Solar Reuse Assessment Butterworth Landfill Site


SOLAR REUSE ASSESSMENT
Butterworth Landfill Site in Grand Rapids, Ml
FINAL
NOVEMBER 2013
OVERVIEW
Cleanup is complete at the Butterworth Landfill Superfund site, in Grand
Rapids, Michigan.Today, the City of Grand Rapids (City) is interested
in redeveloping City-owned portions of the 190-acre site into a solar
renewable energy facility. The EPA Region 5 Superfund Redevelopment
Initiative sponsored a solar reuse assessment to support the City and the
Butterworth Site Group in evaluating solar energy reuse options for the
site.
REUSE GOALS
Since the completion of the site's remedy in 2000, the City has evaluated
a range of reuse options for the Butterworth Landfill site including
recreational reuse concepts that led to the development of a boat launch
on the Grand River and a paved recreation trail located on the northern
edge of the site. Currently, the City has identified an opportunity to pursue
a combination of recreational use and renewable energy generation at the
site.
The City has set a target to source 30 percent of municipal electricity
demands from renewable energy sources (hydro, wind and solar) by
201 3 and 100 percent by 2020. Recognizing the potential for utility
scale renewable energy generation at the site, City representatives have
identified the following reuse goals and priorities for the site:
•	Pursue a hybrid reuse approach for the site that balances sustainable
energy targets and community recreational needs.
•	Identify utility-scale solar generation opportunities to offset municipal
electricity demands.
This solar reuse assessment provides a summary of the following topics:
p. 2
Solar Resource Availability
p. 3-5
Site Suitability
p. 6-7
Solar Suitability Zones
p. 8
System Size and Cost Considerations
p. 9
Renewable Energy Incentives
p. I0-I I
Ownership Scenarios
P.I2
Summary
Sponsored by the EPA Region 5 Superfund Redevelopment Initiative
Grand Rapids, Ml
n_nj	1 i	im
0 Q5 1 2 3 A
Figure I. Site Context
Region 5 Renewable Energy
Reuse Assessments
For over 10 years, the U.S. Environmental
Protection Agency (EPA) Superfund
Redevelopment Initiative has been working with
communities nationwide to improve the process
of returning Superfund sites to beneficial
uses. As part of this program, EPA Region 5
has provided resources to evaluate potential
for renewable energy generation at select
Superfund sites.

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RESOURCE AVAILABILITY
The most important requirements for a renewable energy project are the availability of a suitable renewable energy resource,
site suitability (such as relatively flat land) and transmission access. This section summarizes solar resource and infrastructure
availability at the Butterworth Landfill site.
RESOURCE AVAILABILITY
The Butterworth Landfill site is located in an area well-suited
for solar power generation. The National Renewable Energy
Laboratory (NREL) solar radiation estimates indicate that the
state of Michigan has a relatively good solar resource. Solar
irradiance levels of 4.25 kWh/m2/day are found across the
state. Solar irradiance levels of 6 l
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SITE SUITABILITY
OWNERSHIP & REUSE PRIORITIES
The Butterworth Landfill site occupies approximately 190 acres bordered by Wealthy Street, the Grand River and
l-496.The site property is owned by four separate entities. Figure 3 shows the site parcels and landfill units. Given
the ownership patterns at the site, the reuse priorities of the individual owners are important factors in determining
suitability for solar PV development. A list of the property owners, acreage owned by each party and a summary of the
owners reuse priorities is provided below.
• City of Grand Rapids (140 acres) -The City owns the majority of the site and supports solar renewable energy
development on the Eastern Landfill Unit and central portions of the Western Landfill Unit.The City and community
members have prioritized northern portions of the Western Landfill Unit and riparian areas along the Grand River
for recreational use.
• Consumers Energy (22 acres) - Consumers Energy, the local electric utility, owns transmission corridors that
traverse the property and the electric substation directly east of the site. Consumers Energy supports the City's
efforts to pursue solar renewable energy development.
• Furniture City Broadcasing (25 acres) andTMD Realty (2 acres) - The Furniture City Broadcasting company
operates a radio station in the central portion of the site. Solar renewable energy development by the City is not a
desirable use for this property, due to the broadcasting company's need for access to radio tansmission towers and
related infrastructure.
Based on property owner priorities, only the parcels owned by the City of Grand Rapids and Consumers Energy are
considered suitable for solar renewable energy development and supporting infrastructure.
Key
PULAWSKI
Property Ownership
| City of Grand Rapids
(140 acres)
Consumers Energy
(22 acres)
WEALTHY
Private Owners - Furniture City
Broadcasting and TMD Realty
(27 acres)
Consumers
Energy
Substation
City-owned
(reserve for
recreational use) II Private owners
II (existing
I radio station)
I Parcel Boundaries
Other Map Features
Butterworth Landfill
Superfund Site Boundary
|__| Landfill Units
Streets
City-owned
(prioritized for
solar PV)
Surface Water
City-owned
(prioritized for
solar PV)
City of Grand Rapids
Wastewater
Treatment Plant
500
Figure 3. Property Ownership Map
November 2013
3
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SITE SUITABILITY
REMEDIAL FEATURES
Potential solar renewable energy development at the site will need to take into account the site's existing remedy.The landfill
remedy constructed in 2000 includes the following components: ground water monitoring wells, landfill cap constructed on
eastern and western landfill units, soil cover over the Radio Tower Station Building (RTSB) area. Institutional controls for the
site are partially implemented; EPA anticipates finalizing institutional controls in the near future. Remedial systems and other
site features are listed below and highlighted in Figure 4.
Landfill Cover
The landfill includes three units with the following capped systems:
• Western Landfill Unit (48" cap)
• Eastern Landfill Unit (48" cap)
• RTSB Area (12" compacted soil layer)
Other Remedy Components and Site Features
• Passive gas vents are located on the Western Landfill
Unit.
• Ground water monitoring wells are located
primarily along the perimeter of capped areas.
• Radio Tower located in RTSB area and transmission
towers sited across all three landfill units.
Site access road.
I"^
Consumers
Substation
•01
Radio Tower
Station Building
Area (RTSB Area)
(30 ac.)
ern Lan
Western Landfill
Unit (80 ac.)
atrS
Combined
Storm Sewer
Ditch

1 acre
1000 ft. NORTH
Remedy Features
r — — i
haai
48" Cap Area

12"Soil Cover
©
Leachate Well
©
Gas Probe / Gas Well

Monitoring Well or

Sentinel Monitoring Well
©
Water Table Monitoring

Surface Water
Other Map Features
Butterworth Landfill
Superfund Site Boundary
Paved Access (20' wide)
~
X
Existing Building
Electrical Tower
Combined Storm
Sewer Ditch

Figure 4 Site Remedy Components Map
Capped area in Western Landfill Unit
Butterworth Landfill Site Solar Reuse Assessment
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SITE SUITABILITY
GRADES
Topography arid aspect (slope direction) are also key factors that will influence the location and size of a solar PV system.
Grades of 10 percent or less are generally considered suitable for solar PV. Figure 5 characterizes the site grades into two
categories: less than or equal to 10 percent and greater than 10 percent. Slopes at the site are predominantly less than 10
percent
Drainage features including stormwater retention areas and internal drainage channels are not suitable for solar PV.
1000 ft. NORTH
Key
Grade Characterization
Slopes less than or equal to 10%
Slopes greater than 10%
Remedy Features
[II] 48"Cap Area
12" Soil Cover
© Leach ate Well
0 Gas Probe/Gas Well
© Monitoring Well or
Sentinel Monitoring Well
© Water Table Monitoring
Well
® Passive Gas Vent
Surface Water
Other Map Features
Butterworth Landfill
Superfund Site Boundary
Paved Access (20'wide)
Property Boundary Line
1 I Existing Building
X Electrical Tower
Figure 5. Site Grades Map
November 2013
Capped area in Eastern Landfill Unit adjacent to the Consumers Energy substation
Radio Tower Station Building Area
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SOLAR SUITABILITY ZONES
Mujti-use paved trail
Consumers
Energy
Substation
Boat launch
NORTH
SOLAR SUITABILITY
The solar reuse zones on Figure 6 identify several opportunities for solar development at the Butterworth Landfill site based on
property owner reuse priorities, grades and remedy components. Areas suitable for solar reuse (Zones A-1 andA-2) encompass
approximately 38 non-contiguous acres owned by the City. Areas with remedial or ownership limitations (Zone B) cover
approximately 28 acres that are not likely suitable for solar reuse. The City has prioritized use of an additional 54 acres (Zone C)
at the site for recreation and open space.
Key
Reuse Suitability
Zone A. Suitable for Solar PV (38 acres)
- Grades: <10 %
- Cap Depth: 48"
- Ownership: City-owned
Zone B. Private Ownership (28 acres)
- Grades: <10 %
- Cap Depth: 12"
- Ownership: Private (active radio broadcasting station)
Zone C. Recreation / Open Space (54 acres)
- Grades: Varied
- Cap Depth: 48"
- Ownership: City-owned
Remedy Features
48" Cap Area
¥"I/j 12" Soil Cover
Leachate Well
Gas Probe / Gas Well
Monitoring Well or
Sentinel Monitoring Well
Water Table Monitoring
Well
Passive Gas Vent
Surface Water
Other Map Features
Butterworth Landfill
Site Boundary
Paved Access (20' wide)
Property Boundary Line
Existing Substation
X Electrical Tower
• • Existing multi-use paved trail
Boat Launch
Figure 6. Reuse Suitability Zones Map
6
Butterworth Landfill Site Solar Reuse Assessment
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SOLAR SUITABILITY ZONES
SITE SUITABILITY CONSIDERATIONS
Table I below outlines additional site suitability considerations for the Zones A, B and C based on property owner reuse
priorities, physical features, remedy components.
Table I. Solar Reuse Considerations
Reuse Zone
Site Suitability Considerations
Zone A (38 acres)
Areas potentially suitable
for solar PV development
• Grades less then or equal to 10 percent.
• Property owned by City of Grand Rapids and Consumers Energy.
• 48" cap areas can likely accommodate solar PV development with considerations
to protect integrity of the cover system and other remedial features.
Zone B (28 acres)
Privately-owned in active
use with development
limitations
Zone C (54 acres)
Areas prioritized for open
space and recreational use
Property owned by private entities.
12" soil cover and radio station tower infrastructure present barriers to solar PV
development.
City of Grand Rapids has previously developed recreational reuse plans for the
site, including active uses in northwestern area, trails and a riparian corridor
along the Grand River.
City and community goals suggest preserving these areas for recreational use,
consistent with the site's remedy.
November 2013
REMEDY COMPATIBILITY
Any future development will need to be consistent with the site's remedial features and institutional controls to ensure
the long-term protectiveness of the site's remedy. Solar development activities at the site should be consistent with
remedial documents and done in coordination with EPA and the Butterworth Site Group. Key factors to consider in
locating solar PV systems on capped landfills include: the type of anchoring system and routing of electrical infrastructure.
EPA, the City and the Butterworth Site Group have indicated that surficially mounted PV arrays, with electrical
infrastructure routed through above ground conduit would offer the least impact on the capped surface. Alternately, PV
arrays could potentially be mounted on concrete pilings anchored into the 48" cap, as long as footings could be designed
to ensure the protectivenss of the cap.
A 2.1 M W solar PV project In place at the East Hampton Landfill In western Massachusetts is an example of a solar project designed for
compatibility with an existing remedy. Solar PV arrays are mounted on ballasted foundations that rest on top of the landfill cover system (above
left); the configuration of the site's solar PV network is designed to allow for access to existing remedy components, such as landfill gas collection
and ground water monitoring wells (above right). Image source: Borego Solar
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SYSTEM SIZE AND COST CONSIDERATIONS
POTENTIAL SOLAR PV GENERATION AND COST CONSIDERATIONS
Based on property owner reuse priorities, remedial considerations and physical features, approximately 38 acres at
the site are potentially suitable for solar PV. Reuse Zones A-1 (Eastern Landfill Unit) and A-2 (Western Landfill Unit)
highlighted in orange on Figure 5 are likely well-suited for solar PV development. A range of potential solar PV system
size, generation and cost estimates corresponding to these zones are listed in Table 2 below. Costs in the solar industry
are changing rapidly. While data in Table I are from recent published sources, the proposed system cost could end up
being considerably less than calculated in this report as costs continue to decline.The estimated installed costs do not
factor in potential incentives or solar PV system ownership and financing options but are intended to provide a baseline
overview of the upfront capital costs associated with designing and building various sized systems that may be feasible at
the site.
Table 2. Potential Solar PV System Size and Cost Estimates
Reuse Zone
Available
Acreage
Estimated Project
Size
Estimated
Output
Installed Costs
Annual O&M
Costs
Zone A1
13
3.5 - 5 MW
3700 - 5400
MWh
$1 I.5M - $ 16.5M
$70 k- 100k
Zone A2
20
4 - 5.5 MW
4300 - 5900
MWh
$13.2M - $I8M
$80 k - 1 10k
Assumptions
System Costs:$3.30 - $4.00/Watt installed
O&M Costs: $20/kW/Year
Area needed: 3.5 - 5 acres / MW
MWh=IOOO kilowatthours (kWh)
Output estimates based on average crystalline silicon PV system
Costs are installed costs and do not include any potential incentives/rebates
Meter
Combiner
Box
Estimated costs referenced in Table 2 include design, installation and maintenance costs for the typical solar PV system components illustrated in the
diagram above Image source: National Renewable Energy Lab
PV Modules
Inverter
Utility Grid
Transformer
8
Butterworth Landfill Site Solar Reuse Assessment
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RENEWABLE ENERGY INCENTIVES
INCENTIVES AND FINANCING OPPORTUNITIES
identifying and leveraging applicable incentives and grants is an important part of making PV systems cost effective.
Incentives are available at the state and federal level and include both policy-based incentives (e.g., renewable portfolio
standards) and financial incentives (e.g., tax credits and rebates). A number of policies and incentives, such as those
outlined below, could help facilitate the development of larger scale solar energy projects.
Business Energy Investment Tax Credit
• Credit equal to 30% of RE system expenditures, with no maximum credit.
• Credits available for eligible systems placed in service on or before December 31,2016.
• Entities with no income tax liability (e.g., municipalities) cannot directly access this incentive if they own RE systems.
Modified Accelerated Cost-Recovery
• Current depreciation method for most property.
• Qualifying solar energy equipment is eligible for a cost recovery period of five years.
Renewable Portfolio Standard
• Utilities must generate 10% of retail electricity sales by 2015
• Consumers Energy must produce 200 MW by 201 3 and 500
• Up to 50% of the standard may be met with RECs produced
Net Metering
• RE system must be sized to "meet annual electricity needs."
• Three categories:
• 20 kilowatts (kW) and less - Category I
• 20-150 kW - Category 2
• 150-550 kW - Category 3 (only methane digesters over
Experimental Advanced Renewable Program
• Performance-based Incentive
• Buy-back tariff program for electricity produced by solar PV systems
• Consumers Energy will purchase all electricity produced by a system through a fixed-rate contract of up to 15 years.
• Program capped at 3MW (1.5MW for non residential)
• Non-residential system sizes can not exceed 150kW
• Most recent non-residential buyback price was $0.19/kWh
The financial viability of a renewable energy project at the Butterworth Landfill site will depend on the ability of the project
to take advantage of as many of these funding opportunities as possible either directly as a project owner/developer or
through partnerships or other financial arrangements reached with potential solar energy developers who are eligible for
the incentives listed above.
from renewables.
MW by 2015.
by utility-owned facilities.
150 kW)
At the Aerojet General Corp. Superfund Site in Sacremento County, California, a 6 M W solar project installed on 40 acres supplies 20 percent
of the electricity needed for the site's ground water remediation. This project was financed through a public-private partnership between Aerojet
Solar Power, Inc. and the Sacramento Municipal Utility District.
November 2013
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OWNERSHIP SCENARIOS
OWNERSHIP AND PROJECT DEVELOPMENT OPTIONS
In addition to capital costs and available incentives, the type of solar PV project and arrangement between the land owner or
host, project developer, investor and utility can have a significant impact on the financial viability of a project.Table 3 below
outlines the benefits and limitations of three ownership options identified by the City of Grand Rapids as the most desirable
scenarios for the city to host a solar project at the site. A summary of preliminary financial considerations for these three
ownership scenarios is included on page I I.
Table 3. PV Project Ownership Scenarios
Scenario
Overview
Benefits
Limitations
Direct
Ownership
A public entity owns a PV system.
Under this approach, a public entity (e.g.,
a municipality) serves as the developer,
financier, builder and owner of a PV
system.While the public entity may
hire subcontractors to build or operate
the system, it remains responsible for
oversight and financing.
Project financing can take the form of a
general obligation bond, a stand-alone
bond, bank financing, grants, city revenue
or a combination of these sources.
• Potential ability to fund
project development with
public debt (e.g., bond
issuance).
• Full control over project
design, operation and risk.
• Ability to choose what to do
with renewable energy credits
(RECs) from a project (i.e.,
keep or sell them).
• Direct control of site access
and any potential security or
site risk considerations.
• Large PV projects are
capital intensive.
• Public entities cannot
directly benefit from the
tax-credit based incentives
available to private
companies.
• Need to have (or hire)
expertise to navigate local
utility interconnections
and power purchase
process.
• May need to self-insure
a PV system prior to
interconnection.
Third-Party
Power
Purchase
Agreement
(PPA)
A public entity (municipality) hosts and
purchases power from a PV system but
does not own it.
The "third party" ownership model is
a long-term contract that requires a
separate, taxable entity (i.e., the investor
/ owner of the PV system) to finance and
sometimes build and operate the system
on a site owned by the host.
The system owner is often a third-party
investor who provides investment capital
for the project in return for tax benefits.
Typically, the developer will sell electricity
to the site host or the local utility via a
long-term contract (a PPA).
• No/low up-front cost to
public entity.
• Public entity can avoid dealing
with complex system design
and permitting processes.
• No PV system operation and
maintenance responsibilities
or costs.
• Public entity can benefit by
either receiving competitively
priced electricity via a PPA or
land lease revenues for making
the site available to the solar
developer via a lease payment:
• Predetermined and
predictable cost of electricity
with a PPA.
• PPA negotiation can be
lengthy and costly.
• Legal expertise and
contracting experience
needed to ensure
municipality's interests are
well represented.
• Ongoing site access
required for system
operation and
maintenance.
• Typically, project developer
or investor owns the
RECs.
• Some PPAs require host
to purchase the system
at end of contract if PPA
term is less than the useful
life of the system.
10
Butterworth Landfill Site Solar Reuse Assessment
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OWNERSHIP SCENARIOS
Table 3. PV Project Ownership Scenarios (continued)
Scenario
Overview
Benefits
Limitations
Ownership A variation of the third party ownership
Flip model, where ownership of the PV
system would "flip" to the developer (or
a public entity) after the investor has fully
monetized the tax benefits of a project
(typically five or six years, but can be
longer).
This type of flip arrangement is typically
negotiated up front and the terms of a flip
included in a PPA.The public entity (host)
would have the option to buy out all or
most of the owner's interest in a project
at the fair market value of the PV system.
If an ownership transfer model is desirable,
it should be considered during the Request
for Information (RFI) development phase.
Similar benefits to third
party PPA in terms of pre-flip
benefits.
A public entity could have the
option to purchase the system
and take full ownership after
RECs and depreciation are
realized by the investor.
Potential opportunity, upon
owning the system, for the
public entity to continue to
sell electricity and/or RECs to
a utility or replace electricity
purchased from the grid.
Similar limitations to third
party PPA in terms of pre-
flip challenges.
Model often implemented
as a partnership-flip,
where developer
and lender create a
partnership in the form of
a special purpose entity
(SPE) and then share pre-
negotiated percentages
of the income, incentives
and depreciation of the
system.
KEY OWNERSHIP AND FINANCIAL CONSIDERATIONS
A preliminary financial analysis examined the potential impact of a 5MW solar facility located at the site.This size project could
be located in Zone AI or A2, shown in Figure 6, and help the City meet its goals of reducing municipal energy use. Potential
impacts under three different project development scenarios are summarized below.
Direct Ownership
A government owned and financed system would carry some level of financial risk. Large solar projects are capital intensive and
the City cannot directly benefit from the tax-credit based incentives available to private companies.The City may also need to
retain expertise to navigate the local utility interconnection and power purchase process. A City-owned solar project funded
with public debt could offset a portion of the electricity usage from the City's waste water treatment plant and result in energy
cost savings if the installed cost of a solar project drops below $2.50/W or the anticipated price of electricity from the grid
increases at an annual rate of 9 percent.
Third-Party Power Purchase Agreement (PPA)
A third- party PPA may provide the most viable way for a system to be financed and installed at the site. A purchase agreement
approach can provide cost certainty against long-term electricity prices and will generally be economically viable if a project can
be developed with a PPA price that is competitive with utility electricity rates (current rates or projected rate increases).This
arrangement could potentially allow the City to utilize the benefits of the tax credits that are available to a third-party developer
while not directly receiving them.
Ownership Flip
The ownership flip approach, a variation on the Third-Party PPA, could enable the City to acquire a solar project at a discount at
a specified point in the future. The viability of an ownership flip approach will depend on the final negotiated "fair market value"
of a system and whether the public entity will continue to be able to sell output from the system once it assumes ownership.
November 2013
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SUMMARY
SOLAR REUSE CONSIDERATIONS
Solar Reuse Suitability
The reuse assessment has identified 38 acres suitable for direct-
use and utility-scale solar PV development. With suitable acreage
divided among two landfill units, the site offers the flexibility to
accommodate system sizes ranging from 5 MW to 10 MW.
Multi-use Approach
The site can accommodate multiple uses to help achieve the
City's recreation and sustainable energy goals. Focusing solar PV
development on the most suitable areas would allow the City to
reserve approximately 54 acres in northwestern and southern
portions of the site for open space and programmed recreational
uses.
Remedy Compatibility
Solar PV development is likely compatible with the existing
remedial features. PV arrays would need to be configured around
remedy features. PV array installation using a ballasted anchoring
system could ensure minimal disturbance of the cap surface. As
institutional controls are finalized, EPA may want to ensure that
use restrictions do not preclude solar reuse.
Phasing
Solar PV arrays could be installed in phases at the site. 18 acres
at the Eastern Landfill Unit can accommodate a 5 MW solar
project. Located in close proximity to Consumers Energy's
existing substation, this area is likely well-suited for an initial
phase of solar development. 20 acres at the Western Landfill Unit
could support an additional 5 MW project in a later phase. A
phased approach would offer the opportunity to test financial
feasibility at a small scale.
Ownership and Development Options
The City and Consumers Energy have initiated discussions to
identify solar project ownership, development and financing
options.The City is considering a range of potential ownership
options for a solar project including: I) Direct Ownership, 2)
Third-party PPA and 3) Ownership Flip. Working with a solar
renewable energy developer to locate a solar PV project at the
site through a Third-party PPA ownership model would likely
provide the most efficient and cost effective approach for the
City to host a renewable energy project at the site.
ACKNOWLEDGMENTS
The following organizations and entities contributed to
the findings of the Butterworth Solar Reuse Assessment:
• City of Grand Rapids
• Butterworth Site Group
• Consumers Energy
• EPA Region 5
Reuse assessment developed by Skeo Solutions
RESOURCES
Region 5 Superfund Redevelopment
http://www. e pa.gov/regi o n 5/s u pe rf u n d/red eve I o p
Superfund Redevelopment Initiative
http://www.epa.gov/superfund/programs/recycle
Re-Powering America Best Practices for Siting Solar
Photovoltaics on Municipal Solid Waste Landfills
http://www.epa.gov/renewableenergyland/docs/best_
practices siting solar photovoltaic flnal.pdf
Re-Powering America Renewable Energy Interactive
Mapping Tool
http://epa.gov/renewableenergyland/mapping_tool.htm
Siting Clean and Renewable Energy on
Contaminated Lands and Mining Sites
U.S. Environmental Protection Agency. Office of Solid
Waste and Emergency Response. September 2008.
Solar Energy Industries Association
http://www. seia.org
Database of State Incentives for Renewables &
Efficiency (DSIRE)
http://www.dsireusa.org
DOE Solar Energy Technologies Program
http://www I .eere.energy.gov/solar
NREL Photovoltaic (PV) Pricing Trends: Historical,
Recent, and Near-Term Projections
http://www.nrel.gov/docs/fy I 3osti/56776.pdf
NREL Renewable Energy Resource Maps
http://www.nrel.gov/renewable_resources
NREL Solar Advisor Model
https://www.nrel.gov/analysis/sam
CONTACT INFORMATION
Dion Novak, EPA Region 5, Remedial Project Manager:
(312-886-4737 | novak.dion@epa.gov
Tom Bloom, EPA Region 5, Reuse Coordinator:
(312) 886-1967 | bloom.thomas@epa.gov
Sponsored by the EPA Region 5 Superfund Redevelopment Initiative
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Butterworth Landfill Site Solar Reuse Assessment
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