[Federal Register Volume 60, Number 115 (Thursday, June 15, 1995)]
[Notices]
[Pages 31456-31459]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-14703]



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DEPARTMENT OF ENERGY
Office of Energy Efficiency and Renewable Energy


Appliance and Equipment Energy Efficiency Standards: Evaluation 
Criteria for the Voluntary Program To Provide Energy Efficiency 
Information for Luminaires

AGENCY: Office of Energy Efficiency and Renewable Energy, Department of 
Energy.

ACTION: Notice of evaluation criteria and call for program description.

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SUMMARY: The Energy Policy Act of 1992 requires the Department of 
Energy (DOE or Department) to support the development of a voluntary 
national testing and information program by an appropriate organization 
of interested parties for those types of luminaires that are widely 
used, and show potential for significant energy savings. Not later than 
October 24, 1995, DOE must determine whether the voluntary program, 
thus created, is consistent with the objectives set forth in the 
legislation. After consulting with stakeholders in two public meetings 
to discuss the progress and evaluation of the program, the Department 
has developed a set of criteria that will be used as the basis for 
making the determination on the effectiveness of the luminaire testing 
and information program. With the support of the Department, the 
National Lighting Collaborative has developed such a program, and the 
Department requests that it, or any other appropriate organization that 
has participated in developing the program, submit a program 
description before July 14, 1995, for evaluation by DOE, by means of 
the criteria published in this notice. The submitted report should 
describe the voluntary national testing and information program for 
luminaires in detail, specifying how the program meets each of the 
evaluation criteria listed in this notice. The report should also 
provide a comprehensive status update on the different components of 
the program.

DATES: Description and status report of the voluntary national testing 
and information program for luminaires must be received by the 
Department of Energy by July 14, 1995.

ADDRESSES: Five copies of the reports on the status of the voluntary 
national testing and information program for luminaires should be 
submitted to: Ms. Sandy Cooper, Office of Energy Efficiency and 
Renewable Energy, Mail Station EE-431, U.S. Department of Energy, 1000 
Independence Avenue SW., Washington, DC 20585. Telephone: (202) 586-
7574. [[Page 31457]] 
    Copies of reports submitted will be available in the DOE Freedom of 
Information Reading Room, U.S. Department of Energy, Forrestal 
Building, Room E-190, 1000 Independence Avenue, SW, Washington, DC, 
(202) 586-6020, between the hours of 9:00 a.m. and 4:00 p.m., Monday 
through Friday, except Federal holidays.

FOR FURTHER INFORMATION CONTACT:
Barbara Twigg, U.S. Department of Energy, Office of Energy Efficiency 
and Renewable Energy, Forrestal Building, Mail Station EE-431, 1000 
Independence Avenue SW., Washington, DC 20585, (202) 586-8714
Eugene Margolis, Esq., U.S. Department of Energy, Office of General 
Counsel, Forrestal Building, Mail Station GC-72, 1000 Independence 
Avenue, SW, Washington, DC 20585, (202) 586-9507.

SUPPLEMENTARY INFORMATION:

1. Authority

    Part B of Title III of the Energy Policy and Conservation Act, 
Public Law 94-163, created the Energy Conservation Program for Consumer 
Products other than Automobiles. The most recent amendment, the Energy 
Policy Act of 1992 (EPACT), Public Law 102-486, identified several new 
categories of products and equipment for inclusion in various required 
and voluntary testing and information programs to promote energy 
efficiency. Voluntary programs were specified for commercial office 
equipment, windows, and luminaires. A luminaire is a complete lighting 
unit consisting of a fluorescent lamp(s), together with parts designed 
to distribute the light, to position and protect such lamps, and to 
connect such lamps to the power supply through the ballast.
    Section 126 of EPACT directed the Secretary of Energy, after 
consulting with industry associations and other interested 
organizations, to provide technical and financial assistance to support 
a voluntary national testing and information program for those types of 
luminaires that are widely used, and for which there is a potential for 
significant energy savings as a result of such programs. Under section 
126, such program would provide information that, when conveyed to 
consumers, will enable purchasers of the equipment to make more 
informed decisions about the energy efficiency and costs of competing 
products.
    The voluntary program would determine the luminaires to be covered; 
include specifications for testing procedures; and include information 
which may be disseminated through catalogs, trade publications, labels, 
or other mechanisms, that will allow consumers to assess the energy 
consumption and potential cost savings of competing products. Such 
program would be developed by an appropriate organization (composed of 
interested persons), according to commonly accepted procedures for the 
development of national testing procedures and labeling programs.
    Not later than three years after the date of enactment of EPACT 
(October 24, 1995), the Secretary shall make a determination as to 
whether the voluntary program is positioned to achieve the objectives 
established for the testing and rating of luminaires. If the Secretary 
determines that the voluntary program is not consistent with the 
objectives of the legislation, the Secretary shall, after consultation 
with the National Institute of Standards and Technology, develop test 
procedures for luminaires. One year later, the Federal Trade Commission 
would prescribe labeling rules.

2. Background

    Since the passage of EPACT, the Department of Energy has monitored 
the efforts of the luminaire industry to develop a testing and 
information program through the National Lighting Collaborative (NLC or 
Collaborative), a working group composed of the National Electrical 
Manufacturers Association (NEMA), the American Lighting Association, 
lighting manufacturers, environmental organizations, designers, 
national laboratories, and other lighting professionals. The Department 
has provided technical and financial assistance to the Collaborative to 
help launch and publicize the program. On May 24, 1994, DOE held a 
public meeting, at which interested persons were invited to offer 
suggestions concerning methods of evaluation, and to obtain updates on 
the progress of the Collaborative's voluntary program. A transcript of 
the meeting was made available to the public, and comments were 
invited.
    Comments submitted at the meeting focused on several areas. 
Regarding the specifications for testing procedures, it was proposed by 
the National Lighting Collaborative that NEMA Standard LE5, the 
``Procedure for Determining Luminaire Efficacy Ratings for Fluorescent 
Luminaires,'' be accepted as the standard testing and rating method for 
the program. This Luminaire Efficacy Rating known as ``LER'' is 
expressed in lumens per watt (the ratio of light output from the 
luminaire in lumens, to the energy input to the luminaire in watts), 
and is proposed to be reported in the voluntary consumer information 
program. The Collaborative reported that the selection of the Luminaire 
Efficacy Rating test procedure has received consensus support within 
the luminaire industry, having been balloted according to the formal 
standards-making balloting procedures per the by-laws of NEMA, as 
accredited by the American National Standards Institute (ANSI). Based 
on that consensus, the Department of Energy will accept the efficacy 
rating known as the ``LER'' as the fundamental comparative measure of 
the voluntary luminaire program.
    NEMA Standard LE5 also contains a suggested format for other 
information related to the luminaire and its photometric data, 
including luminaire efficiency (the percentage of light output from the 
luminaire compared with the light output from the lamp(s) without the 
luminaire). As noted by the New York State Energy Office, NEMA Standard 
LE5 will also permit the alternative of separate reporting of the 
luminaire lumen output by its components (luminaire efficiency, total 
lamp lumens, and ballast factor). Manufacturers will continue to report 
luminaire efficiency as part of their photometric reports.
    In addition to including an indicator for the luminaire category 
and the LER in lumens per watt, the International Association of 
Lighting Designers proposed that the LE5 reporting format be modified 
to include a measure for the quality of light. The Collaborative 
agreed, but since the quality of light metric needs to be developed, 
the LE5 will at first include an acknowledgement in the foreword that a 
numerical value for lighting quality will accompany the LER after the 
development of the measure is completed and balloted. The reporting 
format also provides information on the estimated annual lighting 
energy cost per 1,000 lumens of light output, assuming 3,000 luminaire 
operating hours per year, and 8 cents per kilowatt-hour electricity 
cost (the 1993 average commercial sector electricity rate).
    It was recommended by the Collaborative that luminaires be tested 
according to prescribed test procedures in laboratories that are 
accredited through the National Voluntary Laboratory Accreditation 
Program of the National Institute of Standards and Technology.
    The Collaborative identified the following luminaires as widely 
used, with a potential for significant energy [[Page 31458]] savings 
for inclusion in the program: (1) Recessed Lensed 2'x4' (4 lamps); (2) 
Recessed Lensed 2'x4' (3 lamps); (3) Recessed 2'x4' (2 lamps); (4) 
Recessed Parabolic Louvered 2'x4' (4 lamps); (5) Recessed Parabolic 
Louvered 2'x4' (3 lamps); (6) Recessed Parabolic Louvered 2'x4' (2 
lamps); (7) Wraparound (2 and 4 lamps); (8) Strip (1 lamp); (9) Strip 
(2 lamps); and (10) Industrial (2 lamps). The Department supports the 
Collaborative's suggestion that the covered luminaires should 
collectively represent approximately 80 percent of the fluorescent 
luminaire market to satisfy EPACT's requirement to cover luminaires 
that are ``widely used.'' If the data submitted to the Department in 
the program description support previous claims that these categories 
represent 80 percent of the fluorescent luminaire market, and show 
potential for significant energy savings, their selection appears to 
provide a reasonable base for the initial phase of the program.
    The American Council for an Energy-Efficient Economy (Council) 
addressed issues concerning the long-term operation of the voluntary 
program, and the ability to confirm market targets and percentages. 
With respect to the information to be provided to consumers, it said 
that information in catalogs and other marketing materials should 
explain that the use of lower-efficacy lamps as replacements in 
luminaires would lower the energy efficiency. Regarding the selection 
of luminaires to be included in the program, the Council urged that a 
mechanism be established to add new luminaire types that gain market 
share in the future. The Council also brought up data collection and 
tracking energy efficiency trends as possible areas of information 
needed. Finally, it urged that the voluntary program meet specified 
percentage targets of manufacturer participation over time: 25 percent 
of luminaires covered by the program after the first year, 50 percent 
the second year, and 75 percent the third year. The Department agrees 
that participation levels should be included in the report on the 
voluntary luminaire program. These issues are addressed in the 
evaluation criteria, infra.
    Other public meeting comments centered on how to verify that 80 
percent of the fluorescent luminaire market is covered by the 10 
categories selected for the program, and how to evaluate whether the 
new energy efficiency information is reaching its target audiences. To 
address these issues, the Collaborative submitted a revised program 
description on July 28, 1994. It proposed that NEMA would collect data 
on luminaire market shares from manufacturers to verify that the 
categories selected for the program represent 80 percent of the market. 
Regarding future data collection on sales of LER-rated luminaires, it 
was suggested that manufacturers provide sales data to the Bureau of 
Census. NEMA would also inform DOE of the number of companies whose 
catalogs show the new energy information. The International Association 
of Lighting Designers, a member of the Collaborative, would be 
responsible for tracking press coverage, and would develop a survey on 
awareness of the program to be used by manufacturers' representatives, 
distributors, and specifiers. The Department views these data 
collection methods as appropriate for tracking the development of the 
program.
    On January 5, 1995, DOE held another public meeting to discuss the 
Department's proposed evaluation criteria with persons interested in 
the development of the voluntary program. Members of the National 
Lighting Collaborative asked that the means by which manufacturer 
participation would be measured be clarified in the evaluation 
criteria. That section has been changed to reflect the suggestions of 
the Collaborative that manufacturer participation be measured as a 
percentage of the sales of LE5-tested fixtures (measured in dollars) to 
the total sales of listed products covered by the program.

3. Evaluation Criteria and Procedures

    The Department of Energy will evaluate voluntary consumer 
information programs for luminaires against the following criteria. In 
order to make its determination, the Department is requesting that any 
program description be submitted to the Department no later than July 
14, 1995. The submitted description should include information 
explaining how the voluntary national testing and information program 
for luminaires addresses each of the elements described below.
    a. Program Organization: Since the Energy Policy Act specifies that 
the voluntary program should be developed by an ``appropriate 
organization (composed of interested parties),'' the Department will 
assess the composition and procedures of the group developing the 
program to determine if it reflects a consensus position within a broad 
spectrum of the lighting community.
    b. Coverage: In order to determine which luminaires are widely used 
and show a potential for significant energy savings, the Department 
will require data supporting the selection of the specific luminaire 
categories to be included in the initial phase of the voluntary 
program, and for verifying the stated market coverage with documented 
data sources. Those luminaires selected shall comprise approximately 80 
percent of the fluorescent luminaire market. In anticipation of new 
products gaining market share and replacing some of those included in 
the initial phase of the program, a plan should be shown for including 
new products in the future.
    c. Testing and Rating: In order to evaluate the program's testing 
procedures, the Department will compare the proposed test procedures to 
existing test procedures, such as those published by the Illuminating 
Engineering Society (IES), and the American National Standards 
Institute (ANSI), to verify the accuracy and validity of the 
procedures. The proposed testing and rating program should provide 
consumers with a consistent standard of measurement for comparing the 
energy efficiency of the luminaires covered by the program.
    d. Information Program: In order to assess the effectiveness of the 
energy efficiency information provided to consumers, the Department 
will evaluate the implementation plan to determine how different 
audiences, such as managerial, technical, and procurement, have been 
targeted. Provisions in the program for the use of catalogs, labels, or 
other materials shall be explained. Concerns over the possible 
substitution of lower-efficacy replacement lamps and other components 
shall be addressed. Examples of new energy efficiency information 
materials shall be submitted.
    e. Manufacturer Participation: In order to assess whether the 
voluntary program proposed is a broad-based, national program, the 
Department will require some indication of manufacturer participation. 
Recognizing that a national program takes both time and resources to 
achieve its objective, it is reasonable to establish targets of 
manufacturer participation, which would gradually increase as the 
program expands over time. Expectations are that approximately 25 
percent of the industry wide shipments (measured in dollars) of the 
listed products (total) will have energy efficiency information 
published in the supporting sales literature by one year from the date 
of publication of this notice. The percentage would become 
approximately 50 percent in 2 years, and approximately 75 percent in 3 
years. A plan for documenting the [[Page 31459]] participation levels 
shall be submitted by July 14, 1995.
    f. Publicity: If the voluntary program is to be effective, a 
companion effort must be made to inform a wide range of lighting 
decision-makers of the new energy efficiency rating for luminaires. The 
Department will assess what strategies have been developed and launched 
to promote the program. A plan for evaluating professional awareness of 
the program shall be submitted.
    g. Market Data: To establish a baseline and provide a means to 
track luminaire efficacy over time, a system for data collection and 
reporting, such as reporting to the Bureau of Census, should be 
established. A plan for this data collection and reporting shall be 
submitted, along with recommendations for ways DOE might evaluate 
energy savings and energy efficiency trends in the industry.
    h. Continuation of the Program: A plan should be established that 
will enable the luminaire testing and information program to be self-
perpetuating, and to include new products as they become significant in 
the marketplace. A second evaluation by DOE in 1 to 2 years may be 
necessary to monitor the progress of the program.

    Issued in Washington, DC, on June 12, 1995.
Christine A. Ervin,
Assistant Secretary, Energy Efficiency and Renewable Energy.
[FR Doc. 95-14703 Filed 6-14-95; 8:45 am]
BILLING CODE 6450-01-P