2-1859.", "paragraph_id": "para_1451" }, { "text": "The lead opinion’s assertion that the local governments “have not identified a", "paragraph_id": "para_1452" }, { "text": "guiding principle to assist us in determining when an administrative agency has", "paragraph_id": "para_1453" }, { "text": "flipped the burden of proof from an applicant to an intervenor,” lead opinion at", "paragraph_id": "para_1454" }, { "text": "¶ 72, rings hollow given the burden-setting mandates of the Revised Code and the", "paragraph_id": "para_1455" }, { "text": "Administrative Code. Moreover, it would be impossible for the local governments", "paragraph_id": "para_1456" }, { "text": "to obtain the missing information in discovery because that information—water-", "paragraph_id": "para_1457" }, { "text": "quality studies, wildlife surveys, and a developed fire-safety plan—do not exist", "paragraph_id": "para_1458" }, { "text": "until they are obtained by Oak Run. Nor could the local governments be expected", "paragraph_id": "para_1459" }, { "text": "to obtain the missing information by conducting the research themselves because", "paragraph_id": "para_1460" }, { "text": "Oak Run is the only party with access to the proposed project site to perform the", "paragraph_id": "para_1461" }, { "text": "studies that the law requires.", "paragraph_id": "para_1462" }, { "text": "{¶ 128} As explained above, we have recognized that “the board is not", "paragraph_id": "para_1463" }, { "text": "required to resolve every issue before issuing a [construction] certificate,” Harvey", "paragraph_id": "para_1464" }, { "text": "Solar, 2025-Ohio-1503, at ¶ 24; see also Alamo Solar, 2023-Ohio-3778, at ¶ 41.", "paragraph_id": "para_1465" }, { "text": "This court has invoked this reasoning, though, in connection with R.C. 4906.10(A),", "paragraph_id": "para_1466" }, { "text": "which allows the board to conditionally approve an otherwise incomplete", "paragraph_id": "para_1467" }, { "text": "application, thus allowing an applicant to “flesh out the details” of some aspects of", "paragraph_id": "para_1468" }, { "text": "January Term, 2026", "paragraph_id": "para_1469" }, { "text": "53", "paragraph_id": "para_1470" }, { "text": "a project “as the construction process evolves,” Alamo Solar at ¶ 41. But there is", "paragraph_id": "para_1471", "court_paragraph": 53 }, { "text": "no indication here that the board conditioned its approval of Oak Run’s application", "paragraph_id": "para_1472" }, { "text": "on Oak Run’s eventual compliance with the water-quality-study and wildlife-", "paragraph_id": "para_1473" }, { "text": "survey provisions of the Administrative Code. Moreover, as explained above, I", "paragraph_id": "para_1474" }, { "text": "find the application of this practice to be a poor fit in this particular case.", "paragraph_id": "para_1475" }, { "text": "{¶ 129} Oak Run is in the best position to understand the environmental", "paragraph_id": "para_1476" }, { "text": "harm that its proposed project poses to the local communities, which is why Ohio", "paragraph_id": "para_1477" }, { "text": "law places the burden on Oak Run to submit an application that satisfies the", "paragraph_id": "para_1478" }, { "text": "requirements of the Administrative Code. Expecting the local governments, at", "paragraph_id": "para_1479" }, { "text": "taxpayer expense, to obtain the information that Oak Run was supposed to provide", "paragraph_id": "para_1480" }, { "text": "with its application is the wrong precedent to set.", "paragraph_id": "para_1481" }, { "text": "Conclusion", "paragraph_id": "para_1482" }, { "text": "{¶ 130} There is no disputing the fact that Ohio’s energy needs are growing", "paragraph_id": "para_1483" }, { "text": "by the day. The General Assembly has authorized the construction of commercial", "paragraph_id": "para_1484" }, { "text": "solar farms as one way to address these needs and has given the board the authority", "paragraph_id": "para_1485" }, { "text": "under R.C. 4906.10 to approve or disapprove applications for the construction of", "paragraph_id": "para_1486" }, { "text": "such facilities—an often unenviable task given the frequent objections of local", "paragraph_id": "para_1487" }, { "text": "residents who reside near a particular project area. Though local residents have no", "paragraph_id": "para_1488" }, { "text": "power to “veto” the board’s approval of an application for a certificate to construct", "paragraph_id": "para_1489" }, { "text": "a large-scale major utility facility, they have the right to ask questions of the board", "paragraph_id": "para_1490" }, { "text": "to ensure their safety and quality of life are not compromised. And they have the", "paragraph_id": "para_1491" }, { "text": "right to expect that the board will follow the law when deciding whether to approve", "paragraph_id": "para_1492" }, { "text": "an application, particularly when a project as large and unprecedented as Oak Run’s", "paragraph_id": "para_1493" }, { "text": "is being considered for construction in their backyard.", "paragraph_id": "para_1494" }, { "text": "{¶ 131} Here, in its quest to build the nation’s largest and first-of-its-kind", "paragraph_id": "para_1495" }, { "text": "utility-scale solar “agrivoltaics” program in Madison County, Oak Run submitted", "paragraph_id": "para_1496" }, { "text": "an application that the board—both when the application was filed and throughout", "paragraph_id": "para_1497" }, { "text": "these proceedings—acknowledged was incomplete under the Administrative Code.", "paragraph_id": "para_1498" }, { "text": "SUPREME COURT OF OHIO", "paragraph_id": "para_1499" }, { "text": "54", "paragraph_id": "para_1500" }, { "text": "Oak Run’s “we’ll get that information to you later” approach, and the board’s", "paragraph_id": "para_1501", "court_paragraph": 54 }, { "text": "acquiescence to it, might be understandable when it comes to the number of trees", "paragraph_id": "para_1502" }, { "text": "that will be planted or what color the facility will be painted.", "paragraph_id": "para_1503" }, { "text": "{¶ 132} But when the local governments ask, “Will our water be polluted?”", "paragraph_id": "para_1504" }, { "text": "or “Will local wildlife be destroyed?” or “Will our properties be safe from fire?”", "paragraph_id": "para_1505" }, { "text": "the board’s response amounts to either “We’ll figure that out later” or “Oak Run", "paragraph_id": "para_1506" }, { "text": "promises it’ll be ok.” These answers not only ignore the requirements set forth in", "paragraph_id": "para_1507" }, { "text": "the Administrative Code, they dismiss the real concerns of the local governments", "paragraph_id": "para_1508" }, { "text": "and leave the citizens of Madison County to question whether such concerns would", "paragraph_id": "para_1509" }, { "text": "have been left unanswered had Oak Run proposed such a project in Columbus.", "paragraph_id": "para_1510" }, { "text": "{¶ 133} Though I concur in the court’s judgment remanding this case to the", "paragraph_id": "para_1511" }, { "text": "Power Siting Board for additional proceedings, I would also order Oak Run to", "paragraph_id": "para_1512" }, { "text": "supplement its application with the missing information before the board conducts", "paragraph_id": "para_1513" }, { "text": "a new hearing. Accordingly, I concur in part and dissent in part.", "paragraph_id": "para_1514" }, { "text": "__________________", "paragraph_id": "para_1515" }, { "text": "Van Kley Law, L.L.C., and Jack A. Van Kley, for appellants.", "paragraph_id": "para_1516" }, { "text": "Dave Yost, Ohio Attorney General, and John Jones and Ambrosia E.", "paragraph_id": "para_1517" }, { "text": "Wilson, Assistant Attorneys General, for appellee.", "paragraph_id": "para_1518" }, { "text": "Dickinson Wright, P.L.L.C., Christine M.T. Pirik, Jonathan R. Secrest,", "paragraph_id": "para_1519" }, { "text": "David A. Lockshaw Jr., Terrence O’Donnell, and Matthew C. McDonnell, for", "paragraph_id": "para_1520" }, { "text": "intervening appellee.", "paragraph_id": "para_1521" }, { "text": "Hubay Dougherty and Trent Dougherty; and Sabin Center for Climate", "paragraph_id": "para_1522" }, { "text": "Change Law, Columbia Law School, and Matthew Eisenson, urging affirmance for", "paragraph_id": "para_1523" }, { "text": "amicus curiae Dr. John Boeckl.", "paragraph_id": "para_1524" }, { "text": "Chris Tavenor and Karin Nordstrom, urging affirmance for amicus curiae", "paragraph_id": "para_1525" }, { "text": "Ohio Environmental Council.", "paragraph_id": "para_1526" }, { "text": "January Term, 2026", "paragraph_id": "para_1527" }, { "text": "55", "paragraph_id": "para_1528" }, { "text": "Flannery Georgalis, L.L.C., W. Benjamin Reese, and Matthew L. 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