New York's nearly $1 billion investment in Tesla's solar-panel factory has largely failed to deliver on its promises. The factory, leased to Tesla for $1 a year, was expected to produce enough solar-panel shingles to cover 1,000 roofs each week by 2020, but is averaging just 21 installations a week. Despite the shortcomings, the state has amended the terms of its subsidy 12 times to accommodate Tesla.