[Federal Register Volume 81, Number 52 (Thursday, March 17, 2016)]
[Proposed Rules]
[Pages 14642-14679]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-05138]



[[Page 14641]]

Vol. 81

Thursday,

No. 52

March 17, 2016

Part IV





Department of Energy





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10 CFR Parts 429 and 431





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 Energy Conservation Program for Certain Commercial and Industrial 
Equipment: Test Procedures for Commercial Packaged Boilers; Proposed 
Rule

  Federal Register / Vol. 81 , No. 52 / Thursday, March 17, 2016 / 
Proposed Rules  

[[Page 14642]]


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DEPARTMENT OF ENERGY

10 CFR Parts 429 and 431

[Docket Number EERE-2014-BT-TP-0006]
RIN 1904-AD16


Energy Conservation Program for Certain Commercial and Industrial 
Equipment: Test Procedures for Commercial Packaged Boilers

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

ACTION: Notice of proposed rulemaking and public meeting.

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SUMMARY: The U.S. Department of Energy (DOE) proposes to amend the test 
procedure and applicable definitions for commercial packaged boilers, 
as well as modify the sampling plans for commercial packaged boilers in 
its regulations pertaining to energy efficiency programs for certain 
programs for commercial and industrial equipment. This rulemaking will 
fulfill DOE's statutory obligations to make its test procedure 
consistent with the applicable industry test procedure and to review 
its test procedures for covered equipment at least once every seven 
years. In this notice of proposed rulemaking (NOPR), DOE proposes to 
incorporate by reference certain sections of the American National 
Standards Institute (ANSI)/Air-Conditioning, Heating, and Refrigeration 
Institute (AHRI) Standard 1500, ``2015 Standard for Performance Rating 
of Commercial Space Heating Boilers,'' and, in addition, incorporate 
amendments that clarify the coverage for field-constructed commercial 
packaged boilers and the applicability of DOE's test procedure and 
standards for this category of commercial packaged boilers, provide an 
optional field test for commercial packaged boilers with fuel input 
rate greater than 5,000,000 Btu/h, provide a conversion method to 
calculate thermal efficiency based on combustion efficiency testing for 
steam commercial packaged boilers with fuel input rate greater than 
5,000,000 Btu/h, modify the inlet and outlet water temperatures during 
tests of hot water commercial packaged boilers, establish limits on the 
ambient temperature and relative humidity conditions during testing, 
modify setup and instrumentation requirements to remove ambiguity, and 
standardize terminology and provisions for ``fuel input rate.'' This 
NOPR also announces a public meeting to discuss and invite comments, 
data, and information about the issues and proposed amendments 
presented in this test procedure rulemaking for commercial packaged 
boilers.

DATES: Meeting: DOE will hold a public meeting on Monday, April 4, 
2016, from 10 a.m. to 3 p.m., in Washington, DC. The meeting will also 
be broadcast as a webinar. See section V, ``Public Participation,'' for 
webinar registration information, participant instructions, and 
information about the capabilities available to webinar participants.
    Comments: DOE will accept written comments, data, and information 
regarding this NOPR before and after the public meeting, but not later 
than May 31, 2016. See section V, ``Public Participation,'' for 
details.

ADDRESSES: The public meeting will be held at the U.S. Department of 
Energy, Forrestal Building, Room 6E-069, 1000 Independence Avenue SW., 
Washington, DC 20585-0121. Persons may also attend the public meeting 
via webinar. To attend, please notify Ms. Brenda Edwards at (202) 586-
2945. For more information, refer to section V, ``Public 
Participation,'' near the end of this notice.
    Interested parties are encouraged to submit comments using the 
Federal eRulemaking Portal at www.regulations.gov. Interested parties 
may submit comments by any of the following methods:
     Federal eRulemaking Portal: www.regulations.gov. Follow 
the instructions for submitting comments.
     Email: [email protected]. Include 
docket number EERE-2014-BT-TP-0006 and/or regulation identifier number 
(RIN) 1904-AD16 in the subject line of the message. Submit electronic 
comments in WordPerfect, Microsoft Word, PDF, or ASCII file format, and 
avoid the use of special characters or any form of encryption.
     Postal Mail: Ms. Brenda Edwards, U.S. Department of 
Energy, Building Technologies Office, Mailstop EE-5B, Test Procedure 
for Commercial and Industrial Packaged Boilers, Docket No. EERE-2014-
BT-TP-0006 and/or RIN 1904-AD16, 1000 Independence Avenue SW., 
Washington, DC 20585-0121. If possible, please submit all items on a 
compact disc (CD), in which case it is not necessary to include printed 
copies.
     Hand Delivery/Courier: Ms. Brenda Edwards, U.S. Department 
of Energy, Building Technologies Office, 950 L'Enfant Plaza, SW., Suite 
600, Washington, DC 20024. Telephone: (202) 586-2945. If possible, 
please submit all items on a CD, in which case it is not necessary to 
include printed copies.
    No telefacsimiles (faxes) will be accepted. For detailed 
instructions on submitting comments and additional information on the 
rulemaking process, see section V, ``Public Participation,'' of this 
document.
    Docket: The docket, which includes Federal Register notices, public 
meeting attendee lists and transcripts, comments, and other supporting 
documents/materials, is available for review at www.regulations.gov. 
All documents in the docket are listed in the www.regulations.gov 
index. However, not all documents listed in the index may be publicly 
available, such as those containing information that is exempt from 
public disclosure.
    A link to the docket Web page can be found at: http://www.regulations.gov/#!docketDetail;D=EERE-2014-BT-TP-0006. This Web 
page contains a link to the docket for this NOPR on the 
www.regulations.gov site. The www.regulations.gov Web page contains 
simple instructions on how to access all documents, including public 
comments, in the docket. See section V, ``Public Participation,'' for 
information on how to submit comments through www.regulations.gov.

FOR FURTHER INFORMATION CONTACT: Mr. James Raba, U.S. Department of 
Energy, Office of Energy Efficiency and Renewable Energy, Building 
Technologies Office, EE-5B, 1000 Independence Avenue SW., Washington, 
DC 20585-0121. Telephone: (202) 586-8654. Email: 
[email protected].
    Mr. Peter Cochran, U.S. Department of Energy, Office of the General 
Counsel, GC-33, 1000 Independence Avenue SW., Washington, DC 20585-
0121. Telephone: (202) 586-9496. Email: [email protected].
    For further information on how to submit a comment, review other 
public comments and the docket, or participate in the public meeting, 
contact Ms. Brenda Edwards at (202) 586-2945 or by email: 
[email protected].

SUPPLEMENTARY INFORMATION: 
    This proposed rule would incorporate by reference into 10 CFR parts 
429 and 431 the testing methods contained in the following commercial 
standard:
    AHRI/ANSI Standard 1500-2015, ``Performance Rating of Commercial 
Space Heating Boilers,'' Section 3 ``Definitions,'' Section 5 ``Rating 
Requirements,'' Appendix C ``Methods of Testing for Rating Commercial 
Space Heating Boilers--Normative,'' excluding Figures C5 and C7, 
Appendix D ``Properties of Saturated Steam--Normative,'' and Appendix E

[[Page 14643]]

``Correction Factors for Heating Values of Fuel Gases--Normative,'' 
ANSI approved November 28, 2014.
    Copies of AHRI standards may be purchased from the Air-
Conditioning, Heating, and Refrigeration Institute, 2111 Wilson Blvd., 
Suite 500, Arlington, VA 22201, or by visiting http://www.ahrinet.org/site/686/Standards/HVACR-Industry-Standards/Search-Standards.
    See section IV.M for additional information on this standard.

Table of Contents

I. Authority and Background
II. Synopsis of the Notice of Proposed Rulemaking
III. Discussion
    A. Proposing to Adopt Certain Sections of ANSI/AHRI Standard 
1500-2015
    B. Scope and Definitions
    1. Definition of Commercial Packaged Boiler
    2. Field-Constructed Commercial Packaged Boilers
    C. Testing of Large Commercial Packaged Boilers
    1. Field Tests for Commercial Packaged Boilers
    2. Method To Convert Combustion Efficiency to Thermal Efficiency 
for Steam Commercial Packaged Boilers
    3. Alternative Efficiency Determination Methods
    4. Steam Commercial Packaged Boiler Operating Pressure
    D. Hot Water Commercial Packaged Boiler Operating Temperatures
    1. Existing Requirements
    2. Issues With Water Temperature Requirements and Proposed 
Changes
    3. Allowable Uncertainty in Water Temperature Measurement
    4. Water Flow Rate During Testing
    E. Testing Conditions
    F. Setup and Instrumentation
    G. Fuel Input Rate
    H. Clerical Issues
    I. Other Issues
    1. Stack Temperature Adjustment for Using Combustion Efficiency 
in Steam Mode To Represent Hot Water Mode
    2. Testing at Part Load
    3. Other Industry Test Procedures
IV. Procedural Issues and Regulatory Review
    A. Review Under Executive Order 12866
    B. Review Under the Regulatory Flexibility Act
    C. Review Under the Paperwork Reduction Act of 1995
    D. Review Under the National Environmental Policy Act of 1969
    E. Review Under Executive Order 13132
    F. Review Under Executive Order 12988
    G. Review Under the Unfunded Mandates Reform Act of 1995
    H. Review Under the Treasury and General Government 
Appropriations Act, 1999
    I. Review Under Executive Order 12630
    J. Review Under Treasury and General Government Appropriations 
Act, 2001
    K. Review Under Executive Order 13211
    L. Review Under Section 32 of the Federal Energy Administration 
Act of 1974
    M. Description of Materials Incorporated by Reference
V. Public Participation
    A. Attendance at the Public Meeting
    B. Procedure for Submitting Prepared General Statements for 
Distribution
    C. Conduct of the Public Meeting
    D. Submission of Comments
    E. Issues on Which DOE Seeks Comment
VI. Approval of the Office of the Secretary

I. Authority and Background

    Title III of the Energy Policy and Conservation Act of 1975 (42 
U.S.C. 6311, et seq.; ``EPCA'' or, ``the Act'') sets forth a variety of 
provisions designed to improve energy efficiency.\1\ Part C of Title 
III establishes the ``Energy Conservation Program for Certain 
Industrial Equipment,'' which covers certain industrial equipment 
(hereafter referred to as ``covered equipment''), including commercial 
packaged boilers.\2\ (42 U.S.C. 6311(1)(J))
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    \1\ All references to EPCA in this document refer to the statute 
as amended through the Energy Efficiency Improvement Act of 2015 
(April 30, 2015).
    \2\ For editorial reasons, Part C was codified as Part A-1 in 
the U.S. Code.
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    Under EPCA, the energy conservation program consists essentially of 
four parts: (1) Testing, (2) labeling, (3) Federal energy conservation 
standards, and (4) certification and enforcement procedures. The 
testing requirements consist of test procedures that manufacturers of 
covered equipment must use as the basis for (1) certifying to the 
Department of Energy (DOE) that their equipment complies with 
applicable energy conservation standards adopted under EPCA, and (2) 
making representations about the efficiency of the equipment. 
Similarly, DOE must use these test procedures to determine whether the 
equipment complies with any relevant standards promulgated under EPCA.
    With respect to commercial packaged boilers (CPB), EPCA requires 
DOE to use industry test procedures developed or recognized by the Air-
Conditioning, Heating, and Refrigeration Institute (AHRI) or the 
American Society of Heating, Refrigerating, and Air-Conditioning 
Engineers (ASHRAE), as referenced in ASHRAE/IES \3\ Standard 90.1, 
``Energy Standard for Buildings Except Low-Rise Residential 
Buildings.'' (42 U.S.C. 6314(a)(4)(A)) Further, if such an industry 
test procedure is amended, DOE is required to amend its test procedure 
to be consistent with the amended industry test procedure, unless it 
determines, by rule published in the Federal Register and supported by 
clear and convincing evidence, that the amended test procedure would be 
unduly burdensome to conduct or would not produce test results that 
reflect the energy efficiency, energy use, and estimated operating 
costs of that equipment during a representative average use cycle. (42 
U.S.C. 6314(a)(4)(B))
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    \3\ Illuminating Engineering Society.
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    EPCA also requires that, at least once every 7 years, DOE evaluate 
test procedures for each type of covered equipment, including 
commercial packaged boilers, to determine whether amended test 
procedures would more accurately or fully comply with the requirements 
for the test procedures to not be unduly burdensome to conduct and be 
reasonably designed to produce test results that reflect energy 
efficiency, energy use, and estimated operating costs during a 
representative average use cycle. (42 U.S.C. 6314(a)(1)(A)) DOE last 
reviewed the test procedures for commercial packaged boilers on July 
22, 2009. 74 FR 36312. Therefore, DOE is required to re-evaluate the 
test procedures no later than July 22, 2016, and this rulemaking 
satisfies that requirement. As the industry standard for commercial 
packaged boilers was recently updated, this rulemaking will also 
fulfill DOE's statutory obligations to make its test procedure 
consistent with the applicable industry test procedure.
    On September 3, 2013, DOE initiated a test procedure and energy 
conservation standards rulemaking for commercial packaged boilers and 
published a notice of public meeting and availability of the Framework 
document (September 2013 Framework document). 78 FR 54197. Both in the 
September 2013 Framework document and during the October 1, 2013 public 
meeting, DOE solicited public comments, data, and information on all 
aspects of, and any issues or problems with, the existing DOE test 
procedure, including whether the test procedure is in need of updates 
or revisions. More recently, DOE also received comments on the test 
procedure in response to the notice of availability of the preliminary 
technical support document (TSD) for the standards rulemaking, which 
was published in the Federal Register on November 20, 2014 (November 
2014 Preliminary Analysis). 79 FR 69066.
    Additionally, on February 20, 2014, DOE published in the Federal 
Register a request for information (February 2014 RFI) seeking comments 
on the existing DOE test procedure for commercial packaged boilers, 
which incorporates by reference Hydronics Institute (HI)/AHRI Standard 
BTS-2000 (Rev 06.07), ``Method to Determine Efficiency of Commercial 
Space Heating Boilers'' (BTS-2000). 79 FR 9643. BTS-2000

[[Page 14644]]

provides test procedures for measuring steady-state combustion and 
thermal efficiency of a gas-fired or oil-fired commercial packaged 
boiler capable of producing hot water and/or steam and operating at 
full load only. In the February 2014 RFI, DOE requested comments, 
information, and data about a number of issues, including (1) part-load 
testing and part-load efficiency rating, (2) typical inlet and outlet 
water temperatures for hot water commercial packaged boilers, (3) the 
steam pressure for steam commercial packaged boilers operating at full 
load, and (4) design characteristics of commercial packaged boilers 
that are difficult to test under the existing DOE test procedure.
    Subsequently, on April 29, 2015, AHRI, together with the American 
National Standards Institute (ANSI), published the ``2015 Standard for 
Performance Rating of Commercial Space Heating Boilers'' (ANSI/AHRI 
Standard 1500-2015). ANSI/AHRI Standard 1500-2015 states ``this 
standard supersedes AHRI Hydronics Institute Standard BTS-2000 Rev. 
06.07'' in the front matter of the document. DOE believes that ANSI/
AHRI Standard 1500-2015 is consistent with the existing metrics and 
approach incorporated in BTS-2000 but also incorporates provisions that 
improve the accuracy and repeatability of the test procedure over the 
BTS-2000 standard. ANSI/AHRI Standard 1500-2015 also adopts several 
changes that were suggested in public comments submitted by interested 
parties in response to DOE's September 2013 Framework document, 
November 2014 Preliminary Analysis, and February 2014 RFI.\4\ 
Therefore, as required by 42 U.S.C. 6314(a)(4)(B), DOE is replacing 
BTS-2000 with the updated industry standard, ANSI/AHRI Standard 1500-
2015, as the basis for the DOE test procedure. Section III.A contains a 
more detailed discussion of the basis for transitioning to the 
commercial packaged boiler test procedures outlined in ANSI/AHRI 
Standard 1500-2015.
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    \4\ Comments received as part of the February 2014 RFI about 
test procedures for commercial packaged boilers are in Docket Number 
EERE-2014-BT-TP-0006. In some cases, earlier comments that address 
or are relevant to test procedures for commercial packaged boilers 
are in the energy conservation standards docket, Docket Number EERE-
2013-BT-STD-0030. These comments in response to the September 2013 
Framework Document relevant to the test procedure are also placed in 
the test procedure rulemaking docket, Docket Number EERE-2014-BT-TP-
0006
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II. Synopsis of the Notice of Proposed Rulemaking

    In this notice of proposed rulemaking (NOPR), DOE proposes to amend 
its existing test procedures for commercial packaged boilers at 10 CFR 
431.86. DOE proposes to incorporate by reference certain sections of 
ANSI/AHRI Standard 1500-2015 as a direct replacement for BTS-2000 
since, as discussed in section I, ANSI/AHRI Standard 1500-2015 
supersedes BTS -2000 and DOE has found ANSI/AHRI Standard 1500-2015 to 
be more accurate compared to BTS-2000 and not unduly burdensome to 
conduct for the purposes of testing commercial packaged boilers.
    To obtain information and data regarding its current test 
procedures for commercial packaged boilers, DOE sought public comment 
in the September 2013 Framework document, February 2014 RFI, and 
November 2014 Preliminary Analysis. In response to the September 2013 
Framework document, DOE received comments from the American Boiler 
Manufacturers Association (ABMA), AHRI, Burnham Holdings (Burnham), 
Cleaver-Brooks, HTP Incorporated (HTP), and a joint submission \5\ from 
the American Council for an Energy-Efficient Economy (ACEEE), the 
Appliance Standards Awareness Project (ASAP), and the National 
Resources Defense Council (NRDC). In response to the February 2014 RFI, 
DOE received comments from ACEEE, AHRI, Burnham, HTP, the National 
Propane Gas Association (NPGA), and Sidel Systems (Sidel) (three 
submittals). Sidel submitted two comments prior to the publication of 
the February 2014 RFI that also pertain to commercial packaged boilers. 
In response to the November 2014 Preliminary Analysis, DOE received 
comments from ABMA, AHRI, Lochinvar LLC (Lochinvar), Raypak, and joint 
submissions \6\ from Pacific Gas and Electric (PGE) and Southern 
California Edison (SCE), and ACEEE, ASAP, and NRDC.
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    \5\ The joint submission by ACEEE, ASAP, and NRDC is referred to 
as the ``Joint Advocates'' comment in references to the documents 
submitted to the docket.
    \6\ The joint submission by PGE and SCE is referred to as the 
``Joint Utilities'' comment in references to the documents submitted 
to the docket.
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    The comments received from stakeholders typically concern BTS-2000 
since ANSI/AHRI Standard 1500-2015 had not yet been published at the 
time DOE solicited comments. Some of the comments received from 
stakeholders that concerned BTS-2000 apply equally to ANSI/AHRI 
Standard 1500-2015, whereas other comments are not applicable to ANSI/
AHRI Standard 1500-2015.
    ANSI/AHRI Standard 1500-2015 updates several provisions from BTS-
2000 to: (1) Improve repeatability of testing; (2) further clarify the 
test procedure; and (3) increase the allowable operating steam pressure 
during steam commercial packaged boiler testing. ANSI/AHRI Standard 
1500-2015 also incorporates provisions that accommodate the testing of 
large commercial packaged boilers that have difficulty meeting the 
requirements in the existing DOE test procedure.
    In addition to adopting ANSI/AHRI Standard 1500-2015 as a 
replacement for BTS-2000 in the DOE test procedure, DOE further 
proposes several modifications to its test procedure that are not 
captured in ANSI/AHRI Standard 1500-2015. The additional proposed 
amendments include the following:
     Clarifying the coverage of field constructed commercial 
packaged boilers under DOE's regulations;
     incorporating an optional field test for commercial 
packaged boilers with fuel input rate greater than 5,000,000 Btu/h;
     incorporating an optional conversion method to calculate 
thermal efficiency based on combustion efficiency test for steam 
commercial packaged boilers with fuel input rate greater than 5,000,000 
Btu/h;
     modifying the inlet and outlet water temperatures required 
during tests of hot water commercial packaged boilers to be more 
representative of field conditions;
     requiring additional limits on the room ambient 
temperature and relative humidity during testing;
     modifying setup and instrumentation requirements to remove 
ambiguity; and
     standardizing terminology and provisions in regulatory 
text related to ``fuel input rate.''
    These proposed amendments are intended to improve the repeatability 
of the test and to accommodate some commercial packaged boilers for 
which testing has previously been difficult or burdensome. DOE reviewed 
these additional proposed amendments as well as the proposal to 
incorporate by reference ANSI/AHRI Standard 1500-2015 under 42 U.S.C. 
6314(a)(4)(C) and, in aggregate, DOE has tentatively concluded that 
there would not be an overall effect on efficiency ratings. 
Accordingly, DOE proposes that the amended test procedure would be 
effective 30 days after publication of any final rule in the Federal 
Register and would be required for any representations made with regard 
to the energy efficiency of commercial packaged boilers 360 days 
following publication of any final rule in the Federal Register. (42 
U.S.C. 6314(d))

[[Page 14645]]

DOE's rationale regarding the impact of the proposed test procedure 
amendments on measured energy efficiency of commercial packaged boilers 
is discussed in the subsequent sections.

III. Discussion

    Based on DOE's review of the existing test procedure for commercial 
packaged boilers and comments submitted by interested parties, DOE has 
determined that certain amendments and clarifications are necessary in 
order to improve the repeatability of the DOE test procedure, 
accommodate certain commercial packaged boilers for which manufacturers 
have expressed difficulty testing under the provisions of the existing 
test procedure, and clarify the applicability of DOE's test procedure 
and energy conservation standards to field-constructed equipment. The 
following sections address comments received and propose specific 
improvements for DOE's test procedures for commercial packaged boilers.

A. Proposing To Adopt Certain Sections of ANSI/AHRI Standard 1500-2015

    The existing DOE test procedure for commercial packaged boilers 
incorporates by reference BTS-2000 to determine the steady-state 
efficiency of steam or hot water commercial packaged boilers while 
operating at full load. As described in section I, on April 29, 2015, 
AHRI published a new ANSI/AHRI Standard 1500-2015 (ANSI approved 
November 28, 2014), which supersedes BTS-2000. On May 29, 2015, AHRI 
submitted a request directly to DOE to update the incorporation by 
reference in the DOE test procedure to reference the new ANSI/AHRI 
Standard 1500-2015. (Docket EERE-2014-BT-TP-0006, AHRI, No. 29 at p. 1) 
\7\ DOE reviewed both documents and DOE believes that the recently 
published ANSI/AHRI Standard 1500-2015 standard is not unduly 
burdensome to conduct and represents an improvement over BTS-2000 while 
retaining the general testing methodology and metrics (i.e., thermal 
and combustion efficiency) of the existing test procedure.\8\
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    \7\ A notation in this form provides a reference for information 
that is in Docket No. EERE-2014-BT-TP-0006. This particular notation 
refers to a comment from AHRI on p. 1 of document number 29 in the 
docket.
    \8\ Thermal efficiency is measured for all commercial packaged 
boilers except for oil-fired and gas-fired commercial packaged 
boilers that provide hot water and have greater than 2,500,000 Btu/h 
in fuel input rate, for which combustion efficiency is used. See 10 
CFR 431.87(b).
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    Specifically, ANSI/AHRI Standard 1500-2015 contains the following 
key substantive changes as compared to BTS-2000:
     Improvements in instrumentation accuracy specifications, 
including removing outdated instrumentation; use of more appropriate 
measurement units; and revising gas chemistry instrumentation accuracy 
requirements to reflect those of commonly used devices;
     more specific instructions for establishing test procedure 
configuration, particularly for water piping and positioning of 
temperature measurement devices in fluid stream;
     establishment of criteria that indicate when a steady-
state condition is met; \9\
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    \9\ BTS 2000 noted in section 9.1.1.1.6 that ``a state of 
equilibrium shall have been reached when consistent readings are 
obtained during a 30 minute period,'' but did not explicitly define 
what ``consistent'' meant. ANSI/AHRI Standard 1500-2015 incorporates 
specific thresholds for steam pressure and percent CO2 or 
O2 in the flue gas to specify the maximum allowable 
fluctuations that may occur during ``steady-state'' operation.
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     allowance of steam operating pressure up to 15 psig; and
     instructions addressing how to conduct testing when 
manufacturers do not provide sufficient information within their 
installation materials shipped with the commercial packaged boiler.
    DOE notes that several of the changes incorporated into ANSI/AHRI 
Standard 1500-2015 were also suggested by interested parties in public 
comments responding to DOE's September 2013 Framework document, 
November 2014 Preliminary Analysis, and February 2014 RFI.
    DOE seeks comment on its proposal to replace BTS-2000 with ANSI/
AHRI Standard 1500-2015 in its test procedure for commercial packaged 
boilers. This is identified as Issue 1 in section V.E.

B. Scope and Definitions

    DOE proposes to incorporate several new definitions that help 
clarify the scope and applicability of DOE's commercial packaged boiler 
test procedure. DOE notes that any changes or amendments to DOE's 
definitions at 10 CFR 431.82, if adopted, would also apply to DOE's 
energy conservation standards for commercial packaged boilers.
1. Definition of Commercial Packaged Boiler
    While EPCA authorizes DOE to establish, subject to certain 
criteria, test procedures and energy conservation standards for 
packaged boilers, to date, DOE has only established test procedures and 
standards for commercial packaged boilers, a subset of packaged 
boilers. In 2004, DOE published a final rule (October 2004 final rule) 
establishing definitions, test procedures, and energy conservation 
standards for commercial packaged boilers. 69 FR 61949 (Oct. 21, 2004). 
In the October 2004 final rule, DOE defined ``commercial packaged 
boiler'' as a type of packaged low pressure boiler that is industrial 
equipment with a capacity (fuel input rate) of 300,000 Btu per hour 
(Btu/h) or more which, to any significant extent, is distributed in 
commerce: (1) For heating or space conditioning applications in 
buildings; or (2) for service water heating in buildings but does not 
meet the definition of ``hot water supply boiler.'' DOE also defined 
``packaged low pressure boiler'' as a packaged boiler that is: (1) A 
steam boiler designed to operate at or below a steam pressure of 15 
psig; or (2) a hot water commercial packaged boiler designed to operate 
at or below a water pressure of 160 psig and a temperature of 
250[emsp14][deg]F; or (3) a boiler that is designed to be capable of 
supplying either steam or hot water, and designed to operate under the 
conditions in paragraphs (1) and (2) of this definition. 69 FR 61960.
    DOE notes that, because commercial packaged boilers are currently 
defined as a subset of packaged low pressure boilers, all commercial 
packaged boilers have to meet the pressure and temperature criteria 
established in the definition of a ``packaged low pressure boiler.'' 
Consequently, DOE is proposing to modify DOE's definition of 
``commercial packaged boiler'' to explicitly include the pressure and 
temperature criteria established by the ``packaged low pressure 
boiler'' definition. DOE believes such a modification will clarify the 
characteristics of the equipment to which DOE's test procedure and 
energy conservation standards apply. As a result, DOE proposes to 
remove its definition for packaged low pressure boiler, as it is no 
longer necessary. DOE notes that the term ``packaged high pressure 
boiler'' also is no longer used in the commercial packaged boiler 
subpart, and therefore proposes to remove its definition. DOE seeks 
comment on these proposals. This is identified as Issue 2 in section 
V.E.
2. Field-Constructed Commercial Packaged Boilers
    EPCA establishes the statutory authority by which DOE may regulate 
``packaged boilers'' and defines a ``packaged boiler'' as a boiler that 
is shipped complete with heating equipment, mechanical draft

[[Page 14646]]

equipment, and automatic controls; usually shipped in one or more 
sections. (42 U.S.C. 6311(11)(B)) In adopting the EPCA definition for a 
``packaged boiler,'' DOE amended the definition to: (1) Include 
language to address the various ways in which packaged boilers are 
distributed in commerce; and (2) explicitly exclude custom-designed, 
field-constructed boilers. 69 FR 61949, 61952. ``Custom-designed, 
field-constructed'' boilers were excluded because DOE believed the 
statutory standards for ``packaged boilers'' were not intended to apply 
to these boiler systems, which generally require alteration, cutting, 
drilling, threading, welding or similar tasks by the installer. As a 
result, DOE defined a ``packaged boiler'' as a boiler that is shipped 
complete with heating equipment, mechanical draft equipment and 
automatic controls; usually shipped in one or more sections and does 
not include a boiler that is custom designed and field constructed. If 
the boiler is shipped in more than one section, the sections may be 
produced by more than one manufacturer, and may be originated or 
shipped at different times and from more than one location. 10 CFR 
431.82.
    In this NOPR, DOE wishes to further clarify the differentiation 
between field-constructed commercial packaged boilers, which are 
excluded from DOE's commercial packaged boiler regulations, and field-
assembled commercial packaged boilers, which are subject to DOE's 
regulations. A field-constructed commercial packaged boiler is a 
custom-designed commercial packaged boiler that requires welding of 
structural components in the field during installation. Specifically, 
DOE considers structural components to include heat exchanger sections, 
flue tube bundles and internal heat exchanger surfaces, external piping 
to one or more heat exchanger sections or locations, and the mechanical 
supporting structure the heat exchanger rests upon in the case where a 
support structure is not provided with the commercial packaged boiler. 
For the purposes of this clarification, welding does not include 
attachment using mechanical fasteners or brazing; and any jackets, 
shrouds, venting, burner, or burner mounting hardware are not 
structural components.
    Conversely, a field-assembled commercial packaged boiler can be 
assembled in the field without the welding of the structural components 
that were previously listed. DOE reiterates that field-assembled 
equipment is covered, is required to be tested using the DOE test 
procedure, and is required to comply with the applicable energy 
conservation standards and certification requirements.
    In this NOPR, DOE also proposes to clarify that the field-
constructed exemption pertains to commercial packaged boilers 
specifically, not the broader definition of packaged boiler. Therefore, 
DOE proposes to remove this exclusionary language from its definition 
for ``packaged boiler'' and to incorporate the exclusion for field-
constructed equipment into its definition for commercial packaged 
boiler.
    DOE seeks comment on its proposed definition for ``field-
constructed'' and this is identified as Issue 3 in section V.E.

C. Testing of Large Commercial Packaged Boilers

    In response to the energy conservation standards September 2013 
Framework document, Cleaver-Brooks, Burnham, and ABMA stated that for 
practical reasons, testing requirements should be limited to boilers 
with rated maximum input capacities less than 2,500,000 Btu/h. These 
commenters raised concerns regarding the time and expense of testing 
larger boilers, and the ability of some independent testing 
laboratories and manufacturers to test larger boilers due to heat sink 
requirements for the hot water generated. (Docket EERE-2013-BT-STD-
0030, Cleaver-Brooks, No. 12 at p. 1; Docket EERE-2013-BT-STD-0030, 
Burnham, No. 15 at p. 2; Docket EERE-2013-BT-STD-0030, ABMA, No. 14 at 
p. 3) ABMA reiterated these concerns in response to the November 2014 
Preliminary Analysis. (Docket EERE-2013-BT-STD-0030, ABMA, No. 33 at 
pp. 1-2) Lochinvar, in response to the November 2014 Preliminary 
Analysis, stated that alternative efficiency determination method 
(AEDM) rules mitigated test burden concerns for large boilers. (Docket 
EERE-2013-BT-STD-0030, Lochinvar, No. 34 at p. 1)
    In response, DOE notes that neither the statutory definition for 
``packaged boiler'' at 42 U.S.C. 6311(11)(B) nor the definition for 
``commercial packaged boiler'' at 10 CFR 431.82 set an upper limit on 
the maximum fuel input rate of covered equipment. The energy 
conservation standards for commercial packaged boilers at 10 CFR 431.87 
also do not establish any limitations based on the fuel input rate of 
equipment. Consequently, commercial packaged boiler models with high 
fuel input rates are subject to DOE's existing standards for commercial 
packaged boilers, and to establish such a fuel input rate limit for 
covered equipment with existing standards would violate the anti-
backsliding provisions of EPCA found at 42 U.S.C. 6313(a)(6)(B)(iii)(I) 
for those equipment larger than the limit. Additionally, both BTS-2000 
(incorporated by reference in the existing DOE test procedure) and 
ANSI/AHRI Standard 1500-2015 (proposed to be incorporated by reference) 
include any commercial packaged boiler with fuel input rate of 300,000 
Btu/h or greater.
    DOE recognizes the commenters' concerns that it may be difficult to 
test thermal efficiency for large commercial packaged boilers and notes 
that EPCA requires that test procedures shall not be unduly burdensome 
to conduct. (42 U.S.C. 6314(a)(2)) Specifically, DOE recognizes that 
large commercial packaged boilers may not be fully assembled until they 
are installed at the field site, which may preclude them from being 
tested in a laboratory setting. DOE also recognizes that, as the size 
of the equipment increases, testing costs incurred to condition the 
incoming water and air to the test procedure rating conditions, as well 
as management of the hot water generated during testing, also 
increases.
    In this NOPR, DOE proposes several amendments to the DOE test 
procedure in order to provide greater flexibility for testing certain 
large commercial packaged boilers and field-assembled commercial 
packaged boilers. Specifically, DOE proposes the following provisions:
     A field test of combustion efficiency for commercial 
packaged boilers with fuel input rate greater than 5,000,000 Btu/h;
     a calculation method to convert combustion efficiency to 
thermal efficiency for steam commercial packaged boilers with fuel 
input rate greater than 5,000,000 Btu/h; and
     an increase in allowable steam pressure to 15 psi (by 
incorporating by reference AHRI Standard 1500-2015).
    DOE notes that the continued allowance for the use of an AEDM also 
facilitates the ability to ascertain the efficiency of large commercial 
packaged boilers. These proposed amendments for providing greater 
flexibility in the testing of large commercial packaged boilers are 
discussed in the following subsections.
1. Field Tests for Commercial Packaged Boilers
    DOE proposes to adopt an optional test method for commercial 
packaged boilers with fuel input rate greater than 5,000,000 Btu/h 
which would allow for: (1) Measuring a steam or hot water commercial 
packaged boiler's

[[Page 14647]]

combustion efficiency in the field; and (2) converting the measured 
combustion efficiency to thermal efficiency via a calculation method 
for steam commercial packaged boilers (discussed in section III.C.2).
    DOE understands ``field test'' to mean a combustion efficiency test 
that is conducted at the location in which a given commercial packaged 
boiler is or will be installed and commissioned for use. DOE 
understands that the combustion efficiency test is less burdensome to 
conduct on large commercial packaged boilers than the thermal 
efficiency test and is more feasible to conduct in the field than the 
thermal efficiency test. Specifically, the test setup required for 
obtaining the combustion efficiency according to ANSI/AHRI Standard 
1500-2015 is less involved and requires less instrumentation in the 
working fluid stream (flow meters are not required) than the thermal 
efficiency test, and involves calculations using primarily the flue gas 
temperature and constituents. The combustion efficiency test also 
requires less time to run than the thermal efficiency test and 
therefore requires less fuel and water, which must be managed and 
disposed of as part of the test. DOE believes that allowance for 
testing commercial packaged boilers with fuel input rates greater than 
5,000,000 Btu/h in the field would reduce the burden associated with 
testing this equipment and would mitigate the concerns of interested 
parties regarding laboratory limitations. However, DOE notes that 
changes to the test procedure are necessary to account for the 
following issues associated with testing in the field:
     Ambient conditions in the field may be difficult to 
control (see section III.E of this NOPR).
     Setup requirements of thermal efficiency test (both ANSI/
AHRI Standard 1500-2015 and proposed DOE test procedure amendments) may 
not be possible to achieve in field (see section III.F of this NOPR).
     Maintaining inlet and outlet water temperatures or steam 
quality (as applicable) may not be possible in the field (see section 
III.D of this NOPR).
    Consequently, DOE proposes that the aforementioned requirements for 
ambient conditions, certain setup requirements, steam quality, and 
inlet and outlet water temperatures not apply for field tests. While 
DOE believes such flexibility is necessary to limit burden when testing 
large commercial packaged boilers in the field, DOE recognizes that 
eliminating these requirements regarding testing conditions may 
decrease the accuracy and repeatability of the test. As such, DOE is 
proposing that the optional field test only be available for commercial 
packaged boilers with fuel input rates greater than 5,000,000 Btu/h, 
for which testing in a laboratory setting is difficult, expensive, or 
impractical.
    To help improve the consistency and repeatability of field tests, 
DOE also proposes that manufacturers measure these values (inlet water 
temperature, outlet water temperature, ambient relative humidity, and 
ambient temperature) and maintain the records of these measurements as 
part of the test data underlying the manufacturer's compliance 
certification in accordance with the requirements in 10 CFR 429.71. If 
a manufacturer elects to use the field test option in the test 
procedure, the manufacturer would also be required to report that the 
rated efficiency is based on a field test.
    Since DOE proposes this optional methodology primarily to 
accommodate commercial packaged boilers with fuel input rate greater 
than 5,000,000 Btu/h, DOE proposes to allow certification based on a 
sample size of one for manufacturers utilizing the field test and 
conversion methodology. DOE has never intended that a manufacturer 
build more than one unit solely for the purposes of testing and 
clarified this during the Commercial Certification Working Group 
meetings (Docket No. EERE-2013-BT-NOC-0023). Additionally, 10 CFR 
429.12(a) requires that certification of equipment occur before 
distribution in commerce. With respect to commercial packaged boilers 
that are not field assembled, distribution in commerce would be 
determined, similar to other covered equipment, using the factors 
specified in the certification, compliance, and enforcement final rule 
published on March 7, 2011. 76 FR 12422, 12426-12427. Any field tested 
basic model of a commercial packaged boiler that has not been 
previously certified through testing or an AEDM would be required to be 
certified by the manufacturer to DOE within 15 days of commissioning. 
(Note: by ``commissioning,'' DOE means adapting the boiler operating 
conditions and parameters to those required for the building space 
heating load.) DOE proposes to adopt this exception in recognition of 
the high test burden and practical limitations of testing these boilers 
prior to distributing them in commerce; however, DOE notes that, if the 
field test demonstrates that the unit does not meet the applicable 
standard, then the manufacturer would have to decommission the unit 
until it can be modified and retested to demonstrate compliance with 
the standard. Failure to decommission the unit immediately (i.e., 
allowing the unit to be used during any time period while the unit is 
being redesigned, parts are being built or ordered, etc. to make the 
unit compliant) would constitute a violation of the standards and the 
certification requirements. DOE also notes that, when a single unit is 
tested, there is no tolerance on the performance; the tested unit must 
meet the standard.
    Since commercial packaged boilers with fuel input rates greater 
than 5,000,000 Btu/h would not be easily transported between 
manufacturer, laboratory, and consumer facilities, DOE also proposes 
that, at its discretion, assessment and enforcement testing of 
commissioned units could also be conducted as field tests. The location 
at which the enforcement field test is performed may or may not be the 
same location at which the manufacturer conducted its field test. DOE 
recognizes that a field test could not meet the existing laboratory 
accreditation requirements found at 10 CFR 429.110(a)(3) and there 
proposes an exception in this section specifically for field tests of 
commercial packaged boilers.
    DOE seeks comments on the following issues, and these are also 
listed in section V.E:
     The feasibility of conducting a combustion efficiency test 
in the field for steam and hot water commercial packaged boilers with 
fuel input rate greater than 5,000,000 Btu/h (Issue 4).
     Whether the thermal efficiency test can be conducted for 
steam commercial packaged boilers with fuel input rate greater than 
2,500,000 Btu/h and less than or equal to 5,000,000 Btu/h (Issue 5).
     The specific limitations, if any, that preclude combustion 
efficiency testing in a laboratory setting for steam commercial 
packaged boilers with fuel input rate greater than 2,500,000 Btu/h and 
less than or equal to 5,000,000 Btu/h (Issue 6).
     The specific additional equipment or facilities and their 
associated cost that would be required to accommodate testing 
commercial packaged boilers with fuel input rate greater than 2,500,000 
Btu/h and less than or equal to 5,000,000 Btu/h in a laboratory setting 
(Issue 7).
     Whether the 5,000,000 Btu/h fuel input rate is an adequate 
threshold for the allowance of the field combustion test and conversion 
methodology, and if not, what threshold should be used (Issue 8).
     Whether certification should be permitted for field tested 
units after distribution in commerce and after

[[Page 14648]]

commissioning, in particular the impact of this approach on building 
inspectors (Issue 9).
2. Method To Convert Combustion Efficiency to Thermal Efficiency for 
Steam Commercial Packaged Boilers
    DOE also proposes a method for converting the combustion efficiency 
of a steam commercial packaged boiler to thermal efficiency. Such a 
conversion would be necessary for steam commercial packaged boilers 
because the efficiency metric for this equipment at 10 CFR 431.86 is 
thermal efficiency. DOE proposes this conversion method only for those 
steam commercial packaged boilers with a fuel input rate greater than 
5,000,000 Btu/h based on the concerns presented in section III.C. This 
conversion methodology would be available to manufacturers or 
laboratories to perform a combustion efficiency test in a laboratory 
setting or as a field test as described in III.C.1.
    The proposed conversion method calculates thermal efficiency by 
subtracting a constant value from the combustion efficiency, which must 
be measured in accordance with ANSI/AHRI Standard 1500-2015. Thermal 
efficiency includes heat exchanger effectiveness and jacket losses 
which are not captured in the combustion efficiency. The constant value 
subtracted from the tested combustion efficiency value represents those 
additional losses. In order to determine such a value, DOE analyzed the 
AHRI directory (as of January 2015).\10\ DOE looked at the difference 
between rated combustion and thermal efficiency for all steam 
commercial packaged boilers with rated input larger than 5,000,000 Btu/
h. DOE found 52 basic models of steam commercial packaged boilers with 
a rated input larger than 5,000,000 Btu/h and the difference between 
rated combustion and thermal efficiency ranged between 0.5 percent and 
2.0 percent. Based on these values, DOE proposes subtracting 2.0 
percent from the measured combustion efficiency of steam commercial 
packaged boilers with fuel input rating 5,000,000 Btu/h or greater in 
order to calculate a rated thermal efficiency. DOE believes that 
subtracting 2.0 percent from the measured combustion efficiency 
determined during the field test would result in conservative thermal 
efficiency ratings of models, thereby encouraging manufacturers to 
conduct thermal efficiency tests.
---------------------------------------------------------------------------

    \10\ Available at: https://www.ahridirectory.org/ahridirectory/pages/home.aspx.
---------------------------------------------------------------------------

    Manufacturers must use the certified rating for any representation 
of efficiency no matter which methodology is used. That is, for 
equipment certified under the calculation procedure, any 
representations of the energy efficiency must be made based on the 
calculated value and any equipment certified using the tested value of 
thermal efficiency must be made based on the results of that testing.
    DOE seeks comments on the following issues, which are also listed 
in section V.E:
     The proposed conversion method for calculating thermal 
efficiency based on measured combustion efficiency for steam commercial 
packaged boilers with fuel input rate greater than 5,000,000 Btu/h 
(Issue 10);
     The proposed value for the difference between the 
combustion efficiency and thermal efficiency in the conversion method 
(proposed value of 2.0 percent of the combustion efficiency), whether 
the value would result in conservative ratings, and what number DOE 
should use instead if the proposed value is not adequate (Issue 11);
     Whether the 5,000,000 Btu/h fuel input rate is an adequate 
threshold for the allowance of the field test (for combustion 
efficiency) and/or conversion methodology, and if not, what threshold 
should be used (Issue 12); and
     If the field test (for hot water and steam commercial 
packaged boilers) and conversion methodologies (for steam commercial 
packaged boilers) do not adequately accommodate commercial packaged 
boilers with fuel input rate greater than 5,000,000 Btu/h, what 
procedure should DOE implement in order to do so (Issue 13).
3. Alternative Efficiency Determination Methods
    The provisions under 10 CFR 429.70 provide for alternative methods 
for determining energy efficiency and energy use of certain equipment, 
including commercial packaged boilers. An AEDM must first be validated 
for a particular validation class in accordance with the requirements 
of 10 CFR 429.70(c) using the applicable test procedure (e.g., the test 
procedure under 10 CFR 431.86 for commercial packaged boilers). For 
each validation class of commercial packaged boilers, at least two (2) 
distinct basic models must be tested in order to validate the AEDM 
before using the AEDM to predict the fuel input rate or efficiency of a 
commercial packaged boiler. 10 CFR 429.70(c)(2)(iv). Such a test may be 
performed on any individual models in a validation class that meet or 
exceed the current applicable Federal energy conservation standard, 
regardless of size. As noted by Lochinvar in response to the November 
2014 Preliminary Analysis, the AEDM process mitigates test burden 
concerns for large commercial packaged boilers. (Docket EERE-2013-BT-
STD-0030, Lochinvar, No. 34 at p. 1)
    However, in light of DOE's proposal to allow field tests for 
commercial packaged boilers with fuel input rates than 5,000,000 Btu/h 
(described in section III.C.1), DOE proposes to limit the cases in 
which field tests may be used for AEDM validation pursuant to 10 CFR 
429.70(c)(2). Specifically, DOE proposes that AEDMs validated using 
data derived from field tests may only be used to rate commercial 
packaged boilers with fuel input rate greater than 5,000,000 Btu/h. As 
discussed in section III.C.1, DOE proposes a field test option for 
commercial packaged boilers with fuel input rates greater than 
5,000,000 Btu/h that disregards certain testing requirements, measures 
combustion efficiency, and applies a calculation method to convert 
combustion efficiency to thermal efficiency (for steam commercial 
packaged boilers). While this field test option reduces testing burden, 
it also leads to more variability and uncertainty in the test results. 
As such, DOE believes that the proposed allowances for field tests of 
commercial packaged boilers with fuel input rate greater than 5,000,000 
Btu/h would not provide sufficient validation of an AEDM for use on 
smaller units that must undergo laboratory tests. Therefore, DOE 
proposes that AEDMs validated based on field test data may only be used 
for commercial packaged boilers with fuel input rates greater than 
5,000,000 Btu/h. Laboratory tests of commercial packaged boilers of any 
size (i.e., not field tested) can continue to be used to validate an 
AEDM that is used to rate commercial packaged boilers of any size, 
including those with fuel input rate greater than 5,000,000 Btu/h.
4. Steam Commercial Packaged Boiler Operating Pressure
    Section 8.6.1 of BTS-2000 provides that tests may be made at 
atmospheric pressure or at pressure not exceeding 2 psi gauge, and 
section 8.6.3 of BTS-2000 requires that the moisture in steam not 
exceed 2 percent of the water fed to the commercial packaged boiler 
during the test. These provisions are incorporated by reference in the 
existing DOE test procedure for commercial packaged boilers. DOE 
solicited public comments on test pressure and steam moisture content 
in the September 2013 Framework document; during the October 1, 2013 
energy conservation

[[Page 14649]]

standards Framework document public meeting; and in the February 2014 
RFI. In particular, DOE requested comments about (1) the appropriate 
steam pressure for steam commercial packaged boilers operating at full 
load, (2) the effect of different steam pressures on steady-state 
efficiency (thermal or combustion), and (3) the impacts of the steam 
pressure testing requirements on the amount of water carryover and the 
system operation.
    ABMA expressed concern that the steam pressure requirements in BTS-
2000 may be suitable for certain boilers but not for some larger-
capacity models. For example, ABMA indicated that a fire-tube boiler 
cannot operate successfully at 2 psig steam pressure. Instead, ABMA 
argued that a fire-tube boiler should be operated at 10 to 12 psig 
steam pressure to achieve acceptable steam quality. (Docket EERE-2013-
BT-STD-0030, ABMA, No. 13 at p. 31) ABMA also commented that while 
steam pressure not greater than 0-2 psig has been adequate for the 
majority of boilers, the 0-2 psig test pressure is unrealistic for 
larger-capacity steam boilers, as it causes high steam velocity at the 
steam/water interface and the steam outlet nozzle, which results in 
excessive water entrainment and carryover (i.e., poor steam quality). 
(Docket EERE-2013-BT-STD-0030, ABMA, No. 14 at p. 2) Cleaver-Brooks 
commented that it cannot test its steam boilers at such low operating 
pressures because its boilers are designed to operate near or at 10 
psig. (Docket EERE-2013-BT-STD-0030, Cleaver-Brooks, No. 12 at p. 1) 
Burnham encouraged DOE to raise the limit of the required steam test 
pressure to give manufacturers flexibility for equipment designed to 
operate at pressures above 2 psig. (Docket EERE-2014-BT-TP-0006, 
Burnham, No. 4 at p. 2) AHRI opined that an alternative steam pressure 
requirement may have an effect on the steady-state measurement, but 
that such change would be minimal. (Docket EERE-2014-BT-TP-0006, AHRI, 
No. 6 at p. 2)
    DOE notes that it has also received several requests for test 
procedure waivers, citing the inability to simultaneously meet the 
maximum steam pressure requirement (of between 0 and 2 psig) and the 
steam moisture requirement (of less than or equal to 2 percent 
moisture). Based on the public comments and the waiver requests DOE has 
received to date, DOE understands that larger commercial packaged 
boilers are designed for operating pressures greater than 2 psig and 
have difficulty being tested in accordance with the DOE existing test 
procedure for commercial packaged boilers; that is, at a pressure not 
exceeding 2 psig and also not exceeding 2 percent moisture in the 
produced steam.
    DOE notes that, to accommodate testing of these commercial packaged 
boilers, section 5.3.6 of ANSI/AHRI Standard 1500-2015 requires that 
tests shall be made at atmospheric pressure or at the pressure required 
to comply with Section 5.3.7 [of ANSI/AHRI Standard 1500-2015], not 
exceeding 15 psi gauge. Therefore, DOE recognizes that amending 10 CFR 
431.86 to replace BTS-2000 with ANSI/AHRI Standard 1500-2015 would 
permit steam operating pressures up to but not exceeding 15 psig and 
therefore resolve the issues associated with testing large commercial 
packaged boilers designed to operate at higher pressures. DOE does not 
anticipate this change would have an effect on measured efficiency 
ratings because it is being made to accommodate only certain large 
commercial packaged boilers that manufacturers have claimed cannot be 
tested under the existing DOE test procedure and for which 
manufacturers submitted waiver requests under 10 CFR 431.401.
    DOE also notes that ANSI/AHRI Standard 1500-2015 allows for any 
steam pressure from 0-15 psig to be used for testing. However, DOE 
believes that it is important to maintain consistency and repeatability 
within the CPB test procedure and subsequent ratings. Therefore, DOE 
proposes that only those commercial packaged boilers that cannot 
operate at a steam pressure below 2 psig would be able to apply such a 
provision in order to also meet the steam quality requirement. However, 
DOE recognizes that, theoretically, variation in steam pressure would 
result in changes in both thermal and combustion efficiency. Therefore, 
to ensure commercial packaged boilers that cannot be tested at the 
prescribed 0-2 psig steam pressure are tested in a consistent manner, 
DOE proposes that such equipment be tested at the steam pressure 
closest to 2 psig that it can maintain while also maintaining the 
requirement of less than 2 percent moisture in the steam, not exceeding 
15 psig. DOE notes that a manufacturer may need to incrementally 
increase steam test pressure above atmospheric pressure or the 2 psig 
requirement to meet the moisture requirement, thereby maintaining steam 
quality. DOE is not aware of any commercial packaged boilers that would 
require higher operating pressures than 15 psig to maintain the steam 
quality requirements.
    DOE seeks comments, data, and information about pressures 
recommended by manufacturers and relevance to actual operating 
conditions in buildings. This is identified as Issue 14 in section V.E. 
DOE also seeks comment on whether DOE should require testing to be 
performed at the lowest possible steam pressure where steam quality 
requirements can be met. This is identified as Issue 15 in section V.E. 
DOE also requests comment on if there are any commercial packaged 
boilers that require steam pressures greater than 15 psig to maintain 2 
percent moisture in the produced steam. This is identified as Issue 16 
in section V.E.

D. Hot Water Commercial Packaged Boiler Operating Temperatures

    In the energy conservation standards September 2013 Framework 
document, the February 2014 RFI, and the November 2014 Preliminary 
Analysis DOE requested comments, data, and information about the 
appropriate inlet and outlet water temperatures for part-load and full-
load testing conditions of hot water commercial packaged boilers, and 
information about how these equipment are currently tested. Issues 
pertaining to the inlet water temperature and the temperature rise 
required by the test procedure were also raised during the public 
meeting regarding the energy conservation standards September 2013 
Framework document. In addition to the comments solicited in response 
to the September 2013 Framework document, February 2014 RFI, and the 
November 2014 Preliminary Analysis; DOE conducted confidential 
manufacturer interviews as part of the energy conservation standards 
rulemaking process for commercial packaged boilers (manufacturer 
interviews), during which manufacturers also discussed issues regarding 
the commercial packaged boiler test procedure. In the subsequent 
sections, DOE discusses the existing requirements regarding hot water 
temperatures, issues identified by interested parties, proposed changes 
to the hot water temperature requirements, and potential impacts of 
those proposed changes.
1. Existing Requirements
    The existing DOE test procedure for commercial packaged boilers 
incorporates by reference BTS-2000 which includes test requirements for 
inlet and outlet water temperatures for non-condensing and condensing 
commercial packaged boilers. For a non-condensing commercial packaged 
boiler, section 8.5.1.1 of BTS-2000 requires inlet water temperature to 
be

[[Page 14650]]

between 35[emsp14][deg]F and 80[emsp14][deg]F (at Point A in Figure 
III.1), and outlet water temperature to be 180[emsp14][deg]F  2[emsp14][deg]F (at Point C in Figure III.1). For a condensing 
commercial packaged boiler, section 8.5.1.2 of BTS-2000 requires inlet 
water temperature to be 80[emsp14][deg]F  5[emsp14][deg]F 
(at Point A in Figure III.1 and outlet water temperature to be 
180[emsp14][deg]F  2[emsp14][deg]F (at Point C in Figure 
III.1). These temperature requirements are consistent with those in 
ANSI/AHRI Standard 1500-2015. Specifically, Figure III.1 (taken from 
Figure C9 in ANSI/AHRI Standard 1500-2015) identifies the location of 
the measurement of the inlet water temperature (Point A: 
TIN) and the outlet water temperature (Point C: 
TOUT).
[GRAPHIC] [TIFF OMITTED] TP17MR16.001

    The difference between the inlet and outlet water temperatures 
describes the temperature rise across the commercial packaged boiler. 
BTS-2000 also includes an allowance in section 8.5.1.1.1 for tubular 
commercial packaged boilers to use a recirculating loop, which reduces 
the temperature rise across the commercial packaged boiler itself 
(Point B to Point C), while maintaining the inlet water temperature 
requirements specified in the DOE test procedure as measured at Point 
A. That is, in cases where a recirculating loop is used, BTS-2000 
requires that the temperature requirements described previously must 
still be met at Point A in Figure III.1 prior to mixing with the warmer 
recirculating loop water. BTS-2000 (and ANSI/AHRI Standard 1500-2015 at 
section 5.3.5.3) also limits the temperature rise between Point B and 
Point C to not less than 20[emsp14][deg]F for commercial packaged 
boilers tested using a recirculating loop. ANSI/AHRI Standard 1500-2015 
expands the allowable use of a recirculating loop to all commercial 
packaged boilers in section 5.3.5.3, where previously it was allowed 
for commercial packaged boilers with tubular heat exchangers only.
    The measurements of inlet and outlet water temperature at Points A 
and C are used in Equation 1 to calculate the amount of energy 
transferred into the heated water, as described by item C7.2.11.3 in 
ANSI/AHRI Standard 1500-2015 (also in 11.1.11.3 of BTS-2000). This 
equation is given by
[GRAPHIC] [TIFF OMITTED] TP17MR16.002

where QS is the rate of heat transferred in Btu/h, W is the 
weight of heated water in pounds (lb) measured during the test, 
CP,H2O is the specific heat of water in Btu/lb/[deg]F, 
TOUT is the outlet water temperature at Point C ([deg]F), 
TIN is the inlet water temperature at Point A ([deg]F), and 
tT is the test duration in hours.

    In general, the efficiency of a commercial packaged boiler is 
proportional to the amount of water heated and the amount of heat 
energy added to this amount of water. As shown in Equation 1, the 
amount of heat energy transferred is proportional to the product of the 
weight of the water fed (W) and the temperature rise across the 
commercial packaged boiler (TOUT-TIN). The 
efficiency is therefore dependent on the inlet water temperature, 
whereby lower inlet temperatures result in greater amounts of heat 
energy transferred and therefore higher thermal efficiencies. As the 
energy from the flue gases is only transferred to the hot water in the 
heat exchanger, the first law of thermodynamics establishes a lower 
limit on the temperature the flue gas can achieve, which is the lowest 
water temperature within the commercial packaged boiler. Therefore as 
the inlet water temperature is reduced, more energy may be extracted 
from the combustion gases, resulting in potentially higher efficiency. 
These conditions hold true for both non-condensing and condensing 
commercial packaged boilers.

[[Page 14651]]

2. Issues With Water Temperature Requirements and Proposed Changes
    Through the October 2013 Framework document, February 2014 RFI, the 
November 2014 Preliminary Analysis, manufacturer interviews, and a 
review of the existing DOE test procedure, DOE identified the following 
concerns regarding its existing water temperature requirements for 
commercial packaged boilers:
     The current temperature rise is unrepresentative of actual 
operating conditions.
     The current temperature rise may induce excessive stresses 
on some commercial packaged boilers.
     The presence of recirculating loops during testing leads 
to significant variability in the actual temperature rise across the 
commercial packaged boiler (Point B to Point C in Figure III.1).
    These issues are discussed in detail in this section.
    During the manufacturer interviews, a number of manufacturers 
indicated that the 100[emsp14][deg]F temperature rise in BTS-2000 (for 
both condensing or non-condensing commercial packaged boilers) was 
unrepresentative of real-world conditions, and instead indicated that 
commercial packaged boilers are typically designed for a 
20[emsp14][deg]F to 40[emsp14][deg]F temperature rise. These 
manufacturers suggested that testing with a 20[emsp14][deg]F to 
40[emsp14][deg]F temperature rise would better reflect conditions found 
in typical building applications. DOE understands this to mean the 
actual temperature rise across the commercial packaged boiler itself 
(i.e., between Point B and Point C in Figure III.1).
    During the public meeting regarding the September 2013 energy 
conservation standards Framework document, ACEEE asserted that a 
100[emsp14][deg]F temperature rise is an inadequate way to characterize 
modern boilers, does not provide sufficient information about 
performance of a boiler with a 20[emsp14][deg]F temperature rise 
between inlet and outlet water temperature at part-load conditions, and 
is essentially irrelevant for comparing efficiencies among a range of 
boiler sizes. (Docket EERE-2013-BT-STD-0030, ACEEE, No. 13 at pp. 20, 
36) In later comments, ACEEE recommended a 20[emsp14][deg]F temperature 
rise, arguing that it is within the range of the most common 
temperature rise and provides the most conservative value for full-
load, steady-state efficiency. ACEEE also commented that a manufacturer 
should be able to publish ``application ratings'' (informational 
ratings obtained at different operating conditions) for different 
temperature rise values. In addition, whether for a fixed capacity or 
modulating boiler, ACEEE observed that the lower inlet water 
temperatures result in higher efficiencies, and ACEEE stated its 
understanding that almost all the efficiency gain is due to the release 
of latent energy at inlet water temperatures less than 
140[emsp14][deg]F. ACEEE then suggested that a commercial packaged 
boiler should be rated at the lowest inlet water temperature that 
remains under the manufacturer's warranty for continuous service, 
whether for a fixed capacity or modulating boiler. (Docket EERE-2014-
BT-TP-0006, ACEEE, No. 2 at p. 2.)
    A joint comment from ACEEE, ASAP, and NRDC suggested that the 
existing DOE test procedure for commercial packaged boilers is obsolete 
because it obscures the annual energy savings potential of condensing 
boilers in commercial building applications. BTS-2000 measures 
efficiency at peak load, using a minimum 100[emsp14][deg]F temperature 
rise between inlet and outlet (note: BTS-2000 defines inlet temperature 
at a location preceding the reentry of any recirculating loop water), 
and requires 180[emsp14][deg]F outlet temperature. (This continues to 
be the case in ANSI/AHRI Standard 1500-2015.) However, the commenters 
argued that the existing test procedure does not consider condensing 
boilers that can operate at part load with greater efficiency if the 
system design allows for inlet water at condensing temperatures 
(<140[emsp14][deg]F). (Docket EERE-2013-BT-STD-0030, Joint Advocates, 
No. 16 at p. 2)
    In response to the November 2014 Preliminary Analysis, Raypak 
suggested that the wide range in allowable inlet water temperatures in 
BTS-2000 is to accommodate the wide range of ground water temperatures 
throughout the year. (Docket EERE-2013-BT-STD-0030, Raypak, No. 35 at 
p. 3)
    ABMA expressed concerns on behalf of its members that (1) water 
temperatures required by BTS-2000 are obsolete or do not represent 
installed boilers; (2) the temperature rise resulting from the required 
inlet and outlet water temperatures set forth in BTS-2000 can place 
excessive stress on the boiler pressure vessel, thereby leading to 
shorter boiler life; and (3) the considerable cost of testing larger 
boilers could approach $1 million. ABMA added that test pressures and 
temperatures should be more realistic in terms of normal system 
operating conditions and that an appropriate inlet temperature would be 
140[emsp14][deg]F or the manufacturer's recommended minimum. (Docket 
EERE-2013-BT-STD-0030, ABMA, No. 14 at p. 1-3) DOE notes that these 
concerns continue to apply to ANSI/AHRI Standard 1500-2015 since these 
temperatures are the same as those found in BTS-2000.
    Cleaver-Brooks stated that BTS-2000 specifies an outlet temperature 
of 180[emsp14][deg]F and an inlet water temperature of 38[emsp14][deg]F 
[sic] to 80[emsp14][deg]F for non-condensing boilers. (Note: BTS-2000 
prescribes an inlet water temperature of 35[emsp14][deg]F.) Instead, 
for much of its equipment, Cleaver-Brooks stated that it specifies a 
minimum inlet water temperature of 140[emsp14][deg]F to reduce damage 
from thermally induced stresses. Cleaver-Brooks asserted that neither 
the required steam nor the hot water test conditions set forth in the 
existing DOE test procedure for commercial packaged boilers reflect 
actual conditions in buildings, and that test conditions overestimate 
boiler efficiency compared to what an end-user would be expected to 
experience in actual applications. The commenter suggested modifying 
the test procedure to require an outlet water temperature of 
180[emsp14][deg]F and an inlet water temperature of 140[emsp14][deg]F 
or, at a minimum, to allow such test conditions as an alternative. 
(Docket EERE-2013-BT-STD-0030, Cleaver-Brooks, No. 12 at p. 1) Again, 
DOE notes that these concerns also apply to ANSI/AHRI Standard 1500-
2015, as the standard maintains the same inlet and outlet water 
temperature requirements as BTS-2000. DOE also believes that the inlet 
water temperatures described by Cleaver-Brooks and ABMA are intended to 
mean the inlet water temperature in the absence of a recirculating 
loop. As noted earlier, the existing DOE test procedure (section 
8.5.1.1.1 of BTS-2000) allows for the use of a recirculating loop for 
tubular commercial packaged boilers, thereby increasing the inlet water 
temperature seen by the commercial packaged boiler (shown as Point B in 
Figure III.1) and reducing the actual temperature rise across the 
commercial packaged boiler.
    Similarly, Lochinvar stated in response to the November 2014 
Preliminary Analysis that the allowance in BTS-2000 for a recirculation 
loop in some instances would result in higher water temperature going 
into the commercial packaged boiler. Lochinvar noted that efficiency 
curves that present the efficiency of a commercial packaged boiler as a 
function of return (inlet) water temperature (and are sometimes 
provided in marketing literature) are not based on the methodology of 
BTS-2000. Lochinvar further recommended that DOE not attempt to correct 
the efficiency of commercial packaged boilers for inlet water 
temperature. (Docket EERE-2013-BT-STD-0030, No. 34 at p. 3)
    In order to address the issues presented in section III.D.2, DOE

[[Page 14652]]

proposes amendments to the inlet and outlet water temperatures for both 
condensing and non-condensing commercial packaged boilers. Upon 
consideration of the above comments about inlet and outlet water 
temperatures; review of commercial packaged boiler manufacturer 
literature; and consideration of results of testing of commercial 
packaged boilers at temperatures that, according to commercial packaged 
boiler manufacturers, would reflect normal system operating conditions; 
DOE agrees with interested parties that a 100[emsp14][deg]F to 
145[emsp14][deg]F nominal temperature rise does not necessarily reflect 
conditions typically associated with installed non-condensing or 
condensing commercial packaged boilers.
    Further, DOE acknowledges that the presence of recirculating loops 
in testing obscures the actual inlet water temperature entering the 
commercial packaged boiler at Point B in Figure III.1 (and therefore 
the actual temperature rise experienced by the commercial packaged 
boiler) because the inlet water temperature is measured and maintained 
at Point A only, under the existing procedure. Specifically, DOE 
observed that, based on the permissible inlet and outlet temperatures, 
the tolerances on those temperatures, and the use of recirculating 
loops, the temperature rises between Point B and Point C in Figure 
III.1 allowable by both BTS-2000 and ANSI/AHRI Standard 1500-2015 can 
range from 20[emsp14][deg]F to 147[emsp14][deg]F for non-condensing 
commercial packaged boilers (section 8.5.1.1 of BTS 2000 and section 
5.3.5.1 of ANSI/AHRI Standard 1500-2015) and 20[emsp14][deg]F to 
107[emsp14][deg]F for condensing commercial packaged boilers (section 
8.5.1.2 of BTS 2000 and section 5.3.5.2 of ANSI/AHRI Standard 1500-
2015). (Note: the minimum temperature rise of 20[emsp14][deg]F across 
the commercial packaged boiler assumes that recirculating loops are 
currently being used for these tests.) DOE notes that such variability 
has the potential to yield variability in tested combustion efficiency 
and thermal efficiency ratings.
    Accordingly, to improve the consistency and repeatability of the 
DOE test procedure, DOE proposes to revise the hot water temperature 
requirements to require the inlet water temperature to be 
140[emsp14][deg]F 1[emsp14][deg]F for non-condensing 
equipment, as determined at Point B (see Figure III.1). For non-
condensing equipment, DOE is maintaining the outlet temperature of 
180[emsp14][deg]F but is specifying a new tolerance for this 
measurement, which is discussed further in section III.D.3). Similarly, 
DOE proposes to require an outlet water temperature of 
120[emsp14][deg]F 1[emsp14][deg]F for condensing equipment, 
as determined at Point C (see Figure III.1). For condensing equipment, 
DOE is proposing an inlet water temperature specification of 
80[emsp14][deg]F as measured at Point B in Figure III.1 and updating 
the measurement tolerance to 1[emsp14][deg]F, as discussed 
section III.D.3. DOE believes these test temperatures will more 
accurately represent the energy efficiency of commercial packaged 
boilers and are more consistent with the conditions typically observed 
in field installations. DOE also notes that the proposed temperature 
requirements result in equivalent temperature rises across the 
commercial packaged boiler for condensing and non-condensing equipment 
in order to maintain comparability. The proposed temperature 
requirements also incorporate inlet water temperatures that more 
accurately represent the efficiencies of non-condensing and condensing 
commercial packaged boilers. DOE does not believe that maintaining the 
same outlet water temperature for non-condensing and condensing 
commercial packaged boilers is important for maintaining comparability 
of ratings.
    DOE is proposing to modify the location at which the inlet water 
temperature is maintained from Point A to Point B, which is immediately 
preceding the commercial packaged boiler, downstream of the 
recirculation loop (see Figure III.1). DOE believes that the comments 
of interested parties refer to the temperature rise experienced across 
the commercial packaged boiler itself (Point B to Point C) and that, 
therefore, DOE's proposal is consistent with the input of interested 
parties. In addition, DOE notes that specifying the inlet water 
temperature at Point B, immediately prior to entering the commercial 
packaged boiler would remove ambiguity and improve the consistency and 
repeatability of the DOE test procedure. This temperature is more 
directly related to the measured thermal or combustion efficiency than 
the temperature rise determined with the inlet water upstream of the 
recirculation loop (between Point C and Point A of Figure III.1).
    DOE recognizes that these inlet temperatures would typically be 
produced through the use of a recirculating loop to temper incoming 
feedwater to the appropriate inlet temperature. In proposing to adopt 
ANSI/AHRI Standard 1500-2015, DOE is proposing to allow recirculation 
loops to be used on all commercial packaged boilers and, as such, DOE 
clarifies that recirculation loops could be used to meet the new 
proposed inlet water requirements. However, DOE proposes that the 
efficiency calculations in section C7.2.11.3 in ANSI/AHRI Standard 
1500-2015 would continue to use the water temperature and flow rate 
measured upstream of the recirculating loop, if present (Point A in 
Figure III.1). DOE acknowledges that this would require measurements of 
water temperature at both Point A and Point B for equipment tested with 
recirculating loops. However, DOE notes that by continuing to use the 
temperature at Point A in the calculation of thermal efficiency, the 
precision of the resulting thermal efficiency will not be impacted as 
compared to the current methodology.
    While DOE believes that the proposed inlet and outlet temperature 
requirements are applicable and representative for the majority of 
commercial packaged boilers available on the market, DOE is aware that 
some commercial packaged boilers are unable to operate at a temperature 
rise across the commercial packaged boiler of 40[emsp14][deg]F. 
Specifically, DOE is aware that some commercial packaged boilers are 
only capable of operating with lower temperature differentials, such as 
20[emsp14][deg]F. As such, DOE is proposing to adopt provisions for 
commercial packaged boilers that cannot operate with a temperature rise 
of 40[emsp14][deg]F across the boiler (Point B to Point C), as 
indicated in the manufacturer literature. For non-condensing commercial 
packaged boilers, DOE is proposing that, if the commercial packaged 
boiler cannot operate with an inlet temperature of 140[emsp14][deg]F 
 1[emsp14][deg]F at Point B in Figure III.1 when the outlet 
temperature is 180[emsp14][deg]F  1[emsp14][deg]F, DOE is 
proposing that the inlet temperature be maintained as close to 
140[emsp14][deg]F  1[emsp14][deg]F as possible, consistent 
with manufacturer's instructions provided in the literature for that 
basic model and that the average inlet water temperature measured at 
Point B in Figure III.1 be reported as part of the certification report 
for the basic model. Similarly, for condensing commercial packaged 
boilers that cannot operate with a temperature rise of 40[emsp14][deg]F 
across the commercial packaged boiler, DOE is proposing that the inlet 
temperature at Point B in Figure III.1 be maintained as close to 
80[emsp14][deg]F  1[emsp14][deg]F as possible, consistent 
with manufacturer's instructions provided in the literature for that 
basic model, while the outlet temperature is maintained at 
120[emsp14][deg]F  1[emsp14][deg]F, consistent with the DOE 
test procedure. Again, the average inlet water temperature measured at 
Point B in Figure III.1 would be reported as part

[[Page 14653]]

of the certification report for the basic model
    DOE seeks comments, data, and information about whether the 
proposed testing conditions related to water temperatures are 
appropriate both for a non-condensing commercial packaged boiler and a 
condensing commercial packaged boiler. This is identified as Issue 17 
in Section V.E.
    DOE also requests comment on the proposed test provisions to 
accommodate commercial packaged boilers that cannot be tested with a 
temperature rise of 40[emsp14][deg]F across the commercial packaged 
boiler (Point B to Point C). This is identified as Issue 18 in Section 
V.E.
    Under EPCA, DOE is required to determine what impacts, if any, its 
amendments to a test procedure will have on ratings. (42 U.S.C. 
6293(e); 42 U.S.C. 6314(a)(4)(C)) DOE proposes using the temperature 
rise across the commercial packaged boiler itself as described in order 
to improve the repeatability of the tests. Whereas the existing test 
procedure (using BTS-2000, incorporated by reference) allows for a wide 
range of temperature rises across the commercial packaged boiler due to 
the allowance of recirculating loops and a measurement location 
upstream of the recirculation loop, which obscures the actual 
temperature rise across the commercial packaged boiler, DOE's proposed 
amendments would remove ambiguity by standardizing this temperature 
rise across all commercial packaged boilers where possible. DOE notes 
that the effect on any individual commercial packaged boiler could be 
to slightly increase or slightly decrease measured efficiency, 
depending on how the test was previously performed. Further, based on 
discussions with manufacturers, DOE believes that testing is already 
performed using a recirculating loop for equipment that does not 
utilize a tubular heat exchanger in order to prevent damaging the 
equipment and provide the boiler with inlet water temperatures more 
representative of typical field conditions. Therefore, in combination 
with the other proposed amendments to the test procedure, DOE has 
tentatively determined that the proposed amendments, in aggregate, 
would not result in an overall measurable impact on ratings.
3. Allowable Uncertainty in Water Temperature Measurement
    HTP initially expressed concern about several operating conditions 
being either unspecified or unrealistic, and suggested updated test 
parameters for commercial packaged boilers that would be more 
reasonable. (Docket EERE-2013-BT-STD-0030, HTP, No. 18 at p.4) However, 
in later comments and after further analysis, HTP concluded that the 
test conditions should not be amended because manufacturers cannot be 
confident that the DOE test method would maintain an acceptable level 
of uncertainty if different test points or temperature rises were to be 
used. Instead, HTP commented that an acceptable test method uncertainty 
analysis should be completed to verify the Appliance Standards and 
Rulemaking Federal Advisory Committee (ASRAC) agreed-upon 5-percent 
allowable tolerance on ratings in order to account for variations in 
manufacturing and testing. (Docket EERE-2014-BT-TP-0006, HTP, No. 5 at 
p. 4)
    In response to HTP's concerns regarding the uncertainty of the 
test, DOE proposes to reduce the tolerances for inlet and outlet water 
temperatures during the test period to 1[emsp14][deg]F for 
both non-condensing and condensing commercial packaged boilers so that 
testing uncertainties are not increased. DOE notes that the required 
minimum accuracy of the inlet and outlet water temperature measurement 
instrumentation is 0.2[emsp14][deg]F (Table C1 of ANSI/AHRI 
Standard 1500-2015 and Table 1 of BTS-2000). Therefore, the 
instrumentation required by the test procedure is sufficiently precise 
to accommodate this tolerance. Investigative testing performed by DOE 
showed that reducing the temperature rise did not substantially 
increase the variability in thermal efficiency between repeated tests 
compared to the expected variability of the currently allowable 
temperature rises. Furthermore, a review of the data obtained during 
investigative testing showed little variation over time in the 
temperatures themselves, typically less than 1[emsp14][deg]F over the course of the test. DOE seeks additional 
comments, data, and analysis concerning thermal efficiency test 
measurement uncertainty. This is identified as Issue 19 in section V.E.
4. Water Flow Rate During Testing
    Burnham and AHRI observed that a change in the specified water 
temperatures would potentially change the water flow rate and the 
calculated efficiency resulting from the test procedure. Higher flow 
rates and a resulting higher total volume of water are necessary to 
achieve smaller temperature rises. According to the commenters, 
decreasing the temperature rise would require a higher water flow rate 
and may exceed the water handling, cooling, processing, and disposal 
capabilities of many laboratories currently testing using the existing 
DOE test procedure (i.e., BTS-2000). Further, the commenters argued 
that reducing the temperature rise by lowering the outlet temperature 
may result in increased measured thermal efficiency. In view of these 
concerns, both AHRI and Burnham recommended that the current operating 
temperatures should be retained. (Docket EERE-2014-BT-TP-0006, Burnham, 
No. 4 at p. 2; Docket EERE-2014-BT-TP-0006, AHRI, No. 6 at p. 2)
    DOE is aware that the water temperature rise across the commercial 
packaged boiler is inversely related to the flow rate of the working 
fluid (water or steam) at a given burner fuel input rate, and that 
increasing water flow rates to achieve lower temperature rises may 
reduce the commercial packaged boiler size that laboratories are 
capable of testing. However, as stated previously, DOE also 
acknowledges that, under the proposed test procedure, recirculating 
loops, which reduce the temperature rise across the commercial packaged 
boiler with modest flow rates of incoming feedwater and outgoing water 
for disposal, would be allowed for all commercial packaged boilers, not 
just commercial packaged boilers with tubular heat exchangers as is 
currently allowed in section 8.5.1.1.1 of BTS-2000. This is supported 
by Lochinvar's assertion that recirculating loops are used in testing 
and increase the inlet water temperature to the commercial packaged 
boiler. (Docket EERE-2013-BT-STD-0030, No. 34 at p. 3) In addition, DOE 
notes that the 100[emsp14][deg]F temperature rise required by both BTS-
2000 and ANSI/AHRI Standard 1500-2015 is not directly comparable to 
DOE's proposed temperature rise of 40[emsp14][deg]F due to the 
difference in where the inlet temperature requirement is measured.
    DOE believes that requiring the temperature to be measured and 
maintained at the location downstream of the recirculation loop and 
just prior to the commercial packaged boiler inlet would allow 
manufacturers and laboratories to continue using incoming water at much 
lower temperatures (at or near the current 35[emsp14][deg]F to 
80[emsp14][deg]F of BTS-2000 and ANSI/AHRI Standard 1500-2015). That 
is, under these proposed inlet and outlet temperature conditions (when 
utilizing a recirculation loop), the same temperatures and test 
conditions could be established under the existing and new test 
procedures (due to the different measurement locations). DOE therefore 
believes that the concerns regarding an increase in water flow rate

[[Page 14654]]

(and therefore reduction in laboratory capacity) may be overstated in 
view of the proposed change in location of where the inlet water 
temperature would be measured under the proposed test procedure.
    DOE seeks comment regarding the prevalence of using recirculating 
loops in testing; specifically, DOE requests comment about the kinds of 
commercial packaged boilers utilizing recirculation loops during 
testing and the conditions at which these commercial packaged boilers 
and recirculating loops operate. This is identified as Issue 20 in 
section V.E.
    DOE estimates the impact on manufacturers of requiring higher water 
flow rates in section IV.B. DOE seeks further comments, data, and 
information concerning the capabilities of test laboratories, 
particularly in light of the specific proposed conditions contained in 
this NOPR. This is identified as Issue 21 in section V.E.

E. Testing Conditions

    For non-condensing commercial packaged boilers, the existing DOE 
test procedure does not prescribe test room requirements for ambient 
temperature or humidity. For combustion efficiency tests of condensing 
commercial packaged boilers, the existing DOE test procedure requires 
that the ``humidity of the room shall at no time exceed 80 percent.'' 
10 CFR 431.86(c)(2)(ii). Additionally, BTS-2000 requires that test air 
temperature, as measured at the burner inlet, be within 5[emsp14][deg]F of the ambient temperature, where ambient 
temperature is measured within 6 feet of the front of the unit at mid-
height. ANSI/AHRI Standard 1500-2015 prescribes an allowable ambient 
temperature during the test between 30[emsp14][deg]F and 
100[emsp14][deg]F (section 5.3.8) with the relative humidity not 
exceeding 80 percent in the test room or chamber (section 5.3.9). 
Section C3.6 of ANSI/AHRI Standard 1500-2015 also requires that test 
air temperature, as measured at the burner inlet, be within 5[emsp14][deg]F of the ambient temperature (which is measured 
within 6 feet of the commercial packaged boiler at mid-height; see 
section C3.7 of ANSI/AHRI Standard 1500-2015).
    DOE understands that ambient temperature and humidity, including 
test air temperature, can have a measurable effect on the tested 
efficiency of commercial packaged boilers, particularly condensing 
commercial packaged boilers.\11\ High humidity or any increase in 
humidity over a baseline would enable a commercial packaged boiler to 
capture more latent heat from combustion gases, thereby resulting in a 
higher measured efficiency. DOE recognizes that this effect would be 
noticeable both in tests for combustion efficiency and thermal 
efficiency. Therefore, DOE proposes to amend 10 CFR 431.86 so as to 
minimize this effect.
---------------------------------------------------------------------------

    \11\ Test air temperature is defined in ANSI/AHRI Standard 1500-
2015 as the temperature of the air being supplied to the burner from 
the room.
---------------------------------------------------------------------------

    As noted previously, the existing DOE test procedure requires a 
maximum of 80-percent ambient relative humidity in the test room or 
chamber when testing a condensing commercial packaged boiler for 
combustion efficiency only. DOE proposes to require that ambient 
relative humidity at all times be 60 percent  5 percent 
during thermal and combustion efficiency testing of commercial packaged 
boilers.\12\ While DOE acknowledges that the effect of ambient humidity 
on the efficiency of non-condensing commercial packaged boilers is less 
than that for condensing commercial packaged boilers, DOE nevertheless 
proposes the same ambient humidity requirements for all commercial 
packaged boilers in order to maintain consistency and comparability 
between ratings. Also, DOE proposes that the ambient relative humidity 
be measured and recorded at each 30-second interval during the entire 
test. DOE seeks comments, data, and information about room ambient 
relative humidity, whether the proposed constraints are appropriate, 
and if not, what are appropriate constraints on room ambient relative 
humidity when testing commercial packaged boilers. This is identified 
as Issue 22 in section V.E.
---------------------------------------------------------------------------

    \12\ Humidity is the amount of water vapor in the air. Absolute 
humidity is the water content of air. Relative humidity, expressed 
as a percent, measures the current absolute humidity relative to the 
maximum for that temperature. Specific humidity is a ratio of the 
water vapor content of the mixture to the total air content on a 
mass basis.
---------------------------------------------------------------------------

    In addition to proposed limits to ambient relative humidity when 
testing commercial packaged boilers, DOE proposes an ambient room 
temperature of 75[emsp14][deg]F  5[emsp14][deg]F during 
testing of commercial packaged boilers. The ambient temperature would 
be measured and recorded at each 30-second interval during the entire 
test. Additionally, DOE proposes that the ambient room temperature 
cannot differ by more than  2[emsp14][deg]F from the 
average ambient room temperature during the ``Test Period'' (as 
described in section C4 of Appendix C of ANSI/AHRI Standard 1500-2015; 
proposed for incorporation by reference) at any reading.
    DOE believes that limiting ambient room temperature and relative 
humidity during testing will improve repeatability and provide for test 
conditions that more closely reflect the ambient conditions that 
commercial packaged boilers experience in normal operation. For non-
condensing hot water and steam commercial packaged boilers, DOE 
anticipates negligible changes in the rated efficiency for a particular 
commercial packaged boiler due to the proposed changes to room ambient 
temperature and relative humidity requirements. Nevertheless, DOE 
proposes limits to ambient conditions for non-condensing commercial 
packaged boilers to prevent testing from occurring at extreme ambient 
temperature or relative humidity, which would be outside the expected 
range of conditions that commercial packaged boilers experience in 
normal operation. In comparison, ambient room temperature and relative 
humidity would have some effect on the test results for condensing 
commercial packaged boilers. However, Because DOE expects that current 
efficiency ratings generally have been determined at typical ambient 
room temperatures and relative humidity levels, DOE also expects that 
reported rating values will not change as a result of the proposed 
limits on ambient room temperature and relative humidity, which fall 
within the typical ambient room temperatures and relative humidity 
levels.
    DOE seeks comments, data, and information about the aforementioned 
proposed room ambient temperatures, whether the proposed constraints 
are appropriate, and if not, what are appropriate constraints on room 
ambient temperature. This is identified as Issue 23 in section V.E.

F. Setup and Instrumentation

    In DOE's review of the existing test procedure, DOE identified 
several setup instructions and instrumentation requirements for which 
clarifications are expected to improve the accuracy and repeatability 
of test results. These include: (1) Additional specifications regarding 
the steam riser/header geometry, (2) additional requirements regarding 
the use of steam condensate return piping, and (3) additional 
insulation requirements for the steam and water piping.
    First, in section C2.3, ``Steam Piping,'' of ANSI/AHRI Standard 
1500-2015 (section 7.3 of BTS-2000), the description of the steam 
riser/header geometry may lead to different interpretations which can 
impact the amount of entrained water reaching the steam separator and 
result in variability

[[Page 14655]]

in the measured thermal efficiency of commercial packaged boilers. 
Specifically, variations in the nominal pipe diameter or size of the 
pipe of the steam riser and the height of the steam riser above the 
water line may impact the amount of entrained water in the steam and 
may result in exceeding the DOE test procedure's 2 percent limit for 
moisture content in the steam. In order to reduce the amount of 
entrained water in the steam to satisfy this steam moisture 
requirement, the water level within the commercial packaged boiler is 
typically lowered during testing (within the allowable tolerance for 
the water level pursuant to manufacturer literature or ANSI/AHRI 
Standard 1500-2015 section C4.1.1.1.3, as applicable). However, 
lowering the water level inside the heat exchanger decreases the 
thermal efficiency of the commercial packaged boiler because as the 
water level is lowered, less heat exchanger surface area is in contact 
with water. Therefore, variations in the steam riser and header 
geometry can affect the amount of moisture in the steam and require 
changes in the water level to meet the 2 percent moisture content 
requirement, which can then result in decreased thermal efficiency 
measurements for the same commercial packaged boiler model.
    To decrease the variability and increase the repeatability and 
precision of the DOE test procedure, DOE therefore proposes to clarify 
the description of the steam riser and header geometry in its test 
procedure. Specifically, DOE proposes to adopt section C2.3 of ANSI/
AHRI Standard 1500-2015 with additional provisions regarding the 
description of the steam riser and header geometries. The proposed 
additional specifications and the reason for inclusion are as follows:
     No reduction in diameter shall be made in any horizontal 
header piping, as a reduction in pipe diameter in the horizontal header 
prevents entrained water from draining properly and typically leads to 
non-steady-state operation. In the case of commercial packaged boilers 
with multiple steam risers, the cross-sectional area of the header must 
be no less than 80 percent of the summed total cross-sectional area of 
the risers, and the header pipe must be constant in diameter along its 
entire length.
     The diameter of the vertical portion of the steam 
condensate return pipe that is above the manufacturer's recommended 
water level may be reduced to no less than one half of the header pipe 
diameter to ensure adequate operation of the return loop and draining 
of entrained water back into the commercial packaged boiler.
    DOE notes that section C2.3 of ANSI/AHRI Standard 1500-2015 
specifies that the steam riser shall be connected in accordance with 
the manufacturer's instructions. However, in the event the 
manufacturer's literature does not specify necessary height and 
dimension characteristics for steam risers, headers, and return piping, 
DOE proposes the following requirements to ensure consistent and 
repeatable testing:
     The header pipe diameter must be the same size as the 
commercial packaged boiler's steam riser (steam take-off) pipe 
diameter. In the case of commercial packaged boilers with multiple 
steam risers, the cross-sectional area of the header must be no less 
than 80 percent of the summed total cross-sectional area of the risers, 
and the header pipe must be constant in diameter along its entire 
length.
     The height measured from the top of the header to the 
manufacturer's recommended water level must be no less than the larger 
of 24 inches or 6 times the header pipe diameter.
     The distance between the vertical steam riser (steam take-
off) leading to the water separator and the elbow leading to the 
condensate return loop must be a minimum of three (3) header pipe 
diameters to prevent entrained water from entering the separator 
piping.
     If a water separator is used, piping must pitch downward 
to the separator at a rate of at least \1/4\ inch per foot of pipe 
length in order to assure proper collection of moisture content and 
steady-state operation during testing.
     A vented water seal is required in steam moisture 
collection plumbing to prevent steam from escaping through the moisture 
collection plumbing.
    DOE notes that header diameters that are larger than the diameter 
of the steam outlet can result in atypically low steam flow rate in the 
header, affecting carryover of entrained water, while smaller diameter 
headers may reduce the measured steam quality, possibly requiring tests 
to be conducted at lower water levels, which may result in lower 
efficiencies. Undersized headers with pipe diameters that are smaller 
than the diameter of the steam outlet on the commercial packaged boiler 
can also impede or prevent adequate draining of entrained water.
    Second, Figure C5, ``Suggested Piping Arrangement for Steam 
Boilers, Condensate Measurement,'' and Figure C7, ``Suggested Piping 
Arrangement for Steam Boilers, Feedwater Measurement,'' in ANSI/AHRI 
Standard 1500-2015 both allow a steam commercial packaged boiler to be 
tested without a steam condensate return pipe. DOE proposes that all 
steam commercial packaged boiler test setups be required to include a 
steam condensate return pipe to minimize variation in tests. DOE also 
proposes to prohibit use of the ``suggested'' piping arrangements in 
Figures C5 and C7 for steam commercial packaged boiler testing setups. 
DOE believes these changes would ensure that commercial packaged 
boilers that typically require a steam condensate return pipe for 
adequate operation have one installed during testing. DOE believes that 
requiring a steam condensate return pipe, with the criteria specified 
in this section, would ensure consistent and repeatable test results. 
DOE further believes that such requirement would not have a significant 
impact upon thermal efficiency or steam moisture content for a steam 
commercial packaged boiler that may operate without a steam condensate 
return pipe.
    Third, Sections C2.3 and C2.4 in ANSI/AHRI Standard 1500-2015 
provide only minimal guidance about insulation requirements for steam 
and water piping components that are used in the thermal efficiency 
test. To provide for repeatability and minimize heat losses in the 
piping, DOE proposes to adopt the minimum pipe insulation thickness and 
conductivity requirements in ASHRAE/IES Standard 90.1-2013, Table 
6.8.3-1. DOE also believes these requirements would be more 
representative of insulation requirements for outlet piping used in 
most commercial applications.
    In view of all the above, DOE seeks comment about its proposed 
changes to the steam riser, header, and return water loop testing 
requirements. This is identified as Issue 24 in section V.E.
    DOE recognizes that for oil-fired commercial packaged boilers, 
burners are not always included when shipped from the manufacturer. In 
such cases, DOE proposes that the unit be tested with the particular 
make and model of burner certified by the manufacturer. Since each 
basic model distributed in commerce must be certified, DOE expects that 
using a manufacturer's certification will provide the most complete 
list of all burners for use with a particular boiler. Furthermore, DOE 
expects all burners specified in the installation and operation manual 
would be certified to the Department as part of the commercial packaged 
boiler basic model. If multiple burners are specified in the 
installation and operation manualor in one or more certification 
reports, then DOE proposes that any of the listed burners may be

[[Page 14656]]

used for testing and all must be certified to the Department. DOE 
believes these provisions provide manufacturers with ample opportunity 
to specify burners that should be used with their commercial packaged 
boilers for testing, and will reduce ambiguity concerning what burner a 
commercial packaged boiler can be tested with. DOE believes these 
changes represent a clarification in how burners are specified and 
therefore does not anticipate any changes in ratings for commercial 
packaged boilers. DOE seeks comment regarding the specification of 
burners for oil-fired commercial packaged boilers and this is 
identified as Issue 25 in section V.E.
    With respect to outdoor commercial packaged boilers, units with 
multiple outdoor venting arrangements provided by the manufacturer are 
required by ANSI/AHRI Standard 1500-2015 section C2.2.5 to be tested 
using the arrangement having the least draft loss. However, draft loss 
is not defined nor are provisions provided in ANSI/AHRI Standard 1500-
2015 for determining which arrangement has the least draft loss. DOE 
proposes language in its test procedure to clarify how this is 
determined, specifically by adding the straight lengths of venting for 
each arrangement supplied with the equipment and using the one with the 
shortest total length. DOE believes this is a clarification only and 
does not believe ratings for commercial packaged boilers would be 
affected by this clarification.
    In addition to these proposed clarifications regarding the setup 
and configuration of commercial packaged boilers for testing, DOE 
proposes clarifications and provisions regarding the test 
instrumentation and calibration. Specifically, regarding section 7.6, 
``Application of Additional Instruments (Steam),'' of BTS-2000 (now 
section C2.6 of ANSI/AHRI Standard 1500-2015), ABMA commented that 
references to mercury and use of a mercury manometer should be removed, 
suggesting that mercury is no longer an industry-acceptable pressure 
measuring fluid for testing steam boilers.\13\ (Docket EERE-2013-BT-
STD-0030, ABMA, No. 14 at p. 3-4) DOE has concluded that the mercury-
based instrumentation is outdated and recognizes that the ANSI/AHRI 
Standard 1500-2015 does not require or reference the use of mercury 
manometers. As such, DOE notes that by incorporating by reference ANSI/
AHRI Standard 1500-2015 as proposed in this NOPR, the DOE test 
procedure would no longer specify or reference use of mercury 
manometers (or other mercury-based instrumentation).
---------------------------------------------------------------------------

    \13\ A ``manometer'' is an instrument that uses a column of 
liquid, such as mercury or water, contained in a glass or plastic 
tube and is used to measure the pressure of gases.
---------------------------------------------------------------------------

    Additionally, ABMA suggested that some other required 
instrumentation prescribed in BTS-2000 is outdated and that some 
calculation methods contained therein are laborious. In particular, 
ABMA inquired whether an oxygen (O2) combustion analyzer may 
be used to determine combustion efficiency rather than the existing 
calculation procedures if it can be shown that its results are 
equivalent. (Docket EERE-2013-BT-STD-0030, ABMA, No. 14 at pp. 3-4) 
ANSI/AHRI Standard 1500-2015 includes a methodology for using an 
O2 combustion analyzer for measurements of combustion 
efficiency, and DOE's proposal to incorporate by reference this 
industry standard would adopt this methodology. DOE recognizes ABMA's 
concern on this topic and seeks additional comments, and particularly 
data, about whether the oxygen combustion analyzer produces equivalent 
combustion efficiencies to the carbon monoxide (CO) and carbon dioxide 
(CO2) calculations provided by ANSI/AHRI Standard 1500-2015 
and BTS-2000. This is identified as Issue 26 in section V.E.
    DOE acknowledges that section C.1.1, ``Calibration,'' of ANSI/AHRI 
Standard 1500-2015 requires instruments to be calibrated to a 
recognized standard at regular intervals. DOE believes that such a 
requirement is sufficient for ensuring appropriate calibration 
procedures for applicable test equipment. However, in order to ensure 
accurate and repeatable test measurements, DOE is proposing a provision 
that would require all instrumentation to be calibrated at least once 
per year. For combustion measurement equipment (instruments listed in 
the ``Gas Chemistry'' row of Table C1 in ANSI/AHRI Standard 1500-2015), 
DOE proposes to require calibration using standard gases with purities 
of greater than 99.9995 percent for all constituents analyzed. DOE 
acknowledges that manufacturers and laboratories may have existing 
calibration and documentation protocols in place that already meet 
these requirements.
    Finally, DOE proposes to require that data obtained digitally be 
sampled and recorded at 30-second intervals or less, and data related 
to rates, flows, or flux be integrated over the 15-minute intervals 
required throughout ANSI/AHRI Standard 1500-2015. Data not related to 
rates, flows, or fluxes shall be averaged over the 15-minute interval. 
DOE proposes this requirement as a means of confirming that ambient 
condition requirements and water temperatures are maintained for the 
duration of the test. This requirement would apply to digital flow 
meters for measuring water flow. However, DOE proposes that this 
requirement would not apply to the use of a scale for measuring the 
weight of feedwater collected, which would continue to be recorded in 
15-minute intervals as provided in ANSI/AHRI Standard 1500-2015. DOE 
seeks comment on its proposal to require digital data acquisition, and 
this is identified as Issue 27 in section V.E.
    DOE seeks general comment as to the proposed clarifications to test 
procedure setup and instrumentation. This is identified as Issue 28 in 
section V.E.

G. Fuel Input Rate

    In DOE's existing regulations, equipment classes and the standards 
that apply to them are determined partly on the basis of the size of 
the commercial packaged boiler. However, several terms are used 
interchangeably in BTS 2000, ANSI/AHRI Standard 1500-2015, and in the 
existing DOE test procedure and energy conservation standards to 
describe the size of the commercial packaged boiler, each of which is 
derived from the maximum rated fuel input rate to the commercial 
packaged boiler. For example, the existing DOE test procedure for 
commercial packaged boilers at 10 CFR 431.86 uses the term ``rated 
input capacity'' and ``fuel input'' while the energy conservation 
standards for commercial packaged boilers at 10 CFR 431.87 use 
``capacity,'' ``rated maximum input,'' ``maximum rated capacity,'' and 
``size category (input),'' all of which are intended to mean the same 
thing. BTS-2000, which is incorporated by reference in the existing DOE 
test procedure for commercial packaged boiler, uses the terms 
``input,'' ``input rating,'' and ``manufacturer's nameplate input.'' 
ANSI/AHRI Standard 1500-2015 defines ``input rating'' as the maximum 
Btu/h or gph [gallons per hour] input located on the Boiler rating 
plate. Furthermore, neither the existing DOE regulatory text nor BTS-
2000 specify how to determine this ``rated'' or ``nameplate'' maximum 
fuel input rate for a commercial packaged boiler. However, BTS-2000 and 
ANSI/AHRI Standard 1500-2015 require that the input be within 2 percent of the ``manufacturer's nameplate input'' (BTS-2000) or 
``Input Rating'' (ANSI/AHRI Standard 1500-2015).
    To clarify how to determine the appropriate equipment class for

[[Page 14657]]

commercial packaged boilers, DOE proposes to adopt a definition for the 
term ``fuel input rate.'' DOE believes this is necessary to reduce 
ambiguity and standardize terminology throughout its commercial 
packaged boiler regulations. The proposed definition for ``fuel input 
rate'' states that it is determined using test procedures prescribed 
under 10 CFR 431.86 and represents the maximum rate, or ``high fire 
rate,'' at which the commercial packaged boiler uses energy. DOE 
proposes to use this term in the division of equipment classes and 
applicable testing provisions to determine the fuel input rate. 
Manufacturers would be required to measure the fuel input rate during 
certification testing and use the mean of the measured values, after 
applying the applicable rounding provisions,\14\ in certification 
reports pursuant to 10 CFR 429.60(b)(2). DOE also notes that, for 
commercial packaged boilers certified using an AEDM, that AEDM would be 
used to determine the fuel input rate and the same rounding provisions 
would apply. DOE believes it is critical to clarify how the fuel input 
rate is to be determined because the applicable standards for a 
commercial packaged boiler are based in part on the fuel input rate of 
the commercial packaged boiler. These proposed additions would clarify 
for manufacturers what energy conservation standard applies to a given 
basic model.
---------------------------------------------------------------------------

    \14\ The proposed calculations for the fuel input rate include a 
rounding requirement to the nearest 1,000 Btu/h; this is discussed 
in this section III.G.
---------------------------------------------------------------------------

    DOE also proposes clarifications in its regulatory text that 
specify precisely how the fuel input rate is to be determined when 
using the DOE test procedure. DOE notes sections C4.1.1.2.3 and 
C4.1.2.2.3 of ANSI/AHRI Standard 1500-2015 require the total measured 
fuel input during the test to be within 2 percent of the ``boiler Input 
Rating'' and sections C4.1.1.1.4 and C4.1.2.1.5 require the measured 
fuel input rate, measured at 15-minute intervals to confirm steady-
state, to be within 2 percent of the fuel input rate listed on the 
commercial packaged boiler nameplate. However, ANSI/AHRI Standard 1500-
2015 does not specify the quantities and calculation procedure to be 
used in determining this value. DOE's clarifications specify the amount 
of oil or gas, as applicable, needed to ensure the fuel input rate is 
at steady-state (which is evaluated at 15-minute intervals). Moreover, 
DOE also proposes that steady-state is confirmed when the measured fuel 
input rate does not vary by more than  2 percent between 15 
minute interval readings rather than in comparison to the commercial 
packaged boiler nameplate.
    Section 5.2.2 of ANSI/AHRI Standard 1500-2015 specifies rounding 
gross output (as defined in section 3.20 of ANSI/AHRI Standard 1500-
2015) to the nearest 1,000 Btu/h. DOE does not propose to adopt this 
section of ANSI/AHRI Standard 1500-2015 because DOE regulations are not 
based on gross output. Instead, DOE proposes adding a requirement to 
the DOE test procedure that values of fuel input rate for each unit 
tested be rounded to the nearest 1,000 Btu/h. Also, the representative 
value of fuel input rate for a model would be rounded to the nearest 
1,000 Btu/h for representation purposes (including certification).
    Additionally, DOE proposes that, for its enforcement testing, this 
rate would be measured pursuant to 10 CFR 431.86 and compared against 
the fuel input rate certified by the manufacturer. If the measured fuel 
input rate is within 2 percent of the certified value, then DOE will 
use the certified value when determining equipment class and 
calculating combustion and/or thermal efficiency for the model. If the 
measured fuel input rate is not within 2 percent of the 
certified value, then DOE will follow these steps to bring the fuel 
input rate to within 2 percent of the certified value. 
First, DOE will attempt to adjust the gas pressure in order to increase 
or decrease the fuel input rate as necessary. If the fuel input rate is 
still not within 2 percent of the certified value, DOE will 
then attempt to modify the gas inlet orifice (e.g., drill) accordingly. 
Finally, if these measures do not bring the fuel input rate to within 
2 percent of the certified value, DOE will use the measured 
fuel input rate when determining equipment class and the associated 
combustion and/or thermal efficiency standard level for the basic 
model. DOE proposes a fuel input rate tolerance of 2 
percent based on the steady-state criteria already present in ANSI/AHRI 
Standard 1500-2015 sections C4.1.1.1.4 and C4.1.2.1.5, and believes 
that such a requirement would not impose additional testing burden or 
affect ratings. DOE proposes this verification process to provide 
manufacturers with additional information about how DOE will evaluate 
compliance. DOE also notes that modification of the orifice to meet 
these conditions would not be considered a field constructed 
modification.
    DOE considers these provisions to be clarifications to its test 
procedure, and this is supported by the existing requirement in BTS-
2000 that the measured fuel input rate during testing must be within 
2 percent of the fuel input rate listed on commercial 
packaged boiler nameplates. DOE seeks comment regarding its proposed 
definition and methodology for measuring and verifying fuel input rate 
and steady-state, identified as Issue 29 in section V.E.

H. Clerical Issues

    DOE proposes an amendment to the regulatory text to clarify those 
places in AHRI/ANSI Standard 1500-2015 that refer to manufacturer's 
``specifications or recommendations,'' to mean as specified or 
recommended in the installation and operation manual shipped with the 
commercial packaged boiler or in supplemental instructions provided by 
the manufacturer pursuant to 10 CFR 429.60(b)(4). Furthermore, DOE 
proposes amendments to the regulatory text that clarify the order in 
which these manufacturer instructions must be used should a conflict 
arise between them. For parameters or considerations not specified by 
the DOE test procedure, the manual shipped with the commercial packaged 
boiler must first be consulted and used. Should the manual shipped with 
the commercial packaged boiler not provide the necessary information, 
the supplemental instructions must be consulted and used. The 
supplemental instructions provided pursuant to 10 CFR 429.60(b)(4) do 
not replace or alter any requirements in the DOE test procedure and are 
not meant to override the manual shipped with the commercial packaged 
boiler. In cases where these supplemental instructions conflict with 
any instructions or provisions provided in the manual shipped with the 
commercial packaged boiler, the manual shipped with the commercial 
packaged boiler must be used. DOE also proposes to clarify that unless 
otherwise noted, in all incorporated sections of ANSI/AHRI Standard 
1500-2015 the term ``boiler'' means ``commercial packaged boiler'' as 
defined in 10 CFR 431.82.
    DOE found two clerical issues in its review of ANSI/AHRI Standard 
1500-2015. First, DOE notes that while section C2.3 of ANSI/AHRI 
Standard 1500-2015 anticipates that steam could be superheated and 
therefore temperature measurement of the steam would be required, it 
does not provide sufficient steam property tables or provisions for 
using the superheated steam temperature for calculating the thermal 
efficiency. DOE therefore proposes provisions for using this 
temperature and includes expanded steam property tables. Second, DOE 
notes that section C4.1.1.1.2 of ANSI/

[[Page 14658]]

AHRI Standard 1500-2015 states that tests shall be conducted at 
atmospheric pressure or at the minimum steam pressure required to 
comply with Section 5.3.5. However, Section 5.3.5 describes the hot 
water rating conditions for ANSI/AHRI Standard 1500-2015. DOE believes 
that this was intended to refer instead to Section 5.3.6, and therefore 
proposes language in order to correct this.
    Upon review of its definitions at 10 CFR 431.82 concerning 
commercial packaged boilers, DOE determined that additional description 
of the term ``combustion efficiency'' was warranted and is therefore 
proposing to modify that definition. Specifically, the existing 
definition for ``combustion efficiency'' does not describe what the 
metric represents and so DOE is proposing additional language to 
indicate that the combustion efficiency measures how much of the fuel 
input energy is converted to useful heat in combustion.
    DOE proposes rounding requirements for thermal efficiency and 
combustion efficiency values. DOE notes that while section 5.2.1 of 
ANSI/AHRI Standard 1500-2015 includes rounding requirements to the 
nearest tenth of a percent for thermal and combustion efficiency, DOE 
proposes to clarify in its regulations that values used for purposes of 
DOE compliance certification (representative values) must be values 
rounded to the nearest tenth of a percent.
    With respect to the requirements for testing and certifying 
commercial packaged boiler models capable of supplying either steam or 
hot water, DOE notes that commercial packaged boilers that are capable 
of producing steam and commercial packaged boilers that are capable of 
producing hot water are subject to different energy conservation 
standards. However, DOE is also aware that some commercial packaged 
boiler models are capable of supplying both steam and hot water. DOE 
notes that such commercial packaged boiler models span two equipment 
classes (both the steam and hot water variations of the applicable fuel 
type and fuel input rate category combination) and therefore are 
subject to the energy conservation standards and testing requirements 
for both equipment classes. Models capable of producing both steam and 
hot water must be certified as two basic models.
    DOE also proposes to move the requirements related to 
representative values of efficiency for such commercial packaged 
boilers. For commercial packaged boiler models capable of supplying 
either steam or hot water and with fuel input rate less than or equal 
to 2,500,000 Btu/h, under the existing test procedure (10 CFR 
431.86(c)(2)(iii)) manufacturers must:
     Determine the representative value of the thermal 
efficiency in steam mode based on thermal efficiency in steam mode 
determined in accordance with the test procedure in Sec.  431.86 or 
determined with an AEDM; and
     Determine the representative value of the thermal 
efficiency in hot water mode based on either:
    [cir] The thermal efficiency in hot water mode determined in 
accordance with the test procedure in Sec.  431.86 or determined with 
an AEDM; or
    [cir] The thermal efficiency in steam mode determined in accordance 
with the test procedure in Sec.  431.86 or determined with an AEDM.
    For commercial packaged boiler models capable of supplying either 
steam or hot water and with fuel input rate greater than 2,500,000 Btu/
h, under the existing test procedure (10 CFR 431.86(c)(2)(iii)) 
manufacturers must:
     Determine the representative value of the thermal 
efficiency in steam mode based on thermal efficiency in steam mode 
determined in accordance with the test procedure in Sec.  431.86 or 
determined with an AEDM; and
     Determine the representative value of the combustion 
efficiency in hot water mode based on either:
    [cir] The combustion efficiency in hot water mode determined in 
accordance with the test procedure in Sec.  431.86 or determined with 
an AEDM; or
    [cir] The combustion efficiency in steam mode determined in 
accordance with the test procedure in Sec.  431.86 or determined with 
an AEDM.
    DOE notes that these are existing provisions for such boilers at 10 
CFR 431.86(c)(2)(iii) that establish the testing and rating 
requirements for commercial packaged boiler models capable of supplying 
either steam or hot water. Because provisions related to 
representations are typically in 10 CFR part 429, DOE is moving and 
rephrasing these requirements. Therefore, DOE notes that these 
regulations do not alter testing or rating options compared to the 
existing test procedure.
    DOE seeks comment on its proposed clerical corrections and 
clarifications, identified as Issue 30 in section V.E.

I. Other Issues

    In response to the September 2013 Framework document and February 
2014 RFI, DOE received several comments about other issues, not 
discussed previously in this notice, concerning the test procedure for 
determining the energy efficiency of a commercial packaged boiler. 
These issues and comments are addressed in the following subsections.
1. Stack Temperature Adjustment for Using Combustion Efficiency in 
Steam Mode To Represent Hot Water Mode
    DOE's existing test procedure allows commercial packaged boilers 
with fuel input rate greater than 2,500,000 Btu/h capable of producing 
steam and hot water to use the combustion efficiency as measured in 
steam mode to represent the combustion efficiency in hot water mode. 10 
CFR 431.86(c)(2)(iii)(B). DOE has received multiple waiver requests 
that asked to use an adjustment to the stack temperature for using this 
rating method in order to more accurately reflect the combustion 
efficiency of a commercial packaged boiler operating in hot water mode. 
The adjustment is given by Equation 2:
[GRAPHIC] [TIFF OMITTED] TP17MR16.003

where TF,SS,adjusted is the adjusted steady-state flue 
temperature used for subsequent calculations of combustion efficiency, 
TF,SS is the measured steady-state flue temperature during 
combustion efficiency testing in steam mode, Tsat is the 
saturated steam temperature that corresponds to the measured steam 
pressure, and 180 is the hot water outlet temperature.
    The proposed adjustment equation is derived by assuming that the 
heat transfer properties of the heat exchanger operating in hot water 
mode are roughly the same as the heat transfer properties of the heat 
exchanger operating in steam mode. This assumption is already implicit 
in the DOE allowance for using combustion efficiency ratings in steam 
mode to represent those in hot water mode, and, thus, this methodology 
is consistent with the intent of DOE's existing regulations. DOE 
believes that the methodology is technically sound and may result in 
more accurate representations of the performance of

[[Page 14659]]

these commercial packaged boilers operating in hot water mode.
    However, to further validate the proposed procedure, DOE seeks 
comments, as well as sample stack temperature data, sample calculations 
and estimates of the impact of this methodology. This is identified as 
Issue 31 in section V.E.
    Relatedly, DOE proposes additional provisions for enforcement 
testing of commercial packaged boilers that are capable of producing 
both steam and hot water. Specifically, DOE is proposing that DOE could 
choose to test a given model that is capable of producing both steam 
and hot water in either mode for the purposes of assessing compliance 
with the applicable standard. DOE seeks comment regarding this proposed 
provision, and this is identified as Issue 32 in section V.E.
2. Testing at Part Load
    In response to the September 2013 Framework document, ACEEE, ASAP, 
and NRDC asserted that the existing DOE test procedure for commercial 
packaged boilers, which is based on BTS-2000 and measures efficiency at 
peak load, is obsolete and that the rating method for boilers with 
modulating burners (including high/low fire) must incorporate some 
part-load efficiency measure. (Docket EERE-2013-BT-STD-0030, Joint 
Advocates, No. 16 at p. 2)
    In the February 2014 RFI, DOE requested additional public comment, 
data, and information about adopting methodologies and measurements to 
determine part-load efficiency of commercial packaged boilers, 
including appropriate inlet and outlet water temperatures under part-
load testing conditions, number of hours a modulating burner would 
operate under part-load and full-load conditions over the course of a 
year, and any added test burden to account for part-load operation 
(e.g., measurement of jacket, sensible, and infiltration losses). 79 FR 
9643, 9644.
    ACEEE stated that whether for a fixed capacity or modulating 
boiler, the lower the inlet water temperature the higher the 
efficiency, and suggested that a boiler be rated at the lowest inlet 
water temperature permissible under a manufacturer's warranty. Also, in 
response to expected hours that modulating burners would operate under 
part-load and full-load conditions, ACEEE advocated for a review of 
industry designs, operational data, and simulations for boiler 
operation over the course of a year. (Docket EERE-2014-BT-TP-0006, 
ACEEE, No. 2 at pp. 2 and 3)
    Burnham suggested using the same inlet/outlet water temperatures 
for part-load testing as for full [load] input testing because the 
design of modulating burners is indifferent to operating at full load 
or part load, and actual operation would vary according to the 
application. As for added test burden associated with part-load 
operation, Burnham asserted that test costs would double and that 
additional testing equipment would be needed to accommodate more 
precise control of lower flows and measurement. (Docket EERE-2013-BT-
STD-0030, Burnham, No. 4 at pp. 1 and 2)
    HTP stated that part-load testing would burden manufacturers when 
multiple operating conditions are required and, given possible 
misunderstanding of the systems-level aspects of efficiency, there may 
be market confusion over multiple efficiency ratings. HTP posited that 
DOE should only regulate single-point minimum efficiencies for 
commercial packaged boilers to maintain consistency with historical use 
of ``high fire rate.'' (Docket EERE-2014-BT-TP-0006, HTP, No. 5 at p. 
2)
    Although ACEEE suggested that DOE require enough testing to 
describe the entire performance map of the boiler (Docket EERE-2014-BT-
TP-0006, ACEEE, No. 2 at p. 1), several parties expressed the concern 
that additional test points would greatly increase the testing burden 
for minimal added benefit. (Docket EERE-2013-BT-STD-0030, ABMA, No. 39 
at p. 68; Docket EERE-2014-BT-TP-0006, Burnham, No. 4 at p. 1; Docket 
EERE-2014-BT-TP-0006, HTP, No. 5 at p. 2)
    DOE understands that while a modulating burner can greatly reduce 
the annual energy consumption of a condensing commercial packaged 
boiler, the effect of a modulating burner on the measured steady-state 
efficiency of a non-condensing commercial packaged boiler is small.\15\ 
Thus, DOE has tentatively determined that small increases in steady-
state efficiency of non-condensing commercial packaged boilers at 
reduced firing rates do not warrant additional test procedures or 
efficiency metrics for non-condensing commercial packaged boilers 
operating at reduced firing rates. DOE also acknowledges the concerns 
from manufacturers (testing at different input ratings would require 
tests to be repeated, at least in part, multiple times). Therefore, DOE 
tentatively concludes that additional part-load testing for any 
commercial packaged boiler is not warranted at this time, but seeks 
further comment about part-load testing. This is identified as Issue 33 
in section V.E.
---------------------------------------------------------------------------

    \15\ See Lochinvar Web site for example efficiency curves at 
various firing rates: http://www.lochinvar.com/products/documentation.aspx?mode=filetype&filetypeid=25.
---------------------------------------------------------------------------

3. Other Industry Test Procedures
    Instead of using BTS-2000 to measure commercial packaged boiler 
efficiencies, Cleaver-Brooks suggested using the American Society of 
Mechanical Engineers (ASME) PTC 4.1-1964 (Reaffirmed 1991), ``Power 
Test Codes: Test Code for Steam Generating Units'' (with 1968 and 1969 
Addenda) (ASME PTC 4.1), particularly the abbreviated test form and the 
heat loss method incorporated therein. Cleaver-Brooks added that ASME 
PTC 4.1 is the most common standard used by manufacturers of larger 
commercial packaged boilers (i.e., boilers greater than 2,500,000 Btu/h 
rated input), and that the heat loss method in that standard 
essentially provides the same efficiency values as BTS-2000 combustion 
efficiency if radiation losses are included. (Docket EERE-2013-BT-STD-
0030, Cleaver-Brooks, No. 12 at p. 2) ABMA agreed that ASME PTC-4.1 is 
the more appropriate testing standard for larger boilers. ABMA cited 
general concerns about BTS-2000 from its member manufacturers, 
including (1) the high cost of testing larger boilers; (2) the 0-2 psig 
test pressure requirement that causes high steam velocity and poor 
steam quality; (3) large temperature rises causing high strain and 
fatigue in larger boilers; (4) the custom-built nature of larger 
combustion equipment; and (5) safety compliance requirements of other 
entities such as the National Board of Boiler and Pressure Vessel 
Inspectors. (Docket EERE-2013-BT-STD-0030, ABMA, No. 14 at pp. 2, 3) 
ABMA suggested in its comments responding to the November 2014 
Preliminary Analysis that ASME PTC 4 (note: not PTC-4.1) should be used 
for testing. (Docket EERE-2013-BT-STD-0030, ABMA No. 33 at p. 2)
    As part of the energy conservation standards and test procedure 
rulemaking for commercial packaged boilers that concluded with the 
final rule published in the Federal Register on October 21, 2004 (69 FR 
61949), DOE evaluated five other industry test procedures for potential 
incorporation by reference under 10 CFR 431.85.\16\ At

[[Page 14660]]

that time, DOE considered both ASME PTC 4-1998, ``Fired Steam 
Generators Test Codes,'' and ASME PTC 4.1-1964, ``Steam Generating 
Units Power Test Codes,'' as potential alternatives to BTS-2000. 
However, DOE adopted-BTS-2000 for testing all covered commercial 
packaged boilers manufactured after October 21, 2006. Prior to that 
date, a manufacturer could use either BTS-2000 or the alternative test 
method ASME PTC 4.1-1964 for steel commercial packaged boilers. 69 FR 
61949, 61961.
---------------------------------------------------------------------------

    \16\ The version of ASHRAE Standard 90.1 in effect on June 30, 
1992, referenced five industry test standards that apply to gas-
fired boilers or oil-fired boilers or both. These are the ANSI 
Standard Z21.13-1987 for gas-fired boilers (revised as ANSI Z21.13-
1991 with Addendum ANSI Z21.13-1993a); the HI Testing and Rating 
Standard for Heating Boilers, sixth edition, 1989, for gas and oil-
fired boilers (HI 1989); ASME Power Test Codes (PTC) 4.1-1964 
(reaffirmed R1991) for Steam Generating Units for fossil fuel 
boilers (revised in 1998 as ASME PTC 4-1998, Fired Steam Generators, 
issued on December 31, 1999); the Underwriters Laboratory Standard 
795-1973 for gas heating equipment (UL 795, revised in 1994 as UL 
795-94); and the Underwriters Laboratory Standard UL Standard 726-
1990 for oil-fired boilers (UL 726). See 69 FR 61955 (October 21, 
2004).
---------------------------------------------------------------------------

    For this NOPR, DOE re-examined the test procedures and public 
comments addressed in the October 21, 2004 final rule and the rationale 
behind each. For example, public comments from GAMA about ASME PTC 4.1 
included the following observations and critiques: (1) It lacks 
``tolerances for input, pressure, number of tests required, and when 
the boiler has achieved steady-state conditions;'' (2) test duration of 
4 hours is too long for a combustion test, and the locations ``of 
temperature, pressure, flue sampling, and stack configuration are not 
specified;'' (3) it is a test standard for the acceptance test of a 
boiler after it is installed where the test conditions are less 
controllable than a laboratory test; and (4) it has been replaced by 
the standard ASME PTC 4-1998 which is vastly different from the 
original ASME PTC 4.1. As such, DOE believed then and continues to 
believe that ASME PTC 4.1 would be too burdensome, that hours of 
testing are longer than needed, and that there are differences in 
results between PTC 4.1 and BTS-2000. In the October 2004 final rule, 
DOE found that ASME PTC 4.1-1964 (PTC 4.1) and its successor ASME PTC 
4-1998 (PTC 4) were not fit for adoption as the required test procedure 
for the following reasons:
     The abbreviated test form of PTC 4.1, while a sound test, 
was removed in the PTC 4 version and its use was discouraged by the PTC 
4 standard.
     Since the abbreviated test form of PTC 4.1 was not part of 
PTC 4, the test burden of the new standard was excessive for the 
purposes of rating smaller commercial packaged boilers.
     DOE believed there may be some differences in efficiency 
ratings between the PTC 4.1 and BTS-2000 tests, and, therefore, only 
one test method would be adopted.\17\
---------------------------------------------------------------------------

    \17\ The analysis conducted at the time of the NOPR used the 
document's previous version, HI-1989. 65 FR 48838 (August 9, 2000). 
At the time of final rule, DOE was provided with the updated BTS-
2000 and found sufficient similarity such that BTS-2000 could be 
adopted as the test procedure without further analysis. 69 FR 61949, 
61955-56 (October 21, 2004).
---------------------------------------------------------------------------

     BTS-2000 was simple to conduct, and converting from the 
abbreviated test form of PTC 4.1 to BTS-2000 would not be overly 
burdensome.

69 FR 61949, 61954-57.

    DOE notes that these findings from the October 2004 final rule 
concerning BTS-2000 continue to apply to ANSI/AHRI Standard 1500-2015 
because ANSI/AHRI Standard 1500-2015 is an updated version of BTS-2000.
    On July 22, 2009, DOE published a final rule adopting the thermal 
efficiency metric as the energy efficiency descriptor for eight of ten 
equipment classes of commercial packaged boilers in order to conform to 
ASHRAE Standard 90.1-2007. 74 FR 36314. The thermal efficiency metric 
was required for purposes of compliance starting March 2, 2012. DOE 
notes that BTS-2000 was incorporated by reference as the foundation of 
the DOE test procedure on October 21, 2004. 69 FR 61949. Manufacturers 
have been required to use BTS-2000 for purposes of compliance since 
October 24, 2006. 69 FR 61961. DOE has not been provided with new data 
that substantiate claims from ABMA or manufacturers regarding possible 
test complications or burden since these previous rulemakings were 
undertaken.
    With regard to ABMA's specific claims concerning the BTS-2000 
methodology (Docket EERE-2013-BT-STD-0030, ABMA, No. 14 at p. 2, 3), 
DOE proposes modified inlet and outlet water temperatures for hot water 
commercial packaged boiler tests (section III.D) and a wider allowable 
range of steam operating pressures for steam commercial packaged boiler 
tests (see section III.C.4), as provided in ANSI/AHRI Standard 1500-
2015. DOE believes these proposals would alleviate ABMA's concerns 
regarding excessive commercial packaged boiler stresses and steam 
quality and are consistent with ABMA's suggestions. (Docket EERE-2013-
BT-STD-0030, ABMA, No. 14 at p. 4)
    AHRI commented that ASHRAE Standard 155, ``Method of Testing for 
Rating Commercial Space Heating Boiler Systems,'' is being developed as 
a replacement for BTS-2000 (and ANSI/AHRI Standard 1500-2015) and that 
DOE could adopt this new standard as a new reference for the commercial 
packaged boiler test procedure. (Docket EERE-2014-BT-TP-0006, AHRI, No. 
6 at pp. 2-3) AHRI suggested that DOE should defer considering 
alterations to its test procedure until ASHRAE Standard 155 is 
published. PGE and SCE also urged DOE to consider using the ASHRAE 
Standard 155, which is currently under development, as the basis for 
the Federal test procedure. (Docket EERE-2013-BT-STD-0030, Joint 
Utilities, No. 38 at p. 3) DOE understands that the development of 
ASHRAE Standard 155 is currently a proposed standards project.\18\ DOE 
is not aware of any scheduled publication date, and is now subject to a 
statutory requirement to review the test procedure. As stated 
previously, DOE last reviewed the test procedures for commercial 
packaged boilers in a final rule published in the Federal Register on 
July 22, 2009 (74 FR 36312), and thus is required to re-evaluate the 
test procedures no later than July 22, 2016. Consequently, DOE plans to 
move forward with this test procedure rulemaking for commercial 
packaged boilers. However, DOE will monitor developments related to 
ASHRAE Standard 155 and may consider incorporation of that standard in 
a future test procedure rulemaking. As noted previously, in this NOPR, 
DOE proposes to incorporate by reference the recently published ANSI/
AHRI Standard 1500-2015 that supersedes the BTS-2000 standard and 
corrects some minor issues therein.
---------------------------------------------------------------------------

    \18\ ASHRAE Standard 155 (currently identified as SPC 155P) is a 
proposed standards project, the purpose of which is to develop 
procedures for determining the steady-state thermal efficiency, 
part-load efficiency, and idling energy input rate of space heating 
boilers. See https://www.ashrae.org/standards-research--technology/
standards--guidelines/titles-purposes-and-scopes#SPC155P.
---------------------------------------------------------------------------

IV. Procedural Issues and Regulatory Review

A. Review Under Executive Order 12866

    The Office of Management and Budget (OMB) has determined that test 
procedure rulemakings do not constitute ``significant regulatory 
actions'' under section 3(f) of Executive Order 12866, ``Regulatory 
Planning and Review,'' 58 FR 51735 (October 4, 1993). Accordingly, this 
regulatory action was not subject to review under the Executive Order 
by the Office of Information and Regulatory Affairs (OIRA) in OMB.

B. Review Under the Regulatory Flexibility Act

    The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires 
preparation

[[Page 14661]]

of an initial regulatory flexibility analysis (IFRA) for any rule that 
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. As required by 
Executive Order 13272, ``Proper Consideration of Small Entities in 
Agency Rulemaking,'' 67 FR 53461 (August 16, 2002), DOE published 
procedures and policies on February 19, 2003, to ensure that the 
potential impacts of its rules on small entities are properly 
considered during the DOE rulemaking process. 68 FR 7990. DOE has made 
its procedures and policies available on the Office of the General 
Counsel's Web site: http://energy.gov/gc/office-general-counsel.
    This proposed rule prescribes test procedure amendments that would 
be used to determine compliance with energy conservation standards for 
commercial packaged boilers. The proposed amendments modify the inlet 
and outlet water temperatures for hot water tests, increase the 
allowable steam pressure for steam tests, implement more specific 
criteria for determining when steady-state has been reached during 
testing, and establish room temperature and relative humidity limits.
    DOE reviewed this proposed rule under the provisions of the 
Regulatory Flexibility Act and DOE's own procedures and policies 
published on February 19, 2003. DOE has concluded that the proposed 
rule would not have a significant impact on a substantial number of 
small entities. The factual basis for this certification is as follows.
    The Small Business Administration (SBA) considers a business entity 
to be a small business, if, together with its affiliates, it employs 
less than a threshold number of workers specified in 13 CFR part 121. 
These size standards and codes are established by the North American 
Industry Classification System (NAICS). The threshold number for NAICS 
classification code 333414, which applies to ``heating equipment 
(except warm air furnaces) manufacturing' and includes commercial 
packaged boilers, is 500 employees.
    To estimate the number of companies that could be small business 
manufacturers of the equipment affected by this rulemaking, DOE 
conducted a market survey using available public information to 
identify potential small manufacturers. DOE's research involved 
reviewing the AHRI directory (a product database), individual company 
Web sites, and marketing research tools (e.g., Hoover's reports) to 
create a list of all domestic small business manufacturers of equipment 
affected by this rulemaking. DOE identified 23 manufacturers of 
commercial packaged boilers as domestic small business manufacturers. 
DOE was able to discuss the DOE test procedures with 5 of these small 
businesses. DOE also obtained information about small businesses and 
potential impacts on small businesses while interviewing manufacturers 
in the context of the standards rulemaking. However, DOE did not 
receive any detailed quantifications about the incremental burden small 
businesses would face as compared to larger businesses in light of the 
proposed methods.
    The proposed amendments would alter water temperatures for hot 
water commercial packaged boilers tests, increase the allowable steam 
pressure for steam tests, add specific criteria for establishing 
steady-state, and place limits on the ambient temperature and relative 
humidity during testing. DOE recognizes that by reducing the 
temperature rise across the commercial packaged boiler, the water flow 
rate will necessarily increase proportionally. The required flow rate 
for a 10 million Btu/h fuel input rate commercial packaged boiler with 
a 100[emsp14][deg]F minimum temperature rise (as is the case currently 
for non-condensing commercial packaged boilers) would be approximately 
200 gallons per minute (gpm). Reducing the temperature rise across the 
commercial packaged boiler to 40[emsp14][deg]F would increase the water 
flow rate requirement to approximately 500 gpm for a 10 million Btu/h 
fuel input rate commercial packaged boiler. If a laboratory or 
manufacturer does not currently have a pump capable of handling the 
flow rates of the commercial packaged boilers they are testing, they 
may need to purchase a pump rated for a higher flow rate. Based on 
internet research of several HVAC equipment vendors, DOE estimates that 
the cost of a pump capable of 500 gpm is $3,000. The number of models 
for which this investment would be required would vary by manufacturer 
and laboratory; however, DOE estimates the average to be 15 models.\19\ 
Therefore, DOE estimates the cost per model of this investment to be 
approximately $200, which DOE believes to be a modest amount compared 
to the total product development and certification costs of a model, 
which can be in the tens of thousands of dollars.\20\
---------------------------------------------------------------------------

    \19\ Based on product model listing compiled for commercial 
packaged boilers standards rulemaking using the AHRI directory, 
docket EERE-2013-BT-STD-0030.
    \20\ Based on information obtained during confidential 
manufacturer interviews as part of the commercial packaged boilers 
standards rulemaking, docket EERE-2013-BT-STD-0030.
---------------------------------------------------------------------------

    Regarding the increase in allowable steam pressure for steam 
commercial packaged boiler tests, manufacturers will likely initiate a 
test at low pressure (much less than 15 psi) and increase as necessary 
(up to 15 psi) to achieve the necessary steam quality. While the setup 
and operation of the test is unchanged, this process may increase the 
amount of time necessary to perform the test. DOE estimates that this 
would increase test time by, at most, 2 hours. For a 10 million Btu/h 
fuel input rate commercial packaged boiler, and assuming a rate of $40 
per hour for a laboratory technician, $8.89 per thousand cubic feet of 
natural gas, and 1,025 Btu per cubic foot high heating value (HHV), DOE 
estimates the additional testing cost to be $253.46.\21\ DOE believes 
this amount is modest in comparison to the overall cost of product 
development and certification.
---------------------------------------------------------------------------

    \21\ The laboratory technician hourly wage is based on mean 
hourly wage of $26.67 from the Bureau of Labor Statistics for a 
Mechanical Engineering Technician, occupational code 17-3027: http://www.bls.gov/oes/current/oes173027.htm. (Last accessed January 21, 
2016.) Mean hourly wage is multiplied by 1.5 to estimate associated 
benefits and overhead. The price of natural gas is the 5-year 
average (May 2009 to May 2014) obtained from the ``U.S. Price of 
Natural Gas Sold to Commercial Consumers'' from U.S. Energy 
Information Administration (EIA) (Available at: http://www.eia.gov/dnav/ng/hist/n3020us3m.htm).
---------------------------------------------------------------------------

    In the case of the criteria for establishing steady-state, DOE 
believes that the requirements do not add to the time or cost necessary 
to conduct the test. The test procedure already requires a period of 30 
minutes prior to starting the test, during which steady-state is 
established. DOE is clarifying the conditions that must be satisfied to 
meet steady-state, and does not believe any additional time is required 
to meet such conditions.
    With regard to the test room ambient temperature and relative 
humidity limits, DOE notes that the limits are intended to prevent the 
test from being conducted in extreme ambient conditions, and that the 
allowable temperature and relative humidity ranges are typical for 
building heating, ventilating, and air-conditioning systems in normal 
operating conditions. DOE is aware that the proposed constraints may in 
some cases require laboratories to move testing from an uncontrolled 
environment (i.e., outdoors or facilities open to the outdoors) to a 
controlled environment. However, DOE believes this to be a

[[Page 14662]]

small number of cases, and that typically testing is performed in a 
laboratory setting with typical heating, ventilating, and air-
conditioning systems and controls. DOE notes that the limits are 
intended to prevent the test from being conducted in extreme ambient 
conditions, and that the ambient temperature requirements are typical 
for building heating, ventilating, and air-conditioning systems in 
normal operating condition. However, if the ambient temperature or 
relative humidity in the testing area do not already meet these 
tolerances, the manufacturer may need to improve climate regulation of 
the test environment, possibly by improving the controls of their 
thermostats, or preventing hot or cold drafts from entering the testing 
environment. DOE estimates that improving the controls of the 
thermostat and preventing hot or cold drafts from entering the testing 
environment could involve four to eight hours of labor by a general 
technician. At a rate of $40 per hour for a laboratory technician, DOE 
estimates the cost for this amount of labor to be between $160 and 
$320, which DOE believes is modest in comparison to the overall cost of 
product development and certification.
    Finally, DOE acknowledges that the proposal to require digital data 
acquisition may add additional test burden. DOE has estimated the 
following costs associated with digital data acquisition:

    Table IV.1--Estimated One-Time Costs Associated With Digital Data
                               Acquisition
------------------------------------------------------------------------
                       Description                             Cost
------------------------------------------------------------------------
Laptop..................................................          $1,500
Data Acquisition Module.................................           2,000
Data Acquisition Software...............................           3,000
Installation and Setup (16 hours laboratory technician               640
 time x $40/hour).......................................
                                                         ---------------
    Total...............................................           7,140
------------------------------------------------------------------------

    The data acquisition system could be used by the manufacturer or 
laboratory to test all commercial packaged boiler models. Again, DOE 
believes these costs are modest in comparison to the overall cost of 
product development and certification.
    For the reasons stated previously, DOE concludes that this proposed 
rule would not have a significant economic impact on a substantial 
number of small entities, so DOE has not prepared a regulatory 
flexibility analysis for this rulemaking. DOE will provide its 
certification and supporting statement of factual basis to the Chief 
Counsel for Advocacy of the SBA for review under 5 U.S.C. 605(b).
    DOE seeks comment on whether the proposed test procedure changes 
will have a significant impact on a substantial number of small 
entities. This is identified as Issue 34 in section V.E.

C. Review Under the Paperwork Reduction Act of 1995

    Manufacturers of commercial packaged boilers must certify to DOE 
that their equipment complies with all applicable energy conservation 
standards. In certifying compliance, manufacturers must test their 
equipment according to the DOE test procedure for commercial packaged 
boilers under 10 CFR 431.86, including any amendments adopted for those 
test procedures, on the date that compliance is required. DOE has 
established regulations for the certification and recordkeeping 
requirements for all covered consumer products and commercial 
equipment, including commercial packaged boilers. See 10 CFR part 429, 
subpart B. The collection-of-information requirement for certification 
and recordkeeping is subject to review and approval by OMB under the 
Paperwork Reduction Act (PRA). This requirement has been approved by 
OMB under OMB Control Number 1910-1400. Public reporting burden for the 
certification is estimated to average 30 hours per response, including 
the time for reviewing instructions, searching existing data sources, 
gathering and maintaining the data needed, and completing and reviewing 
the collection of information.
    Notwithstanding any other provision of the law, no person is 
required to respond to, nor shall any person be subject to a penalty 
for failure to comply with, a collection of information subject to the 
requirements of the PRA, unless that collection of information displays 
a currently valid OMB Control Number.

D. Review Under the National Environmental Policy Act of 1969

    In this proposed rule, DOE proposes test procedure amendments that 
it expects will be used to develop and implement future energy 
conservation standards for commercial packaged boilers. DOE has 
determined that this rule falls into a class of actions that are 
categorically excluded from review under the National Environmental 
Policy Act of 1969 (42 U.S.C. 4321 et seq.) and DOE's implementing 
regulations at 10 CFR part 1021. Specifically, this proposed rule would 
amend the existing test procedures without affecting the amount, 
quality, or distribution of energy usage, and, therefore, would not 
result in any environmental impacts. Thus, this rulemaking is covered 
by Categorical Exclusion A5 under 10 CFR part 1021, subpart D, which 
applies to any rulemaking that interprets or amends an existing rule 
without changing the environmental effect of that rule. Accordingly, 
neither an environmental assessment nor an environmental impact 
statement is required.

E. Review Under Executive Order 13132

    Executive Order 13132, ``Federalism,'' 64 FR 43255 (August 10, 
1999), imposes certain requirements on Federal agencies formulating and 
implementing policies or regulations that preempt State law or that 
have Federalism implications. The Executive Order requires agencies to 
examine the constitutional and statutory authority supporting any 
action that would limit the policymaking discretion of the States, and 
to carefully assess the necessity for such actions. The Executive Order 
also requires agencies to have an accountability process to ensure 
meaningful and timely input by State and local officials in the 
development of regulatory policies that have Federalism implications. 
On March 14, 2000, DOE published a statement of policy describing the 
intergovernmental consultation process it will follow in the 
development of such regulations. 65 FR 13735. DOE has examined this 
proposed rule and has determined that it would not have a substantial 
direct effect on the States, on the relationship between the national 
government and the States, or on the distribution of power and 
responsibilities among the various levels of government. EPCA governs 
and prescribes Federal preemption of State regulations as to energy 
conservation for the equipment that is the subject of this proposed 
rule. States can petition DOE for exemption from such preemption to the 
extent, and based on criteria, set forth in EPCA. (42 U.S.C. 6297(d); 
42 U.S.C. 6316(a)) No further action is required by Executive Order 
13132.

F. Review Under Executive Order 12988

    Regarding the review of existing regulations and the promulgation 
of new regulations, section 3(a) of Executive Order 12988, ``Civil 
Justice Reform,'' 61 FR 4729 (Feb. 7, 1996), imposes on Federal 
agencies the general duty to adhere to the following requirements: (1) 
eliminate drafting errors and ambiguity; (2) write regulations to 
minimize litigation; (3) provide a clear legal standard for

[[Page 14663]]

affected conduct rather than a general standard; and (4) promote 
simplification and burden reduction. Section 3(b) of Executive Order 
12988 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) provides 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 Executive Order 12988 requires 
Executive agencies to review regulations in light of applicable 
standards in sections 3(a) and 3(b) to determine whether they are met 
or it is unreasonable to meet one or more of them. DOE has completed 
the required review and determined that, to the extent permitted by 
law, the proposed rule meets the relevant standards of Executive Order 
12988.

G. Review Under the Unfunded Mandates Reform Act of 1995

    Title II of the Unfunded Mandates Reform Act of 1995 (UMRA) 
requires each Federal agency to assess the effects of Federal 
regulatory actions on State, local, and Tribal governments and the 
private sector. Pub. L. 104-4, sec. 201 (codified at 2 U.S.C. 1531). 
For a proposed regulatory action likely to result in a rule that may 
cause the expenditure by State, local, and Tribal governments, in the 
aggregate, or by the private sector of $100 million or more in any one 
year (adjusted annually for inflation), section 202 of UMRA requires a 
Federal agency to publish a written statement that estimates the 
resulting costs, benefits, and other effects on the national economy. 
(2 U.S.C. 1532(a), (b)) The UMRA also requires a Federal agency to 
develop an effective process to permit timely input by elected officers 
of State, local, and Tribal governments on a proposed ``significant 
intergovernmental mandate,'' and requires an agency plan for giving 
notice and opportunity for timely input to potentially affected small 
governments before establishing any requirements that might 
significantly or uniquely affect small governments. On March 18, 1997, 
DOE published a statement of policy on its process for 
intergovernmental consultation under UMRA. 62 FR 12820; also available 
at http://energy.gov/gc/office-general-counsel. DOE examined this 
proposed rule according to UMRA and its statement of policy and 
determined that the rule contains neither an intergovernmental mandate, 
nor a mandate that may result in the expenditure of $100 million or 
more in any year, so these requirements do not apply.

H. Review Under the Treasury and General Government Appropriations Act, 
1999

    Section 654 of the Treasury and General Government Appropriations 
Act, 1999 (Pub. L. 105-277) requires Federal agencies to issue a Family 
Policymaking Assessment for any rule that may affect family well-being. 
This rule would not have any impact on the autonomy or integrity of the 
family as an institution. Accordingly, DOE has concluded that it is not 
necessary to prepare a Family Policymaking Assessment.

I. Review Under Executive Order 12630

    DOE has determined, under Executive Order 12630, ``Governmental 
Actions and Interference with Constitutionally Protected Property 
Rights'' 53 FR 8859 (March 18, 1988), that this regulation would not 
result in any takings that might require compensation under the Fifth 
Amendment to the U.S. Constitution.

J. Review Under Treasury and General Government Appropriations Act, 
2001

    Section 515 of the Treasury and General Government Appropriations 
Act, 2001 (44 U.S.C. 3516 note) provides for agencies to review most 
disseminations of information to the public under guidelines 
established by each agency pursuant to general guidelines issued by 
OMB. OMB's guidelines were published at 67 FR 8452 (Feb. 22, 2002), and 
DOE's guidelines were published at 67 FR 62446 (Oct. 7, 2002). DOE has 
reviewed this proposed rule under the OMB and DOE guidelines and has 
concluded that it is consistent with applicable policies in those 
guidelines.

K. Review Under Executive Order 13211

    Executive Order 13211, ``Actions Concerning Regulations That 
Significantly Affect Energy Supply, Distribution, or Use,'' 66 FR 28355 
(May 22, 2001), requires Federal agencies to prepare and submit to OMB, 
a Statement of Energy Effects for any proposed significant energy 
action. A ``significant energy action'' is defined as any action by an 
agency that promulgated or is expected to lead to promulgation of a 
final rule, and that: (1) is a significant regulatory action under 
Executive Order 12866, or any successor order; and (2) is likely to 
have a significant adverse effect on the supply, distribution, or use 
of energy; or (3) is designated by the Administrator of OIRA as a 
significant energy action. For any proposed significant energy action, 
the agency must give a detailed statement of any adverse effects on 
energy supply, distribution, or use should the proposal be implemented, 
and of reasonable alternatives to the action and their expected 
benefits on energy supply, distribution, and use.
    The proposed regulatory action to amend the test procedure for 
measuring the energy efficiency of commercial packaged boilers is not a 
significant regulatory action under Executive Order 12866. Moreover, it 
would not have a significant adverse effect on the supply, 
distribution, or use of energy, nor has it been designated as a 
significant energy action by the Administrator of OIRA. Therefore, it 
is not a significant energy action, and, accordingly, DOE has not 
prepared a Statement of Energy Effects.

L. Review Under Section 32 of the Federal Energy Administration Act of 
1974

    Under section 301 of the Department of Energy Organization Act 
(Pub. L. 95-91; 42 U.S.C. 7101), DOE must comply with section 32 of the 
Federal Energy Administration Act of 1974, as amended by the Federal 
Energy Administration Authorization Act of 1977. (15 U.S.C. 788; FEAA) 
Section 32 essentially provides in relevant part that, where a proposed 
rule authorizes or requires use of commercial standards, the notice of 
proposed rulemaking must inform the public of the use and background of 
such standards. In addition, section 32(c) requires DOE to consult with 
the Attorney General and the Chairman of the Federal Trade Commission 
(FTC) concerning the impact of the commercial or industry standards on 
competition.
    This proposed rule incorporates testing methods contained in the 
commercial standard ANSI/AHRI Standard 1500-2015, ``2015 Standard for 
Performance Rating of Commercial Space Heating Boilers.'' While this 
NOPR proposes amendments that supplant various provisions of that 
industry standard, the test procedure is largely adopted directly from 
the commercial standard without amendment. DOE has evaluated this 
standard and is unable to conclude whether it fully complies with the 
requirements of section 32(b) of the FEAA, (i.e., that it was developed 
in a manner that fully provides for public participation, comment, and 
review). DOE will consult with the Attorney

[[Page 14664]]

General and the Chairwoman of the FTC concerning the impact on 
competition of requiring manufacturers to use the test methods 
contained in this industry standard prior to prescribing a final rule.

M. Description of Materials Incorporated by Reference

    In this NOPR, DOE proposes to incorporate by reference certain 
sections of ANSI/AHRI Standard 1500-2015, ``2015 Standard for 
Performance Rating of Commercial Space Heating Boilers.'' ANSI/AHRI 
Standard 1500-2015 is an industry-accepted test procedure that provides 
methods, requirements, and calculations for determining the thermal 
and/or combustion efficiency of a commercial space heating boiler. 
ANSI/AHRI Standard 1500-2015 is available at http://www.ahrinet.org/App_Content/ahri/files/standards%20pdfs/ANSI%20standards%20pdfs/ANSI.AHRI_Standard_1500-2015.pdf.

V. Public Participation

A. Attendance at the Public Meeting

    The time, date, and location of the public meeting are listed in 
the DATES and ADDRESSES sections at the beginning of this document. If 
you plan to attend the public meeting, please notify Ms. Brenda Edwards 
at (202) 586-2945 or [email protected].
    Please note that foreign nationals participating in the public 
meeting are subject to advance security screening procedures which 
require advance notice prior to attendance at the public meeting. Any 
foreign national wishing to participate in the public meeting should 
inform DOE as soon as possible by contacting Ms. Regina Washington at 
(202) 586-1214 or by email: [email protected] so that the 
necessary procedures can be completed.
    DOE requires visitors with laptop computers and other devices, such 
as tablets, to be checked upon entry into the building. Any person 
wishing to bring these devices into the Forrestal Building will be 
required to obtain a property pass. Visitors should avoid bringing 
these devices, or allow an extra 45 minutes to check in. Please report 
to the visitor's desk to have devices checked before proceeding through 
security.
    Due to the REAL ID Act implemented by the Department of Homeland 
Security (DHS), there have been recent changes regarding identification 
(ID) requirements for individuals wishing to enter Federal buildings 
from specific states and U.S. territories. As a result, driver's 
licenses from the following states or territory will not be accepted 
for building entry and one of the alternate forms of ID listed below 
will be required. DHS has determined that regular driver's licenses 
(and ID cards) from the following jurisdictions are not acceptable for 
entry into DOE facilities: Alaska, American Samoa, Arizona, Louisiana, 
Maine, Massachusetts, Minnesota, New York, Oklahoma, and Washington. 
Acceptable alternate forms of Photo-ID include: U.S. Passport or 
Passport Card; an Enhanced Driver's License or Enhanced ID-Card issued 
by the states of Minnesota, New York or Washington (Enhanced licenses 
issued by these states are clearly marked Enhanced or Enhanced Driver's 
License); a military ID or other Federal government issued Photo-ID 
card.
    In addition, you can attend the public meeting via webinar. Webinar 
registration information, participant instructions, and information 
about the capabilities available to webinar participants will be 
published on DOE's Web site at: https://www1.eere.energy.gov/buildings/appliance_standards/rulemaking.aspx?ruleid=87. Participants are 
responsible for ensuring their systems are compatible with the webinar 
software.

B. Procedure for Submitting Prepared General Statements for 
Distribution

    Any person who has plans to present a prepared general statement 
may request that copies of his or her statement be made available at 
the public meeting. Such persons may submit requests, along with an 
advance electronic copy of their statement in PDF (preferred), 
Microsoft Word or Excel, WordPerfect, or text (ASCII) file format, to 
the appropriate address shown in the ADDRESSES section at the beginning 
of this NOPR. The request and advance copy of statements must be 
received at least one week before the public meeting and may be 
emailed, hand-delivered, or sent by mail. DOE prefers to receive 
requests and advance copies via email. Please include a telephone 
number to enable DOE staff to make a follow-up contact, if needed.

C. Conduct of the Public Meeting

    DOE will designate a DOE official to preside at the public meeting 
and may also use a professional facilitator to aid discussion. The 
meeting will not be a judicial or evidentiary-type public hearing, but 
DOE will conduct it in accordance with section 336 of EPCA (42 U.S.C. 
6306). A court reporter will be present to record the proceedings and 
prepare a transcript. DOE reserves the right to schedule the order of 
presentations and to establish the procedures governing the conduct of 
the public meeting. After the public meeting, interested parties may 
submit further comments on the proceedings, as well as on any aspect of 
the rulemaking, until the end of the comment period.
    The public meeting will be conducted in an informal, conference 
style. DOE will present summaries of comments received before the 
public meeting, allow time for prepared general statements by 
participants, and encourage all interested parties to share their views 
on issues affecting this rulemaking. Each participant will be allowed 
to make a general statement (within time limits determined by DOE), 
before the discussion of specific topics. DOE will allow, as time 
permits, other participants to comment briefly on any general 
statements.
    At the end of all prepared statements on a topic, DOE will permit 
participants to clarify their statements briefly and comment on 
statements made by others. Participants should be prepared to answer 
questions by DOE and by other participants concerning these issues. DOE 
representatives may also ask questions of participants concerning other 
matters relevant to this rulemaking. The official conducting the public 
meeting will accept additional comments or questions from those 
attending, as time permits. The presiding official will announce any 
further procedural rules or modification of the above procedures that 
may be needed for the proper conduct of the public meeting.
    A transcript of the public meeting will be included in the docket, 
which can be viewed as described in the Docket section at the beginning 
of this notice. In addition, any person may buy a copy of the 
transcript from the transcribing reporter.

D. Submission of Comments

    DOE will accept comments, data, and information regarding this 
proposed rule before or after the public meeting, but no later than the 
date provided in the DATES section at the beginning of this proposed 
rule. Interested parties may submit comments using any of the methods 
described in the ADDRESSES section at the beginning of this proposed 
rule.
    Submitting comments via www.regulations.gov. The 
www.regulations.gov Web page will require you to provide your name and 
contact information. Your contact information will be viewable to DOE 
Building Technologies staff only. Your contact information will not be 
publicly viewable except for your first and last

[[Page 14665]]

names, organization name (if any), and submitter representative name 
(if any). If your comment is not processed properly because of 
technical difficulties, DOE will use this information to contact you. 
If DOE cannot read your comment due to technical difficulties and 
cannot contact you for clarification, DOE may not be able to consider 
your comment.
    However, your contact information will be publicly viewable if you 
include it in the comment itself or in any documents attached to your 
comment. Any information that you do not want to be publicly viewable 
should not be included in your comment, nor in any document attached to 
your comment. Persons viewing comments will see only first and last 
names, organization names, correspondence containing comments, and any 
documents submitted with the comments.
    Do not submit to www.regulations.gov information for which 
disclosure is restricted by statute, such as trade secrets and 
commercial or financial information (hereinafter referred to as 
Confidential Business Information (CBI)). Comments submitted through 
www.regulations.gov cannot be claimed as CBI. Comments received through 
the Web site will waive any CBI claims for the information submitted. 
For information on submitting CBI, see the Confidential Business 
Information section.
    DOE processes submissions made through www.regulations.gov before 
posting. Normally, comments will be posted within a few days of being 
submitted. However, if large volumes of comments are being processed 
simultaneously, your comment may not be viewable for up to several 
weeks. Please keep the comment tracking number that www.regulations.gov 
provides after you have successfully uploaded your comment.
    Submitting comments via email, hand delivery/courier, or mail. 
Comments and documents submitted via email, hand delivery/courier, or 
mail also will be posted to www.regulations.gov. If you do not want 
your personal contact information to be publicly viewable, do not 
include it in your comment or any accompanying documents. Instead, 
provide your contact information in a cover letter. Include your first 
and last names, email address, telephone number, and optional mailing 
address. The cover letter will not be publicly viewable as long as it 
does not include any comments.
    Include contact information each time you submit comments, data, 
documents, and other information to DOE. If you submit via mail or hand 
delivery/courier, please provide all items on a compact disc (CD), if 
feasible, in which case it is not necessary to submit printed copies. 
No telefacsimiles (faxes) will be accepted.
    Comments, data, and other information submitted to DOE 
electronically should be provided in PDF (preferred), Microsoft Word or 
Excel, WordPerfect, or text (ASCII) file format. Provide documents that 
are not secured, written in English, and are free of any defects or 
viruses. Documents should not contain special characters or any form of 
encryption and, if possible, they should carry the electronic signature 
of the author.
    Campaign form letters. Please submit campaign form letters by the 
originating organization in batches of between 50 to 500 form letters 
per PDF or as one form letter with a list of supporters' names compiled 
into one or more PDFs. This reduces comment processing and posting 
time.
    Confidential Business Information. Pursuant to 10 CFR 1004.11, any 
person submitting information that he or she believes to be 
confidential and exempt by law from public disclosure should submit via 
email, postal mail, or hand delivery/courier two well-marked copies: 
one copy of the document marked ``confidential'' including all the 
information believed to be confidential, and one copy of the document 
marked ``non-confidential'' with the information believed to be 
confidential deleted. Submit these documents via email or on a CD, if 
feasible. DOE will make its own determination about the confidential 
status of the information and treat it according to its determination.
    Factors of interest to DOE when evaluating requests to treat 
submitted information as confidential include: (1) a description of the 
items; (2) 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) 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.
    It is DOE's policy that all comments may be included in the public 
docket, without change and as received, including any personal 
information provided in the comments (except information deemed to be 
exempt from public disclosure).

E. Issues on Which DOE Seeks Comment

    Although DOE welcomes comments on any aspect of this proposal, DOE 
is particularly interested in receiving comments and views of 
interested parties concerning the following issues:
    1. DOE seeks comment on its proposal to replace BTS-2000 with ANSI/
AHRI Standard 1500-2015 in its test procedure for commercial packaged 
boilers (section III.A).
    2. DOE seeks comment on its proposal to remove its definition for 
packaged low pressure boiler and modify its definitions for commercial 
packaged boiler (section III.B.1).
    3. DOE seeks comment on its proposed definition for ``field-
constructed.'' (section III.B.2)
    4. DOE seeks comment on the feasibility of conducting a combustion 
efficiency test in the field for steam and hot water commercial 
packaged boilers with fuel input rate greater than 5,000,000 Btu/h 
(section III.C.1).
    5. DOE seeks comment on whether the thermal efficiency test can be 
conducted for steam commercial packaged boilers with fuel input rate 
greater than 2,500,000 Btu/h and less than or equal to 5,000,000 Btu/h 
(section III.C.1).
    6. DOE seeks comment on the specific limitations, if they exist, 
that preclude combustion efficiency testing in a laboratory setting for 
steam commercial packaged boilers with fuel input rate greater than 
2,500,000 Btu/h and less than or equal to 5,000,000 Btu/h (section 
III.C.1).
    7. DOE seeks comment on the specific additional equipment or 
facilities and their associated cost that would be required to 
accommodate testing commercial packaged boilers with fuel input rate 
greater than 2,500,000 Btu/h and less than or equal to 5,000,000 Btu/h 
in a laboratory setting (section III.C.1).
    8. DOE seeks comment on whether the 5,000,000 Btu/h fuel input rate 
is an adequate threshold for the allowance of the field combustion test 
and conversion methodology, and if not, what threshold should be used 
(section III.C.1).
    9. DOE seeks comment on whether certification should be permitted 
for field tested units after distribution in commerce and after 
commissioning, in particular the impact of this approach on building 
inspectors (section III.C.1).
    10. DOE seeks comment on its proposed conversion method for 
calculating thermal efficiency based on combustion efficiency for steam 
commercial packaged boilers with fuel

[[Page 14666]]

input rate greater than 5,000,000 Btu/h (section III.C.2).
    11. DOE seeks comment on the proposed value for the difference 
between the combustion efficiency and thermal efficiency in the 
conversion method (proposed value of 2 percent of the combustion 
efficiency), whether the value would result in conservative ratings, 
and what number DOE should use instead if the proposed value is not 
adequate (section III.C.2).
    12. DOE seeks comment on whether the 5,000,000 Btu/h fuel input 
rate is an adequate threshold for the allowance of the field combustion 
test and/or conversion methodology, and if not, what threshold should 
be used (section III.C.2).
    13. DOE seeks comment on if the field combustion test (for hot 
water and steam commercial packaged boilers) and conversion methodology 
(for steam commercial packaged boilers) do not adequately accommodate 
commercial packaged boilers with fuel input rate greater than 5,000,000 
Btu/h, what procedure should DOE implement in order to do so (section 
III.C.2).
    14. DOE seeks comments, data, and information about pressures 
recommended by manufacturers and relevance to actual operating 
conditions in buildings (section III.C.4).
    15. DOE seeks comment on whether DOE should require testing to be 
performed at the lowest possible steam pressure where steam quality 
requirements can be met (section III.C.4).
    16. DOE also requests comment on if there are any commercial 
packaged boilers that require steam pressures greater than 15 psig to 
maintain 2 percent moisture in the produced steam (see section 
III.C.4).
    17. DOE seeks comments, data, and information about whether the 
proposed testing conditions related to water temperatures are 
appropriate both for a non-condensing commercial packaged boiler and a 
condensing commercial packaged boiler (section III.D.2).
    18. DOE also requests comment on the proposed test provisions to 
accommodate commercial packaged boilers that cannot be tested with a 
temperature rise of 40[emsp14][deg]F across the commercial packaged 
boiler (Point B to Point C); (section III.D.2).
    19. DOE seeks additional comments, data, and analysis concerning 
thermal efficiency test measurement uncertainty (section III.D.2).
    20. DOE seeks comment regarding the current prevalence of using 
recirculating loops in testing; specifically, DOE requests comment 
about the kinds of commercial packaged boilers utilizing recirculation 
loops and the conditions at which these commercial packaged boilers and 
recirculating loops operate (section III.D.4).
    21. DOE seeks further comments, data, and information concerning 
the capabilities of test laboratories, particularly in light of the 
specific proposed conditions contained in this NOPR (section III.D.4).
    22. DOE seeks comments, data, and information about room ambient 
relative humidity, whether the proposed constraints are appropriate, 
and if not, what are appropriate constraints on room ambient relative 
humidity when testing commercial packaged boilers (section III.E).
    23. DOE seeks comment, data, and information about the 
aforementioned proposed room ambient temperatures, whether the proposed 
constraints are appropriate and if not, what are appropriate 
constraints on room ambient temperature (section III.E)
    24. DOE seeks comments based upon the proposed changes to the steam 
riser, header, and return water loop requirements (section III.F).
    25. DOE seeks comments regarding the specification of burners for 
oil-fired commercial packaged boilers (section III.F).
    26. DOE seeks additional comment, and particularly data, about 
whether the oxygen combustion analyzer produces equivalent combustion 
efficiencies to the carbon monoxide (CO) and carbon dioxide 
(CO2) calculations provided by ANSI/AHRI Standard 1500-2015 
and BTS-2000 (section III.F).
    27. DOE seeks comment on the proposal to require digital data 
acquisition (section III.F).
    28. DOE seeks comment as to the proposed clarifications in set up 
and instrumentation (section III.F).
    29. DOE seeks comment regarding its proposed definition and 
methodology for measuring and verifying fuel input rate and steady-
state (section III.G).
    30. DOE seeks comment on its proposed clerical corrections and 
clarifications (section III.H).
    31. DOE seeks comments, as well as sample stack temperature data, 
sample calculations and estimates of the impact of the stack 
temperature adjustment methodology (section III.I.1).
    32. DOE seeks comment regarding its proposed provision to conduct 
enforcement testing in both steam mode and hot water mode for those 
commercial packaged boilers capable of producing both and using either 
result in determining noncompliance with energy conservation standards. 
(section III.I.1)
    33. DOE seeks further comment concerning part-load testing (section 
III.I.2).
    34. DOE seeks comment on whether the proposed test procedure 
changes will have a significant impact on a substantial number of small 
entities (section IV.B).

VI. Approval of the Office of the Secretary

    The Secretary of Energy has approved publication of this notice of 
proposed rulemaking.

List of Subjects

10 CFR Part 429

    Administrative practice and procedure, Confidential business 
information, Energy conservation, Household appliances, Imports, 
Incorporation by reference, Reporting and recordkeeping requirements.

10 CFR Part 431

    Administrative practice and procedure, Confidential business 
information, Energy conservation, Incorporation by reference, Reporting 
and recordkeeping requirements, Test procedures.

    Issued in Washington, DC, on February 22, 2016.
Kathleen B. Hogan,
Deputy Assistant Secretary for Energy Efficiency, Energy Efficiency and 
Renewable Energy.

    For the reasons stated in the preamble, DOE proposes to amend parts 
429 and 431 of chapter II, subchapter D of title 10, Code of Federal 
Regulations, as set forth below:

PART 429--CERTIFICATION, COMPLIANCE, AND ENFORCEMENT FOR CONSUMER 
PRODUCTS AND COMMERCIAL AND INDUSTRIAL EQUIPMENT

0
1. The authority citation for part 429 continues to read as follows:

    Authority: 42 U.S.C. 6291-6317.

0
2. Section 429.4 is amended by adding paragraph (c)(2) to read as 
follows:


Sec.  429.4  Materials incorporated by reference.

* * * * *
    (c) * * *
    (2) AHRI Standard 1500-2015, ``2015 Standard for Performance Rating 
of Commercial Space Heating Boilers,'' approved November 28, 2014: 
Section 3 ``Definitions;''; Section 5 ``Rating Requirements;'' Appendix 
C ``Methods of Testing for Rating Commercial Space Heating Boilers--
Normative,'' excluding Figures C5 and C7; Appendix D

[[Page 14667]]

``Properties of Saturated Steam--Normative;'' and Appendix E 
``Correction Factors for Heating Values of Fuel Gases--Normative;'' IBR 
approved for Sec.  429.60.
* * * * *
0
3. Section 429.11 is amended by revising paragraph (b) to read as 
follows:


Sec.  429.11  General sampling requirements for selecting units to be 
tested.

* * * * *
    (b) The minimum number of units tested shall be no less than two, 
except where:
    (1) A different minimum limit is specified in Sec. Sec.  429.14 
through 429.65; or
    (2) Only one unit of the basic model is produced, in which case, 
that unit must be tested and the test results must demonstrate that the 
basic model performs at or better than the applicable standard(s). If 
one or more units of the basic model are manufactured subsequently, 
compliance with the default sampling and representations provisions is 
required.
0
4. Section 429.60 is amended by:
0
a. Revising paragraph (a)(1)(i);
0
b. Adding paragraphs (a)(3), (4), and (5);
0
c. Revising paragraph (b)(2); and
0
d. Adding paragraphs (b)(3)(iii) and (b)(5).
    The revisions and additions read as follows:


Sec.  429.60  Commercial packaged boilers.

    (a) * * *
    (1) * * *
    (i) If the represented value is determined through testing, the 
general requirements of Sec.  429.11 are applicable, except that, if 
the represented value is determined through testing pursuant to Sec.  
431.86(c) of this chapter, the number of units selected for testing may 
be one; and
* * * * *
    (3) The representative value of fuel input rate of a basic model 
reported in accordance with paragraph (b)(2) of this section must be 
either the mean of the fuel input rate(s) measured for each tested unit 
of the basic model and determined in accordance with the test procedure 
in Sec.  431.86 of this chapter, or the value determined with an AEDM, 
and rounded to the nearest 1,000 Btu/h.
    (4) The representative value of thermal or combustion efficiency of 
a basic model reported in accordance with paragraph (b)(2) of this 
section must be either the mean of the thermal or combustion efficiency 
measured for each tested unit of the basic model and determined in 
accordance with the test procedure in Sec.  431.86 of this chapter, or 
the value determined with an AEDM, and rounded to the nearest tenth of 
one percent.
    (5) For a model of commercial packaged boiler capable of supplying 
either steam or hot water, representative values for steam mode must be 
based on performance in steam mode and representative values for hot 
water mode must be based on either the efficiency in hot water mode or 
steam mode in accordance with the test procedure in Sec.  431.86 of 
this chapter and the provisions of this section.
    (b) * * *
    (2) Pursuant to Sec.  429.12(b)(13), a certification report must 
include the following public, equipment-specific information:
    (i) The manufacturer (including brand, if applicable) and model 
number of the burner;
    (ii) The fuel input rate in British thermal units per hour (Btu/h) 
rounded to the nearest 1,000 Btu/h;
    (iii) The representative value of combustion efficiency in percent 
(%) to the nearest tenth of one percent or the representative value of 
thermal efficiency in percent (%) to the nearest one tenth of one 
percent, as specified in Sec.  431.87 of this chapter; and
    (iv) For a basic model of commercial packaged boiler that cannot be 
tested using the standard inlet temperatures required in appendix A to 
subpart E of part 431 of this chapter, the average inlet water 
temperature measured at Point B (in Figure C9 of ANSI/AHRI Standard 
1500-2015) (incorporated by reference, see Sec.  429.4) at which the 
model was tested.
    (3) * * *
    (iii) For basic models of commercial packaged boilers that have a 
certified fuel input rate greater than 5,000,000 Btu/h, a declaration 
about whether the certified rating is based on testing conducted 
pursuant to Sec.  431.86(c) of this chapter.
* * * * *
    (5) Any field tested (pursuant to Sec.  431.86(c) of this chapter) 
basic model of a commercial packaged boiler that has not been 
previously certified through testing or an AEDM must be certified 
within 15 days of commissioning.
* * * * *
0
5. Section 429.70 is amended by adding paragraph (c)(2)(iii)(D) to read 
as follows:


Sec.  429.70  Alternative methods for determining energy efficiency and 
energy use.

* * * * *
    (c) * * *
    (2) * * *
    (iii) * * *
    (D) An AEDM that is validated based on test results obtained from 
one or more field tests (commercial packaged boilers only) can only be 
used to certify the performance of basic models of commercial packaged 
boilers with a certified fuel input rate greater than 5,000,000 Btu/h.
* * * * *
0
6. Section 429.110 is amended by:
0
a. Revising paragraph (a)(3); and
0
b. Adding paragraph (c)(1)(iii).
    The addition and revision reads as follows:


Sec.  429.110  Enforcement testing.

    (a) * * *
    (3) Testing will be conducted at a lab accredited to the 
International Organization for Standardization (ISO)/International 
Electrotechnical Commission (IEC), ``General requirements `for the 
competence of testing and calibration laboratories,'' ISO/IEC 
17025:2005(E) (incorporated by reference; see Sec.  429.4). If testing 
cannot be completed at an independent lab, DOE, at its discretion, may 
allow enforcement testing at a manufacturer's lab, so long as the lab 
is accredited to ISO/IEC 17025:2005(E) and DOE representatives witness 
the testing. In addition, for commercial packaged boilers with 
certified fuel input rate greater than 5,000,000 Btu/h, DOE, at its 
discretion, may allow enforcement testing of a commissioned commercial 
packaged boiler in the location in which it was commissioned for use, 
pursuant to the test provisions at Sec.  431.86(c) of this chapter.
* * * * *
    (c) * * *
    (1) * * *
    (iii) Of basic models of previously commissioned commercial 
packaged boilers with a certified fuel input rate greater than 
5,000,000 Btu/h, DOE may test a sample of at least one unit in the 
location in which it was commissioned for use.
* * * * *
0
7. Section 429.134 is amended by adding paragraph (k) to read as 
follows:


Sec.  429.134  Product-specific enforcement provisions.

* * * * *
    (k) Commercial packaged boilers--(1) Verification of fuel input 
rate. The fuel input rate of each tested unit will be measured pursuant 
to the test requirements of Sec.  431.86 of this chapter. The results 
of the measurement(s) will be compared to the value of fuel input rate 
certified by the manufacturer. The certified fuel input rate will be

[[Page 14668]]

considered valid only if the measurement(s) (either the measured fuel 
input rate for a single unit sample or the average of the measured fuel 
input rates for a multiple unit sample) is within two percent of the 
certified fuel input rate.
    (i) If the representative value of fuel input rate is found to be 
valid, the certified fuel input rate will serve as the basis for 
determination of the appropriate equipment class(es) and the mean 
measured fuel input rate will be used as the basis for calculation of 
combustion and/or thermal efficiency for the basic model.
    (ii) If the representative value of fuel input rate is not within 
two percent of the certified fuel input rate, DOE will first attempt to 
increase or decrease the gas pressure within the range specified in 
manufacturer's installation and operation manual shipped with the 
commercial packaged boiler being tested (or, if not provided in the 
manual, in supplemental instructions provided by the manufacturer 
pursuant to Sec.  429.60(b)(4)) to achieve the certified fuel input 
rate (within two percent). If the fuel input rate is still not within 
two percent of the certified fuel input rate, DOE will attempt to 
modify the gas inlet orifice. If the fuel input rate still is not 
within two percent of the certified fuel input rate, the mean measured 
fuel input rate will serve as the basis for determination of the 
appropriate equipment class(es) and calculation of combustion and/or 
thermal efficiency for the basic model.
    (2) Models capable of producing both hot water and steam. For a 
model of commercial packaged boiler that is capable of producing both 
hot water and steam, DOE may measure the thermal or combustion 
efficiency as applicable pursuant to Sec.  431.87 of this chapter for 
steam and/or hot water modes. DOE will evaluate compliance based on the 
measured thermal or combustion efficiency in steam and hot water modes, 
independently.

PART 431--ENERGY EFFICIENCY PROGRAM FOR CERTAIN COMMERCIAL AND 
INDUSTRIAL EQUIPMENT

0
8. The authority citation for part 431 continues to read as follows:

    Authority: 42 U.S.C. 6291-6317.

0
9. Section 431.82 is amended by:
0
a. Revising the definitions for ``Combustion efficiency'' and 
``Commercial packaged boiler'';
0
b. Adding in alphabetical order definitions for ``Field-constructed,'' 
and ``Fuel input rate'';
0
c. Revising the definition for ``Packaged boiler''; and
0
d. Removing the definitions for ``Packaged high pressure boiler'' and 
``Packaged low pressure boiler''.
    The revisions and additions read as follows:


Sec.  431.82  Definitions concerning commercial packaged boilers.

* * * * *
    Combustion efficiency for a commercial packaged boiler is a 
measurement of how much of the fuel input energy is converted to useful 
heat in combustion and is calculated as 100 percent minus percent flue 
loss, as determined with the test procedures prescribed under Sec.  
431.86.
    Commercial packaged boiler means a packaged boiler that meets all 
of the following criteria:
    (1) Has fuel input rate of 300,000 Btu/h or greater;
    (2) Is, to any significant extent, distributed in commerce for 
space conditioning and/or service water heating in buildings but does 
not meet the definition of ``hot water supply boiler'' in this part;
    (3) Does not meet the definition of ``field-constructed'' in this 
section; and
    (4) Is designed to:
    (i) Operate at a steam pressure at or below 15 psig;
    (ii) Operate at or below a water pressure of 160 psig and water 
temperature of 250[emsp14][deg]F; or
    (iii) Operate at the conditions specified in both paragraphs (4)(i) 
and (ii) of this definition.
* * * * *
    Field-constructed means custom-designed equipment that requires 
welding of structural components in the field during installation; for 
the purposes of this definition, welding does not include attachment 
using mechanical fasteners or brazing; any jackets, shrouds, venting, 
burner, or burner mounting hardware are not structural components.
* * * * *
    Fuel input rate for a commercial packaged boiler means the maximum 
rate at which the commercial packaged boiler uses energy and is 
determined using test procedures prescribed under Sec.  431.86.
* * * * *
    Packaged boiler means a boiler that is shipped complete with 
heating equipment, mechanical draft equipment, and automatic controls 
and is usually shipped in one or more sections. If the boiler is 
shipped in more than one section, the sections may be produced by more 
than one manufacturer, and may be originated or shipped at different 
times and from more than one location.
* * * * *
0
10. Section 431.85 is amended by revising paragraph (b) to read as 
follows:


Sec.  431.85  Materials incorporated by reference.

* * * * *
    (b) AHRI. Air-Conditioning, Heating, and Refrigeration Institute, 
2111 Wilson Blvd., Suite 500, Arlington, VA 22201, (703) 524-8800, or 
go to: http://www.ahrinet.org.
    (1) AHRI Standard 1500-2015, ``2015 Standard for Performance Rating 
of Commercial Space Heating Boilers,'' approved November 28, 2014: 
Section 3 ``Definitions;''; Section 5 ``Rating Requirements;'' Appendix 
C ``Methods of Testing for Rating Commercial Space Heating Boilers--
Normative,'' excluding Figures C5 and C7; Appendix D ``Properties of 
Saturated Steam--Normative;'' and Appendix E ``Correction Factors for 
Heating Values of Fuel Gases--Normative;'' IBR approved for appendix A 
to subpart E.
    (2) [Reserved]
0
11. Section 431.86 is revised to read as follows:


Sec.  431.86  Uniform test method for the measurement of energy 
efficiency of commercial packaged boilers.

    (a) Scope. This section provides test procedures, pursuant to the 
Energy Policy and Conservation Act (EPCA), as amended, which must be 
followed for measuring the combustion efficiency and/or thermal 
efficiency of a gas- or oil-fired commercial packaged boiler.
    (b) Testing and calculations. Determine the thermal efficiency or 
combustion efficiency of covered commercial packaged boilers by 
conducting the appropriate test procedure(s) indicated in Table 1 of 
this section.

[[Page 14669]]



          Table 1 to Sec.   431.86--Test Requirements for Commercial Packaged Boiler Equipment Classes
----------------------------------------------------------------------------------------------------------------
                                                                                                Test procedure
                                                                                               (corresponding to
                                                        Fuel Input Rate        Standards           standards
         Equipment Type               Subcategory            Btu/h        efficiency  rating  efficiency  metric
                                                                            (Sec.   431.87)    required  by Sec.
                                                                                                    431.87)
----------------------------------------------------------------------------------------------------------------
Hot Water.......................  Gas-fired.........  >=300,000 and       Thermal Efficiency  Appendix A,
                                                       <=2,500,000.                            Section 2.
Hot Water.......................  Gas-fired.........  >2,500,000........  Combustion          Appendix A,
                                                                           Efficiency.         Section 3.
Hot Water.......................  Oil-fired.........  >=300,000 and       Thermal Efficiency  Appendix A,
                                                       <=2,500,000.                            Section 2.
Hot Water.......................  Oil-fired.........  >2,500,000........  Combustion          Appendix A,
                                                                           Efficiency.         Section 3.
Steam...........................  Gas-fired (all*)..  >=300,000 and       Thermal Efficiency  Appendix A,
                                                       <=2,500,000.                            Section 2.
Steam...........................  Gas-fired (all*)..  >2,500,000 and      Thermal Efficiency  Appendix A,
                                                       <=5,000,000.                            Section 2.
                                                      >5,000,000........  Thermal Efficiency  Appendix A,
                                                                                               Section 2.
                                                                                              OR
                                                                                              Appendix A,
                                                                                               Section 3 with
                                                                                               Section 2.4.3.2.
Steam...........................  Oil-fired.........  >=300,000 and       Thermal Efficiency  Appendix A,
                                                       <=2,500,000.                            Section 2.
Steam...........................  Oil-fired.........  >2,500,000 and      Thermal Efficiency  Appendix A,
                                                       <=5,000,000.                            Section 2.
                                                      >5,000,000........  Thermal Efficiency  Appendix A,
                                                                                               Section 2.
                                                                                              OR
                                                                                              Appendix A,
                                                                                               Section 3. with
                                                                                               Section 2.4.3.2.
----------------------------------------------------------------------------------------------------------------
* Product classes for commercial packaged boilers as of July 22, 2009 (74 FR 36355) distinguish between gas-
  fired natural draft and all other gas-fired (except natural draft). The test procedure indicated in Table 1
  applies to both of these equipment classes. If these equipment classes are amended, the test procedure will
  continue to apply as indicated in Table 1 to all gas-fired commercial packaged boilers.

    (c) Field tests. The field test provisions of appendix A may be 
used only to test a commissioned unit of commercial packaged boiler 
with fuel input rate greater than 5,000,000 Btu/h.
0
12. Section 431.87 is revised to read as follows:


Sec.  431.87  Energy conservation standards and their effective dates.

    (a) Each commercial packaged boiler listed in Table 1 of this 
section and manufactured on or after the effective date listed must 
meet the indicated energy conservation standard.

               Table 1 to Sec.   431.87--Commercial Packaged Boiler Energy Conservation Standards
----------------------------------------------------------------------------------------------------------------
                                                                                          Efficiency level--
           Equipment type                  Subcategory          Fuel input rate*      effective date:  March 2,
                                                                                                2012 *
----------------------------------------------------------------------------------------------------------------
Hot Water Commercial Packaged        Gas-fired.............  >=300,000 Btu/h and     80.0% ET.
 Boilers.                                                     <=2,500,000 Btu/h.
Hot Water Commercial Packaged        Gas-fired.............  >2,500,000 Btu/h......  82.0% EC.
 Boilers.
Hot Water Commercial Packaged        Oil-fired.............  >=300,000 Btu/h and     82.0% ET.
 Boilers.                                                     <=2,500,000 Btu/h.
Hot Water Commercial Packaged        Oil-fired.............  >2,500,000 Btu/h......  84.0% EC.
 Boilers.
Steam Commercial Packaged Boilers..  Gas-fired--all, except  >=300,000 Btu/h and     79.0% ET.
                                      natural draft.          <=2,500,000 Btu/h.
Steam Commercial Packaged Boilers..  Gas-fired--all, except  >2,500,000 Btu/h......  79.0% ET.
                                      natural draft.
Steam Commercial Packaged Boilers..  Gas-fired--natural      >=300,000 Btu/h and     77.0% ET.
                                      draft.                  <=2,500,000 Btu/h.
Steam Commercial Packaged Boilers..  Gas-fired--natural      >2,500,000 Btu/h......  77.0% ET.
                                      draft.
Steam Commercial Packaged Boilers..  Oil-fired.............  >=300,000 Btu/h and     81.0% ET.
                                                              <=2,500,000 Btu/h.
Steam Commercial Packaged Boilers..  Oil-fired.............  >2,500,000 Btu/h......  81.0% ET.
----------------------------------------------------------------------------------------------------------------
* ``Fuel Input Rate'' is the representative value of input (Btu/h) of the commercial packaged boiler model.
* Where EC is combustion efficiency and ET is thermal efficiency.

    (b) Each commercial packaged boiler listed in Table 2 of this 
section and manufactured on or after the effective date listed in Table 
2 of this section must meet the indicated energy conservation standard.

[[Page 14670]]



               Table 2 to Sec.   431.87--Commercial Packaged Boiler Energy Conservation Standards
----------------------------------------------------------------------------------------------------------------
                                                                                           Efficiency level--
           Equipment type                   Subcategory           Fuel input rate *     effective date: March 2,
                                                                                                 2022 *
----------------------------------------------------------------------------------------------------------------
Steam Commercial Packaged Boilers...  Gas-fired--natural       >=300,000 Btu/h and      79.0% ET.
                                       draft.                   <=2,500,000 Btu/h.
Steam Commercial Packaged Boilers...  Gas-fired--natural       >2,500,000 Btu/h.......  79.0% ET.
                                       draft.
----------------------------------------------------------------------------------------------------------------
* ``Fuel Input Rate'' is the representative value of input (Btu/h) of the commercial packaged boiler model
* Where ET is thermal efficiency.

0
13. Add appendix A to subpart E of part 431 to read as follows:

Appendix A to Subpart E of Part 431--Uniform Test Method for the 
Measurement of Thermal Efficiency of Commercial Packaged Boilers.

    Note: Prior to [DATE 360 DAYS AFTER PUBLICATION OF THE FINAL 
RULE IN THE Federal Register], manufacturers must make any 
representations with respect to the energy use or efficiency of 
commercial packaged boilers in accordance with the results of 
testing pursuant to appendix A to subpart E of part 431 or the test 
procedures as they appeared in 10 CFR 431.86, revised as of January 
1, 2016. After [DATE 360 DAYS AFTER DATE OF PUBLICATION OF THE FINAL 
RULE], manufacturers must make any representations with respect to 
energy use or efficiency in accordance with the results of testing 
pursuant to this appendix.

1. Definitions

    For purposes of this appendix, the Department of Energy 
incorporates by reference the definitions established in section 3 
of the American National Standards Institute (ANSI) and Air-
Conditioning, Heating, and Refrigeration Institute (AHRI) Standard 
1500, ``2015 Standard for Performance Rating of Commercial Space 
Heating Boilers,'' beginning with 3.1 and ending with 3.35 
(incorporated by reference, see Sec.  431.85; hereafter ``ANSI/AHRI 
Standard 1500-2015''), excluding section 3.23, ``Input Rating''; 
section 3.24, ``Net Rating''; and section 3.26, ``Published 
Rating,'' and section 3.26.1 ``Standard Rating.'' In cases where 
there is a conflict, the language of the test procedure in this 
appendix takes precedence over ANSI/AHRI Standard 1500-2015.
    1.1. In all incorporated sections of ANSI/AHRI Standard 1500-
2015, references to the manufacturer's ``specifications,'' 
``recommendations,'' ``directions,'' or ``requests'' mean the 
manufacturer's instructions in the installation and operation manual 
shipped with the commercial packaged boiler being tested or in 
supplemental instructions provided by the manufacturer pursuant to 
Sec.  429.60(b)(4) of this chapter. For parameters or considerations 
not specified in this appendix, refer to the manual shipped with the 
commercial packaged boiler. Should the manual shipped with the 
commercial packaged boiler not provide the necessary information, 
refer to the supplemental instructions for the basic model pursuant 
to Sec.  429.60(b)(4) of this chapter. The supplemental instructions 
provided pursuant to Sec.  429.60(b)(4) of this chapter do not 
replace or alter any requirements in this appendix nor do they 
override the manual shipped with the commercial packaged boiler. In 
cases where these supplemental instructions conflict with any 
instructions or provisions provided in the manual shipped with the 
commercial packaged boiler, use the manual shipped with the 
commercial packaged boiler.
    1.2. Unless otherwise noted, in all incorporated sections of 
ANSI/AHRI Standard 1500-2015, the term ``boiler'' means a commercial 
packaged boiler as defined in Sec.  431.82.

2. Thermal Efficiency Test

    2.1. Test Setup.
    2.1.1. Instrumentation. Use instrumentation meeting the minimum 
requirements found in Table C1 of Appendix C of ANSI/AHRI Standard 
1500-2015 (incorporated by reference, see Sec.  431.85).
    2.1.2. Data collection and sampling. Unless otherwise specified 
in Table 2.1 to this appendix, obtain all data digitally and conduct 
sampling at a rate not less frequently than once per 30 seconds. 
Digital data representing a flow, rate, or flux must be integrated 
over 15-minute periods (pursuant to Table 2.1 to this appendix) with 
the resulting values recorded. All other digital data must be 
averaged over 15-minute periods with the resulting values recorded. 
Table 2.1 to this appendix specifies the data recording interval for 
all relevant measured quantities and replaces Table C4 of Appendix C 
of ANSI/AHRI Standard 1500-2015.

[[Page 14671]]

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    2.1.3. Instrument Calibration. Instruments must be calibrated at 
least once per year and a calibration record containing the date of 
calibration and the method of calibration must be maintained as part 
of the data underlying each basic model certification, pursuant to 
Sec.  429.71 of this chapter. Combustion measurement equipment 
(instruments listed in the ``Gas Chemistry'' row of Table C1 in 
ANSI/AHRI Standard 1500-2015) must be calibrated using standard 
gases with purities of greater than 99.9995 percent for all 
constituents analyzed.
    2.1.4. Test Setup and Apparatus. Set up the commercial packaged 
boiler for thermal efficiency testing according to the provisions of 
section C2 of Appendix C of ANSI/AHRI Standard 1500-2015.
    2.1.4.1. For tests of oil-fired commercial packaged boilers, 
determine the weight of

[[Page 14672]]

fuel consumed using one of the methods specified in paragraph 
2.1.4.1.1. or 2.1.4.1.2. of this appendix:
    2.1.4.1.1. If using a scale, determine the weight of fuel 
consumed as the difference between the weight of the oil vessel 
before and after each measurement period, as specified in paragraph 
2.1.4.1.3.1. or 2.1.4.1.3.2. of this appendix, determined using a 
scale meeting the accuracy requirements of Table C1 of Appendix C of 
ANSI/AHRI Standard 1500-2015.
    2.1.4.1.2. If using a flow meter, first determine the volume of 
fuel consumed as the total volume over the applicable measurement 
period as specified in paragraph 2.1.4.1.3.1. or 2.1.4.1.3.2. of 
this appendix and as measured by a flow meter meeting the accuracy 
requirements of Table C1 of Appendix C of ANSI/AHRI Standard 1500-
2015 upstream of the oil inlet port of the commercial packaged 
boiler. Then determine the weight of fuel consumed by multiplying 
the total volume of fuel over the applicable measurement period by 
the density of oil, in pounds per gallon, as determined pursuant to 
C3.2.1.1.3. of Appendix C of ANSI/AHRI Standard 1500-2015.
    2.1.4.1.3. The applicable measurement period for the purposes of 
determining fuel input rate must be as specified in section 
2.1.4.1.3.1. of this appendix for the ``Warm-Up Period'' or section 
2.1.4.1.3.2. of this appendix for the ``Test Period.''
    2.1.4.1.3.1. For the purposes of confirming steady-state 
operation during the ``Warm-Up Period,'' the measurement period must 
be 15 minutes and tT in equation C2 in section C7.2.3.1 
of Appendix A of ANSI/AHRI Standard 1500-2015 must be 0.25 hours to 
determine fuel input rate.
    2.1.4.1.3.2. For the purposes of determining thermal efficiency 
during the ``Test Period,'' the measurement period and tT 
are as specified in section C4.1.1.2.3 of Appendix C of ANSI/AHRI 
Standard 1500-2015.
    2.1.4.2 For tests of gas-fired commercial packaged boilers, 
install a volumetric gas meter meeting the accuracy requirements of 
Table C1 of Appendix C of ANSI/AHRI Standard 1500-2015 upstream of 
the gas inlet port of the commercial packaged boiler. Record the 
accumulated gas volume consumed for each applicable measurement 
period. Use equation C7.2.3.2. of Appendix C of ANSI/AHRI Standard 
1500-2015 to calculate fuel input rate.
    2.1.4.2.1. The applicable measurement period for the purposes of 
determining fuel input rate must be as specified in section 
2.1.4.2.1.1. of this appendix for the ``Warm-Up Period'' and 
2.1.4.2.1.2. of this appendix for the ``Test Period.''
    2.1.4.2.1.1. For the purposes of confirming steady-state 
operation during the ``Warm-Up Period,'' the measurement period must 
be 15 minutes and tT in equation C2 in section C7.2.3.1 
of Appendix C of ANSI/AHRI Standard 1500-2015 must be 0.25 hours to 
determine fuel input rate.
    2.1.4.2.1.2. For the purposes of determining thermal efficiency 
during the ``Test Period,'' the measurement period and tT 
are as specified in section C4.1.1.2.3 of Appendix C of ANSI/AHRI 
Standard 1500-2015.
    2.1.5. Additional Requirements for Outdoor Commercial Packaged 
Boilers. If the manufacturer provides more than one outdoor venting 
arrangement, the outdoor commercial packaged boiler (as defined in 
section 3.2.6 of ANSI/AHRI Standard 1500-2015; must be tested with 
the shortest total venting arrangement as measured by adding the 
straight lengths of venting supplied with the equipment. If the 
manufacturer does not provide an outdoor venting arrangement, 
install the outdoor commercial packaged boiler venting consistent 
with the procedure specified in section C2.2 of Appendix C of ANSI/
AHRI Standard 1500-2015.
    2.1.6. Additional Requirements for Steam Tests. In addition to 
the provisions of section C2 of Appendix C of ANSI/AHRI Standard 
1500-2015, the following requirements apply for steam tests.
    2.1.6.1. Set up steam piping according to section C2.3 of 
Appendix C of ANSI/AHRI Standard 1500-2015 and using the following 
general instructions:
    2.1.6.1.1. Figures C5 and C7 are prohibited from use and are not 
to be used to comply with the test procedure.
    2.1.6.1.2. For piping above the water level specified in the 
installation and operation manual shipped with the commercial 
packaged boiler, or in manufacturer's supplemental instructions 
(pursuant to Sec.  429.60(b)(4) of this chapter), if a reduction in 
the piping diameter is necessary, reduce the vertical portion of the 
steam condensate return pipe diameter to no less than one half of 
the riser pipe diameter.
    2.1.6.1.3. Insulate all steam piping from the commercial 
packaged boiler to the steam separator, and extend insulation at 
least one foot (1 ft.) beyond the steam separator, using insulation 
meeting the requirements specified in Table 2.2. of this appendix.

                           Table 2.2. to Appendix A to Subpart E of Part 431--Minimum Piping Insulation Thickness Requirements
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                          Insulation  conductivity                              Nominal  pipe size
                                                      -----------------------------------------------------------------------------------------------------
                                                        Conductivity
          Fluid  temperature  range  [deg]F             BTUxin/  (h x    Mean rating                             1 to < 1\1/  1\1/2\ to <
                                                           ft\2\ x       temperature      inches         <1           2\           4         4 to <8
                                                           [deg]F)         [deg]F
------------------------------------------------------------------------------------------------------------------------------------------------------ ----
201 [deg]F-250 [deg]F................................       0.27-0.30             150          2.5          2.5          2.5          3.0          3.0
141 [deg]F-200 [deg]F................................       0.25-0.29             125          1.5          1.5          2.0          2.0          2.0
105 [deg]F-140 [deg]F................................       0.22-0.28             100          1.0          1.0          1.5          1.5          1.5
--------------------------------------------------------------------------------------------------------------------------------------------------------

    2.1.6.1.4. If a separator is used, piping must pitch downward to 
the separator at a rate of at least \1/4\ inch per foot of pipe 
length.
    2.1.6.2. If the pipe diameters of the header and return loop are 
not specified in the installation and operation manual shipped with 
the commercial packaged boiler or in supplemental testing 
instructions provided in the unit's basic model certification report 
(pursuant to Sec.  429.60 of this chapter), then make the header 
pipe diameter equal to the commercial packaged boiler's steam take-
off fitting pipe diameter. Do not reduce the diameter in any 
horizontal pipe. For commercial packaged boilers with multiple steam 
risers, do not reduce the diameter in any horizontal header pipe, 
and ensure that the cross-sectional area of the header is not less 
than 80 percent of the total cross-sectional area of the risers.
    2.1.6.3. If the height of the header above the water level is 
not specified by the installation and operation manual shipped with 
the commercial packaged boiler or in supplemental testing 
instructions provided in the unit's basic model certification report 
(pursuant to Sec.  429.60 of this chapter), then ensure that the 
height of the header above the water level is not less than the 
larger of 24 inches or 6 times the header nominal pipe diameter as 
defined in paragraph 2.1.6.2. of this appendix.
    2.1.6.4. If the minimum distance between the last vertical steam 
take-off and the condensate return pipe is not specified in the 
installation and operation manual shipped with the commercial 
packaged boiler or in the manufacturer's supplemental testing 
instructions provided in the unit's basic model certification report 
(pursuant to Sec.  429.60 of this chapter), then the distance 
between the vertical steam take-off leading to the water separator 
and the elbow leading to the condensate return pipe must be a 
minimum of three (3) header pipe diameters.
    2.1.6.5. A vented water seal must be located between the drain 
and the separator. Insulate the separator and the piping connecting 
it to the commercial packaged boiler to prevent the heat loss from 
separator and piping, using the minimum piping insulation 
requirements specified in Table 2.2. of this appendix. A temperature 
sensing device must be installed in the insulated steam piping prior 
to the water separator if the commercial packaged boiler produces 
superheated steam.
    2.1.6.6. Water entrained in the steam and water condensing 
within the steam piping must be collected and used to calculate the

[[Page 14673]]

quality of steam during the ``Test Period.'' Steam condensate must 
be collected and measured using either a cumulative (totalizing) 
flow rate or by measuring the mass of the steam condensate. 
Instrumentation used to determine the amount of steam condensate 
must meet the requirements identified in Table C1 in Appendix C of 
ANSI/AHRI Standard 1500-2015.
    2.1.6.7. All steam commercial packaged boiler setups must 
include a steam condensate return pipe as shown in Figures C6 and C8 
of ANSI/AHRI Standard 1500-2015; labeled ``Return Loop 
Connection''). This setup may also be used for commercial packaged 
boilers with multiple or single steam risers (take-offs) from the 
commercial packaged boiler.
    2.1.6.8. Section C2.7.2.2.2 of ANSI/AHRI Standard 1500-2015 is 
not to be used for water meter calibration.
    2.1.7. Additional Requirements for Water Tests. In addition to 
the provisions of section C2 of Appendix C of ANSI/AHRI Standard 
1500-2015, the following requirements apply for water tests.
    2.1.7.1 Insulate all water piping between the commercial 
packaged boiler and the location of the temperature measuring 
equipment, including one foot (1 ft.) beyond the sensor, using 
insulation meeting the requirements specified in Table 2.2. of this 
appendix.
    2.1.7.2 In addition to the temperature measuring device at Point 
A in Figure C9 of ANSI/AHRI Standard 1500-2015, install a 
temperature measuring device at Point B of the same figure.
    2.2. Test Conditions.
    2.2.1. General. Use the test conditions from section 5 and 
section C3 of Appendix C of ANSI/AHRI Standard 1500-2015 for thermal 
efficiency testing but do not use section 5.1, 5.2, 5.3.5, 5.3.8, 
5.3.9, or C3.1.3 of ANSI/AHRI Standard 1500-2015.
    2.2.2. Burners for Oil-Fired Commercial Packaged Boilers. In 
addition to section C3.3 of Appendix C of ANSI/AHRI Standard 1500-
2015, the following applies: for oil-fired commercial packaged 
boilers, test the unit with the particular make and model of burner 
as certified by the manufacturer. If multiple burners are specified 
in the certification report for that basic model, then use any of 
the listed burners for testing.
    2.2.3. Non-condensing Commercial Packaged Boiler Water 
Temperatures. For tests of non-condensing boilers (as defined in 
section 3.2.5 of ANSI/AHRI Standard 1500-2015, maintain the outlet 
temperature measured at Point C in Figure C9 at 180[emsp14][deg]F 
 1[emsp14][deg]F and maintain the inlet temperature 
measured at Point B at 140[emsp14][deg]F  
1[emsp14][deg]F during the ``Warm-up Period'' and ``Test Period'' as 
indicated by 30-second interval data pursuant to Table 2.1. of this 
appendix. If the commercial packaged boiler cannot be tested at the 
standard inlet water temperature of 140[emsp14][deg]F  
1[emsp14][deg]F, as indicated in the manufacturer literature, test 
the equipment at the temperature closest to the standard 
140[emsp14][deg]F  1[emsp14][deg]F that the equipment is 
capable of operating, as indicated in the manufacturer literature. 
Use the inlet temperature measured at Point A in Figure C9 of 
Appendix C of ANSI/AHRI Standard 1500-2015 for calculation of 
thermal efficiency.
    2.2.4. Condensing Commercial Packaged Boiler Water Temperatures. 
For tests of condensing boilers (as defined in section 3.2.2 of 
ANSI/AHRI Standard 1500-2015); maintain the outlet temperature 
measured at Point C in Figure C9 of Appendix C of ANSI/AHRI Standard 
1500-2015 to 120[emsp14][deg]F  1[emsp14][deg]F, and 
maintain the commercial packaged boiler inlet temperature at Point B 
to 80[emsp14][deg]F  1[emsp14][deg]F during the ``Warm-
up Period'' and ``Test Period'' as indicated by 30-second interval 
data pursuant to Table 2.1. of this appendix. If the commercial 
packaged boiler cannot be tested at the standard inlet water 
temperature of 80[emsp14][deg]F  1[emsp14][deg]F, as 
indicated in the manufacturer literature, test the equipment at the 
temperature closest to the standard 80[emsp14][deg]F  
1[emsp14][deg]F that the equipment is capable of operating, as 
indicated in the manufacturer literature. Use the inlet temperature 
measured at Point A in Figure C9 of Appendix C of ANSI/AHRI Standard 
1500-2015 for calculation of thermal efficiency.
    2.2.5 Air Temperature. Maintain ambient room temperature at 
75[emsp14][deg]F  5[emsp14][deg]F at all times during 
the ``Warm-up Period'' and ``Test Period'' (as described in section 
C4 of Appendix C of ANSI/AHRI Standard 1500-2015; as indicated by 
30-second interval data pursuant to Table 2.1. of this appendix. The 
ambient room temperature may not differ by more than  
2[emsp14][deg]F from the average ambient room temperature during the 
entire ``Test Period'' at any reading.
    2.2.6. Ambient Humidity. Maintain ambient room relative humidity 
at 60  5 percent relative humidity at all times during 
both the ``Warm-up Period'' and ``Test Period'' (as described in 
section C4 of Appendix C of ANSI/AHRI Standard 1500-2015; as 
indicated by 30-second interval data pursuant to Table 2.1. of this 
appendix.
    2.3. Test Method.
    2.3.1. General. Conduct the thermal efficiency test as 
prescribed in section C4.1 of Appendix C of ANSI/AHRI Standard 1500-
2015.
    2.3.1.1. Do not use section C4.1.1.1.2 of ANSI/AHRI Standard 
1500-2015. Instead, adjust oil or non-atmospheric gas to produce the 
required firebox pressure and CO2 or O2 
concentration in the flue gas, as described in section 5.3.1 of 
ANSI/AHRI Standard 1500-2015. Conduct steam tests with steam 
pressure at the pressure specified in the manufacturer literature 
shipped with the commercial packaged boiler or in the manufacturer's 
supplemental testing instructions pursuant to Sec.  429.60(b)(4) of 
this chapter, but not exceeding 15 psig. If no pressure is specified 
in the manufacturer literature shipped with the commercial packaged 
boiler or in the manufacturer's supplemental testing instructions 
(pursuant to Sec.  429.60(b)(4)) of this chapter, or if a range of 
operating pressures is specified, conduct testing at a steam 
pressure equal to atmospheric pressure. If necessary to maintain 
steam quality as required by section 5.3.7 of ANSI/AHRI Standard 
1500-2015, increase steam pressure in 1 psig increments by 
throttling with a valve beyond the separator until the test is 
completed and the steam quality requirements have been satisfied, 
but do not increase the steam pressure to greater than 15 psig.
    2.3.2. Steam Test Steady-State. Replace section C4.1.1.1.4 of 
ANSI/AHRI Standard 1500-2015 with the following: Ensure that a 
steady-state is reached by confirming that three consecutive 
readings have been recorded at 15-minute intervals that indicate 
that:
    2.3.2.1. The measured fuel input rate does not vary by more than 
 2 percent between any two readings; and
    2.3.2.2. The steam pressure varies by no more than  
5 percent between any two readings.
    2.3.3. Water Test Steady-State. Replace section C4.1.2.1.5 of 
ANSI/AHRI Standard 1500-2015 with the following: Ensure that a 
steady-state is reached by confirming that three consecutive 
readings have been recorded at 15-minute intervals that indicate 
that the measured fuel input rate does not vary by more than  2 percent between any two readings.
    2.3.4. Condensate Collection for Condensing Commercial Packaged 
Boilers. Collect condensate in a covered vessel so as to prevent 
evaporation.
    2.3.5. Total Fuel Input. In sections C4.1.1.2.3 and C4.1.2.2.3 
of ANSI/AHRI Standard 1500-2015, do not use the last sentence which 
reads: ``The total Heat Input measured during the Test Period shall 
be within  2% of the boiler Input Rating.''
    2.4. Calculations.
    2.4.1. General. To determine the thermal efficiency of 
commercial packaged boilers, use the calculation procedure for the 
thermal efficiency test specified in section C7 of Appendix C of the 
ANSI/AHRI Standard 1500-2015. For water tests as described in 
section C4.1.2 of ANSI/AHRI Standard 1500-2015, if a recirculating 
loop is used, use the average temperature during the ``Test Period'' 
measured at Point A for the inlet water temperature for all 
calculations.
    2.4.2. Use of Steam Properties Table. If the average measured 
temperature of the steam is higher than the value in Table D in 
Appendix D1 of ANSI/AHRI Standard 1500-2015 that corresponds to the 
average measured steam pressure, then use Table 2.3 of this appendix 
to determine the latent heat of superheated steam in (Btu/lb). Use 
linear interpolation for determining the latent heat of steam in 
Btu/lb if the measured steam pressure is between two values listed 
in Table D in Appendix D1 of ANSI/AHRI Standard 1500-2015 or in 
Table 2.3.

[[Page 14674]]

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[[Page 14675]]


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    2.4.3. Alternative Thermal Efficiency Calculation for Large 
Steam Commercial Packaged Boilers. To determine the thermal 
efficiency of commercial packaged boilers with a fuel input rate 
greater than 5,000,000 Btu/h according to the steam test (pursuant 
to section C4.1.1 of ANSI/AHRI Standard 1500-2015, either:
    2.4.3.1. Calculate the thermal efficiency of commercial packaged 
boiler models in steam mode in accordance with the provisions of 
section 2.4.1. of this appendix; or
    2.4.3.2. Measure and calculate combustion efficiency 
EffySS in steam mode according to section 3. Combustion 
Efficiency Test of this appendix and convert to thermal efficiency 
using the following equation:

EffyG + EffySS - 2.0

where EffyT is the thermal efficiency and 
EffySS is the combustion efficiency as defined in C6 of 
ANSI/AHRI Standard 1500-2015. The combustion efficiency 
EffySS is as calculated in section C7.2.14 of ANSI/AHRI 
Standard 1500-2015.
    2.4.4. Rounding. Round the final thermal efficiency value to 
nearest one tenth of one percent. Round fuel input rate to nearest 
1,000 Btu/h.

3. Combustion Efficiency Test.

    3.1. Test Setup.
    3.1.1. Instrumentation. Use instrumentation meeting the minimum 
requirements found in Table C1 of ANSI/AHRI Standard 1500-2015 
(incorporated by reference, see Sec.  431.85).
    3.1.2. Data collection and sampling. Unless otherwise specified, 
obtain all data digitally with the exception of measuring the weight 
of the combustion condensate and steam condensation, and conduct 
sampling at a rate not less than once per 30 seconds. Digital data 
representing a flow, rate, or flux must be integrated over 15-minute 
periods (pursuant to Table 3.1 of this appendix) with the resulting 
values recorded. All other digital data must be averaged over 15-
minute periods with the resulting values recorded. Table 3.1. of 
this appendix specifies the data recording interval for all relevant 
measured quantities and replaces Table C4 of Appendix C in ANSI/AHRI 
Standard 1500-2015.

[[Page 14676]]

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    3.1.3. Instrument Calibration. Instruments must be calibrated at 
least once per year and a record must be kept as part of the data 
underlying each basic model certification, pursuant to Sec.  429.71 
of this chapter, containing, at least, the date of calibration and 
the method of calibration. Combustion measurement equipment 
(instruments listed in the ``Gas Chemistry'' row of Table C1 in 
ANSI/AHRI Standard 1500-2015) must be calibrated using standard 
gasses with purities of greater than 99.9995 percent for all 
constituents analyzed.
    3.1.4. Test Setup and Apparatus. Set up the commercial packaged 
boiler for combustion efficiency testing according to the provisions 
of section C2 of Appendix C of ANSI/AHRI Standard 1500-2015.
    3.1.4.1. For tests of oil-fired commercial packaged boilers, 
determine the weight of fuel consumed using one of the methods 
specified in paragraph 3.1.4.1.1. or 3.1.4.1.2. of this appendix:
    3.1.4.1.1. If using a scale, determine the weight of fuel 
consumed as the difference between the weight of the oil vessel 
before and after each measurement period, as specified in paragraph 
3.1.4.1.3.1. or 3.1.4.1.3.2. of this appendix, determined using a 
scale meeting the accuracy requirements of Table C1 of ANSI/AHRI 
Standard 1500-2015.
    3.1.4.1.2. If using a flow meter, first determine the volume of 
fuel consumed as the total volume over the applicable measurement 
period, as specified in paragraphs 3.1.4.1.3.1. or 3.1.4.1.3.2. of 
this appendix, and as measured by a flow meter meeting the accuracy 
requirements of Table C1 of ANSI/AHRI Standard 1500-2015 upstream of 
the oil inlet port of the commercial packaged boiler. Then determine 
the weight of fuel consumed by multiplying the total volume of fuel 
over the applicable measurement period by the density of oil, in 
pounds per gallon, as determined pursuant to section C3.2.1.1.3. of 
ANSI/AHRI Standard 1500-2015.
    3.1.4.1.3. The applicable measurement period for the purposes of 
determining fuel input rate must be as specified in section 
3.1.4.1.3.1. of this appendix for the ``Warm-Up Period'' or 
3.1.4.1.3.2. of this appendix for the ``Test Period.''
    3.1.4.1.3.1. For the purposes of confirming steady-state 
operation during the ``Warm-Up Period,'' the measurement period must 
be 15 minutes and tT in equation C2 in section C7.2.3.1 
of ANSI/AHRI Standard 1500-2015 must be 0.25 hours to determine fuel 
input rate.
    3.1.4.1.3.2. For the purposes of determining combustion 
efficiency during the ``Test Period,'' the measurement period and 
tT are 0.5 hours pursuant to section 3.3.1.1. of section 
3. Combustion Efficiency of this appendix.
    3.1.4.2 For tests of gas-fired commercial packaged boilers, 
install a volumetric gas meter meeting the accuracy requirements of 
Table C1 of ANSI/AHRI Standard 1500-2015 upstream of the gas inlet 
port of the commercial packaged boiler. Record the accumulated gas 
volume consumed for each applicable measurement period. Use equation 
C7.2.3.2. of ANSI/AHRI Standard 1500-2015 to calculate fuel input 
rate.
    3.1.4.2.1. The applicable measurement period for the purposes of 
determining fuel input rate must be as specified in section 
3.1.4.2.1.1. of this appendix for the ``Warm-Up Period'' and 
3.1.4.2.1.2. of this appendix for the ``Test Period.''
    3.1.4.2.1.1. For the purposes of confirming steady-state 
operation during the ``Warm-Up Period,'' the measurement period must 
be 15 minutes and tT in equation C2 in section C7.2.3.1 
of ANSI/AHRI Standard 1500-2015 must be 0.25 hours to determine fuel 
input rate.
    3.1.4.2.1.2. For the purposes of determining combustion 
efficiency during the ``Test Period,'' the measurement period and 
tT are 0.5 hours pursuant to section 3.3.1.1. of this 
appendix.
    3.1.5. Additional Requirements for Outdoor Commercial Packaged 
Boilers. If the manufacturer provides more than one outdoor venting 
arrangement, the outdoor commercial packaged boiler (as defined in 
section 3.2.6 of ANSI/AHRI Standard 1500-2015; must be tested with 
the shortest total venting arrangement as measured by adding the 
straight lengths of venting supplied with the equipment.
    3.1.6. Additional Requirements for Field Tests.
    3.1.6.1 Field tests are exempt from the requirements of section 
C2.2 of Appendix C of ANSI/AHRI Standard 1500-2015. Measure the flue 
gas temperature according to section C2.5.1 of Appendix C of ANSI/
AHRI Standard 1500-2015 and the thermocouple grids identified in 
Figure C12 of ANSI/AHRI Standard 1500-2015, with the following 
modification: the thermocouple grid may be staggered vertically by 
up to 1.5 inches to allow the use of instrumented rods to be 
inserted through holes drilled in the venting.
    3.1.6.3. Field tests are exempt from the requirements of section 
C2.6.3 of Appendix C of ANSI/AHRI Standard 1500-2015.
    3.1.7. Additional Requirements for Water Tests. In addition to 
the provisions of section C2 of Appendix C of ANSI/AHRI Standard 
1500-2015 (incorporated by reference, see Sec.  431.85) and to the 
temperature measuring device at Point A in Figure C9 of ANSI/AHRI 
Standard 1500-2015, install a temperature

[[Page 14678]]

measuring device at Point B of the same figure.
    3.2. Test Conditions.
    3.2.1. General. Use the test conditions from sections 5 and C3 
of Appendix C of ANSI/AHRI Standard 1500-2015 for combustion 
efficiency testing but do not use section 5.1, 5.3.5, 5.3.7 
(excluded for field tests only), 5.3.8, 5.3.9, or C3.1.3 of ANSI/
AHRI Standard 1500-2015.
    3.2.2. Burners for Oil-Fired Commercial Packaged Boilers. In 
addition to section C3.3 of Appendix C of ANSI/AHRI Standard 1500-
2015, the following applies: for oil-fired commercial packaged 
boilers, test the unit with the particular make and model of burner 
as certified by the manufacturer. If multiple burners are specified 
in the certification report for that basic model, then use any of 
the listed burners for testing.
    3.2.3. Non-condensing Commercial Packaged Boiler Water 
Temperatures. For tests of non-condensing boilers (as defined in 
section 3.2.5 of ANSI/AHRI Standard 1500-2015; maintain the outlet 
temperature measured at Point C in Figure C9 to 180[emsp14][deg]F 
 1[emsp14][deg]F and maintain the inlet temperature 
measured at Point B at 140[emsp14][deg]F  
1[emsp14][deg]F during the ``Warm-up Period'' and ``Test Period'' as 
verified by 30-second interval data pursuant to Table 3.1. of this 
appendix. If the commercial packaged boiler cannot be tested at the 
standard inlet water temperature of 140[emsp14][deg]F  
1[emsp14][deg]F at Point B, as indicated in the manufacturer 
literature, test the equipment at the temperature closest to the 
standard 140[emsp14][deg]F  1[emsp14][deg]F that the 
equipment is capable of operating, as indicated in the manufacturer 
literature. Field tests are exempt from this requirement and instead 
must comply with the requirements of section 3.2.3.1 of this 
appendix.
    3.2.3.1. For field tests, the inlet temperature measured at 
Point B in Figure C9 and the outlet temperature measured and Point C 
in Figure C9 of ANSI/AHRI Standard 1500-2015 must be recorded in the 
data underlying that model's certification pursuant to Sec.  429.71 
of this chapter, and the difference between the inlet (measured at 
Point B) and outlet temperature (measured at Point C) must not be 
less than 20[emsp14][deg]F at any point during the ``Warm-up 
Period'' and ``Test Period,'' after stabilization has been achieved, 
as indicated by 30-second interval data pursuant to Table 3.1. of 
this appendix.
    3.2.4. Condensing Commercial Packaged Boiler Water Temperatures. 
For tests of condensing boilers (as defined in section 3.2.2 of 
ANSI/AHRI Standard 1500-2015; maintain the outlet temperature 
measured at Point C in Figure C9 to 120[emsp14][deg]F  
1[emsp14][deg]F, and maintain the commercial packaged boiler inlet 
temperature to 80[emsp14][deg]F  1[emsp14][deg]F during 
the ``Warm-up Period'' and ``Test Period'' as verified by 30-second 
interval data pursuant to Table 3.1. of this appendix. If the 
commercial packaged boiler cannot be tested at the standard inlet 
water temperature of 80[emsp14][deg]F  1[emsp14][deg]F 
at Point B, as indicated in the manufacturer literature, test the 
equipment at the temperature closest to the standard 
80[emsp14][deg]F  1[emsp14][deg]F that the equipment is 
capable of operating, as indicated in the manufacturer literature. 
Field tests are exempt from this requirement and instead must comply 
with the requirements of section 3.2.4.1 of this appendix.
    3.2.4.1. For field tests, the inlet temperature measured at 
Point B in Figure C9 and the outlet temperature measured and Point C 
in Figure C9 of ANSI/AHRI Standard 1500-2015 must be recorded in the 
data underlying that model's certification pursuant to Sec.  429.71 
of this chapter, and the difference between the inlet (measured at 
Point B) and outlet temperature (measured at Point C) must not be 
less than 20[emsp14][deg]F at any point during the ``Warm-up 
Period'' or ``Test Period,'' after stabilization has been achieved, 
as verified by 30-second interval data pursuant to Table 3.1. of 
this appendix.
    3.2.5. Air Temperature. Maintain ambient room temperature at 
75[emsp14][deg]F  5[emsp14][deg]F at all times during 
the ``Warm-up Period'' and ``Test Period'' (as described in section 
C4 of Appendix C of ANSI/AHRI Standard 1500-2015; as indicated by 
30-second interval data pursuant to Table 3.1. of this appendix. The 
ambient room temperature may not differ by more than  
2[emsp14][deg]F from the average ambient room temperature during the 
entire ``Test Period'' at any reading. Field tests are exempt from 
this requirement, but ambient room temperature must be recorded 
(using 30-second interval data) as part of the test data underlying 
that model's certification pursuant to Sec.  429.71 of this chapter.
    3.2.6. Ambient Humidity. Maintain ambient room relative humidity 
at 60 percent  5 percent relative humidity at all times 
during both the ``Warm-up Period'' and ``Test Period'' (as described 
in section C4 of Appendix C of ANSI/AHRI Standard 1500-2015; as 
indicated by 30-second interval data pursuant to Table 3.1. of this 
appendix. Field tests are exempt from this requirement, but ambient 
room relative humidity must be recorded (using 30-second interval 
data) as part of the test data underlying that model's certification 
pursuant to Sec.  429.71 of this chapter.
    3.3. Test Method.
    3.3.1. General. Conduct the combustion efficiency test using the 
test method prescribed in section C4.1 ``Thermal Efficiency,'' of 
Appendix C of ANSI/AHRI Standard 1500-2015. Do not use section 
C4.2.1 of ANSI/AHRI Standard 1500-2015 and make the following 
exceptions:
    3.3.1.1. The duration of the ``Test Period'' outlined in 
sections C4.1.1.2 of Appendix C of ANSI/AHRI Standard 1500-2015 
(incorporated by reference, see Sec.  431.85) and C4.1.2.2 of 
Appendix C of ANSI/AHRI Standard 1500-2015 is 30 minutes.
    3.3.1.2. In section C4.1.1.1.2 of Appendix C of ANSI/AHRI 
Standard 1500-2015, replace ``Section 5.3.5'' with ``Section 
5.3.6.''
    3.3.2. Steam Test Steady-State. Replace section C4.1.1.1.4 of 
ANSI/AHRI Standard 1500-2015 with the following: Ensure that a 
steady-state is reached by confirming that three consecutive 
readings have been recorded at 15-minute intervals that indicate 
that:
    3.3.2.1. The measured fuel input rate does not vary by more than 
 2 percent between any two readings; and
    3.3.2.2. The steam pressure varies by no more than  
5 percent between any two readings.
    3.3.3. Water Test Steady-State. Replace section C4.1.2.1.5 of 
ANSI/AHRI Standard 1500-2015 with the following: Ensure that a 
steady-state is reached by confirming that three consecutive 
readings have been recorded at 15-minute intervals that indicate 
that the measured fuel input rate does not vary by more than  2 percent between any two readings.
    3.3.4. Procedure for the Measurement of Condensate for a 
Condensing Commercial Packaged Boiler. Collect flue condensate as 
specified in section C4.2.2 of Appendix C of ANSI/AHRI Standard 
1500-2015 using a covered vessel so as to prevent evaporation. 
Measure the condensate from the flue gas during the ``Test Period.'' 
Flue condensate mass must be measured within 5 minutes after the end 
of the ``Test Period'' (defined in C4.1.1.2 and C4.1.2.2 of ANSI/
AHRI Standard 1500-2015; to prevent evaporation loss from the 
sample. Determine the mass of flue condensate for the ``Test 
Period'' by subtracting the tare container weight from the total 
weight of the container and flue condensate measured at the end of 
the ''Warm-up Period.''
    3.3.5. Total Fuel Input. In sections C4.1.1.2.3 and C4.1.2.2.3 
of ANSI/AHRI Standard 1500-2015, do not use the last sentence which 
reads: ``The total Heat Input measured during the Test Period shall 
be within  2% of the boiler Input Rating.''
    3.4. Calculations.
    3.4.1. General. Use the calculation procedure for the combustion 
efficiency test specified in section C7.3 of Appendix C (including 
the specified subsections of C7.2) of ANSI/AHRI Standard 1500-2015. 
If a recirculating loop is used, use the temperature at Point A for 
the inlet water temperature for all calculations.
    3.4.2. Adjustment to Steady-State Flue Temperature for Using 
Steam Mode Combustion Efficiency to Represent Hot Water Mode. For 
commercial packaged boilers with fuel input rate greater than 
2,500,000 Btu/h and using combustion efficiency in steam mode to 
represent combustion efficiency in hot water mode pursuant to Sec.  
429.60(a)(5) through (6) of this chapter, adjust the steady-state 
stack temperature TF,SS (as defined in section C6 of 
ANSI/AHRI Standard 1500-2015; using the following equation before 
calculating combustion efficiency. Replace TF,SS with 
TF,SS,adjusted as calculated below for all calculations 
in deriving combustion efficiency.

[[Page 14679]]

TF,SS,adjusted = TF,SS - Tsat + 180

Where:
TF,SS,adjusted is the adjusted steady-state flue 
temperature used for subsequent calculations of combustion 
efficiency,
TF,SS is the measured steady-state flue temperature 
during combustion efficiency testing in steam mode,
Tsat is the saturated steam temperature from Table D1 in 
Appendix D of ANSI/AHRI Standard 1500-2015 that corresponds to the 
measured steam pressure, and
180 is the required hot water outlet temperature pursuant to section 
3.2.3.

    3.4.3. Rounding. Round combustion efficiency to nearest one 
tenth of a percent. Round fuel input rate to nearest 1,000 Btu/h.

[FR Doc. 2016-05138 Filed 3-16-16; 8:45 am]
 BILLING CODE 6450-01-P