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THE POTENTIAL, OPPORTUNITIES AND  
CHALLENGES FOR PHOTOVOLTAIC GENERATION IN  
LATIN AMERICAN AND CARIBBEAN COUNTRIES  
POTENCIAL, OPORTUNIDADES Y DESAFÍOS DE LA GENERACIÓN  
FOTOVOLTAICA EN LOS PAÍSES DE AMÉRICA LATINA Y EL CARIBE  
Aldren Vernersbach1, Helder Queiroz Pinto Junior2  
Recibido: 21/11/2024 y Aceptado: 12/10/2025  
113  
1.- aldren.vernersbach@gmail.com  
2.- helder@ie.ufrj.br  
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Resumen  
La transición energética es un objetivo global para mitigar los efectos del cambio climático, derivado de  
las emisiones contaminantes, principalmente de la industria energética. Esta transformación implica un  
desafío económico y tecnológico, pero también genera oportunidades de desarrollo basadas en todo  
el entramado industrial-tecnológico que requiere la expansión de la generación de energías renovables.  
Ante este panorama de posibles beneficios económicos derivados de la descarbonización, este trabajo  
busca comprender el panorama del sector energético en América Latina (AL), la evolución del uso  
de fuentes renovables en la región y las políticas específicas para la generación solar fotovoltaica, en  
particular las de carácter industrial, con especial atención a Brasil, Chile y Argentina. Entre los resultados,  
la investigación demostró que no existen políticas industriales amplias y consolidadas enfocadas en el  
desarrollo de componentes para la generación solar fotovoltaica en la región. Las iniciativas encontradas  
se centran en el estímulo mediante incentivos fiscales y la importación de estos componentes. Por lo  
tanto, estas políticas para la adopción de fuentes fotovoltaicas y el financiamiento para la adquisición  
de equipos determinaron la configuración del sector en la región, que es principalmente importador de  
equipos. La excepción es Argentina, que tiene una política de creación de un polo tecnológico para la  
fabricación de componentes en el segmento de energías renovables, incluyendo módulos fotovoltaicos.  
PALABRAS CLAVE: Estabilización de precios, Recursos combustibles, Recursos energéticos, Política  
energética, Economía energética, Abastecimiento de energía, Política fiscal  
115  
Abstract  
The energy transition is a global objective to mitigate the effects of climate change, resulting from  
pollutant emissions, mainly by the energy industry. This transformation implies an economic and  
technological challenge, however, it also creates opportunities for development based on the entire  
industrial-technological apparatus that the expansion of renewable energy generation requires. Given  
this scenario of possible economic benefits arising from decarbonization, this work seeks to understand  
the panorama of the energy sector in Latin America (LA), the evolution of the use of renewable sources  
in the region and the specific policies for solar photovoltaic generation, notably, the of an industrial  
nature, focusing on Brazil, Chile and Argentina. Among the results, the research showed that there are  
no broad and consolidated industrial policies, focusing on the development of components for solar  
photovoltaic generation in the region. The initiatives found focus on stimulus via tax incentives and  
the import of these components. Thus, such policies for the adoption of photovoltaic sources and for  
financing the acquisition of equipment determined the configuration of the sector in the region, mostly  
importing equipment. The exception is Argentina, with a policy of creating a technological hub for the  
manufacture of components in the renewable segment, including photovoltaic modules.  
KEYWORDS: energía solar fotovoltaica; América Latina; transición energética; política industrial; ca-  
dena de valor.  
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1. INTRODUCTION  
Climate change due to global warming is a  
reduction of emissions and geographic, political  
and regulatory barriers. present in each location.  
Thus, each region and each nation has a challenge  
contemporary challenge, positioned at the heart  
of societys discussions. The goal of limiting global  
warming to 1.5º by 2050 is an objective agreed  
upon between several nations, consolidated  
in the Paris Agreement in 2015. This search for  
a new economic model that is environmentally  
sustainable has promoted changes in several  
economic sectors, particularly in segments that  
cut across the economy, such as the energy  
sector. In this context, the energy transition is one  
of the means of curbing climate change, through  
the decarbonization of the global energy matrix,  
replacing energy sources of fossil origin with  
renewable sources, such as photovoltaic, wind,  
hydroelectric and biomass.  
for  
sustainable  
transition,  
with  
specificities  
regarding (i) their emissions, (ii) the current  
configuration of their energy matrices – which  
indicate the dimension of change –, (iii) possible  
transformation trajectories and (iv) opportunities to  
take advantage of this process in socioeconomic  
development strategies.  
Given the complexity and diversity of contexts  
for the energy transition in each region of the  
world, as well as the urgency to focus on areas  
where decarbonization is promising, in this report  
the focus of the research is Brazil, Chile and  
Argentina. The objective is to build an overview  
of the development of renewable sources,  
focusing on photovoltaic solar generation, trying  
to demonstrate the evolution of this source, the  
scenario of the segments production chain in  
the region and the policies aimed at expanding  
the use of this source and promoting economic  
development based on sustainable energy  
transition.  
The challenges for this transformation to be  
carried out involve the entire planet and require  
multifaceted policies. However, the different  
energy profile of each continent and each country  
gives particularities to this process. Therefore,  
the inclusion of renewable sources in the energy  
generation matrix is peculiar to each region and  
nation, given the varied opportunities arising from  
different types of energy sources to advance the  
116  
2. THE PHOTOVOLTAIC SOLAR ENERGY SEGMENT  
Since the beginning of the development of  
the photovoltaic market, around 945.4 GW of  
photovoltaic power plant capacity has been  
installed globally, of which approximately 70%  
has been deployed in the last five years. In the  
segments development trajectory, a growing  
number of markets began to contribute to the  
expansion of installations globally, resulting in  
2021 reaching a record for new countries installing  
a significant number of solar panels in their  
territories. Theusesofsolarenergyatthebeginning  
of this century focused on heating and cooling  
buildings, generating electricity (concentrated and  
distributed) and converting energy for industrial  
processes (HIDALGO, NODAL, BORGES, 2019).  
The IEA PVPS (IEA Photovoltaic Power Systems  
Programme) group of countries represented 753  
GW of this installed capacity globally (IEA, 2022b).  
In the case of the Americas, considering the  
entire continent, in 2021, the amount of around  
40 GW in photovoltaic solar panel installations  
was recorded and a total accumulated capacity  
of 164 GW (Graph 1). Although the largest portion  
of this capacity is installed in the United States,  
several countries have stood out in increasing  
panel installations in the center and south of the  
continent, with emphasis on Chile, Honduras,  
Mexico and Brazil (IEA, 2022b).  
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Graph 1 – Evolution of photovoltaic panel installations by segment | Americas 2011-2021  
Source: IEA (2022b)  
Graph 2 – Proportion of installed capacity to produce electrical energy by source | Latin America and the Caribbean 2020  
117  
Source: Cepal (2022)  
Photovoltaic power generation is developing in  
the Americas mainly through tenders and in the  
centralized grid-connected model, except in  
the USA. It should be noted that instability has  
characterized the development of photovoltaic  
generation in most countries in recent years,  
with stop-and-go policies in Canada, Honduras  
and Mexico, for example. However, it is worth  
mentioning that the market was very dynamic  
in 2021 in Chile and Brazil, with prospects  
for development in several Central American  
countries, such as Costa Rica and Guatemala  
(IEA, 2022b).  
the installed capacities of renewable sources  
most used on the continent to generate electricity,  
it is noted that hydroelectric power plants are still  
the majority, accounting for 43.1%, photovoltaics  
accounts for 4.4% (Graph 2). When analyzing  
the panorama of generation capacity in LAC, it is  
observed that, in 2021, the regions photovoltaic  
solar capacity grew 44%, with a total of 9.6 GW  
added in the year. Market expansion was much  
higher than that recorded in the previous two  
years. In 2019 and 2020, advances were 15%  
and 26%, respectively (SOLARPOWER EUROPE,  
2021).  
In the particular case of Latin America and the  
Caribbean, photovoltaic solar energy generation  
is still in an expansion process, therefore, among  
Stillintermsofaccumulatedcapacity, thecontinent  
had more than 30 GW of solar at the end of 2021.  
The number is almost four times greater than that  
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recorded at the end of 2018 and 40 times greater  
Highlight must be given to the case of Brazil,  
whose installation of new photovoltaic panels  
reached 5.7 GW, leading to an accumulated  
market of 13.7 GW in 2021. After years of limited  
development of the photovoltaic market, Brazil  
appears today as one of the main global players,  
demonstrating their potential much higher than  
the levels achieved until 2021 (IEA, 2022b).  
Specifically in the case of distributed generation,  
Brazil is among the 10 countries with the greatest  
capacity expansion in 2021, having added 4.16  
GW in this segment (Table 1).  
than the installed power in 2015. Therefore, such  
Data indicates that the trend is for great growth in  
photovoltaic generation capacity (SOLARPOWER  
EUROPE, 2021). Currently, four nations lead the  
solar market in Latin America: Brazil, Mexico, Chile  
and Argentina. Together, these countries account  
for around 90% of the regions photovoltaic  
capacity, with all having already surpassed the 1  
GW capacity threshold. Furthermore, there is a  
projection of annual growth of 52% in 2022, with  
14.6 GW added (SOLARPOWER EUROPE, 2021).  
Table 1 – Top 10 countries with panel installations | Distributed generation 2021  
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Source: Cepal (2022)  
Table 2 – Top 10 countries with accumulated capacity in panel installations | Distributed generation 2021  
Source: Cepal (2022)  
Chile is also a prominent case in LAC, being  
among the 10 countries with the most photovoltaic  
installations in the world, having installed 2.7 GW in  
2021, which indicates great market development  
in the country. Furthermore, it is pointed out that  
Brazil and Chile must support the expansion of  
photovoltaic sources in LAC. For the region, it is  
projected that in 2026 annual installations could  
reach 30.8 GW (SOLARPOWER EUROPE, 2021).  
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In terms of accumulated capacity in distributed  
Dominican Republic, Ecuador and El Salvador,  
followed by Uruguay and Panama (IEA, 2022b).  
photovoltaic generation, Brazil is the only Latin  
American country present in the ranking of nations  
with the largest capacities from this energy source  
segment. The country is in 9th place, accumulating  
9.08 GW in photovoltaic installations. Even so,  
Brazil and the other countries in the ranking  
have a capacity far removed from that recorded  
by China, which in 2021 reached 108.22 GW of  
accumulated capacity in solar panels (Table 2).  
In the case of photovoltaic energy, the expansion  
of distributed generation (produced in small units)  
and large solar parks creates a potential industry,  
expanding and with technological complexity  
as efficiency improvements are an objective for  
the sector. Therefore, opportunities to internally  
develop niches in this segment need to be  
identified and taken advantage of by industries  
in each country that is committed to the energy  
transition, in addition to essential policies that  
somehow stimulate the local development of links  
in the production chain. The following section  
deals with the photovoltaic equipment industry in  
the world, in order to present an overview of the  
segments production and its peculiarities.  
In other countries, such as Argentina, progress has  
been seen in installed capacity as of 2021. It is also  
noted that several other countries in Latin America  
and the Caribbean have established support  
programs for the development of photovoltaic  
electricity, with an increase in the number of power  
plants that are connected to the grid, mainly in the  
3. THE GLOBAL PHOTOVOLTAIC EQUIPMENT CHAIN  
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The expansion of the solar PV supply chain  
has outpaced rapid demand growth over the  
past decade, with crystalline silicon technology  
dominating the market at more than 95% of  
installed capacity over the past five years. At the  
end of 2021, global capacity for manufacturing  
wafers, cells and assembling modules exceeded  
demand by at least 100% (IEA, 2022a).  
It should be noted that, in the last decade,  
a major geographic change has occurred in  
the manufacturing capacity of equipment for  
generating photovoltaic solar energy and its  
production.  
China  
further  
strengthened  
its  
leadership position as a manufacturer of wafers,  
cells and modules between 2010 and 2021, while  
its share of the global market capacity to produce  
polysilicon almost tripled. Thus, the countrys  
participation in all links of the photovoltaic  
chain exceeds 80%, more than double its 36%  
participation in the implementation of this type  
of energy. Therefore, China currently significantly  
dominates all segments of the solar photovoltaic  
source chain (IEA, 2022a).  
In this trajectory of sectoral growth, economies  
of scale and continuous innovation throughout  
the supply chain have allowed sharp drops  
in manufacturing costs at all stages of the  
production process in the segment. As a result,  
module prices have fallen by more than 80% in  
the last decade and solar photovoltaics have  
become the most affordable electricity generation  
technology in many parts of the world. It should  
be noted that the costs of electricity generated  
from photovoltaic solar energy have fallen by 82%  
between the years 2010 and 2019 (HIDALGO;  
HERNÁNDEZ, 2021). In 2021, the average selling  
price of modules increased for the first time – by  
around 20% compared to 2020 – due to higher  
commodity and freight prices.  
In all countries except China, demand for solar  
photovoltaics is above equipment manufacturing  
capacity, from polysilicon availability to module  
production. By the end of 2021, the annual  
manufacturing capacity of photovoltaic-grade  
polysilicon reached 750,000 tons, which should  
be enough to manufacture about 250 GW of  
crystalline silicon modules. In this scenario, China  
produced around 80% of the polysilicon used  
for solar PV modules in 2021, with the remaining  
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market share divided between Germany, Malaysia  
Although 38 countries have module assembly  
facilities, China still accounts for around 70% of  
production in 2021 – in 2010 it accounted for 50%  
of production. Other important manufacturers are  
Vietnam (5%), Malaysia (4%), Korea (4%) and  
Thailand (2%). However, it is important to highlight  
that most of the manufacturing capacity in these  
countries was developed by Chinese companies  
focused on exports to the United States.  
Furthermore, countries with considerable module  
assembly capacity, such as the United States  
(4%), Germany (1%) and India (1%), produce  
mainly for their domestic markets, that is, export  
to meet the Global market demand is dominated  
by China (Graph 6).  
and the United States. Between 2010-2015,  
China expanded its panel production capacity  
twice as fast as the United States, Germany,  
Korea and Japan, triggering a global oversupply,  
causing polysilicon prices to fall by 70%, which led  
to many producers leaving the market.  
In the case of generation modules, although the  
countries of North America and Europe have  
significant manufacturing capacity, the acquisition  
of solar cells occurs almost entirely from China  
and countries in Southeast Asia. It should be  
noted that China is also the main manufacturer  
of photovoltaic module components, including  
glass, EVA (ethylene-vinyl-acetate), back sheet  
and junction box.  
Graph 3. Global production of photovoltaic solar modules | 2010-2022  
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Source: IEA (2022b).  
Graph 4. Net import value of photovoltaic grade polysilicon, wafers, cells and modules | Latin America and the Caribbean  
2010-2021  
Source: IEA (2022b).  
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Withtheprospectofover300GWofnewassembly  
generation for the industrial development of the  
LAC region. Among the alternatives, the recycling  
of panels and other photovoltaic equipment is  
a segment with potential growth in nations that  
import the technology. As the global photovoltaic  
market increases, so does the volume of  
decommissioned photovoltaic panels, so large  
amounts of annual waste are predicted for the  
early 2030s. The increasing waste of photovoltaic  
panels presents a new environmental challenge,  
but also opportunities to create value and seek  
new niches for economic development.  
plants in China, its market share is expected to  
remain high in the medium term, even if the trend  
towards productive expansion of equipment in  
India, Vietnam, Thailand, the United States and  
European Union. It is important to highlight that  
international trade volumes of photovoltaic solar  
energy depend heavily on domestic demand  
in China, as the country is the largest producer  
and consumer of polysilicon, wafers, cells and  
modules, dictating the pace of market evolution  
today.  
It is worth mentioning that, between 2017-2021,  
Southeast Asian module manufacturers were  
responsible for 1/3 of global photovoltaic module  
exports, mainly to serve the United States and  
European Union markets, where Chinese modules  
were subject to several commercial restrictions.  
The rest of the market was dominated by China,  
with its shares in India and Brazil exceeding 90%.  
In Latin America, installations were records in  
2022, with an increase in module imports across  
the region, which, together with high prices for this  
equipment in 2021, resulted in more than doubling  
its net import bill that year.  
According to IRENA data, recycling or reusing  
solar photovoltaic panels at the end of their useful  
life of approximately 30 years could generate an  
estimated stock of 78 million tons of raw materials  
and other valuable components by 2050. If fully  
injected back into the economy, the value of the  
recovered material could exceed US$15 billion by  
2050, which gives rise to the process of reverse  
logistics within a circular economy. It is noted  
that sectors such as photovoltaic recycling will  
be essential in the global transition to a future of  
expanding the use of sustainable and economically  
viable energy (IRENA, 2016).  
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In this scenario, in 2021, China and countries in  
the Asia-Pacific region benefited significantly from  
higher rates of demand and prices, earning record  
revenues from sales of photovoltaic generation  
equipment. In view of the data presented, Chinas  
dominance throughout the production chain of  
equipment for the generation of photovoltaic solar  
energy is clear. The country has high technology,  
scale and production rate, which allows them to  
be the largest supplier of different components  
to the segment globally. Therefore, in regions  
such as Latin America and the Caribbean, where  
there is dependence on photovoltaic technology  
equipment, it is difficult for national companies  
belonging to this industry to emerge to meet  
local demand, given that the sector in China is  
consolidated and has advantages arising from  
the interconnection of the chain, with already  
dominated consumer markets.  
In Brazil, the company Sun R is an example of  
a company that recycles generation modules.  
The process consists of dismantling, separating  
materials (aluminum, glass, connectors) and  
subsequent chemical treatment of the rest of the  
materials, so that the silver, copper and silicon can  
be extracted, ensuring the appropriate disposal  
of each element. Thus, with the reverse logistics  
and recycling process, around 90% of materials  
can be reused and reinserted into the module  
production cycle.  
Inadditiontothisspecificmarketniche,itispossible  
to envisage the possibility of Chinese companies,  
dominant in the global market, expanding industrial  
plants to LAC. In this way, through the installation  
of industries in the segment in countries in the  
region, part of the continental demand could be  
met by local production. This movement could  
be a way for Latin America to increase local  
industry, based on the energy transition, gaining  
the benefits that the industrial sector is known  
to provide, such as generation of qualified jobs,  
In any case, certain market niches can become  
an alternative to taking advantage of the  
energy transition and expansion of photovoltaic  
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increased local income and possible intra-sectoral  
and inter-sectoral technological spillovers.  
encouraging sustainable transformation, creating  
decarbonization targets and incentives for the  
adoption of renewable energy sources; (ii) or  
specific to the expansion of solar photovoltaic  
generation.  
It should be noted that the attraction of  
companies that operate in links in the photovoltaic  
equipment chain depends on national policies  
for the development of solar generation and  
the installation of industrial plants in the sector.  
Therefore, it is important to check which policies  
have been developed in LAC. Such policies can  
be: (i) more general and transversal in terms of  
Therefore, the following section seeks to present  
the most relevant public policies in LAC aimed  
at sustainability and the development of the  
photovoltaic solar energy sector, focusing on the  
cases of Brazil, Chile and Argentina.  
4. POLICIES FOR THE DEVELOPMENT OF PHOTOVOLTAIC  
SOLAR GENERATION AND SUSTAINABILITY IN LATIN AMERICA  
AND THE CARIBBEAN  
Therefore, in this section we seek to bring  
together the most relevant sectoral policies  
with a focus on expanding the photovoltaic  
solar generation segment in countries in Latin  
America and the Caribbean. The mechanisms  
that make up such policies are presented, as  
well as financial and fiscal incentives (financing  
programs, subsidies and commercial tariffs),  
and regulatory ones, such as concession rules,  
technical standards, commercial standards and  
incentives based on regulations. The focus is on  
the cases of Brazil, Chile, Argentina, Costa Rica  
and El Salvador. Table 3 at the end of the section  
brings together the most relevant policies aimed  
at sustainable transformation and stimulation of  
solar photovoltaic generation in the highlighted  
countries and in other LAC nations.  
The energy transition represents a paradigmatic  
change in the contemporary production  
model, a challenge of transversal technological  
transformation. The dynamism generated  
by the implementation of this new model of  
energy generation based on renewable sources  
constitutes an opportunity to promote economic  
development in the face of technological growth  
in the area, production of new equipment and all  
the infrastructural and technological adaptations  
required in different segments. economic.  
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For the transition to occur, it is essential that a set  
of public policies be formulated by each country,  
in order to enable and accelerate change. In the  
case of photovoltaic solar energy, policies to  
encourage the adoption of this energy source are  
essential to finance its implementation, improve  
technology and reduce costs.  
4.1. Brazil  
Brazil is a country with a large stock of natural  
resources and a great potential for generating  
energy from renewable sources. As a signatory  
to the Paris Agreement, Brazil developed a set of  
policies focused on environmental preservation  
and energy transition. One of its first and main  
policies in the area of sustainability is the National  
Policy on Climate Change (PNMC), which  
establishes sectoral plans for mitigation and  
adaptation to climate change to consolidate a  
low-carbon economy, aiming to meet targets  
gradual reduction of quantifiable and verifiable  
anthropogenic emissions, considering various  
economic sectors, such as electricity (BRASIL,  
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2009). The PNMC served as the basis for the  
of up to 500 kW made within one year will still  
be regulated by current standards, until 2045.  
Requests made after a period of one year from  
the publication of the law will enter a staggered  
transition model. In this model, payment of the  
distribution system usage fee (Tusd) will be  
made gradually, with an annual increase in the  
percentage to be paid by generating companies.  
The transition model also has two distinct rules:  
one for requests made between the 13th and  
18th months after the publication of the law; and  
another for orders made after the 18th month.  
In the first case, the transition period until Tusd  
is paid is eight years. In the second, the time is  
shorter, six years.  
design of sectoral guidelines and normative  
instruments that seek to increase sustainability  
in various economic activities and diversify the  
Brazilian renewable energy matrix.  
Another comprehensive and relevant policy  
proposed in 2021 was the National Green Growth  
Program, which aimed to offer financing and  
subsidies to encourage sustainable economic  
projects and activities, prioritize the granting of  
environmental licenses and generate so-called  
“green jobs”. This policy was not implemented,  
which made it harmless in the short term (BRASIL,  
2021).  
Regarding the reduction of Brazilian greenhouse  
gas (GHG) emissions, actions to mitigate them  
in Brazil are based on sectoral plans, mainly in  
agriculture, energy and forest protection. To record  
and commercialize GHG emissions, the National  
System for Reducing Greenhouse Gas Emissions  
(SINARE) was created in 2022, which allows  
monitoring progress in sustainable transformation  
(OECD, 2022). The policy has a transversal bias,  
as it defines plans for segments of the economy,  
monitors pollution and, therefore, indicates the  
necessary measures for an environmentally  
sustainable economy.  
Within these transition models, for each unit  
of energy injected into the electrical grid, the  
equivalent of 4.1% of the average low voltage  
electricity tariff in 2023 will be discounted. In  
the following years, the discount will gradually  
increase by 4.1% per year, until reaching 24.3% in  
2028. These discounts are made with the aim of  
remunerating the use of the electrical distribution  
infrastructure, only when the electrical energy  
generated by the consumer (figure of the self-  
producer) is injected into the network.  
123  
In the case of consumers with new systems above  
500 kW in the remote self-consumption modality  
– in which case the generating system is installed  
in a location different from that where the energy  
will be consumed –, the payment for the energy  
injected into the electrical grid will be 29 .3% of the  
average low voltage electricity tariff, from 2023 to  
2028. The law also creates the Social Renewable  
Energy Program (PERS), designed to finance the  
installation of photovoltaic generation and other  
renewable sources for low-income consumers.  
The resources must originate from the Energy  
Efficiency Program (PEE) (BRASIL, 2023).  
Regarding policies to encourage renewable  
sources, specifically for photovoltaic solar  
generation, there is a set of devices that  
encourage the adoption of the source, finance  
the acquisition of equipment and installation and  
promote subsidies and tax exemptions, whether  
in the format of distributed generation or of large  
generation projects. In 2022, Bill No. 5,829/19  
was sanctioned, which became Brazils new  
Solar Legal Framework (Law No. 14,300/2022).  
The new regulations promoted improvements  
that facilitate the construction of solar plants,  
increase legal security for sectoral economic  
agents, granted permission for hybrid generation  
systems, in addition to allowing the rebate of  
credits between concessionaires and energy  
licensees (BRASIL, 2022).  
Another way to expand the adoption of solar  
sources, making its technology cheaper, was  
the inclusion of the photovoltaic panel segment  
in the Semiconductor Industry Technological  
Development Support Program (Padis). In this  
way, the panels now have a zero rate of Import  
Tax, Tax on Industrialized Products (IPI) and the  
Social Integration Program/Contribution for Social  
The new law guarantees that operating own  
generation systems and new requests for access  
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Security Financing (PIS/Cofins), until 2026 – valid  
for all solar panels manufactured by companies  
authorized by Padis (BRASIL, 2023).  
solar generation. The existing instruments are  
of a regulatory nature, establishing a normative  
reference for investments in energy sources, which  
includes tax incentives for the expansion of the  
national solar park. Furthermore, given the current  
scenario in which China is the largest producer of  
solar panel components, a policy was formulated  
to make the import of this equipment cheaper.  
This fiscal policy with a focus on technological  
development indicates the effort to develop links  
in the solar photovoltaic chain in Brazil. However,  
the effect of the program is to reduce the costs  
of importing parts and equipment for solar  
panels, without promoting the national production  
of components. Within the scope of financial  
policies for the segment in Brazil, the financing  
programs for photovoltaic solar generation  
offered by the National Bank for Economic  
and Social Development (BNDES) stand out,  
which provides special credit conditions for the  
import of photovoltaic equipment, with the aim  
of encouraging the expansion of distributed  
generation in the country.  
It should also be noted that financing instruments  
for solar parks are essential, enabling long-term  
amortization, with lower costs. Access to financial  
resources is essential in cases where a new  
technologyisstillconsideredmoreexpensivewhen  
compared to others that are already consolidated.  
In the Brazilian case, it is clear that there is no  
policy equipped with mechanisms that enable the  
development of a photovoltaic equipment industry  
in the country. However, it is necessary to consider  
that, as production in the segment is dominated  
by China, with companies producing on a large  
scale and at lower costs, a strategy to create the  
sector in Brazil would possibly not be viable in this  
context. In this sense, policy proposals that deal  
with attracting links in the chain to the country,  
focusing on the development of assembly, repair  
and component recycling activities, are more  
appropriate.  
One of its programs is BNDES Finem – Geração  
de Energia, aimed at financing the expansion and  
modernization of energy generation infrastructure  
from renewable sources and natural gas  
thermoelectric plants. The projects to be financed  
have a minimum value of R$40 million, with a  
period of up to 40 months to pay off the credit  
(BNDES, 2023a). In this scope, another program  
designed to implement the policy of diversifying  
the use of renewable energy sources is BNDES  
Finem – Baixo Carbono, created in 2018. The  
program is aimed at financing the acquisition  
and commercialization of solar and wind energy  
generation systems , solar heaters, electric, hybrid  
and biofuel-powered buses and trucks and other  
machines and equipment with higher energy  
efficiency rates or that contribute to reducing  
greenhouse gas emissions (BNDES, 2023b).  
124  
In any case, Brazil is the country in the region  
that presents a considerable set of policies with  
different biases to increase the participation of  
solar photovoltaic generation in its energy matrix.  
However, there is no program that aims to increase  
industrial development based on the energy  
transition, notably the photovoltaic generation  
value chain.  
This Brazilian public financing policy is essential for  
the photovoltaic segment, as it allows companies  
to be able to acquire the technology and start  
generating, selling and consuming renewable  
energy from solar plants. Through both programs,  
access to photovoltaic technology is expanded,  
given the lower costs of financial resources for the  
construction of solar plants.  
In view of the above, it is noted that Brazil has  
a set of policies to encourage photovoltaic  
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4.2. Chile  
Chile stands out as a country with a relevant set  
of policies aimed at sustainability and energy  
transition, having developed programs in different  
segments of this area, based on achieving the  
goals established in 2021 in its Long-Term  
Climate Strategy, defining the basis for actions  
environmental issues in the coming years. It is  
worth mentioning that, in the search for new  
energy sources to mitigate GHG emissions, Chile  
is at the forefront of research for new fuels. In this  
sense, the National Green Hydrogen Strategy  
(OECD, 2022) was created, aiming to:  
Thispolicyissimilartothenewregulatoryframework  
for distributed photovoltaic generation in Brazil,  
stimulating the production and commercialization  
of renewable energy. Furthermore, as part of the  
policy to increase photovoltaic generation, the  
Chilean Ministry of Housing provides subsidies to  
vulnerable families to implement renewable energy  
systems. In this way, the policy encompasses the  
aspect of just transition, by enabling lower-income  
classes to acquire technology and benefit from  
clean and autonomous energy generation.  
Within this set of policies is the Invest Chile  
Program, a cooperation plan of the Ministry of  
Energy (represented by the National Energy  
Commission (CNE) before 2010) with the Chilean  
Economic Development Agency (CORFO), to  
support renewable energy projects and finance  
the generation of renewable energy across the  
• Develop 5 GW of electrolysis capacity by  
2025;  
• Produce the cheapest green hydrogen in  
the world;  
• Position the country among the three main  
fuel exporters by 2040.  
country.  
(IEA, 2022).  
program includes two subprograms  
125  
As green hydrogen is a fuel of renewable origin  
and its potential use in mobility is envisaged, the  
development of a policy focused on enabling  
its large-scale production, as well as making it  
cheaper, can guarantee participation in global  
trade of the product in the future. . It should be  
noted that for a new technology to be adopted,  
a range of instruments is needed to enable  
its development, technological mastery and  
economic-commercial viability of the product  
generated.  
The first initiative is a subprogram to enable grid-  
connected non-conventional renewable energy  
(NCRE) projects, through financial incentives in the  
pre-investment phase. In the period 2005-2009,  
the program subsidized 50% of the total cost of  
several projects, with a ceiling of US$60,000 in  
pre-feasibility studies and 50% of the total cost  
of pre-investment studies, with a maximum ceiling  
of US$160,000. In total, 217 wind, biomass,  
biogas, geothermal and small-scale hydroelectric  
projects were developed based on the benefits of  
the program. Between 2008-2010, the CNE and  
the Ministry of Energy transferred US$2 million to  
CORFO, aiming to continue the program.  
Regarding the generation of photovoltaic solar  
energy, through Law No. 20,571/2012, the  
framework for the distributed generation of  
photovoltaic energy in Chile was established.  
Thus, the possibility for homes with solar systems  
to generate their own energy began to be foreseen  
and regulated, with the surplus being able to be  
sold on the national energy market. This policy  
encourages the adoption of this source and  
ensures that consumers/generators benefit from  
the sale of their surplus and also strengthens the  
participation of photovoltaics in the Chilean energy  
matrix (CHILE, 2012).  
The second incentive subprogram was started  
in 2008, supported by the transfer of resources  
from the Kreditanstalt für Wiederaufbau (KfW)  
development bank. The institution granted a loan  
of €85 million to finance projects classified as  
NCRE, providing credit facilities and low interest  
rates. The contribution allowed the financing of  
19 energy generation projects from renewable  
sources. It is worth mentioning that, as of 2012,  
the Renewable Energy Center (CER), which is  
part of CORFO, developed two new programs  
ENERLAC  
to subsidize pre-investment studies for NCRE  
the Mesa Public-Private de Finanzas Verdes  
initiative coordinates the public and private sectors  
for training in relation to climate change (OECD,  
2022).  
projects. The grant awarded is up to 40% of the  
total costs of initial phase studies. To date, 31  
projects (5 biogas plants, 1 biomass plant, 13  
wind farms, 4 photovoltaic parks and 7 mini-hydro  
plants) and 78 studies have benefited for a total  
value of CLP 542 million.  
In the Chilean case, it is clear that there is a public  
policy framework focused on the energy transition  
and sustainable development of the economy.  
The countrys initiative to expand photovoltaic  
generation is relevant, providing the sector with  
a regulatory framework to organize activities and  
also stimulate the growth of the energy market  
based on this source. As it is still an expensive  
technology, whose investments need to be  
amortized over the long term, low-cost financing  
facilitates and accelerates its insertion into the  
countrys matrix.  
Regarding  
international  
partnerships  
to  
develop the energy transition and sustainability  
in the country, as a member of the Pacific  
Alliance, Chile participates in the Finance and  
Sustainable Development Working Group, which  
organizes regional cooperation for the adoption  
of environmental, social and environmental  
criteria. governance in the supply of financing.  
Furthermore, between 2019 and 2022, Chile  
presented its milestones for green finance, social  
and sustainable bonds (GSS), which are linked to  
key performance indicators (OECD, 2022).  
As in the Brazilian case, in the case of Chile, a  
program was not identified with the objective of  
making the local industry take advantage of the  
insertion of photovoltaic energy in the matrices.  
Therefore, there are no incentive mechanisms for  
the solar panel components industry. Faced with  
this gap, which can be justified by the great effort  
to be made in the face of a dominant China in the  
global production of photovoltaic equipment, the  
alternative arises of developing activities related  
to this industry. Therefore, an alternative for the  
country is to formulate new policies focused on  
market niches linked to the maintenance and  
operation of photovoltaic equipment and parks.  
Since 2020, a fiscal framework has been  
developed by the Ministry of Finance, with the help  
of Nationally Determined Contributions (NDC) and  
the United Nations Development Program (UNDP)  
Support Program, to measure the effectiveness  
of public and private green investments . Thus,  
in 2019, Chile was the first country in the region  
to issue green bonds and, in 2022, it was the  
first nation in the world to issue bonds linked to  
sustainability, currently constituting 28.7% of  
public debt. To qualify and sustain these actions,  
126  
4.3. Argentina  
Argentina is one of the Latin American countries  
that has developed policies focused on energy  
transition and sustainable transformation. In  
2019, the country promoted the Law on Minimum  
Requirements for Adaptation and Mitigation of  
Global Climate Change and created the National  
Climate Change Office, responsible for formulating  
the National Response Plan to problems arising  
from environmental degradation.  
energy and increased energy efficiency, aiming to  
reduce GHG emissions from the energy sector.  
Another initiative belonging to this scope is co-  
financedwiththeGreenClimateFund(GCF),whose  
objective is to increase investments by small and  
medium-sized companies in renewable energy  
and promoting energy efficiency. Furthermore,  
ArgentinaisworkingwithEUROCLIMA+onstudies  
and projects on forest management, electric  
mobility and energy efficiency, therefore covering  
strategic segments to increase sustainability in  
economic activities (OECD, 2022).  
In terms of mitigating climate effects, the National  
Energy and Climate Change Action Plan promotes  
the development of biofuel production, renewable  
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The country has also developed initiatives to boost  
very strong. Developing links in the photovoltaic  
chain currently requires investments in improving  
technology, given the production scale already  
achieved by China.  
the hydrogen market, considered an alternative to  
fossil fuels. Since 2021, Argentina has been part  
of the international PtX Pathways initiative, led by  
the German government, to promote sustainable  
hydrogen markets. As part of the International PtX  
Hub, PtX Pathways supports the development  
of sustainable markets for the energy transition  
in Morocco, South Africa and Argentina. The  
project assists ministries responsible for the  
energy or economic sector in developing  
allocation scenarios for PtX, including value chain  
analysis, identification of business development  
opportunities and recommendations to improve  
the PtX regulatory framework (INTERNATIONAL  
Another initiative by the Argentine government  
needs to be highlighted. In early 2016, the country  
launchedtheRenovArinitiative,anauction-based  
renewable energy program designed to expand  
private renewable energy generation capacity in  
the country. The objective of the program is to  
increase the share of renewable energy production  
to 8% in 2017 and 20% in 2025. The RenovAr  
project seeks to help resolve the main problems  
and barriers to the development of renewable  
energy in Argentina. These include limited access  
to long-term financing sources and perceptions of  
high country and sector risks (WB, 2018).  
CLIMATE  
INITIATIVE,  
2022).  
Furthermore,  
Argentina is also working with 13 Ibero-American  
countries in the “H2Transel” project to develop  
hydrogen production.  
To further increase the confidence of investors  
and financiers, the World Bank supported the  
preparation of the first RenovAr bids and provided  
a guarantee of US$480 million to back certain  
government obligations under the program. In  
this way, support from the World Bank helped  
Argentina unlock its renewable energy potential  
by creating a structured market, mobilizing around  
US$3.2 billion in investments.  
Inthecaseofphotovoltaicsolarenergy, thecountry  
created regulations to regulate and encourage its  
expansion. Through Law No. 27,424/2017, which  
addresses distributed generation, the rules for  
the use of this type of energy were defined, as  
well as the target for this source in the country.  
Thus, through the law that underlies the policy  
for the photovoltaic segment, the objective is to  
reach a distributed renewable energy capacity of  
1,000 MW by 2030. Furthermore, the Argentine  
127  
In Round 1, 15 of the 29 selected projects, with  
a total installed capacity of 590 MW, requested  
a guarantee from IRBD (International Bank for  
Reconstruction and Development, belonging  
to the World Bank group) in the total amount  
of US$295 million. For Round 1.5, 12 of the 30  
selected projects, with a total installed capacity of  
443 MW, requested the IBRD guarantee for a total  
value of US$185 million. The total IBRD guarantee  
was US$480 million for 1,033 MW covering 27  
different projects (12 wind projects for 721 MW,  
10 solar photovoltaic projects for 306 MW, four  
small hydroelectric projects for 4 MW and one  
biogas for 1 MW). The average guarantee period  
for project financing is 16 years (WB, 2018).  
government  
created  
the  
Cluster  
Renable  
Nacional, a cluster focused on renewable energy  
sources, with the aim of increasing the supply  
of clean energy generation and promoting the  
local manufacturing of components such as wind  
turbines, wind blades and photovoltaic modules.  
The policy aims to promote 750 MW of renewable  
generation in the next two years and 300  
MW annually from 2024. The project has an  
estimated investment for the development and  
construction of plants of approximately US$1  
billion. To access the resource, companies must  
meet the requirement of 50% participation of  
national components. In other words, this is a  
case of local content policy for the renewable  
sources sector, something not observed in other  
countries. However, it is important to highlight that  
the policy needs to be calibrated to be linked to a  
scenario in which global competition with China is  
ThroughtheRenovARprogram, Argentinaseeksto  
expand energy generation plants from renewable  
sources. It is noted that photovoltaic solar  
generation benefited from this policy, with financial  
resourcesforprojectfinancinginitsfavor. However,  
ENERLAC  
the objective of creating a photovoltaic industry in  
created a Sustainable Finance Program. In 2020,  
the Argentine Ministry of Economy created the  
Mesa Técnica de Finanzas Sostenibles (MTFS)  
as a permanent forum to develop a national  
financial strategy and strengthen the financing  
of sustainable projects in the country. Within the  
MTFS framework, a joint statement was signed by  
banking, insurance and capital markets regulators  
to promote, finance and advance the analysis of  
climate-related financial risks (OECD, 2022).  
the country based on this policy is not observed.  
Theprogramthatseekstodeveloplinksinthechain  
of this source and other sustainable sources is the  
National Renable Cluster, mentioned previously.  
In terms of sustainable finance, the Ministry of  
Economy is developing a roadmap for issuing  
green sovereign debt, social and sustainability  
bonds (GSS). In this sense, in 2019, the National  
Securities Commission presented guidelines for  
the issuance of GSS Marketable Securities and  
5. CONCLUSIONS  
In several countries in Latin America and the  
Caribbean, public policies aimed at increasing  
sustainability in the economy and the energy  
transition are observed. Such policies differ in  
terms of the specificity of the energy sources  
whose adoption is encouraged, in terms of their  
scope, duration and scope. The countries that  
have the most recent policies and programs  
aimed at sustainability and encouraging the  
generation of photovoltaic solar energy are Brazil,  
Chile, Peru, Colombia and Argentina. In the other  
countries surveyed, there are older laws and  
provisions encouraging renewable sources. In  
certain countries there are policies embodied in  
medium-term plans, such as in El Salvador, with its  
Master Plan for Renewable Energy Development  
(2012-2026) (2012), a plan for the development  
of renewable energy that extends over 14 years.  
Another example is the case of Guatemala, with  
its National Energy Policy 2013-2027 (Politica  
Energetica 2013-2027) and Costa Rica, with the  
Electricity Generation Expansion Plan 2016-2035  
(Plan de Expansion de la Generacion Electrica).  
of technology and national production in Brazil,  
Argentina, Colombia, Costa Rica and Chile. These  
policies are particular because the technology is  
still in the development process, seeking greater  
efficiency in its production, storage, transportation  
and application. Thus, hydrogen programs are  
characterized by their focus on innovation and the  
initial stage of research, financing and economic-  
financial incentives.  
128  
According to the policies observed for renewable  
sources projects in the countries analyzed, they  
were convergent with Sustainable Development  
Goal 7 (SDG-7). This objective is to ensure  
reliable, sustainable, modern and affordable  
access to energy for all. The focus of this access  
is to substantially increase the share of renewable  
energy in the global energy matrix by 2030, in  
addition to improving energy efficiency.  
The achievement of these objectives is observed  
in view of the set of incentives and mechanisms  
created, resulting in the expansion of the  
participationofphotovoltaicenergyinthematrices  
of Latin American countries. Despite incentives  
for photovoltaic energy projects, it is clear that  
there is no effort to achieve SDG 9, focused  
on building resilient infrastructure, promoting  
When it comes to photovoltaic solar energy,  
incentive programs for its expansion are found  
in Brazil, Peru, Paraguay, Uruguay, Dominican  
Republic, El Salvador, Argentina and Chile. It  
is important to highlight that such policies are  
mostly aimed at expanding solar sources in the  
countries’ energy matrix, and are not focused  
on the development of the industrial chain of  
their equipment. In the case of hydrogen, there  
are public policies focused on the development  
sustainable  
industrialization  
and  
fostering  
innovation. For example, no devices were found  
that aimed to develop links in the photovoltaic  
chain in LAC (with the recent exception of the  
case of Argentina).  
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Inthisway,suchpoliciesshowthattheycontributed  
national development of links in this industry.  
Chinas advantage in terms of cost, investments in  
technology and production scale has meant that  
opportunities to develop segments of photovoltaic  
technology in other regions have become  
restricted. Regarding this profile of policies for the  
sector in LAC, as previously stated, the exception  
found is the case of Argentina, with its policy to  
create a hub for the development of renewable  
energy sources. The country seeks to create its  
own technological production nucleus, with the  
aim of boosting the solar, wind and hydrogen  
energy equipment industry. It should be noted that  
this strategy is very recent, being in the formulation  
and implementation stage by the government.  
Therefore, different results are possible for this  
public policy in the country.  
to the expansion of the photovoltaic solar energy  
sector in the countries analyzed, in terms of the  
adoption of this energy source. It is worth noting  
that, as the policies reported for the segment did  
not focus on creating links in the industrial chain  
in the countries, there was, consequently, no  
emergence of a photovoltaic equipment industry  
in Latin America. This characteristic of the policies,  
aimed at the adoption of photovoltaic sources and  
financing the acquisition of equipment, determined  
the configuration of the sector in the region, mostly  
importing equipment.  
Added to this policy bias, Chinas dominance over  
the production of photovoltaic source equipment  
produced a scenario with reduced space for the  
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