by Alex Bazeley, AC Power
A closed landfill in Niagara, New York is now powering a brighter future. The Pine Avenue Landfill is bringing clean, affordable energy to over 2,300 homes since two newly constructed solar projects on the site came online in early November. The 13.5 MW-dc development will also generate over half a million dollars in revenue for the town and its school district, bolstering their municipal budget.
While its neighbor, the iconic Niagara Falls, has always symbolized natural power, the solar array on the Pine Avenue Landfill shows how dormant land can be revitalized to advance renewable energy for a community long affected by industrial activity. The success is the result of a collaboration involving AC Power, Calibrant Energy, Montante Solar, and the Town of Niagara, combining their expertise to transform previously contaminated land into a renewable energy resource that benefits the community.
This case study explores the site's history, the development process, the web of permitting and engineering challenges — along with the solutions used to overcome them — and the wide-ranging benefits brought to the Town of Niagara through this project. The milestone not only marks a new chapter for the region, but also stands as a replicable path forward for other municipalities looking to give land a new life and bring the energy transition to its residents.
The Opportunity of Brownfields
Across the United States, there are tens of thousands of brownfield sites — former industrial or commercial properties that may be contaminated and have limited potential for redevelopment. For many years, these sites were seen as liabilities, burdened by their histories and costly remediation. But with growing demand for renewable energy and an increased focus on sustainability, more landowners are recognizing the potential of these properties as prime locations for solar and other renewable energy projects.
Brownfields, including capped landfills, offer a unique opportunity to generate clean energy while revitalizing previously unused land. By converting brownfields into renewable energy assets, municipalities can achieve multiple goals: reducing environmental hazards, generating local economic benefits, and contributing to statewide and national renewable energy targets. Projects like the Pine Avenue Landfill solar installation demonstrate that brownfields are not just a problem to be managed — they are a resource to be harnessed.
A New Chapter for the Pine Avenue Landfill
The Pine Avenue Landfill’s legacy of disposal stretches back more than a century, when in the late 1800s Union Carbide began using the site for the dumping of industrial manufacturing waste. It transitioned into a solid waste management facility in the 1970s, coinciding with Republic Services-Allied Waste’s takeover of the property as owner. The site is part of a 385-acre complex which includes an active solid waste landfill directly to the north of one of the solar projects, seven closed solid waste landfills, and six closed hazardous waste landfills.
In 2022, AC Power, a woman-owned brownfield solar developer based in New York, began discussions with Republic Services to transform closed portions of the landfill. Leveraging their expertise in repurposing contaminated sites, they identified an opportunity to turn this challenging piece of land into a productive asset — generating renewable energy for the community and delivering economic benefits. But the journey from concept to construction required a deep understanding of environmental compliance, creative engineering, and strategic partnerships.
Initiating the Process
With portions of the landfill capped and others still active, the site presented unique permitting and environmental challenges, including securing access for the installation and operation of the solar facilities, ongoing landfill gas collection and monitoring at the project sites, and interconnection design and siting of electrical equipment on and off the landfill cap. The various levels of environmental regulation throughout the larger landfill complex underscored the creativity required for this project and the urgency with which a forward-thinking solution was needed.
AC Power initiated a Phase I Environmental Site Assessment and critical issues analysis/permitting matrix to verify that the closed and capped sections of the landfill could support the development of the solar projects, while remaining compliant with environmental regulations. Accordingly, the developers proposed two 5-MW-ac solar energy generating facilities on two separate sections of capped and closed landfills.
Navigating Permits and Incentives
Once a lease agreement was secured, attention turned to permitting for the development, which necessitated creative thinking and relentless pursuit of the project. Working with outside land use counsel, the developers coordinated with the Town to obtain a use variance that allowed the project to be sited on the existing landfill sections, in addition to bringing the project through the State Environmental Quality Review and site plan review processes.
The NYSDEC post-closure use modification application required comprehensive stormwater analysis, geotechnical assessments, and operational planning to demonstrate the viability of solar development at the site. Tetra Tech, as an engineering partner on the project, conducted the vital work to meet these requirements, while the developers worked closely with the Town of Niagara to secure zoning approvals and a use variance for siting the solar projects.
The developers leveraged both local and federal clean energy incentives to make the project economics pencil. The project was awarded a community solar incentive through NYSERDA’s NY Sun program, while the IRA’s provisions, which include a base Investment Tax Credit of 30% for solar projects sited on brownfields, were pivotal in financing the project. In addition, the site's classification as an energy community in May 2024, based on updated employment codes and regional unemployment data, enabled the project to access an additional 10% ITC.
By providing fair-paying jobs during the construction phase of the development under the IRA’s prevailing wage requirements, the project underscores the ways in which these projects can benefit local workforces. These jobs not only supported the solar industry but also contributed to skill development in clean energy construction, fostering a workforce prepared for future renewable energy projects.
Innovative Engineering for a Challenging Site
Engineering a solar project on a landfill requires creative solutions to ensure that the integrity of the capped landfill is maintained, and this site was no different. The resulting design involved a ballasted ground-mounted solar system — the industry standard for these types of projects — ensuring that no penetrations were made into the landfill cap and thereby protecting the underlying waste containment systems.
More pressing, though, was the fact that portions of the site remained active, which meant navigating a web of existing infrastructure. The presence of active gas flares, groundwater monitoring wells, and at-grade gas lines required the developers to work diligently to obtain all required permits and approvals and bring the projects to notice to proceed while minimizing disruption.
With the development process successfully navigated, AC Power was ready to sell the project, which would commence construction and lock in a long-term owner-operator. They found just that in Calibrant Energy, who would purchase the project in late 2023, and with Montante Solar on board as the EPC, the team was ready to break ground and get the energy flowing.
Community Benefits
The resulting project will bring renewable, discounted energy to more than 2,300 homes, enabling this community to directly share in the benefits of a decarbonized economy. In accordance with New York’s community solar guidelines, more than half of the project’s subscribers will be Low- to Moderate-Income, further democratizing the energy transition.
The projects’ combined 13.5 MW-dc capacity translates to significant CO2 offset — approximately 3,630 metric tons annually, equivalent to removing 789 cars from the road each year or planting over 93,000 trees. Such impacts directly support New York State’s Climate Leadership and Community Protection Act CLCPA, which aims to achieve 70% renewable energy by 2030 and reduce greenhouse gas emissions by 85% by 2050.
AC Power, along with outside counsel, worked with the town to implement a Payment In Lieu of Taxes agreement, an alternative revenue stream structure that provides municipalities with stable income over the life of the agreement. The PILOT agreement established an annual payment structure that will pay out more than half a million dollars to the Town and the Wheatfield School District over the next 15 years, which can be reinvested into community infrastructure and services. This arrangement ensures a predictable revenue stream for the town and school district, contributing to local services without increasing the tax burden on residents.
Additionally, Niagara County recently introduced a local ordinance, the first of its kind, requiring solar developers to have an end-of-life recycling plan for their projects. In compliance, Solarcycle contributed a decommissioning plan to the project to ensure that when the array has exhausted its abilities — in as soon as 25-30 years — the solar panels will be responsibly recycled. What this means is that Calibrant, as the long-term owner-operator of the project, will work with the Town to keep the panels from simply ending up in another landfill. This initiative sets a precedent for future solar projects and emphasizes the importance of sustainable practices throughout the project's lifecycle.
Lessons for the Future
The Pine Avenue Landfill project serves as a blueprint for how towns across the country can transform underutilized and problematic sites into renewable energy assets. The following key takeaways highlight the lessons learned from this project:
1. Creative Engineering Solutions: Developing solar on capped landfills requires unique engineering approaches that protect the integrity of the site. Ballasted ground-mounted systems and tailored layouts that accommodate existing infrastructure are essential in ensuring the project can be built without disrupting the landfill's containment systems.
2. Community-Centered Development: Projects that bring tangible community benefits — such as consistent revenue through PILOT agreements and clean, affordable energy for residents — are more likely to gain local support. Ensuring that Low- to Moderate-Income households benefit from the energy produced fosters community buy-in and equity in the renewable energy transition.
3. Sustainable Lifecycle Planning: A commitment to sustainability must extend beyond the operational phase of the project. Planning for the end-of-life recycling of solar panels and other components ensures that the project’s environmental benefits are maximized and that future decommissioning does not result in additional environmental burdens.
Conclusion: A Legacy of Resilience and Renewal
With Montante completing construction on the project in late October 2023, the project was ready to come online and start writing a new chapter in the region’s environmental history. The Pine Avenue Landfill solar project is a testament to the power of innovative partnerships and strategic policy support in transforming brownfields into assets. By working with Republic Services and local stakeholders, and by leveraging the opportunities provided by the IRA, the Town of Niagara has turned a site with a complicated past into a source of clean energy, community benefits, and economic opportunity.
The Author:
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Alex Bazeley is the Marketing Manager at AC Power LLC. Alex is responsible for developing and executing strategies that enhance AC Power's brand presence and recognition in the brownfield solar redevelopment space. AC Power is a mission-driven, woman-owned solar development company specializing in projects sited on contaminated land, including brownfields, landfills, Superfund sites, and more.
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