[Federal Register Volume 63, Number 218 (Thursday, November 12, 1998)]
[Proposed Rules]
[Pages 63360-63372]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-30140]
[[Page 63359]]
_______________________________________________________________________
Part II
Department of Energy
_______________________________________________________________________
Office of Energy Efficiency and Renewable Energy
_______________________________________________________________________
10 CFR Part 432
Energy Conservation Program: Test Procedures for Distribution
Transformers; Proposed Rule
Federal Register / Vol. 63, No. 218 / Thursday, November 12, 1998 /
Proposed Rules
[[Page 63360]]
DEPARTMENT OF ENERGY
Office of Energy Efficiency and Renewable Energy
10 CFR Part 432
[Docket No. EE-TP-98-550]
RIN 1904-AA85
Energy Conservation Program: Test Procedures for Distribution
Transformers
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Notice of Proposed Rulemaking and public hearing.
-----------------------------------------------------------------------
SUMMARY: Pursuant to Section 346(a) of the Energy Policy and
Conservation Act as amended (EPCA), 42 U.S.C. 6317(a), the Department
of Energy (DOE or the Department) proposes to adopt test procedures for
measuring the energy efficiency of distribution transformers. The
Department proposes to use these test procedures in the process of
evaluating whether and what efficiency standards are appropriate for
distribution transformers. If standards are promulgated, then use of
these test procedures would be required to determine compliance and as
a basis for representations. The proposed rule would incorporate by
reference clauses from test procedures contained in commercial
standards. The Department is proposing to use one of two alternative
sets of standards as the primary references: alternative (A) is
primarily based on American National Standards Institute (ANSI)/
Institute of Electrical and Electronics Engineers (IEEE) standards
C57.12.90-1993 and C57.12.91-1995, and alternative (B) is based on
National Electrical Manufacturers Association (NEMA) standard TP 2-
1998, pending its approval by ANSI.
DATES: The Department will accept comments, data, and information
regarding the proposed rule no later than February 5, 1999. Ten (10)
copies must be submitted. In addition, the Department requests that an
electronic copy (3\1/2\'' diskette) of the comments on
WordPerfectTM 6.1 be provided.
A public hearing will be held on January 6, 1999, in Washington,
DC. Requests to speak at the hearing must be received by the Department
no later than 4:00 p.m., December 23, 1998. Ten (10) copies of
statements to be given at the public hearing must be received by the
Department no later than 4:00 p.m., December 23, 1998, and the
Department requests that a computer diskette (WordPerfectTM
6.1) of each statement also be provided at that time.
ADDRESSES: Requests to make statements at the public hearing and copies
of such statements should be addressed to Ms. Brenda Edwards-Jones, and
written comments should be addressed to Ms. Kathi Epping, each at the
following address: U.S. Department of Energy, Office of Energy
Efficiency and Renewable Energy, EE-43, 1000 Independence Avenue, SW,
Washington, DC 20585-0121. All such documents should be identified both
on the envelope and on the documents as ``Energy Conservation Program
for Commercial Products: Test Procedures for Distribution Transformers,
Docket No. EE-TP-98-550.'' The hearing will begin at 9:00 a.m., on
January 6, 1999, and will be held in Room 1E-245 at the U.S. Department
of Energy, Forrestal Building, 1000 Independence Avenue, SW,
Washington, DC. For more information concerning public participation in
this rulemaking proceeding, see section IV, ``Public Comment,'' of this
notice.
Copies of the transcript of the public workshop and public comments
received may be read in the Freedom of Information Reading Room (Room
No. 1E-190) at the U.S. Department of Energy, Forrestal Building, 1000
Independence Avenue, SW, Washington, DC between the hours of 9:00 a.m.
and 4:00 p.m., Monday through Friday, except Federal holidays.
Copies of the standards to be incorporated by reference may be
viewed at the Department of Energy's Freedom of Information Reading
Room at the address stated above. Copies of the referenced standards
may be obtained by request from Global Engineering Documents World
Headquarters (for NEMA Standards TP 1-1996 and TP 2-1998), 15 Iverness
Way East, Inglewood, CO 80112-5776 or the American National Standards
Institute (for ISO Standard 9001-1993 and ANSI standards C57.12.90-
1993, C57.12.91-1995, C57.12.00-1993, and C57.12.01-1989), 11 West 42nd
Street, New York, N.Y. 10036.
FOR FURTHER INFORMATION CONTACT: Kathi Epping, U.S. Department of
Energy, Office of Energy Efficiency and Renewable Energy, EE-43, 1000
Independence Avenue, S.W., Washington, D.C. 20585-0121, (202) 586-7425,
e-mail: Kathi.E[email protected], or Edward Levy, Esq., U.S. Department
of Energy, Office of General Counsel, GC-72, 1000 Independence Avenue,
S.W., Washington, D.C. 20585, (202) 586-9507, e-mail:
Edward.L[email protected].
SUPPLEMENTARY INFORMATION:
I. Introduction
A. Authority
B. Background
C. Summary of the Proposed Test Procedures
II. Discussion
A. Standards to be Incorporated by Reference
B. Distribution transformers not subject to the test procedures
C. Reference Conditions
D. Measures of Energy Consumption
E. Basic Model
F. Number of Units to be Tested
G. New Part 432
III. Procedural Requirements
A. Review Under the National Environmental Policy Act of 1969
B. Review Under Executive Order 12866, ``Regulatory Planning and
Review''
C. Review Under the Regulatory Flexibility Act
D. Review Under Executive Order 12612, ``Federalism''
E. Review Under Executive Order 12630, ``Governmental Actions
and Interference with Constitutionally Protected Property Rights''
F. Review Under the Paperwork Reduction Act
G. Review Under Executive Order 12988, ``Civil Justice Reform''
H. Review Under Section 32 of the Federal Energy Administration
Act of 1974
I. Review Under Unfunded Mandates Reform Act of 1995
IV. Public Comment
A. Written Comment Procedures
B. Public Hearing
1. Procedures for submitting requests to speak
2. Conduct of hearing
C. Issues Requested for Comment
I. Introduction
A. Authority
The National Energy Conservation Policy Act of 1978, Pub. L. 95-
619, amended the Energy Policy and Conservation Act (EPCA) to add a
Part C of Title III, which established an energy conservation program
for certain industrial equipment. The most recent amendments to EPCA,
in the Energy Policy Act of 1992 (EPAct), Public Law 102-486, included
amendments that expanded Title III of EPCA to include certain
commercial water heaters and heating and air-conditioning equipment,
incandescent and fluorescent lamps, electric motors, and electric
distribution transformers.
Among these amendments is Section 124(a) of EPACT, which amended
Section 346 of EPCA, 42 U.S.C. 6317, to provide that the Secretary of
Energy must prescribe testing requirements and energy conservation
standards for those distribution transformers for which the Secretary
determines that standards ``would be technologically feasible and
[[Page 63361]]
economically justified, and would result in significant energy
savings.'' 42 U.S.C. 6317(a). On October 22, 1997, the Department
issued a notice setting forth its determination (``Determination
notice'') that, based on the best information currently available,
energy conservation standards for electric distribution transformers
are technologically feasible and economically justified and would
result in significant energy savings. 62 FR 54809. Consequently, the
Department is now proceeding to establish, by notice and comment
rulemaking, test procedures for distribution transformers.
In the Determination notice, the Department construed the term
``distribution transformer'' in section 346 of EPCA to mean ``all
transformers with a primary voltage of 480 V to 35 kV, a secondary
voltage of 120 V to 480 V, and a capacity of either 10 to 2500 kVA for
liquid-immersed transformers or 0.25 kVA to 2500 kVA for dry-type
transformers,'' except for transformers which are not continuously
connected to a power distribution system as a distribution transformer.
The Department believes this exception would include regulating
transformers, machine tool transformers, welding transformers,
grounding transformers, testing transformers, and other transformers
which are not designed to transfer electrical energy from a primary
distribution circuit to a secondary distribution circuit, or within a
secondary distribution circuit, or to a consumer's service circuit. The
Department indicated that all products included in this definition of
``distribution transformer'' would be addressed in its rulemakings on
energy efficiency test procedures and standards for transformers.
Subsequently, the Department has learned that industry typically
classifies transformers with a secondary voltage up to 600 V as
distribution transformers. These transformers are included, for
example, in the scope of NEMA standard TP 1. In light of industry usage
and practice, the Department has decided that the term ``distribution
transformer'', in the statute, includes transformers with a secondary
voltage 480 V to 600 V, in addition to those transformers in the above-
mentioned definition. These additional transformers are covered by
today's proposed test procedures, and will be included in the
Department's consideration of efficiency standards for transformers.
B. Background
The Secretary's Determination notice was based, in part, on
analyses conducted by the Oak Ridge National Laboratory (ORNL). In July
1996, ORNL published a report, entitled ``Determination Analysis of
Energy Conservation Standards for Distribution Transformers, ORNL-
6847'' which assessed several options for setting efficiency standards.
The report was based on information from annual sales data, average
load data, and surveys of existing and potential transformer
efficiencies that were obtained from several organizations. In
September 1997, ORNL published a second report, entitled ``Supplement
to the ``Determination Analysis'' (ORNL-6847) and Analysis of the NEMA
Efficiency Standard for Distribution Transformers, ORNL-6925''. The
purpose of this report was to assess NEMA TP 1 along with the options
considered in the determination study, using the more accurate analysis
model and transformer market and loading data developed subsequent to
the publication of the original ORNL report.
On February 10, 1998, the Department held a public workshop with
representatives from the National Electrical Manufacturers Association
(NEMA), manufacturers, utilities, Federal and state agencies, foreign
government, and other interested parties in Washington, DC. Draft Test
Procedures were presented as a basis for discussion. In addition, the
following issues were discussed: (a) adoption of national and
international consensus standards in the test procedures for
determining energy efficiency of distribution transformers, (b) burden
imposed on industry, especially on manufacturers, by additional testing
and data processing, (c) the definition of ``basic model'' for
distribution transformers, (d) sampling plan for units to be tested,
(e) selection of a measure of energy consumption for distribution
transformers, (f) selection of reference temperatures, (g) requirement
for applying corrections to measurement data of both liquid-immersed
and dry-types of transformers, (h) requirements for quality assurance
in testing, and (i) defining the transformers which are to be covered
by the test procedures. A transcript of the public workshop is
available at the Freedom of Information Reading Room.
NEMA submitted a written statement at the workshop, and 5 comments
were received subsequent to the public workshop. A letter from Don
Ballard (industry consultant) and a letter from the US Department of
Agriculture concerning issues relating to today's notice were submitted
to DOE prior to the public workshop. The Department will consider these
two letters as part of the public comment received. The comments made
at the workshop as well as the written comments were considered in
preparing the test procedure presented in today's proposed rule, and
recommendations were incorporated where appropriate. The reasons for
not incorporating any significant recommendations are explained in
section II of today's proposed rule.
C. Summary of the Proposed Test Procedures
The Department will use the test procedures in today's proposed
rule in the process of evaluating whether and what efficiency standard
levels are appropriate for distribution transformers. If efficiency
standards are promulgated, then manufacturers would be required to use
these test procedures to determine compliance with the standards and as
a basis for representations they make as to the efficiency levels of
the transformers they produce.
The Department is proposing that a uniform set of test procedures
be applied to all distribution transformers for which standards will be
considered, and to all for which standards are ultimately adopted. This
does not necessarily mean, however, that a single standard or set of
labeling requirements will be adopted for all transformers. In possible
future rulemakings addressing standards and labeling, distribution
transformers will be divided into classes, if appropriate. A separate
class and an appropriate standard will be created for each group of
products where the record indicates the product includes a utility or
performance-related feature that affects energy efficiency. Moreover,
in evaluating an efficiency standard in a future rulemaking, the
Department will consider whether the standard would result in any
lessening of the utility or performance of the transformer(s) that
would be covered by the standard. Finally, even if standards are
promulgated for distribution transformers, some classes of transformers
may be excluded from standards.
The Department proposes today to incorporate by reference clauses
from industry standards for measuring the energy efficiency of
distribution transformers. The proposed rule contains two alternative
sets of standards for testing transformers for energy consumption and
efficiency, and the Department intends to select one of
[[Page 63362]]
these alternatives for inclusion in the final rule. Alternative (A) is
primarily based on American National Standards Institute (ANSI)/
Institute of Electrical and Electronics Engineers (IEEE) standards
C57.12.90-1993 and C57.12.91-1995, and alternative (B) is based on
National Electrical Manufacturers Association (NEMA) standard TP 2-
1998. The two reference test standards under alternative (A) are well
established within the industry and have been used for over two
decades. Limited additional reference is made under alternative (A) to
ANSI/IEEE C57.12.00-1993 regarding reference temperatures, loss
tolerances, and measurement tolerances. With respect to actual tests
and measurements for power losses leading to energy consumption and
efficiency, the material in the C57 series standards and TP 2 is nearly
identical. The NEMA standard TP 2-1998, referenced in alternative (B),
combines all information applicable to tests, measurements for energy
consumption, and calculation of efficiency in a single document
applicable to both liquid-immersed and dry-type transformers.
The test procedure involves the measurement of electric power
consumed by the transformer in the form of no-load and load losses, as
well as the determination of certain other quantities needed to
establish the test conditions: temperature of the windings and the
core; current; voltage; frequency and waveform of voltage; and direct
current resistance of the windings. Today's proposed rule also proposes
a sampling plan for testing a basic model to establish its compliance
with standards and to provide a basis for efficiency representations.
In addition to discussing the standards to be incorporated by
reference, the following issues are discussed below: distribution
transformers not subject to the test procedures, the reference
conditions in the test procedure, measures of energy consumption, the
definition of a ``basic model'' to permit grouping of models for
testing purposes, and the sampling plan.
II. Discussion
A. Standards to be Incorporated by Reference
The Department is proposing to incorporate by reference specific
portions of either three widely used commercial standards, or of a
standard being developed by the National Electrical Manufacturers
Association (NEMA), as a test procedure in Appendix A of 10 CFR part
432. The three national standards were prepared by the IEEE and
approved by ANSI: (1) ANSI/IEEE C57.12.90-1993, ``IEEE Standard Test
Code for Liquid-Immersed Distribution, Power and Regulating
Transformers and IEEE Guide for Short Circuit Testing of Distribution
and Power Transformers,'' (2) ANSI/IEEE C57.12.91-1995, ``IEEE Standard
Test Code for Dry-Type Distribution and Power Transformers,'' and (3)
ANSI/IEEE C57.12.00-1993, ``IEEE Standard General requirements for
Liquid-Immersed Distribution, Power and Regulating Transformers.''
ANSI/IEEE C57.12.90-1993 and ANSI/IEEE C57.12.91-1995 are considered
primary references as they address tests and measurements leading to
the energy consumption and efficiency values. ANSI/IEEE C57.12.00-1993
complements the previous two ANSI/IEEE standards by specifying the
reference temperatures and measurement tolerances, which are essential
in fully defining the measurement data. The three aforementioned
standards contain more material than the information that is applicable
to loss or efficiency testing. Hence, only the applicable sections and
clauses are incorporated by reference in today's proposed rulemaking.
The Department is considering referencing a single clause, 4.11.1,
of International Standards Organization (ISO) Standard 9001-1993,
``Quality Systems--Model for quality assurance in design, development,
production, installation, and servicing,'' for guidance purposes only,
concerning compliance with requirements for quality assurance of the
test and measuring equipment.
The remaining reference standard being considered by the Department
was prepared by NEMA: TP 2-1998, ``Test Method for Measuring the Energy
Consumption of Distribution Transformers.'' It is also considered a
primary reference standard. This NEMA publication is planned for
submission to the ANSI C57 committee for review and possible approval
as a national standard, thus including in the approval process a
broader constituency, such as the electric utility industry, which is
the principal user group of distribution transformers.
In addition, IEEE PC57.123, ``Draft Guide for Transformer Loss
Measurement'' is nearing completion and provides additional guidance on
how to conduct transformer loss measurements. The Department is also
aware that a revised version of ANSI/IEEE C57.12.01 is currently being
balloted. If adopted, this revision would make C57.12.01 more
consistent with C57.12.00 in specifying measurement tolerances. DOE
will examine these documents for possible incorporation by reference in
the final DOE test procedures, if they have been approved by IEEE,
their sponsoring organization (and preferably by ANSI as well), prior
to adoption of the final rule. After the final rule is published,
however, any subsequent amendments to any of the referenced standards
by the standard-setting organizations (ANSI, IEEE, NEMA, ISO) would
become part of the DOE test procedure only if DOE amends the test
procedure to incorporate them.
In comments on workshop issues, NEMA recommends TP 2-1998 as the
sole primary reference to be incorporated in the DOE test procedure,
because it combines in one document the subject matter that is now
available in several documents. DOE recognizes the advantages of having
all relevant testing requirements in a single primary reference because
it enhances the convenience for users and will facilitate future
harmonization. However, DOE also desires to incorporate consensus
standards that have the broadest acceptance by the stakeholders, such
as the cited ANSI standards.
The Department is concerned over whether TP 2 has undergone broad-
based scrutiny. In order for DOE to accept TP 2, the Department would
need to have sufficient evidence that all users and stakeholders have
had an opportunity to review TP 2. The Department would like comments
from stakeholders, such as utilities and contractors who specify
transformers for commercial and industrial applications (e.g., retail,
industrial, and office buildings), on the adequacy of TP 2 to measure
transformer efficiency. The Department also is concerned that portions
of the current version of TP 2 have been abbreviated from the ANSI/IEEE
standards, and certain portions are ambiguous and should be made more
explicit. There are also instances in which the terminology should be
changed. In addition, certain portions do not read as if the current
version of TP 2 is a final document. If these concerns with TP 2 are
addressed during the ANSI approval process as the Department believes
is likely, and if TP 2 receives approval from ANSI, the Department
would be inclined to adopt alternative B.
B. Distribution Transformers Not Subject to the Test Procedures
The commercial standards on which today's proposed test procedures
are based are intended to test 60 Hz transformers, although the
standards allow for minor variations in frequency. Many manufacturers
would need to
[[Page 63363]]
modify test equipment in order to accurately conduct tests for
transformers that operate at frequencies that deviate substantially
from 60 Hz. Because such distribution transformers comprise a small
segment of the market, they have little potential for resulting in
significant energy savings. In addition, transformers with frequencies
other than 60 Hz were not included in the ORNL Determination analyses.
Consequently, the Department is proposing that the test procedures in
today's proposed rule cover only 55 to 65 Hz transformers, and the
Department intends to evaluate only 60 Hz transformers in a possible
future standards rulemaking. The Department does not believe this will
cause ``loopholes'' because it would not be beneficial to the
manufacturers to substitute transformers at substantially different
frequencies for 60 Hz applications.
In addition, the Department recognizes that the efficiency of
distribution transformers connected to rectifier and converter circuits
cannot be readily tested or accurately measured by the conventional
loss measurement test procedures outlined in today's proposed rule. The
nameplates of these transformers contain a rating for the fundamental-
frequency apparent output power and a rating for the apparent output
power with non sinusoidal current produced by the converter. The latter
is inherently smaller than the former, because harmonic currents
produce losses in addition to those of the fundamental-frequency
current. As a result of additional physical and electrical requirements
in the design of converter and rectifier transformers, their
performance is optimized for the output power rating with non
sinusoidal current, yielding less than the optimal performance at
fundamental frequencies, as would be required in a general purpose
distribution transformer. Conversely, optimally designed distribution
transformers of other types will not meet the optimal requirements of a
converter and rectifier transformer. These transformers also were not
included in the ORNL Determination analyses. In addition, rectifier and
converter transformers generally have more than two windings per phase,
requiring more magnetic material and resulting in higher no-load
losses. For these reasons, the test procedures in today's proposed rule
will not apply to converter and rectifier transformers with more than 2
windings per phase, and the Department is not inclined to evaluated
these transformers in a possible future standards rulemaking.
For the purposes of these test procedures, the Department proposes
to define the term ``distribution transformer'' to mean all
transformers with a primary voltage of 480 V to 35 kV, a secondary
voltage of 120 V to 600 V, a frequency of 55-65 Hz, and a capacity of
either 10 kVA to 2500 kVA for liquid-immersed transformers or 0.25 kVA
to 2500 kVA for dry-type transformers, except for transformers which
are not designed to be connected to a power distribution system as a
distribution transformer. These exceptions would include regulating
transformers, machine tool transformers, welding transformers,
grounding transformers, testing transformers, and other transformers
which are not designed to transfer electrical energy from a primary
distribution circuit to a secondary distribution circuit, or within a
secondary distribution circuit, or to a consumer's service circuit.
Converter and rectifier transformers with more than two windings per
phase also would not be included.
C. Reference Conditions
There is considerable diversity in the reference conditions
specified in the existing commercial standards. Under the current
industrial practice, the load losses of liquid-immersed transformers
are reported at the rated load and the reference temperature of 85 deg.
C, as specified by ANSI/IEEE C57.12.00. This reference temperature is
based on an ambient temperature of 20 deg. C and the temperature rise
of 65 deg. C. The load losses of dry-type transformers are reported at
the rated load and, depending on the insulation system used, at one of
five specified temperature rises in addition to an ambient temperature
of 20 deg. C, as specified by ANSI C57.12.01. The resulting reference
temperatures are: 80, 100, 135, 150, and 170 deg. C. ANSI standards
C57.12.90 and C57.12.91 provide an identical algorithm for converting
the measured load loss values to specified reference temperatures.
For no-load losses of liquid-immersed transformers, ANSI C57.12.00
specifies the reference temperature of 20 deg. C, thus approximating
ambient conditions. Additionally, ANSI C57.12.90 provides an algorithm
for converting a no-load loss value measured at another temperature to
that at the reference temperature. No reference temperature is
specified for the no-load losses of the dry-type transformers.
Finally, NEMA TP 1-1996 recommends minimum efficiencies and the
following reference conditions for distribution transformers:
------------------------------------------------------------------------
No-load Load
losses losses
------------------------------------------------------------------------
Liquid-immersed (50% of rated load)............... 20 deg. C 85 deg. C
Medium-voltage dry-type (50% of the rated load)... 20 deg. C 75 deg. C
Low-voltage dry-type (35% of the rated load)...... 20 deg. C 75 deg. C
------------------------------------------------------------------------
In order to address the inconsistencies in the reference conditions
among the industry standards, the proposed rule specifies the
following: (1) Use a consistent reference temperature of 20 deg. C for
reporting the no-load losses of both liquid-immersed and dry-type
transformers, and correct the measured no-load loss data of dry-type
transformers to 20 deg. C as required in ANSI standards for liquid-
immersed transformers, if such a correction is significant relative to
required measurement accuracy; (2) correct the measured load loss data
of dry-type transformers for phase angle errors in the measuring
equipment as required in ANSI standards for liquid-immersed
transformers, if such errors are significant relative to required
measurement accuracy; (3) use an efficiency selected at lower than the
rated loading and using a reference temperature for load losses that
approximates the temperature rise at new loading conditions, as opposed
to using temperature rises, as in ANSI/IEEE standards, for rated
nameplate loading; and (4) measure losses of dry-type transformers to
the same accuracy as specified for liquid-immersed transformers.
These reference conditions enhance uniformity in requirements and
facilitate comparison of products using both liquid-immersed and dry-
type insulations. Therefore the proposed rule requires that test
results be reported at the following loads and reference temperatures:
1
---------------------------------------------------------------------------
\1\ Establishing specific loading levels is properly part of the
energy conservation standard, but correction of measurement data to
new reference conditions (including loading levels) must be included
in the test procedure. Today's proposed test procedures use the
loading levels in NEMA TP 1, because they appear to be widely used
in the industry and are reasonable for testing that is conducted to
consider and develop standards. Any standards that are prescribed
for transformers will include specific loading levels, which the
Department will incorporate into the applicable test procedures.
[[Page 63364]]
------------------------------------------------------------------------
No-load Load
losses losses
------------------------------------------------------------------------
Liquid-immersed (50% of rated load)............... 20 deg.C 55 deg.C
Medium-voltage \2\ dry-type (50% of the rated
load)............................................ 20 deg.C 75 deg.C
Low-voltage \3\ dry-type (35% of the rated load).. 20 deg.C 75 deg.C
------------------------------------------------------------------------
Under the proposed rule, the measured no-load and load losses used in
the efficiency computation would be adjusted to the stated reference
conditions, the total uncertainty (including measurement inaccuracy and
uncertainty resulting from lack of reference condition adjustments)
exceeds 3 percent.
---------------------------------------------------------------------------
\2\ Medium voltages are considered to be greater than 1200
volts.
\3\ Low voltages are considered to be no greater than 1200
volts.
---------------------------------------------------------------------------
These reference temperatures were selected with the objectives of
obtaining uniformity in reference conditions, having reference
conditions that best reflect the actual operating conditions, and
maintaining consistency with the practices of the current commercial
standards as much as possible. Fully satisfying all three criteria,
however, was not practical or even possible, due to the previously
mentioned diversity in the existing practice and the inherent
differences between liquid-immersed and dry-type transformers. The
proposed reference temperature to which no-load losses would be
adjusted for both types of transformers is 20 deg.C, which is
consistent with C57.12.00 and TP 1, but not with C57.12.01 which does
not specify the reference temperature for no-load losses of dry-type
transformers. The 20 deg.C reference temperature is close to the
ambient temperature; therefore losses can be easily measured when the
transformer is cold, but this reference temperature does not represent
operating conditions. However, because the changes in the core losses
due to temperature are small (quoted in C57.12.90 as 6.5 x
10-4 per unit per deg.C), these differences will have only
a small effect on the resulting calculated efficiency.
If a transformer is being tested for efficiency at less than full-
rated or nameplate loading (as may be the case for a possible future
efficiency standard), it is proper to adjust the reference temperature
for load losses. A well established algorithm published in ANSI
C57.12.90 and ANSI C57.12.91 is used to perform the computational
operation to convert load losses measured at a given temperature to
equivalent load losses at a different reference temperature. For load
losses of dry-type transformers, TP 1 recommends a single reference
temperature of 75 deg.C, as a substitute for the five temperatures at
the rated load corresponding to the five insulation classes. To assess
the adequacy of this adjustment, reduced operating temperatures were
calculated at 50% and 35% of rated load for all five temperature
classes of dry-type insulation and for liquid-immersed insulation. The
relationship whereby the temperature rise (T) is proportional
to the 0.8th power of the dissipated power (W) was used for this
calculation. Thus, T = kW0.8, where k is a
constant. The assumption was made that, at the rated load, 75% of
dissipated power is the load loss and the remainder is no-load (core)
loss.
The results are summarized in Table 1 for both 50% and 35% of the
rated loads. Note that for dry-type transformers, out of 10 estimated
reference temperatures, five are below 75 deg.C, four are above, and
one is exactly on. Thus, the selected value in TP 1 represents a
reasonable compromise, especially if each of the 10 groups were to have
similar installed kVA capacity.
Table 1.--Calculated Temperature Rises for Transformers Operated at Lower Than The Rated (Nameplate) Load
--------------------------------------------------------------------------------------------------------------------------------------------------------
Estm. Estm.
Temperature Reference Temperature reference Temperature reference
Insulation system temperature rating deg.C rise at rated temperature rise at 50% of temperature at rise at 35% of temperature at
load deg.C deg.C rated load 50% of rated rated load 35% of rated
deg.C load deg.C deg.C Load deg.C
--------------------------------------------------------------------------------------------------------------------------------------------------------
Liquid-Immersed
--------------------------------------------------------------------------------------------------------------------------------------------------------
85...................................................... 65 85 35 55 .............. ..............
--------------------------------------------------------------------------------------------------------------------------------------------------------
DryType
--------------------------------------------------------------------------------------------------------------------------------------------------------
130..................................................... 60 80 30 50 25 45
150..................................................... 80 100 40 60 35 55
185..................................................... 115 135 60 80 50 70
200..................................................... 130 150 65 85 55 75
220..................................................... 150 170 75 95 65 85
--------------------------------------------------------------------------------------------------------------------------------------------------------
Assumptions:
No-load losses 25%; load losses 75%.
Algorithm: T=kW0.8.
T--temperature rise.
W--dissipated power.
k--constant.
T rounded off to the nearest 5 deg.C.
For liquid immersed transformers, in the proposed test procedure
the reference temperature for the load losses is lowered from 85 deg.C
(in C57.12.00 and C57.12.90) to 55 deg.C. This adjustment better
approximates the conditions of the actual use of these transformers,
and was arrived at using the same type of approach that was used to
calculate the adjustment of the load loss reference temperature for
dry-type transformers.
The written comments received in conjunction with the workshop on
February 10, 1998, support 20 deg.C as the reference temperature for
no-load losses of both types of transformers and 75 deg.C as the
reference temperature for load
[[Page 63365]]
losses of dry-type transformers. For load losses of liquid-immersed
transformers, stakeholders agreed with using a reference temperature
lower than 85 deg.C but did not recommend a specific value.
D. Measures of Energy Consumption
The test procedure provides for three interrelated measures of
energy consumption: (a) total transformer losses, (b) transformer
efficiency, and (c) estimated annual energy consumption (EAEC). Under
the test procedure, each measure is computed at the loading parameters
used in NEMA TP 1-1996: 50% of the rated load for liquid-immersed and
medium-voltage dry-type transformers, and at 35% of the rated load for
low-voltage dry-type transformers.
Transformer losses consist of load losses and no load losses. Load
losses vary quadratically with the output current and, hence, with
output power. No load losses vary with excitation volatge. The
efficiency of a transformer varies with the output power as a result of
varying losses.
The industry practice, as required by the cited ANSI standards, has
been to measure and report transformer losses rather than energy
efficiency. DOE believes that efficiency is the preferable energy
descriptor because it is a normalized measure and allows trade-offs
between the two types of losses, load losses and no-load losses.
Workshop participants supported efficiency as a measure for energy
conservation in distribution transformers. Consequently the Department
is inclined to use efficiency as the energy descriptor for any
standards that may be promulgated.
Expressing energy consumption in terms of efficiency presents some
difficulties in calculations and adjustment of test data (e.g. to
reference conditions) because accuracy may be lost in the rounding-off
process to the nearest tenth of one percent. To avoid this loss of
computational accuracy, under the proposed rule, the intermediate
calculations would use transformer losses (in watts) or would use
percent efficiency with two digits after the decimal point. Only the
final efficiency percentage would be rounded off to the nearest one
tenth of one percent.
E. Basic Model
It is common for a manufacturer to make numerous models of a
product covered by EPCA, and under the Act each model is potentially
subject to testing for energy efficiency. Moreover, for appliances
covered by the EPCA energy conservation program, although not for
distribution transformers, several models often are essentially the
same, with each model having some refinement that does not
significantly affect the energy efficiency or performance. In order to
lessen the burden of test procedures, generally appliance models having
essentially identical electrical and mechanical characteristics are
categorized into a family of models. The Department has used the term
``basic model'' to identify a family of such models, which consist of
products or items of equipment whose performance, design, mechanical,
and functional characteristics are essentially the same. Components of
similar design may be substituted in a basic model without requiring
additional testing if the represented measures of energy consumption
continue to satisfy applicable provisions for sampling and testing.
Only representative samples within each ``basic model'' are tested.
Thus, the term ``basic model'' has been defined as follows: ``Basic
model means all units of a given type of covered product (or class
thereof) manufactured by one manufacturer and--* * *[as to dishwashers,
for example] which have electrical characteristics that are essentially
identical, and which do not have any differing physical or functional
characteristics which affect energy consumption.'' 10 CFR 430.2.
At the February 1998 workshop, DOE presented a similar definition
for transformers, but it was opposed by all groups and individuals
because distribution transformers, unlike consumer appliances, are not
produced in large numbers of virtually identical units. However, NEMA
presented an approach in which a basic model could be defined to
include all transformers having the same nominal power (kVA) rating,
the same insulation type (liquid-immersed or dry-type), and the same
number of phases (single or three), and operating within the same
voltage range. Under NEMA's definition, ``rating'' means a standard
output power rating, as tabulated in NEMA TP 1-1996, tables 4-1 and 4-2
(reproduced herein as tables 2 and 3), but will encompass some ratings
that are close but not equal to the standard ratings. These power
ratings are also the preferred ratings from ANSI/IEEE C57.12.00-1993
for liquid-immersed transformers and ANSI/IEEE C57.12.01-1989 for dry-
type transformers.
The Department believes the foregoing approach to defining ``basic
model'' is a sound means to reduce the burden of testing. It would
apply an approach to distribution transformers that has proven
effective in the residential appliance program, but with appropriate
modifications given the nature of distribution transformers. The
factors outlined in this approach are the design variables that affect
a transformer's efficiency. Design considerations cause a transformer's
efficiency to increase as its power rating increases. For dry type
transformers, efficiency decreases as voltage increases, when all other
factors are held constant. In addition, liquid-immersed insulation is
inherently more efficient than dry-type insulation, and multiple phases
slightly decrease efficiency. Consequently, the Department believes the
assignment of minimum efficiencies will likely be made in accordance
with such groupings. For example the Canadian energy conservation
standard for distribution transformers implements this approach.
Therefore, the Department is proposing the definition for ``basic
model'' be based on NEMA's approach.
Table 2.--Preferred Standard kVA Ratings Liquid-Immersed Distribution
Transformers
------------------------------------------------------------------------
Single-Phase
Power Rating:
10
15
25
37.5
50
75
100
167
250
333
500
667
833
Three-phase
Power Rating:
15
30
45
75
112.5
150
225
300
500
750
1000
1500
2000
2500
------------------------------------------------------------------------
[[Page 63366]]
Table 3.--Preferred Standard kVA Ratings Dry-Type Distribution
Transformers
------------------------------------------------------------------------
Medium
Low voltage,
Power rating, kVA voltage, >
1.2 kV 1.2 kV
------------------------------------------------------------------------
Single-Phase
------------------------------------------------------------------------
15
25
37.5
50
75
100
167
250
333
500
667
833
------------------------------------------------------------------------
Three-Phase
------------------------------------------------------------------------
15
30
45
75
112.5
150
225
300
500
750
1000
1500
2000
2500
------------------------------------------------------------------------
The Department has some concern, however, that this approach may
allow manufacturers who sell some high efficiency models to
deliberately under design other transformers within that basic model,
while still meeting the standard for the average efficiency of the
basic model. The Department is considering addressing this point by
imposing a maximum efficiency variation within a basic model, similar
to what is now done in ANSI/IEEE C57.12.00 and C57.12.01, as well as
NEMA TP 2. The Department would like comments on this concern.
F. Number of Units to be Tested
As discussed above, the classification of transformers into ``basic
models'' is one step to reduce the burden of testing. The Department
also proposes to permit the use of a statistically meaningful sampling
procedure for selecting test specimens, so as to further reduce the
testing burden on manufacturers while giving sufficient assurance that
the true mean energy efficiency of a basic model meets or exceeds the
efficiency level claimed by the manufacturer.
Although the sampling plan presented in this test procedure rule
might have some application during the evaluation of possible
efficiency standards, it would become operative primarily if and when
standards are promulgated. At that point, the efficiency of each basic
model of distribution transformer would be established initially by
``compliance testing'' for the purposes of determining whether the
transformer complies with the applicable efficiency standard and of
labeling the transformer. A sampling plan for compliance is intended to
provide a statistically meaningful sampling procedure for conducting
tests, so as to reduce the testing burden while giving sufficient
assurance that the true mean energy efficiency of a basic model (i.e.,
the average efficiency of all units manufactured) meets or exceeds a
given performance level.
For this purpose, one product under 10 CFR Part 430, Sec. 430.24,
involves some similarities with distribution transformers. The required
sampling plan for compliance testing of fluorescent lamp ballasts under
Sec. 430.24 (q)(1) states, ``For each basic model of fluorescent lamp
ballasts, as defined in paragraph (14) of Sec. 430.2, a sample of
sufficient size, no less than four, shall be tested to insure that (i)
any represented value of estimated annual operating costs, energy
consumption, or other measure of energy consumption of a basic model
for which consumers would favor a lower value shall be no less than the
higher of (A) the mean of the sample or (B) the upper 99 percent
confidence limit divided by 1.01, and (ii) any represented value of the
ballast efficiency factor or other measure of energy consumption of a
basic model for which consumers would favor a higher value shall be no
greater than the lower of (A) the mean of the sample or (B) the lower
99 percent confidence limit of the true mean divided by 0.99.''
A sampling plan for enforcement, on the other hand, is intended to
provide a statistically meaningful sampling procedure for conducting
tests, so as to reduce the testing burden while giving sufficient
assurance that a distribution transformer found to be in noncompliance
will actually be in noncompliance. The sampling plan for enforcement
testing under Part 430 is provided in 10 CFR 430.70, Appendix B. This
sampling plan is based on the statistical t-test yielding 97.5 percent
probability of obtaining a determination of compliance when the true
mean efficiency is equal to the applicable standard.
At the February 1998 workshop, DOE presented both sampling
approaches for consideration for compliance testing for distribution
transformers. In the comments on workshop issues, NEMA recommended the
enforcement sampling test also be used for demonstration of compliance.
However, after reviewing these approaches more closely, the Department
believes the sampling plan for compliance in Part 430 favors consumers
by providing high statistical probability that the mean performance of
the basic model meets or exceeds the performance level claimed by the
manufacturer based on testing a small number of models. Most of the
error introduced by estimating the performance of the basic model from
a sample (rather than from testing all units) is absorbed by the
producer (manufacturer). The probability of false determination of
compliance is low and is quantifiable from the confidence limit and the
divisor. For example, for transformer losses, using a lower confidence
limit of 95%, 0.97 as the divisor, and assuming a standard deviation of
3% for a basic model and a minimum sample size of five, possible errors
and corresponding probabilities for false determinations of compliance
are:
Error in percent............................. 1.5 2.0 2.9
Probability in percent....................... 10 5 1
Under these constraints there is a probability of less than 5% that the
estimated average losses of the entire population exceed the true
average by 2%.
Conversely, the enforcement sampling approach in Part 430 is based
on a Student's t-test; it generally tests whether there is a
sufficiently high probability to conclude that the average performance
of all units of the basic model is below the standard to warrant
enforcement action. By selecting an upper confidence limit and a
minimum sample size, the probability of the populations not meeting the
standard by a certain amount can be established. For example, for
transformer losses, using the upper 95% confidence limit and a sample
size of five, on a population with standard deviation of 3%, the
possible errors and corresponding probabilities for significant false
determinations of compliance are high as shown in the table below:
Error in percent............................. 0.8 2.9 5.7
Probability in percent....................... 90 50 5
Under these constraints there is a probability of almost 50% that the
estimated average losses of the entire population exceed the true
average by 3%.
Thus, after considerable review, the Department is proposing in
today's proposed rule to use Part 430's sampling
[[Page 63367]]
approach for compliance testing. For transformer losses, the proposed
lower confidence limit is 95%, and the divisor is 0.97, with a minimum
sample size of five.
Some manufacturers, however, particularly small companies, have
limited output of certain basic models; consequently, under today's
proposed sampling plan, a manufacturer would need to test a relatively
high proportion of the units it manufactures of such a basic model.
Moreover, although the Department could provide in its sampling plan
that the minimum number of units tested of a low production basic model
be reduced from five to two or three, any such basic model would be
subject to increased risk of being determined to be in non-compliance
due to the statistical probabilities associated with testing a small
number of units. To allay these concerns, the Department is considering
three possible approaches for sampling limited production models:
(1) Combine two or more limited production basic models of
distribution transformer into an aggregate ``basic model'';
(2) Allow testing of a sample fewer than five units, and also
permit the use of a represented efficiency value that exceeds, by a
specified increment, the average efficiency of the sample, so long as
each tested unit exceeds a
minimum level of efficiency \4\;
---------------------------------------------------------------------------
\4\ DOE is considering, as a method of implementing this
approach, the following: If fewer than 5 units of a basic model are
manufactured in a period of 180 days, all units manufactured within
this period shall be tested, and the average efficiency of the
sample E shall satisfy the condition
E ES [1 - 0.04 n (1 -
ES 100)]
where n is the number of units in the sample, and Es
is the represented value of efficiency.
For sample sizes of two, three, or four transformers, the lowest
efficiency in the sample Emin shall satisfy the condition
Emin ES [1 - 0.08 (1 -
ES 100)]
---------------------------------------------------------------------------
(3) Allow compliance testing over a period of time.
The third alternative would be similar to the Department's approach
for lamps, which permits lamp manufacturers to submit a certification
report up to one year after the date the manufacture of a new model
commences, provided that prior to distribution the manufacturer submits
a statement describing how it determined the model meets the energy
conservation standard. See section 430.62(c)(2) and 42 U.S.C.
6295(i)(7). The Department solicits comments on these possible
approaches.
G. New Part 432
10 CFR part 430 covers consumer products as distinct from
commercial and industrial equipment. The Department proposed to create
a new part 431 in the Code of Federal Regulations (10 CFR part 431) to
cover certain commercial and industrial equipment 61 FR 60439 (November
27, 1996). The Department is now contemplating adding a new Part 432
which would include products addressed under 346 of EPCA.
III. Procedural Requirements
A. Review Under the National Environmental Policy Act of 1969
In this rulemaking, the Department proposes provisions to establish
test procedures for electric distribution transformers. These test
procedures would be used initially only for the purpose of considering
the adoption of energy conservation standards. During a subsequent
rulemaking concerning such standards, the Department will address the
extent to which these test procedures would become generally applicable
and binding for determining the energy efficiency of distribution
transformers.
The Department has concluded that this rule would not have a
significant effect on the human environment, and is covered under the
categorical exclusion A.6 of appendix A to Subpart D, 10 CFR Part 1021,
which applies to procedural rulemakings. (10 CFR Part 1021 is a DOE
regulation implementing the National Environmental Policy Act of 1969
(NEPA), and Appendix A to Subpart D sets forth DOE actions excluded
from NEPA review.) Accordingly, neither an environmental assessment nor
an environmental impact statement is required.
B. Review Under Executive Order 12866, ``Regulatory Planning and
Review''
Today's proposed rule has been determined not to be a ``significant
regulatory action,'' as defined in section 3(f) of Executive Order
12866, ``Regulatory Planning and Review.'' 58 FR 51735 (October 4,
1993). Accordingly, this action was not subject to review under the
Executive Order by the Office of Information and Regulatory Affairs.
C. Review Under the Regulatory Flexibility Act
The Regulatory Flexibility Act, 5 U.S.C. 603, requires the
preparation of an initial regulatory flexibility analysis for every
rule which by law must be proposed for public comment, unless the
agency certifies that the rule, if promulgated, will not have a
significant economic impact on a substantial number of small entities.
A regulatory flexibility analysis examines the impact of the rule on
small entities and considers alternative ways of reducing negative
impacts.
Today's proposed rule prescribes test procedures that will be used
to determine what standards, if any, DOE would adopt, and that would
likely become generally applicable only upon adoption of standards.
Unless and until such standards are adopted, the Department anticipates
that manufacturers will use the test procedures to voluntarily test
their transformers and provide to DOE efficiency information about
their products. No entities, small or large, would be required to
comply with these test procedures. Therefore DOE believes today's
proposed rule does not have a ``significant economic impact on a
substantial number of small entities,'' and the preparation of a
regulatory flexibility analysis is not warranted.
D. Review Under Executive Order 12612, ``Federalism''
Executive Order 12612, ``Federalism,'' 52 FR 41685 (October 30,
1987), requires that regulations, rules, legislation, and any other
policy actions be reviewed for any substantial direct effect on States,
on the relationship between the National Government and States, or in
the distribution of power and responsibilities among various levels of
government. If there are substantial effects, then the Executive Order
requires preparation of a federalism assessment to be used in all
decisions involved in promulgating and implementing a policy action.
The proposed rule published today would not regulate the States. At
this point, it primarily would affect the manner in which DOE
determines whether standards should be adopted, as prescribed under the
Energy Conservation and Policy Act. The proposed rule published today
would not alter the distribution of authority and responsibility to
regulate in this area. Accordingly, DOE has determined that preparation
of a federalism assessment is unnecessary.
E. Review Under Executive Order 12630, ``Governmental Actions and
Interference With Constitutionally Protected Property Rights''
It has been determined pursuant to Executive Order 12630,
``Governmental Actions and Interference with Constitutionally Protected
Property Rights,'' 52 FR 8859 (March 18, 1988), that this regulation
would not result in any takings which might require compensation under
the Fifth Amendment to the United States Constitution.
[[Page 63368]]
F. Review Under the Paperwork Reduction Act
Today's notice of proposed rulemaking would not impose any
compliance certification, labeling or other reporting requirements.
Accordingly, no OMB clearance is required under the Paperwork Reduction
Act (44 U.S.C. 3501 et seq.).
G. Review Under Executive Order 12988, ``Civil Justice Reform''
With respect to the review of existing regulations and the
promulgation of new regulations, Section 3(a) of Executive Order 12988,
``Civil Justice Reform,'' 61 FR 4729 (February 7, 1996), imposes on
executive agencies the general duty to adhere to the following
requirements: (1) eliminate drafting errors and ambiguity; (2) write
regulations to minimize litigation; and (3) provide a clear legal
standard for affected conduct rather than a general standard and
promote simplification and burden reduction. With regard to the review
required by Section 3(a), Section 3(b) of the Executive Order
specifically requires that Executive agencies make every reasonable
effort to ensure that the regulation: (1) clearly specifies the
preemptive effect, if any; (2) clearly specifies any effect on existing
Federal law or regulation; (3) provide a clear legal standard for
affected conduct while promoting simplification and burden reduction;
(4) specifies the retroactive effect, if any; (5) adequately defines
key terms; and (6) addresses other important issues affecting clarity
and general draftsmanship under any guidelines issued by the Attorney
General. Section 3(c) of the Executive Order requires Executive
agencies to review regulations in light of applicable standards Section
3(a) and Section 3(b) to determine whether they are met or it is
unreasonable to meet one or more of them. DOE reviewed today's proposed
regulation under the standards of Section 3 of the Executive Order and
determined that, to the extent permitted by law, it meets the
requirements of those standards.
H. Review Under Section 32 of the Federal Energy Administration Act of
1974
Pursuant to Section 301 of the Department of Energy Organization
Act (Pub. L. 95-91), the Department of Energy is required to comply
with Section 32 of the Federal Energy Authorization Act (FEAA), as
amended by Section 9 of the Federal Energy Administration Authorization
Act of 1977 (Pub. L. 95-70). Section 32 provides in essence that, where
a proposed rule contains or involves use of commercial standards, the
notice of proposed rulemaking must inform the public of the use and
background of such standards.
The rule proposed in this notice incorporates by reference
commercial standards NEMA TP 2. The Department has evaluated these
standards and concludes they were not developed in a manner which fully
provides for public participation, comment, and review. The rule
proposed in this notice also incorporates by reference commercial
standards IEEE/ANSI C57.12.90-1993, C57.12.91-1995, C57.12.00-1993, and
C57.12.01-1989, as well as ISO Standard 9001-1993. The Department has
evaluated these standards and is unable to conclude whether they were
developed in a manner which fully provides for public participation,
comment, and review. However, the Department believes the IEEE/ANSI and
ISO review processes provide for participation from a larger group of
entities than the NEMA standards review process.
As required by Section 32(c) of the Federal Energy Administration
Act, the Department will consult with the Attorney General and the
Chairman of the Federal Trade Commission concerning the impact of these
standards on competition, prior to prescribing a final rule.
I. Review Under Unfunded Mandates Reform Act of 1995
Section 202 of the Unfunded Mandates Reform Act of 1995 (``Unfunded
Mandates Act'') requires that the Department prepare a budgetary impact
statement before promulgating a rule that includes a Federal mandate
that may result in expenditure by state, local, and tribal governments,
in the aggregate, or by the private sector, of $100 million or more in
any one year. The budgetary impact statement must include: (i)
identification of the Federal law under which the rule is promulgated;
(ii) a qualitative and quantitative assessment of anticipated costs and
benefits of the Federal mandate and an analysis of the extent to which
such costs to state, local, and tribal governments may be paid with
Federal financial assistance; (iii) if feasible, estimates of the
future compliance costs and of any disproportionate budgetary effects
the mandate has on particular regions, communities, non-Federal units
of government, or sectors of the economy; (iv) if feasible, estimates
of the effect on the national economy; and (v) a description of the
Department's prior consultation with elected representatives of state,
local, and tribal governments and a summary and evaluation of the
comments and concerns presented.
The Department has determined that the action proposed today does
not include a Federal mandate that may result in estimated costs of
$100 million or more to state, local or to tribal governments in the
aggregate or to the private sector. Therefore, the requirements of
Sections 203 and 204 of the Unfunded Mandates Act do not apply to this
action.
IV. Public Comment
A. Written Comment Procedures
Interested persons are invited to participate in the proposed
rulemaking by submitting data, comments, or information with respect to
the proposed issues set forth in today's proposed rule to Ms. Kathi
Epping, at the address indicated at the beginning of the notice. All
submittals received by the date specified at the beginning of this
notice will be considered by the Department in developing the final
rule.
Pursuant to the provisions of 10 CFR 1004.11, any person submitting
information which he or she believes to be confidential and exempt by
law from public disclosure should submit one complete copy of the
document and ten (10) copies, if possible, from which the information
believed to be confidential has been deleted. The Department of Energy
will make its own determination with regard to the confidential status
of the information and treat it according to its determination.
Factors of interest to the Department when evaluating requests to
treat as confidential information that has been submitted include: (1)
a description of the items; (2) an indication as to whether and why
such items are customarily treated as confidential within the industry;
(3) whether the information is generally known by or available from
other sources; (4) whether the information has previously been made
available to others without obligation concerning its confidentiality;
(5) an explanation of the competitive injury to the submitting person
which would result from public disclosure; (6) an indication as to when
such information might lose its confidential character due to the
passage of time; and (7) why disclosure of the information would be
contrary to the public interest.
[[Page 63369]]
B. Public Hearing
1. Procedures for Submitting Requests To Speak
The time and place of the public hearing are indicated at the
beginning of this notice of proposed rulemaking. The Department invites
any person who has an interest in today's notice of proposed
rulemaking, or who is a representative of a group or class of persons
that has an interest in these proposed issues, to make a request for an
opportunity to make an oral presentation. If you would like to attend
the public hearing, please notify Ms. Brenda Edwards-Jones at (202)
586-2945. Requests to speak may be hand delivered to the address
indicated at the beginning of the notice between the hours of 8:00 a.m.
and 4:00 p.m., Monday through Friday, except Federal holidays.
The person making the request should briefly describe the interest
concerned and state why he or she, either individually or as a
representative of a group or class of persons that has such an
interest, is an appropriate spokesperson, and give a telephone number
where he or she may be contacted.
Each person selected to be heard is requested to submit an advance
copy of his or her statement prior to the hearing as indicated at the
beginning of this notice. Any person wishing to testify who cannot meet
this requirement, may at the Department's discretion be permitted to
testify if that person has made alternative arrangements with the
Office of Codes and Standards in advance. The letter making a request
to give an oral presentation shall ask that such alternative
arrangements be made.
2. Conduct of Hearing
A DOE official will be designated to preside at the hearing. The
hearing will not be a judicial or an evidentiary-type hearing, but will
be conducted in accordance with 5 U.S.C. 553 and Section 336 of the
Act. The Department of Energy reserves the right to select the persons
to be heard at the hearing, to schedule the respective presentations,
and to establish the procedures governing the conduct of the hearing.
Each participant will be permitted to make a prepared general
statement, limited to five (5) minutes, prior to the discussion of
specific topics. The general statement should not address these
specific topics, but may cover any other issues pertinent to this
rulemaking. Other participants will be permitted to briefly comment on
any general statements. The hearing will then be divided into segments,
with each segment consisting of one or more topics covered by this
notice, as follows: (1) proposed test procedures; (2) adequacy of TP 2
to meet the requirements of users; (3) distribution transformers not
subject to the test procedures; (4) grouping of transformers for
testing purposes, as manifested by the definition of a basic model; (5)
sampling plan for compliance; and (6) general statutory requirements.
Any issue concerning a definition in the proposed rule should be
addressed during the discussion of the topic(s) to which that issue
pertains.
The Department will introduce each topic with a brief summary of
the relevant provisions of the proposed rule, and the significant
issues involved. Participants in the hearing will then be permitted to
make a prepared statement limited to five (5) minutes on that topic. At
the end of all prepared statements on a topic, each participant will be
permitted to briefly clarify his or her statement and comment on
statements made by others. The Department is particularly interested in
having participants address in their statements the specific issues set
forth below in Section IV-C, ``Issues for Public Comment,'' and
participants should be prepared to answer questions by the Department
concerning these issues. Representatives of the Department may also ask
questions of participants concerning other matters relevant to the
hearing. The total cumulative amount of time allowed for each
participant to make prepared statements shall be 20 minutes.
The official conducting the hearing will accept additional comments
or questions from those attending, as time permits. Any further
procedural rules, or modification of the above procedures, needed for
the proper conduct of the hearing will be announced by the presiding
official.
A transcript of the hearing will be made, and the entire record of
this rulemaking, including the transcript, will be retained by the
Department of Energy and made available for inspection in the
Department's Freedom of Information Reading Room. Any person may
purchase a copy of the transcript from the transcribing reporter.
C. Issues Requested for Comment
The Department of Energy is interested in receiving comments and/or
data concerning the feasibility, workability and appropriateness of the
test procedures proposed in today's proposed rulemaking. Also, DOE
welcomes discussion on improvements or alternatives to these
approaches. In particular, the Department is interested in gathering
comments on the following:
The adequacy of TP 2 to meet the requirements of non-NEMA
manufacturers and users, such as utilities and contractors who specify
transformers for commercial and industrial applications (e.g., retail,
industrial, and office buildings);
Distribution transformers not subject to the test
procedures;
Grouping of transformers for testing purposes, as
manifested by the definition of a basic model; and
The sampling plan for compliance (The Department is
particularly interested in discussing how small populations should be
handled.)
List of Subjects in 10 CFR Part 432
Administrative practice and procedure, Energy conservation,
Household appliances. Incorporation by reference.
Issued in Washington, DC., on October 2, 1998.
Dan W. Reicher,
Assistant Secretary, Energy Efficiency and Renewable Energy.
For the reasons set forth in the preamble, Chapter II of Title 10,
Code of Federal Regulations, is proposed to be amended by adding a new
Part 432 to read as follows.
PART 432--ENERGY CONSERVATION PROGRAM FOR DISTRIBUTION TRANSFORMERS
Sec.
432.1 Purpose and scope [Reserved].
432.2 Definitions.
432.22 Reference Sources.
432.24 Units to be tested.
Appendix A to Part 432--Uniform Test Method for Measuring the Energy
Consumption of Distribution Transformers.
Authority: 42 U.S.C. 6317.
Sec. 432.1 Purpose and scope [Reserved].
Sec. 432.2 Definitions.
Basic model means all units of a given type of distribution
transformer manufactured by a single manufacturer and which have a
comparable nominal output power (kVA) rating, operate within the same
voltage range, have the same insulation type (liquid-immersed or dry
type), and have the same number of phases (single or three).
Converter transformer means a transformer designed for the
dedicated applications of converting direct current (dc) to alternating
current (ac), or converting alternating current to direct current. Its
nameplate contains a rating for the fundamental-frequency apparent
output power and a rating for the apparent output power with non
[[Page 63370]]
sinusoidal current produced by the converter.
Distribution transformer means a transformer with a primary voltage
of 480 V to 35 kV, a secondary voltage of 120 V to 600 V, a frequency
of 55-65 Hz, and a capacity of either 10 to 2500 kVA for liquid-
immersed transformers or 0.25 kVA to 2500 kVA for dry-type
transformers, except for:
(1) Converter and rectifier transformers with more than two
windings per phase, and
(2) Transformers which are not designed to be continuously
connected to a power distribution system as a distribution transformer.
This second exception includes regulating transformers, machine tool
transformers, welding transformers, grounding transformers, testing
transformers, and other transformers which are not designed to transfer
electrical energy from a primary distribution circuit to a secondary
distribution circuit, or within a secondary distribution circuit, or to
a consumer's service circuit.
Dry-type distribution transformer means a distribution transformer
in which the core and coils are immersed in a gaseous or dry-compound
insulating medium.
Efficiency means, for a distribution transformer, the ratio of the
useful output power to the total input power.
Liquid-immersed distribution transformer means a distribution
transformer in which the core and coils are immersed in an insulating
liquid.
Load losses mean, for a distribution transformer, those losses
which are incident to the carrying of a specified load. Load losses
consist of ohmic (I\2\R) loss in the windings due to load and eddy
currents; the loss due to circulating currents in parallel windings or
in parallel winding strands; and stray losses due to leakage fluxes in
the windings, core clamps, and other parts.
Low-voltage dry-type transformer means a distribution transformer
with a primary voltage rated at 1.2 kV and below.
Medium-voltage dry-type transformer means a distribution
transformer with a primary voltage rated above 1.2 kV.
No-load losses mean, for a distribution transformer, those losses
which are incident to the excitation of the transformer. No-load losses
consist of core loss, dielectric loss, conductor loss in the windings
due to exciting current, and conductor loss due to the circulating
currents in parallel windings.
Rectifier transformer means a transformer designed for the
dedicated application of converting alternating current to direct
current. Its nameplate contains a rating for the fundamental-frequency
apparent output power and a rating for the apparent output power with
non sinusoidal current produced by the converter.
Total losses mean, for a distribution transformer, the total of the
no-load and load losses. It does not include losses due to accessories,
such as cooling fans.
Transformer means a static electromagnetic device consisting of a
winding, or two or more coupled windings, with a magnetic core for
introducing inductive coupling between electric circuits, designed to
transfer power by electromagnetic induction between circuits at the
same frequency.
Sec. 432.22 Reference Sources.
(a) Materials Incorporated by Reference. (1) General. The following
standards which are not otherwise set forth in this part 432 are
incorporated by reference. The material listed in paragraph (a)(2) of
this section has been approved for incorporation by reference by the
Director of the Federal Register in accordance with 5 U.S.C. 552(a) and
1 CFR Part 51. Any subsequent amendment to a standard by the standard-
setting organization will not affect the DOE test procedures unless and
until amended by DOE. Material is incorporated as it exists on the date
of the approval and a notice of any change in the material will be
published in the Federal Register.
(2) Availability of Standards.
Option One for Paragraph (a)(2)(i) \5\
(i) Copies of ANSI standards C57.12.90-1993, C57.12.91-1995, and
C57.12.00-1993 can be obtained from the American National Standards
Institute, 11 West 42nd Street, New York, N.Y., 10036;
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\5\ In the preamble to this proposed rule, the Department states
its intention to adopt as the test procedure for distribution
transformers either portions of standards prepared by IEEE and
approved by ANSI, or portions of a standard being developed by NEMA.
In the proposed rule language, passages introduced by the phrase
``OPTION ONE FOR PARAGRAPH______'' constitute the language DOE
proposes to use if it decides to adopt the ANSI/IEEE standards, and
the phrase ``OPTION TWO FOR PARAGRAPH______'' introduces the
regulatory language proposes in the event the NEMA standard is
adopted.
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Option Two for Paragraph (a)(2)(i)
(i) Copies of NEMA Standards Publication TP 2-1998 can be
obtained from Global Engineering Documents World Headquarters, 15
Iverness Way East, Inglewood, CO 80112-5776;
(ii) All standards incorporated by reference are available for
inspection at the U.S. Department of Energy, Office of Energy
Efficiency and Renewable Energy, Hearings and Dockets, Forrestal
Building, 1000 Independence Ave, SW, Washington, DC 20585.
(iii) All standards incorporated by reference are available for
inspection at the Office of the Federal Register Information Center,
800 North Capitol Street, N.W., Washington, DC.
Option One for Paragraph (a)(3)
(3) List of standards incorporated by reference. (i) ANSI/IEEE
Standard C57.12.90-1993, ``IEEE Standard Test Code for Liquid-
Immersed Distribution, Power, and Regulating Transformers and IEEE
Guide for Short-Circuit Testing of Distribution and Power
Transformers'', sections 5 through 5.3.2, sections 8 through 8.4,
and sections 9 through 9.4.1.
(ii) ANSI/IEEE Standard C57.12.00-1993, IEEE Standard General
Requirements for Liquid-Immersed Distribution, Power, and Regulating
Transformers'' clause 9.4.
(iii) ANSI/IEEE Standard C57.12.91-1995, ``IEEE Standard Test
Code for Dry-Type Distribution and Power Transformers'' clauses 5
through 5.4.2.3, clauses 8 through 8.3, and clauses 9 through 9.4.2.
Option Two for Paragraph (a)(3)
(3) Standard incorporated by reference. NEMA Standards
Publication TP 2-1998, ``Standard Test Method for Measuring the
Energy Consumption of Distribution Transformers'' sections 1, 2, 3,
4, 5, and 6. Deviations from these sections are set forth at
Appendix A to Part 432 section 3.2(ii).
Option One for Paragraph (b)
(b) Reference Standard. The following standard is referred to in
the DOE test procedure and elsewhere in 10 CFR part 432 but is not
incorporated by reference and is provided here for guidance: ISO
Standard 9001-1993, ``Quality Systems--Model for quality assurance
in design, development, production, installation, and servicing''
clause 4.11.1.
Option Two Omits Paragraph (b)
Sec. 432.23 Test procedures for measures of energy consumption.
Option One for Paragraph (a)
(a) Total losses, expressed in kilowatts, of a liquid-immersed
distribution transformer operated at 50% of the rated load shall be
determined in accordance with clause 3.1.2 of Appendix A to this
part. Total losses of a dry-type distribution transformer operated
at either 50% or 35% of the rated load, as appropriate, shall be
determined in accordance with clause 3.2.3 of Appendix A to this
part.
Option Two for Paragraph (a)
(a) Total losses, expressed in kilowatts, of a liquid-immersed
distribution transformer operated at 50% of the rated load shall be
determined in accordance with clause 3.3 of Appendix A to this part.
Total losses of a dry-type distribution transformer operated at
either 50% or 35% of the rated load, as appropriate, shall be
determined in accordance with clause 3.4 of Appendix A to this part.
Option One for Paragraph (b)
(b) Efficiency, expressed in percent, of a liquid-immersed
distribution transformer
[[Page 63371]]
operated at 50% of the rated load shall be determined in accordance
with clause 3.1.2 of Appendix A to this part. Efficiency of a dry-
type distribution transformer, expressed in percent, operated at
either 50% or 35% of the rated load shall be determined in
accordance with clause 3.2.3 of Appendix A to this part.
Option Two for Paragraph (b)
(b) Efficiency, expressed in percent, of a liquid-immersed
distribution transformer operated at 50% of the rated load shall be
determined in accordance with clause 3.5 of Appendix A to this part.
Efficiency of a dry-type distribution transformer, expressed in
percent, operated at either 50% or 35% of the rated load shall be
determined in accordance with clause 3.5 of Appendix A to this part.
(c) The estimated annual energy consumption (EAEC), expressed in
kilowatt-hours per year, for a distribution transformer operating
continuously at 50% or 35% of the rated output power, as
appropriate, shall be the product of:
(1) The total losses in kilowatts as determined in paragraph (a)
of this section; and
(2) The representative use cycle of 8766 hours per year.
Sec. 432.24 Units to be tested.
For each basic model of distribution transformers, a random sample
of sufficient size, but no fewer than five production units, shall be
tested to insure that any represented value of efficiency shall be no
greater than the lower of the:
(a) Mean of the sample; or
(b) The lower 95% confidence limit of the estimated true mean
divided by a number equal to [1-0.03(1-Es/100)], where
Es is the represented value of efficiency claimed for that
particular basic model.
Appendix A to Part 432--Uniform Test Method for Measuring the Energy
Consumption of Distribution Transformers
1. Definitions. Use the definitions in 10 CFR 432.21 and the
following:
1.1 ANSI Standard means a standard approved by a committee
accredited by the American National Standards Institute.
1.2 IEEE Standard means a standard developed and approved by
the Institute of Electrical and Electronics Engineers. All IEEE
standards referenced in Appendix A have been approved or recognized
by ANSI.
1.3 ISO Standard means a standard developed and approved by the
International Standards Organization.
1.4 NEMA Standards Publication means a standard developed and
approved by National Electrical Manufacturers Association.
1.5 Phase angle error means an error introduced in the phase
angle displacement between voltage and current phasors by the test
equipment. Phase angle error, if significant, can introduce errors
in measured transformer losses.
1.6 Phase angle correction means the adjustment (correction) of
measurement data to negate the effects of phase angle error.
1.7 Reference temperature means the temperature, specified in a
standard, to which the transformer losses shall be corrected and
reported.
1.8 Temperature correction means the adjustment (correction) of
measurements of no load losses and load losses, obtained with the
distribution transformer under test at a temperature that is
different from the reference temperature, to values that would have
been obtained with the distribution transformer at the reference
temperature.
1.9 Test voltage means the voltage of the electric power
supplied to the distribution transformer under test.
1.10 Waveform correction means the adjustment (correction) of
measurement data obtained with a test voltage that is non-sinusoidal
(distorted) to values that would have been obtained with sinusoidal
voltage.
Option One for Paragraph 2
2. References.
2.1 ANSI/IEEE Standard C57.12.90-1993, ``IEEE Standard Test
Code for Liquid-Immersed Distribution, Power, and Regulating
Transformers and IEEE Guide for Short-Circuit Testing of
Distribution and Power Transformers'' (ANSI/IEEE C57.12.90).
2.2 ANSI/IEEE Standard C57.12.00-1993, IEEE Standard General
Requirements for Liquid-Immersed Distribution, Power, and Regulating
Transformers'' (ANSI/IEEE C57.12.00).
2.3 ANSI/IEEE Standard C57.12.91-1995, ``IEEE Standard Test
Code for Dry-Type Distribution and Power Transformers'' (ANSI/IEEE
C57.12.91).
2.4 ISO Standard 9001-1993, ``Quality Systems--Model for
quality assurance in design, development, production, installation,
and servicing.''
Option Two for Paragraph 2
2. References.
NEMA Standards Publication TP 2-1998, ``Standard Test Method for
Measuring the Energy Consumption of Distribution Transformers''
(NEMA TP 2).
Option One for Paragraph 3
3. Test Procedures' Measurements and Instrumentation, Reference
Conditions, Calculations.
The resistance of transformer windings, the no-load losses, and
the load losses of transformers shall be measured, and the total
losses and efficiency shall be computed at the specified loading
levels and reference temperatures, using the methods described in
the following industry standards (with certain specified
modifications and exceptions): ANSI/IEEE standards C57.12.90-1993
and C57.12.91-1995 (primary references); ANSI/IEEE standard
C57.12.00-1993 (supplemental reference). The methods to be used,
including applicable sections and clauses in the referenced
standards, as well as exceptions and modifications to such sections
and clauses, are listed in this appendix: Secs. 3.1-3.3 and their
subclauses.
3.1 Liquid-Immersed Distribution Transformers.
Using the methods specified in ANSI/IEEE standard C57.12.90-1993
sections 5, 8, and 9, measure the resistance of transformer
windings, the no-load losses and load losses of liquid-immersed
distribution transformers. Perform waveform correction on the
measured no-load losses and perform phase angle correction for the
load losses.
3.1.1 Perform temperature corrections for the loss data of
Sec. 3.1 by converting the no-load losses to 20 deg.C and converting
the load losses to 55 deg.C with the loading at 50% of the rated
load. To perform these temperature corrections, the provisions in
sections 8.4 and 9.4.2 of ANSI/IEEE standard C57.12.90-1993 are
applicable. For the conversion to the 50% loading the quadratic
relationship P(L50)=P(LM) (50/M)2
applies, where P(L50) is the load loss power at 50%
loading, P(LM) is the load loss power at M% loading, and
(50/M) is the ratio of the loading at the 50% reference condition to
the loading during the measurement (near 100% loading).
3.1.2 Calculate the total losses (P50) at 50 %
loading by adding the no-load losses and the load losses as computed
in Sec. 3.1.1, and calculate the efficiency at 50 % loading
according to the equation:
E50=100 [P0(50)/
(P0(50)+PL(20))],
where E50 is the efficiency at 50% loading, and
P0(50) and PL(50) are the output power and
total loss power, respectively, at 50% loading.
3.2 Dry-Type Transformers.
Using the methods specified in ANSI/IEEE standard C57.12.91-
1995, sections 5, 8, and 9, measure the resistance of transformer
windings, the no-load losses and load losses of dry-type
distribution transformers. Perform waveform correction on the
measured no-load losses and perform phase angle correction for the
load losses.
3.2.1 In addition to the requirements of ANSI/IEEE standard
C57.12.91-1995, the following two additional requirements apply to
the measurements in section 3.2 of this appendix:
(i) Perform phase angle correction for the measured load losses
as specified in ANSI/IEEE standard C57.12.90-1993, clause 9.4.1 and
Table 1;
(ii) Measure the no-load losses with the transformer at the
reference temperature of 20 deg.C; a temperature tolerance of
10 deg.C is permissible; if no-load loss measurements
are conducted outside this temperature tolerance, perform the
appropriate temperature correction such as that specified in ANSI/
IEEE standard C57.12.90-1993, clause 8.4.
3.2.2 Perform temperature corrections for the loss data by
converting the load losses of medium-voltage dry-type transformers
to 75 deg.C, at 50% of the rated load, and converting the load
losses of low-voltage dry-type transformers to 75 deg.C, at 35% of
the rated load. To perform these temperature corrections, the
provisions of ANSI/IEEE standard C57.12.91-1995, clause 9.4.1 shall
apply. For the conversions to the 50% and 35% loading levels the
algorithm of Sec. 3.1.1 applies.
3.2.3 Calculate the total losses, PL(50)(35), at
either 50% or 35% loading, as appropriate, by adding the no-load
losses and load losses as computed in Sec. 3.2.2, and calculate the
efficiency of the transformer at either 50% or 35% loadings
according to the equation:
E(50)(30)=100 [P0(50)(30)/
(P0(50)(30)+PL(50)(30))],
where E(50)(30) is the efficiency in percent,
P0(50)(30) is the output power in kilowatts, and
[[Page 63372]]
PL(50)(30) is the loss power in kilowatts. The
subscripts, (50) or (35), denote the loading levels, either 50% or
35%.
3.3 Quality Assurance in Testing.
Accuracies required for measuring the winding resistances, the
no-load and load losses, and the temperature of distribution
transformers shall be those specified in ANSI Standard C57.12.00-
1993, Section 9.4.
Test equipment and measuring instruments shall be calibrated and
maintained in their normal operating condition. Calibration records
shall be maintained to demonstrate compliance with the required
measurement accuracies. General guidance as to procedures that will
aid in meeting these objectives is provided by the following Clause
4.11.1 of ISO Standard 9001-1993, ``Quality Systems--Model for
quality assurance in design, development, production, installation,
and servicing.'':
``The supplier shall establish and maintain documented
procedures to control, calibrate and maintain inspection, measuring
and test equipment (including test software) used by the supplier to
demonstrate the conformance of product to the specified
requirements. Inspection, measuring and test equipment shall be used
in a manner which ensures that measurement uncertainty is known and
is consistent with the required measurement capability.''
Option Two for Paragraph 3
3. Test Procedures--Measurements and Instrumentation, Reference
Conditions, Calculations.
The resistance of transformer windings, the no-load losses, and
the load losses of transformers shall be measured, and the total
losses and efficiency shall be computed at the specified loading
levels and reference temperatures, using the methods described in
the following industry standards (with certain specified
modifications and exceptions): NEMA standard TP 2. The methods to be
used, including applicable sections and clauses in the referenced
standards, as well as exceptions and modifications to such sections
and clauses, are listed in this appendix: sections 3.1-3.5 and their
subclauses.
3.1 Liquid-Immersed and Dry-Type Distribution Transformers.
In accordance with NEMA TP 2, sections 1, 2, 3, 4, 5, and 6, do
the following: measure the resistance of transformer windings, the
no-load losses, and the load losses of liquid-immersed and dry-type
transformers; apply waveform corrections, phase angle corrections,
and temperature corrections to the measured data for no-load losses
and load losses; and ensure the quality assurance measures for
testing operations.
3.2 Deviations from NEMA TP 2. For the purpose of this DOE test
procedure the following deviations from TP 2 shall apply:
(i) Section 7 of TP 2, Demonstration of Compliance, shall not be
a part of the DOE test procedure.
(ii) The reference conditions for reporting the data under the
DOE test procedure shall be: 20 deg.C 10 deg.C for
no-load losses of liquid-immersed distribution transformers and dry-
type distribution transformers; 55 deg.C for load losses of liquid-
immersed distribution transformers operated at 50% of the rated
load; 75 deg.C for load losses of medium-voltage dry-type
transformers operated at 50% of the rated load; and 75 deg.C for
load losses of low-voltage dry-type transformers operated at 35% of
the rated load.
(iii) The exceptions listed in item 4 of the Scope of TP 2 do
not apply to the DOE test procedure.
3.3 The total losses of liquid-immersed distribution
transformers, at the specified reference conditions, shall be
computed according to clause 5.2.3 of TP 2.
3.4 The total losses of the dry-type distribution transformers,
at the specified reference conditions, shall be computed data
according to clause 5.3.3 of TP 2.
3.5 Compute the efficiency values of liquid-immersed
distribution transformers and dry-type distribution transformers at
the specified reference conditions using the algorithm provided in
clause 5.4 of TP 2.
[FR Doc. 98-30140 Filed 11-10-98; 8:45 am]
BILLING CODE 6450-01-P