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1. Confirm the project is ready to solicit
Before inviting proposals, validate the site and the owner’s constraints. The U.S. Department of Energy’s Federal Energy Management Program recommends screening the project, site, finances and regulatory requirements before procurement. Its PV procurement guidance is a useful starting point for public owners.
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- Building and site: Document usable roof or land area, orientation, shading, structural loading, roof condition and expected replacement date. Include planned renovations or changes in building use that could affect system placement or energy demand.
- Energy and utility: Assemble available bills or interval data, the applicable tariff, supply contract, demand charges and any existing on-site generation. Confirm what the utility requires for interconnection and how it treats exported electricity.
- Approvals and access: Identify permitting, public procurement, land or building approvals, site access restrictions, safety requirements and construction logistics. Note hazards and any constraints on working around students, staff or public services.
- Project goals: Decide whether the priority is lowest lifecycle cost, budget certainty, renewable-energy claims, resilience, local labor or sourcing, educational value, speed, or some combination. Make trade-offs explicit.
Resolve known site uncertainties where practical before bidding; otherwise disclose them and ask all bidders to price or qualify the same assumptions. An unresolved roof replacement or interconnection question can change both project economics and schedule.
2. Issue an outcome-focused RFP with shared assumptions
A strong solicitation tells bidders what outcome the public owner needs and gives them enough consistent information to propose it. EPA provides RFP and solicitation resources, while the National Laboratory of the Rockies (NLR) offers public-sector energy RFP guidance. NLR advises aligning evaluation criteria with the agency’s goals, focusing requirements on system performance, requiring certified equipment, supplying useful site information and distributing the solicitation broadly.
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Request a common set of information from every bidder so that the responses can be compared. Specify the proposed scope, design assumptions, system size, estimated output and any production guarantee; equipment and certifications; applicable codes and safety approach; milestones and schedule; permitting and interconnection responsibilities; monitoring, maintenance and operating plan; warranties; and complete draft contract terms. Ask bidders to identify exclusions, dependencies, owner responsibilities and assumptions rather than burying them in narrative.
Use a published evaluation method consistent with local procurement rules. A practical approach is to assign each criterion a weight that reflects the goals already stated in the RFP, then score evidence against a defined scale—for example, from not responsive to fully substantiated. Set the weights and scale before opening proposals, document the reasons for each score, and apply the same process to every bidder. There is no universal weighting: site condition, jurisdiction, funding and owner priorities differ.
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3. Compare proposals across the same decision criteria
The matrix below can be adapted to the project. Ask for evidence, not just assurances; the documents in the right column help reviewers distinguish a supported commitment from a sales claim.
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| Criterion | What to compare | Evidence to request or verify |
|---|---|---|
| Project and site fit | Layout, shading, roof or structural constraints, energy demand, utility tariff, interconnection feasibility and compatibility with future site plans. | Site-specific design, stated assumptions, utility coordination plan and explanation of how known building work affects the design. |
| Technical response | System size and production assumptions, design approach, certified equipment, codes, safety, monitoring and maintenance. | Equipment schedule, production model and assumptions, applicable certifications, safety plan and operations and maintenance plan. |
| Provider capacity and delivery | Relevant experience, references, licenses and training, financial capacity, staffing, schedule, construction plan and responsibility for permits and interconnection. | Comparable project references, named project team, milestone schedule, role allocation and documentation requested by the solicitation. |
| Financial value | For an owned system, total project cost and lifecycle assumptions; for a PPA, price per kWh, escalator, term, bill impacts and relevant transaction costs. | Itemized price or PPA schedule, stated utility-price and incentive assumptions, and a model using the owner’s common comparison assumptions. |
| Contract and lifecycle risk | Equipment and roof warranties, maintenance, performance remedies, insurance and indemnity, access, REC ownership, buyout or transfer rights, and end-of-term disposition. | Draft contract, warranty documents, responsibility matrix and clear descriptions of remedies, exclusions and options. |
| Public goals | Local labor or sourcing, educational opportunities, resilience, speed, emissions or renewable claims, and lifecycle cost—according to the goals in the RFP. | Specific commitments, deliverables and contract language that make each scored benefit verifiable. |
Do not let a low headline price outweigh material omissions. If a response changes a shared assumption, excludes an owner cost or leaves a key responsibility unclear, record that difference and seek clarification through the same procurement process for all relevant bidders.
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4. Check roof condition and building compatibility
A rooftop proposal depends on more than available square footage. Evaluate shading, orientation, structural capacity, remaining roof life, planned replacement timing and compatibility between the installation and roof warranty. NLR’s solar RFP guidance recommends obtaining written certification that installation will not adversely affect the roof warranty, or an equivalent substitute warranty. Require the bidder to explain attachment methods, penetrations, maintenance access and who bears responsibility if roof work or solar equipment affects the other system.
5. Compare ownership models on lifecycle value
A direct purchase and a power purchase agreement (PPA) assign costs, ownership and operating responsibilities differently. Pennsylvania DEP’s Solar for Schools resources include school-oriented materials and proformas for both direct ownership and PPAs. Use a consistent model for each option, including output, utility-price assumptions, financing, incentives, responsibilities and contract risks; do not compare a financed ownership case with a PPA using different assumptions.
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| Model | Who owns the system | What to compare |
|---|---|---|
| Direct purchase | The public owner buys and owns the asset; it may hire a developer to design, procure, install and commission the system. | Total project and financing cost, expected output, applicable incentives, ongoing operations and maintenance, utility-bill effects, warranties and the owner’s capacity to manage the asset. |
| PPA | A developer owns and operates the PV system, while the host purchases its output under contract. | Contract price per kWh, escalator, term, production guarantee, bill effects, operating obligations, REC ownership, buyout and transfer rights, and end-of-term options. |
EPA explains that a PPA can avoid upfront capital and shift performance and operating responsibilities to the developer, but it can involve negotiation complexity and administrative costs—particularly when solar does not meet all of a site’s demand. Model the whole electricity bill and the public owner’s obligations, not only the first-year PPA rate. EPA describes PPA terms as typically six to as long as 25 years and annual escalators as often 1–5%; these are general ranges, not a forecast or a benchmark for accepting a particular bid. Check current offers and local conditions against the actual contract.
6. Read PPA, environmental-claim and exit terms closely
For a PPA, confirm how the contract handles each of the following before scoring the offer:
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- Price and escalation: Identify the starting price per kWh, how and when it changes, the contract term, and any conditions that alter the rate.
- Production and remedies: Check what output is guaranteed, how it is measured, what exclusions apply, and what remedy follows if performance falls short.
- Operations and access: Establish who maintains and repairs the system, monitors it, coordinates outages and has access to the building or site.
- Renewable claims and RECs: Determine who owns the renewable energy certificates (RECs) and what environmental or solar-use claims the school or public agency may make. EPA explains the relationship between REC ownership and renewable-energy claims in its PPA guidance.
- Changes and exit: Review buyout rights, transferability if the building is sold or repurposed, and end-of-term choices, including who removes or retains equipment and who pays associated costs.
Also review insurance, indemnity, utility relationship and allocation of permitting, interconnection and other owner responsibilities. PPA legality, REC rules, utility arrangements and approval requirements vary by location, so have procurement and legal staff review the actual terms.
7. Verify local rules and document the selection
In the United States, tariffs, net metering, interconnection rules, incentives, PPA legality, REC markets, permitting and public approvals vary by state, utility and locality. Confirm the applicable rules with the utility and the owner’s procurement and legal staff rather than importing an assumption from another jurisdiction.
There is also a current England-specific procurement development: UK Department for Education guidance published 16 July 2026 says that, from 15 July 2026, school-estate PPAs must use the DfE PPA and land-lease template under its stated approval process. The guidance describes a pilot for up to 150 institutions in Yorkshire and Humber, East Midlands, and South East, with procurement beginning in autumn 2026. This applies to the described England program, not to U.S. or other jurisdictions; check the live DfE guidance for its current terms.
Before award, keep a record of the solicitation criteria, bid clarifications, score rationale, conflicts handled under local rules, and the reasons the selected proposal best meets the published goals. Make any final conditions, deliverables and negotiated commitments part of the contract, subject to applicable procurement rules. A transparent record helps the owner explain not only which proposal won, but why it offered the strongest fit for the building and public purpose.
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