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assigning stuff will be made abundantly clear, it's not possible to miss
The windmills will be of the same faction like they area they're located in.
unless there's another option late-game. Only substations or water towers may chose the faction
for example > start the power in zone A and the windmills will unlock buildings for whatever faction you chose, but if you start the water in another zone you can then choose the same faction or the other one. and when you do the windmills then that faction will populate that area.
so Facility Unlock + windmills = New NPC locations