RE+ 2025 Insights: The new normal for U.S. solar PV under policy uncertainty

Las Vegas, September 2025

As North America’s largest clean energy exhibition, RE+ 2025 has seen a clear shift in focus. Unlike past discussions centered on prices and market supply-demand dynamics, policy uncertainty and compliance challenges have taken center stage. The combined impact of the Foreign Entity of Concern (FEOC) provisions, Section 232 investigation, and Anti-Dumping and Countervailing Duties (AD/CVD) is reshaping the of the solar PV industry.
 

Policy Pressures and corporate responses

Regulations such as the One Big Beautiful Bill Act (OBBBA) and Section 232 are accelerating localization efforts, with the FEOC provisions proving particularly critical. This requires manufacturers to bear higher compliance costs and make adjustments in equity structures, management composition, and supply chain traceability to avoid being classified as under Chinese control. While the industry is actively seeking strategic countermeasures, overall deployment remains highly uncertain until detailed rules are fully implemented.

This competition is no longer limited to cost and supply chain optimization, but rather about who is able to not only respond to policy changes more quickly and effectively, but also to gain an edge in engagement with local communities and governments, turning compliance into tangible market competitiveness.
 

Domestic manufacturing: progresses and challenges

While U.S. module nameplate capacity is expected to reach 76 GW by the end of the year, actual commissioning has fallen far short of expectations. The main reasons include:

• Financing bottlenecks: New plant construction requires significant capital investment. Policy uncertainty and market volatility have led to cautious progress in financing and investment.

• Environmental reviews and local coordination: Wastewater treatment, emissions approvals, and community engagement have prolonged construction timelines, particularly for the PV cell segment.

• Structural policy gaps: Upstream polysilicon and wafer production lack incentives for domestic investment. While cell capacity expansion is in planning, large-scale commissioning has yet to materialize, leaving the supply chain fragmented with slow and uneven progress.

• External competition: Although AD/CVD measures were imposed earlier on the four Southeast Asian countries—Cambodia, Malaysia, Thailand, and Vietnam—the scope mainly covers cells. Shipping modules assembled in Southeast Asia to the U.S. remains a viable route. Meanwhile, the rapid expansion of cell capacity in Indonesia and Laos is further challenging the growth of U.S. domestic cell production.
   

Exhibit insights: the trend toward solutions

As shown in the exhibits at RE+ 2025, TOPCon technology has already become mainstream, with G12R format products reaching nearly 30% penetration. The increasing share of glass-glass and thick-glass designs reflects the strong demand in the U.S. market for reliability and durability. At the same time, traditional tier-one manufacturers are gradually shifting their focus from standalone modules to “integrated solar-plus-storage solutions,” moving the center of competition from the product level to the system level.

To establish a foothold in the U.S. in this new normal, manufacturers must balance compliance resilience, stronger government relations, and local manufacturing capabilities to maintain a competitive edge in the future.

For more in-depth market analysis and data insights, see the full report, RE+ 2025 Post-Event Highlights, available in the download system for InfoLink members.