Repowering Niagara: How a Capped Landfill Became a Clean Energy Landmark

In Niagara, New York, a closed landfill site has been transformed into a 13.5 MW-dc solar array that will provide clean, affordable energy to over 2,300 homes. By repurposing this previously contaminated site, AC Power, Montante Solar , Calibrant Energy , and the Town of Niagara have demonstrated a replicable model for municipalities seeking to harness the potential of brownfield sites for renewable energy development.

The Opportunity of Brownfield Solar

Across the U.S., thousands of brownfield sites — properties with a history of industrial use or contamination — sit vacant and undeveloped. Traditionally seen as liabilities, these sites are increasingly recognized as opportunities for solar development due to their large, underutilized footprints, proximity to existing electrical infrastructure, and lack of higher development use value.

The transformation of brownfields into renewable energy sites is supported by extensive federal and state incentives, such as the Investment Tax Credit and New York's NY-Sun program, which specifically encourage the redevelopment of previously contaminated lands. Additionally, these projects help municipalities meet their climate goals, in turn supporting New York State in achieving its targets, contribute to reducing the carbon footprint, and create job opportunities in the growing renewable energy sector.

A Site with a Complicated Past

The Pine Avenue Landfill has a long history, beginning as an industrial waste disposal site for Union Carbide in the late 1800s before transitioning into a municipal solid waste landfill in the 1970s, coinciding with Republic Services-Allied Waste’s takeover of the property as owner. The landfill complex spans 385 acres and includes multiple closed and active waste disposal areas, making it a particularly challenging candidate for redevelopment. By 2022, AC Power identified the site’s potential for solar energy generation and initiated discussions with Republic Services , the landfill’s owner, to explore the feasibility of solar development.

Overcoming Regulatory and Engineering Challenges

Developing solar projects on capped landfills presents unique hurdles, from securing regulatory approvals to designing systems that maintain the integrity of the landfill cap. The Pine Avenue Landfill project required extensive environmental assessments, site plan approvals, and modifications to post-closure use permits from the New York State Department of Environmental Conservation in order to ensure safe, compliant development.

A critical milestone was obtaining a use variance from the Town of Niagara, allowing solar panels to be installed on the capped landfill while complying with local zoning ordinances. Additionally, AC Power ensured that the project adhered to the Airport Protection Overlay District requirements due to its proximity to Niagara Falls International Airport. The project team worked closely with environmental and municipal agencies to ensure that the necessary site modifications complied with NYSDEC’s environmental and landfill management standards.

The already existing landfill gas collection and monitoring systems on site were integrated into the project’s design. Given that landfills continue to emit gases long after closure, maintaining the landfill's environmental controls while adding solar infrastructure required careful coordination with NYSDEC, Republic Services, and Tetra Tech, the project's engineering consultant.

Innovative Solar Design and Construction

To avoid penetrating the landfill cap, the engineering team used an industry-standard ballasted ground-mounted racking system, which distributes weight evenly without disturbing the underlying waste containment structure. 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.

Montante Solar, the project’s engineering, procurement, and construction contractor, executed the installation, navigating the logistical challenges presented by the landfill’s uneven terrain. The team coordinated closely with NYSDEC to ensure compliance with stormwater management requirements and environmental impact mitigation. These engineering solutions not only ensure the long-term stability of the solar array but also set a precedent for future landfill solar projects.

Montante also partnered with Moog Construction to integrate advanced automation into solar field installation, facilitating a field trial of Moog’s CrewMate, a semi-autonomous lift-assist vehicle. The machine was tested in real-world conditions where it carried pallets of up to 31 large PV panels while following workers who used its lift assist to maneuver each 83-lb. panel onto the solar module racking. AC Power's commitment to strong partnerships includes working with trusted firms who are deploying industry-leading technological advancements in the rapid deployment of solar.

Securing Funding and Incentives

The financial viability of the Pine Avenue Landfill solar project was bolstered by key federal and state incentives. The Inflation Reduction Act provided a 30% Investment Tax Credit for solar projects sited on brownfields, with an additional 10% ITC awarded due to the site’s designation as an Energy Community.

New York State’s NY-Sun program also played a pivotal role by awarding community solar incentives, ensuring the project could offer discounted electricity to residents, with a focus on benefiting low-to-moderate-income households.

AC Power negotiated a Payment In Lieu of Taxes agreement, ensuring that the Town of Niagara and the Wheatfield School District receive stable tax revenue from the project for the next 15 years. Such agreements are increasingly becoming popular ways for municipalities looking to balance sustainable development with economic stability.

Community and Environmental Benefits

The completed solar installation will deliver numerous benefits:

• Affordable Renewable Energy: The project supplies discounted solar energy to over 2,300 homes, expanding access to clean power.
• Economic Gains: A PILOT agreement ensures stable revenue for the Town of Niagara and the Wheatfield School District, exceeding $500,000 over 15 years.
• Carbon Reduction: The system offsets approximately 3,630 metric tons of CO2 annually — the equivalent of removing 789 cars from the road or planting 93,000 trees.
• Sustainable End-of-Life Planning: In compliance with Niagara County’s solar panel recycling ordinance, the project includes a decommissioning plan that ensures responsible recycling of panels at the end of their lifespan, which is typically at least 30 years.

Lessons for Future Brownfield Solar Projects

The Pine Avenue Landfill solar project offers valuable insights for municipalities and developers:

1. Strategic Site Selection: Brownfields and landfills provide excellent locations for solar, but require in-depth feasibility studies and compliance with post-closure use regulations.
2. Collaborative Development Approach: Engaging stakeholders early — including regulatory agencies, local governments, and engineering teams — ensures smoother permitting and project execution.
3. Tailored Engineering Solutions: Ballasted racking systems and careful siting of electrical infrastructure are critical to protecting landfill integrity.
4. Maximizing Financial Incentives: Utilizing federal and state programs can make brownfield solar projects economically viable.
5. Commitment to Sustainability: Planning for panel recycling and end-of-life management strengthens community trust and project longevity.

Conclusion: A Model for Replicable Success

The Pine Avenue Landfill solar project, which is slated to come online by the end of Q1 2025, exemplifies how disused industrial land can be repurposed into a clean energy asset. By overcoming regulatory, financial, and engineering challenges, AC Power and its partners are setting the standard for future landfill solar projects nationwide. This development not only contributes to New York’s renewable energy transition but also provides a roadmap for municipalities seeking to transform brownfields into economic and environmental success stories.