It's because efficiency is only a small part of the conversation. Someone putting panels on their roof only cares insofar as it helps decide which solar panels

It's because efficiency is only a small part of the conversation. Someone putting panels on their roof only cares insofar as it helps decide which solar panels to buy. They are buying solar because it goes on their roof, costs less than grid power, and they own the generation (what that means to someone changes) Likewise a municipality putting in a solar farm is probably doing it because it's cheap and easy to maintain, easier to distribute across your city, and when compared to a big machinery based plant like a fossil fuel plant, both wind and solar take less educated skills from the municipality to install and maintain. Solar is essentially commoditized at this point, it's barrier for entry is for a municipality is just money. Wind is productized too, just more complex and difficult to install and maintain than solar.