[Federal Register Volume 84, Number 38 (Tuesday, February 26, 2019)]
[Proposed Rules]
[Pages 6088-6095]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-03269]
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DEPARTMENT OF ENERGY
10 CFR Part 430
[EERE-2019-BT-TP-0003]
Energy Conservation Program: Test Procedure for Direct Heating
Equipment
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Request for information.
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SUMMARY: The U.S. Department of Energy (``DOE'') is initiating a data
collection process through this request for information (``RFI'') to
consider whether to amend DOE's test procedure for direct heating
equipment. To inform interested parties and to facilitate this process,
DOE has gathered data, identifying several issues associated with the
currently applicable test procedures on which DOE is interested in
receiving comment. The issues outlined in this document mainly concern
the evaluation of additional calculations relevant to the unvented
direct heating equipment test procedure, updates to applicable industry
standards incorporated by reference in the vented direct heating
equipment test procedure, and any additional topics that may inform
DOE's decisions in a future test procedure rulemaking, including
methods to reduce regulatory burden while ensuring the procedure's
accuracy. DOE welcomes written comments from the public on any subject
within the scope of this document (including topics not raised in this
RFI).
DATES: Written comments and information are requested and will be
accepted on or before April 12, 2019.
ADDRESSES: Interested persons are encouraged to submit comments using
the Federal eRulemaking Portal at http://www.regulations.gov. Follow
the instructions for submitting comments. Alternatively, interested
persons may submit comments, identified by docket number EERE-2019-BT-
TP-0003, by any of the following methods:
1. Federal eRulemaking Portal: http://www.regulations.gov. Follow
the instructions for submitting comments.
2. Email: To [email protected]. Include docket number EERE-
2019-BT-TP-0003 in the subject line of the message.
3. Postal Mail: Appliance and Equipment Standards Program, U.S.
Department of Energy, Building Technologies Office, Mailstop EE-5B,
Test Procedure RFI for Direct Heating Equipment, Docket No. EERE-2019-
BT-TP-0003, 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.
4. Hand Delivery/Courier: Appliance and Equipment Standards
Program, U.S. Department of Energy, Building Technologies Office, 950
L'Enfant Plaza SW, Suite 600, Washington, DC, 20024. Telephone: (202)
287-1445. If possible, please submit all items on a CD, in which case
it is not necessary to include printed copies.
No telefacsimilies (faxes) will be accepted. For detailed
instructions on submitting comments and additional information on this
process, see section III of this document.
Docket: The docket for this activity, which includes Federal
Register notices, comments, and other supporting documents/materials,
is available for review at http://www.regulations.gov. All documents in
the docket are listed in the http://www.regulations.gov index. However,
some documents listed in the index, such as those containing
information that is exempt from public disclosure, may not be publicly
available.
The docket web page can be found at [http://www.regulations.gov/docket?D=EERE-2019-BT-STD-0002]. The docket web page contains
instructions on how to access all documents, including public comments,
in the docket. See section III of this document for information on how
to submit comments through http://www.regulations.gov.
FOR FURTHER INFORMATION CONTACT: Dr. Stephanie Johnson, 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) 287-1943. Email:
[email protected].
Mr. Eric Stas, U.S. Department of Energy, Office of the General
Counsel, GC-33, 1000 Independence Avenue SW, Washington, DC, 20585-
0121. Telephone: (202) 586-5827. Email: [email protected].
For further information on how to submit a comment or review other
public comments and the docket, contact the Appliance and Equipment
Standards Program staff at (202) 287-
[[Page 6089]]
1445 or by email: [email protected].
SUPPLEMENTARY INFORMATION:
Table of Contents
I. Introduction
A. Authority and Background
B. Rulemaking History
II. Request for Information
A. Scope and Definitions
1. Unvented Heaters
2. Vented Heaters
B. Updates to Industry Standards
1. ANSI/ASHRAE 103
2. ANSI Z21.86
C. Test Method for Unvented Heaters
D. Test Method for Vented Heaters
E. Performance and Utility
F. Other Test Procedure Topics
III. Submission of Comments
I. Introduction
Direct heating equipment (DHE) is included in the list of ``covered
products'' for which DOE is authorized to establish and amend energy
conservation standards and test procedures. (42 U.S.C. 6292(a)(9)) The
definition of ``direct heating equipment'' includes vented home heating
equipment and unvented home heating equipment. 10 Code of Federal
Regulations (CFR) 430.2. (Hereafter in this notice, the terms ``vented
heater'' and ``unvented heater'' are used to describe the two types of
direct heating equipment). DOE's test procedures for unvented heaters
are prescribed at 10 CFR part 430, subpart B, appendix G (``Appendix
G''). DOE's test procedures for vented heaters are prescribed at 10 CFR
part 430, subpart B, appendix O (``Appendix O''). DOE prescribes energy
conservation standards for vented heaters at 10 CFR 430.32(i). DOE does
not currently prescribe energy conservation standards for unvented
heaters. The following sections discuss DOE's authority to establish
and amend test procedures for DHE, as well as relevant background
information regarding DOE's consideration of test procedures for this
product.
A. Authority and Background
The Energy Policy and Conservation Act of 1975 (``EPCA'' or ``the
Act''),\1\ Public Law 94-163 (42 U.S.C. 6291-6317, as codified), among
other things, authorizes DOE to regulate the energy efficiency of a
number of consumer products and industrial equipment. (42 U.S.C. 6291-
6317, as codified) Title III, Part B \2\ of EPCA established the Energy
Conservation Program for Consumer Products Other Than Automobiles,
which sets forth a variety of provisions designed to improve energy
efficiency. These products include DHE, the subject of this RFI. (42
U.S.C. 6292(a)(9))
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\1\ All references to EPCA in this document refer to the statute
as amended through America's Water Infrastructure Act of 2018,
Public Law 115-270 (Oct. 23, 2018).
\2\ For editorial reasons, upon codification in the U.S. Code,
Part B was redesignated Part A.
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Under EPCA, DOE's energy conservation program consists essentially
of four parts: (1) Testing, (2) labeling, (3) Federal energy
conservation standards, and (4) certification and enforcement
procedures. Relevant provisions of the Act specifically include
definitions (42 U.S.C. 6291), energy conservation standards (42 U.S.C.
6295), test procedures (42 U.S.C. 6293), labeling provisions (42 U.S.C.
6294), and the authority to require information and reports from
manufacturers (42 U.S.C. 6296).
Federal energy efficiency requirements for covered products
established under EPCA generally supersede State laws and regulations
concerning energy conservation testing, labeling, and standards. (42
U.S.C. 6297) DOE may, however, grant waivers of Federal preemption for
particular State laws or regulations, in accordance with the procedures
and other provisions of EPCA. (42 U.S.C. 6297(d))
The Federal testing requirements consist of test procedures that
manufacturers of covered products must use as the basis for: (1)
Certifying to DOE that their products comply with the applicable energy
conservation standards adopted pursuant to EPCA (42 U.S.C. 6295(s)),
and (2) making representations about the efficiency of those consumer
products (42 U.S.C. 6293(c)). Similarly, DOE must use these test
procedures to determine whether the products comply with relevant
standards promulgated under EPCA. (42 U.S.C. 6295(s))
Under 42 U.S.C. 6293, EPCA sets forth the criteria and procedures
DOE must follow when prescribing or amending test procedures for
covered products. EPCA requires that any test procedures prescribed or
amended under this section be reasonably designed to produce test
results which measure energy efficiency, energy use, or estimated
annual operating cost of a covered product during a representative
average use cycle or period of use and requires that the test procedure
not be unduly burdensome to conduct. (42 U.S.C. 6293(b)(3))
If DOE determines that a test procedure amendment is warranted, it
must publish proposed test procedures and offer the public an
opportunity to present oral and written comments on them. (42 U.S.C.
6293(b)(2))
In addition, EPCA requires that DOE amend its test procedures for
all covered products to integrate measures of standby mode and off mode
energy consumption into the overall energy efficiency, energy
consumption, or other energy descriptor, taking into consideration the
most current versions of Standards 62301 and 62087 of the International
Electrotechnical Commission (``IEC''), unless the current test
procedure already incorporates the standby mode and off mode energy
consumption, or if such integration is technically infeasible. (42
U.S.C. 6295(gg)(2)(A)) If an integrated test procedure is technically
infeasible, DOE must prescribe separate standby mode and off mode
energy use test procedures for the covered product, if a separate test
is technically feasible. (Id.)
EPCA also requires that, at least once every 7 years, DOE evaluate
test procedures for each type of covered product, including DHE, 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 or period of
use. (42 U.S.C. 6293(b)(1)(A)) If the Secretary determines, on his own
behalf or in response to a petition by any interested person, that a
test procedure should be prescribed or amended, the Secretary shall
promptly publish in the Federal Register proposed test procedures and
afford interested persons an opportunity to present oral and written
data, views, and arguments with respect to such procedures. The comment
period on a proposed rule to amend a test procedure shall be at least
60 days and may not exceed 270 days. In prescribing or amending a test
procedure, the Secretary shall take into account such information as
the Secretary determines relevant to such procedure, including
technological developments relating to energy use or energy efficiency
of the type (or class) of covered products involved. (42 U.S.C.
6293(b)(2)) If DOE determines that test procedure revisions are not
appropriate, DOE must publish its determination not to amend the test
procedures. (42 U.S.C. 6293(b)(1)(A)(ii)) DOE is publishing this RFI to
collect data and information to inform its decision in satisfaction of
the 7-year review requirement specified in EPCA. (42 U.S.C.
6293(b)(1)(A))
[[Page 6090]]
B. Rulemaking History
DOE's existing test procedures for unvented heaters and vented
heaters appear at Appendix G and Appendix O, respectively. DOE
originally established Appendix G in a final rule published in the
Federal Register on May 10, 1978. 43 FR 20128, 20132-20146. DOE amended
the test procedures for unvented home heating equipment on March 28,
1984 (``March 28, 1984 final rule'') to prescribe test procedures for
fossil-fuel-fired unvented heaters and to add a calculation of the
estimated operational cost per million British thermal unit (Btu) of
output. 49 FR 12148, 12157-12158. DOE most recently updated Appendix G
in a final rule published December 17, 2012 (``December 17, 2012 final
rule'') to establish procedures for measuring energy consumption in
standby mode and off mode, pursuant to EPCA. 77 FR 74559. 74571-74572.
In the December 17, 2012 final rule, DOE did not incorporate standby
mode and off mode energy into the annual energy consumption
calculations for unvented heaters because it determined that a detailed
annual energy consumption accounting was not appropriate for unvented
heaters, as described further in section II.C of this document. 77 FR
74559, 74561.
DOE originally established Appendix O in a final rule published in
the Federal Register on May 10, 1978. 43 FR 20147, 20182-20205. DOE
amended the test procedures for vented home heating equipment in the
March 28, 1984 final rule to include a simplified procedure for heaters
with modulating controls, and to address manually controlled vented
heaters, vented heaters equipped with thermal stack dampers, and floor
furnaces. 49 FR 12148, 12169-12178. DOE amended the test procedure for
vented heaters again on May 12, 1997 to add calculations for electrical
energy consumption, to clarify the pilot light energy measurement for
manually-controlled vented heaters, and to update the provisions for
determining the efficiency of manually-controlled heaters with variable
input rates. 62 FR 26140, 26156-26157. In the December 17, 2012 final
rule, DOE established procedures for measuring power consumption in
standby mode and off mode and for calculating the energy consumption
associated with operation in standby mode and off mode. 77 FR 74559,
74561.
In the most recent test procedure rulemaking for DHE, DOE added
provisions for testing vented home heating equipment that utilize
condensing technology and incorporated by reference six industry test
standards to replace the outdated test standards referred to in the
then existing DOE test procedure. 80 FR 792 (Jan. 6, 2015) (``January
6, 2015 Final Rule''). DOE determined at that time not to amend the
test procedures for unvented heaters. Id. at 793.
For unvented electric heaters that are the primary heating source
for the home, Appendix G includes provisions for measuring electric
power and calculating annual energy consumption. For all electric and
gas unvented heaters, Appendix G includes provisions for determining
the rated output. Appendix G does not contain provisions for
determining energy efficiency, as all unvented heaters are generally
considered to be 100-percent efficient. Accordingly, DOE has not
established energy conservation standards for unvented heaters.
For vented heaters, Appendix O includes provisions for determining
annual fuel utilization efficiency (``AFUE''), which is the efficiency
metric used for determining compliance with the energy conservation
standards. Appendix O also specifies provisions for determining annual
energy consumption. Manufacturers must use the test procedures at
Appendix O to demonstrate compliance with the current energy
conservation standards for vented home heating equipment.
II. Request for Information
In the following sections, DOE has identified a variety of issues
on which it seeks input to aid in the development of the technical and
economic analyses regarding whether amended test procedures for DHE may
be warranted. Specifically, DOE is requesting comment on any
opportunities to streamline and simplify testing requirements for DHE.
Additionally, DOE welcomes comments on other issues relevant to the
conduct of this process that may not be specifically identified in this
document. In particular, DOE notes that under Executive Order 13771,
``Reducing Regulation and Controlling Regulatory Costs,'' Executive
Branch agencies such as DOE are directed to manage the costs associated
with the imposition of expenditures required to comply with Federal
regulations. See 82 FR 9339 (Feb. 3, 2017). Pursuant to that Executive
Order, DOE encourages the public to provide input on measures DOE could
take to lower the cost of its regulations applicable to DHE consistent
with the requirements of EPCA.
A. Scope and Definitions
The test procedures for DHE cover those products that meet the
definitions of ``direct heating equipment'' and ``home heating
equipment,'' as codified at 10 CFR 430.2 and defined as follows:
1. ``Direct heating equipment'' means vented home heating equipment
and unvented home heating equipment.
2. ``Home heating equipment, not including furnaces'' means vented
home heating equipment and unvented home heating equipment.
1. Unvented Heaters
The unvented heaters test procedure covers those products that meet
the definitions for ``unvented home heating equipment,'' as codified at
10 CFR 430.2. DOE defines unvented heaters and the various sub-types of
unvented heaters as follows:
1. ``Unvented home heating equipment'' means a class of home
heating equipment, not including furnaces, used for the purpose of
furnishing heat to a space proximate to such heater directly from the
heater and without duct connections and includes electric heaters and
unvented gas and oil heaters.
2. ``Electric heater'' means an electric appliance in which heat is
generated from electrical energy and dissipated by convection and
radiation and includes baseboard electric heaters, ceiling electric
heaters, floor electric heaters, portable electric heaters, and wall
electric heaters.
3. ``Primary heater'' means a heating device that is the principal
source of heat for a structure and includes baseboard electric heaters,
ceiling electric heaters, and wall electric heaters.
4. ``Supplementary heater'' means a heating device that provides
heat to a space in addition to that which is supplied by a primary
heater. Supplementary heaters include portable electric heaters.
5. ``Baseboard electric heater'' means an electric heater which is
intended to be recessed in or surface mounted on walls at floor level,
which is characterized by long, low physical dimensions, and which
transfers heat by natural convection and/or radiation.
6. ``Ceiling electric heater'' means an electric heater which is
intended to be recessed in, surface mounted on, or hung from a ceiling,
and which transfers heat by radiation and/or convection (either natural
or forced).
7. ``Floor electric heater'' means an electric heater which is
intended to be recessed in a floor, and which transfers by radiation
and/or convection (either natural or forced).
[[Page 6091]]
8. ``Portable electric heater'' means an electric heater which is
intended to stand unsupported, and can be moved from place to place
within a structure. It is connected to electric supply by means of a
cord and plug, and transfers heat by radiation and/or convention
(either natural or forced).
9. ``Wall electric heater'' means an electric heater (excluding
baseboard electric heaters) which is intended to be recessed in or
surface mounted on walls, which transfers heat by radiation and/or
convection (either natural or forced) and which includes forced
convectors, natural convectors, radiant heaters, high wall or valance
heaters.
10. ``Unvented gas heater'' means an unvented, self-contained,
free-standing, non-recessed gas-burning appliance which furnishes warm
air by gravity or fan circulation.
11. ``Unvented oil heater'' means an unvented, self-contained,
free-standing, non-recessed oil-burning appliance which furnishes warm
air by gravity or fan circulation.
Issue A.1 DOE requests comment on the definitions currently
applicable to unvented heaters and whether any of the definitions
should be revised, and if so, how. Please provide a rationale for any
suggested change. DOE notes that floor electric heaters are not
currently listed among the other types of heaters included in the
definition of a ``primary heater.'' DOE understands that floor electric
heaters have similar heat output as the types of heaters listed in the
definition of ``primary heater'' and may provide the primary source of
heat in small dwellings. DOE requests comment on whether floor electric
heaters should be specifically defined and also included in the
definition of ``primary heater.''
2. Vented Heaters
The vented heaters test procedure covers those products that meet
the definitions for ``vented home heating equipment,'' as codified at
10 CFR 430.2. DOE defines vented heaters and the various sub-types of
vented heaters as follows:
1. ``Vented home heating equipment'' or ``vented heater'' means a
class of home heating equipment, not including furnaces, designed to
furnish warmed air to the living space of a residence, directly from
the device, without duct connections (except that boots not to exceed
10 inches beyond the casing may be permitted) and includes: Vented wall
furnace, vented floor furnace, and vented room heater.
2. ``Vented floor furnace'' means a self-contained vented heater
suspended from the floor of the space being heated, taking air for
combustion from outside this space. The vented floor furnace supplies
heated air circulated by gravity or by a fan directly into the space to
be heated through openings in the casing.
3. ``Vented room heater'' means a self-contained, free standing,
non-recessed, vented heater for furnishing warmed air to the space in
which it is installed. The vented room heater supplies heated air
circulated by gravity or by a fan directly into the space to be heated
through openings in the casing.
4. ``Vented wall furnace'' means a self-contained vented heater
complete with grilles or the equivalent, designed for incorporation in,
or permanent attachment to, a wall of a residence and furnishing heated
air circulated by gravity or by a fan directly into the space to be
heated through openings in the casing.
Issue A.2 DOE requests comment on the definitions currently
applicable to vented heaters and whether any of the definitions should
be revised, and if so, how. Please provide a rationale for any
suggested change.
B. Updates to Industry Standards
DOE's current test procedures for DHE reference industry standards
for various aspects of the test procedures. All materials incorporated
by reference are listed at 10 CFR 430.3 and within Appendices G and O.
DOE intends to fully review all the referenced standards in the DHE
test procedures as part of this evaluation. The following is a list of
the shorthand titles and full titles of all the referenced industry
standards currently used in the DHE test procedures.
``ANSI/ASHRAE 103-2007'' means the test standard published
by the American Society of Heating, Refrigerating, and Air-Conditioning
Engineers titled, ``Method of Test for Annual Fuel Utilization
Efficiency of Residential Central Furnaces and Boilers.''
``ANSI Z21.86-2008'' means the standard published by the
American National Standards Institute titled, ``Vented Gas-Fired Space
Heating Appliances.''
``ASTM D2156-09'' means the standard published by the
American Society of Testing and Materials International titled,
``Standard Test Method for Smoke Density in Flue Gases from Burning
Distillate Fuels.''
``IEC 62301 (Second Edition)'' means the standard
published by the International Electrotechnical Commission titled,
``Household electrical appliances--Measurement of standby power''
(Edition 2.0 2011-01).
``UL 729-2003'' means the test standard published by
Underwriters Laboratories, Inc. titled, ``Standard for Safety for Oil-
Fired Floor Furnaces.''
``UL 730-2003'' means the test standard published by
Underwriters Laboratories, Inc. titled, ``Standard for Safety for Oil-
Fired Wall Furnaces.''
``UL 896-1993'' means the test standard published by
Underwriters Laboratories, Inc. titled, ``Standard for Safety for Oil-
Burning Stoves.''
DOE conducted a preliminary examination of the available industry
test standards and found that updates exist for all the incorporated
standards except for ASTM D2156-09 and IEC 62301 (Second Edition). DOE
reviewed all of those updated industry test standards.
However, when reviewing the revised versions of UL 729-2003 (last
revised November 22, 2016), 730-2003 (last revised November 22, 2016),
and 896-1993 (last revised November 22, 2016), DOE found that no
revisions have been made to the sections incorporated by reference to
the vented heaters test procedure.
Issue B.1 DOE requests any information in relation to the revisions
to the existing standards that have been incorporated by reference,
including the purpose of the updates and whether any of the updates
would be expected to impact the test burden or measured energy
consumption under the DOE test procedures for vented and unvented
heaters.
1. ANSI/ASHRAE 103
DOE is aware that ANSI/ASHRAE 103-2007 has been superseded by ANSI/
ASHRAE 103-2017. DOE examined both versions of the ANSI/ASHRAE 103
standard and found several changes to sections incorporated by
reference within the vented heater test procedure. DOE understands many
of the changes to be minor clarifications, such as adding metric units
or changing the order of a sentence without affecting its intent.
However, other changes could have a noticeable effect on the vented
heater test procedure, if adopted by DOE. Specifically, in section 6.3,
titled ``Pressure,'' the allowable error value for oil pressure
measurement was removed, although the introductory text in the sections
still states that it applies to oil. In section 6.8, titled ``Smoke,''
the referenced standard ASTM D2156-94 was updated to ASTM D2156-09,
which is the standard that is currently incorporated by reference in
the vented heater test procedure. In section 8.6, titled ``Jacket Loss
Measurement,'' figures 12 and 13 were replaced by a set of equations.
In section 9.10, titled
[[Page 6092]]
``Optional Test Procedures for Condensing Furnaces and Boilers That
Have No Off-Period Flue Losses,'' the maximum post-purge period to use
a value of 0.05 for DF and DP increased from less
than 5 seconds to less than or equal to 30 seconds for units with no
measurable airflow through the combustion chamber and heat exchanger.
Issue B.2 DOE requests comment on whether removing the allowable
error in the oil pressure measurement value from section 6.3 of the
ANSI/ASHRAE 103-2017 standard was intentional. If so, DOE requests
comment on what allowable error measurement should be used within the
vented heater test procedure (Note: ANSI/ASHRAE 103-2007 stated 0.5 psi).
Issue B.3 DOE requests comment on whether the replacement of
figures 12 and 13 with a set of equations in section 8.6 of ANSI/ASHRAE
103-2017 is appropriate for the vented heater test procedure.
Issue B.4 DOE requests comment on whether the maximum post-purge
time should be increased from less than 5 seconds to less than or equal
to 30 seconds for vented heaters with no measurable airflow through the
combustion chamber and heat exchanger.
2. ANSI Z21.86
DOE is aware that ANSI Z21.86-2008 has been superseded by ANSI
Z21.86-2016. DOE examined both versions of the ANSI Z21.86 standard and
only found minor changes to sections incorporated by reference within
the vented heater test procedure. Section 6 was moved to section 9, and
section 8 was moved to section 11. The figures and tables referenced in
these sections were moved from the ``Tables Referenced In Part 1, Part
II and Exhibits'' and ``Figures Referenced In Part 1, Part II and
Exhibits'' sections at the end of the standard to throughout the
standard where they are first referenced. Accordingly, DOE expects that
these changes would not substantively impact the test burden or
measured energy consumption under the DOE test procedures.
C. Test Method for Unvented Heaters
For electric heaters, section 2.1 of Appendix G specifies measuring
and recording the maximum electrical power consumed when heating, in
terms of kilowatts, and section 3.3 specifies calculating a rated
output. For primary electric heaters only, section 3.1 of Appendix G
specifies the calculation for the national average annual energy
consumption based on the maximum electrical power, and section 3.2
specifies a calculation for the annual energy consumption by geographic
region. The calculation of national average annual energy consumption
in section 3.1 of Appendix G is based on several assumptions, including
the national average annual heating load hours of 2080, an adjustment
factor of 0.77,\3\ and a typical oversizing factor for primary electric
heaters of 1.2.\4\ The calculation of regional annual energy
consumption in section 3.2 of Appendix G is based on the same
assumptions as the national value, except that regional heating load
hours are provided by a figure depicting geographic regions the United
States and the associated heating load hours for each region.
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\3\ The adjustment factor is a multiplier to adjust the heating
load hours to the approximate burner operating hours actually
experienced by the system.
\4\ The oversizing factor accounts for space heating products
generally being oversized when compared to the actual heating load.
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Issue C.1 DOE requests comment on whether the assumptions for
calculating the national and regional values of annual fuel energy
consumption are still appropriate.
For unvented natural gas, propane, and oil heaters, section 2.2 of
Appendix G specifies measuring the maximum fuel input rate of the
heater over the course of one hour. Section 2.1 of Appendix G requires
the maximum auxiliary electrical power to be recorded for unvented gas
and oil heaters that use auxiliary electrical energy. Section 3.4 of
Appendix G provides calculations to determine the rated output for
unvented gas and oil heaters based on the measurements of the hourly
input rate and maximum electrical power. DOE notes that Appendix G
currently does not specify calculating annual fuel energy consumption
for unvented gas and oil heaters.
Issue C.2 DOE requests comment on whether annual fuel energy
consumption should be calculated for unvented natural gas, propane, and
oil heaters. If annual fuel energy consumption should be calculated,
DOE requests comment on what equations and assumptions should be used.
For unvented heaters equipped with a pilot light and/or that use
electrical energy, sections 2.3 and 2.4 of Appendix G specify measuring
the fossil fuel input rate and/or standby electrical power,
respectively. These values are not used in any calculations. If the
pilot light is designed to be turned off by the user when not in use,
and the heater has instructions for turning the unit off provided on a
label on the heater near the gas control valve, then section 2.3.1 of
Appendix G specifies that the measurement of pilot light energy
consumption is not required. Similarly, if the heater is designed to be
turned off when not in use, if turning the control to ``off'' will shut
off the electrical supply, and if an instruction to turn off the unit
is provided on a label on the heater, then section 2.4.1 of Appendix G
specifies that the standby electrical power does not need to be
measured.
In the December 17, 2012 final rule, DOE determined not to include
standby mode and off mode energy use in the annual energy consumption
calculations for unvented heaters because a detailed annual energy
consumption accounting was not deemed appropriate for this product type
(i.e., there is no annual accounting at all for supplemental heaters
and only a simplified assigned value for primary heaters). 77 FR 74559,
74561. In the August 30, 2010 NOPR that preceded the December 17, 2012
final rule, DOE explained that the integration of standby mode and off
mode energy was not necessary or appropriate for the following reasons:
1. The test procedure does not include energy efficiency or
energy use metrics that would allow for the integration of standby
mode and off mode energy use.
2. Standby mode energy use (defined as energy use during the
heating season when the heater is not on) is as effective in heating
the space as active mode energy use.
3. Off mode energy consumption (defined as non-heating-season
energy consumption) could be considered ineffective energy use and,
accordingly, could be minimized by prescribing a separate energy
conservation standard. However, DOE lacked data on consumer use that
would be needed to define a representative off mode for unvented
heaters.\5\
\5\ For example, DOE lacked information on the fraction of the
year unvented heaters might be unplugged or otherwise disconnected
from the energy source, and the extent to which pilot lights are
turned off during the non-heating season.
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See 75 FR 52892, 52898-52899 (Aug. 30, 2010).
Issue C.3 DOE requests comment on whether annual fuel energy
consumption for unvented heaters should include standby mode and off
mode energy use. DOE is also interested in detailed information on any
additional test burden that would result from calculating annual fuel
energy consumption with standby mode and off mode energy use and if so,
the nature and extent of that burden.
Issue C.4 DOE requests any information in relation to annual and/or
regional heating season data, heating mode operating hours, standby
mode hours, and off mode hours for unvented heaters.
[[Page 6093]]
D. Test Method for Vented Heaters
For vented heaters, Appendix O specifies provisions for determining
the product's AFUE, which is the efficiency descriptor established by
EPCA for direct heating equipment. (42 U.S.C. 6291(22)(A))
As discussed above, section 3.8 of Appendix O contains provisions
for testing vented heaters that utilize condensing technology.
Condensing technology is a design strategy that increases the
efficiency of a heating appliance by extracting additional thermal
energy from the flue gases.\6\ These provisions are essentially the
same as those contained in ANSI/ASHRAE 103-2007 that are applicable to
condensing furnaces and boilers. However, because of the numerous
additions and modifications needed to apply the condensing technology
provisions to vented heaters, DOE includes the condensing provisions in
Appendix O, rather than incorporating by reference the relevant
provisions of ANSI/ASHRAE 103-2007.
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\6\ In a condensing system, water vapor contained within the
flue gas (as a byproduct of the combustion process) is condensed and
drained out of the system. The process of condensing water vapor
into liquid water releases latent heat, which is transferred to the
air stream, thereby increasing the heating efficiency.
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Issue D.1 DOE requests comment and data on manufacturers' and test
laboratories' experience with the condensing provisions in Appendix O.
DOE requests detailed information regarding any test burden associated
with conducting the condensing provisions, including the nature and
extent of any such burden. DOE also requests comment on ways to
potentially reduce any test burden of the provisions specific to
condensing technology.
DOE has identified several areas of the vented heater test
procedure that may warrant further review to determine whether
additional detail or specification may be needed to improve the
readability and ease of implementation of the test procedure.
In the definitions in section 1.0 of Appendix O, section 1.21
defines ``manually controlled vented heaters'' as either gas or oil
fueled vented heaters equipped without thermostats. DOE believes some
vented heaters could potentially be designed to operate with timers or
electronic controls without being equipped with thermostats, but that
are not manually controlled. DOE questions whether ``manually
controlled vented heaters'' should be defined to exclude those
``without automatic means of control or operation,'' as opposed to only
those ``without thermostats.''
Issue D.2 DOE requests comment on whether the definition for
``Manually controlled vented heater'' should be amended, and if so,
how.
Issue D.3 DOE also requests comment on whether the other
definitions provided in section 1.0 of Appendix O are all still
appropriate, or if other updates are needed.
Within section 4.0 of Appendix O, titled ``Calculations,'' the
balance point temperature (TC) can be determined either with
an equation or using the values provided in Table 3 of Appendix O. DOE
recognizes that a value of TC derived from the equation may
not be the same as that obtained from Table 3.
Similarly, values for the fraction of the heating load and average
outdoor temperature at the reduced and maximum operating modes
(variables X1, X2, TOA, and
TOA*) are determined using either Table 3 or Figure 1 of
Appendix O (which provides a graph showing TOA, and
TOA* variables for any balance point temperature between 16
[deg]F and 62 [deg]F), or Figure 2 of Appendix O (which provides a
graph showing variables X1 and X2 for any balance
point temperature between 0 [deg]F and 62 [deg]F). DOE recognizes that
Table 3, Figure 1, and Figure 2 may yield different results because
Table 3 provides discreet values for X1, X2,
TOA, and TOA*, whereas Figure 1 and Figure 2
provide continuous graphical curves for determining the relevant
variables. DOE reviewed a limited amount of test data in an effort to
estimate the impact of the different methods for determining the
aforementioned variables on the measured AFUE value. DOE found that the
different methods resulted in a difference on the order of hundredths
of a percentage point of AFUE, which DOE would not expect to affect the
measured AFUE in most cases when rounded to a whole number. However,
DOE seeks to further understand this issue and whether there are any
known or potential impacts from the difference in values.
Issue D.4 DOE requests comment on whether the differences in the
balance point temperature (TC) produced by the equation and
as obtained from Table 3 can result in different results in the values
for the fraction of the heating load (X1 and X2)
and average outdoor temperature at the reduced and maximum operating
modes (TOA and TOA*), and if so, the extent of
any such difference.
Issue D.5 DOE requests comment on whether any differences in the
values of X1, X2, TOA, and
TOA* within Table 3 and Figures 1 and 2 could produce
different results, especially in AFUE, and if so, the extent of such
differences. If any such difference in results would occur, DOE
requests comment on whether any of these variables should be obtained
using equations instead of Table 3 or Figures 1 and 2.
In a notice of proposed rulemaking published October 24, 2013, DOE
proposed an optional use of a default jacket loss value of 1 percent
for vented floor furnaces, as an alternative to performing a jacket
loss test. 78 FR 63410, 63415. In the January 6, 2015 final rule, DOE
decided not to adopt the 1 percent default jacket loss value for vented
floor furnaces after reviewing test data that revealed an average
jacket loss of 3.05 percent. 80 FR 792, 794.
Issue D.6 DOE requests comment and test data on whether a higher
default jacket loss value should be considered for vented floor
furnaces.
DOE previously stated that DHE that can operate in manual or
automatic modes should be tested in automatic mode. 80 FR 792, 795
(Jan. 6, 2015).
Issue D.7 DOE requests comment on whether DHE that have multiple
automatic operation modes exist, and if so, whether further direction
regarding the tested operating mode is necessary.
Section 3.6.1 of Appendix O specifies that on units with no
measurable airflow through the unit when not in heating mode (as
determined by a smoke stick test defined in section 3.6.2 of Appendix
O), both the off-cycle flue gas draft factor (DF) and the
ratio of flue gas mass flow during the off-period to the flue gas mass
flow during the on-period (DP) may be set equal to 0.05. DOE
is considering whether to allow models using condensing or induced
draft technology to automatically be considered to have no measurable
airflow, and, thus, be able to use the defined value of 0.05 for
DF and DP without performing the smoke stick
test.
Issue D.8 DOE requests comment on the extent to which vented
heaters currently use the provisions in 3.6.1 and 3.6.2 of Appendix O,
whether models with induced draft or condensing technology are always
capable of meeting the conditions to use the default draft factor, and
whether provisions should be added to the vented heater test procedure
to allow condensing or induced draft DHE to be considered to have no
measurable airflow and to use a constant value of 0.05 for
DF and DP without confirmation testing.
E. Performance and Utility
DHE provides space heating (warm air) directly to the consumer's
living space without the use of duct
[[Page 6094]]
connections. Relevant to DHE may also be the ability to provide
``quiet'' operation, non-heating air circulation, and space
humidification, as well as the aesthetic appearance of the unit.
Issue E.1 DOE requests comment whether the test procedures impact
the availability of such features on DHE.
F. Other Test Procedure Topics
In addition to the issues identified earlier in this document, DOE
welcomes comment on any other aspect of the existing test procedures
for DHE not already addressed by the specific areas identified in this
document. DOE particularly seeks information that would improve the
repeatability, reproducibility, and consumer representativeness of the
test procedures. DOE also requests information that would help DOE
create a procedure that would limit manufacturer test burden through
streamlining or simplifying testing requirements. Comments regarding
the repeatability and reproducibility are also welcome.
DOE also requests feedback on any potential amendments to the
existing test procedure(s) that could be considered to address impacts
on manufacturers, including small businesses. Regarding the Federal
test method, DOE seeks comment on the degree to which the DOE test
procedure should consider and be harmonized with the most recent
relevant industry standards for DHE and whether any changes to the
Federal test method would provide additional benefits to the public.
DOE also requests comment on the benefits and burdens of adopting any
industry/voluntary consensus-based or other appropriate test procedure,
without modification.
Additionally, DOE requests comment on whether the existing test
procedures limit a manufacturer's ability to provide additional
features to consumers of DHE. DOE particularly seeks information on how
the test procedures could be amended to reduce the cost of new or
additional features and make it more likely that such features are
included on DHE.
III. Submission of Comments
DOE invites all interested parties to submit in writing by April
12, 2019, comments and information on matters addressed in this notice
and on other matters relevant to DOE's consideration of amended test
procedures for DHE. These comments and information will aid in the
development of a test procedure NOPR for DHE if DOE determines that
amended test procedures may be appropriate for these products.
Submitting comments via http://www.regulations.gov. The http://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 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 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 http://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 http://www.regulations.gov cannot be claimed as CBI. Comments
received through the website 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 http://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 http://www.regulations.gov provides after you have successfully uploaded your
comment.
Submitting comments via email, hand delivery, or postal mail.
Comments and documents submitted via email, hand delivery, or postal
mail also will be posted to http://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 postal mail
or hand delivery, please provide all items on a CD, if feasible. 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 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 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
item; (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
[[Page 6095]]
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).
DOE considers public participation to be a very important part of
the process for developing test procedures and energy conservation
standards. DOE actively encourages the participation and interaction of
the public during the comment period in each stage of this process.
Interactions with and between members of the public provide a balanced
discussion of the issues and assist DOE in the process. Anyone who
wishes to be added to the DOE mailing list to receive future notices
and information about this process should contact Appliance and
Equipment Standards Program staff at (202) 287-1445 or via email at
[email protected].
Signed in Washington, DC, on February 13, 2019.
Steven Chalk,
Acting Deputy Assistant Secretary for Energy Efficiency, Energy
Efficiency and Renewable Energy.
[FR Doc. 2019-03269 Filed 2-25-19; 8:45 am]
BILLING CODE 6450-01-P