Introduction
In the fight against housing insecurity and climate change, affordable housing developers are stepping up with innovative solutions that blend sustainability with community empowerment. Yet, even with forward-thinking design and mission-driven vision, they often face unforeseen regulatory and utility barriers. One such case emerged in Chapel Hill, North Carolina, where a nonprofit’s low-income housing initiative—P.E.A.C.H. Apartments—stood completed but powerless. Quite literally.
At the center of this story lies a tug-of-war between EMPOWERment Inc., a nonprofit developer, and Duke Energy, one of the largest utility companies in the U.S. The conflict revolved around electrical metering requirements, rooftop solar usage, and long-standing utility policies. What unfolded was not just a standoff over building codes and solar panels, but a moment that revealed deep cracks in how we power affordable housing in a clean energy future.
The Birth of P.E.A.C.H. Apartments: A Mission of Empowerment
The Pine Knolls Empowerment Affordable Community Housing (P.E.A.C.H.) Apartments were designed as a beacon of hope for individuals and families facing housing insecurity in Chapel Hill. Spearheaded by EMPOWERment Inc., the complex consists of 10 deeply affordable units, built to serve tenants earning less than 30% of the Area Median Income (AMI)—a population that often struggles to secure any form of stable housing.
The design philosophy wasn’t merely to house people—it was to uplift them. Each unit was built with energy efficiency in mind, including rooftop solar panels and a single electrical meter intended to reduce utility costs and streamline operations. The idea was simple: include electricity in rent and manage the utility centrally. For tenants, it meant predictable costs and fewer burdens. For EMPOWERment Inc., it was an opportunity to advance sustainable housing while minimizing administrative complexity.
By April 2025, the building was complete, the community was ready, and the solar panels were in place. All that remained was connecting to the power grid.
When the Switch Didn’t Flip: Duke Energy’s Rejection
Things took a sharp turn in February 2025, when Duke Energy refused to activate electric service to the newly built apartments. Despite having previously installed underground service lines based on submitted plans in October 2024, the utility company changed course and stated it would not provide power unless the building was reconfigured to have individual meters for each unit.
According to Duke Energy, the North Carolina Utilities Commission (NCUC) regulations required separate meters for new residential units unless the building explicitly qualified under exemptions—such as lease agreements that include utilities in rent. EMPOWERment Inc. believed they qualified under this clause and had structured leases accordingly.
But Duke’s stance was firm: no power without individual meters.
This decision left the building effectively dead in the water. Ten completed units, ready for occupancy, sat dark and vacant. Ten families, some formerly unhoused or housing insecure, remained in limbo.
Financial and Social Costs of Delay
The demand to rewire the building for ten individual meters came with an estimated cost of $86,000—a massive unbudgeted expense for a nonprofit operating on grants and public funds. More than just money, it meant an additional 3–6 months of delays, potentially exposing the unoccupied building to mold, humidity, and structural damage during a hot North Carolina summer.
For tenants, it wasn’t just a delay—it was another door slammed shut in the pursuit of housing stability. For EMPOWERment Inc., it was an attack on their mission. For observers, it raised the question: why are we discouraging clean energy adoption and efficiency-based housing at a time when both are urgently needed?
The Solar Paradox: Clean Energy Meets Outdated Policy
A central irony in the conflict was that the building was solar-ready, and yet, its solar energy potential was being throttled by policy interpretations rooted in the past.
The metering debate highlighted how regulations designed for traditional, centralized energy systems are poorly suited to modern housing and renewable energy applications. While single-meter buildings with rooftop solar are not new, they remain relatively rare in affordable housing—especially when utility companies view them as billing or infrastructure risks.
By rejecting the single-meter setup, Duke Energy effectively disincentivized a clean, efficient housing solution for some of the state’s most vulnerable residents.
This raised broader questions: If nonprofit developers are penalized for using sustainable models, what hope do we have for scaling green housing nationwide? And why should tenants be burdened with individual utility bills when bundling them can offer economic and operational relief?
A Legal Battle: EMPOWERment Strikes Back
Faced with an untenable situation, EMPOWERment Inc., backed by the Southern Environmental Law Center (SELC), filed an emergency consumer complaint with the North Carolina Utilities Commission (NCUC). Their goal was simple: get Duke Energy to provide power under the original single-meter design while the legal and regulatory merits were reviewed.
The complaint argued that:
The utility company had prior knowledge of the project’s metering plans.
The leases did include electricity as part of rent, satisfying the exemption criteria.
Delays caused irreparable harm to tenants and the building.
The case caught public attention, generating buzz in local media, environmental justice circles, and even national housing forums.
Public Backlash and Pressure Mounts
Throughout May and June 2025, pressure built on Duke Energy as advocacy groups, housing nonprofits, and local officials voiced concern over the power company’s actions. The optics were damning: a massive utility company refusing to power a low-income, solar-equipped building during a housing crisis.
News outlets like NC Newsline, Chapelboro, and Triangle Blog Blog covered the story extensively, with headlines questioning Duke Energy’s commitment to low-income residents and its stated sustainability goals.
The tension reflected a broader cultural and political moment—where corporate policy clashed with community-centered solutions, and clean energy potential met bureaucratic resistance.
Resolution: The Lights Come On
On June 21, 2025, Duke Energy reversed its decision. Power was restored to the P.E.A.C.H. Apartments under the original single-meter configuration. The victory was partial—still pending a final ruling from the Utilities Commission—but it was enough to allow EMPOWERment Inc. to complete final construction stages and prepare the units for occupancy.
By late August 2025, the nonprofit expected residents to begin moving in, finally putting an end to months of uncertainty.
The win showed that grassroots advocacy, legal pressure, and media scrutiny could push back against institutional inertia. But it also served as a warning: the system still needs structural change.
Implications for Affordable Housing and Energy Policy
The P.E.A.C.H. Apartments saga is more than a local story. It’s a case study in how energy policy and housing policy intersect—often in ways that make it harder, not easier, to serve those in need.
It also shines light on the need for:
Utility reform, especially in how power is delivered and billed in multifamily residences.
Clarity in regulations around metering exemptions and solar-ready buildings.
Supportive programs that assist nonprofit developers in navigating utility barriers.
Duke Energy does have several low-income energy efficiency programs—such as the Neighborhood Energy Saver (NES) and Multifamily Energy Efficiency Program—that offer insulation, lighting, and appliance upgrades for qualifying homes. But as this case demonstrates, infrastructure-level policy barriers can overshadow those well-meaning efforts if not addressed holistically.
What Comes Next?
As North Carolina and the broader U.S. work toward decarbonization and equitable housing, projects like P.E.A.C.H. Apartments must be seen not as outliers but as models for the future.
Whether Duke Energy and other utility providers can adapt will determine how successfully we can marry energy justice with housing justice.
For developers, activists, and policymakers, the message is clear: collaboration and clarity are essential, and so is the willingness to challenge legacy systems that no longer serve today’s needs.
Final Thoughts from Dwellmend.com
At Dwellmend.com, we believe that the future of housing lies in the intersection of affordability, sustainability, and equity. The story of P.E.A.C.H. Apartments is a testament to what’s possible when mission-driven developers stand their ground—and a reminder of the work still to be done.
As we explore more stories like this across Durham, Chapel Hill, and beyond, we invite you to stay informed, engaged, and inspired. Powering communities shouldn’t come with conditions—it should come with compassion.