NREL is a national laboratory of the U.S. Department of Energy

Office of Energy Efficiency & Renewable Energy

Operated by the Alliance for Sustainable Energy, LLC.

This report is available at no cost from the National Renewable Energy

Laboratory (NREL) at www.nrel.gov/publications.

Contract No. DE-AC36-08GO28308

Feasibility Study of Economics 

and Performance of Solar 

Photovoltaics at the Kolthoff 

Landfill in Cleveland, Ohio

A Study Prepared in Partnership with the 

Environmental Protection Agency for the 

RE-Powering America’s Land Initiative: 

Siting Renewable Energy on Potentially 

Contaminated Land and Mine Sites

James Salasovich, Jesse Geiger, Gail Mosey, 

and Victoria Healey

Produced under direction of the U.S. Environmental Protection 

Agency (EPA) by the National Renewable Energy Laboratory (NREL) 

under Interagency Agreement IAG-08-0719 and Task No. 

WFD3.1002. 

Technical Report

NREL/TP-7A40-58760

June 2013
NREL is a national laboratory of the U.S. Department of Energy

Office of Energy Efficiency & Renewable Energy

Operated by the Alliance for Sustainable Energy, LLC.

This report is available at no cost from the National Renewable Energy

Laboratory (NREL) at www.nrel.gov/publications.

Contract No. DE-AC36-08GO28308

National Renewable Energy Laboratory

15013 Denver West Parkway

Golden, CO 80401

303-275-3000 • www.nrel.gov

Feasibility Study of Economics 

and Performance of Solar 

Photovoltaics at the Kolthoff 

Landfill in Cleveland, Ohio

A Study Prepared in Partnership with the 

Environmental Protection Agency for the 

RE-Powering America’s Land Initiative: 

Siting Renewable Energy on Potentially 

Contaminated Land and Mine Sites

James Salasovich, Jesse Geiger, Gail Mosey, 

and Victoria Healey

Prepared under Task No. WFD3.1002

Technical Report

NREL/TP-7A40-58760

June 2013
NOTICE

This report was prepared as an account of work sponsored by an agency of the United States government. 

Neither the United States government nor any agency thereof, nor any of their employees, makes any warranty, 

express or implied, or assumes any legal liability or responsibility for the accuracy, completeness, or usefulness of 

any information, apparatus, product, or process disclosed, or represents that its use would not infringe privately 

owned rights. Reference herein to any specific commercial product, process, or service by trade name, 

trademark, manufacturer, or otherwise does not necessarily constitute or imply its endorsement, recommendation, 

or favoring by the United States government or any agency thereof. The views and opinions of authors

expressed herein do not necessarily state or reflect those of the United States government or any agency thereof.

This report is available at no cost from the National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Available electronically at http://www.osti.gov/bridge

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Cover Photos: (left to right) photo by Pat Corkery, NREL 16416, photo from SunEdison, NREL 17423, photo by Pat Corkery, NREL 

16560, photo by Dennis Schroeder, NREL 17613, photo by Dean Armstrong, NREL 17436, photo by Pat Corkery, NREL 17721.

 Printed on paper containing at least 50% wastepaper, including 10% post consumer waste. 
iii This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Acknowledgments

The National Renewable Energy Laboratory (NREL) thanks the U.S. Environmental Protection 

Agency (EPA), Region 5, for its interest in securing NREL’s technical expertise. In particular, 

NREL and the assessment team for this project are grateful to the City of Cleveland and the 

Kolthoff Landfill facility managers, engineers, and operators for their generous assistance

and cooperation. 

Special thanks to Rosita Clarke, Karla Auker, Brooke Furio, Lura Matthews, Shea Jones, and 

Jessica Trice from EPA; Katie Brown, AAAS Science & Technology Policy fellow hosted by 

EPA; and Elizabeth Forester and David Ebersole from the City of Cleveland for hosting the site 

visit. The authors would also like to thank David Wazny from Hull & Associates for his

involvement in the project. 
iv This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

List of Acronyms

AC alternating current

a-Si amorphous silicon 

BOS balance of system

CdTe cadmium telluride

DC direct current

EPA U.S. Environmental Protection Agency 

FTE full-time equivalent

HVAC heating, ventilation, and air conditioning

JEDI Jobs and Economic Development Impact 

LCOE levelized cost of energy

NREL National Renewable Energy Laboratory 

O&M operations and maintenance 

NPV net present value 

PPA power purchase agreement

PV photovoltaic 

REC renewable energy certificate

SAM System Advisor Model 

SPE special purpose entity

SREC solar renewable energy certificate

SSA solar services agreement 

VNM virtual net metering
v 

This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Executive Summary

The U.S. Environmental Protection Agency (EPA), Region 5, in accordance with the REPowering America’s Land initiative, selected the Kolthoff Landfill site in Cleveland, Ohio, for a 

feasibility study of renewable energy production. The National Renewable Energy Laboratory 

(NREL) provided technical assistance for this project. The purpose of this report is to assess the 

site for a possible photovoltaic (PV) system installation and estimate the cost, performance, and 

site impacts of different PV options. In addition, the report recommends financing options that 

could assist in the implementation of a PV system at the site. This study did not assess 

environmental conditions at the site. 

The Kolthoff Landfill is owned by the City of Cleveland and is classified as a brownfield site.

The Kolthoff Landfill is approximately 48 acres, which includes the former Brook Park Landfill 

to the west (30 acres) and the former wastewater treatment plant to the east (18 acres). The 

landfill is inactive, and there are no major contamination issues that need to be addressed. In 

2011, the Clean Ohio Assistance Fund grants awarded a $299,377 grant to the City of Cleveland 

to conduct a Phase II assessment of the Kolthoff Landfill property. The Phase II assessment 

includes installing 51 test pits, 14 monitoring wells, and 10 soil vapor probes and collecting 

123 soil samples. The Phase II assessment will help to determine the environmental stability of 

the landfill.1

The feasibility of a PV system installed is highly impacted by the available area for an array, 

solar resource, distance to transmission lines, and distance to major roads. In addition, the 

operating status, ground conditions, and restrictions associated with redevelopment of the landfill

site impact the feasibility of a PV system. Based on an assessment of these factors, the Kolthoff 

Landfill meets the first level of requirements for deployment of a large-scale PV system. 

Out of the 30-acre Kolthoff Landfill, 12.8 acres are feasible for installing ground-mounted PV; 

5.0 acres out of the 18-acre former wastewater treatment plant are feasible for installing groundmounted PV. The construction of a hotel on the former wastewater treatment area has been 

proposed as a possible future reuse of the land. If a hotel were to be built, it was assumed that the 

footprint of the hotel would be approximately 11,000 ft2. Both the 12.8-acre and the 5.0-acre

areas are generally flat, and a majority of the area is cleared of trees and other possible shading 

obstructions. While this entire area does not need to be developed at one time due to the 

feasibility of staging installation as land or funding becomes available, calculations for this 

analysis reflect the solar potential if the total feasible area is used. The remaining area is not 

feasible for PV because it is either shaded, sloped, or both. 

The potential PV system on Kolthoff Landfill depends on the purchase price of renewable energy 

certificates (RECs) as well as the utility sale price for electricity generated. The economics of the 

potential system were analyzed using the current average REC purchase price of $0.035/kWh for 

10 years and an expected electricity generated purchase rate from FirstEnergy at $0.12/kWh. The 

incentives considered include the federal 30% of installed cost tax credit; Ohio Qualified Energy 

Property Tax Exemption of approximately 100% of the increased value attributed to a solar 

 

1 The Ohio Senate. “Senator Skindell Announces Clean Ohio Funds for Cleveland,” 2011September 12. Accessed 

December 2012: http://www.ohiosenate.gov/skindell/press/senator-skindell-announces-clean-ohio-funds-forcleveland. 
vi This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

system; and the Ohio Sales Tax Exemption of 100% of sales tax for all related solar equipment.

Table ES-1 summarizes the system performance and economics of a potential system that would 

use all available areas that were surveyed at the landfill plus the potential roof area that could 

contain PV panels. The table shows the annual energy output from the system along with the 

number of average American households that could be powered off of such a system and 

estimated job creation. 

As indicated in Table ES-1, the single-axis ground system is expected to have a payback of 

13.3 years and a net present value of $162,619 for a 2,557-kW PV system producing 

approximately 3,617,495 kWh estimated annual energy generation. These indicators are in the 

range of what is typically considered economically attractive. This includes the current cost of 

energy, expected installation cost, site solar resource, and existing incentives for the proposed 

PV system. 

Table ES-1. Price Landfill PV System Summary
vii This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table of Contents

1 Study and Site Background................................................................................................................. 1

2 Development of a PV System on Brownfield Sites ........................................................................... 2

3 PV Systems ........................................................................................................................................... 4

3.1 PV Overview................................................................................................................................. 4

3.2 Major System Components........................................................................................................... 5

3.2.1 PV Module ....................................................................................................................... 5

3.2.2 Inverter............................................................................................................................. 7

3.2.3 Balance-of-System Components...................................................................................... 8

3.2.4 Operation and Maintenance ........................................................................................... 10

3.3 Siting Considerations .................................................................................................................. 11

4 Proposed Installation Location Information.................................................................................... 12

4.1 Kolthoff Landfill Site PV System ............................................................................................... 12

4.2 Utility-Resource Considerations................................................................................................. 15

4.3 Useable Acreage for PV System Installation .............................................................................. 16

4.4 PV Site Solar Resource ............................................................................................................... 17

4.5 Kolthoff Landfill Energy Usage.................................................................................................. 18

4.5.1 Estimated Future Energy Use and Net-Zero Energy Potential....................................... 19

4.5.2 Net Metering .................................................................................................................. 19

4.5.3 Virtual Net Metering ...................................................................................................... 20

5 Economics and Performance............................................................................................................ 21

5.1 Assumptions and Input Data for Analysis................................................................................... 21

5.2 SAM-Forecasted Economic Performance ................................................................................... 23

5.2.1 Fixed-Axis vs. Single-Axis Tracking............................................................................. 23

5.2.2 Solar Investor vs. Developer Owned.............................................................................. 24

5.3 Job Analysis and Impact ............................................................................................................. 24

5.4 Financing Opportunities.............................................................................................................. 26

5.4.1 Owner and Operator Financing ...................................................................................... 26

5.4.2 Third-Party Developers with Power Purchase Agreements........................................... 26

5.4.3 Third-Party “Flip” Agreements...................................................................................... 27

5.4.4 Hybrid Financial Structures ........................................................................................... 27

5.4.5 Solar Services Agreement and Operating Lease ............................................................ 27

5.4.6 Sales/Leaseback ............................................................................................................. 28

5.4.7 Community Solar/Solar Gardens ................................................................................... 28

6 Conclusions and Recommendations ............................................................................................... 29

Appendix A. Provided Site Information .................................................................................................. 30

Appendix B. Solar Access Measurements ............................................................................................. 31

Appendix C. Assumptions for the Assessment and Calculations....................................................... 32

Appendix D. Building Energy Modeling.................................................................................................. 33

Four-Story Hotel Building Energy Model............................................................................................ 33

Appendix E. Results from the System Advisor Model .......................................................................... 37

Appendix F. Results from the Job and Economic Development Impact Model................................. 46
viii This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

List of Figures

Figure 1. Generation of electricity from a PV cell ...........................................................................4

Figure 2. Ground-mounted array diagram .......................................................................................5

Figure 3. Mono- and multi-crystalline solar panels .........................................................................6

Figure 4. Thin-film solar panels installed on (left) solar energy cover and (middle/right) fixed-tilt 

mounting system ...........................................................................................................6

Figure 5. String inverter ...................................................................................................................8

Figure 6. Aerial view of the Kolthoff Landfill and former wastewater plant (shaded in gray) .....12

Figure 7. Aerial view of the current feasible area for PV at the Kolthoff Landfill and former 

wastewater plant (ground-mounted PV shaded in yellow and roof-mounted PV 

shaded in orange) ........................................................................................................13

Figure 8. Trees that would have to be removed on the Kolthoff Landfill prior to PV installation14

Figure 9. Views of the feasible area for PV at the approximate center of the Kolthoff Landfill ..15

Figure 10. Kolthoff Landfill showing IX Center Drive Substation and the transmission lines .....16

Figure 11. IX Center Drive Substation and electrical transmission lines at the Kolthoff Landfill 16

Figure A-1. Areas at the Kolthoff Landfill site ..............................................................................30

Figure B-1. Solar access measurements at the former wastewater treatment plant at the Kolthoff 

Landfill taken 50 feet north of the southern trees .......................................................31

Figure D-1. Hotel building eQUEST model representation ..........................................................34

Figure D-2. Kolthoff Hotel eQUEST results for annual energy use ..............................................36

Figure E-1. Modeled output for a ground-mounted fixed-tilt system ............................................37

Figure E-2. Modeled output for a single-axis tracking ground PV system ...................................38

Figure E-3. Modeled output for a roof-mounted fixed-tilt system ................................................39

Figure E-4. LCOE for site owner purchase of a fixed-tilt ground system .....................................40

Figure E-5. After-tax cash flow for site owner purchase of a fixed-tilt ground system ................41

Figure E-7. LCOE for site owner purchase of a single-axis tracking PV system ..........................42

Figure E-8. After-tax cash flow for site owner purchase of a single-axis tracking PV system .....43

Figure E-9. LCOE for site owner purchase of a fixed-axis roof PV system .................................44

Figure E-10. After-tax cash flow for site owner purchase of a fixed-axis roof PV system ...........45
ix This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

List of Tables

Table ES-1. Price Landfill PV System Summary .......................................................................... vi

Table 1. Energy Density by Panel and System ................................................................................9

Table 2. Rooftop Energy Density by Panel ...................................................................................10

Table 2. Site Identification Information and Specifications ..........................................................17

Table 3. Performance Results for 20-Degree Fixed-Tilt PV .........................................................18

Table 4. Performance Results for Zero-Degree Single-Axis PV ...................................................18

Table 6. Installed System Cost Assumptions .................................................................................22

Table 7. Summary of Incentives Evaluated ...................................................................................23

Table 8. Results Summary of Simulations .....................................................................................23

Table 9. PV System Summary .......................................................................................................24

Table 10. JEDI Analysis Assumptions ..........................................................................................25

Table C-1. Cost, System, and Other Assessment Assumptions .....................................................32

Table D-1. Hotel Building eQUEST Summary Information .........................................................35

Table F-1. Data Summary for JEDI Model Analysis of Single-Axis Tracking PV System ..........46

Table F-2. Summary of Local Economic Impacts for JEDI Model Analysis of Single-Axis 

Tracking PV System ...................................................................................................47

Table F-3. Detailed Summary of Costs for JEDI Model Analysis of Single-Axis Tracking 

PV System ..................................................................................................................48

Table F-4. Annual O&M Costs for JEDI Model Analysis of Single-Axis Tracking PV System..49
1 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

1 Study and Site Background

The U.S. Environmental Protection Agency (EPA), Region 5, in accordance with the REPowering America’s Land initiative, selected the Kolthoff Landfill site in Cleveland, 

Ohio, for a feasibility study of renewable energy production. The National Renewable 

Energy Laboratory (NREL) provided technical assistance for this project. The purpose of 

this report is to assess the site for a possible photovoltaic (PV) system installation and 

estimate the cost, performance, and site impacts of different PV options. In addition, the 

report recommends financing options that could assist in the implementation of a PV 

system at the site. This study did not assess environmental conditions at the site. 

The Kolthoff Landfill is located in Cleveland, Ohio, and is in close proximity to the 

Cleveland Hopkins International Airport. The Kolthoff Landfill is approximately 

10.5 miles to the southwest of the city center. Cleveland has a population of 396,815 as 

of the 2010 census. Cleveland has on average approximately 163 sunny days per year, 

and the climate is hot and humid in the summer and cold in the winter. FirstEnergy is the 

energy provider to Cleveland; it is an unregulated utility that is investor owned. 

FirstEnergy owns the transmission lines that run through the site. The IX Center Drive 

Substation is located right across the street from the site and is less than 200 feet to the 

north of the Kolthoff Landfill. Interconnection is governed by FirstEnergy. Performing an 

interconnection study can be a relatively slow process that would have to be performed 

through FirstEnergy and could involve considerable cost. Performing a detailed 

interconnection study is beyond the scope of this project, but FirstEnergy should be 

contacted to determine the extent of effort involved. There is currently no major electrical

load at the site. There are surrounding buildings that could be potential off-takers of 

electricity produced by a utility-scale PV system. 

The Kolthoff Landfill is owned by the City of Cleveland and is approximately 48 acres, 

which includes the former Brook Park Landfill to the west (30 acres) and the former 

wastewater treatment plant to the east (18 acres). The City of Cleveland is interested in 

utilizing the currently underutilized site for solar PV in order to minimize its impact on 

the environment. 

The Kolthoff Landfill is capped with a clay cap that is 3 feet deep, which should not be 

disturbed. There are some trees on the site, and most of the settling at the landfill has 

occurred. The landfill is a pre-regulatory landfill, and there are no major environmental

issues at the site. There is no pump and treat system on site. 

Feasibility assessment team members from NREL and EPA conducted a site visit on 

August 30, 2012, to gather information integral to this feasibility study. The team 

considered information, including solar resource, transmission availability, community 

acceptance, and ground conditions. 
2 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

2 Development of a PV System on Brownfield

Sites 

Through the RE-Powering America’s Lands initiative, EPA has identified several 

benefits for siting solar PV facilities on brownfield sites, noting that they: 

• Can be developed in place of limited greenfields, preserving the land carbon sink 

• Could have environmental conditions that are not well suited for commercial or 

residential redevelopment and might be adequately zoned for renewable energy 

• Generally are located near existing roads and energy transmission or 

distribution infrastructure

• Could provide an economically viable reuse for sites that have significant cleanup 

costs or low real estate development demand 

• Can provide job opportunities in urban and rural communities 

• Can advance cleaner and more cost-effective energy technologies and reduce the 

environmental impacts of energy systems (e.g., reduce greenhouse gas emissions).

By taking advantage of these potential benefits, PV can provide a viable, beneficial reuse, 

in many cases, generating significant revenue on a site that would otherwise go unused. 

The Kolthoff Landfill is owned by the City of Cleveland, which is interested in potential 

revenue flows on the site. For many brownfield sites, the local community has significant 

interest in the redevelopment of the site, and community engagement is critical to match 

future reuse options to the community’s vision for the site. 

Understanding opportunities studied and realized by other similar sites demonstrates the 

potential for PV system development. The City Solar project in Chicago, Illinois, is the 

largest urban PV system in the United States, and it is built on a brownfield site. The 

brownfield site is a former industrial site that has been vacant for 30 years. The 41-acre 

site is comparable to the areas available at the Kolthoff Landfill, and the site is owned by 

the City of Chicago, who leases the land to a solar developer. The City Solar project was 

completed in 2010 and is a 10-MW single-axis tracking system.2 

The subject site has potential to be used for other functions beyond the solar PV systems 

proposed in this report. Any potential use should align with the community vision for the 

site and should work to enhance the overall utility of the property. The construction of a 

hotel on the east side of the site is being considered. 

There are many compelling reasons to consider moving toward renewable energy sources 

for power generation instead of fossil fuels, including: 

• Renewable energy sources offer a sustainable energy option in the broader 

energy portfolio 

 

2 Exelon. “Exelon City Solar.” Accessed July 2012: 

http://www.exeloncorp.com/PowerPlants/exeloncitysolar/Pages/Profile.aspx. 
3 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

• Renewable energy can have a net positive effect on human health and 

the environment 

• Deployment of renewable energy bolsters national energy independence and 

increases domestic energy security

• Fluctuating electric costs can be mitigated by locking in electricity rates 

through long-term power purchase agreements (PPAs) linked to renewable 

energy systems 

• Generating energy without harmful emissions or waste products can be 

accomplished through renewable energy sources. 
4 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

3 PV Systems

3.1 PV Overview

Solar PV technology converts energy from solar radiation directly into electricity. Solar 

PV cells are the electricity-generating component of a solar energy system. When 

sunlight (photons) strikes a PV cell, an electric current is produced by stimulating 

electrons (negative charges) in a layer in the cell designed to give up electrons easily. The 

existing electric field in the solar cell pulls these electrons to another layer. By 

connecting the cell to an external load, this current (movement of charges) can then be 

used to power the load (e.g., a light bulb). 

Figure 1. Generation of electricity from a PV cell

Source: EPA

PV cells are assembled into a PV panel or module. PV modules are then connected to 

create an array. The modules are connected in series and then in parallel as needed to 

reach the specific voltage and current requirements for the array. The direct current (DC) 

electricity generated by the array is then converted by an inverter to useable alternating 

current (AC) that can be consumed by adjoining buildings and facilities or exported to the 

electricity grid. PV system size varies from small residential (2–10 kW), to commercial 

(100–500 kW), to large utility scale (10+ MW). Central distribution plants are also 

currently being built in the 100+ MW scale. Electricity from utility-scale systems is 

commonly sold back to the electricity grid. 
5 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

3.2 Major System Components

Figure 2. Ground-mounted array diagram

Source: NREL

A typical PV system is made up of several key components, including: 

• PV modules

• Inverter 

• Balance-of-system (BOS) components. 

These, along with other PV system components, are discussed in turn below. 

3.2.1 PV Module

Module technologies are differentiated by the type of PV material used, resulting in a 

range of conversion efficiencies from light energy to electrical energy. The module 

efficiency is a measure of the percentage of solar energy converted into electricity. 

Two common PV technologies that have been widely used for commercial- and utilityscale projects are crystalline silicon and thin film. 

3.2.1.1 Crystalline Silicon

Traditional solar cells are made from silicon. Silicon is quite abundant and nontoxic. It 

builds on a strong industry on both supply (silicon industry) and product side. This 

technology has been demonstrated to be functional for over 30 years in the field. The 

performance degradation, a reduction in power generation due to long-term exposure, is 

under 1% per year. Silicon modules have a lifespan in the range of 25–30 years but can 

keep producing energy beyond this range. 
6 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Typical overall efficiency of silicon solar panels is between 12% and 18%. However, 

some manufacturers of mono-crystalline panels claim an overall efficiency nearing 20%. 

This range of efficiencies represents significant variation among the crystalline silicon 

technologies available. The technology is generally divided into mono- and multicrystalline technologies, which indicates the presence of grain-boundaries (i.e., multiple 

crystals) in the cell materials and is controlled by raw material selection and 

manufacturing technique. Crystalline silicon panels are widely used based on 

deployments worldwide. 

Figure 3 shows two examples of crystalline solar panels: mono- and multi-silicon 

installed on tracking mounting systems. 

Figure 3. Mono- and multi-crystalline solar panels. Photos from (left) SunPower 

Corporation, NREL 23816 and (right) SunPower, NREL 13823

3.2.1.2 Thin Film

Thin-film PV cells are made from amorphous silicon (a-Si) or non-silicon materials, such 

as cadmium telluride (CdTe). Thin-film cells use layers of semiconductor materials only 

a few micrometers thick. Due to the unique nature of thin films, some thin-film cells are 

constructed into flexible modules, enabling solar energy covers for landfills, such as a 

geomembrane system. Other thin-film modules are assembled into rigid constructions 

that can be used in fixed tilt or, in some cases, tracking system configurations. 

The efficiency of thin-film solar cells is generally lower than for crystalline cells. Current 

overall efficiency of a thin-film panel is between 6% and 8% for a-Si and 11% and 12% 

for CdTe. Figure 4 shows thin-film solar panels.

Figure 4. Thin-film solar panels installed on (left) solar energy cover and (middle/right) 

fixed-tilt mounting system. Pictures from (left) Republic Services, Inc., NREL 23817; 

(middle) Beck Energy, NREL 14726; and (right) U.S. Coast Guard Petaluma site, 

NREL 17395
7 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Industry standard warranties of both crystalline and thin-film PV panels typically 

guarantee system performance of 80% of the rated power output for 25 years. After 

25 years, they will continue producing electricity at a lower performance level.

3.2.2 Inverter

Inverters convert DC electricity from the PV array into AC and can connect seamlessly to 

the electricity grid. Inverter efficiencies can be as high as 98.5%. 

Inverters also sense the utility power frequency and synchronize the PV-produced power 

to that frequency. When utility power is not present, the inverter will stop producing AC 

power to prevent “islanding” or putting power into the grid while utility workers are 

trying to fix what they assume is a de-energized distribution system. This safety feature is 

built into all grid-connected inverters in the market. Electricity produced from the system 

could be fed to a step-up transformer to increase the voltage to match the grid. 

There are two primary types of inverters for grid-connected systems: string and microinverters. Each type has strengths and weaknesses and might be recommended for 

different types of installations.

String inverters are most common and typically range in size from 1.5–1,000 kW. These 

inverters tend to be cheaper on a capacity basis, as well as have high efficiency and lower 

operation and maintenance (O&M) costs. String inverters offer various sizes and 

capacities to handle a large range of voltage output. For larger systems, string inverters 

are combined in parallel to produce a single point of interconnection with the grid. 

Warranties typically run between 5 and 10 years with 10 years being the current industry 

standard. On larger units, extended warranties up to 20 years are possible. Given that the 

expected life of the PV panels is 25–30 years, an operator can expect to replace a string

inverter at least one time during the life of the PV system. 

Micro-inverters are dedicated to the conversion of a single PV module’s power output. 

The AC output from each module is connected in parallel to create the array. This 

technology is relatively new to the market and in limited use in larger systems due to a 

potential increase in O&M associated with significantly increasing the number of 

inverters in a given array. Current micro-inverters range in size between 175 W and 

380 W. These inverters can be the most expensive option per watt of capacity. Warranties 

range from 10–20 years. Small projects with irregular modules and shading issues 

typically benefit from micro-inverters. 

With string inverters, small amounts of shading on a solar panel will significantly affect 

the entire array production. Instead, only the shaded panels are affected if micro-inverters 

are used. Figure 5 shows a string inverter.
8 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure 5. String inverter. Photo by Warren Gretz, NREL 07985

3.2.3 Balance-of-System Components

In addition to the solar modules and inverter, a solar PV system consists of other parts 

called BOS components, which include: 

• Mounting racks and hardware for the panels 

• Wiring for electrical connections. 

3.2.3.1 Mounting Systems

The array has to be secured and oriented optimally to maximize system output. The 

structure holding the modules is referred to as the mounting system. 

3.2.3.1.1 Ground-Mounted Systems

For ground-mounted systems, the mounting system can be either directly anchored into 

the ground (via driven piers or concrete footers) or ballasted on the surface without 

ground penetration. Mounting systems must withstand local wind loads, which range 

from 90–120 mph range for most areas or 130 mph or more for areas with hurricane 

potential. Depending on the region, snow and ice loads must also be a design 

consideration for the mounting system. For Superfund site applications, mounting system 

designs will be primarily driven by these considerations coupled with settlement 

concerns. 

Typical ground-mounted systems can be categorized as fixed tilt or tracking. Fixed-tilt 

mounting structures consist of panels installed at a set angle, typically based on site 

latitude and wind conditions, to increase exposure to solar radiation throughout the year. 

Fixed-tilt systems are used at many Superfund sites. Fixed-tilt systems have lower 

maintenance costs but generate less energy (kWh) per unit power (kW) of capacity than 

tracking systems. 

Tracking systems rotate the PV modules so they are following the sun as it moves across 

the sky. This increases energy output but also increases maintenance and equipment costs 

slightly. Single-axis tracking, in which PV is rotated on a single axis, can increase energy 

output up to 25% or more. With dual-axis tracking, PV is able to directly face the sun all 

day, potentially increasing output up to 35% or more. However, the physical packing 

density of tracking arrays is not as high as fixed-tilt systems, and therefore the energy 

density for a fixed-tilt system is higher. Depending on underlying soiling conditions, 

single- and dual-axis trackers might not be suitable due to potential settlement effects, 

which can interfere with the alignment requirements of such systems. 
9 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table 1. Energy Density by Panel and System

System Type Fixed-Tilt Energy Density 

(DC-Watts/ft2

) 

Single-Axis Tracking 

Energy Density

(DC-Watts/ft2)

Crystalline Silicon 4.0 3.3

Thin Film 3.3 2.7

Hybrid High 

Efficiency

4.8 3.9

The selection of mounting type is dependent on many factors, including installation size, 

electricity rates, government incentives, land constraints, latitude, and local weather. 

Contaminated land applications could raise additional design considerations due to site 

conditions, including differential settlement. 

Selection of the mounting system is also heavily dependent on anchoring or foundation 

selection. The mounting system design will also need to meet applicable local building 

code requirements with respect to snow, wind, and seismic zones. Selection of mounting 

types should also consider frost protection needs especially in cold regions, such as 

New England. 

3.2.3.1.2 Roof-Mounted Systems

At the Kolthoff Landfill site, there is the potential to use the roof area of a future hotel 

building for PV. Installing PV on rooftops has many of the same considerations as 

installing ground-mounted PV systems. Factors, such as available area for an array, solar 

resource, shading, distance to transmission lines, and distance to major roads at the site, 

are just as important in roof-mounted systems as in ground-mounted systems. Rooftop 

systems can be ballasted or fixed to the roof, and it is recommended that the roof be 

relatively new (less than 5 years old) to avoid having to move the PV system in order to 

repair or replace the roof. 

The Kolthoff Landfill has the potential to have new construction buildings on site. There 

are many relatively easy low-cost/no-cost measures that can be taken during the design 

phase so that the buildings are optimally built for rooftop PV systems. Design strategies, 

such as orienting the buildings so that the southern exposure is maximized and reducing 

the amount of mechanical equipment on the roof, are examples of measures that can be 

taken to optimize rooftop PV systems. A solar-ready design guide was published in order 

to help design teams optimize rooftop PV systems when designing buildings.3

 Table 2 

shows the rooftop PV energy density. As shown, the energy density for rooftop PV 

systems is higher than ground mounted. This is because the spacing between rows of PV 

arrays in a ground-mounted system is typically larger than a rooftop system because 

maintenance trucks have to be able to drive in between the rows of PV panels. 

 

3

 This guide can be found at www.nrel.gov/docs/fy10osti/46078.pdf. 
10 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table 2. Rooftop Energy Density by Panel

System Type Fixed-Tilt Energy Density 

(DC-Watts/ft2

) 

Crystalline Silicon 10.0

Thin Film 4.3

3.2.3.2 Wiring for Electrical Connections

Electrical connections, including wiring, disconnect switches, fuses, and breakers, are 

required to meet electrical code (e.g., NEC Article 690) for both safety and 

equipment protection. 

In most traditional applications, wiring from (1) the arrays to inverters and (2) inverters 

to point of interconnection is generally run as direct burial through trenches. In Superfund 

site applications, this wiring could be required to run through above-ground conduit due 

to restrictions with cap penetration or other concerns. Therefore, developers should 

consider noting any such restrictions, if applicable, in requests for proposals in order to 

improve overall bid accuracy. Similarly, it is recommended that PV system vendors 

reflect these costs in the quote when costing out the overall system.

3.2.3.3 PV System Monitoring 

Monitoring PV systems can be essential for reliable functioning and maximum yield of a 

system. It can be as simple as reading values, such as produced AC power, daily kilowatthours, and cumulative kilowatt-hours, locally on an LCD display on the inverter. For 

more sophisticated monitoring and control purposes, environmental data, such as module 

temperature, ambient temperature, solar radiation, and wind speed, can be collected. 

Remote control and monitoring can be performed by various remote connections. 

Systems can send alerts and status messages to the control center or user. Data can be 

stored in the inverter’s memory or in external data loggers for further system analysis. 

Collection of this basic information is standard for solar systems and not unique to 

landfill applications.

Weather stations are typically installed in large-scale systems. Weather data, such as solar 

radiation and temperature, can be used to predict energy production, enabling comparison 

of the target and actual system output and performance and identification of underperforming arrays. Operators can also use this data to identify required maintenance, 

shade on panels, and accumulating dirt on panels, for example. Monitoring system data 

can also be used for outreach and education. This can be achieved with publicly 

available, online displays; wall-mounted systems; or even smartphone applications. 

3.2.4 Operation and Maintenance

PV panels typically have a 25-year performance warranty. Inverters, which come 

standard with a 5-year or 10-year warranty (extended warranties available), would be 

expected to last 10–15 years. System performance should be verified on a vendorprovided website. Wire and rack connections should be checked annually. This economic 

analysis uses an annual O&M cost computed as $20/kW/yr, which is based on the 
11 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

historical O&M costs of installed fixed-axis grid-tied PV systems. In addition, the system 

should expect a replacement of system inverters in year 15 at a cost of $0.25/W. 

3.3 Siting Considerations

PV modules are very sensitive to shading. When shaded (either partially or fully), the 

panel is unable to optimally collect the high-energy beam radiation from the sun. As 

explained above, PV modules are made up of many individual cells that all produce a 

small amount of current and voltage. These individual cells are connected in series to 

produce a larger current. If an individual cell is shaded, it acts as resistance to the whole 

series circuit, impeding current flow and dissipating power rather than producing it. 

The NREL solar assessment team uses a Solmetric SunEye solar path calculator to assess 

shading at particular locations by analyzing the sky view where solar panels will be 

located. By finding the solar access, the NREL team can determine if the area is 

appropriate for solar panels.

Following the successful collection of solar resource data using the Solmetric SunEye 

tool and determination that the site is adequate for a solar installation, an analysis to 

determine the ideal system size must be conducted. System size depends highly on the 

average energy use of the facilities on the site, PPAs, incentives available, and 

utility policy. 
12 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

4 Proposed Installation Location Information

This section summarizes the findings of the NREL solar assessment site visit on 

August 30, 2012. 

4.1 Kolthoff Landfill Site PV System

As discussed in Section 1, the Kolthoff Landfill site is owned by the City of Cleveland, 

and the landfill has no major environmental issues. Figure 6 shows an aerial view of the 

Kolthoff Landfill and the former wastewater treatment plant to the east. Both the Kolthoff 

Landfill and former wastewater treatment plant areas are potentially available for the 

installation of a PV system. 

Figure 6. Aerial view of the Kolthoff Landfill and former wastewater plant (shaded in gray) 

Illustration done in Google Earth

In order to get the most out of the ground area available, it is important to consider 

whether the site layout can be improved to better incorporate a solar system. If there are 

unused structures, fences, or electrical poles that can be removed, the un-shaded area can 

be increased to incorporate more PV panels. 

Figure 7 shows an aerial view of the Kolthoff Landfill and the former wastewater 

treatment plant site taken from Google Earth; the feasible area for ground-mounted PV is 

shaded in yellow, and the feasible area for roof-mounted PV is shaded in orange. As 

shown, 12.8 acres out of the 30-acre Kolthoff Landfill are feasible for installing groundmounted PV, and 5.0 acres out of the 18-acre former wastewater treatment plant are 

feasible for installing ground-mounted PV. The construction of a hotel on the former 

wastewater treatment area has been proposed as a possible future reuse of the land. If a 
13 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

hotel were to be built, it was assumed that the footprint of the hotel would be 

approximately 11,000 ft2

. Both the 12.8-acre and the 5.0-acre areas are generally flat, and 

a majority of the area is cleared of trees. Figure 8 shows a stand of trees towards the north 

of the 12.8-acre site that would have to be removed before installing PV. There is no 

major infrastructure on either area.

Figure 7. Aerial view of the current feasible area for PV at the Kolthoff Landfill and former 

wastewater plant (ground-mounted PV shaded in yellow and roof-mounted PV shaded 

in orange) 

Illustration done in Google Earth
14 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure 8. Trees that would have to be removed on the Kolthoff Landfill prior to 

PV installation. Photo by James Salasovich, NREL

PV systems are relatively well suited to the Cleveland, Ohio, area, where the average 

global horizontal annual solar resource—the total solar radiation for a given location, 

including direct, diffuse, and ground-reflected radiation—is 4.15 kWh/m2/day. 

Figure 9 shows various views of the Kolthoff Landfill site and the former wastewater 

treatment plant site. As shown, there are minimal shading obstructions, such as trees, that 

will have to be removed and both sites are relatively flat. 
15 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure 9. Views of the feasible area for PV at the approximate center of the 

Kolthoff Landfill. Photos by James Salasovich, NREL

4.2 Utility-Resource Considerations

The closest electrical tie-in point for a PV system at the Kolthoff Landfill site is located 

less than 200 feet to the north of the site at the IX Center Drive Substation. There are also 

transmission lines that bisect the site running north-south and also transmission lines 

along the northern boundary of the site that run east-west. FirstEnergy owns both the IX 

Center Drive Substation and both sets of transmission lines that run through the site. The

location of the IX Center Drive Substation relative to the Kolthoff Landfill and the 

transmission lines that run through the site are shown in Figure 10. Photos of the IX 

Center Drive Substation and the transmission lines are given in Figure 11. 

Interconnection is governed by FirstEnergy. A detailed interconnection study would have 

to be performed in order to determine if this would be a suitable location for 

interconnection. Performing an interconnection study can be a relatively slow process 

that would have to be performed through FirstEnergy and could involve considerable 

cost. The tie-in location is limited by the available capacity at the substation. When 

considering a ground-mounted system, an electrical tie-in location should be identified to 

determine how the energy would be fed back into the grid. Performing a detailed 

interconnection study is beyond the scope of this project, but FirstEnergy should be 

contacted to determine the extent of effort involved. 
16 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure 10. Kolthoff Landfill showing IX Center Drive Substation and the transmission lines

Illustration done in Google Earth

Figure 11. IX Center Drive Substation and electrical transmission lines at the

Kolthoff Landfill. Photos by James Salasovich, NREL

4.3 Useable Acreage for PV System Installation 

Typically, a minimum of 2 useable acres is recommended to site PV systems. Useable 

acreage is typically characterized as "flat to gently sloping" southern exposures that are 

free from obstructions and get full sun for at least a 6-hour period each day. For example, 

eligible space for PV includes under-utilized or unoccupied land, vacant lots, and/or 

unused paved area (e.g., a parking lot or industrial site space) as well as existing 

building rooftops. 
17 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

4.4 PV Site Solar Resource

The Kolthoff Landfill site has been evaluated to determine the adequacy of the solar 

resource available using both on-site data and industry tools. A site with a solar access of 

90% or higher is considered to be a good site for PV. 

The assessment team for this feasibility study collected multiple Solmetric SunEye data

points and found a solar access of 90% and above on the 12.8-acre Kolthoff Landfill area

and on the 5.0-acre former wastewater treatment plant. All data gathered using this tool is 

available in Appendix C. 

The predicted array performance was found using PVWatts Version 2 for Cleveland, 

Ohio, weather hourly weather data.

4 Table 2 shows the station identification information, 

PV system specifications, and energy specifications for the site. For this summary array 

performance information, a hypothetical system size of 1 kW was used to show the 

estimated production for each kilowatt so that additional analysis can be performed using 

the data indicated below. It is scaled linearly to match the proposed system size. 

Table 3. Site Identification Information and Specifications

Station Identification

Cell ID 14820

City

State

Cleveland

Ohio

Latitude 41.40° N

Longitude 81.85° W

PV System Specifications

DC Rating 1.00 kW

DC to AC Derate Factor 0.8

AC Rating 0.8 kW

Array Type Fixed Tilt

Array Tilt 20°

Array Azimuth South

Energy Specifications

Cost of Electricity $0.12/kWh

Table 3 shows the performance results for a 20-degree fixed-tilt PV system in Cleveland, 

Ohio, as calculated by PVWatts.

 

4 PVWatts. Accessed May 17, 2013: http://www.nrel.gov/rredc/pvwatts/.
18 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table 4. Performance Results for 20-Degree Fixed-Tilt PV

Month Solar Radiation

(kWh/m2/day)

AC Energy

(kWh)

Energy Value

($)

1 2.14 54 6.48

2 2.98 68 8.16

3 3.91 97 11.64

4 5.05 118 14.16

5 5.92 137 16.44

6 6.19 134 16.08

7 6.08 135 16.20

8 5.68 127 15.24

9 4.77 106 12.72

10 3.57 84 10.08

11 1.96 44 5.28

12 1.50 35 4.20

Year 4.15 1,139 136.68

Table 4 shows the performance results for a zero-tilt single-axis tracking PV system in 

Cleveland, Ohio, as calculated by PVWatts. 

Table 5. Performance Results for Zero-Degree Single-Axis PV

Month Solar Radiation

(kWh/m2

/day)

AC Energy

(kWh)

Energy Value

($)

1 2.06 52 6.24

2 3.07 71 8.52

3 4.23 108 12.96

4 5.97 142 17.04

5 7.25 171 20.52

6 7.81 173 20.76

7 7.55 172 20.64

8 6.82 156 18.72

9 5.42 122 14.64

10 3.72 89 10.68

11 1.89 42 5.04

12 1.40 32 3.84

Year 4.78 1,329 159.48

4.5 Kolthoff Landfill Energy Usage

The electrical load at the Kolthoff Landfill is currently relatively small. Monthly electric 

bills showing the electricity usage and cost are not available. It is important to understand 

the energy use of the site to enable for a full analysis of whether or not energy produced 
19 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

would need to be sold or if it could offset on-site energy use. There are currently no 

buildings on the site that use electricity. There are also surrounding buildings that could 

be potential off-takers of electricity produced by a utility-scale PV system. There is the 

possibility of a hotel being built on the former wastewater treatment plant to the east.

4.5.1 Estimated Future Energy Use and Net-Zero Energy Potential

4.5.1.1 Hotel Building Assuming an 11,000-ft2 Footprint

The buildout of the former wastewater treatment site that could have a hotel on-site has 

not yet been designed, and therefore no drawings for the potential future buildout of the 

site are available. The footprint of the hotel was assumed to be 11,000 ft2

, and the hotel 

was assumed to be four stories, which totals 44,000 ft2. Details of the energy model are 

given in Appendix F. 

The future energy use of a hotel sited on the former wastewater treatment plant area was 

estimated by creating an eQUEST building energy model of a typical hotel building. It is 

important to note that the hotel was assumed to be an all-electric building with an airsource heat pump and to be an energy efficient building with tight construction, low 

lighting, and plug load energy use. Using the energy model, the total annual energy use of 

the hotel is estimated to be approximately 366,457 kWh/yr. In order for the hotel to be 

net-zero, a 322-kW PV system would have to be installed to offset the energy use of the 

buildings, which assumes the solar PV system offsets all of the building energy use. 

4.5.2 Net Metering

Net metering is an electricity policy for consumers who own renewable energy facilities. 

"Net," in this context, is used to mean "what remains after deductions"—in this case, the 

deduction of any energy outflows from metered energy inflows. Under net metering, a 

system owner receives retail credit for at least a portion of the electricity it generates. As 

part of the Energy Policy Act of 2005, under Sec. 1251, all public electric utilities are 

required upon request to make net metering available to their customers. 

(11) NET METERING.—Each electric utility shall make available upon 

request net metering service to any electric consumer that the electric 

utility serves. For purposes of this paragraph, the term ‘net metering 

service’ means service to an electric consumer under which electric energy 

generated by that electric consumer from an eligible on-site generating 

facility and delivered to the local distribution facilities may be used to 

offset electric energy provided by the electric utility to the electric 

consumer during the applicable billing period. 

Ohio's net-metering law, which took effect in 1999, requires utilities to offer net metering 

to all customers with PV, solar thermal electric, wind, hydroelectric, biomass, landfill 

gas, micro-turbines, and fuel cells. There is no system capacity limit in Ohio, but the 

system size cannot exceed the customer’s annual on-site energy use.
20 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Renewable energy certificates (RECs),

5 also known as green certificates, green tags, or 

tradable renewable certificates, are tradable commodities in the United States that 

represent proof of electric energy generation from eligible renewable energy resources 

(renewable electricity). The RECs that are associated with the electricity produced and 

are used on-site remain with the customer-generator. If, however, the customer chooses 

to receive financial compensation for the net energy gain remaining after a 12-month 

period, the utility will be granted the RECs associated with only that surplus they 

purchase.

In 2008, Ohio enacted legislation that addresses the renewable energy procurement 

requirements for the state’s utilities. The DSIRE6 website provides a good summary of 

the renewable portfolio standard in Ohio. 

Under the standard, utilities must provide 25% of their retail electricity 

supply from alternative energy resources by 2025, with specific annual 

benchmarks for renewable and solar energy resources. Half of the standard 

can be met with “any new, retrofitted, refueled, or repowered generating 

facility located in Ohio,” including fossil fuels, making the renewables 

portion of the standard 12.5% renewables by 2025. 

4.5.3 Virtual Net Metering

Some states and utilities allow for virtual net metering (VNM). This arrangement can 

allow certain entities, such as a local government, to install renewable generation of up to 

1 MW at one location within its geographic boundary and to generate credits that can be 

used to offset charges at one or more other locations within the same geographic 

boundary. Ohio is not one of seven states (California, Colorado, Connecticut, Delaware, 

Massachusetts, New Jersey, and Pennsylvania) that currently allow VNM. 

 

5 For a description of RECs, see http://apps3.eere.energy.gov/greenpower/markets/

certificates. 6 For a full description of the renewable portfolio standard in Ohio, see 

http://www.dsireusa.org/incentives/incentive.cfm?Incentive_Code=OH14R&re=0&ee=0. 
21 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

5 Economics and Performance

The economic performance of a PV system installed on the site is evaluated using a 

combination of the assumptions and background information discussed previously as well 

as a number of industry-specific inputs determined by other studies. In particular, this 

study uses NREL’s System Advisor Model (SAM).7 

SAM is a performance and economic model designed to facilitate decision making for 

people involved in the renewable energy industry, ranging from project managers and 

engineers to incentive program designers, technology developers, and researchers. The 

performance model calculates a system's energy output on an hourly basis (sub-hourly 

simulations are available for some technologies). The financial model calculates annual 

project cash flows over a period of years for a range of financing structures for 

residential, commercial, and utility projects.

SAM makes performance predictions for grid-connected solar, solar water heating, wind, 

and geothermal power systems and makes economic calculations for both projects that 

buy and sell power at retail rates and power projects that sell power through a PPA. 

The model calculates the cost of generating electricity based on information you provide 

about a project's location, installation and operating costs, type of financing, applicable 

tax credits and incentives, and system specifications.

5.1 Assumptions and Input Data for Analysis

The cost of a PV system depends on the system size and other factors, such as geographic 

location, mounting structure, and type of PV module. Based on significant cost 

reductions seen in 2011, the average cost for utility-scale ground-mounted systems have 

declined from $4.80/W in the first quarter of 2010 to $2.79/W in the first quarter of 2012. 

With an increasing demand and supply, potential of further cost reduction is expected as 

market conditions evolve. 

The installed system cost assumptions are summarized in Table 6. For this analysis the 

market installed cost of fixed-tilt ground-mounted systems was assumed to be $2.79/W, 

and the market installed cost of single-axis tracking was assumed to be $3.35/W. This 

represents the best-case scenario for purchasing and labor costs before the extra cost of 

ballasting the system for a landfill because ground disturbance must be kept to a 

minimum. Because the site will likely require ballasting the system in order to minimize 

site disturbance, a 20% extra cost was added. These costs represent remediation 

consideration cost case scenarios for PV installation price on EPA landfills. The roof 

system will not include the ballasted cost and is expected to have the same cost as the 

fixed-axis system. 

 

7 For additional information on the System Advisor Model, see https://sam.nrel.gov/cost. 
22 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table 6. Installed System Cost Assumptions

System Type Fixed Tilt 

($/W)

Single-Axis Tracking 

($/W)

Baseline System 2.79 3.35

+ 20% Ballast +0.56 +0.67

Ballasted GroundMounted System

3.49 4.02

These prices include the PV array and the BOS components for each system, including 

the inverter and electrical equipment, as well as the installation cost. This includes 

estimated taxes and a national-average labor rate but does not include land cost. The cost 

for electrical tie-in was also modeled at $250,000. 

The economics of grid-tied PV also depend on incentives, the cost of electricity, the solar 

resource, and panel tilt and orientation. 

It was assumed for this analysis that relevant federal and state incentives are received for 

taxable entities. It is important to consider all applicable incentives or grants to make PV 

as cost effective as possible. If the PV system is owned by a private tax-paying entity, 

this entity could qualify for federal tax credits and accelerated depreciation on the PV 

system, which can be worth about 30% of the initial capital investment. The total 

potential tax benefits to the tax-paying entity can be as high as 43% of the initial system 

cost. Because state and federal governments do not pay taxes, private ownership of the 

PV system would be required to capture tax incentives. 

For the purposes of this analysis, the project is expected to have a 25-year life, although 

the systems can be reasonably expected to continue operation past this point. A full list of 

standard assumptions can be found in Appendix B-1. The electrical utility Ohio Edison is 

expected to supply energy to the site under the general demand rate schedule. This 

schedule is estimated to be, on average over the year, $0.12/kWh. For the sale of 

electricity, the site is expected to be able to take advantage of the net-metering incentive 

that allows the site to sell their electricity at the rate it was purchased. However, the size 

of the system will be limited to the expected energy of the proposed building. Because 

there is no current demand on site, it was modeled that all PV-generated electricity would 

be sold to Ohio Edison at the sale rate. Once there is a demand on site, the PV system 

should be sized to that load size. For the purposes of modeling how much PV could cover 

rooftops, it was assumed that 50% of roof space could contain PV. This roof coverage 

assumption is based on industry experience of what is feasible to cover in new 

development. The ground-mounted system is expected to cover 80% of the defined area, 

much of the uncovered area being for parking lots and utility structures. PVWatts 

Version 2 was used to calculate expected energy performance for the system. 

The full list of incentives used in this study can be found in Table 7 with a summary and 

source list found in Appendix B-2. There are five policies listed below that can be applied 

to the Cleveland site. 
23 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

 Table 7. Summary of Incentives Evaluated

Incentive Title Modeled Benefit Expected End 

Federal Investment Tax Credit 30% of total 

investment 1/1/2016

Solar Renewable Energy Certificates (SRECs) $0.035/kWh N/A

Property Tax Incentive ~100% of added 

property value N/A

Sales Tax Exemption 100% of sales tax N/A

Net Metering

Available to 

annual energy 

usage size

N/A

5.2 SAM-Forecasted Economic Performance

SAM predicts net present value (NPV), PPA price, and levelized cost of energy (LCOE), 

among other economic indicators. Three separate scenarios were investigated using 

SAM: single-axis ground system, fixed-axis ground system, and fixed-axis roof system.

According to the modeling software under the given assumptions, the single-axis ground 

system and fixed-axis roof system were economically viable and had paybacks within the 

25-year timeframe. These scenarios were sized to completely fill the available land space, 

but in the future, any system should be sized to the energy load size. All of the different 

options have pros and cons, which will play in deciding the correct path forward. These 

advantages and disadvantages are discussed below. Table 8 shows an important results 

breakdown for the three scenarios. 

Table 8. Results Summary of Simulations

Cases LCOE ($/kWh) NPV 

PPA 

($/kWh)

Crystalline Silicon – Single-Axis GroundMounted System 

0.0963 $ 162,619 

 

0.1614 

Crystalline Silicon – Fixed-Axis GroundMounted System 

0.1072 $ (221,179) 

 

0.1795

Crystalline Silicon – Fixed-Tilt RoofMounted System 

0.0806 $ 5,003 

 

0.1349 

Three scenarios total were run for the Kolthoff Landfill to encompass the many options 

available to this site. The independent variables include: fixed- and single-axis tracking 

for the ground portion and third-party developer versus site developer ownership. There 

are multiple factors that go into choosing which scenario to pursue beyond NPV, PPA, 

and LCOE.

5.2.1 Fixed-Axis vs. Single-Axis Tracking 

The primary differences between fixed- and single-axis tracking are the tradeoff between 

energy production and capital costs. The single-axis tracking system is able to gather a 

significantly greater portion of the sun’s energy but costs more per watt and covers a 

greater amount of land than a fixed-axis system of the same size. The fixed-axis system 
24 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

gathers less solar energy but costs less, can be put on roofs, and can pack more panels 

together than single-axis tracking. The single-axis tracking system is the only

economically feasible ground system. If the fixed-axis price were to be $0.92/W lower 

than the single-axis price, the fixed-axis tracking system would become more favorable 

from an NPV basis. For this site, it is recommended to pursue single-axis tracking for the 

ground-mounted systems. 

5.2.2 Solar Investor vs. Developer Owned

The choice between going with a solar investor or developer ownership will depend on 

the desire for involvement and the risk appetite of the developer. While ownership of the 

system will bring a payback for the developer, it will also require hiring contractors to 

permit, build, and maintain the system. A solar investor inherits the risks and profit, and 

the site owner in turn will purchase the power produced from the solar investor. It is 

recommended by the feasibility study group for the developer to own the system, 

considering the projected PPA price is above the estimated cost of electricity and 

ownership of the system has a positive NPV. The site would need to acquire a PPA price 

of less than the Ohio Edison cost for electricity to consider pursuing a PPA. 

The entire graphical results and summary of inputs to SAM is available in Appendix B 

and Appendix C. 

A complete summary of the results of the economic analysis and the system considered is 

available in Table 9. 

Table 9. PV System Summary

5.3 Job Analysis and Impact

To evaluate the impact on employment and economic impacts of the PV project 

associated with this analysis, the NREL Jobs and Economic Development Impact (JEDI) 
25 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

models are used.

8 JEDI estimates the economic impacts associated with the construction 

and operation of distributed generation power plants. It is a flexible input-output tool that 

estimates, but does not precisely predict, the number of jobs and economic impacts that 

can be reasonably supported by the proposed facility. 

JEDI represents the entire economy, including cross-industry or cross-company impacts. 

For example, JEDI estimates the impact that the installation of a distributed generation 

facility would have on not only the manufacturers of PV modules and inverters but also 

the associated construction materials, metal fabrication industry, project management 

support, transportation, and other industries that are required to enable the procurement 

and installation of the complete system. 

For this analysis, inputs, including the estimated installed project cost ($/kW), targeted 

year of construction, system capacity (kW), O&M costs ($/kW), and location, were 

entered into JEDI to predict the jobs and economic impact. It is important to note that 

JEDI does not predict or incorporate any displacement of related economic activity or 

alternative jobs due to the implementation of the proposed project. As such, the JEDI 

results are considered gross estimates as opposed to net estimates. 

For the Kolthoff Landfill the values in Table 10 were used for the JEDI model. These 

values are from the single axis tracking case which has the highest NPV.

Table 10. JEDI Analysis Assumptions

Input Assumed Value

Capacity 2,557 kW

Placed In Service Year 2013

Installed System Cost $10,529,140

Location Cleveland, Ohio

Using these inputs, JEDI estimates the gross direct and indirect jobs, associated earnings, 

and total economic impact supported by the construction and continued operation of the 

proposed PV system. 

The estimates of jobs associated with this project are presented as either constructionperiod jobs or sustained-operations jobs. Each job is expressed as a whole, or fraction, 

full-time equivalent (FTE) position. An FTE is defined as 40 hours per week for one 

person for the duration of a year. Construction-period jobs are considered short-term 

positions that exist only during the procurement and construction periods. 

As indicated in the results of the JEDI analysis provided in Appendix F, the total 

proposed system is estimated to support 94 direct and indirect jobs per year for the 

duration of the procurement and construction period. Total wages paid to workers during 

 

8

 JEDI has been used by the U.S. Department of Energy, the U.S. Department of Agriculture, NREL, and 

the Lawrence Berkeley National Laboratory, as well as a number of universities. For information on JEDI, 

see http://www.nrel.gov/analysis/jedi/about_jedi.html.
26 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

the construction period are estimated to be $3,962,800, and total economic output is 

estimated to be $10,329,300. The annual O&M of the new PV system is estimated to 

support 1.0 FTE per year for the life of the system. The jobs and associated spending are 

projected to account for approximately $53,100 in earnings and $91,300 in economic 

activity each year for the next 25 years. 

5.4 Financing Opportunities

The procurement, development, construction, and management of a successful utilityscale distributed generation facility can be owned and financed a number of different 

ways. The most common ownership and financing structures are described below. 

5.4.1 Owner and Operator Financing

The owner/operator financing structure is characterized by a single entity with the 

financial strength to fund all of the solar project costs and, if a private entity, sufficient 

tax appetite to utilize all of the project’s tax benefits. Private owners/operators typically 

establish a special purpose entity (SPE) that solely owns the assets of the project. An 

initial equity investment into the SPE is funded by the private entity using existing funds, 

and all of the project’s cash flows and tax benefits are utilized by the entity. This equity 

investment is typically matched with debt financing for the majority of the project costs. 

Project debt is typically issued as a loan based on each owner’s/operator’s assets and 

equity in the project. In addition, private entities can utilize any of federal tax 

credits offered. 

For public entities that choose to finance, own, and operate a solar project, funding can be 

raised as part of a larger, general obligation bond; as a standalone tax credit bond; 

through a tax-exempt lease structure, bank financing, grant and incentive program, or 

internal cash; or some combination of the above. Certain structures are more common 

than others and grant programs for solar programs are on the decline. Regardless, as taxexempt entities, public entities are unable to benefit directly from the various tax-creditbased incentives available to private companies. This has given way to the now common 

use of third-party financing structures, such as the PPA. 

5.4.2 Third-Party Developers with Power Purchase Agreements

Because many project site hosts do not have the financial or technical capabilities to 

develop a capital-intensive project, many times they turn to third-party developers (and/or 

their investors). In exchange for access to a site through a lease or easement arrangement, 

third-party developers will finance, develop, own, and operate solar projects utilizing 

their own expertise and sources of tax equity financing and debt capital. Once the system 

is installed, the third-party developer will sell the electricity to the site host or local utility 

via a PPA—a contract to sell electricity at a negotiated rate over a fixed period of time. 

The PPA typically will be between the third-party developer and the site host if it is a 

retail “behind-the-meter” transaction or directly with an electric utility if it is a 

wholesale transaction. 

Site hosts benefit by either receiving competitively priced electricity from the project via 

the PPA or land-lease revenues for making the site available to the solar developer via a 

lease payment. This lease payment can take on the form of either a revenue-sharing 
27 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

agreement or an annual lease payment. In addition, third-party developers are able to 

utilize federal tax credits. For public entities, this arrangement allows them to utilize the 

benefits of the tax credits (low PPA price, higher lease payment) while not directly 

receiving them. The term of a PPA typically varies from 20–25 years. 

5.4.3 Third-Party “Flip” Agreements 

The most common use of the third-party “flip” agreement is a site host working with a 

third-party developer who then partners with a tax-motivated investor in an SPE that 

would own and operate the project. Initially, most of the equity provided to the SPE 

would come from the tax investor and most of the benefit would flow to the tax investor 

(as much as 99%). When the tax investor has fully monetized the tax benefits and 

achieved an agreed-upon rate of return, the allocation of benefits and majority ownership 

(95%) would flip to the site host (but not within the first 5 years). After the flip, the site 

host would have the option to buy out all or most of the tax investor’s interest in the 

project at the fair market value of the tax investor’s remaining interest. 

A flip agreement can also be signed between a developer and investors within an SPE, 

where the investor would begin with the majority ownership. Eventually, the ownership 

would flip to the developer once each investor’s return is met.

5.4.4 Hybrid Financial Structures

As the solar market evolves, hybrid financial solutions have been developed in certain 

instances to finance solar projects. A particular structure, nicknamed “The Morris Model” 

after Morris County, New Jersey, combines highly rated public debt, a capital lease, and a 

PPA. Low-interest public debt replaces more costly financing available to the solar 

developer and contributes to a very attractive PPA price for the site hosts. New markets 

tax credits have been combined with PPAs and public debt in other locations, such as 

Denver and Salt Lake City. 

5.4.5 Solar Services Agreement and Operating Lease

The solar services agreement (SSA) and operating lease business models have been 

predominately used in the municipal and cooperative utility markets due to its treatment 

of tax benefits and the rules limiting federal tax benefit transfers from non-profit to forprofit companies. Under IRS guidelines, municipalities cannot enter capital leases with 

for-profit entities when the for-profit entities capture tax incentives. As a result, a number 

of business models have emerged as a work-around to this issue. One model is the SSA,

wherein a private party sells “solar services” (i.e., energy and RECs) to a municipality 

over a specified contract period (typically long enough for the private party to accrue the 

tax credits). The non-profit utility typically purchases the solar services with either a onetime up-front payment equal to the turn-key system cost minus the 30% federal tax credit 

or in annual installments. The municipality can buy out the system once the third-party 

has accrued the tax credits, but due to IRS regulations, the buyout of the plant cannot be 

included as part of the SSA (i.e., the SSA cannot be used as a vehicle for a sale and must 

be a separate transaction).
28 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

5.4.6 Sales/Leaseback

Similar to the SSA, there are a variety of lease options that are available to municipalities 

that allow the capture of tax benefits by third-party owners, which result in a lower cost 

to the municipality. These include an operating lease for solar services (as opposed to an 

equipment capital lease) and a complex business model called a sales/leaseback. Under 

the sales/leaseback model, the municipality develops the project and sells it to a thirdparty tax equity investor who then leases the project back to the municipality under an 

operating lease. At the end of the lease period, and after the tax benefits have been 

absorbed by the tax equity investor, the municipality can purchase the solar project at fair 

market value. 

5.4.7 Community Solar/Solar Gardens 

The concept of “community solar” is one in which the costs and benefits of one large 

solar project are shared by a number of participants. A site owner can make the land 

available for a large solar project, which can be the basis for a community solar project. 

Ownership structures for these projects vary, but the large projects are typically owned or 

sponsored by a local utility. Community solar gardens are distributed solar projects 

wherein utility customers have a stake via a pro-rated share of the project’s energy 

output. This business model is targeted to meet demand for solar projects by customers 

who rent/lease their homes or businesses, do not have good solar access at their site, or do 

not want to install a solar system on their facilities. Customer pro-rated shares of solar 

projects are acquired through a long-term transferrable lease of one or more panels, or 

they subscribe to a share of the project in terms of a specific level of energy output or the 

energy output of a set amount of capacity. Under the customer lease option, the customer 

receives a billing credit for the number of kilowatt-hours their pro-rated share of the solar 

project produces each month; it is also known as VNM. Under the customer subscription 

option, customers typically pay a set price for a block of solar energy (i.e., 100 kWh permonth blocks) from the community solar project. Other models include monthly energy 

outputs from a specific investment dollar amount or a specific number of panels. 

Community solar garden and customer subscription-based projects can be owned solely

by the utility, owned solely by third-party developers with facilitation of billing provided 

by the utility, or a joint venture between the utility and a third-party developer leading to 

eventual ownership by the utility after the tax benefits have been absorbed by the thirdparty developer.

There are some states that offer solar incentives for community solar projects, including 

Washington State (production incentive) and Utah (state income tax credit). Community 

solar is known as solar gardens depending on the location (e.g., Colorado). 
29 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

6 Conclusions and Recommendations 

The inclusion of PV in the development of the Kolthoff Landfill to offset any local load 

through the net-metering program is an economically feasible project. Installing a PV 

system on the Kolthoff Landfill could potentially generate nearly 3,617 MWh annually 

and represents a very large potential load on the site. A 22-kW roof-mounted system is 

the first priority in building a PV system because it has the best payback and LCOE 

As summarized in Section 5, the SAM economic analysis predicts a positive NPV for 

both the single-axis tracking ground system and a roof-mounted system. The roofmounted system could achieve an NPV of $5,000 and a payback of 10.9 years. The 

single-axis tracking ground system, if built to full land availability, could have an NPV as 

high as $162,619 and a payback of 13.3 years. In a solar investor/PPA case, the starting 

year PPA price is modeled to be less than $0.1349/kWh in the first year for a roof system 

and $0.1614/kWh for the single-axis ground system. 

The report used an estimated utility rate of $0.12/kWh. If the utility rate were to be lower 

than $0.115/kWh, the single-axis tracking ground system would no longer be attractive. 

If the utility price was below $0.096/kWh, the roof-mounted system would no longer be 

economically attractive. Losing any of the currently available incentives will negatively 

affect the economics of this project. 

This project is economically beneficial, and the City of Cleveland should weigh the value 

of this project against other projects to determine if a solar PV system at the Kolthoff 

Landfill would bring the highest value. Pursuing available grants and new incentives will 

make the value of a solar PV system even more economically attractive if those become 

available in the future. 
30 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Appendix A. Provided Site Information

Figure A-1 shows various areas at the site.

Figure A-1. Areas at the Kolthoff Landfill site

Source: Melissa Haney, Burgess and Niple
31 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Appendix B. Solar Access Measurements 

Figure B-1 shows solar access measurements for the Kolthoff Landfill site.

Figure B-1. Solar access measurements at the former wastewater treatment plant at the 

Kolthoff Landfill taken 50 feet north of the southern trees
32 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Appendix C. Assumptions for the Assessment 

and Calculations

Table C-1 provides analysis-wide assumptions and important numbers. 

Table C-1. Cost, System, and Other Assessment Assumptions

Cost Assumptions

Variable Quantity of Variable Unit of Variable

Cost of Site Electricity 0.12 $/kWh

Annual O&M (fixed) 30 $/kW/yr for first 15 years

System Assumptions

System Type Annual Energy 

(kWh/kW)

Installed Cost

($/W)

Energy Density 

(W/sq. ft.)

Ground fixed 1,139 $2.79 4.0

Ground single-axis 1,329 $3.35 3.3

Other Assumption

Ground utilization 90% of available area
33 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Appendix D. Building Energy Modeling

Building energy modeling was used to estimate the energy use of the proposed hotel, 

which was assumed to be four stories and 44,000 ft2. Because the proposed hotel at the 

Kolthoff Landfill site has not been designed, the building geometry, construction, 

lighting, equipment, and HVAC systems were all assumed. eQUEST was selected as the 

building simulation software tool to perform the energy modeling of this site. eQUEST is 

a commercially available interface for the DOE-2 hourly building energy simulation 

program originally developed by the Department of Energy. The program is capable of 

evaluating energy and energy cost savings that can be achieved by applying energy 

conservation measures such as improved envelope components, passive heating and 

cooling strategies, lighting system improvements, and HVAC system improvements. The 

software is commonly used to analyze new construction buildings and building retrofits. 

eQUEST requires a detailed description of the building envelope (for thermal and optical 

properties), internal loads, operating schedules, lighting and HVAC system requirements, 

and utility rate schedules. The major benefits of eQUEST include the ease of defining 

building geometry, space characteristics, schedules, and HVAC systems and running 

parametric analyses to study design and retrofit options. Another major benefit of 

eQUEST is the relatively short simulation run times. 

An eQUEST building energy model of the proposed hotel at the Kolthoff Landfill site 

was created. The building construction, lighting, equipment, and operating condition of 

HVAC systems were modeled assuming that the hotel would have advanced energy 

efficiency features and that the hotel would be all-electric buildings that use air-source 

heat pump systems. The hotel energy model is described in detail in the section below. 

Four-Story Hotel Building Energy Model

A sample four-story 44,000 ft2 hotel building was modeled in eQUEST to determine the 

potential electricity loads generated. A graphical representation of the building energy 

model developed in eQUEST is shown in Figure D-1. The geometry of the building was 

assumed because a hotel building on the former wastewater treatment plant has 

been designed. 
34 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure D-1. Hotel building eQUEST model representation

The NREL team assumed advanced energy efficient building design to develop the 

eQUEST model of the sample hotel building. The general facility characteristics that 

were modeled are provided in Table D-1, and the results from the energy model are given

in Figure D-2. 
35 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table D-1. Hotel Building eQUEST Summary Information 

Hotel Building – Cleveland, Ohio

Project 

 

 

 

 

 

Weather Data TMY2 – Cleveland, Ohio

Building Type Hotel building

Total Number of Buildings 

Modeled 1 

Building Areas 44,000 ft2

Above-Grade Floors 4 

Below-Grade Floors 0

Building Footprint 

 

Building Orientation Plan north

Zoning Pattern Perimeter/core

Floor-to-Floor Height 13 ft

Floor-to-Ceiling Height 9 ft

Roof Pitch 0 deg 

Roof 

 

Construction Steel framed 

Roof Built-up roof

Insulation 4” Polyisocyanurate (R-28)

Walls 

 

Construction Metal framed

Finish Stucco

Insulation 2” Polystyrene (R-9) continuous

R-21 batts

Ground Floor 

 Earth Contact 6” concrete

Infiltration 

 Perimeter 0.10 (CFM/ft2

) 

Floors 

 

 

 

Interior Finish Carpet

Construction 4” concrete

Concrete Cap. None

Exterior Doors

 Door Type Double pane glass

Exterior Windows

Window Type Double pane glass

U-0.28, SHGC 0.6, Tvis 0.6

Building Operation

 Schedule Open 24 hrs/day, 7 days/week

Area Type Hotel
36 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Power Density 

 Lighting 0.75 Watts/ft2

Lighting occupancy sensors

 Plug Loads 0.15 Watts/ft2

HVAC Systems 

 System Type Air-source heat pump

System Cooling Source Heat pump – 14 EER

Economizer Temperature/enthalpy based

Heating System Heat pump – COP 4.0

 Thermostat

Occupied/unoccupied

Cooling - 73oF/82oF 

Heating - 70oF/64oF

Fan Schedules 

Operation Schedule Intermittent

Figure D-2. Kolthoff Hotel eQUEST results for annual energy use
37 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Appendix E. Results from the System

Advisor Model

Figures E-1 through E-10 show the SAM graphs. 

Figure E-1. Modeled output for a ground-mounted fixed-tilt system
38 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-2. Modeled output for a single-axis tracking ground PV system
39 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-3. Modeled output for a roof-mounted fixed-tilt system
40 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-4. LCOE for site owner purchase of a fixed-tilt ground system
41 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-5. After-tax cash flow for site owner purchase of a fixed-tilt ground system 
42 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-7. LCOE for site owner purchase of a single-axis tracking PV system
43 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-8. After-tax cash flow for site owner purchase of a single-axis tracking PV system
44 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-9. LCOE for site owner purchase of a fixed-axis roof PV system
45 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Figure E-10. After-tax cash flow for site owner purchase of a fixed-axis roof PV system
46 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Appendix F. Results from the Job and Economic 

Development Impact Model

Tables F-1 through F-4 provide results from the JEDI model. 

Table F-1. Data Summary for JEDI Model Analysis of Single-Axis Tracking PV System

Project Location OHIO

Year of Construction or Installation 2013

Average System Size - DC Nameplate Capacity (KW) 2,557.0

Number of Systems Installed 1

Project Size - DC Nameplate Capacity (KW) 2,557.0

System Application Utility

Solar Cell/Module Material Crystalline Silicon

System Tracking Single Axis

Total System Base Cost ($/KWDC) $4,020

Annual Direct Operations and Maintenance Cost ($/kW) $25.00

Money Value - Current or Constant (Dollar Year) 2012

Project Construction or Installation Cost $10,279,140

 Local Spending $5,553,798

Total Annual Operational Expenses $1,256,305

 Direct Operating and Maintenance Costs $63,925

 Local Spending $58,811

 Other Annual Costs $1,192,380

 Local Spending $0

 Debt Payments $0

 Property Taxes $0
47 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table F-2. Summary of Local Economic Impacts for JEDI Model Analysis of Single-Axis 

Tracking PV System

Jobs Earnings Output

During construction and installation period $000 (2012) $000 (2012)

 Project Development and Onsite Labor Impacts

 Construction and Installation Labor 12.3 $797.2

 Construction and Installation Related Services 22.6 $942.1

 Subtotal 34.9 $1,739.3 $3,192.3

 Module and Supply Chain Impacts

 Manufacturing Impacts 0.0 $0.0 $0.0

 Trade (Wholesale and Retail) 4.4 $240.4 $689.8

 Finance, Insurance and Real Estate 0.0 $0.0 $0.0

 Professional Services 6.6 $272.5 $872.0

 Other Services 11.3 $760.8 $2,458.2

 Other Sectors 13.3 $106.9 $346.1

 Subtotal 35.5 $1,380.6 $4,366.1

 Induced Impacts 23.6 $842.9 $2,770.9

 Total Impacts 94.0 $3,962.8 $10,329.3

Annual Annual

Annual Earnings Output

During operating years Jobs $000 (2012) $000 (2012)

 Onsite Labor Impacts

 PV Project Labor Only 0.6 $35.6 $35.6

 Local Revenue and Supply Chain Impacts 0.2 $11.2 $34.9

 Induced Impacts 0.2 $6.3 $20.8

 Total Impacts 1.0 $53.1 $91.3

Notes: Earnings and Output values are thousands of dollars in year 2012 dollars. Construction and

operating period jobs are full-time equivalent for one year (1 FTE = 2,080 hours). Economic impacts "During 

operating years" represent impacts that occur from system/plant operations/expenditures. Totals may not 

add up due to independent rounding.
48 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table F-3. Detailed Summary of Costs for JEDI Model Analysis of Single-Axis Tracking

PV System

OHIO Purchased Manufactured

Installation Costs Cost Locally (%) Locally (Y or N)

Materials & Equipment

 Mounting (rails, clamps, fittings, etc.) $550,619 100% N

 Modules $3,516,953 100% N

 Electrical (wire, connectors, breakers, etc.) $134,736 100% N

 Inverter $523,034 100% N

 Subtotal $4,725,342

Labor

 Installation $797,201 100%

 Subtotal $797,201

Subtotal $5,522,543

Other Costs

 Permitting $56,078 100%

 Other Costs $1,239,317 100%

 Business Overhead $3,461,202 100%

 Subtotal $4,756,597

Subtotal $10,279,140

Sales Tax (Materials & Equipment Purchases) $0 100%

Total $10,279,140
49 This report is available at no cost from the 

National Renewable Energy Laboratory (NREL) 

at www.nrel.gov/publications.

Table F-4. Annual O&M Costs for JEDI Model Analysis of Single-Axis Tracking PV System

Cost Local Share

Manufactured 

Locally (Y or N)

Labor

 Technicians $38,355 100%

 Subtotal $38,355

Materials and Services

 Materials & Equipment $25,570 100% N

 Services $0 100%

 Subtotal $25,570

Sales Tax (Materials & Equipment Purchases) $0 100%

Average Annual Payment (Interest and Principal) $1,192,380 0%

Property Taxes $0 100%

Total $1,256,305

Other Parameters

Financial Parameters

Debt Financing

 Percentage financed 80% 0%

 Years financed (term) 10

 Interest rate 10%

Tax Parameters

 Local Property Tax (percent of taxable value) 0%

 Assessed Value (percent of construction cost) 0%

 Taxable Value (percent of assessed value) 0%

 Taxable Value $0

 Property Tax Exemption (percent of local taxes) 100%

 Local Property Taxes $0 100%

 Local Sales Tax Rate 5.50% 100%

 Sales Tax Exemption (percent of local taxes) 100%

Payroll Parameters Wage per hour Employer Payroll Overhead

 Construction and Installation Labor

 Construction Workers / Installers $21.39 45.6%

 O&M Labor

 Technicians $21.39 45.6%