The U.S. solar market's centre of gravity is shifting from
the southwest towards the east coast and Florida, in particular.
While traditional solar markets have relied on distributed PV
for most new capacity, these days it is the centralised
large-scale projects that are gaining traction
LONDON --
New capacity also increasingly comes as centralised projects
rather than distributed PV — another major structural change for
U.S. utilities.
A recent survey by the Solar Electric Power
Association (SEPA) showed that in 2011 around 63% of new
solar capacity in the U.S. came from utilities outside
California, the largest percentage on record. Moreover,
a total of seven of the year’s top 10 utilities were
from outside California, and four of the top-ranking
utilities were located in the east.
But not only is the geography changing — so is the
very structure of the industry, with Florida again
leading the way.
While traditional solar markets have relied on
distributed PV for most new capacity, these days it is
the centralised large-scale projects that are gaining
traction. In 2010 alone, eight centralised projects
greater than 10 MW each were installed.
Florida is now focusing closely on utility-owned or
purchased solar power, as opposed to the smaller
customer-owned, net-metered systems that have
characterised the west coast market.
Utility-owned Development
Already operational is the DeSoto Next Generation
Solar Energy Center in DeSoto County, which opened in
late 2009 and has a nameplate capacity of 25 MW. The
plant consists of over 90,000 solar panels across 235
acres (95 ha).
Following that development, Florida Power and Light
(FPL) installed 87 MW in 2010, largely based on two
projects – a 10 MW photovoltaic (PV) project at the
Kennedy Space Center and a 75 MW hybrid concentrating
solar power (CSP) plant at a combined-cycle natural gas
plant across 500 acres (202 ha) north of West Palm
Beach.
The US$476 million (€367 million) project, known as
the Martin Next Generation Solar Energy Center is
essentially an experiment to determine whether
conventional power generation can be married with
significant solar power resources. What makes the plant
noteworthy is that this is one of the few currently
operating examples of a conventional plant being
retrofitted with the latest solar technology on such a
large scale.
The plant also serves as a real-life test bed as
developers attempt to reduce the cost of solar power,
which remains much more expensive than most other forms
of electrical generation. FPL Group, the parent company
of Florida Power and Light, expects to cut costs by
about 20% compared with a typical stand-alone
concentrating solar power facility, since it does not
have to build a new steam turbine, new high-power
transmission lines or other common infrastructure shared
with the neighbouring gas-fired installation.
‘We’d love to tell you that solar power is as
economic as fossil fuels, but the reality is that it is
not,’ Lewis Hay III, FP&L’s chairman and chief
executive, explained on a recent tour of the plant. ‘We
have got to figure out ways to get costs down. As we saw
with wind power, a lot has to do with scale,’ he added.
As always with solar, the importance of scale has to
be put in context. Despite the size of the Martin Center
its 75 MW — impressive for a solar facility — is
nevertheless barely a drop in the ocean when compared
with the adjacent gas plant, which can produce about
3800 MW.
Other larger-scale solar projects coming to fruition
include Florida-based National Solar Power’s plan to
build a 200 MW solar farm in Hardee County at a cost of
around $700 million. Construction of this installation,
which is due to begin in the second quarter of 2012, is
expected to take six months for each of the 20 MW
‘modular’ plants.
This is the second project that National Power has
announced in Florida. The company is planning an even
bigger one in Gadsden County, a $1.5 billion, 400 MW
project that will also consist of 20 smaller plants,
each on a 200 acre (81 ha) site.
Similarly, and also in Florida, BlueChip Energy has
broken ground on the 120 MW Sorrento Solar Farm in Lake
County with Taiwan-based Neo Solar Power providing its
high-efficiency solar modules in exchange for equity
participation. Earlier this year, BlueChip also built a
1.2-MW phase of the Rinehart Solar Farm in Seminole
County, the largest rooftop PV installation in the state
of Florida to date.
Legislative Roadblocks
Smaller-scale solar facilities have also been making
inroads in Florida, but again these have been thwarted
in many cases by legislative roadblocks. As things
stand, a despite its wealth of solar resources, Florida
lags behind virtually every other major state in its
support of renewable energy.
Many states leverage federal clean energy tax credits
and grants to help stimulate demand in their states
through incentive programmes, but Florida’s rebate
programme expired in June 2010 and there is no talk of
reinstating it.
Part of the reason for Florida’s tardiness in
implementing legislation that would benefit solar power
development by utility groups is because a lot of debate
in Florida has focused on attempts by FP&L to push
legislation through the state senate, notably Senate
Bill 2078. This would have provided Florida’s major
power companies with more incentives to increase their
solar portfolios by allowing them to pass the costs of
constructing renewable energy plants on to their
consumers.
But 2078 is also seen as a double-edged sword by the
solar community, as it does not provide for any kind of
feed-in tariff (FiT) by which power companies would buy
power produced by smaller renewable companies.
Susan Glickman, a lobbyist for the Southern Alliance
for Clean Energy, says that more should be done to level
the playing field. She said that in the twentieth
century there was a drive for universal service, but
that thinking is increasingly outdated.
‘We are in a different world; we have many different
ways to provide energy. There’s so much energy
efficiency opportunity out there that we don’t take
advantage of because utilities are incentivised to build
power plants, because they put that into their rate base
and that’s how they make money.’
Glickman argues that the state should be at the
forefront of developing renewables, but expresses
concern that if Florida writes policies favouring giant
utilities, it would drive away companies that innovate.
Rapid Growth
Despite the legislative hurdles, SEPA confirms that
distributed solar is growing fast in Florida, albeit
from a smaller base.
Partly this is because, in 2007, in an attempt to
promote customer-owned renewable generation, the
Florida Public Service Commission (PSC) established
rules making it easier to interconnect a customer’s
system with the utility’s grid.
Other potential sources of funding for
distributed solar in Florida include the Property
Assessed Clean Energy (PACE) programme, which was
approved by the 2010 legislature and allows
residential and commercial property owners to seek
financing for solar energy projects through a
special assessment by their local government. The
property owner pays back the loan over a period of
years through their property tax bills.
Then there are the Qualified Energy Conservation
Bonds, which are available to state and local
governments to finance qualified energy conservation
projects, including those that involve the
production of electricity from renewable energy
resources. Effectively, the US Treasury Department
subsidises the bond issuer’s borrowing costs.
That said, it is the net-metering rules that
appear to be having the biggest impact at the
moment. In 2010, nearly 3000 solar energy systems
with a capacity of more than 20 MW were
interconnected across the state, with customers
often selling the energy back to the grid.
This is a significant jump from 2009, when only
1625 customer-owned renewable systems representing
some 13 MW of electrical generation capacity were
connected to the utility grid.
Distributed Solar in the West
On the face of it the situation in California
couldn’t be more different. Solar in the Golden
State has long benefited from a system of
distributed generation. But California utilities are
obliged to obtain 33 percent of their energy supply
from renewables by 2020 (up from 20 percent in 2010)
and that is also helping to fuel the development of
larger-scale utility-backed solar projects.
These include out-of-state projects such as the
massive Copper Mountain project in Boulder City,
Nevada, which was officially opened by Sempra
Generation in March 2011 and produces 48 MW from
750,000 solar panels spread out over 380 acres (154
ha).
The project began as a 10-MW pilot installation
in 2008. Since then, Sempra has sold the energy to
one of California’s major utilities, Pacific Gas and
Electric (PG&E).
Sempra hired First Solar as the contractor for
the large-scale project, and as Sempra had already
leased the necessary land, and because Boulder City
had a ‘solar zone’ in place, permitting went
relatively quickly.
Boulder City was also keen to have the plant
built there. ‘The town is exceptionally great at
communicating; there are no surprises, and they’re
genuinely interested and enthusiastic and want us
there, and that makes a huge difference,’ says
Engelbrecht.
Sempra was also able to attain some tax
abatements through the state of Nevada, as well as a
federal tax credit and an investment tax credit on
the construction. The company now has a 20-year
contract with PG&E for the facility and the 10-MW
power plant, but Sempra also announced recently
approved plans to expand the plant by 200 MW.
‘We’re about to start construction on a 150-MW
project in Arizona, and that power is also going to
Pacific Gas and Electric,’ says Engelbrecht. This is
just the start. Sempra Generation says it is ready
to embrace solar on a large scale.
‘We have well over 1,000 MW in our solar pipeline
of projects we’re developing,’ says Engelbrecht.
‘Our Mesquite project — the 150 MW project in
Arizona — is simply phase one. The site is actually
large enough to accommodate 600 MW-700 MW of solar.’
What is so surprising about Copper Mountain is
that it makes quite a departure for PG&E, given
that, in 2010, the company’s solar portfolio was
about two-thirds distributed customer PV projects,
with more than 10,000 projects totaling more than
104 MW. But the Copper Mountain project provides
ample evidence that large centralised projects and
ownership are on the rise, even in the western US.
‘We expect the growth in utility solar power to
continue,’ said Julia Hamm, SEPA president and CEO
commenting on a recent analysis. ‘Our findings show
that utilities are continuing to find new, viable
business models,’ Hamm added.
That’s not to say that distributed solar
generation doesn’t have a role to play in the west.
For instance the California Public Utilities
Commission (PUC) has approved Southern California
Edison’s plan to install scores of 1-2 MW
grid-connected systems scattered across the rooftops
of commercial buildings throughout its southern
California service area — eventually totaling some
500 MW.
SCE says it will now add another 50 MW each year
in what will create a boom for local solar
businesses.
Economies of scale will never reach those
achieved at the likes of Copper Mountain, but solar
on large commercial roofs is relatively cheap,
costing about half the price of individual home
installations and doesn’t usually require the
building of additional transmission infrastructure.
Moreover, with the economic crisis hitting the state
hard, distributed solar could be a positive way to
make use of derelict buildings.
California's Issues
Distributed solar could also help to fill the
gaps caused by the frequent delays that California
currently faces in realising its many signed
contracts for mega solar projects.
In many cases these stem from environmental
disputes. For example, in 2009 California state
Senator Dianne Feinstein introduced legislation to
protect a million acres (0.4 million ha) of the
Mojave Desert, effectively causing the abandonment
of some 13 big solar projects in the area.
Feinstein also heads the Senate subcommittee that
oversees the Interior Department’s budget, giving
her a large say in the siting of solar projects. The
decision to protect the Mojave from development puts
pressure on California to come up with other means
of achieving its goal of obtaining a third of its
power from renewables by 2020.
Steven L. Kline, chief sustainability officer for
PG&E, noted that the loss of the planned solar
projects would hurt his company’s efforts to comply
with state renewable energy mandates. The utility
was planning a solar farm in the Monument area.
‘In the near term, it would have a very
substantial impact,’ he said, emphasising that in
principle PG&E supports Feinstein’s efforts to
preserve sensitive desert lands. ‘Over time those
projects will be built somewhere else and we’ll have
benefits of the power.’
But until that happens, it seems that distributed
generation and the ‘virtual’ solar plant can supply
at least some of the answers. ‘Distributed solar is
faster on permitting, on environmental issues and
interconnection to the grid,’ said Arno Harris,
Recurrent’s chief executive. ‘It offers a safety
valve for utilities who don’t want to put all their
eggs in one basket.’
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