Agenda 07/27/2010 Item #16C 5Agenda Item No. 16C5
July 27, 2010
Page 1 of 14
EXECUTIVE SUMMARY
Update the Board of County Commissioners on the status and progress of the Landfill Gas -
to- Energy Facility that will beneficially use landfill gas from the Collier County Landfill to generate
electricity and, in turn, generate new revenue for the County's Solid Waste Fund.
OBJECTIVE: Update the Board of County Commissioners on the development of the Landfill Gas -to-
Energy Facility (Facility) that will beneficially use landfill gas (LFG) from the Collier County Landfill
(Landfill) to generate electricity and, in turn, generate new revenue for the County's Solid Waste Fund.
CONSIDERATIONS: The Collier County Landfill produces a substantial volume of LFG that can be
used as an energy source. The LFG is currently burned off through a flare and is not used in any
beneficial manner. This project proposes to use that same LFG to serve as fuel to power reciprocating
engines that will generate electricity that would be sold to Florida Power and Light Company.
On December 16, 2008, the Board of County Commissioners (BCC) approved the Landfill Gas Sales
Agreement and Ground Lease (Agreement) that requires WMIF to design, permit, construct, operate, and
maintain a Facility at the Landfill. Under the Agreement, WMIF is required to: (a) accept responsibility
for all aspects of the LFG project; (b) pay all of the costs associated with the construction of the Facility
and be responsible for the financial risks and liabilities related to the Facility; (c) pay the County for the
LFG used by the Facility; (d) pay the County a portion of the revenue WMIF receives from the sale of
electricity; and (e) pay the County under certain circumstances for the sale or use of future tax credits and
- emissions credits (e.g., carbon credits). The Agreement also provides that WMIF must comply with all
local, state, and federal laws that are applicable to the Facility, including, but not limited to, all
regulations governing the environmental impacts of the Facility.
Under the Agreement, WMIF will: (a) pay the county for LFG at a rate of $1.25 per one million British
Thermal Units (MMBTU); and (b) share one -half of the revenue WMIF receives from the sale of
electricity above the revenue sharing threshold when the electricity is sold for an average price greater
than the revenue - sharing threshold. The revenue sharing threshold is expected to be $72.96 per
megawatt-hour (MWH), based on an expected construction cost of approximately $8,850,000. This
represents an increase of over 1.8 million dollars. WMIF has submitted documentation to substantiate the
increase in cost (please reference the attached documents). The cost increase is due to additional design,
engineering, equipment and construction cost that arose during the design and permitting process such as:
Increased equipment and electrical cost to meet the air permit and FPL requirements and increased site
work and construction cost to meet foundation requirements
Although the cost for the facility has increased, the facility now has the capability to be expanded from 4
MW to a build out capacity of 9.6 MW. This gives the County an opportunity to generate more revenue
in the future. These changes in construction costs are allowed within the provisions of the Agreement
which provides for building the facility in a manner that accommodates future expansion. WMIF used a
competitive bid process to secure contractors including utilizing a list of local contractors obtained from
the Collier County Purchasing Department. The final pricing represents the lowest qualified bids for each
phase of work which includes several local contractors and vendors.
Agenda Item No. 16C5
July 27, 2010
Page 2 of 14
The schedule for the project is outlined below:
• All applicable permits have been obtained by June 4, 2010, including;
o US Army Corp of Engineers 404 permit,
o Florida Department of Environmental Protection air permit,
o Florida Department of Environmental Protection Environmental Resource permit,
• Collier County Site Development Plan Amendment, and
• Collier County Building pennit.
• Notice to Proceed issued on July 1, 2010
• Construction will begin on August 1, 2010
• Estimated completion date is March 2010
The Facility is expected to use approximately 386,000 MMBTUs annually, which is expected to provide
the County with approximately $400,000 from the sale of LFG for the first year of operation. The unit
rate paid by WMIF for LEG ($1.25 per MMBTU) will be adjusted annually by a price adjustment factor
that is based on the change in rates received by WMIF for electrical power sold. However, the unit rate
for LEG will not fall below the initial unit rate of $1.25 per MMBTU.
FISCAL IMPACT: It is estimated that the Collier County Solid Waste Fund will receive approximately
$400,000 in the first year of the Facility's operation and $9.9 million over the 20 year term of the
Agreement. The proceeds from the project will be placed in the air space recovery fund.
GROWTH MANAGEMENT IMPACT: The development of the Facility is consistent with the
County's Growth Management Plan, specifically Solid Waste Sub - Element Objective 2, Policies 2.2, 2.3
and 3.2. Additionally, in December 2006, the Board approved the Integrated Solid Waste Management
Strategy, which provides Board direction for the development of a gas to energy facility at the Collier
County Landfill. The project is essential to the county's goal of environmental stewardship, growth
management compliance, airspace preservation, operational excellence and best value service.
LEGAL CONSIDERATIONS: This item is legally sufficient for Board consideration. - JBW
RECOMMENDATION: Update the Board of County Commissioners on the status and progress
of the Landfill Gas -to- Energy Facility that will beneficially use landfill gas from the Collier County
Landfill to generate electricity and, in turn, generate new revenue for the County's Solid Waste Fund.
PREPARED BY: Dayne Atkinson, Project Manager, Public Utilities Planning and Project Management
Department
Agenda Item No. 16C5
July 27, 2010
Page 3 of 14
COLLIER COUNTY
BOARD OF COUNTY COMMISSIONERS
Item Number:
16C5
Item Summary:
Update the Board of County Commissioners on the status and progress of the Landfill Gas -
to- Energy Facility that will beneficially use landfill gas from the Collier County Landfill to
generate electricity and, in turn., generate new revenue for the Countys Solid Waste Fund.
Meeting Date:
7127/2010 9:00:00 AM
Prepared By
Dayne Atkinson
Project Manager
Date
Public Utilities Division
Public Utilities Engineering
7/1/2010 3:04:53 PM
Approved By
Phil E. Gramatges, P.E.
Project Manager, Principal
Date
Public Utilities Division
Public Utilities Engineering
7/2/2010 9:15 AM
Approved By
Jennifer White
Assistant County Attorney
Date
County Attorney
County Attorney
7/612010 8:51 AM
Approved By
Linda Best
Compliance Manager
Date
Public Utilities Division
Solid Waste Management Department
7/61201011:28 AM
Approved By
Dianna Perryman
Contracts Specialist
Date
Administrative Services
Division
Purchasing & General Services
7/6/2010 12:29 PM
Approved By
Daniel R. Rodriguez
Director - Solid Waste
Date
Public Utilities Division
Solid Waste
71612010 12:42 PM
Approved By
Thomas Wides
Director - Operations Support - PUD
Date
Public Utilities Division
Utilities Finance Operations
7/6/2010 1:64 PM
Approved By
Margie Hapke
Operations Analyst
Date
Public Utilities Division
Public Utilities Division
718/201010:53 AM
Approved By
James W. DeLony
Public Utilities Division Administrator
Date
Public Utilities Division
Public Utilities Division
719/2010 9:37 AM
Agenda Item No. 16C5
July 27, 2010
Page 4 of 14
Approved By
OMB Coordinator
Date
County Manager's Office
Office of Management S Budget
7!912010 9:57 AM
Approved By
Randy Greenwald
Management /Budget Analyst
Date
Office of Management &
Budget
Office of Management & Budget
7/912010 12:08 PM
Approved By
Mark Isackson
Management /Budget Analyst, Senior
Date
Office of Management &
Budget
Office of Management & Budget
7110/2010 3:46 PM
Agenda Item No. 16C5
July 27, 2010
Page 5 of 14
Cor County
June 30, 2010
Mr. Tim Hawkins
Vice President
Waste Management Inc. of Florida
2700 NW 48 Street
Pompano Beach, FL 33073
RE: NOTICE -TO- PROCEED
Landfill Gas to Energy Project
Landfill Gas Sales Agreement and Ground Lease
Collier County Project No. 59004
Dear Mr. Hawkins;
This letter serves as Collier County's official NOTICE TO PROCEED (NTP) to Waste Management Inc.
of Florida to commence construction of the Landfill Gas to Energy Facility at the Collier County Landfill.
This NTP is issued pursuant to the Landfill Gas Sales Agreement and Ground Lease contract awarded by
the Board of County Commissioners on December 16, 2008.
This NTP is limited to the scope of work for: Construction and operation of the Landfill Gas to Energy
Facility, project number 59004. Commencement date for the services associated herewith shall be
considered to be July 1, 2010.
Please execute the acknowledgment of this notice by signing the below. Retain a copy for your records
and return the original to this office.
cc: Diana Perryman, Contract Specialist
Evelyn Colon, Fiscal Technician
Agenda Item No. 16C5
July 27, 2010
Page 6 of 14
ACCEPTANCE OF NOTICE
Receipt of the Notice to Proceed is hereby acknowledged by
Contractor /Consultant
Name:
Signature
Title:
Address:
This day of 2010
* * **
7650 Corporate Center Drive
Smite 401
Miami, FL 33126 -1220
305 884 89M Tel
305 884 2665 Fax
Dayne Atkinson
Project Manager, Public Utilities Division
Collier County Government
3301 E Tamiami Trail, Building H
Naples, FL 34112
Subject: Collier County LFGE Facility
Mr. Atkinson,
Agenda Item No. 16C5
July 27, 2010
Page 7 of 14
i 1 0 -
J 1k; I
Corporation
Per your direction, URS has reviewed information regarding the LFGE facility, specifically the plant
capacity and associated construction value as given by WMI. In previous correspondence, my June 4,
2010 email to you and my June 23, 2010 email to you, URS reviewed specific input from WMI to assist
the County in its deliberations regarding the facility.
Our efforts focused on the differential in cost between the stated 4.OMW facility budget established by
WMI versus the WMI construction bid of a 9.6MW facility.
As stated in my June 23, 2010 email to you, our review of the most recent WMI documents, including
the WMI letter to Dan Rodriguez dated June 21, 2010, finds the cost information provided in that letter
to be reasonable; that is, the cost of the $1.8M differential between the original budget and the
construction bid is reasonable once one accepts that the plant facility was rated 9.6MW in both cases.
The differential is comprised of costs related to the site, upgrading the facility structure, contingency,
permitting and the upgrade of the exterior electrical service to the facility from 4.OMW to 7.2M W.
Please contact me directly if you should have any questions or require further information.
PPF
Direct: 305 -514 -2462
Mobile: 305- 608 -9720
W„ cc: Michael Nardone URS
Nestor Fernandez URS
Agenda Item No. 16C5
July 27, 2010
Page 8 of 14
LANDFILL GAS TO ENERGY
Pre - Construction Submittals By WMIF
In accordance with section 4.1 of the Landfill Gas Sales Agreement and Ground Lease, at least ten (10)
days before the Commencement of Construction, WMIF shall provide the Project Manager with:
Document
Date Submitted
1
Certificates of insurance
April 16, 2010
2
C2py of all permits obtained
June 28, 2010
3
Site Superintendent emergency contact information
TBD
4
Information of all personnel performing work on this project
TBD
including each employee of WMIF, WMRE, any subcontractors, and
other working on the site, pursuant to Section 4.13.6 of the Landfill
Gas Sales Agreement and Ground Lease
5
Payment bond
April 16, 2010
6
_
Any other documents required to be submitted before the
June 28, 2010
Commencement of Construction pursuant to this Agreement.
• Cost escalation justification
• Revised pro -forma
Agenda Item No, 16C5
July 27, 2010
Page 9 of 14
WM ReMwieNo Energy LLC.
1001 Fannin, Suite 4000
Houston, TX 77002
713.512 -6200
June 25, 2010
To: Mr. Dayne Atkinson
Project Manager, Public Utilities Division
Collier County Government
3301 E. Tamiami Trail, Building H
Naples, FL 34112
Re: WMRE Original Estimate Basis
Collier County Landfill Gas to Energy Plant
Naples, Florida
Dear Mr. Atkinson:
The following is provided in response to your request for a summary of the $7 million original estimate
of the Naples landfill gas to energy plant and the situations that have caused the estimate to increase
to $8.85 million.
The original estimate was developed in the 2006 - 2008 time frame. We met with the County in 2006
to discuss the concept of WMRE constructing the plant and purchasing the landfill gas from the
County, and made our first written proposal on January 26, 2007. We submitted additional detail on
June 15, 2007, which included a cost estimate of $6,640,000 for a 5- engine facility, with a placeholder
of $400,000 for the utility interconnect Further information from FP &L later in 2007 indicated an
interconnect cost of about $800,000, so we increased the estimate to $7,040,000. This estimate was
included in our December 14, 2007, email comparing gas payment alternatives.
During the negotiation of the gas purchase contract, it was mutually agreed by the County and WM to
index the revenue sharing threshold to the final construction cost The estimate was rounded to $7
million and used in the contract as the reference point for indexing the revenue sharing threshold.
The $7 million estimate was a total cost estimate based on similar projects we had completed or were
constructing during 2006 - 2008. The line item breakout for Naples was based on typical ratios in the
previous projects. A high end unit cost for construction during this period was about $1,7501KW, as
shown below, which is the unit cost we used for our estimate:
Completed
Engine bays/Enaines Installed
Initial MW
Cost/KW
I/C Cost
2006
8/6
4.8
1,235
0
2006
8/6
4.8
1,582
602,000
2006
6/6
4.8
1,192
80,000
2007
816
4.8
1,727
630,000
2008
8/6
4.8
1,776
540,000
2008
4/4
3.2
1,516
132,000
After execution of the contract, WM proceeded with finalizing the plant location, preparing the various
permits for the project, and developing a conceptual design. Also during this period, the WM landfill
personnel continued to make well field improvements and expansions to increase the gas flow and
improve the gas quality. During 2009, it appeared that the gas flow had increased sufficiently to
support 8 engines instead of the contracted 5 engines. Maximizing the plant size to the available gas
flow would be beneficial to both WM and the County. However, upon continued work on the field, the
flow stabilized to an amount in the 5 to 7 engine range. It was considered conservative to proceed
Agenda Item No. 16C5
July 27. 2010
with an initial installation of 5 engines (4.0 MW), with an extra engine bay to allow for future Page 10 of 14
expansion.
In the past few years, Caterpillar released a new engine for landfill gas applications, the 1.6-MW Cat
3520. This engine has twice the output of the 0.8 -MW Cat 3516 engine that we are using at Naples.
We have a number of projects where we have installed the 3520s. Our experience to date is that the
availability time has been lower and the maintenance costs have been higher for the 3520s than the
3516s. Each 3520 engine uses twice as much gas as a 3516, so It is more difficult to match the plant
capacity to the gas flow, especially with a flat flow curve. The 3520 also appears to be less
accommodating to low gas quality. For these reasons, the 3516s continue to be a better fn for the
Naples project The 3520s do represent an option for increasing the capacity of the plant, especially
as we continue to gain experience in their operation and maximize their output In the past couple of
years, WM has developed a design to allow for the installation of 3516s, with provisions for swapping
the 3516s with 3520s to increase capacity without increasing building size or modifying the
switchgear, piping, foundations, radiators, or exhausts. We applied this design to the Naples project
The ability to convert from 3516s to 3520s provides for additional expansion If the gas flow estimate is
low, or if the waste stream to the landfill increases in the future, or if the County installs an organic
waste diversion project that could deliver additional methane to the project. For a relatively small
investment in the conversion ability, this facility is certain to accommodate a variety of situations
which could increase the plant capacity without additional investment in building and infrastructure.
There have been questions as to the consistency of the plant design compared to the maximum
capacities of the utility interconnect and air permit. We presently have an Interconnection Agreement
with FP &L for 7.2 MW of generation at a cost of about $800,000. The 7.2 MW capacity corresponds
to three 3516s and three 3520s. A full build -out of the plant would be six 3520s, or 9.6 MW. If we
request more generation (above 7.2 MW), FP &L will require us to go through the Interconnection
Study Process again and will require a more extensive Impact Study. The more extensive process
will use computer modeling to look at items such as the impact to power lines and customers and the
effects of our plant abruptly shutting down or causing faults in the system. This study can uncover
unforeseen problems which will need to be addressed at our cost. One item that FPL may require at
their Golden Gate Substation is a high side grounding transformer to stabilize line conditions. This
might cost in excess of one million dollars, but we will not know the total cost until we initiate the
study. It is not urgent or prudent for us to expend funds for this study at this time, because we have
not approached the gas flow to support 7.2 MW. If the landfill gas flow and quality eventually improve
to support more than is needed for a 7.2 MW facility, we would evaluate the incremental cost of the
interconnect and the energy pricing going forward at that time, and determine whether it is in the best
interests of both WM and the County to invest in a higher interconnect capacity. As discussed above,
there is a relatively small investment now to accommodate this potential situation in the future.
The current air permit is for up to eight 3516s. This permit application was prepared and submitted
when it appeared the gas flow would support eight 3516s, and it is again advisable to request an air
permit to cover the potential size of the plant. We have 17 months from the completion of
construction of the initial plant to install the sixth genset, although it is possible we could get an
extension. Converting any of the engines from 3516s to 3520s would be a PSD change to the permit
since the whole project would be looked at as a new project by the FDEP. The cost of an air permit
to change out three gensets at one time would be around $100k and could take 18 -24 months to get.
Additionally, PM -2.5 & NO2 modeling would have to be done and with the PSD project, we will have
to do a BACT analysis for SO2. Similar to the interconnect, the effort and expense to permit a larger
plant should be implemented at the time the gas flow can support the expansion, but the investment
in conversion to 3520s gives us the capability to do this with less future capital.
The current gas purchase agreement and pro forma provide for five 800 -KW engines, or 4.0 MW
total. If the gas increases to a sustainable flow that is sufficient to support an expansion of 800 KW
(one engine) or more. WM will submit a plan for expansion to the County, outlining the basis for the
2
Agenda Item No. 16C5
July 27, 2010
gas flow projection, the expected construction costs, the interconnect and air permitting costs al*e 11 of 14
strategy, and potential benefit to both parties. In accordance with our gas purchase agreement, the
expansion shalt be subject to terms and conditions that are mutually acceptable to both parties, and
shall be negotiated before any such expansion is initiated, and recorded as an amendment to the gas
purchase agreement
As we proceeded with detailed site location and design, a number of site- specific conditions, as well
as continued cost increases since 2008, resulted in a unit cost higher than those used as the basis for
the original estimate. It is WM's standard practice to obtain competitive bids for each of the work
items in the project, and this procedure was also followed for the Naples project WM also obtained a
list of current contract holders from the purchasing department to aid in the selection of bidders. The
final pricing represents the lowest qualified bid for each phase of work, and includes several local
contractors and vendors. The incremental increases in the final cost compared to the original total
cost estimate are described below:
Equipment: Modified the gas flow system to meet air permitting requirements,
$492,853
added oil mist eliminators to collect oil mist from the engine and dispose in the
used oil piping system, upgraded outdoor switchgear /metering as noted in the
interconnect agreement and discussions with FP &L. We are working to reduce the
FP &L outdoor gear request as we have integrated a protective relay cabinet into
the control room and tied it to the controls of the switchgear. We should have this
finalized shortly as we are working closely with the FP &L engineers on the
interconnect and the controls/transfer trip and relaying scheme they are requiring
us to install.
Construction: Site Work — Additional costs to prepare the 1.7 acres of wetlands
$661,706
for the construction of the facility. Includes tree and brush removal, demucking the
site several feet to remove the very loose silty soils, and filling the site with suitable
soil to be installed in a controlled manor according to the specifications we
provided. Please note that we are not removing all the unsuitable soils to bedrock
as this would be an expensive process, thus the need for a deep foundation
system.
Concrete — Due to the site soil conditions, we are in need of installing a deep
foundation system consisting of auger cast piles and a 10" structural slab to
support the facility and its equipment per the recommendation of the geotechnical
engineer and structural engineer. Original budget included a 6" slab for a standard
facility.
Electrical — Additional scope of work to install the utility interconnect from the FP &L
point of interconnect, which is at the SW corner of the landfill entrance, to the
facility. We have reviewed the current utilities installed and discussed the current
operations with the landfill and determined that the connection from the FP &L
interconnect point to the facility should be installed underground. When a
damaging weather event occurs, the FP &L corrective work starts with the
transmission lines, then to the distribution lines, then to individual feed lines, so our
interconnect would be the low priority for repair. By installing an underground
connection, our plant will be ready to deliver service as soon as the distribution line
is back on line, providing for a quicker turn around and lower cost to be back on
line. Additional increase in cost is construction cost inflation since the estimate
was first prepared .
Expandability from 3516* to 3520s: Increase compressor capacity from 2000
$88,914
SCFM unit to a 2500 SUM unit; increase the T1 Transformer from 5500 kVA to
7500 kVA; increase the MCC 250 HP gas compressor to a 400 HP; increase
interconnect conductors from 2/0 to 4/0; . increase generator conduit size from
3.5" to 4 ". Radiator and silencers are now standard for both engine sizes. No cost
differential for the T2 transformer, switch ear, reactor or reicoser.
Engineering: The engineering budget in the original proforma was to cover the
$325,000
cost to duplicate a plant at that time of the proforma submission. Our project
engineering required the additional services for the development of the facility as
we needed to get other consultants involved to work through the following permit
Agenda Item No. 16C5
li v 97 010
Pa e 12 f 14
processes: Air permit, ERP permit, Army Corp of Engineers, Fish and Wildlife, site
g
development and building permits. Several of these processes went well beyond
the anticipated durations and required additional documentation for the reviewing
authorities.
Construction Management: The CM budget increased based on tasks we place
$178,000
on our construction manager. This includes full time site supervision for the
construction of the facility and the support of a project manager and assistants to
properly coordinate the project from the bid process, contractor scope reviews,
construction coordination, submittals, closeout and commissioning. The CM is
also tasked with the additional documentation for the LEED certification process,
which was requested by Collier County.
Balance of additional costs: Remaining costs are associated with the County
$103,527
impact fees, electrical interconnection, electrical testing and contingency. As with
any of the project capital costs, the actual costs of any impact fees will be used in
the final tabulation of the project cost and the calculation of the revenue sharing
threshold. Funding balances remaining in these categories will be reduced from
the pro forma upon completion of the construction.
Original proforrna to the updated proforrna cost difference (if we keep the
$1,850,000
expandable Items in the equipment and construction):
In summary, at the time we executed the gas purchase contract in December 2008, we were still
confident that $7 million was a representative cost of a 5- engine facility, again based on recent
construction experience and no extraordinary site specific costs. Due to the variable nature of
predicting gas flow curves, and the uncertainty of future waste streams and organic waste
alternatives, we believe that the built -in expandability of this plant is a prudent approach for the
amount of additional investment. We are providing this expandability to all of our plants on WM
landfills for the same reasons. Site specific conditions and regulations at Naples have added to the
cost of construction, as has price inflation during this time. Unfortunately, the increase in capital
coincided with a dramatic decrease in energy pricing. These two factors have diminished the financial
returns not only for the County, but also for WM. We have committed to the County to perform our
obligations under the contract and proceed with this project. We stand ready to proceed with notice
from the County. We look forward to moving on to this next phase of development.
Please call me if you have any questions.
WM Renewable Energy, LLC
Paul Pabor
Vice President
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