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/ 2008
/ July
/ Wednesday, July 16, 2008
[Federal Register: July 16, 2008 (Volume 73, Number 137)]
[Proposed Rules]
[Page 40770-40791]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr16jy08-24]
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DEPARTMENT OF ENERGY
10 CFR Part 431
[Docket No. EERE-2008-BT-STD-0013]
RIN 1904-AB83
Energy Conservation Program for Certain Industrial Equipment:
Energy Conservation Standards for Commercial Heating, Air-Conditioning,
and Water-Heating Equipment
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Notice of data availability and request for public comment.
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SUMMARY: The Energy Policy and Conservation Act of 1975 (EPCA), as
amended, directs the U.S. Department of Energy (DOE) to establish
energy conservation standards for certain commercial and industrial
equipment, including commercial heating, air-conditioning, and water-
heating products. Of particular relevance here, the statute also
requires that each time the corresponding consensus standard--the
American Society of Heating, Refrigerating and Air-Conditioning
Engineers, Inc. (ASHRAE)/ Illuminating Engineering Society of North
America (IESNA) Standard 90.1--is amended, DOE must assess whether
there is a need to update the uniform national energy conservation
standards for the same equipment covered under EPCA. ASHRAE officially
released an amended version of this industry standard (ASHRAE Standard
90.1-2007) on January 10, 2008, thereby triggering DOE's related
obligations under EPCA. As a first step in meeting these statutory
requirements, today's notice of data availability (NODA) discusses the
results of DOE's analysis of the energy savings potential of amended
energy conservation standards for certain types of commercial equipment
covered by ASHRAE Standard 90.1. Potential energy savings are based
upon either the efficiency levels specified in the amended industry
standard (i.e., ASHRAE Standard 90.1-2007) or more stringent levels
that would result in significant additional conservation of energy and
are technologically feasible and economically justified. DOE is
publishing this NODA to: (1) Announce the results and preliminary
conclusions of DOE's analysis of potential energy savings associated
with amended standards for this equipment, and (2) request public
comment on this analysis, as well as the submission of data and other
relevant information.
DATES: DOE will accept comments, data, and information regarding this
NODA submitted no later than August 15, 2008. See Section IV, ``Public
Participation,'' of this notice for details.
ADDRESSES: Any comments submitted must identify the NODA for ASHRAE
Products and provide the docket number EERE-2008-BT-STD-0013 and/or
Regulatory Information Number (RIN) 1904-AB83. Comments may be
submitted using any of the following methods:
Federal eRulemaking Portal: http://www.regulations.gov.
Follow the instructions for submitting comments.
E-mail: ASHRAE_90.1_rulemaking@ee.doe.gov. Include the
docket number EERE-2008-BT-STD-0013 and/or RIN number 1904-AB83 in the
subject line of the message.
Postal Mail: Ms. Brenda Edwards, U.S. Department of
Energy, Building Technologies Program, Mailstop EE-2J, 1000
Independence Avenue, SW., Washington, DC 20585-0121. Please submit one
signed paper original.
Hand Delivery/Courier: Ms. Brenda Edwards, U.S. Department
of Energy, Building Technologies Program, 950 L'Enfant Plaza, SW.,
Suite 600, Washington, DC 20024. Telephone: (202) 586-2945. Please
submit one signed paper original.
For detailed instructions on submitting comments and additional
information on this document, see section IV (Public Participation).
Docket: For access to background documents or comments received,
visit the U.S. Department of Energy, Resource Room of the Building
Technologies
[[Page 40771]]
Program, 950 L'Enfant Plaza, SW., Suite 600, Washington, DC 20024,
(202) 586-2945, between 9 a.m. and 4 p.m., Monday through Friday,
except Federal holidays. Please call Ms. Brenda Edwards at the above
telephone number for additional information about visiting the Resource
Room.
FOR FURTHER INFORMATION CONTACT: Mr. Mohammed Khan, U.S. Department of
Energy, Office of Energy Efficiency and Renewable Energy, Building
Technologies Program, Mailstop EE-2J, 1000 Independence Avenue, SW.,
Washington, DC 20585-0121. Telephone: (202) 586-7892. E-mail:
Mohammed.Khan@ee.doe.gov.
Ms. Francine Pinto or Mr. Eric Stas, U.S. Department of Energy,
Office of the General Counsel, Mailstop GC-72, Forrestal Building, 1000
Independence Avenue, SW., Washington, DC 20585-0121. Telephone: (202)
586-9507. E-mail: Francine.Pinto@hq.doe.gov or Eric.Stas@hq.doe.gov.
For information on how to submit public comments, contact Ms.
Brenda Edwards, U.S. Department of Energy, Office of Energy Efficiency
and Renewable Energy, Building Technologies Program, Mailstop EE-2J,
1000 Independence Avenue, SW., Washington, DC 20585-0121. Telephone:
(202) 586-2945. E-mail: Brenda.Edwards@ee.doe.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
I. Introduction
A. Authority
B. Purpose of the Notice of Data Availability
C. Background
D. Summary of DOE's Preliminary Assessment of Equipment for
Energy-Savings Analysis
II. Discussion of Equipment for Further Consideration
A. Commercial Warm-Air Furnaces
1. Gas-Fired Commercial Warm-Air Furnaces
2. Oil-Fired Commercial Warm-Air Furnaces
B. Commercial Package Air-Conditioning and Heating Equipment
1. Three-Phase, Through-the-Wall Air-Cooled Air Conditioners and
Heat Pumps
2. Three-Phase, Small-Duct, High-Velocity Air-Cooled Air
Conditioners and Heat Pumps
3. Commercial Package Air-Cooled Air Conditioners with a Cooling
Capacity at or Above 760,000 Btu per Hour
4. Water-Cooled and Evaporatively-Cooled Commercial Package Air
Conditioners and Heat Pumps With a Cooling Capacity at or Above
135,000 Btu per Hour and Less Than 240,000 Btu per Hour
5. Water-Cooled and Evaporatively-Cooled Commercial Package Air
Conditioners and Heat Pumps With a Cooling Capacity at or above
240,000 Btu per Hour
C. Packaged Terminal Air Conditioners and Heat Pumps
D. Commercial Water Heaters
1. Oil-Fired Instantaneous Water Heaters
2. Electric Storage Water Heaters
E. Commercial Packaged Boilers
1. Small, Gas-Fired Hot Water Commercial Packaged Boilers
2. Small, Gas-Fired, Steam, All Except Natural Draft Commercial
Packaged Boilers
3. Small, Gas-Fired, Steam, Natural Draft, Commercial Packaged
Boilers
4. Small, Oil-Fired, Hot Water Commercial Packaged Boilers
5. Small, Oil-Fired, Steam, Commercial Packaged Boilers
6. Large, Gas-Fired, Hot Water Commercial Packaged Boilers
7. Large, Gas-Fired, Steam, All Except Natural Draft Commercial
Packaged Boilers
8. Large, Gas-Fired, Steam, Natural Draft, Commercial Packaged
Boilers
9. Large, Oil-Fired, Hot Water Commercial Packaged Boilers
10. Large, Oil-Fired, Steam Commercial Package Boilers
III. Analysis of Potential Energy Savings
A. Annual Energy Use
B. Shipments
C. Other Analytical Inputs
1. Site-to-Source Conversion
2. Effective Date
3. Analysis Period and Lifetime
D. Estimates of Potential Energy Savings
IV. Public Participation
A. Submission of Comments
B. Issues on Which DOE Seeks Comment
I. Introduction
A. Authority
Title III of EPCA, Pub. L. 94-163, as amended, sets forth a variety
of provisions concerning energy efficiency. Part A-1 \1\ of Title III
created the energy conservation program for ``Certain Industrial
Equipment.'' (42 U.S.C. 6311-6317) In general, this program addresses
the energy efficiency of certain types of commercial and industrial
equipment. Part A-1 specifically includes definitions (42 U.S.C. 6311),
test procedures (42 U.S.C. 6314), labelling provisions (42 U.S.C.
6315), energy conservation standards (42 U.S.C. 6313), and the
authority to require information and reports from manufacturers (42
U.S.C. 6316).
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\1\ This part was originally titled Part C; however, it was
redesignated Part A-1 after Part C of Title III of EPCA was repealed
by Public Law 109-58.
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In relevant part here, EPCA contains mandatory energy conservation
standards for commercial heating, air-conditioning, and water heating
equipment. (42 U.S.C. 6313(a)) Specifically, the statute sets standards
for small, large, and very large commercial package air-conditioning
and heating equipment, packaged terminal air conditioners (PTACs) and
packaged terminal heat pumps (PTHPs), warm-air furnaces, packaged
boilers, storage water heaters, and unfired hot water storage tanks.
Id. In doing so, EPCA established Federal energy conservation standards
that generally correspond to the levels in ASHRAE Standard 90.1, Energy
Standard for Buildings Except Low-Rise Residential Buildings, as in
effect on October 24, 1992 (i.e., ASHRAE Standard 90.1-1989), for each
type of covered equipment listed in 42 U.S.C. 6313(a).
In acknowledgement of technological changes that yield energy
efficiency benefits, Congress further directed DOE through EPCA to
consider amending the existing Federal energy efficiency standard for
each type of equipment listed, each time ASHRAE Standard 90.1 is
amended with respect to such equipment. (42 U.S.C. 6313(a)(6)(A)) For
each type of equipment, EPCA directs that if ASHRAE Standard 90.1 is
amended,\2\ DOE must adopt amended standards at the new efficiency
level in ASHRAE Standard 90.1, unless clear and convincing evidence
supports a determination that adoption of a more stringent level as a
national standard would produce significant additional energy savings
and be technologically feasible and economically justified. (42 U.S.C.
6313(a)(6)(A)(ii)) If DOE decides to adopt as a national standard the
minimum efficiency levels specified in the amended ASHRAE Standard
90.1, DOE must establish such standard not later than 18 months after
publication of the amended industry standard. (42 U.S.C.
6313(a)(6)(A)(ii)(I)) However, if DOE determines that a more stringent
standard is justified under 42 U.S.C. 6313(a)(6)(A)(ii)(II), then DOE
must establish such more stringent standard not later than 30 months
after publication of the amended ASHRAE Standard 90.1. (42 U.S.C.
6313(a)(6)(B))
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\2\ Although EPCA does not explicitly define the term
``amended'' in the context of ASHRAE Standard 90.1, DOE provided its
interpretation of what would constitute an ``amended standard'' in a
final rule published in the Federal Register on March 7, 2007
(hereafter referred to as the March 2007 final rule). 72 FR 10038.
In that rule, DOE stated that the statutory trigger requiring DOE to
adopt uniform national standards based on ASHRAE action is for
ASHRAE to change a standard for any of the equipment listed in EPCA
section 342(a)(6)(A)(i) (42 U.S.C. 6313(a)(6)(A)(i)) by increasing
the energy efficiency level for that equipment type. Id. 10042. In
other words, if the revised ASHRAE Standard 90.1 leaves the standard
level unchanged or lowers the standard, as compared to the level
specified by the national standard adopted pursuant to EPCA, DOE
does not have the authority to conduct a rulemaking to consider a
higher standard for that equipment pursuant to 42 U.S.C.
6313(a)(6)(A).
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[[Page 40772]]
As a preliminary step in this process, EPCA directs DOE to publish
in the Federal Register for public comment an analysis of the energy
savings potential of amended energy efficiency standards, within 180
days after ASHRAE Standard 90.1 is amended with respect to any of the
covered products specified under 42 U.S.C. 6313(a).\3\ (42 U.S.C.
6313(a)(6)(A))
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\3\ This statutory provision was added by section 305 of the
Energy Independence and Security Act of 2007 (EISA 2007), Public Law
110-140, which applies to all of the products for which there are
currently Federal energy conservation standards that are also
covered by ASHRAE Standard 90.1. In addition, this document is also
required under the Consent Decree (filed Nov. 6, 2006) in New York
v. Bodman, No. 05 Civ. 7807 (S.D.N.Y. filed Sept. 7, 2005) and
Natural Resources Defense Council v. Bodman, No. 05 Civ. 7808
(S.D.N.Y. filed Sept. 7, 2005), which requires an initial DOE action
to be taken on any ASHRAE amendments related to products in the
Consent Decree (i.e., packaged terminal air conditioners and
packaged terminal heat pumps, packaged boilers, and instantaneous
water heaters) no later than six months after adoption of the
amendment by ASHRAE. (Consent Decree section III, paragraph 4)
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On January 9, 2008, ASHRAE's Board of Directors gave final approval
to ASHRAE Standard 90.1-2007 \4\ for distribution, which ASHRAE
officially released and made public on January 10, 2008. This action by
ASHRAE triggered DOE's obligations under 42 U.S.C. 6313(a)(6), as
outlined above. This NODA embodies the analysis of the energy savings
potential of amended energy efficiency standards, as required under 42
U.S.C. 6313(a)(6)(A)(i).
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\4\ This industry standard is developed with input from a number
of organizations--most prominently, ASHRAE, the American National
Standards Institute (ANSI), and the Illuminating Engineering Society
of North America (IESNA). Therefore, this document may sometimes be
referred to more formally as ANSI/ASHRAE/IESNA Standard 90.1-2007.
See http://www.ashrae.org for more information.
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B. Purpose of the Notice of Data Availability
As explained above, DOE is publishing today's NODA as a preliminary
step pursuant to EPCA's requirements for DOE to consider amended energy
conservation standards for certain types of commercial equipment
covered by ASHRAE Standard 90.1, whenever ASHRAE amends its standard to
increase the energy efficiency level for that equipment type.
Specifically, this NODA presents for public comment DOE's analysis of
the potential energy savings estimates for amended national energy
conservation standards for these types of commercial equipment based
on: (1) The modified efficiency levels contained within ASHRAE Standard
90.1-2007, and (2) more stringent efficiency levels. DOE describes
these analyses and preliminary conclusions and seeks input from
interested parties, including the submission of data and other relevant
information.
DOE is not required by EPCA to review additional changes in ASHRAE
Standard 90.1-2007 for those equipment types where ASHRAE did not
increase the efficiency level. For those types of equipment for which
efficiency levels clearly did not change, DOE has conducted no further
analysis. However, for other ASHRAE products, DOE found that while
ASHRAE had made changes in ASHRAE Standard 90.1-2007, it was not
immediately apparent whether such revisions to the Standard 90.1 level
would make the equipment more or less efficient, as compared to the
existing Federal energy conservation standards. For example, when
setting a standard using a different efficiency metric (as is the case
for several types of commercial packaged boiler equipment), ASHRAE
Standard 90.1-2007 changes the standard level from that specified in
EPCA, but it is not immediately clear whether a standard level will
make equipment more or less efficient. Therefore, DOE is undertaking
this additional threshold analysis in order to thoroughly evaluate the
amendments in ASHRAE Standard 90.1-2007 in a manner consistent with its
statutory mandate.
Using this approach, DOE has undertaken a comprehensive analysis of
the products covered under both EPCA and ASHRAE Standard 90.1-2007 to
determine which products types require further analysis. Section II,
Discussion of Equipment for Further Consideration, contains a
description of DOE's evaluation of each ASHRAE equipment type for which
energy conservation standards have been set pursuant to EPCA, in order
for DOE to determine whether the amendments in Standard 90.1-2007 have
resulted in increased efficiency levels. For those types of equipment
in ASHRAE Standard 90.1, which have been determined to increase the
efficiency levels, DOE subjected that equipment to further analysis
under Section III, Analysis of Potential Energy Savings.
In summary, the energy savings analysis presented in this NODA is a
preliminary step required under 42 U.S.C. 6313(a)(6)(A)(i). After
review of the public comments on this NODA, if DOE decides that the
amended efficiency levels in ASHRAE Standard 90.1-2007 have the
potential for additional energy savings for types of equipment
currently covered by uniform national standards, DOE will commence
rulemaking to consider amended standards, based upon either the
efficiency levels in ASHRAE Standard 90.1-2007 or more stringent
efficiency levels which would be expected to result in significant
additional conservation of energy and are technologically feasible and
economically justified. In conducting such rulemaking, DOE will address
the general rulemaking requirements for all energy conservation
standards, such as the anti-backsliding provision \5\ (42 U.S.C.
6316(a); 42 U.S.C. 6295(o)(1)), the criteria for making a determination
that a standard is economically justified \6\ (42 U.S.C. 6316(a); 42
U.S.C. 6295(o)(2)(B)(i)-(ii)), and the prohibition on making
unavailable existing products with performance characteristics
generally available in the U.S.\7\ (42 U.S.C. 6316(a); 42 U.S.C.
6295(o)(4)).
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\5\ EPCA contains what is commonly known as an ``anti-
backsliding'' provision (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(1)).
This provision mandates that the Secretary not prescribe any amended
standard that either increases the maximum allowable energy use or
decreases the minimum required energy efficiency of covered
equipment. Natural Resources Defence Council v. Abraham, 355 F. 3d
179 (2d Cir. 2004).
\6\ In deciding whether a more stringent standard is
economically justified, DOE must review comments on the proposed
standard, and then determine whether the benefits of the standard
exceed its burdens by considering the following seven factors to the
greatest extent practicable:
(1) The economic impact on manufacturers and consumers subject
to the standard;
(2) The savings in operating costs throughout the estimated
average life of the product in the type (or class), compared to any
increase in the price, initial charges, or maintenance expenses of
the products likely to result from the standard;
(3) The total projected amount of energy savings likely to
result directly from the standard;
(4) Any lessening of product utility or performance likely to
result from the standard;
(5) The impact of any lessening of competition, as determined in
writing by the Attorney General, likely to result from the standard;
(6) The need for national energy conservation; and
(7) Other factors the Secretary considers relevant.
(42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(2)(B)(i)-(ii))
\7\ The Secretary may not prescribe an amended standard if
interested persons have established by a preponderance of evidence
that the amended standard is ``likely to result in the
unavailability in the United States of any product type (or class)''
with performance characteristics (including reliability), features,
sizes, capacities, and volumes that are substantially the same as
those generally available in the United States at the time of the
Secretary's finding. (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(4))
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C. Background
ASHRAE Standard 90.1-2007
As noted above, on January 9, 2008, ASHRAE's Board of Directors
gave final approval to ASHRAE Standard 90.1-2007, which ASHRAE released
on January 10, 2008. The ASHRAE standard addresses efficiency levels
for many types of commercial heating,
[[Page 40773]]
ventilating, air-conditioning (HVAC), and water-heating equipment
covered by EPCA. ASHRAE Standard 90.1-2007 revised the efficiency
levels for certain commercial equipment, but for the remaining
equipment, ASHRAE left in place the preexisting levels (i.e., the
efficiency levels specified in EPCA or the efficiency levels in ASHRAE
Standard 90.1-1999).
Table I.1 below sets forth the existing Federal energy conservation
standards and the efficiency levels specified in ASHRAE Standard 90.1-
2007 for equipment where ASHRAE modified its requirements. The balance
of this section of the document will assess these equipment types to
determine whether the amendments in ASHRAE Standard 90.1-2007
constitute increased energy efficiency levels, as would necessitate
further analysis of the potential energy savings from amended Federal
energy conservation standards under Section III.
Table I.1.--Federal Energy Conservation Standards and Energy Efficiency Levels in ASHRAE Standard 90.1-2007 for
Specific Types of Commercial Equipment*
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ASHRAE
Federal energy Energy efficiency Standard 90.1- Energy-savings
ASHRAE equipment class conservation levels in ASHRAE 2007 potential analysis
standards Standard 90.1-2007 effective date required
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Commercial Warm-Air Furnaces
----------------------------------------------------------------------------------------------------------------
Gas-Fired Commercial Warm-Air Et = 80%........... Ec = 80%........... 1/10/2008 No (See Section
furnace. Interrupted or II.A.1.).
intermittent
ignition device,
jacket losses not
exceeding 0.75% of
input rating,
power vent, or
flue damper**.
Oil-Fired Commercial Warm-Air Et = 81%........... Et = 81%........... 1/10/2008 No (See Section
furnace. Interrupted or II.A.2.).
intermittent
ignition device,
jacket losses not
exceeding 0.75% of
input rating,
power vent, or
flue damper**.
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Commercial Package Air-Conditioning and Heating Equipment
----------------------------------------------------------------------------------------------------------------
Through-the-Wall Air Conditioners 13.0 SEER*** 12.0 SEER (As of 01/ 1/23/2010 No (See Section
(Effective as of 23/10) II.B.1.).
06/19/08)
Through-the-Wall Air-Cooled Heat 13.0 SEER 12.0 SEER 7.4 HSPF 1/23/2010 No (See Section
Pumps. (Effective as of [dagger] (As of 01/ II.B.1.).
06/19/08) 23/10)
Small Duct, High Velocity, Air- 13.0 SEER 10.0 SEER.......... 1/10/2008 No (See Section
Cooled Air Conditioners. (Effective as of II.B.2.).
06/19/08)
Small Duct, High Velocity, Air- 13.0 SEER 10.0 SEER 6.8 HSPF 1/10/2008 No (See Section
Cooled Heat Pumps. (Effective as of II.B.2.).
06/19/08)
Packaged Air-Cooled Air None............... 9.7 EER 1/1/2010 No (See Section
Conditioners with Cooling [dagger][dagger][d II.B.3.).
Capacity [gteqt]760,000 Btu/h agger] (As of 01/
[dagger][dagger] and with No 01/10)
Heating or with Electric
Resistance Heating.
Packaged Air-Cooled Air None............... 9.5 EER (As of 01/ 1/1/2010 No (See Section
Conditioners with Cooling 01/10) II.B.3.).
Capacity [gteqt]760,000 Btu/h
and with Heating That is Other
Than Electric Resistance Heating.
Water-Cooled and Evaporatively 11.0 EER........... 11.0 EER........... [Dagger]1/10/ No (See Section
Cooled Air Conditioner with 2008 II.B.4.).
Cooling Capacity [gteqt]135,000
and <240,000 Btu/h, and with No
Heating or with Electric
Resistance Heating.
Water-Cooled and Evaporatively 11.0 EER........... 10.8 EER........... [Dagger]1/10/ No (See Section
Cooled Air Conditioner with 2008 II.B.4.).
Cooling Capacity [gteqt]135,000
and <240,000 Btu/h, and with
Heating That is Other Than
Electric Resistance Heating.
Water-Cooled and Evaporatively None............... 11.0 EER........... 1/10/2008 No (See Section
Cooled Air Conditioner with II.B.5.).
Cooling Capacity [gteqt]240,000
Btu/h and with No Heating or
with Electric Resistance Heating.
Water-Cooled and Evaporatively None............... 10.8 EER........... 1/10/2008 No (See Section
Cooled Air Conditioner with II.B.5.)
Cooling Capacity [gteqt]240,000
Btu/h and with Heating That is
Other Than Electric Resistance
Heating.
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[[Page 40774]]
Packaged Terminal Air Conditioners (PTACs) and Heat Pumps (PTHPs) [Dagger][Dagger]
----------------------------------------------------------------------------------------------------------------
Packaged Terminal Air EER = 8.88......... EER = 11.0......... [Dagger]1/10/ No (See Section
Conditioners with Cooling 2008 II.C.).
Capacity <7,000 Btu/h, and
Standard Size
[Dagger][Dagger][Dagger] (New
Construction).
Packaged Terminal Air EER = 8.88......... EER = 9.4.......... [Dagger]1/10/ No (See Section
Conditioners with Cooling 2008 II.C.).
Capacity <7,000 Btu/h, and Non-
Standard Size [diam]
(Replacement).
Packaged Terminal Air EER = 10.0-(0.16 x EER = 12.5-(0.213 x [Dagger]1/10/ No (See Section
Conditioners with Cooling Cap [diam][diam]). Cap [diam][diam]). 2008 II.C.).
Capacity [gteqt]7,000 and
<15,000 Btu/h, and Standard Size
[Dagger][Dagger][Dagger] (New
Construction).
Packaged Terminal Air EER = 10.0-(0.16 x EER = 10.9-(0.213 x [Dagger]1/10/ No (See Section
Conditioners with Cooling Cap [diam][diam]). Cap [diam][diam]). 2008 II.C.).
Capacity [gteqt]7,000 and
<15,000 Btu/h, and Non-Standard
Size[diam] (Replacement).
Packaged Terminal Air EER = 7.6.......... EER = 9.3.......... [Dagger]1/10/ No (See Section
Conditioners with Cooling 2008 II.C.).
Capacity >15,000 Btu/h, and
Standard Size
[Dagger][Dagger][Dagger] (New
Construction).
Packaged Terminal Air EER = 7.6.......... EER = 7.7.......... [Dagger]1/10/ No (See Section
Conditioners with Cooling 2008 II.C.).
Capacity >15,000 Btu/h, and Non-
Standard Size [diam]
(Replacement).
Packaged Terminal Heat Pumps with EER = 8.88......... EER = 10.8......... [Dagger]1/10/ No (See Section
Cooling Capacity <7,000 Btu/h, COP[diam][diam][dia COP = 3.0.......... 2008 II.C.).
and Standard Size m] = 2.7.
[Dagger][Dagger][Dagger] (New
Construction).
Packaged Terminal Heat Pumps with EER = 8.88......... EER = 9.3.......... [Dagger]1/10/ No (See Section
Cooling Capacity <7,000 Btu/h, COP = 2.7.......... COP = 2.7.......... 2008 II.C.).
and Non-Standard Size[diam]
(Replacement).
Packaged Terminal Heat Pumps with EER = 10.0-(0.16 x EER = 12.3-(0.213 x [Dagger]1/10/ No (See Section
Cooling Capacity [gteqt]7,000 Cap [diam][diam]). Cap [diam][diam]). 2008 II.C.).
and <15,000 Btu/h, and Standard COP = 1.3 + (0.16 x COP = 3.2-(0.026 x
Size [Dagger][Dagger][Dagger] EER). Cap [diam][diam])..
(New Construction).
Packaged Terminal Heat Pumps with EER = 10.0-(0.16 x EER = 10.8-(0.213 x [Dagger]1/10/ No (See Section
Cooling Capacity [gteqt]7,000 Cap [diam][diam]). Cap [diam][diam]). 2008 II.C.).
and <15,000 Btu/h, and Non- COP = 1.3 + (0.16 x COP = 2.9-(0.026 x
Standard Size [diam] EER). Cap [diam][diam])..
(Replacement).
Packaged Terminal Heat Pumps with EER = 7.6.......... EER = 9.1.......... [Dagger]1/10/ No (See Section
Cooling Capacity >15,000 Btu/h, COP = 2.5.......... COP = 2.8.......... 2008 II.C.)
and Standard Size
[Dagger][Dagger][Dagger] (New
Construction).
Packaged Terminal Heat Pumps with EER = 7.6.......... EER = 7.6.......... [Dagger]1/10/ No (See Section
Cooling Capacity >15,000 Btu/h, COP = 2.5.......... COP = 2.5.......... 2008 II.C.).
and Non-Standard Size [diam]
(Replacement).
----------------------------------------------------------------------------------------------------------------
Commercial Water Heaters
----------------------------------------------------------------------------------------------------------------
Oil-Fired Instantaneous Water ET = 78%........... ET = 78%........... [Dagger]1/10/ No (See Section
Heaters [gteqt]4,000 Btu/h/gal SL = Q/800 + SL = Q/800 + 2008 II.D.1.).
and [gteqt]10 gal. 110(Vr)1/2, Btu/h. 110(V)1/2, Btu/h.
----------------------------------------------------------------------------------------------------------------
Electric Storage Water Heaters... SL = 0.3 + 27/Vm (%/ SL = 20 + 35(V)1/2, [Dagger]1/10/ No (See Section
h). Btu/h. 2008 II.D.2.).
----------------------------------------------------------------------------------------------------------------
Commercial Packaged Boilers
----------------------------------------------------------------------------------------------------------------
Small Gas-Fired, Hot Water, EC = 80%........... ET = 80%........... 3/2/2010 Yes (See Section
Commercial Packaged Boilers. II.E.1, Section
III, and Table
III.4.).
Small Gas-Fired, Steam, All EC = 80%........... ET = 79%........... 3/2/2010 Yes (See Section
Except Natural Draft Commercial II.E.2, Section
Packaged Boilers. III, and Table
III.5.).
Small Gas-Fired, Steam, Natural EC = 80%........... ET = 77% (Effective 3/2/2010 Yes (See Section
Draft, Commercial Packaged 03/2/2010). .............. II.E.3, Section
Boilers. ET = 79% (Effective 3/2/2020 III, and Table
03/2/2020). III.6.).
[[Page 40775]]
Small Oil-Fired, Hot Water, EC = 83%........... ET = 82%........... 3/2/2010 Yes (See Section
Commercial Packaged Boilers. II.E.4, Section
III, and Table
III.7.).
Small Oil-Fired, Steam, EC = 83%........... ET = 81%........... 3/2/2010 Yes (See Section
Commercial Packaged Boilers. II.E.5, Section
III, and Table
III.8.).
Large Gas-Fired, Hot Water, EC = 80%........... EC = 82%........... 3/2/2010 Yes (See Section
Commercial Packaged Boilers. II.E.6, Section
III, and Table
III.9.).
Large Gas-Fired, Steam, All EC = 80%........... ET = 79%........... 3/2/2010 Yes (See Section
except Natural Draft, Boilers. II.E.7, Section
III, and Table
III.10.).
Large Gas-Fired, Steam, Natural EC = 80%........... ET = 77% (Effective 3/2/2010 Yes (See Section
Draft, Commercial Packaged 3/2/2010). .............. II.E.8, Section
Boilers. ET = 79% (Effective 3/2/2020 III, and Table
3/2/2020). III.11.).
Large Oil-Fired, Hot Water, EC = 83%........... EC = 84%........... 3/2/2010 Yes (See Section
Commercial Packaged Boilers. II.E.9, Section
III, and Table
III.12.).
Large Oil-Fired, Steam, EC = 83%........... ET = 81%........... 3/2/2010 No (See Section
Commercial Packaged Boilers. II.E.10.).
----------------------------------------------------------------------------------------------------------------
* All equipment classes included in this table are equipment where there is a perceived difference between the
current Federal standard levels and the efficiency levels specified by ASHRAE Standard 90.1-2007. Although, in
some cases, the efficiency levels in this table may appear to be equal or lower than the Federal energy
conservation standards, DOE further reviewed the efficiency levels in ASHRAE Standard 90.1-2007 and presented
its findings in section II, Discussion of Equipment for Further Consideration.
** A vent damper is an acceptable alternative to a flue damper for those furnaces that draw combustion air from
conditioned space.
*** Seasonal Energy Efficiency Ratio.
[dagger] Heating Seasonal Performance Factor.
[dagger][dagger] British thermal units per hour (Btu/h).
[dagger][dagger][dagger] Energy Efficiency Ratio.
[Dagger] For the purposes of this NODA, the date shown in this column is the date of publication of ASHRAE
Standard 90.1-2007 (Jan. 10, 2008) for equipment where the ASHRAE Standard 90.1-2007 initially appears to be
different from the Federal energy conservation standards and where no effective date was specified by ASHRAE
Standard 90.1-2007.
[Dagger][Dagger] For equipment rated according to the DOE test procedure, all EER values must be rated at
95[deg]F outdoor dry-bulb temperature for air-cooled products and evaporatively-cooled products, and at
85[deg]F entering water temperature for water-cooled products. All COP values must be rated at 47[deg]F
outdoor dry-bulb temperature for air-cooled products, and at 70[deg]F entering water temperature for water-
source heat pumps.
[Dagger][Dagger][Dagger] Standard size refers to PTAC or PTHP equipment with wall sleeve dimensions [gteqt]16
inches high, or [gteqt]42 inches wide.
[diam] Non-standard size refers to PTAC or PTHP aequipment with wall sleeve dimensions less than 16 inches high
and less than 42 inches wide. ASHRAE/IESNA Standard 90.1-1999 also includes a factory labeling requirement for
non-standard size PTAC and PTHP equipment as follows: ``MANUFACTURED FOR REPLACEMENT APPLICATIONS ONLY; NOT TO
BE INSTALLED IN NEW CONSTRUCTION PROJECTS.''
[diam][diam] Cap means cooling capacity in kBtu/h at 95[deg]F outdoor dry-bulb temperature.
[diam][diam][diam] Coefficient of Performance.
D. Summary of DOE's Preliminary Assessment of Equipment for Energy-
Savings Analysis
DOE has reached a preliminary conclusion for each of the classes of
commercial equipment for which ASHRAE Standard 90.1-2007 modified the
pre-existing minimum efficiency standard. For each class of commercial
equipment for which ASHRAE modified the pre-existing standard, DOE
assessed whether the change made would increase energy efficiency and,
therefore, require an energy-savings potential analysis. This
assessment is summarized in Section II of this NODA. Table I.1
indicates whether DOE concluded, based on this assessment, that an
energy-savings potential analysis is required. For those products for
which such an analysis is required, DOE has indicated the results of
its preliminary analysis in section III.
Based upon DOE's analysis in section II, DOE has determined that
ASHRAE increased the efficiency level for the following equipment
classes. Accordingly, DOE performed an energy-savings analysis for
these equipment types, the results of which are presented in section
III. These equipment classes include:
Small, Gas-Fired Hot Water Commercial Packaged Boilers;
Small, Gas-Fired, Steam, All Except Natural Draft
Commercial Packaged Boilers;
Small, Gas-Fired, Steam, Natural Draft, Commercial
Packaged Boilers;
Small, Oil-Fired, Hot Water Commercial Packaged Boilers;
Small, Oil-Fired, Steam, Commercial Packaged Boilers;
Large, Gas-Fired, Hot Water Commercial Packaged Boilers;
Large, Gas-Fired, Steam, All Except Natural Draft
Commercial Packaged Boilers;
Large, Gas-Fired, Steam, Natural Draft, Commercial
Packaged Boilers;
Large, Oil-Fired, Hot Water Commercial Packaged Boilers.
[[Page 40776]]
II. Discussion of Equipment for Further Consideration
As discussed above, before beginning an analysis of the potential
energy savings that would result from adopting the efficiency levels
specified by ASHRAE Standard 90.1-2007 or more stringent efficiency
levels, DOE first determined whether or not the ASHRAE Standard 90.1-
2007 efficiency levels actually represented an increase in efficiency
above the current Federal standard levels. This section contains a
discussion of each equipment class where the ASHRAE Standard 90.1-2007
efficiency level differs from the current Federal standard level, along
with a preliminary conclusion as to the action DOE would take with
respect to that equipment.
A. Commercial Warm-Air Furnaces
Under EPCA, a ``warm air furnace'' is defined as ``a self-contained
oil- or gas-fired furnace designed to supply heated air through ducts
to spaces that require it and includes combination warm air furnace/
electric air-conditioning units but does not include unit heaters and
duct furnaces.'' (42 U.S.C. 6311(11)(A)) In its regulations, DOE
defines a ``commercial warm air furnace'' as a ``warm air furnace that
is industrial equipment, and that has a capacity (rated maximum input)
of 225,000 Btu per hour or more.'' 10 CFR 431.72. The amendments in
ASHRAE Standard 90.1-2007 trigger DOE to evaluate two types of
furnaces: (1) Gas-fired commercial warm air furnaces, and (2) oil-fired
commercial warm air furnaces.
1. Gas-Fired Commercial Warm-Air Furnaces
Gas-fired commercial warm-air furnaces are fueled by either natural
gas or propane. The Federal minimum energy conservation standard for
commercial gas-fired warm-air furnaces corresponds to the efficiency
level in ASHRAE Standard 90.1-1999, which specifies for equipment with
a capacity of 225,000 Btu/h or more, the thermal efficiency at the
maximum rated capacity (rated maximum input) must be no less than 80
percent. 10 CFR Part 431.77(a). The Federal minimum energy conservation
standard for gas-fired commercial warm-air furnaces applies to
equipment manufactured on or after January 1, 1994. 10 CFR 431.77.
ASHRAE changed the efficiency levels for gas-fired commercial warm-
air furnaces by changing the metric from a thermal efficiency
descriptor to a combustion efficiency descriptor and adding three
design requirements. Specifically, the efficiency levels in ASHRAE
Standard 90.1-2007 specify a minimum combustion efficiency of 80
percent. ASHRAE Standard 90.1-2007 also specifies the following design
requirements for commercial gas-fired warm-air furnaces: The gas-fired
commercial warm-air furnace must use an interrupted or intermittent
ignition device, have jacket losses no greater than 0.75 percent of the
input rating, and use a power vent or flue damper.
In order to evaluate the change in efficiency level (if any)
effectuated by the amended ASHRAE standard, DOE reviewed the change of
metric for gas-fired commercial warm-air furnaces. In general, the
energy efficiency of a product is a function of the relationship
between the product's output of services and its energy input. A
furnace's output is largely the energy content of its output (i.e.,
warm air delivered to the building). A furnace's energy losses consist
of energy that escapes through its flue (commonly referred to as ``flue
losses''), and of energy that escapes into the area surrounding the
furnace (commonly referred to as ``jacket losses'').
In a final rule published in the Federal Register on October 21,
2004 (the October 2004 final rule), DOE incorporated definitions for
commercial warm-air furnaces and its efficiency descriptor, energy
efficiency test procedures, and energy conservation standards. 69 FR
61916. In the October 2004 final rule, DOE pointed out that EPCA
specifies the energy conservation standard levels for commercial warm-
air furnaces in terms of thermal efficiency (42 U.S.C. 6313(a)(4)(A)-
(B); 10 CFR 431.77), but provides no definition for this term. DOE
proposed to interpret this term in the context of commercial warm-air
furnaces to mean combustion efficiency (i.e., 100 percent minus percent
flue loss). Id. at 61919. Given use of the thermal efficiency term in
EPCA and its continued use as the efficiency descriptor for furnaces in
ANSI Standard Z21.47, Gas-Fired Central Furnaces (DOE's test procedure
for this equipment), DOE stated that it would be confusing to use the
term ``combustion efficiency'' in the final rule. Accordingly, DOE
defined the term ``thermal efficiency'' to mean 100 percent minus the
percent flue loss in the October 2004 final rule for gas-fired
commercial warm-air furnaces. Id.
Upon reviewing the efficiency levels and methodology specified in
ASHRAE Standard 90.1-2007, DOE believes that despite changing the name
of the energy efficiency descriptor from ``thermal efficiency'' to
``combustion efficiency,'' ASHRAE did not intend to change the
efficiency metric for gas-fired commercial warm air furnaces. When
ASHRAE specified a newer version of the test procedure manufacturers
use for gas-fired commercial air furnaces (i.e., ANSI Standard Z21.47-
2001), the calculation of thermal efficiency did not change from the
previous version. So despite that change in the name of the energy
efficiency descriptor, DOE believes that in the present context, the
terms are synonymous, because the calculation of that value has not
changed (i.e. , 100 percent minus the percent flue loss). DOE sees no
plausible reason why ASHRAE would have chosen to incorporate a
different metric than that used in the ANSI Standard Z21.47-2001 test
procedure. Consequently, because the amendments for this type of
product set out in ASHRAE Standard 90.1-2007 do not appear to have
changed the efficiency level, DOE tentatively plans to leave the
existing Federal energy conservation standards in place for gas-fired
commercial warm air furnaces, which specify a thermal efficiency of 80
percent using the definition of ``thermal efficiency'' established by
DOE in the October 2004 final rule and presented in subpart D to 10 CFR
part 431.
2. Oil-Fired Commercial Warm-Air Furnaces
The Federal minimum energy conservation standard for commercial
oil-fired warm-air furnaces corresponds to the efficiency level in
ASHRAE Standard 90.1-1999, which specifies that for equipment with a
capacity of 225,000 Btu/h or more, the thermal efficiency at the
maximum rated capacity (rated maximum input) must be no less than 81
percent. 10 CFR 431.77(b). The Federal minimum energy conservation
standard for oil-fired commercial warm-air furnaces applies to
equipment manufactured on or after January 1, 1994. 10 CFR 431.77.
The efficiency level in ASHRAE Standard 90.1-2007 specifies a
minimum thermal efficiency of 81 percent. ASHRAE did not change the
efficiency levels for oil-fired commercial warm-air furnaces, but
ASHRAE added three design requirements. ASHRAE Standard 90.1-2007 now
specifies that commercial, oil-fired, warm-air furnaces must use an
interrupted or intermittent ignition device, have jacket losses no
greater than 0.75 percent of the input rating, and use a power vent or
flue damper.
DOE published a final rule in the Federal Register on March 7,
2007, which states that the statutory trigger that requires DOE to
adopt uniform national standards based on ASHRAE action is for ASHRAE
to change a
[[Page 40777]]
standard by increasing the energy efficiency of the equipment listed in
EPCA section 342(a)(6)(A)(i) (42 U.S.C. 6313 (a)(6)(A)(i)). 72 FR
10038, 10042. If ASHRAE merely considers raising the standards for any
of the equipment listed in this section but ultimately decides to leave
the standard levels unchanged or lowers the standard, DOE does not have
the authority to conduct a rulemaking for higher standards. Id. If
ASHRAE imposes more stringent standards for a specific subset of the
listed equipment, DOE only has the authority to adopt the ASHRAE levels
for that subset of equipment and its effective dates specified in the
new ASHRAE standard. Id.
In practice, 42 U.S.C. 6313 generally allows ASHRAE Standard 90.1
to set minimum energy efficiency levels for equipment as a model
building code and directs DOE to use these efficiency levels as the
basis for maintaining consistent, uniform national energy conservation
standards for the same equipment, provided all other applicable
statutory requirements are met. If ASHRAE has not changed an efficiency
level for a class of equipment subject to 42 U.S.C. 6313, DOE does not
have authority to consider amending the uniform national standard at
the time of publication of the amended ASHRAE Standard 90.1. Therefore,
although ASHRAE added design requirements in ASHRAE Standard 90.1-2007,
it did not change the efficiency levels for oil-fired commercial warm-
air furnaces. Therefore, DOE does not have authority to amend the
uniform national standard for this equipment. As stated in the March
2007 final rule, DOE believes that the statutory language specifically
links ASHRAE's action in changing standards for specific equipment as a
prerequisite to DOE's action for that same equipment. 72 FR 10038,
10042 (March 7, 2007).
B. Commercial Package Air-Conditioning and Heating Equipment
EPCA, as amended, includes the following definition of ``commercial
package air-conditioning and heating equipment'': ``air-cooled, water-
cooled, evaporatively-cooled, or water source (not including ground
water source) electrically operated, unitary central air conditioners
and central air-conditioning heat pumps for commercial application.''
(42 U.S.C. 6311(8)(A); 10 CFR 431.92) EPCA also defines ``small,''
``large,'' and ``very large commercial package air-conditioning and
heating equipment'' based on the equipment's rated cooling capacity.
(42 U.S.C. 6311(8)(B)-(D); 10 CFR 431.92) ``Small commercial package
air-conditioning and heating equipment'' means ``commercial package
air-conditioning and heating equipment that is rated below 135,000 Btu
per hour (cooling capacity).'' (42 U.S.C. 6311(8)(B); 10 CFR 431.92)
``Large commercial package air-conditioning and heating equipment''
means ``commercial package air-conditioning and heating equipment that
is rated: (i) at or above 135,000 Btu per hour; and (ii) below 240,000
Btu per hour (cooling capacity). (42 U.S.C. 6311(8)(C); 10 CFR 431.92)
``Very large commercial package air-conditioning and heating
equipment'' means ``commercial package air-conditioning and heating
equipment that is rated: (i) at or above 240,000 Btu per hour; and (ii)
below 760,000 Btu per hour (cooling capacity). (42 U.S.C. 6311(8)(D);
10 CFR 431.92)
1. Three-Phase, Through-the-Wall Air-Cooled Air Conditioners and Heat
Pumps
ASHRAE Standard 90.1-2007 identifies efficiency levels for three-
phase through-the-wall air-cooled air conditioners and heat pumps,
single package and split systems, with a cooling capacity of no greater
than 30,000 Btu/h. The efficiency levels specified by ASHRAE Standard
90.1-2007 include a seasonal energy efficiency ratio of 12.0 for
cooling mode and a heating seasonal performance factor of 7.4 for
equipment manufactured on or after January 23, 2010.\8\ ASHRAE aligned
these efficiency levels and its corresponding effective dates with the
efficiency levels established in EPCA for single-phase residential
versions of the same products.
---------------------------------------------------------------------------
\8\ ASHRAE provides the same requirement for single-phase and
three-phase through-the-wall air-cooled air conditioners and heat
pumps used in covered commercial buildings, but points out that
single-phase products are regulated as residential products under 10
CFR 430.32(c)(2).
---------------------------------------------------------------------------
Neither EPCA nor DOE has established a specific definition for
commercial ``through-the-wall air-cooled air conditioners and heat
pumps.'' The residential through-the-wall air-cooled air conditioners
and heat pumps covered under EPCA, as amended by the National Appliance
Energy Conservation Act of 1987 (NAECA) (Pub. L. 100-12) and defined in
10 CFR 430.2, are by definition single-phase products, whereas the
commercial through-the-wall air-cooled air conditioners and heat pumps
mentioned in ASHRAE Standard 90.1-2007 are three-phase products. In its
regulations, DOE defines a residential ``through-the-wall air
conditioner and heat pump'' as ``a central air conditioner or heat pump
that is designed to be installed totally or partially within a fixed-
size opening in an exterior wall. * * *'' 10 CFR 430.2. Furthermore,
this equipment: (1) Must be manufactured before January 23, 2010; (2)
must not be weatherized; (3) must be clearly and permanently marked for
installation only through an exterior wall; (4) have a rated cooling
capacity no greater than 30,000 Btu/h; (5) exchange all of its outdoor
air across a single surface of the equipment cabinet; and (6) have a
combined outdoor air exchange area of less than 800 square inches
(split systems) or less than 1,210 square inches (single packaged
systems) as measured on the surface described in paragraph (5) of this
definition. Id.
In terms of equipment construction, commercial and residential
through-the-wall air-cooled air conditioners and heat pumps are
believed to utilize the same components in the same configurations to
provide space cooling and heating. DOE believes commercial versions of
through-the-wall air-cooled air conditioners and heat pumps are
essentially the same as residential versions, except that they are
powered using three-phase electric power.
EPCA does not separate three-phase, through-the-wall air-cooled air
conditioners and heat pumps from other types of small commercial
package air-conditioning and heating equipment in its definitions.
Therefore, EPCA's definition of ``small commercial package air-
conditioning and heating equipment'' would include three-phase through-
the-wall air-cooled air conditioners and heat pumps. Although EPCA does
not use the term ``three-phase through-the-wall air-cooled air
conditioners and heat pumps,'' the three-phase versions of this
equipment, regardless of cooling capacity, fall within the definition
of ``small commercial package air-conditioning and heating equipment.''
(42 U.S.C. 6311(8)(A)-(B)) There is no language in EPCA to indicate
that three-phase through-the-wall air-cooled air conditioners and heat
pumps are a separate type of covered equipment.
The Federal energy conservation standards for three-phase,
commercial package air conditioners and heat pumps less than 65,000
Btu/h were established by EISA 2007 for such products manufactured on
or after June 19, 2008. Specifically, section 314(b)(4)(C) of EISA 2007
amended section 342(a) of EPCA (42 U.S.C. 6313(a)) by adding new
provisions for three-phase commercial package air conditioners with a
cooling capacity of less than 65,000 Btu/h. (42 U.S.C.
[[Page 40778]]
6313(a)(7)(D)) The provision in EISA 2007 mandates minimum seasonal
energy efficiency ratios for cooling mode and minimum heating seasonal
performance factors for heating mode of air-cooled, three-phase
electric central air conditioners and central air-conditioning heat
pumps with a cooling capacity of less than 65,000 Btu/h.\9\ Three-
phase, through-the-wall, air-cooled air conditioners and heat pumps are
a smaller subset of three-phase commercial package air conditioners
with a cooling capacity of less than 65,000 Btu/h and were not
explicitly excluded from the standards in section 314(b)(4)(C) of EISA
2007. Because EISA 2007 set such standards, DOE must follow them, and
they are more stringent than the levels contained in ASHRAE Standard
90.1-2007 for those products. Accordingly, DOE affirms that the EISA
2007 efficiency levels for small commercial package air-conditioning
and heating equipment less than 65,000 Btu/h apply to three-phase
through-the-wall air-cooled air conditioners and heat pumps with a
cooling capacity no greater than 30,000 Btu/h. (42 U.S.C.
6313(a)(7)(D)) Therefore, no further analysis is required for three-
phase, through-the-wall, air-cooled air conditioners and heat pumps.
---------------------------------------------------------------------------
\9\ Section 314(b)(4)(C) of EISA specifies for ``equipment
manufactured on or after the later of January 1, 2008, or the date
that is 180 days after the date of enactment of the Energy
Independence and Security Act of 2007--
(i) The minimum seasonal energy efficiency ratio of air-cooled
3-phase electric central air conditioners and central air-
conditioning heat pumps less than 65,000 Btu per hour (cooling
capacity), split systems, shall be 13.0;
(ii) the minimum seasonal energy efficiency ratio of air-cooled
3-phase electric central air conditioners and central air-
conditioning heat pumps less than 65,000 Btu per hour (cooling
capacity), single package, shall be 13.0;
(iii) the minimum heating seasonal performance factor of air-
cooled 3-phase electric central air-conditioning heat pumps less
than 65,000 Btu per hour (cooling capacity), split systems, shall be
7.7; and
(iv) the minimum heating seasonal performance factor of air-
cooled 3-phase electric central air-conditioning heat pumps less
than 65,000 Btu per hour (cooling capacity), single package, shall
be 7.7.'' (42 U.S.C. 6313(a)(7)(D))
---------------------------------------------------------------------------
2. Three-Phase, Small-Duct, High-Velocity Air-Cooled Air Conditioners
and Heat Pumps
ASHRAE Standard 90.1-2007 identifies efficiency levels for three-
phase small-duct, high-velocity (SDHV) air-cooled air conditioners and
heat pumps, both single-package and split systems, with a cooling
capacity less than 65,000 Btu/h.\10\ The efficiency levels specified by
ASHRAE Standard 90.1-2007 include a seasonal energy efficiency ratio of
10.0 for cooling mode and a heating seasonal performance factor of 6.8
for equipment. ASHRAE aligned these efficiency levels and the
corresponding effective dates with the efficiency levels established in
EPCA for single-phase residential versions of the same products.
---------------------------------------------------------------------------
\10\ ASHRAE Standard 90.1-2007 includes efficiency levels for
three-phase and single-phase SDHV air-cooled air conditioners and
heat pumps used in commercial buildings. ASHRAE Standard 90.1-2007
also includes a footnote to these provisions, which indicates that
the single-phase versions of this equipment are regulated as
residential products under 10 CFR 430.32(c)(2).
---------------------------------------------------------------------------
Just as with three-phase, through-the-wall air-cooled air
conditioners and heat pumps, neither EPCA nor DOE has established a
specific definition for commercial ``three-phase SDHV air conditioners
and heat pumps.'' In its regulations, DOE defines a residential small-
duct, high-velocity (SDHV) air-cooled air conditioner or heat pump as
``a heating and cooling product that contains a blower and indoor coil
combination that: (1) Is designed for, and produces, at least 1.2
inches of external static pressure when operated at the certified air
volume rate of 220-350 CFM [cubic feet per minute] per rated ton of
cooling; and (2) When applied in the field, uses high velocity room
outlets generally greater than 1,000 fpm [feet per minute] which have
less than 6.0 square inches of free area.'' 10 CFR 430.2.
In terms of equipment construction, commercial and residential SDHV
air conditioners and heat pumps are believed to utilize the same
components in the same configurations to provide space cooling and
heating. DOE believes commercial versions of SDHV systems are
essentially the same as residential versions, except that they are
powered using three-phase electric power.
EPCA does not separate three-phase, SDHV air conditioners and heat
pumps from other types of small commercial package air-conditioning and
heating equipment in its definitions. Therefore, EPCA's definition of
``small commercial package air-conditioning and heating equipment''
would include three-phase SDHV air conditioners and heat pumps.
Although EPCA does not use the term ``three-phase SDHV air conditioners
and heat pumps,'' the three-phase versions of this equipment,
regardless of cooling capacity, fall within the definition of ``small
commercial package air-conditioning and heating equipment.'' (42 U.S.C.
6311(8)(A)-(B)) There is no language in EPCA to indicate that three-
phase SDHV air conditioners and heat pumps are a separate type of
covered equipment.
The Federal energy conservation standards for three-phase,
commercial package air conditioners and heat pumps less than 65,000
Btu/h were established by EISA 2007 for products manufactured on or
after June 19, 2008. Specifically, section 314(b)(4)(C) of EISA 2007
amended section 342(a) of EPCA (42 U.S.C. 6313(a)) by adding new
provisions for three-phase commercial package air conditioners with a
cooling capacity of less than 65,000 Btu/h. (42 U.S.C. 6313(a)(7)(D))
As mentioned previously, the provision in EISA 2007 mandates minimum
seasonal energy efficiency ratios for cooling mode and minimum heating
seasonal performance factors for heating mode of air-cooled, three-
phase electric central air conditioners and central air-conditioning
heat pumps with a cooling capacity of less than 65,000 Btu/h. (42
U.S.C. 6313(a)(7)(D)) Three-phase, SDHV air conditioners and heat pumps
are a smaller subset of three-phase commercial package air conditioners
with a cooling capacity of less than 65,000 Btu/h and were not
explicitly excluded from the standards in section 314(b)(4)(C) of EISA
2007. Because EISA 2007 set such standards, DOE must follow them, and
they are more stringent than the levels contained in ASHRAE Standard
90.1-2007 for those products.
Additionally, the residential versions of SDHV are subject to an
exception issued by the Office of Heating and Appeals (OHA). On October
14, 2004, OHA granted an exception to SpacePak and Unico, Inc.,
authorizing them to manufacture SDHV systems (as defined in 10 CFR
430.2) with a SEER of no less than 11.0 and an HSPF of 6.8. The
exception relief will remain in effect until the agency modifies the
general energy efficiency standard for central air conditioners and
establishes a different standard for SDHV systems that complies with
EPCA.\11\ However, this exception only applies to the residential,
single-phase SDHV systems and would, therefore, exclude three-phase
SDHV equipment.
---------------------------------------------------------------------------
\11\ DOE's Office of Hearing and Appeals. Decision and Order:
Applications for Exception. October 14, 2004. http://
www.oha.doe.gov/cases/ee/tee0010.pdf.
---------------------------------------------------------------------------
Thus, manufacturers of three-phase SDHV equipment must follow the
energy conservation standards in EISA 2007. Accordingly, DOE affirms
that the EISA 2007 efficiency levels for three-phase small commercial
package air-conditioning and heating equipment less than 65,000 Btu/h
apply to three-phase SDHV air-cooled air conditioners and heat pumps
with a cooling capacity
[[Page 40779]]
less than 65,000 Btu/h. Therefore, no further analysis is required for
the three-phase SDHV air-cooled air conditioners and heat pumps.
3. Commercial Package Air-Cooled Air Conditioners With a Cooling
Capacity at or Above 760,000 Btu per Hour
EPCA specifies energy conservation standards for small (cooling
capacities at or above 65,000 and less than 135,000 Btu/h), large
(cooling capacities at or above 135,000 and less than 240,000 Btu/h),
and very large (cooling capacities at or above 240,000 and less than
760,000 Btu/h) commercial package air-cooled air conditioners. (42
U.S.C. 6313(a)(1)-(2), (7)-(9); 10 CFR Part 431.97) However, there are
no Federal energy conservation standards for commercial package air-
cooled air conditioners with a cooling capacity at or above 760,000
Btu/h. In contrast, ASHRAE Standard 90.1-2007 sets the minimum energy
efficiency levels for this equipment at 9.7 EER for equipment with
electric resistance heating, and 9.5 EER for equipment with any other
type of heating or without heating. The efficiency level in ASHRAE
Standard 90.1-2007 applies to equipment manufactured on or after
January 1, 2010.
Thus, units with capacities at or above 760,000 Btu/h fall outside
the definitions of the small, large, and very large commercial package
air-cooled air conditioner equipment classes established in EPCA. (42
U.S.C. 6311(8)(A)-(D); 10 CFR Part 431.92) Therefore, DOE has
tentatively concluded that it does not have the authority to review the
efficiency level for that equipment.
4. Water-Cooled and Evaporatively-Cooled Commercial Package Air
Conditioners and Heat Pumps With a Cooling Capacity at or Above 135,000
Btu per Hour and Less Than 240,000 Btu per Hour
The current Federal energy conservation standard for water-cooled
and evaporatively-cooled commercial package air conditioners and heat
pumps with a cooling capacity at or above 135,000 Btu/h and less than
240,000 Btu/h requires an EER no less than 11.0 for equipment
manufactured on or after October 29, 2004. 10 CFR 431.97, Table 1.
ASHRAE Standard 90.1-2007 includes the same efficiency level for
water-cooled and evaporatively-cooled commercial package air
conditioners and heat pumps with a cooling capacity at or above 135,000
Btu/h and less than 240,000 Btu/h that use electric resistance heating
(i.e., an EER no less than 11.0). However, ASHRAE Standard 90.1-2007
specifies a different efficiency level for water-cooled and
evaporatively-cooled commercial package air conditioners and heat pumps
with a cooling capacity at or above 135,000 Btu/h and less than 240,000
Btu/h that use any type of heating other than electric resistance
(i.e., an EER no less than 10.8).
DOE reviewed the January 2001 final rule and ASHRAE Standard 90.1-
1999 to determine the efficiency levels applicable to water-cooled and
evaporatively-cooled commercial package air conditioners and heat pumps
with a cooling capacity at or above 135,000 Btu/h and less than 240,000
Btu/h. The January 2001 final rule did not establish different
efficiency levels for different types of supplemental heating systems
associated with this equipment. All large water-cooled and
evaporatively-cooled commercial package air conditioners and heat pumps
were subject to the same minimum efficiency level of 11.0 EER
regardless of heating type. ASHRAE Standard 90.l-1999 did establish
different efficiency levels applicable to water-cooled and
evaporatively-cooled commercial package air conditioners and heat pumps
with a cooling capacity at or above 135,000 Btu/h and less than 240,000
Btu/h for different types of supplemental heating systems.
DOE has tentatively concluded that the ASHRAE Standard 90.1-2007
efficiency levels for water-cooled and evaporatively cooled commercial
package air conditioners and heat pumps with a cooling capacity at or
above 135,000 Btu/h and less than 240,000 Btu/h that utilize any type
of heating other than electric resistance would have the effect of
lowering the minimum efficiency levels (i.e., EER) required by EPCA and
allow increased energy consumption. Because of backsliding concerns,
DOE has tentatively decided not to adopt the ASHRAE Standard 90.1-2007
efficiency levels for water-cooled and evaporatively cooled commercial
package air conditioners and heat pumps with a cooling capacity at or
above 135,000 Btu/h and less than 240,000 Btu/h that utilize any type
of heating other than electric resistance. Therefore, further analysis
is not required.
5. Water-Cooled and Evaporatively-Cooled Commercial Package Air
Conditioners and Heat Pumps With a Cooling Capacity at or Above 240,000
Btu per Hour
EPCA defines ``commercial package air-conditioning and heating
equipment'' as ``air-cooled, water-cooled, evaporatively-cooled, or
water source (not including ground water source) electrically operated,
unitary central air conditioners and central air-conditioning heat
pumps for commercial application.'' (42 U.S.C. 6311(8)(A); 10 CFR
431.92) EPCA goes on to define ``very large commercial package air-
conditioning and heating equipment'' as commercial package air-
conditioning and heating equipment that is rated at or above 240,000
Btu per hour and below 760,000 Btu per hour (cooling capacity). (42
U.S.C. 6311(8)(D); 10 CFR 431.92) Although water-cooled and
evaporatively-cooled commercial package air conditioners and heat pumps
with a cooling capacity at or above 240,000 Btu/h and less than 760,000
Btu/h fall within the definition of very large commercial package air-
conditioning and heating equipment, EPCA does not specify Federal
energy conservation standards for this equipment class. (EPCA set
standards for air-cooled systems only, under 42 U.S.C. 6313(a)(7)-(9).)
ASHRAE added this new equipment class to ASHRAE Standard 90.1-2007,
setting minimum efficiency levels at 11.0 EER for equipment with
electric resistance heating, and at 10.8 EER for equipment with all
other types of heating or without heating. Under EPCA, DOE must either
adopt the efficiency level specified in ASHRAE Standard 90.1-2007 for
this new class of equipment, or consider a more stringent level that
would result in significant additional energy savings and is
technologically feasible and economically justified. (42 U.S.C.
6313(a)(6))
DOE reviewed the market for water-cooled and evaporatively-cooled
commercial package air conditioners and heat pumps and found that
manufacturers offer few models. Furthermore, DOE surveyed the Air-
conditioning, Heating, and Refrigerating Institute (AHRI) Directory of
Certified Product Performance and did not identify any equipment on the
market with a cooling capacity at or above 240,000 Btu/h. Because there
is currently no equipment in this class being manufactured, there are
no energy savings associated with this class at this time; therefore,
it is not possible to assess the potential for additional energy
savings beyond the levels
[[Page 40780]]
anticipated in ASHRAE Standard 90.1-2007. Thus, DOE did not perform a
potential energy-savings analysis on this equipment type. DOE seeks
comments from interested parties on the market and energy savings
potential for this equipment type. This is Issue 1 under ``Issues on
Which DOE Seeks Comment'' in section IV.B of this NODA.
C. Packaged Terminal Air Conditioners and Heat Pumps
EPCA defines a ``packaged terminal air conditioner'' as ``a wall
sleeve and a separate unencased combination of heating and cooling
assemblies specified by the builder and intended for mounting through
the wall. It includes a prime source of refrigeration, separable
outdoor louvers, forced ventilation, and heating availability by
builder's choice of hot water, steam, or electricity.'' (42 U.S.C.
6311(10)(A)) EPCA defines a ``packaged terminal heat pump'' as ``a
packaged terminal air conditioner that utilizes reverse cycle
refrigeration as its prime heat source and should have supplementary
heat source available to builders with the choice of hot water, steam,
or electric resistant heat.'' (42 U.S.C. 6311(10)(B)) DOE codified
these definitions in 10 CFR 431.92 in a final rule published in the
Federal Register on October 21, 2004. 69 FR 61962, 61970.
The current energy conservation standards in EPCA for PTACs and
PTHPs apply to all equipment manufactured on or after January 1, 1994
(42 U.S.C. 6313(a)(3)), and correspond to the minimum efficiency levels
in ASHRAE/IESNA Standard 90.1-1989. ASHRAE specified more stringent
efficiency levels for PTACs and PTHPs in ASHRAE Standard 90.1-2007,
corresponding to the efficiency levels in ASHRAE Standard 90.1-1999.
The efficiency levels vary by equipment type (i.e., air conditioner or
heat pump), wall sleeve dimensions (i.e., new construction and
replacement), and cooling capacity.
In response to the efficiency levels in ASHRAE Standard 90.1-1999,
the March 2007 final rule states that DOE has decided to explore more
stringent efficiency levels than in ASHRAE/IESNA Standard 90.1-1999 for
PTACs and PTHPs through a separate rulemaking. 72 FR 10038, 10045
(March 7, 2007). Recently, DOE published a notice of proposed
rulemaking (NOPR) proposing more stringent standards than the
efficiency levels in ASHRAE Standard 90.1-2007 for all types of PTACs
and PTHPs. 73 FR 18858 (April 7, 2008). Since DOE is evaluating
standard levels for packaged terminal air conditioners and heat pumps
in a separate rulemaking,\12\ DOE is excluding PTACs and PTHPs from
further consideration, and interested parties can review the energy
savings potential of more stringent efficiency levels in the April 2008
NOPR.
D. Commercial Water Heaters
1. Oil-Fired Instantaneous Water Heaters
EPCA defines an ``instantaneous water heater'' as ``a water heater
that has an input rating of at least 4,000 Btu per hour per gallon of
stored water.'' (42 U.S.C. 6311(12)(B)) DOE incorporated a more
specific definition of instantaneous water heater into 10 CFR 431.105,
which specifies that an oil-fired instantaneous water heater has an
input rating no less than 4,000 Btu/h per gallon of stored water, and
that it is industrial equipment (including equipment that heats water
to 180 [deg]F or higher).
---------------------------------------------------------------------------
\12\ For more information about the Packaged Terminal Air
Conditioners and Heat Pumps rulemaking, visit the DOE Web site at:
http://www.eere.energy.gov/buildings/appliance_standards/
commercial/packaged_ac_hp.html.
---------------------------------------------------------------------------
The Federal energy conservation standard for oil-fired
instantaneous water heaters is a minimum thermal efficiency of 78
percent and a maximum standby loss of Q/800 +
110(Vr)1/2, where Q is the nameplate input rating
in Btu/h and Vr is the rated volume in gallons. 10 CFR
431.110. ASHRAE Standard 90.1-2007 did not change this minimum thermal
efficiency requirement. ASHRAE Standard 90.1-2007 contains an
efficiency-level specification for the maximum standby loss, which is
Q/800 + 110(V)1/2, where Q is the nameplate input rating in
Btu/h and V is the rated volume in gallons. Since Vr and V
are both defined as rated volume in gallons, DOE has determined there
is no difference between the standby provisions for the Federal energy
conservation standard and the requirements specified by ASHRAE Standard
90.1-2007. Therefore, further analysis is not required.
2. Electric Storage Water Heaters
EPCA defines a ``storage water heater'' as equipment that ``heats
and stores water within the appliance at a thermostatically controlled
temperature for delivery on demand. Such term does not include units
with an input rating of 4,000 Btu/hr or more per gallon of stored
water.'' (42 U.S.C. 6311(12)(A); 10 CFR 431.102) Electric storage water
heaters are storage water heaters that heat water using electric
resistance heating elements.
The Federal energy conservation standard for electric storage water
heaters is set under EPCA as ``the maximum standby loss, in percent per
hour, of electric storage water heaters shall be 0.30 + (27/Measured
Storage Volume [in gallons]).'' (42 U.S.C. 6313(a)(5)(A); 10 CFR
431.110) ASHRAE Standard 90.1-2007 (which remains unchanged from
Standard 90.1-1999) specifies a maximum standby loss in Btu per hour,
of 20 + (35[radic]V), where V is the rated volume of the tank in
gallons.
As discussed in the January 2001 final rule, DOE determined that
the efficiency level in ASHRAE Standard 90.1-1999 (which is the same as
the efficiency level specified by ASHRAE Standard 90.1-2007) would
increase energy consumption relative to the standard in EPCA. 66 FR
3336, 3350 (Jan. 12, 2001). DOE further stated that under these
circumstances, DOE cannot adopt the new efficiency level, because EPCA
stipulates that its standards cannot be relaxed. Id. Therefore, DOE did
not adopt the requirement specified by ASHRAE Standard 90.1-1999 for
electric storage water heaters, thereby leaving the existing EPCA
standards in place.
Since ASHRAE incorporated exactly the same efficiency levels in
ASHRAE Standard 90.1-2007 as it did in ASHRAE Standard 90.1-1999, DOE
does not see why its conclusion would differ from the one it presented
in the January 2001 final rule. Under these circumstances, DOE has
tentatively concluded that it cannot adopt the amended efficiency level
for electric storage water heaters. Therefore, no further analysis is
necessary.
E. Commercial Packaged Boilers
EPCA defines a ``packaged boiler'' as ``a boiler that is shipped
complete with heating equipment, mechanical draft equipment, and
automatic controls; usually shipped in one or more sections.'' (42
U.S.C. 6311(11)(B)). In its regulations at 10 CFR 431.102, DOE further
refined the ``packaged boiler'' definition to not include a boiler that
is custom designed and field constructed; additionally, if the boiler
is shipped in more than one section, the sections may be produced by
more than one manufacturer, and may be originated or shipped at
different times and from more than one location. There are various
different types of commercial packaged boilers, which can be
distinguished based on the input capacity size (i.e., small or large),
fuel type (i.e., oil or gas), output (i.e., hot water or steam), and
draft type (i.e., natural draft or other).
[[Page 40781]]
The Federal energy conservation standards separate commercial
packaged boilers only by the type of fuel used by the boiler, creating
two equipment classes: (1) gas-fired, and (2) oil-fired. (42 U.S.C.
6313(a)(4)(C)-(D); 10 CFR 431.87). ASHRAE Standard 90.1-2007 further
divided these two equipment classes into the following ten classes:
Small, gas-fired, hot water boilers;
Small, gas-fired, steam, all except natural draft;
Small, gas-fired, steam, natural draft boilers;
Small, oil-fired, hot water boilers;
Small, oil-fired, steam boilers;
Large, gas-fired, hot water boilers;
Large, gas-fired, steam, all except natural draft boilers;
Large, gas-fired, steam, natural draft boilers;
Large, oil-fired, hot water boilers; and
Large, oil-fired, steam boilers.
EPCA specified minimum Federal standards for commercial packaged
boilers manufactured on or after January 1, 1994. (42 U.S.C.
6313(a)(4)(C)-(D); 10 CFR 431.87). The minimum combustion efficiency at
the maximum rated capacity of a gas-fired packaged boiler with capacity
of 300,000 Btu/h (300 kBtu/h) or more shall be 80 percent. (42 U.S.C.
6313(a)(4)(C); 10 CFR 431.87(a)) The minimum combustion efficiency at
the maximum rated capacity of an oil-fired packaged boiler with
capacity of 300,000 Btu/h or more shall be 83 percent. (42 U.S.C.
6313(a)(4)(D); 10 CFR 431.87(b))
Table II.1 shows the ten equipment classes and efficiency levels
established by ASHRAE.
Table II.1.--ASHRAE Standard 90.1-2007 Energy Efficiency Levels for Commercial Packaged Boilers
----------------------------------------------------------------------------------------------------------------
ASHRAE standard 90.1-2007 ASHRAE standard 90.1-2007
Equipment type Size category (effective 3/2/2010)* (effective 3/2/2020)*
(Input kBtu/h) (percent) (percent)
----------------------------------------------------------------------------------------------------------------
Small, Gas, Hot Water........... 300-2,500 ET = 80.0.................... ET = 80.0.
Small, Gas, Steam, All Except 300-2,500 ET = 79.0.................... ET = 79.0.
Natural Draft.
Small, Gas, Steam, Natural Draft 300-2,500 ET = 77.0.................... ET = 79.0.
Small, Oil, Hot Water........... 300-2,500 ET = 82.0.................... ET = 82.0.
Small, Oil, Steam............... 300-2,500 ET = 81.0.................... ET = 81.0.
Large, Gas, Hot Water........... >2,500 EC = 82.0.................... EC = 82.0.
Large, Gas, Steam, All Except >2,500 ET = 79.0.................... ET = 79.0.
Natural Draft.
Large, Gas, Steam, Natural Draft >2,500 ET = 77.0.................... ET = 79.0.
Large, Oil, Hot Water........... >2,500 EC = 84.0.................... EC = 84.0.
Large, Oil, Steam............... >2,500 ET = 81.0.................... ET = 81.0.
----------------------------------------------------------------------------------------------------------------
* EC, combustion efficiency; ET, thermal efficiency.
ASHRAE changed the metric for determining energy efficiency for
five equipment classes of small commercial packaged boilers and three
equipment classes of large commercial packaged boilers in ASHRAE
Standard 90.1-2007. The Federal energy conservation standards for these
eight equipment classes are expressed in terms of combustion
efficiency, whereas the efficiency levels in ASHRAE Standard 90.1-2007
are expressed in terms of thermal efficiency.
The combustion efficiency descriptor used in EPCA for commercial
packaged boilers differs from the thermal efficiency descriptor used in
Standard 90.1-2007.\13\ In general, the energy efficiency of a product
is a function of the relationship between the product's output of
services and its energy input. A boiler's output of services is
measured largely by the energy content of its output (steam or hot
water). Consequently, its efficiency is often viewed as the ratio
between its energy output and energy input, with the energy output
being calculated as the energy input minus the energy lost in producing
the output. A boiler's energy losses consist of energy that escapes
through its flue (commonly referred to as ``flue losses''), and of
energy that escapes into the area surrounding the boiler (commonly
referred to as ``jacket losses''). The combustion efficiency descriptor
described in EPCA only accounts for flue losses and typically is
defined as ``100 percent minus percent flue loss.'' (42 U.S.C.
6313(4)(C)-(D)) The thermal efficiency descriptor, as used in Standard
90.1-2007, accounts for jacket losses as well as flue losses, so it can
be considered combustion efficiency minus jacket loss. Because all
boilers will have at least some jacket losses (even if small) and
because thermal efficiency takes these losses into account, the thermal
efficiency for a particular boiler will always be lower than its
combustion efficiency.
---------------------------------------------------------------------------
\13\ The combustion efficiency descriptor and the thermal
efficiency descriptor are defined differently for commercial warm
air furnaces and commercial packaged boilers. The thermal efficiency
descriptor as it applies to commercial warm air furnaces is defined
in Subpart D of 10 CFR part 430 as ``one minus flue losses,'' which
corresponds to the combustion efficiency descriptor for commercial
packaged boilers.
---------------------------------------------------------------------------
There is no direct mathematical correlation between these two
measures of efficiency. The factors that contribute to jacket loss
(e.g. , the boiler's design and materials) have little or no direct
bearing on combustion efficiency. The lack of correlation between
combustion efficiency and thermal efficiency presents some difficulties
in determining how an energy conservation standard based on thermal
efficiency, rather than combustion efficiency, would affect the energy
consumption of commercial packaged boilers.
EPCA provides that DOE may not prescribe any amended standard that
increases the maximum allowable energy use, or decreases the minimum
required energy efficiency of a product covered product. (42 U.S.C.
6316(a); 42 U.S.C. 6295(o)(1)) Therefore, in evaluating whether to
adopt the thermal efficiency levels in ASHRAE Standard 90.1-2007 for
these eight equipment classes, DOE needed to determine whether or not
they decrease the efficiency levels of the combustion efficiencies that
EPCA currently requires.
DOE used the same methodology established in the March 2006 Notice
of Availability and the March 2007 final rule for investigating the
metric change for these eight equipment classes. 71 FR 12634, 12639-40
(March 13, 2006); 72 FR 10038, 10043 (March 7, 2007). If the numeric
value for the minimum thermal efficiency (expressed as a percentage)
were at or above the value for the combustion efficiency (expressed as
a percentage), then clearly the ASHRAE Standard 90.1-2007 efficiency
levels
[[Page 40782]]
would not be lower than the EPCA energy conservation standard levels.
If ASHRAE Standard 90.1-2007's thermal efficiency levels for each
product class of commercial boilers were only slightly lower
numerically than EPCA's combustion efficiency standards for such
equipment, the Standard 90.1-2007 efficiency levels also probably would
not represent a reduction in stringency of the minimum efficiency
levels (although this would need to be confirmed). However, because the
ASHRAE Standard 90.1-2007 thermal efficiency levels for some product
classes of commercial packaged boilers have more than a small
percentage point difference as compared to EPCA's combustion efficiency
levels, DOE must carefully assess whether the Standard 90.1-2007 levels
would represent a reduction of existing standards.
To this end, DOE reviewed the AHRI's Institute of Boiler and
Radiation Manufacturers (I=B=R) ratings directories for 2008.\14\ The
I=B=R directory provides efficiency ratings for most of the commercial
packaged boilers for sale in the United States. DOE specifically
reviewed boilers that fell into each of the eight equipment classes for
which a metric change occurred. For each equipment class analyzed, DOE
identified the average combustion and thermal efficiencies. DOE also
identified the average thermal efficiency for those boilers DOE
considers minimally compliant (i.e., those boilers with a combustion
efficiency equal to the Federal energy conservation standards).
---------------------------------------------------------------------------
\14\ The Air-conditioning, Heating, and Refrigerating Institute,
I=B=R Ratings for Boilers, Baseboard Radiation, Finned Tube
(Commercial) Radiation, and Indirect-Fired Water Heaters (Jan.
2008). Available at: http://www.gamanet.org/gama/inforesources.nsf/
vAttachmentLaunch/E9E5FC7199EBB1BE85256FA100838435/$FILE/01-08_
CBR.pdf.
---------------------------------------------------------------------------
For approximately 81 percent of the boilers DOE examined, the
directory provided both the thermal efficiency and combustion
efficiency levels. For 8.5 percent of these boilers, the ratings appear
to be erroneous because the directory lists a thermal efficiency rating
greater than its combustion efficiency rating, which is physically
impossible.\15\ As explained above, thermal efficiency includes the
effects of jacket losses, whereas combustion efficiency does not.
Excluding these boilers, DOE reviewed the thermal and combustion
efficiency ratings for the remaining 74.3 percent of the boilers, where
both types of efficiency ratings are listed in the 2008 I=B=R
directory. DOE presents its review of the efficiency levels in ASHRAE
Standard 90.1-2007 for all ten equipment classes of commercial packaged
boilers and its review of the I=B=R directory for each of the eight
equipment classes where a metric change occurred. DOE's review of each
commercial packaged boiler equipment class will provide its planned
course of action for each equipment class, along with reasoning for the
suggested action. DOE is using its review of the I=B=R directory for
each of the equipment classes to determine if ASHRAE raised the
efficiency levels and if further DOE action is warranted. In order for
DOE to determine whether ASHRAE raised the efficiency levels for each
equipment class, DOE has identified the following from the January 2008
I=B=R directory:
---------------------------------------------------------------------------
\15\ These anomalous ratings are likely due to Hydronics
Institute's (HI) de-rating procedures, manufacturers' interpolation
of results, varying test chambers and instrument calibration among
manufacturers, or submittal of erroneous ratings.
---------------------------------------------------------------------------
A comparison of the average combustion efficiency and
average thermal efficiency values of the models;
A comparison of the average combustion efficiency and
average thermal efficiency values of the minimally compliant models
(i.e., those with efficiency levels that minimally comply with EPCA);
The model with the lower thermal efficiency value and its
corresponding combustion efficiency value;
The model with the highest thermal efficiency value and
its corresponding combustion efficiency value; and
The percentage of models in the January 2008 I=B=R
directory that have a thermal efficiency value lower than the
efficiency level specified by ASHRAE Standard 90.1-2007.
DOE used these five statistics to determine whether DOE believes
the efficiency levels specified within ASHRAE Standard 90.1-2007 for a
given equipment class provide reasonable assurance that ASHRAE
increased the efficiency levels and further analysis is warranted by
DOE. DOE presents its review of the efficiency levels in ASHRAE
Standard 90.1-2007 for each equipment class of commercial packaged
boilers as well as its review of the market data in the following
subsections.
1. Small, Gas-Fired Hot Water Commercial Packaged Boilers
A small, gas-fired hot water commercial packaged boiler is a
commercial packaged boiler with a fuel input at or above 300 and less
than or equal to 2,500 kBtu/h, fueled by either natural gas or propane,
that supplies hot water for space heating. Small, gas-fired hot water
commercial packaged boilers fall under the gas-fired commercial
packaged boilers equipment class, whose Federal energy conservation
standards, as established by EPCA, are a combustion efficiency of no
less than 80.0 percent. (42 U.S.C. 6313(a)(4)(C); 10 CFR 431.87(a))
This equipment class accounts for 23.6 percent of the total models
listed in the January 2008 I=B=R directory that DOE examined.
Among all of the small, gas-fired hot water commercial package
boilers in the I=B=R directory, DOE calculated the average thermal
efficiency to be 0.9 percent lower than the average combustion
efficiency. DOE also identified the small, gas-fired hot water
commercial packaged boilers with combustion efficiencies that minimally
comply with EPCA (i.e. , with a combustion efficiency between 80.0 and
81.0 percent). For the minimally compliant small, gas-fired hot water
commercial packaged boilers, the average thermal efficiency is 78.1
percent. The model with the lowest thermal efficiency is 76.8 percent,
which corresponds to a combustion efficiency of 81 percent. The model
with the highest thermal efficiency is 98.1 percent, which corresponds
to a combustion efficiency of 98.3 percent. DOE found that of all the
models in the 2008 I=B=R directory for this equipment class, 8.9
percent of them have thermal efficiency levels below the ASHRAE
Standard 90.1-2007 efficiency level.
ASHRAE Standard 90.1-2007 specifies a thermal efficiency of 80
percent for small, gas-fired hot water commercial packaged boilers.
This thermal efficiency value is higher than the 78.1 percent average
thermal efficiency of minimally compliant equipment currently on the
market. Based on DOE's review of the I=B=R directory and the analysis
conducted on the minimally compliant commercial packaged boilers, DOE
has tentatively concluded that the thermal efficiency levels in ASHRAE
Standard 90.1-2007 would, on average, increase efficiency for small,
gas-fired hot water commercial packaged boilers. Consequently, DOE
performed a potential energy-savings analysis on this equipment class
under section III, as part of DOE's review of amended energy
conservation standards.
2. Small, Gas-Fired, Steam, All Except Natural Draft Commercial
Packaged Boilers
A small, gas-fired, steam, all except natural draft commercial
packaged boiler has a fuel input of at or above 300 and less than or
equal to 2,500 kBtu/h, is fueled by either natural gas or propane,
supplies steam for space heating and other applications, and uses a
type of draft system other than natural
[[Page 40783]]
draft (i.e., a forced or induced draft system). Small, gas-fired,
steam, all except natural draft commercial packaged boilers fall under
the gas-fired commercial packaged boilers equipment class, whose
Federal energy conservation standards, as established by EPCA, are a
combustion efficiency of no less than 80.0 percent. (42 U.S.C.
6313(a)(4)(C); 10 CFR 431.87) (a)) These boilers account for 18.5
percent of the total models listed in the January 2008 I=B=R directory.
Among all of the small, gas-fired, steam all except natural draft
commercial packaged boilers in the I=B=R directory, DOE calculated the
average thermal efficiency to be 2.6 percent lower than the average
combustion efficiency. DOE also identified the boilers in this
equipment class with combustion efficiencies that minimally comply with
EPCA (i.e., with a combustion efficiency between 80.0 and 81.0
percent). The average thermal efficiency of these minimally compliant
boilers is 76.9 percent. The lowest thermal efficiency of these models
is 75.4 percent, which corresponds to combustion efficiencies of 80 and
80.5 percent. The highest thermal efficiency is 83.1 percent, which
corresponds to combustion efficiencies ranging from 83.7 to 84.8
percent. Of the 18.5 percent of units in the 2008 I=B=R directory for
this equipment class, 51.2 percent of them have thermal efficiency
levels below the ASHRAE Standard 90.1-2007 efficiency level.
ASHRAE Standard 90.1-2007 specifies a thermal efficiency of 79
percent for small, gas-fired, steam, all except natural draft
commercial packaged boilers. This thermal efficiency value is higher
than the 76.9 percent average thermal efficiency of minimally compliant
equipment on the market. Based on DOE's review of the I=B=R directory
and the analysis of minimally compliant commercial packaged boilers,
DOE has tentatively concluded that the thermal efficiency levels in
ASHRAE Standard 90.1-2007 would, on average, result in an increase in
efficiency for minimally compliant equipment. Therefore, DOE performed
a potential energy-savings analysis on this equipment class under
section III.
3. Small, Gas-Fired, Steam, Natural Draft, Commercial Packaged Boilers
A small, gas-fired, steam, natural draft commercial packaged boiler
has a fuel input at or above 300 and less than or equal to 2,500 kBtu/
h, is fueled by either natural gas or propane, supplies steam for space
heating and other applications, and uses a natural draft system (i.e.,
does not have mechanical draft equipment). Small, gas-fired, steam,
natural draft commercial packaged boilers fall under the gas-fired
commercial packaged boilers equipment class, whose Federal energy
conservation standards, as established by EPCA, are a combustion
efficiency of no less than 80.0 percent. (42 U.S.C. 6313(a)(4)(C); 10
CFR 431.87(a)) These boilers account for 1.8 percent of the total
models listed in the January 2008 I=B=R directory.
ASHRAE Standard 90.1-2007 set a two-tier efficiency level for this
equipment, which includes two different thermal efficiency levels, as
well as two effective dates. The first efficiency level specified in
ASHRAE Standard 90.1-2007 for this equipment class includes a 77
percent thermal efficiency effective March 2, 2010. The second
efficiency level specified by ASHRAE Standard 90.1-2007 for this
equipment class includes a 79 percent thermal efficiency effective
March 2, 2020.
Among all of the small, gas-fired, steam, natural draft commercial
packaged boilers in the I=B=R directory, DOE calculated the average
thermal efficiency to be 3.6 percent lower than the average combustion
efficiency. DOE also identified the small, gas-fired, steam, natural
draft commercial packaged boilers with combustion efficiencies that
minimally comply with EPCA (i.e., with a combustion efficiency between
80.0 and 81.0 percent). The average thermal efficiency for the
minimally-compliant equipment of this type is 78.2 percent. The model
with the lowest thermal efficiency is 77.6 percent, which corresponds
to a combustion efficiency of 80.9 percent. The thermal efficiency of
the most efficient models is 80.4 percent, which corresponds to
combustion efficiencies of between 83.1 and 83.3 percent. In examining
all the models in the 2008 I=B=R directory for this equipment class,
DOE found that none has a thermal efficiency level below the ASHRAE
Standard 90.1-2007 efficiency level effective in 2010, but 66.7 percent
have thermal efficiency levels below the ASHRAE Standard 90.1-2007
efficiency level effective in 2020.
Again, ASHRAE Standard 90.1-2007 specifies a thermal efficiency of
77 percent for small, gas-fired, steam, natural draft commercial
packaged boilers manufactured on or after March 2, 2010. This is lower
than the 78.2 percent average thermal efficiency of minimally-compliant
equipment on the market. DOE could not identify any small, gas-fired,
steam, natural draft equipment currently in the I=B=R directory with a
thermal efficiency value less than 77.6 percent. DOE observed that the
minimum thermal efficiency level effective March 2, 2010, in ASHRAE
Standard 90.1-2007 appears to be lower than the average thermal
efficiencies of boilers that minimally comply with EPCA's combustion
energy efficiency standards. DOE believes that the potential
consequence of setting thermal efficiency standards at levels lower
than the thermal efficiencies of existing equipment would be equipment
with lower combustion efficiencies than EPCA permits, meaning that the
current minimum required efficiency would be decreased, thereby
resulting in backsliding. Therefore, DOE has tentatively decided not to
adopt the stage-1 ASHRAE Standard 90.1-2007 efficiency level for small,
gas-fired, steam, natural draft commercial packaged boilers.
Because ASHRAE set a two-tier requirement for this product type,
DOE then analyzed the second efficiency level set by the amended ASHRAE
standard. ASHRAE Standard 90.1-2007 specifies a thermal efficiency of
79 percent for small, gas-fired, steam, natural draft commercial
packaged boilers manufactured on or after March 2, 2020. This thermal
efficiency value is higher than the 78.2 percent average thermal
efficiency of minimally-compliant equipment on the market. Based on
DOE's review of the I=B=R directory and the analysis of minimally-
compliant commercial packaged boilers, DOE has tentatively concluded
that the second thermal efficiency level in ASHRAE Standard 90.1-2007
would, on average, result in an increase in efficiency for small, gas-
fired, steam, natural draft commercial packaged boilers manufactured on
or after March 2, 2020. Therefore, DOE performed a potential energy-
savings analysis on this equipment class under section III.
4. Small, Oil-Fired, Hot Water Commercial Packaged Boilers
A small, oil-fired, hot water commercial packaged boiler has a fuel
input at or above 300 and less than or equal to 2,500 kBtu/h, is fueled
by oil, and supplies hot water for space heating. Small, oil-fired, hot
water commercial packaged boilers fall under the oil-fired commercial
packaged boilers equipment class, whose Federal energy conservation
standards, as established by EPCA, are a combustion efficiency of no
less than 83.0 percent. (42 U.S.C. 6313(a)(4)(D); 10 CFR 431.87(b))
This equipment class accounts for 6.9 percent of the models listed in
the January 2008 I=B=R directory.
[[Page 40784]]
Among all of the small, oil-fired, hot water commercial packaged
boilers in the I=B=R directory, DOE calculated the average thermal
efficiency to be 2.3 percent lower than the average combustion
efficiency. DOE also identified the small, oil-fired, hot water
commercial packaged boilers with combustion efficiencies that minimally
comply with EPCA (i.e., with a combustion efficiency between 83.0 and
84.0 percent). The average thermal efficiency of minimally-compliant
equipment is approximately 80.7 percent. The thermal efficiency of the
least-efficient model is 79.2 percent, which corresponds to a
combustion efficiency of 83.2 percent. The thermal efficiency of the
most-efficient model is 92.9 percent, which corresponds to a combustion
efficiency of 93.3 percent. Of the all the models in the 2008 I=B=R
directory for this equipment type, 29.3 percent of them have thermal
efficiency levels below the ASHRAE Standard 90.1-2007 efficiency level.
ASHRAE Standard 90.1-2007 specifies a thermal efficiency of 82
percent for small, oil-fired, hot water commercial packaged boilers.
This value is higher than the 80.7 percent average thermal efficiency
of minimally-compliant equipment on the market. Based on DOE's review
of the I=B=R directory and the analysis conducted on the minimally-
compliant commercial packaged boilers, DOE has tentatively concluded
that the thermal efficiency level in ASHRAE Standard 90.1-2007 would,
on average, result in an increase in the efficiency for small, oil-
fired, hot water commercial packaged boilers. Therefore, DOE performed
a potential energy-savings analysis on this equipment class under
section III.
5. Small, Oil-Fired, Steam, Commercial Packaged Boilers
A small, oil-fired, steam commercial packaged boiler has a fuel
input at or above 300 and less than or equal to 2,500 kBtu/h, is fueled
by oil, and supplies steam for space heating and other applications.
Small, oil-fired, steam commercial packaged boilers fall under the oil-
fired commercial packaged boilers equipment class, whose Federal energy
conservation standards, as established by EPCA, are a combustion
efficiency of no less than 83.0 percent. (42 U.S.C. 6313(a)(4)(D); 10
CFR 431.87(b)) These boilers account for 11.6 percent of the total
models listed in the January 2008 I=B=R directory.
Among all of the small, oil-fired, steam commercial packaged
boilers in the I=B=R directory, DOE calculated the average thermal
efficiency to be 2.5 percent lower than the average combustion
efficiency. DOE also identified the small, oil-fired, steam commercial
packaged boilers with combustion efficiencies that minimally comply
with EPCA (i.e., with a combustion efficiency between 83.0 and 84.0
percent). The average thermal efficiency of minimally-compliant
equipment is 81.6 percent. The thermal efficiency of the least-
efficient model is 79.7 percent, which corresponds to a combustion
efficiency of 83.3 percent. The thermal efficiency of the most-
efficient models is 85.6 percent, which corresponds to a range of
combustion efficiencies from 86.2 to 87.5 percent. Of all the models in
the 2008 I=B=R directory for this equipment class, 17.5 percent of them
have thermal efficiency levels below the ASHRAE Standard 90.1-2007
efficiency level.
ASHRAE Standard 90.1-2007 specifies a thermal efficiency of 81
percent for small, oil-fired, steam commercial packaged boilers. This
value is lower than the 81.6 percent average thermal efficiency of
minimally-compliant equipment on the market. DOE identified a single
minimally-compliant small, oil-fired steam commercial packaged boiler
with a thermal efficiency of 79.7 percent, which is lower than the
efficiency level in ASHRAE Standard 90.1-2007. DOE observed that the
minimum thermal efficiency level in ASHRAE Standard 90.1-2007 for this
equipment class appears to be lower than the average thermal
efficiencies of boilers that minimally comply with EPCA's combustion
energy efficiency standards. The consequence of setting thermal
efficiency standards at levels lower than the thermal efficiencies of
existing equipment would be manufacturing of equipment with lower
combustion efficiencies than EPCA permits, meaning that the current
minimum required efficiency would be decreased in violation of EPCA's
``anti-backsliding'' provision (see Section I.A). (42 U.S.C. 6316(a);
42 U.S.C. 6295(o)(1)) Therefore, DOE has tentatively decided not to
adopt the ASHRAE Standard 90.1-2007 efficiency level for small, oil-
fired, steam commercial packaged boilers, so no further analysis is
required.
6. Large, Gas-Fired, Hot Water Commercial Packaged Boilers
A large, gas-fired, hot water commercial packaged boiler has a fuel
input of at or above 2,500 kBtu/h, is fueled by either natural gas or
propane, and supplies hot water for space heating. Large, gas-fired,
hot water commercial packaged boilers fall under the gas-fired
commercial packaged boilers equipment class, whose Federal energy
conservation standards, as established by EPCA, are a combustion
efficiency of no less than 80.0 percent. (42 U.S.C. 6313(a)(4)(C); 10
CFR 431.87(a)). These boilers account for 4.0 percent of the total
models listed in the January 2008 I=B=R directory.
The existing Federal energy conservation standard for this
equipment class corresponds to the energy conservation standard in
EPCA, which specifies a minimum combustion efficiency no less than 80
percent. (42 U.S.C. 6313(4)(C)) ASHRAE Standard 90.1-2007 specifies a
more stringent combustion efficiency of no less than 82 percent. Among
all of the large, gas-fired, hot water commercial packaged boilers in
the I=B=R directory, DOE calculate the average combustion efficiency to
be 83.6 percent, which is 1.6 percent higher than the minimum
combustion efficiency levels specified by ASHRAE Standard 90.1-2007.
However, the combustion efficiency of approximately 17 percent of this
equipment is lower than the minimum efficiency level specified by
Standard 90.1-2007. For models with a combustion efficiency lower than
82 percent, ASHRAE Standard 90.1 represents a potential for energy
savings. Therefore, DOE performed a potential energy-savings analysis
on this equipment class under section III.
7. Large, Gas-Fired, Steam, All Except Natural Draft Commercial
Packaged Boilers
A large, gas-fired, steam all except natural draft commercial
packaged boiler has a fuel input of at or above 2,500 kBtu/h, is fueled
by either natural gas or propane, supplies steam for space heating and
other applications, and uses a type of draft system other than natural
draft (i.e., a forced or induced draft system). Large, gas-fired,
steam, all except natural draft commercial packaged boilers fall under
the gas-fired commercial packaged boilers equipment class, whose
Federal energy conservation standards, as established by EPCA, are a
combustion efficiency of no less than 80.0 percent. (42 U.S.C.
6313(a)(4)(C); 10 CFR 431.87(a)) These boilers account for 12.1 percent
of the models listed in the January 2008 I=B=R directory.
Among all of the large, gas-fired steam, all except natural draft
commercial packaged boilers in the I=B=R directory, DOE calculated the
average thermal efficiency to be 1.5 percent lower than the average
combustion efficiency. DOE also identified those boilers with
combustion efficiencies that minimally comply with
[[Page 40785]]
EPCA (i.e., with a combustion efficiency between 80.0 and 81.0
percent). The average thermal efficiency of minimally-compliant boilers
is 78.5 percent. The thermal efficiency of the least efficient model is
75.4 percent, which corresponds to a combustion efficiency of 80.5
percent. The thermal efficiency of the most efficient model is 83.2
percent, which corresponds to a combustion efficiency of 83.4 percent.
Of all the models in the 2008 I=B=R directory for this equipment class,
49.1 percent of them have thermal efficiency levels below the ASHRAE
Standard 90.1-2007 efficiency level.
ASHRAE Standard 90.1-2007 specifies a thermal efficiency of 79
percent for large, gas-fired, steam, all except natural draft
commercial packaged boilers. This value is higher than the 78.5 percent
average thermal efficiency of minimally-compliant equipment on the
market. Based on DOE's review of the I=B=R directory and the analysis
conducted on the minimally-compliant commercial packaged boilers, DOE
has tentatively concluded that the thermal efficiency level in ASHRAE
Standard 90.1-2007 would, on average, result in an increase in
efficiency for minimally-compliant boilers. Therefore, DOE performed a
potential energy-savings analysis on this equipment class under section
III.
8. Large, Gas-Fired, Steam, Natural Draft, Commercial Packaged Boilers
A large, gas-fired, steam, natural draft commercial packaged boiler
has a fuel input of at or above 2,500 kBtu/h, is fueled by either
natural gas or propane, supplies steam for space heating and other
applications, and uses a natural draft system (i.e., does not have
mechanical draft equipment). Large, gas-fired, steam, natural draft
commercial packaged boilers fall under the gas-fired commercial
packaged boilers equipment class, whose Federal energy conservation
standards, as established by EPCA, are a combustion efficiency of no
less than 80.0 percent. (42 U.S.C. 6313(a)(4)(C); 10 CFR 431.87(a))
These boilers account for 4.4 percent of the models listed in the
January 2008 I=B=R directory.
ASHRAE set a two-tier efficiency level for this equipment, which
includes two different thermal efficiency levels and two effective
dates. The first efficiency level specified in ASHRAE Standard 90.1-
2007 for this equipment class includes a 77 percent thermal efficiency
effective March 2, 2010. The second efficiency level specified by
ASHRAE Standard 90.1-2007 for this equipment class includes a 79
percent thermal efficiency effective March 2, 2020.
Among all of the large, gas-fired, steam, natural draft commercial
packaged boilers, DOE calculated the average thermal efficiency to be
1.8 percent lower than the average combustion efficiency. DOE also
identified the large, gas-fired, steam, natural draft commercial
packaged boilers with combustion efficiencies that minimally comply
with EPCA (i.e., with a combustion efficiency between 80.0 and 81.0
percent). The average thermal efficiency of minimally-compliant boilers
is approximately 79.1 percent. The thermal efficiency of the least
efficient models is 78.6 percent, which corresponds to a combustion
efficiency of 82.1 percent. The thermal efficiency of the most
efficient models is 81.1 percent, which corresponds to a range of
combustion efficiencies from 82.2 to 82.4 percent. In examining all the
models in the 2008 I=B=R directory for this equipment class, DOE found
that none has a thermal efficiency level below the ASHRAE Standard
90.1-2007 efficiency level effective in 2010, but 15.5 percent have
thermal efficiency levels below the ASHRAE Standard 90.1-2007
efficiency level effective in 2020.
Again, ASHRAE Standard 90.1-2007 specifies a thermal efficiency of
77 percent for large, gas-fired, steam, natural draft commercial
packaged boilers manufactured on or after March 2, 2010. This value is
lower than the 79.1 percent average thermal efficiency of minimally-
compliant equipment on the market. DOE could not identify any large,
gas-fired, steam, natural draft equipment in the I=B=R directory with a
thermal efficiency value less than 78.6 percent. The minimum thermal
efficiency level effective March 2, 2010, in ASHRAE Standard 90.1-2007
appears to be lower than any of the thermal efficiencies of boilers
that are currently available on the market. DOE believes that the
potential consequence of setting thermal efficiency standards at levels
lower than the thermal efficiencies of existing equipment would be
equipment having lower combustion efficiencies than EPCA permits,
meaning that the current minimum required efficiency would be
decreased, thereby resulting in backsliding. Therefore, DOE has
tentatively decided not to adopt the stage-1 ASHRAE Standard 90.1-2007
efficiency level for this equipment class.
Because ASHRAE set a two-tiered requirement for this product type,
DOE then analyzed the second efficiency level set by the amended ASHRAE
standard. ASHRAE Standard 90.1-2007 specifies a thermal efficiency of
79 percent for large, gas-fired, steam, natural draft commercial
packaged boilers manufactured on or after March 2, 2020. This value is
slightly lower than the 79.1 percent average thermal efficiency of
minimally compliant equipment on the market. However, 15.5 percent of
the equipment DOE analyzed has a thermal efficiency lower than the
efficiency level in ASHRAE Standard 90.1-2007. Based on DOE's review of
the I=B=R directory and the analysis conducted on minimally-compliant
commercial packaged boilers, DOE has tentatively concluded that the
thermal efficiency level specified by ASHRAE Standard 90.1-2007
effective March 2, 2020 would result in an increase in efficiency for
small, gas-fired, steam, natural draft commercial packaged boilers
manufactured on or after March 2, 2020 (compared to the EPCA combustion
efficiency level). Therefore, DOE performed a potential energy-savings
analysis on this equipment class under section III.
9. Large, Oil-Fired, Hot Water Commercial Packaged Boilers
A large, oil-fired, hot water commercial packaged boiler has a fuel
input at or above 2,500 kBtu/h, is fueled by oil, and supplies hot
water for space heating. Large, oil-fired, hot water commercial
packaged boilers fall under the oil-fired commercial packaged boilers
equipment class, whose Federal energy conservation standards, as
established by EPCA, are a combustion efficiency of no less than 83.0
percent. (42 U.S.C. 6313(a)(4)(D); 10 CFR 431.87(b)) These boilers
account for 1.9 percent of the models listed in the January 2008 I=B=R
directory.
ASHRAE Standard 90.1-2007 adopted a more stringent combustion
efficiency of 84 percent. Among all of the large, oil-fired, hot water
commercial packaged boilers, DOE calculated the average combustion
efficiency to be approximately 86.5 percent, 2.5 percent higher than
the minimum combustion efficiency levels specified by ASHRAE Standard
90.1-2007. The minimum combustion efficiency of all large, oil-fired,
hot water equipment on the market is 85.5 percent, which is 1.5 percent
higher than the minimum level adopted by ASHRAE Standard 90.1-2007.
Based on this, DOE believes there will be no potential energy savings
resulting from adopting ASHRAE Standard 90.1-2007 for large, oil-fired,
hot water commercial packaged boilers. However, DOE did perform a
potential energy-savings analysis in section III, which examined
efficiency levels more
[[Page 40786]]
stringent than those contained within ASHRAE Standard 90.1-2007.
10. Large, Oil-Fired, Steam Commercial Packaged Boilers
A large, oil-fired, steam commercial packaged boiler has a fuel
input at or above 2,500 kBtu/h, is fueled by oil, and supplies steam
for space heating and other applications. Large, oil-fired, steam
commercial packaged boilers fall under the oil-fired commercial
packaged boilers equipment class, whose Federal energy conservation
standards, as established by EPCA, are a combustion efficiency of no
less than 83.0 percent. (42 U.S.C. 6313(a)(4)(D); 10 CFR 431.87(b))
These boilers account for 15.2 percent of the models listed in the
January 2008 I=B=R directory.
Among all of the large, oil-fired, steam commercial packaged
boilers, DOE calculated the average thermal efficiency to be 1.5
percent lower than the average combustion efficiency. DOE also
identified the large, oil-fired, steam commercial packaged boilers with
combustion efficiencies that minimally comply with EPCA (i.e., with a
combustion efficiency between 83.0 and 84.0 percent). For the
minimally-compliant large, oil-fired, steam commercial packaged
boilers, the average thermal efficiency is 82.0 percent. The thermal
efficiency of the least efficient model is 81.0 percent, which
corresponds to a combustion efficiency of 84.6 percent. The thermal
efficiency of the most efficient model is 85.8 percent, which
corresponds to a combustion efficiency of 86.0 percent. In examining
all the models in the 2008 I=B=R directory for this equipment class,
DOE found that none had a thermal efficiency level below the ASHRAE
Standard 90.1-2007 efficiency level.
ASHRAE Standard 90.1-2007 specifies a thermal efficiency of 81
percent for large, oil-fired, steam commercial packaged boilers. This
value is lower than the 82.0 percent average thermal efficiency of
minimally-compliant equipment on the market. DOE could not identify any
small, gas-fired, steam, natural draft equipment currently in the I=B=R
directory with a thermal efficiency value less than 81.0 percent. The
minimum thermal efficiency level in ASHRAE Standard 90.1-2007 appears
to be lower than the average thermal efficiencies of boilers that
minimally comply with EPCA's combustion energy efficiency standards.
DOE believes that the potential consequence of setting thermal
efficiency standards at levels lower than the thermal efficiencies of
existing equipment would be equipment having lower combustion
efficiencies than EPCA permits, meaning that the current minimum
required efficiency would be decreased in violation of EPCA's ``anti-
backsliding'' provision (see Section I.A). (42 U.S.C. 6316(a); 42
U.S.C. 6295(o)(1)) Therefore, DOE has tentatively decided not to adopt
the ASHRAE Standard 90.1-2007 efficiency level for large, oil-fired,
steam, commercial packaged boilers, so no further analysis is required.
III. Analysis of Potential Energy Savings
As required under 42 U.S.C. 6313(a)(6)(A), DOE performed an
analysis to determine the energy-savings potential of amending Federal
minimum energy conservation standard levels to the efficiency levels
specified in ASHRAE Standard 90.1-2007, as well as more stringent
efficiency levels than those specified in ASHRAE Standard 90.1-2007. As
explained above, DOE's energy-savings analysis is limited to types of
equipment covered by Federal energy conservation standards for which
the amended ASHRAE Standard 90.1-2007 increased the efficiency levels.
Based upon the analyses performed in section II, DOE is conducting the
energy-savings analysis for eight equipment classes of commercial
packaged boilers.
The following discussion provides an overview of the energy-savings
analysis conducted for those products, which had increased efficiency
levels under ASHRAE Standard 90.1-2007, followed by summary results of
that analysis. For each efficiency level analyzed, DOE calculated the
potential energy savings to the Nation as the difference between a base
case forecast (without amended standards) and the standards case (with
amended standards). The national energy savings (NES) refers to
cumulative energy savings from 2012 through 2042. In the standards
case, equipment that is more efficient gradually replaces less
efficient equipment over time. This affects the calculation of the
potential energy savings, which are a function of the total number of
units in use and their efficiencies. Savings depend on annual shipments
and equipment lifetime, including changes in shipments and retirement
rates in response to changes in equipment costs due to standards.
DOE calculated the potential energy savings by subtracting energy
use under a standards scenario from energy use in a base case scenario.
DOE estimated unit energy savings for each equipment class based on
data from the 2000 Screening Analysis \16\ for various heating
equipment and the 2008 I=B=R directory. To estimate the total energy
savings for each efficiency level, DOE first calculated the national
site energy consumption (i.e. , the energy directly consumed by the
units of equipment in operation) for each class of commercial packaged
boilers for the base case forecast and the standards case forecast.
Second, DOE determined the annual site energy savings, consisting of
the difference in site energy consumption between the base case and the
standards case. Third, DOE converted the annual site energy savings
into the annual amount of energy saved at the source of gas generation
(the source energy) using a site-to-source conversion factor. Finally,
DOE estimated the source energy savings from 2012 to 2042 to calculate
the total potential energy savings for that period. DOE performed these
calculations for each efficiency level within a given equipment class
of commercial packaged boilers. Details of the energy-savings analysis
are presented below.
---------------------------------------------------------------------------
\16\ U.S. Department of Energy, Screening Analysis for EPACT-
Covered Commercial HVAC and Water-Heating Equipment (April 2000).
Available at: http://www.eere.energy.gov/buildings/highperformance/
pdfs/screening_analysis_main.pdf.
---------------------------------------------------------------------------
A. Annual Energy Use
DOE started with the annual energy use calculation methodology
presented in the 2000 Screening Analysis for today's estimation of
potential energy savings. For commercial packaged boilers, DOE used a
modified full-load equivalent operating hours (FLEOH) to calculate the
annual energy use as estimated in the 2000 Screening Analysis. FLEOH is
the ratio of the total annual thermal energy output (either heating or
cooling) provided by the equipment over the course of a year divided by
equipment capacity. It is equal to the total number of hours that a
piece of equipment would have to run at its rated capacity to provide
total thermal energy output equivalent to that provided over the c |
