http://www.ajc.com/news/business/warnings-ignored-in-range-fuels-debacle/nR2H8/
Posted: 7:30 a.m. Sunday, Sept. 2, 2012
By Dan Chapman
The Atlanta Journal-Constitution
It was the weekend before
Christmas 2008 and Hosein Shapouri, a senior economist with the U.S.
Department of Agriculture in Washington, was ordered to work.
His
bosses needed an analysis done quickly of a proposed wood-to-ethanol
factory in mid-Georgia. The Bush administration was leaving office the
following month, and USDA officials wanted the deal sealed by then,
Shapouri surmised.
In a blistering critique obtained by The
Atlanta Journal-Constitution, Shapouri labeled the proposed Range Fuels
plant “a high risk venture” that should raise “a red flag.” Three weeks
later, top USDA officials approved the guarantee anyway.
Today,
the Georgia plant’s failure is well-documented. The Soperton facility
closed last year without producing a drop of usable ethanol. Taxpayers
lost at least $75 million.
But an in-depth analysis by the AJC
reveals that taxpayer money for Range Fuels was approved despite
repeated warnings and strong opposition by some of the federal officials
who vetted the project.
Other officials nonetheless favored
giving Range access to as much as $162 million, including $6.2 million
from the state of Georgia, according to documents obtained via the
Freedom of Information Act.
Government support for alternative
energy has become a hot-button political issue, pitting the promise of
energy independence against the prudent use of tax dollars. Both the
Bush and Obama administrations strongly supported Range, which was
expected to showcase the feasibility of cellulosic ethanol, as did
politicians of both parties keen to bring jobs to Georgia.
Washington continues to hand out grants and guarantees for the
commercially unproven technology, which attempts to turn wood pulp, not
corn, into fuel for cars and trucks. Last month, USDA approved a $99
million loan guarantee for a North Carolina grass-to-fuel factory.
Critics
say giving taxpayer dollars to deep-pocketed corporations and
billionaire entrepreneurs like Vinod Khosla, the primary financial
backer for Range Fuels, is folly. They liken the Range fiasco to the
failure of Solyndra, the solar energy project that received $535 million
in federal guarantees and produced only political heat for the Obama
administration.
“Solyndra had a lack of due diligence just as
Range Fuels did,” said Sam Shelton, founding director of the Strategic
Energy Institute at Georgia Tech. “It really hurts me to see Energy and
Agriculture department moneys poured down the drain. Government should
be involved in a lot of things, but commercialization of technologies
isn’t one of them.”
The documents obtained by the AJC show that
three USDA officials who vetted the project approved it. Three opposed
it. And three others who made critical comments had their opinions
redacted.
Federal officials say they learned valuable lessons from
the Range Fuels collapse and have established safeguards to prevent
recurrences.
“While the Agency is disappointed that this one
company did not succeed … it is important to remember that USDA has a
long history of successful lending that supports rural homeowners,
business owners, utilities and cooperatives,” the agency said in a
statement e-mailed to the AJC. The USDA says the delinquency rate on
more than 1 million loans is a scant 2.16 percent, although relatively
few involve alternative energy.
Shapouri, now retired, said decision-makers dismissed Range’s many, easily detectable faults.
“Nobody
ever expected them to produce anything,” he said in an interview. “I
told them not to finance it. They didn’t listen to me. They decided to
rush, rush, rush and give them the money.
”
Push for alternatives
2007 was a heady time
for the alternative energy industry, especially cellulosic ethanol
projects that promised to turn Georgia’s abundance of pine trees into
liquid gold while weaning the nation from imported oil and corn-based
ethanol. Khosla, the billionaire co-founder of computer giant Sun
Microsystems, announced in February the construction of the nation’s
first pine-scrap-to-ethanol factory in Soperton, about 155 miles
southeast of Atlanta.
Three weeks later U.S. Energy Secretary
Samuel Bodman unveiled $385 million in grants to six cellulosic ethanol
projects around the country, including $76 million for Range.
A
University of Georgia study estimated the economic impact to struggling
Treutlen County at $106 million a year. Nearly 200 people would find
work at the factory, with suppliers and at nearby businesses.
With
its lender, AgSouth Farm Credit in Statesboro, the Colorado company
applied for an $80 million loan guarantee via the 2008 Farm bill. Such
loan guarantees allow projects to arrange risk-free financing.
Between
2002 and 2006, Range’s technology had undergone 12,000 hours of testing
in Colorado, using a variety of raw materials and operating conditions,
according to the company’s feasibility study obtained by the AJC. But
Range withheld some details, calling them “proprietary.”
Kevin
Hicks, a USDA biofuels expert who helped review the loan guarantee,
wrote in March 2009 that he and some colleagues didn’t have enough
information and questioned plowing millions of dollars into so much
unproven technology.
“Building a new manufacturing facility with
one or two new processes is a risk,” the USDA researchers wrote.
“Building a new facility with 51 percent new processes presents enormous
risk.”
Hicks, who declined comment for this article, and colleagues added
that “numerous other technical challenges exist.” Still, they wrote, the
project has “merit and is more advanced in its planning than many of
the other second generation biofuel projects to this date.” His final
opinion was among those redacted.
‘Red flag’ raised
Even
Range backers voiced concerns. Judy Raskind, a USDA rural development
official, said in documents obtained by the AJC, “the risks and
uncertainties of these still unproven technologies are consequential.”
Nonetheless, Raskind “strongly recommended” that Range receive the
guarantee.
“The opportunities for Range Fuels to be successful are
strong,” she wrote. The “project is considered by the industry to have
the greatest chance for success because of its robust economic viability
and strong financial backing.”
Georgia officials, for their part,
wholeheartedly supported a $6.2 million grant for the venture, mainly
for the purchase of machinery. Treutlen County gave the company nearly
100 acres and tax abatements worth $33 million.
Yet a September
2007 memo from the Georgia Department of Community Affairs, obtained by
the AJC via an open records request, noted that “the research is still
years away from being completed and as of yet is unproven.”
Some
federal scientists suspected Range wouldn’t be able to produce any
ethanol, only methanol, a cheap and common additive used in plastics,
paints, fuel and windshield wiper fluid.
By 2008 Range had scaled
back production estimates from 40 million gallons of ethanol and 9
million gallons of methanol a year to 12 million gallons each.
The shift “should raise a red flag to any additional federal funding
of the project until the discrepancy is resolved,” Shapouri, the USDA
economist, wrote.
Hicks and fellow researchers also predicted
that, by the time the federal money ran out, the “plant will probably
not make ethanol on an economically viable basis.” Later, the USDA
approved the switch-over to majority methanol production.
“That’s
when the first alarm bell should’ve gone off,” said Robert Rapier, a
chemical engineer whose R-Squared blog is widely read across the energy
industry. “They went from promising something that had never been done
before to something that was invented a hundred years ago.”
Range’s
finances also raised red flags. Anthony Ashby, a USDA loan analyst who
opposed the project, said Range lacked “cash flow” and needed more money
before proceeding to later production phases, creating “a high level of
risk for the government.”
Ben Anderson, one of USDA’s top
administrators for rural development programs, said that Range’s
financing was “not consistent” with the agency’s lending rules for
alternative energy projects.
“The financing structure provides the
potential for a larger Federal Government risk and exposure,” Anderson,
who also opposed the project, wrote in January 2009.
After
missing a production deadline and struggling financially, Range finally
raised enough money by February 2010 for USDA to issue the loan
guarantee. But technical difficulties plagued the plant throughout the
year. A major investor pulled out.
The Soperton factory was
mothballed in late 2010. The Energy Department terminated its agreement
with Range thereby “reducing future financial risk for the American
taxpayers.”
The agency said the final steps in producing usable ethanol “could
not be successfully demonstrated with the time and funding available in
this project.”
Lessons learned
USDA now requires more technical and financial information before, and after, approval of a loan guarantee.
“Obviously,
hindsight is perfect,” said Brian Williamson, deputy commissioner of
the Georgia Department of Community Affairs. “If we got the same deal
tomorrow, we would use what we experienced from Range and learn from
it.”
Another alternative energy company — also backed by Khosla —
bought the foreclosed factory for $5.1 million and plans to produce
ethanol via a different method. Williamson said the new company - which
is using the taxpayer-funded machinery, but not getting additional aid -
expects to one day honor the job-creation goals that triggered
Georgia’s grant to Range Fuels.
The breakdown of taxpayer losses
includes $43.6 million from DOE and $32 million from USDA. Georgia’s
loss is $6.2 million - unless the factory’s new owners succeed.
The
Energy and Agriculture departments continue to make loans to
still-unproven cellulosic ethanol and other renewable energy ventures.
Over the last two years, the agencies have dispensed more than $500
million in loan guarantees for projects that promise to turn solid
waste, animal fat and cooking oil into fuel.
And, in August 2011,
the Obama administration announced the investment of $510 million to
produce specialized biofuels to fuel military and civilian planes and
vehicles.
Khosla declined comment for this story.
Earlier this year, though, he told the AJC, “you have to take risks to
do any innovation and have breakthroughs in cost … The whole role of the
Energy Department program was to encourage innovation. People forget
that.”
Rapier, the energy expert and Khosla critic, said only scientifically sound projects are worthy of federal funding.
“But
if you go out there, and make claims and take taxpayer money and don’t
deliver,” he added, “you hurt the ability to raise money for realistic
projects and you sour taxpayers on biofuels.”
RANGE FUELS TIMELINE
February
2007 — California dot-com billionaire Vinod Khosla announces the
nation’s first wood-to-ethanol plant to be built in Soperton, Ga. The
Range Fuels plant also receives $76 million from U.S. Department of
Energy.
November 2007 – Groundbreaking for cellulosic ethanol factory.
December
2008 — Federal researchers and economists review Range’s proposal for
an $80 million loan guarantee from the U.S. Department of Agriculture.
January 2009 — USDA conditionally approves loan guarantee.
February 2010 – USDA fully issues the loan guarantee.
December 2010 – A major investor pulls out. The DOE quits giving money to Range.
January 2011 – Soperton factory ceases operation and Range soon declares bankruptcy.
January 2012 – Foreclosed factory is sold for $5.1 million.
How we got the story:
Dan Chapman has followed the Range Fuels
saga ever since the Colorado company announced in early 2007 the
construction of an alternative energy factory in mid-Georgia. When the
company went bankrupt and closed, the AJC dug deeper into the company’s
finances and its ability to tap $600 million in state and federal grants
and loans for a variety of alternative energy projects across the
country. This year the AJC issued a flurry of open records requests for
federal and state documents to understand why Range was given the OK to
tap $162 million. Chapman reviewed more than 2,000 pages of documents.