When the urban farming startup BrightFarms first launched, it envisioned building its hydroponic greenhouses directly on grocery store roofs and on vacant city lots . Now, it says that the smartest place to grow food for cities may be just outside of them.

The company’s newest site will be in the town of Wilmington, Ohio. With a population of only 12,459, it’s not the target market. But it’s near Dayton, Columbus, and Cincinnati, which together have a population over a million people.

BrightFarms also has greenhouses in Bucks County, Pennsylvania; Culpeper County, Virginia; and Rochelle, Illinois–all also near, but not in, large cities. The new strategy lets the company avoid the costs and challenges of working on urban sites, while still providing a local version of foods like salad greens that would normally travel thousands of miles.

“Like most good strategies, it was driven by some painful experiences,” Paul Lightfoot, CEO of BrightFarms, tells Co.Exist. “Basically, we had a couple of failures. We tried to develop a giant rooftop of a building in Sunset Park, Brooklyn, and we also tried to develop an environmentally soiled parcel of land in the city of Washington D.C., owned by the city.”

In both cases, the landowners were eager for BrightFarms to build, and they had strong support from the communities and city leaders. But both sites had challenges. In Brooklyn, the roof needed complex engineering work that couldn’t be completed on the startup’s timeline; in D.C., the city had to do environmental remediation that also took longer that was commercially viable.

Both cities also had complex regulations that weren’t created with urban agriculture in mind. “We found ourselves dealing with a regulatory framework that didn’t understand us, and didn’t have the ability to adapt to us,” Lightfoot says. The projects were classified as “industrial” rather than agricultural, which triggered regulations that didn’t fit.

In smaller communities, the experience was radically different. In Virginia, because it was considered an agricultural project, it was exempt from the typical permitting process. “I think we got the permit in a week,” Lightfoot says. “In D.C., we spent a year getting it.”