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Documenting 15 Years of Reductions in U.S. Solar Photovoltaic System Costs

The U.S. Department of Energy's (DOE) Solar Energy Technologies Office (SETO) has played a key role in reducing PV system costs by supporting essential and high-impact research, development, and deployment (RD&D) activities. SETO's efforts go beyond improving technology and hardware innovations to tackle soft costs like installation labor, permitting, and customer acquisition. This holistic focus ensures that solar energy remains a viable, scalable solution for combating climate change and achieving the nation's clean energy goals. This National Renewable Energy Laboratory's (NREL) report highlights over a decade of transformative advancements in PV system technology and its cost reductions from 2010 to 2024, documenting a remarkable trajectory in line with the goals set forth by SETO. By analyzing benchmark configurations across different photovoltaic (PV) sectors over years, this work provides industry stakeholders with a comprehensive understanding of cost trends and their impact on Levelized Cost of Energy (LCOE) targets established under the 2010 SunShot Initiative.

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Investment Tax Credit Requirements for Privately Owned Solar Photovoltaic Systems on Federal Sites

The federal investment tax credit (ITC) is an economically valuable tax incentive offered to taxable business entities that invest in certain energy technologies. The ITC is based on a percentage of the qualifying upfront capital costs of a project and directly reduces a business's tax liability (i.e., the taxes paid). This fact sheet focuses on ITC considerations for privately owned solar photovoltaic (PV) projects on federal land and buildings, although some of the considerations may be applicable to other technologies and non-federal entities.

37 INORGANIC, ORGANIC, PHYSICAL, AND ANALYTICAL CH↗

A Circular Economy for Solar Photovoltaic System Materials: Drivers, Barriers, Enablers, and U.S. Policy Considerations

As PV capacity increases, owners are also decommissioning older system assets. Estimates based on a 30-year lifetime assumption found that cumulative U.S. end-of-life (EoL) PV modules could total one million metric tons (Mt) by 2030 and up to 10 million Mt by 2050 (Weckend, Wade, and Heath 2016). Beyond maintenance replacements, early retirements that are due to efficiency upgrades and extreme weather, as well as PV deployment beyond earlier expectations, would increase these projections. PV system owners must evaluate equipment management options for used modules and system components retired during maintenance activities, refurbishment, repowering and system decommissioning. PV manufacturers must also evaluate material management options from customer returns, defects, and scrap. Management options for early retired and EoL PV system material include reuse, repair for reuse, recycling-based resource recovery, storage, and disposal. Disposal of PV system material increases the burden on landfill capacity, while reuse, repair for reuse, and recycling-based resource recovery (reuse/repair/recovery) options salvage valuable materials and provide secondary market opportunities and ancillary benefits (Weckend, Wade, and Heath 2016; EPA 2019c; SWEEP 2019). PV system owners may also decide store used modules and components as spares, or in the interim before a reuse or EoL management decision is made. Despite potential secondary market opportunities and the potential benefits associated with the repair/reuse/recovery of PV system material, anecdotal evidence suggests that in the United States decommissioned PV modules are stored, landfilled or otherwise disposed of (Salim et al. 2019; CPUC 2019b; DTSC 2019b; NREL 2019a). Some modules are being disposed of in municipal nonhazardous landfills and federally regulated hazardous treatment, storage, and disposal facilities, and others are being stored in warehouses until economically viable repair/reuse/recycling becomes available (CPUC 2019b; DTSC 2019b; NREL 2019a; Libby and Shaw 2018). As awareness of current practices grows, and the demand for critical PV module material increases, U.S. industry stakeholders, regulators, and policymakers are starting to (1) consider solutions to drive and enable environmentally sustainable materials management decisions and behaviors and (2) identify barriers to a circular economy for PV system materials. Circular economy principles attempt to transition from a "take-make-consume-dispose" linear economic system to a circular system that allows for the long life, and the reuse/repair/recovery of products and materials (Ellen MacArthur Foundation 2020). We begin this report by summarizing the drivers, barriers, and enablers to a circular economy for PV system materials in the United States. We then report on our analysis of federal and state regulatory considerations that may impact the repair/reuse/recovery of PV materials, and potential civil and criminal liabilities associated with noncompliance. We then discuss state policies and initiatives in the United States that expressly address PV system decommissioning and repair/reuse/recovery of PV materials. We conclude by providing case studies of U.S. business models for the repair/reuse/recovery of PV system materials. Our results are based on legal and literature-based research and interviews with solar industry stakeholders, regulators, and policymakers.

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U.S. Solar Photovoltaic System and Energy Storage Cost Benchmark: Q1 2021 [Slides]

Our benchmarking method includes bottom-up accounting for all necessary system and projectdevelopment costs incurred when installing residential, commercial, and utility-scale systems, and it models the Q1 2021 costs for such systems, excluding any previous supply agreements or contracts. In general, we attempt to model the typical installation techniques and business operations from an installed-cost perspective, and our benchmarks are national averages. The residential PV-only benchmark and the commercial rooftop PV-only benchmark average costs by inverter type (string inverters, string inverters with direct current [DC] optimizers, and microinverters), weighted by inverter market share. The residential PV-only benchmark is further averaged across small installer and national integrator business models, weighted by market share. All benchmarks include variations—accounting for the differences in size, equipment, and operational use (particularly for storage)—that are currently available in the marketplace. All benchmarks assume nonunionized construction labor; residential and commercial PV systems predominantly use nonunionized labor, and the type of labor required for utility-scale PV systems depends heavily on the development process. All benchmarks assume the use of monofacial monocrystalline silicon PV modules. Benchmarks using cadmium telluride or bifacial modules could result in significantly different results. The data in this annual benchmark report inform the formulation of and track progress toward the U.S. Department of Energy (DOE) Solar Energy Technologies Office’s Government Performance and Reporting Act cost targets.

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Energy and Carbon Payback Times for Modern U.S. Utility Photovoltaic Systems

Manufacturing and operating a PV system consumes non-renewable energy and produces carbon emissions, as does end-of-life handling when PV systems are eventually decommissioned. To fully account for PV's contribution toward decarbonization, these life cycle impacts must be quantified. A 2023 NREL LCA of utility PV systems in the United States Study show energy payback times between 0.5 and 1.2 years and carbon payback times between 0.8 to 20 years, depending on the system install location. Payback times are affected by the amount of local solar radiation, and carbon payback time is significantly affected by the carbon-intensity of the local grid it offsets, as well as the future projected grid mix for the location it is installed. In an average U.S. location, carbon payback times are less than 2 years.

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