[Federal Register Volume 76, Number 150 (Thursday, August 4, 2011)]
[Pages 47178-47180]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-19780]



[Docket Number EERE-2011-BT-TP-0041]
RIN 1904-AC50

Energy Efficiency Program: Test Procedure for Lighting Systems 

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

ACTION: Request for Information.


SUMMARY: The U.S. Department of Energy (``DOE'' or the ``Department'') 
is currently evaluating energy efficiency test procedures for 
luminaires (also referred to herein as lighting systems) and collecting 
information for the labeling of such products. DOE recognizes that 
well-designed test procedures are important to produce reliable, 
repeatable, and consistent test results and that labeling assists 
informed consumer choice. The existing luminaire test procedures DOE is 
evaluating include those already established by the National Electrical 
Manufacturers Association (NEMA) and ENERGY STAR, which include by 
reference numerous test procedures established by the American National 
Standards Institute (ANSI), the Illuminating Engineering Society of 
North America (IESNA), the International Commission on Illumination 
(Commission Internationale de l'Eclairage (CIE)), and the Illuminating 
Engineering Society of North America (IESNA). To inform interested 
parties, facilitate its consideration of appropriate test procedures, 
and collect information on labeling, DOE seeks comment and requests 
information related to test procedures and labels for lighting systems 
based on industry-standard procedures and practices for luminaires. In 
particular, DOE is interested in if and how test procedures and labels 
may include controls for powering the luminaire on or off depending on 
time of day, daylight or occupancy sensor readings and other factors.

DATES: Written comments and information are requested by September 19, 

ADDRESSES: Interested persons may submit comments in writing, 
identified by docket number EERE-2011-BT-TP-0041, by any of the 
following methods:
    1. Federal eRulemaking Portal: http://www.regulations.gov. Follow 
the instructions for submitting comments.
    2. E-mail: [email protected]. Include EERE-2011-
BT-TP-0041 and/or RIN 1904-AC50 in the subject line of the message.
    3. Mail: Ms. Brenda Edwards, U.S. Department of Energy, Building 
Technologies Program, Mailstop EE-2J, Request for Information for 
Lighting Systems, EERE-2011-BT-TP-0041 and/or RIN 1904-AC50, 1000 
Independence Avenue, SW., Washington, DC 20585-0121. Phone: (202) 586-
2945. Please submit one signed paper original.
    4. Hand Delivery/Courier: Ms. Brenda Edwards, U.S. Department of 
Energy, Building Technologies Program, 6th Floor, 950 L'Enfant Plaza, 
SW., Washington, DC 20024. Phone: (202) 586-2945. Please submit one 
signed paper original.
    5. Instructions: All submissions received must include the agency 
name and docket number.
    Docket: For access to the docket to read background documents or 
comments received, visit the U.S. Department of Energy, Building 
Technologies Program, 950 L'Enfant Plaza, SW., Suite 600, Washington, 
DC, 20024, (202) 586-2945, between 9 a.m. and 4 p.m., Monday through 
Friday, except Federal holidays. Please call Ms. Brenda Edwards at the 
above telephone number for additional information.
    The docket also is available for review at regulations.gov, 
including Federal Register notices, and other supporting documents/
materials. All documents in the docket are listed in the 
regulations.gov index. However, not all documents listed in the index 
may be publicly available, such as information that is exempt from 
public disclosure.
    A link to the docket web page can be found at: http://www.eere.energy.gov/buildings/appliance_standards/commercial/lighting_systems.html. This web page contains a link to the docket for 
this notice on the regulations.gov site. The regulations.gov web page 
contains instructions on how to access all documents, including public 
comments, in the docket.

FOR FURTHER INFORMATION CONTACT: Dr. Tina Kaarsberg, U.S. Department of 
Energy, Office of Energy Efficiency and Renewable Energy, Building 
Technologies Program, EE-2J, 1000 Independence Avenue, SW., Washington, 
DC 20585-0121. Telephone: (202) 287-1393. E-mail: 
[email protected].
    In the Office of General Counsel, contact Ms. Elizabeth Kohl, U.S. 
Department of Energy, Office of the General Counsel, GC-71, 1000 
Independence Avenue, SW., Washington, DC 20585. Telephone: (202) 586-
7796. E-mail: [email protected].


I. Statutory Authority

    The Energy Policy Act of 1992 (EPAct 1992, Pub. L. 102-486), 
Section 126, required DOE to support and monitor a national voluntary 
testing and information program for widely used luminaires that have 
significant energy savings potential, and to issue a determination as 
to whether the program developed was consistent with those objectives. 
The program was required to include specifications for test procedures 
and labels that will enable purchasers of such luminaires to make more 
informed decisions about the energy efficiency and costs of alternative 
products. If DOE determines that a program of voluntary national 
testing and information for luminaires consistent with those objectives 
has not been developed, EPAct 1992 directs DOE to develop test 
procedures for luminaires. EPAct 1992 also provides for labels for 
these products. (42 U.S.C. 6292 note) The Energy Policy Act of 2005 
(EPAct 2005, Pub. L. 109-58) and the Energy Independence and Security 
Act of 2007 established Federal efficiency standards for certain 
classes of luminaires--torchieres, ceiling fan light kits, exit signs, 
traffic signals, and metal halide lamp fixtures--but currently there 
are no DOE-approved test procedures for most widely-used classes of 
luminaires. There are also no labeling requirements for these products.

II. Background

    In April 1992, the National Lighting Collaborative (NLC or 
Collaborative) initiated development of a testing and information 
program as described under EPAct 1992. The Collaborative, administered 
by NEMA, included representatives from environmental organizations, 
State governments, the lighting industry, research entities, and 
utilities.\1\ In 1995, the NLC issued a

[[Page 47179]]

report on the program to DOE that served as the basis of DOE's 
provisional determination on whether the program met the objectives set 
forth in EPAct 1992 (61 FR 10742, March 15, 1996). DOE found that the 
program would be consistent with the objectives set forth in EPAct 1992 
when it had been demonstrated to DOE that the program had been ``fully 
implemented so that energy efficiency information about luminaires is 
widely available to luminaire purchasers''. Although the NLC continued 
activities through 2001,\2\ DOE has not yet issued a final 
determination regarding the program.\3\

    \1\ In 1999, membership included the following organizations: 
Environmental groups were represented by the Alliance to Save 
Energy, the American Council for an Energy-Efficient Economy, and 
the Natural Resources Defense Council. State and Federal government 
representatives included the California Energy Commission, the 
National Institute of Standards and Technology (NIST), the New York 
State Energy Research and Development Authority, DOE, and the US 
Environmental Protection Agency. Lighting and related industry 
organizations were represented by the American Lighting Association, 
the American Society of Heating, Refrigerating and Air-Conditioning 
Engineers, the Association of Energy Engineers, the Building Owners 
and Managers Association, the Illuminating Engineering Society of 
North America, the International Association of Lighting Designers, 
the National Association of Lighting Management Companies, the 
National Association of Electrical Distributors, the National 
Association of State Energy Officials, the National Electrical 
Contractors Association, and the National Electrical Manufacturers 
Association. Testing and research entities included the Lawrence 
Berkeley National Laboratory, the Lighting Research Center, and the 
Lighting Research Institute. Utilities were represented by the 
Edison Electric Institute and the Electric Power Research Institute.
    \2\ In 1999 the Collaborative issued a new Report on the Status 
of the Voluntary National Testing and Information Program for 
Luminaires, which described the program and urged DOE to approve it. 
The Program included luminaire test procedures for widely used 
fluorescent and HID luminaires, a complaint resolution process to 
resolve disputes about Luminaire Efficacy Rating (LER) values, and 
an information program. In addition, the Program recommended that 
testing be carried out by a laboratory accredited by NIST's National 
Voluntary Laboratory Accreditation Program.
    \3\ NEMA's current Lighting Industry Director was unaware of any 
program activity in recent years. LBNL staff who participated on the 
NLC stated that the last meeting was in 2001. While conceptually 
related, NEMA's subsequent LE 6 activity was organizationally 
unrelated to the NLC. See http://www.nema.org/stds/le5.cfm (``When 
rating a fixture in accordance with EPAct 1992, use this standard. 
For other purposes, see NEMA LE 6, a newer standard for luminaire 
efficacy that supersedes the LE 5 series.'').

a. Evolution of National Luminaire Testing and Definitions

    In response to the EPAct 1992 requirement that DOE provide 
financial and technical assistance to support a voluntary national 
testing and information program, NEMA developed, and the NLC 
incorporated into the program, three separate industry standards 
applicable to luminaires along with their associated test procedures:
    [cir] LE 5--Procedure for Determining Luminaire Efficacy Ratings 
for Fluorescent Luminaires.
    [cir] LE 5A--Procedure for Determining Luminaire Efficacy Ratings 
for Commercial, Non-Residential Downlight Luminaires.
    [cir] LE 5B--Procedure for Determining Luminaire Efficacy Ratings 
for High-Intensity Discharge Industrial Luminaires.
    The Environmental Protection Agency (EPA) created a voluntary 
specification for luminaires under its ENERGY STAR program. The ENERGY 
STAR specification (http://www.energystar.gov/index.cfm?c=new_specs.luminaires) includes a voluntary standard but does not generally 
include controls. The ENERGY STAR test procedures reference industry 
test procedures for fluorescent, high-intensity discharge and solid-
state luminaires, none of which currently include controls.\4\

    \4\ ENERGY STAR[reg] Program Requirements Product Specification 
for Luminaires (Light Fixtures) Eligibility Criteria Version 1.0.

    In 2008, NEMA introduced its Target Efficacy Rating (TER), 
documented in NEMA standard LE 6, and adds to the LE 5 series efficacy 
calculation a factor to address the fraction of light leaving the 
luminaire that is delivered to the intended target surface. LE 6 is 
intended to supersede the LE 5 series ratings for all purposes other 
than ``rating a fixture in accordance with EPAct 1992''. The TER 
addresses major classes of commercial, residential, and industrial 
luminaires used for both indoor and outdoor lighting, but does not 
include controls.

b. Lighting System/Luminaire Controls

    The EPAct 1992 requirements for luminaires discussed above 
pertained to the energy efficiency of entire lighting systems, as 
opposed to just lamps or lamp and ballast systems. The Illuminating 
Engineering Society of North America defines luminaire as a ``complete 
lighting unit consisting of lamp(s) and ballast(s) (when applicable) 
together with the parts designed to distribute the light, position and 
protect the lamps, and to connect the lamp(s) to the power 
supply.''5 6 The Energy Policy and Conservation Act of 1975 
(EPCA), as amended, adopts the same definition for luminaires with 
fluorescent light sources: ``a complete lighting unit consisting of a 
fluorescent lamp or lamps, 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. Controls are considered 
under these definitions as the part of the lighting system that 
connects the lamp(s) to the power supply.

    \5\ Rea, M.S. (Editor), Illuminating Engineering Society of 
North America, IESNA Lighting Handbook, 9th Edition, 2000.
    \6\ This ANSI/IESNA definition of luminaire has also been 
accepted by ENERGY STAR[reg] and the California Energy Commission.

    Although it has not yet included them in its own industry 
procedures, NEMA has argued generally that lighting standards should 
incorporate controls, not just source efficacies, because of their 
great potential for much larger savings in major applications. On May 
10, 2011, NEMA submitted public comments on the current fluorescent 
ballast rulemaking noting that a ``ballast that is switched off or 
dimmed uses much less energy and can result in increased user 
satisfaction'' (Document ID: EERE-2007-BT-STD-0016-0039.1).\7\ On May 
27, 2010, NEMA submitted public comments for the high-intensity 
discharge (HID) lamps determination arguing that ``industry believes 
that the DOE will find much more energy savings from HID systems with 
the proper application of electronic ballasts and/or intelligent 
controls [versus] standards that increase average HID lamp 
efficiencies'' (Document ID: EERE-2006-DET-0112-0021.1).\8\ In a May 
15, 2008, public workshop for California's metal halide luminaires 
rulemaking, NEMA proposed using integral controls as an alternative 
compliance option to high efficiency ballasts and later worked with the 
Pacific Gas and Electric Company, the American Council for an Energy 
Efficient Economy, and the California Energy Commission to develop that 
option for the final rule.\9\

    \7\ Available online: http://www.regulations.gov/#!documentDetail;D=EERE-2007-BT-STD-0016-0039.
    \8\ Available online: http://www.regulations.gov/#!searchResults;rpp=10;po=0;s=DET-0112-0021.
    \9\ California Energy Commission, 2008 Appliance Efficiency 
Rulemaking: Staff Report, Phase I, Part B, Docket #08-AEER-1B, 
Report CEE-400-2008-023, page 7.

    The American Council for an Energy Efficient Economy (ACEEE) also 
encouraged DOE to take a systems-based approach to lighting in its May 
27, 2010 comments on the HID rulemaking: ``In general, we would like to 
see DOE combine rulemakings--or at least analysis--whenever possible 
for individual lighting components that are operated together in a 
system. This would allow for greater efficiencies in the analytical 
effort, better consideration and coordination of the impacts of 
standards changes for one component on overall system performance, and 
potentially for more effective final standards from an energy savings, 
economic, and environmental perspective.''

C. Evaluation of Luminaire/Lighting Systems Test Procedures

    DOE is evaluating whether test procedures for luminaires/lighting

[[Page 47180]]

systems may be based on existing industry rating systems and test 
procedures such as NEMA's LE 6 rating system, (which covers 22 classes 
of interior and exterior luminaires) and EPA's ENERGY STAR luminaire 
specifications (which covers a range of residential and commercial 
direction and non-directional products) and is based on IESNA test 
procedures (LM-46, LM-41, LM-10-11, and LM-31-11). DOE is considering 
whether to define certain lighting systems and controls terminology to 
enable development of an appropriate national test procedure.
D. Collection of Information on Luminaire/Lighting Systems Labeling.
    DOE is also collecting information on whether labels for 
luminaires/lighting systems may be based on industry rating systems 
such as those described in the previous section.
E. Conclusion
    The Department recognizes that voluntary luminaire test procedures 
and labels exist and that the industry is increasingly using controls 
technologies to reduce lighting energy use. DOE therefore requests 
information on recent developments in luminaire testing and labeling 
programs and how energy savings from controls are addressed therein.

III. Public Participation

A. Submission of Information

    DOE will accept information and data in response to this Request 
for Information as provided in the DATES section above. Information 
submitted to the Department by e-mail should be provided in 
WordPerfect, Microsoft Word, PDF, or text file format. Those responding 
should avoid the use of special characters or any form of encryption, 
and wherever possible, comments should include the electronic signature 
of the author. Comments submitted to the Department by mail or hand 
delivery/courier should include one signed original paper copy. No 
telefacsimiles will be accepted. Comments submitted in response to this 
notice will become a matter of public record and will be made publicly 

B. Issues on Which DOE Seeks Information

    Although comments are welcome on all issues discussed in this 
notice, DOE is particularly interested in the following information and 
substantiating data on existing test procedures and labels for 
    1. Definitions. DOE invites comments on the definition of lighting 
systems, luminaires and other relevant terms.
    2. Lighting systems/luminaire test procedures and labeling. DOE is 
particularly interested in details on industry, state, and 
international test procedures and labels including, where feasible: 
Luminaire classes covered, fraction of current luminaire sales covered, 
percentage of products covered by the program currently being tested 
and reported on; the method used to inform purchasers of covered 
luminaires about the results of the testing and other energy and 
performance related information.
    3. Inclusion of controls in lighting systems test procedures and 
labeling. DOE requests comments on means to include controls in test 
procedures and whether the inclusion of controls in labels would 
provide consumers with useful information.
    4. The current status of labeling programs. DOE is particularly 
interested in what products are currently sold with luminaire 
efficiency labels, what fraction of the market represents, what the 
leading labels are and what information the labels contain.
    DOE is also interested in comments on other relevant issues that 
participants think would affect test procedures and labeling applicable 
to lighting systems or luminaires.

    Issued in Washington, DC, on July 29, 2011.
Kathleen Hogan,
Deputy Assistant Secretary for Energy Efficiency, Office of Technology 
Development, Energy Efficiency and Renewable Energy.
[FR Doc. 2011-19780 Filed 8-3-11; 8:45 am]