[Federal Register Volume 84, Number 136 (Tuesday, July 16, 2019)]
[Proposed Rules]
[Pages 33869-33880]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-14545]



[[Page 33869]]

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DEPARTMENT OF ENERGY

10 CFR Part 430

[EERE-2018-BT-STD-0005]
RIN 1904-AE35


Energy Conservation Program: Energy Conservation Standards for 
Dishwashers, Grant of Petition for Rulemaking

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

ACTION: Proposed rule.

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SUMMARY: The U.S. Department of Energy (DOE) received a petition from 
the Competitive Enterprise Institute (CEI) to define a new product 
class under the Energy Policy and Conservation Act, as amended (EPCA), 
for residential dishwashers. The new product class would cover 
dishwashers with a cycle time for the normal cycle of less than one 
hour from washing through drying. DOE published this petition and 
request for comments in the Federal Register on April 24, 2018. Based 
upon its evaluation of the petition and careful consideration of the 
public comments, DOE has decided to grant this petition for rulemaking 
and propose a dishwasher product class with a cycle time for the normal 
cycle of less than one hour. DOE intends to consider appropriate energy 
and water use limits for such a product class, if adopted, in a 
separate rulemaking.

DATES: Written comments and information are requested on or before and 
will be accepted on or before September 16, 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-2018-BT-
STD-0005, by any of the following methods:
    1. Federal eRulemaking Portal: http://www.regulations.gov. Follow 
the instructions for submitting comments.
    2. Email: [email protected]. Include the docket 
number EERE-2018-BT-STD-0005 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, 
1000 Independence Avenue SW, Washington, DC 20585-0121. Telephone: 
(202) 287-1445. 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, 6th Floor, 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 VI 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 https://www.regulations.gov/docket?D=EERE-2018-BT-STD-0005. The docket web page contains 
instructions on how to access all documents, including public comments, 
in the docket. See section VI for information on how to submit comments 
through http://www.regulations.gov.

FOR FURTHER INFORMATION CONTACT: Mr. Bryan Berringer, 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) 586-0371. Email: 
[email protected].
    Mrs. Elizabeth Kohl, U.S. Department of Energy, Office of the 
General Counsel, GC-33, 1000 Independence Avenue SW, Washington, DC 
20585-0121. Telephone: (202) 586-7796. 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) 287-1445 or by email: 
[email protected].

SUPPLEMENTARY INFORMATION: DOE proposes to incorporate by reference the 
following industry standard into 10 CFR part 430: ANSI/AHAM DW-1-2010, 
Household Electric Dishwashers, (ANSI approved September 18, 2010).
    A copy of ANSI/AHAM DW-2010 is available at: Association of Home 
Appliance Manufacturers, 1111 19th Street NW, Suite 402, Washington, DC 
20036, 202-872-5955, or go to http://www.aham.org.
    For a further discussion of this standard, see section VII.M.

Table of Contents

I. Introduction
    A. Background
    B. Summary of Public Comments
II. Authority To Establish a Separate Class of Dishwashers
    A. Separate Product Class--One-Hour Normal Cycle
    B. EPCA's Anti-Backsliding Provision
III. Conclusion
IV. Rulemaking Overview and Response to Comments
    A. Rulemaking Overview
    B. Response to Comments
V. Request for Comments, Data and Information
VI. Submission of Comments
VII. Procedural Requirements
    A. Review Under Executive Order 12866, ``Regulatory Planning and 
Review''
    B. Review Under Executive Orders 13771 and 13777
    C. Review Under the Regulatory Flexibility Act
    D. Review Under the Paperwork Reduction Act of 1995
    E. Review Under the National Environmental Policy Act of 1969
    F. Review Under Executive Order 13132, ``Federalism''
    G. Review Under Executive Order 12988, ``Civil Justice Reform''
    H. Review Under the Unfunded Mandates Reform Act of 1995
    I. Review Under the Treasury and General Government 
Appropriations Act, 1999
    J. Review Under Executive Order 12630, ``Governmental Actions 
and Interference With Constitutionally Protected Property Rights''
    K. Review Under the Treasury and General Government 
Appropriations Act, 2001
    L. Review Under Executive Order 13211, ``Actions Concerning 
Regulations That Significantly Affect Energy Supply, Distribution, 
or Use''
    M. Description of Materials Incorporated by Reference
VIII. Approval of the Office of the Secretary

I. Introduction

A. Background

    The Administrative Procedure Act (APA), 5 U.S.C. 551 et seq., 
provides among other things, that ``[e]ach agency shall give an 
interested person the right to petition for the issuance, amendment, or 
repeal of a rule.'' (5 U.S.C. 553(e)) Pursuant to this provision of the 
APA, CEI petitioned DOE for the issuance of rule establishing a new 
product class under 42 U.S.C. 6295(q) that would cover dishwashers with 
a cycle time of less than one hour from washing

[[Page 33870]]

through drying. (CEI Petition, No. 0006 at p. 1) \1\
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    \1\ A notation in this form provides a reference for information 
that is in the docket of this rulemaking (Docket No. EERE-2015-BT-
STD-0005). https://www.regulations.gov/docket?D=EERE-2018-BT-STD-0005. This notation indicates that the statement preceding the 
reference is included in document number 6 in the docket at page 1.
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    CEI stated that dishwasher cycle times have become dramatically 
longer under existing DOE energy conservation standards, and that 
consumer satisfaction/utility has dropped as a result of these longer 
cycle times. CEI also provided data regarding the increase in 
dishwasher cycle time, including data that, according to CEI, 
correlated increased cycle time with DOE's adoption of amended 
efficiency standards for dishwashers. (CEI Petition, No. 0006 at pp. 2-
3)
    CEI cited to 42 U.S.C. 6295(q) as the authority for DOE to 
undertake the requested rulemaking. (CEI Petition, No. 0006 at pp. 4-5) 
Section 6295(q) requires that for a rule prescribing an energy 
conservation standard for a type (or class) of covered products, DOE 
specify a level of energy use or efficiency higher or lower than the 
level that applies (or would apply) to such type (or class) for any 
group of covered products that have the same function or intended use, 
if DOE determines that covered products within such group either: (1) 
Consume a different kind of energy from that consumed by other covered 
products within such type (or class); or (2) have a capacity or other 
performance-related feature that other products within such type (or 
class) do not have, and such feature justifies a higher or lower 
standard from that which applies (or will apply) to other products 
within such type (or class). (42 U.S.C. 6295(q)(1)) In determining 
whether a performance related feature justifies a higher or lower 
standard, DOE must consider such factors as the utility to the consumer 
of the feature, and other appropriate factors. (Id.) In any rule 
prescribing a higher or lower level of energy use or efficiency, DOE 
must explain the basis on which the higher or lower level was 
established. (42 U.S.C. 6295(q)(2))
    The current energy conservation standards distinguish between 
standard dishwashers and compact dishwashers. 10 CFR 430.32(f). In 
general, a standard dishwasher is a dishwasher that has a capacity 
equal to or greater than eight place settings plus six serving pieces. 
See, 10 CFR part 430 subpart B appendix C1 (``Appendix C1''), section 
1.20. A compact dishwasher is, in general, a dishwasher that has a 
capacity of less than eight place settings plus six serving pieces. 
Appendix C1, section 1.4.
    CEI requested that dishwashers be further divided based on cycle 
time. CEI asserted that given the significant amount of consumer 
dissatisfaction with increased dishwasher cycle time, cycle time is a 
``performance-related feature'' that provides substantial consumer 
utility, as required by EPCA for the establishment of a product class 
with a higher or lower energy use or efficiency standard than the 
standards applicable to other dishwasher product classes. (CEI 
Petition, No. 0006 at p. 5) CEI did not specify whether it was 
requesting the additional distinction be applied to both the standard 
and compact classes or just the standard class. For purposes of this 
proposal, DOE assumes that CEI requests the distinction only for the 
standard class, which represents a much larger percentage of dishwasher 
shipments. DOE seeks comment, however, on whether the one hour product 
class distinction should apply to both standard and compact 
dishwashers.
    CEI also cited to 42 U.S.C. 6295(o)(4), which prohibits DOE from 
prescribing a standard that interested person have established by a 
preponderance of the evidence would likely result in the unavailability 
in the United States in any covered product type (or class) of 
performance characteristics, features, sizes, capacities, and volumes 
that are substantially the same as those generally available in the 
United States at the time of DOE's finding. (CEI Petition, No. 0006 at 
p. 4) CEI stated that despite this prohibition, it appears that 
dishwasher cycle times have been impaired by the DOE standards and that 
many machines with shorter cycle times are no longer available. (Id.)
    In its petition, CEI suggested a cycle time of one hour as the 
defining characteristic for the suggested new product class, because 
one hour is substantially below the cycle times for all current 
products on the market. (CEI Petition, No. 0006 at p. 5) CEI stated 
that energy efficiency standards for current products would therefore 
not change with the addition of the new product class, and that no 
backsliding would occur for the energy standards already in place. 
(Id.) Specifically, 42 U.S.C. 6295(o)(1) (commonly referred to as the 
``anti-backsliding provision'') prohibits DOE from prescribing a 
standard that increases the maximum allowable energy use, or in the 
case of showerheads, faucets, water closets or urinals, water use, or 
decreases the minimum required energy efficiency, of a covered product. 
CEI did not suggest specific energy and water requirements for this new 
product class, stating that these details could be determined during 
the course of the rulemaking. (CEI Petition, No. 0006 at p. 1)
    On April 24, 2018, DOE published a notice of receipt of CEI's 
petition for rulemaking. 83 FR 17768 (April 2018 Notice of Petition for 
Rulemaking). DOE requested comments on the petition, as well as any 
data or information that could be used in DOE's determination whether 
to proceed with the petition.

B. Summary of Public Comments

    In response to the April 2018 Notice of Petition for Rulemaking, 
DOE received a wide range of comments, including comments from an 
industry association and dishwasher manufacturers, a state agency and 
state officials, consumer organizations, utilities, energy efficiency 
advocates, and individuals. Comments both favored and opposed granting 
CEI's petition for rulemaking.
    The Association of Home Appliance Manufacturers (AHAM) stated that 
at this time, a separate product class is not justified, because 
consumers already have access to shorter cycles, and that a new product 
class with less stringent standards would cause stranded investments 
and additional costs for manufacturers. (AHAM, No. 2233 at p. 1) AHAM 
indicated, however, that lengthening cycle time is a ``critical 
consumer welfare and policy issue . . . of enormous significance for 
future, possible DOE dishwasher energy conservation standards 
rulemakings.'' (AHAM, No. 2233 at p. 2) Danby, Sub-Zero, and GE 
Appliances expressed support for AHAM's comments. (Danby, No. 1785 at 
p. 2; Sub-Zero, No. 2235 at p. 1; GE Appliances, No. 1801 at p. 1)
    The California Energy Commission (CEC) opposes the CEI petition, 
commenting that a short-cycle dishwasher does not meet the statutory 
requirements for establishing a separate product class and additionally 
that the anti-backsliding provision would prohibit establishing a less 
stringent standard for any such product class. (CEC, No. 2247 at p. 1) 
CEC commented that cycle times already exceeded one hour prior to the 
establishment of an energy conservation standard by Congress and that 
information provided by CEI does not demonstrate any causal 
relationship between cycle time and energy conservation standards. 
(CEC, No. 2247 at pp. 6-7) The State Attorneys General from Arizona, 
Arkansas, Louisiana, Oklahoma, and South Carolina (State Attorneys 
General) commented in support of the petition stating that it would 
provide improved

[[Page 33871]]

consumer choice. (State Attorneys General, No. 2238 at p. 1)
    The California Investor Owned Utilities \2\ (CA IOUs) recommended 
DOE reject the petition, commenting that a separate product class for 
dishwashers with a shorter cycle is not permissible under statute and 
that longer cycle time is not being driven by energy conservation 
standards. (CA IOUs, No. 1800 at pp. 1 and 3)
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    \2\ The CA IOUs are the Pacific Gas and Electric Company, 
Southern California Gas Company, San Diego Gas and Electric, and 
Southern California Edison.
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    The Consumers Union recommended that DOE deny the CEI petition for 
rulemaking, stating that there is no need for a separate product class 
and such a product class would risk undermining the current energy 
efficiency standard. (Consumers Union, No. 2250 at p. 1) The Sixty Plus 
Association supports the CEI petition to reduce the cycle time of 
dishwashers to reduce the costs associated with the time and 
electricity it takes to perform the current dishwasher cycles.\3\ 
(Sixty Plus, No. 2230 at p. 1)
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    \3\ Sixty Plus Association also discussed the approved 
collection of information under Paperwork Reduction Act for the DOE 
Appliance Standards Program (OMB Control Number 1910-1400), which 
includes reporting requirements for manufacturers of dishwashers for 
the purpose of certifying compliance with the applicable standards. 
(Sixty Plus, No. 2230 at pp. 1-2) To the extent that establishment 
of a new product class for dishwashers would require a change in the 
current burden hours associated with compliance with the dishwasher 
energy conservation standards, DOE would address such change in a 
separate notice and provide additional opportunity for comment.
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    The Northwest Energy Efficiency Alliance (NEEA) stated that based 
on the data it submitted, DOE cannot conclude that even a small number 
of households would place any value on a dishwasher that can wash 
dishes in an hour or less. (NEEA, No. 1789-1 at p. 2) The Appliance 
Standards Awareness Project, Consumer Federation of America, Natural 
Resources Defense Council, and Northeast Energy Efficiency Partnerships 
(Joint Commenters); Earthjustice and Sierra Club; and the Northwest 
Power and Conservation Council (NPCC) recommended that DOE deny the CEI 
petition, stating that a product class for such dishwashers is not 
justified under 43 U.S.C. 6295(q) and would violate EPCA's anti-
backsliding provision. (Joint Commenters, No. 2237 at p. 1; 
Earthjustice and Sierra Club, No. 2245 at pp. 1-2; NPCC, No. 2232 at p. 
1) NPCC stated that a separate product class as requested by CEI would 
increase uncertainty in utility resource planning. (NPCC, No. 2232 at 
p. 1) The Joint Commenters stated that the energy conservation 
standards have not been the main driver in increased cycle times, 
noting that based on the data submitted by CEI, the greatest increase 
in cycle time occurred during a long period when no new standards were 
adopted. (Joint Commenters, No. 2237 at p. 3) The Joint Commenters 
added that the increase in cycle time was likely the result of 
manufacturer design choices intended to improve washing performance, 
detergent changes, and consumer demand for quiet and efficient 
machines. (Joint Commenters, No. 2237 at p. 3)
    DOE also received numerous comments from individuals that addressed 
a wide range of issues.\4\ Some of the comments explicitly supported 
CEI's petition for rulemaking. Other comments expressed general 
disapproval with energy efficiency standards for appliances, 
dissatisfaction with the current cycle times and cleaning performance 
of dishwashers as compared to previously available models, as well as 
support for energy efficient dishwashers. One individual stated that 
the petition has not demonstrated that cycle time is a utility feature 
that warrants a separate product class. The commenter stated that a 
review of manufacturer literature shows that at least eight appliance 
manufacturers offer consumer-selected cycles with a duration of less 
than one hour and that having the option to select at least one cycle 
with a duration of an hour or less would seem to satisfy the 
petitioner's request. The commenter also expressed the view that 
standards for the product class requested by the petitioner would need 
to meet or exceed currently applicable dishwasher standards to satisfy 
EPCA's anti-backsliding provision. (McCabe, No. 0004 at 1-2)
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    \4\ Comments are available at https://www.regulations.gov/docketBrowser?rpp=25&so=DESC&sb=commentDueDate&po=0&dct=PS&D=EERE-2018-BT-STD-0005.
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II. Authority To Establish a Separate Class of Dishwashers

    In evaluating CEI's petition and proposing to establish a separate 
product class for dishwashers that wash and dry dishes in less than an 
hour, DOE has determined that under 42 U.S.C. 6295(q), dishwashers with 
a ``normal cycle'' time of less than one hour as described by CEI have 
a performance-related feature that other dishwashers do not have and 
that justifies a separate product class subject to a higher or lower 
standard than that currently applicable to dishwashers. In any 
rulemaking to establish energy conservation standards for such a 
product class, DOE would be required to consider EPCA's anti-
backsliding provision at 42 U.S.C. 6295(o)(1). DOE addresses these 
issues below.

A. Separate Product Class--One-Hour Normal Cycle

    CEI petitioned DOE to establish a separate product class for 
dishwashers that have a cycle time of less than one hour from washing 
through drying. (CEI Petition, No. 0006 at p. 1) Under the current test 
procedure and energy conservation standards, dishwashers are tested and 
evaluated for compliance when operated on the ``normal cycle.'' 
Appendix C1, sections 2.6.1, 2.6.2, 2.6.3. ``Normal cycle'' is the 
cycle, including washing and drying temperature options, recommended in 
the manufacturer's instructions for daily, regular, or typical use to 
completely wash a full load of normally soiled dishes, including the 
power-dry setting. Appendix C1, section 1.12. Manufacturers may add 
additional cycles to dishwashers, but those additional cycles are not 
tested. Although CEI's initial petition did not specify the cycle that 
would be limited to one hour under the separate product class, CEI 
provided information supplemental to its petition clarifying the 
request for a new product class for dishwashers for which the normal 
cycle is less than one hour.\5\
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    \5\ See document ID EERE-2018-BT-STD-0005-0007 available on 
http://www.regulations.gov.
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    EPCA directs that when prescribing an energy conservation standard 
for a type (or class) of a covered product DOE must specify--
    [A] level of energy use or efficiency higher or lower than that 
which applies (or would apply) for such type (or class) for any group 
of covered products which have the same function or intended use, if 
DOE determines that covered products within such a group--
    (A) consume a different kind of energy from that consumed by other 
covered products within such type (or class); or
    (B) have a capacity or other such performance-related feature which 
other products within such type (or class) do not have and such feature 
justifies a higher or lower standard from that which applies (or will 
apply) to other products within such type.
    In making a determination concerning whether a performance-related 
feature justifies the establishment of a higher or lower standard, DOE 
must consider such factors as the utility to the consumer of such a 
feature, and such other factors as DOE deems appropriate.

[[Page 33872]]

(42 U.S.C. 6295(q)(1))
    In prior rulemakings, DOE has taken the view that utility is an 
aspect of the product that is accessible to the layperson and based on 
user operation, rather than performing a theoretical function. This 
interpretation has been implemented in DOE's previous determinations of 
utility through the value the particular feature brings to the 
consumer, rather than through analyzing more complicated design 
features or costs that anyone, including the consumer, manufacturer, 
installer, or utility companies may bear. DOE has determined that this 
approach is consistent with EPCA requiring a separate and extensive 
analysis of economic justification for the adoption of any new or 
amended energy conservation standard. 80 FR 13120, 13137 (Mar. 12, 
2015); 81 FR 65720, 65752-65755 (Sept, 23, 2016). Under this approach, 
DOE determined that the window in an oven door was a ``feature'' 
justifying a different standard.\6\ Similarly, DOE also determined that 
consumers may value other features such as the ability to self-
clean,\7\ size,\8\ and configuration.\9\ In contrast, DOE determined 
that water heaters using electric resistance technology did not merit a 
product class separate from water heaters using heat pump 
technology.\10\ In both heat-pump and electric storage water heaters, 
the same utility (hot water) was provided by units using different 
technology.
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    \6\ 63 FR 48038, 48041 (Sept. 8, 1998).
    \7\ 73 FR 62034, 62048 (Oct. 17, 2008) (separating standard and 
self-cleaning ovens into different product classes).
    \8\ 77 FR 32037, 32319 (May 31, 2012) (creating a separate 
product class for compact front-loading residential clothes 
washers).
    \9\ 75 FR 59469 (Sept. 27, 2010) (creating a separate product 
class for refrigerators with bottom-mounted freezers).
    \10\ 74 FR 65852, 65871 (Dec. 11, 2009).
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    In a rulemaking to amend standards applicable to commercial clothes 
washers, DOE determined that the ``axis of loading'' constituted a 
feature that justified separate product classes for top loading and 
front loading clothes washers. DOE also determined that ``the longer 
average cycle time of front-loading machines warrants consideration of 
separate [product] classes,''. 79 FR 74492, 74498 (Sept. 15, 2014). DOE 
stated that a split in preference between top loaders and front loaders 
would not indicate consumer indifference to the axis of loading, but 
rather that a certain percentage of the market expresses a preference 
for (i.e., derives utility from) the top-loading configuration. DOE 
further noted that separation of clothes washer equipment classes by 
location of access is similar in nature to the equipment classes for 
residential refrigerator-freezers, which include separate product 
classes based on the access of location of the freezer compartment 
(e.g., top mounted, side-mounted, and bottom-mounted). The location of 
the freezer compartment on these products provides no additional 
performance-related utility other than consumer preference. In other 
words, the location of access itself provides distinct consumer 
utility. Id. at 79 FR 74499. DOE also reasoned that top-loading 
residential clothes washers are available with the same efficiency 
levels, control panel features, and price points as front-loading 
residential clothes washers, and that given these equivalencies, 
purchase of top loaders indicates a preference among certain consumers 
for the top-loading configuration, i.e., the top-loading configuration 
provides utility to those customers preferring one configuration over 
another, with all other product attributes being equal. Id.
    DOE acknowledged that its determination of what constitutes a 
performance-related feature justifying a different standard could 
change depending on the technology and the consumer, and that as a 
result, certain products may disappear from the market entirely due to 
shifting consumer demand. DOE determines such value on a case-by-case 
basis through its own research as well as public comments received, the 
same approach that DOE employs in all other parts of its energy 
conservation standards rulemaking. (80 FR 13120, 13138, Mar. 12, 2015).
    DOE applies this same approach to dishwashers in this proposed 
rule. Specifically, data provided by CEI indicate that dishwasher cycle 
times have increased significantly, from an average cycle time of 69 
minutes in 1983 (the first year data was submitted) to 140 minutes in 
2018. (CEI Petition, No. 0006, supporting data). In addition, while 
some consumers commented that they were not concerned with a shorter 
cycle time, a significant number of consumers expressed dissatisfaction 
with the amount of time necessary to run their dishwashers. (See docket 
for this rulemaking at https://www.regulations.gov/docket?D=EERE-2018-BT-STD-0005). The data and comments from dissatisfied consumers 
indicate that for many consumers, there is a utility in shorter cycle 
times to clean a normally-soiled load of dishes. Based on all of the 
comments, data and information received, DOE concludes, similar to its 
conclusion with respect to clothes washers, that cycle time for 
dishwashers is a performance-related feature for purposes of 6295(q) 
that justifies a higher or lower standard than that applicable to other 
dishwasher product classes. The average cycle time of 69 minutes 
specified in CEI's data for 1983 is just slightly longer than the 60 
minutes offered in its petition, supporting DOE's proposal to establish 
a product class for dishwashers with a normal cycle of less than 1 
hour. DOE seeks comment, however, on whether the one hour timeframe 
should be adjusted to avoid inadvertently eliminating dishwashers with 
short cycle times of, for example, 70-75 minutes or some other 
timeframe shorter than the current 140 minute average cycle time 
represented in CEI's data for 2018, so that DOE may consider whether a 
different cycle time is appropriate in the final rule.

B. EPCA's Anti-Backsliding Provision

    In any rulemaking to establish standards for a separate product 
class as described in CEI's petition, DOE must consider EPCA's general 
prohibition against prescribing ``any amended standard which increases 
the maximum allowable energy use, or, in the case of showerheads, 
faucets, water closets, or urinals, water use, or decreases the minimum 
required energy efficiency, of a covered product.'' (42 U.S.C. 
6295(o)(1); the ``anti-backsliding provision'') The anti-backsliding 
provision must be read in conjunction with the authority provided to 
DOE in 42 U.S.C. 6295(q) to specify ``a level of energy use or 
efficiency higher or lower than that which applies (or would apply) for 
such type or class . . .'' if the Secretary determines that covered 
products within such group consume a different type of energy or have a 
capacity or other performance-related feature that justifies ``a higher 
or lower standard from that which applies (or will apply) to other 
products within such type (or class).'' 42 U.S.C. 6295(q) (emphasis 
added). EPCA explicitly acknowledges, therefore, that product features 
may arise that require designation of a product class with a standard 
lower than that applicable to other product classes for that covered 
product.
    Specifically, by using the present tense, ``a higher or lower 
standard than that which applies,'' EPCA authorizes DOE to reduce the 
stringency of the standard currently applicable to the products covered 
under the newly established separate product class. The applicability 
of this provision to current standards is further evidenced by the 
additional reference to standards that are not yet applicable (i.e., 
standards

[[Page 33873]]

that ``would apply.'') If 42 U.S.C. 6295(q)(1) were only to operate in 
instances in which standards have not yet been established, there would 
be no need to separately indicate the applicability to future 
standards. Nor would there be any purpose to calling out the potential 
for higher or lower standards since there would not be any standards 
against which to measure that potential. In this manner, 42 U.S.C. 
6295(q) authorizes DOE to reduce the stringency of a currently 
applicable standard upon making the determinations required by 42 
U.S.C. 6295(q).
    This reading of the statutory text recognizes that section 6295(q) 
of EPCA cannot be read to prohibit DOE from establishing standards that 
allow for technological advances or product features that could yield 
significant consumer benefits while providing additional functionality 
(i.e., consumer utility) to the consumer. DOE relied on this concept 
when, in 2011, DOE established separate energy conservation standards 
for ventless clothes dryers, reasoning that the ``unique utility'' 
presented by the ability to have a clothes dryer in a living area where 
vents are impossible to install (i.e., a high-rise apartment) merited 
the establishment of a separate product class. 76 FR 22454, 22485 (Apr. 
21, 2011). Another example of this that DOE is just beginning to 
explore is network connectivity of covered products. See DOE's Smart 
Products RFI at 83 FR 46886 (Sept. 18, 2018). Network connectivity is a 
technology that has only recently begun to appear on the market. 
Moreover, it clearly has a desirable consumer utility and is a fast-
growing feature of new models of covered products. However, network 
connectivity comes with attendant energy use. EPCA's anti-backsliding 
provision cannot be read to prohibit DOE from establishing standards 
that allow for covered products to be connected to a network simply 
because standards for those products were established prior to the time 
that network connectivity was even contemplated, and thereby 
eliminating the ability to implement this consumer-desired option. 
Similarly, for dishwashers, 42 U.S.C. 6295(q) authorizes DOE to 
establish standards for product features that provide consumer utility, 
such as shorter cycle times.
    This interpretation is consistent with DOE's previous recognition 
of the importance of technological advances that could yield 
significant consumer benefits in the form of lower energy costs while 
providing the same functionality to the consumer. 80 FR 13120, 13138 
(Mar. 12, 2015); 81 FR 65720, 65752 (Sept. 23, 2016). In the proposed 
and supplemental proposed rule to establish standards for residential 
furnaces, DOE stated that tying the concept of feature to a specific 
technology would effectively ``lock-in'' the currently existing 
technology as the ceiling for product efficiency and eliminate DOE's 
ability to address such technological advances. Id.
    Further, EPCA's anti-backsliding provision is limited in its 
applicability with regard to water use to four specified products, 
i.e., showerheads, faucets, water closets, or urinals. DOE's existing 
energy conservation standard for dishwashers is comprised of both 
energy and water use components. As dishwashers are not one of the 
products listed in anti-backsliding provision with respect to water 
use, there is no prohibition on DOE specifying a maximum amount of 
water use for dishwashers that is greater than the existing standard 
without regard to whether DOE were to establish a separate product 
class for dishwashers as proposed in this proposed rule.
    Finally, DOE recognizes that 42 U.S.C. 6295(o)(4) prohibits DOE 
from establishing standards that would result in the unavailability of 
any covered product type (or class) of performance characteristics 
(including reliability), features, sizes, capacities and volumes that 
are substantially the same as those generally available at the time of 
the Secretary's finding. CEI makes the point that despite this 
prohibition, it appears that dishwasher cycle times have been impaired 
by the DOE standards and that many machines with shorter cycle times 
are no longer available. (CEI Petition, No. 0006 at p. 4) Section 
6295(q) of EPCA authorizes DOE to set standards that recognize new 
technologies and product features, or in this case, features that are 
no longer available in the market. This reading of the statute is 
consistent with DOE's previous acknowledgement that its determination 
of what constitutes a performance-related feature justifying a 
different standard could change depending on the technology and the 
consumer utility, and that as a result, certain products may disappear 
from (or in the case of dishwashers, reappear in) the market entirely 
due to shifting consumer demand. This reading is also consistent with 
DOE's statements that DOE determines this value on a case-by-case basis 
through its own research as well as public comments received. (80 FR 
13120, 13138, Mar. 12, 2015). In addition, once DOE makes a 
determination that a certain product attribute is a feature, DOE cannot 
later set a standard that would eliminate that feature.

III. Conclusion

    After reviewing CEI's petition and comments received on the 
petition, DOE has concluded it has legal authority to establish a 
separate product class as suggested by CEI pursuant to 42 U.S.C. 
6295(q). DOE proposes to establish a separate product class for 
dishwashers with a cycle time of the cycle recommended by the 
dishwasher manufacturer for daily, regular, or typical use to 
completely wash and dry a full load of normally soiled dishes (i.e., 
the normal cycle time) of less than one hour. DOE will consider energy 
conservation standards in a separate rulemaking, should such a product 
class (or classes) be established.
    DOE also proposes to update the requirements for the dishwasher 
standards in 10 CFR 430.32(f). The current requirement includes a table 
that specifies the obsolete energy factor requirements for standard and 
compact dishwashers. This table was intended to be removed in a final 
rule for dishwasher energy conservation standards published on December 
13, 2016, but was inadvertently retained by the amendatory instructions 
for paragraph (f). 81 FR 90072, 90120. DOE proposes to remove this 
table and add a new paragraph (f)(1)(iii) that specifies standard 
dishwashers with a normal cycle of 60 minutes or less are not currently 
subject to energy or water conservation standards. Additionally, DOE 
proposes to amend paragraphs (f)(1)(i) and (f)(1)(ii) to clarify the 
terms ``standard'' and ``compact'' and to include reference to the 
ANSI/AHAM DW-1-2010 standard, which is the current industry standard 
referenced in the dishwasher test procedure at 10 CFR part 430, subpart 
B, appendix C1.

IV. Rulemaking Overview and Response to Comments

A. Rulemaking Overview

    DOE proposes to establish a separate product class or classes 
pursuant to 42 U.S.C. 6295(q)(1) for dishwashers with a cycle time of 
the cycle recommended by the dishwasher manufacturer for daily, 
regular, or typical use to completely wash and dry a full load of 
normally soiled dishes (i.e., the normal cycle time) of less than one 
hour. DOE seeks comment on other potential time limits or utilities to 
delineate the separate product class. DOE also seeks comment on whether 
a short-cycle product class should be established for standard

[[Page 33874]]

dishwashers, compact dishwashers, or both.
    Should DOE finalize a separate product class, DOE would then 
evaluate energy and water consumption limits to determine a standard 
for the product class that provides for the maximum energy efficiency 
that is technologically feasible and economically justified, and will 
result in a significant conservation of energy. (42 U.S.C. 
6295(o)(2)(A)) DOE will provide additional opportunity for comment on 
any proposed energy conservation standard for short-cycle dishwashers.

B. Response to Comments

    AHAM commented that while it did not currently support a separate 
product class for dishwashers with cycle times of one hour or less, CEI 
raised a ``critical consumer welfare and policy issue'' that is of 
``enormous significance for future, possible DOE dishwasher energy 
conservation standards rulemakings. AHAM noted that AHAM had raised 
lengthening cycle times for the normal cycle as a concern in a previous 
dishwasher rulemaking. (AHAM, No. 2333 at p. 2-4) Earthjustice and 
Sierra Club commented that DOE has already considered the utility of 
cycle time in prior rulemakings, finding that the current energy 
conservation standards do not impermissibly impact utility. 
(Earthjustice and Sierra Club, No. 2245 at p. 3)
    AHAM cited U.S. Energy Information Administration's (EIA) 
Residential Energy Conservation Survey (RECS) 2015 data, that show over 
80 percent of U.S. households use the normal cycle. (AHAM, No. 2333 at 
p. 3) Consumers Union cited its Consumer Reports' 2017 Spring 
Dishwashers Survey of 74,880 Consumer Reports members who purchased a 
new dishwasher between 2007 and 2017, in which it found: 87 percent of 
survey respondents reported that their most frequently used cycle was 
the either the ``Normal/Regular'' or ``Auto/Smart'' cycle, and 66 
percent of respondents reported using the ``Normal/Regular'' cycle more 
than 50 percent of the time; only 6 percent of survey respondents 
reported that their most frequently used cycle was the ``Quick/Express/
1-hour'' cycle; 27 percent of survey respondents reported using the 
``Quick/Express/1-hour'' cycle at least some of the time, and the 
reported usage of the ``Quick/Express/1-hour'' cycle was similar to 
reported usage of other non-normal cycles such as ``Heavy Duty'' or 
``Pots & Pans.'' (Consumers Union, No. 2250 at p. 2) In response to an 
inquiry from CEI, Consumers Union stated that it had not yet decided 
whether to publish the survey results and underlying methodology on 
which these numbers are based.
    The Joint Commenters and NEEA cited data from the Residential 
Building Stock Assessment showing that there are two peaks in daily 
dishwasher use, one around breakfast time and a larger one around 
dinner time. (Joint Commenters, No. 2237 at p. 2; NEEA, No. 1789-2 at 
p. 2) Similarly, the CA IOUs stated that 55 percent of dishwashers were 
run after 5 p.m., 28 percent between 9 a.m. and 5 p.m., and 17 percent 
before 9 a.m., suggesting that cycle time does not have a significant 
impact on consumer utility. (CA IOUs, No. 1800 at p. 5) GE Appliances 
stated that data based on its Wi-Fi enabled dishwashers indicate that 
most consumers run the dishwasher in the evening after dinner time and 
that the average consumer waits approximately eight hours after the 
cycle is complete to unload the dishes, indicating that cycle time is 
not a primary concern for many consumers. (GE Appliances, No. 1801 at 
p. 2) Both NEEA and CA IOUs further stated that there did not appear to 
be any cases where multiple, consecutive loads were run, indicating 
that multiple loads are a relatively rare event and do not need to be 
accounted for. (NEEA, No. 1789-2 at p. 4; CA IOUs, No. 1800 at p. 5)
    The Joint Commenters stated that if cycle time was highly valued by 
consumers, it would be expected that most dishwashers would consume as 
much energy and water as is allowed by the minimum standards in order 
to reduce cycle time as much as possible, but that data show that 
almost all dishwasher sales meet ENERGY STAR requirements. (Joint 
Commenters, No. 2237 at p. 6) Earthjustice and Sierra Club commented 
that in DOE's prior analyses, it identified technologies that could 
provide improved cycle times while still enabling the dishwasher to 
meet the energy conservation standard (e.g., soil sensors and 
alternative drying technologies), and that if consumers were demanding 
shorter cycle times, such technologies would be widely adopted. 
(Earthjustice and Sierra Club, No. 2245 at pp. 3-4)
    A significant number of consumers, by contrast, indicated 
dissatisfaction with the length of time the dishwasher took to clean 
dishes. (See docket for this rulemaking at https://www.regulations.gov/docket?D=EERE-2018-BT-STD-0005.) Approximately a third of the more than 
2,000 commenters responding to the RFI referenced the extensive length 
of time required for the dishwasher to run a normal cycle. One 
commenter stated that their ``new dishwasher takes 219 minutes to 
complete a cycle . . . far too long and the dishes don't seem to be as 
clean as with the old unit.'' (Ballard, No. 1827 p. 1) A number of 
commenters stated that they choose not to use their dishwasher because 
of the length of time it takes to clean dishes. One individual noted 
that they no longer own a dishwasher, and instead prefer to wash dishes 
by hand as it is ``faster than waiting the 2 to 4 hours for the washing 
cycle to complete,'' (Harvey, No. 2227 p. 1)), another commenter noted 
that they have ``resort[ed] to disposable plates and utensils due to 
current dishwasher specs'' including a ``run cycle [of] four hours,'' 
(Weingrad, No. 85 p. 1), while a third commenter stated that they 
stopped using their dishwasher because ``it takes so long . . . to do 
the job . . . and . . . raised the utilities so much that we can't 
afford to use them,'' (Cravens, No. 54 p. 1).
    In response to commenters, DOE refers to its discussion in section 
II.A. on the utility of cycle time. As described, data provided by CEI 
indicates that dishwasher cycle times have increased significantly, 
from an average cycle time of 69 minutes in 1983 (the first year data 
was submitted) to 140 minutes in 2018. (CEI Petition, No. 0006, 
supporting data). In addition, while some consumers commented that they 
were not concerned with a shorter cycle time, a significant number of 
consumers commented to express dissatisfaction with the amount of time 
necessary to run their dishwashers. (See docket for this rulemaking at 
https://www.regulations.gov/docket?D=EERE-2018-BT-STD-0005.) Contrary 
to the assertions of some commenters that the available data on when 
dishwashers are run (i.e., typically after breakfast or in the evening) 
suggest that cycle time is of little utility, a different 
interpretation could be that consumers already know that their 
dishwasher will take a long time to run, and therefore decide to wait 
and run it before bed and empty it in the morning, regardless of 
whether they would prefer to run it at a different time. The data and 
numerous comments from consumers dissatisfied with the length of time 
it takes to run their dishwasher indicate that for some significant 
percentage of consumers, there is a utility in shorter cycle times to 
clean a normally-soiled load of dishes.
    Additionally, the data referenced by Consumers Union and AHAM do 
not indicate if and to what extent a segment of consumers relies on a 
reduced-time cycle for their typical dishwasher usage, or what 
percentage of consumers would rely on a reduced-time cycle if it were 
available in the ``normal cycle''. The

[[Page 33875]]

data submitted by Consumers Union nonetheless indicate that there is a 
segment of dishwasher consumers that rely on a reduced-time cycle as 
the ``most frequently used'' cycle and as the cycle used ``some of the 
time,'' suggesting that some portion of consumers finds utility in a 
reduced cycle time. What is not clear from the data is whether an even 
larger percentage of consumers would find such utility if the reduced 
cycle time were offered in the normal cycle.
    The time-of-day data submitted by CA IOUs and NEEA do not indicate 
the cycle being chosen by consumers and do not indicate whether a 
segment of consumers chooses to operate dishwashers on reduced-time 
cycles. While commenters interpret the time-of-day data to show that a 
percentage of dishwasher use occurs when consumers may not be concerned 
with the length of the cycle, data also show that a percentage of 
dishwasher use occurs when length of cycle may be a concern (e.g., use 
in late afternoon prior to dinner). In addition, the data may also 
suggest a different interpretation than that offered by commenters--
i.e., that the reason the time-of-day data show dishwasher use after 
breakfast or dinnertime is because consumers who might otherwise wash 
their dishes at a more convenient time are choosing to start the cycle 
early in the day, or wait until late in the day, because they already 
know their dishwasher will take a long time to operate.
    Additionally, DOE does not find data indicating lack of consecutive 
dishwasher runs informative to its decision to propose a product class 
for short cycle dishwashers. The lack of consecutive runs does not 
indicate whether some consumers find utility in having a single load of 
dishes washed and dried in a shorter period of time. It also does not 
capture those consumers that may be unable to perform consecutive 
dishwasher runs because of the length of time it takes to perform a 
single run, requiring these consumers to rely on alternatives (e.g., 
washing dishes by hand).
    Commenters stated that in addition to the normal cycle, numerous 
dishwashers have a cycle that has a shorter cycle time. Consumers Union 
noted that the DOE test procedure requires testing of the normal cycle 
to meet the standards, but stated that manufacturers are free to add 
additional cycles that are not limited in energy and water consumption. 
(Consumers Union, No. 2250 at p. 2) The Joint Commenters pointed to 
several dishwashers on the market that advertise ``1-Hour,'' ``Turbo,'' 
and ``Short Wash'' cycles. (Joint Commenters, No. 2237 at pp. 1-2) AHAM 
commented that 86.7 percent of reported 2017 dishwasher shipments in a 
recent AHAM survey provided consumers with a cycle that can wash and 
dry the load in just over one hour. (AHAM, No. 2233 at p. 2) AHAM 
further commented that 96.5 percent of the reported shipments offering 
shorter cycles are ENERGY STAR-qualified, offering consumers energy and 
water efficiency on the normal cycle and the option to use a shorter 
cycle. (AHAM, No. 2233 at p. 3)
    While dishwashers may offer reduced-time cycles, such cycles are 
not the normal cycle; these cycles are not recommended, as DOE 
currently defines the normal cycle, by the manufacturer for daily, 
regular, or typical use to completely wash a full load of normally 
soiled dishes including the power-dry feature. CEI stated that, based 
on a review of user manuals, manufacturers intend the quick cycles to 
be for lightly soiled dishes rather than normally soiled loads. For 
example, CEI reports that the GE model PDT846SSJSS dishwasher has an 
express cycle that, according to its manual, ``will quickly wash 
lightly soiled dishes.'' The model's normal cycle ``is meant for daily, 
regular, or typical use to completely wash a full load of normally 
soiled dishes. . . .'' The Frigidaire model FGCD2456QF1B has a Quick 
Wash cycle which is ``for lightly soiled dishes and silverware.'' The 
manuals for other models also describe their express cycles as not 
suitable for normally soiled dishes, and none of these models 
reportedly have cycles for everyday use for normally soiled dishes that 
take only an hour to run (drying time included). CEI, Supplemental 
Information Regarding CEI's Petition for Rulemaking on a New Product 
Class of Fast Dishwashers (March 28, 2018) (citations omitted). The CEI 
petition therefore requested that DOE establish a product class that 
would cover dishwashers with a cycle time, for the cleaning of a full 
load of normally soiled dishes, of less than one hour from washing 
through drying.
    Consumer comment and survey results submitted by CEI indicate that 
some percentage of the market finds utility in a dishwasher that 
completely washes a full load of normally soiled dishes in a period of 
time less than that provided by the normal cycle of products currently 
offered. For these consumers, the utility of the dishwasher is not just 
the ability to have dishes cleaned in a short period of time, but that 
operation of the dishwasher as recommended by the manufacturer would 
provide such function. One commenter noted that their dishwasher 
``takes about two and a half hrs [sic] at the quickest cycle'' and does 
not ``clean as well as [she] would like.'' (Buchter, No. 0295 at p. 1) 
Similarly, one commenter indicated that ``[t]here is the option to 
cycle [the dishwasher] for 1 hour but that's not the recommended or 
best cycle,'' (Zahorchak, No. 1028 at p. 1), and another added that 
while their dishwasher ``has shorter cycles . . . [of] 2\1/2\ hours,'' 
these cycles ``do not get the dishes clean,'' (Bowen, No. 2191 at p. 
1).

V. Request for Comments, Data and Information

    In this rulemaking, DOE proposes to establish a separate product 
class for dishwashers with a cycle time of the cycle recommended by the 
dishwasher manufacturer for daily, regular, or typical use to 
completely wash and dry a full load of normally soiled dishes (i.e., 
the normal cycle time) of less than one hour. To inform its 
consideration of the proposal and any future energy conservation 
standards for such dishwashers, DOE requests additional data, including 
shipments data, on the cycle time of the normal cycle of dishwashers 
(both standard dishwashers and compact dishwashers) currently on the 
market. DOE also requests data on the cycle time of reduced-time cycles 
currently offered on standard and compact dishwashers and corresponding 
shipments data, as well as the energy and water use of the reduced-time 
cycles. DOE requests comment on whether any current technologies could 
provide a ``normal'' wash and dry cycle in less than one hour and that 
would allow a dishwasher to comply with the current energy conservation 
standards, and whether such technologies are available for standard and 
compact dishwashers.
    In its petition, CEI requested use of a one-hour limit on the cycle 
time to define the new product class of dishwashers. (CEI, No. 0006 at 
p. 5) CEI stated that it was requesting one hour as the defining 
characteristic for a new dishwasher class because this cycle time is 
substantially below the normal cycle time for all current products on 
the market. Id. DOE seeks comment on whether the 60 minutes offered by 
CEI in its petition or some other length of time is appropriate to 
delineate the short cycle product class.
    To better understand the extent of the utility a short cycle would 
potentially provide consumers, DOE requests comment and data for each 
current product class on consumer use of reduced-time cycles as a 
percentage of individual consumer dishwasher use, the cycle time of the 
reduced-time

[[Page 33876]]

cycles selected, and the cycle time of the normal cycle of that 
dishwasher. DOE also requests information on the operating demands that 
may favor shorter cycle times. DOE also asks for data and information 
on how dishwashers with express or quick wash cycles operate and how 
those cycles compare to a ``normal cycle'' with regard to cleaning 
dishes.
    If DOE were to establish a separate product class (or classes) for 
dishwashers with a cycle time of the cycle recommended by the 
dishwasher manufacturer for daily, regular, or typical use to 
completely wash and dry a full load of normally soiled dishes (i.e., 
the normal cycle time) of less than one hour, DOE would then determine 
the maximum improvement in energy or water efficiency that is 
technologically feasible and economically justified, and would result 
in a significant conservation of energy, in order to establish an 
energy conservation standard for such dishwashers. (42 U.S.C. 6295(o)) 
In analyzing the feasibility of potential energy conservation 
standards, DOE uses information about existing and past technology 
options and prototype designs to help identify technologies that 
manufacturers could use to meet and/or exceed a given set of energy 
conservation standards under consideration.
    DOE seeks information on technologies currently used or that could 
be used to achieve cycles with reduced time. DOE is interested in 
information regarding their market adoption, costs, and any concerns 
with incorporating them into products (e.g., impacts on consumer 
utility, potential safety concerns, manufacturing/production/
implementation issues, etc.). DOE also seeks information on the range 
of efficiencies or performance characteristics that are associated with 
each technology option.
    DOE also seeks input on the costs associated with incorporating 
particular technologies and/or design options. DOE requests information 
on the investments necessary to incorporate specific technologies and 
design options, including, but not limited to, costs related to new or 
modified tooling (if any), materials, engineering and development 
efforts to implement each design option, and manufacturing/production 
impacts.
    DOE has identified a variety of issues on which it seeks input in 
this rulemaking to establish a separate product class or classes and 
the appropriate energy conservation standard for such a product class 
(or classes) should it be established. Additionally, DOE welcomes 
comments on other issues relevant to the conduct of this rulemaking 
that may not specifically be 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). Consistent with that 
Executive Order, DOE encourages the public to provide input on measures 
DOE could take to lower the cost of its energy conservation standards 
rulemakings, recordkeeping and reporting requirements, and compliance 
and certification requirements applicable to dishwashers while 
remaining consistent with the requirements of EPCA.

VI. Submission of Comments

    DOE invites all interested parties to submit in writing by 
September 16, 2019, comments and information on matters addressed in 
this notice and on other matters relevant to DOE's consideration of a 
separate product class or classes for dishwashers with a cycle time of 
the cycle recommended by the dishwasher manufacturer for daily, 
regular, or typical use to completely wash and dry a full load of 
normally soiled dishes (i.e., the normal cycle time) of less than one 
hour. DOE also seeks comment on potential energy conservations 
standards for such a class of dishwashers should one be established. 
After the close of the comment period, DOE will review the public 
comments received and begin collecting data and conducting the analyses 
necessary to consider appropriate energy conservation standard levels.
    Submitting comments via http://www.regulations.gov. The http://www.regulations.gov web page requires you to provide your name and 
contact information. Your contact information will be viewable to DOE 
Building Technologies Office 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 on 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, 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

[[Page 33877]]

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. According 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 to 
[email protected] 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).
    DOE considers public participation to be a very important part of 
the process for developing energy conservation standards. DOE actively 
encourages the participation and interaction of the public during the 
comment period in each stage of the rulemaking process. Interactions 
with and between members of the public provide a balanced discussion of 
the issues and assist DOE in the rulemaking process. Anyone who wishes 
to be added to the DOE mailing list to receive future notices and 
information about this process or would like to request a public 
meeting should contact Appliance and Equipment Standards Program staff 
at (202) 287-1445 or via email at 
[email protected].

VII. Procedural Requirements

A. Review Under Executive Order 12866, ``Regulatory Planning and 
Review''

    This proposed rule is not a ``significant regulatory action'' under 
any of the criteria set out in section 3(f) of Executive Order 12866, 
``Regulatory Planning and Review.'' 58 FR 51735 (October 4, 1993). 
Accordingly, this action was not subject to review by the Office of 
Information and Regulatory Affairs (``OIRA'') in the Office of 
Management and Budget (``OMB'').

B. Review Under Executive Orders 13771 and 13777

    On January 30, 2017, the President issued Executive Order 13771, 
``Reducing Regulation and Controlling Regulatory Costs.'' That Order 
stated the policy of the executive branch is to be prudent and 
financially responsible in the expenditure of funds, from both public 
and private sources. The Order stated it is essential to manage the 
costs associated with the governmental imposition of private 
expenditures required to comply with Federal regulations.
    Additionally, on February 24, 2017, the President issued Executive 
Order 13777, ``Enforcing the Regulatory Reform Agenda.'' The Order 
required the head of each agency designate an agency official as its 
Regulatory Reform Officer (RRO). Each RRO oversees the implementation 
of regulatory reform initiatives and policies to ensure that agencies 
effectively carry out regulatory reforms, consistent with applicable 
law. Further, E.O. 13777 requires the establishment of a regulatory 
task force at each agency. The regulatory task force is required to 
make recommendations to the agency head regarding the repeal, 
replacement, or modification of existing regulations, consistent with 
applicable law. At a minimum, each regulatory reform task force must 
attempt to identify regulations that:
    (i) Eliminate jobs, or inhibit job creation;
    (ii) Are outdated, unnecessary, or ineffective;
    (iii) Impose costs that exceed benefits;
    (iv) Create a serious inconsistency or otherwise interfere with 
regulatory reform initiatives and policies;
    (v) Are inconsistent with the requirements of Information Quality 
Act, or the guidance issued pursuant to that Act, in particular those 
regulations that rely in whole or in part on data, information, or 
methods that are not publicly available or that are insufficiently 
transparent to meet the standard for reproducibility; or
    (vi) Derive from or implement Executive Orders or other 
Presidential directives that have been subsequently rescinded or 
substantially modified.
    DOE has determined that this proposed rule is consistent with these 
Executive Orders. The proposed rule grants a petition submitted to DOE 
by the Competitive Enterprise Institute requesting that DOE establish a 
product class for dishwashers with ``normal cycle'' times of one hour 
or less from washing through drying. CEI asserted in its petition that 
``dishwasher cycle times have become dramatically worse under DOE 
standards, and consumer satisfaction has dropped as a result.'' (CEI, 
No. 6 at p. 1) This proposed rule, if adopted, would establish the 
product class requested by CEI. DOE also seeks data to assist its 
determination of the appropriate standard levels for such product class 
in a subsequent rulemaking.

C. Review Under the Regulatory Flexibility Act

    The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires 
preparation of an initial regulatory flexibility analysis 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 rulemaking process. 68 FR 7990. The Department 
has made its procedures and policies available on the Office of General 
Counsel's website: http://energy.gov/gc/office-general-counsel. This 
proposed rule revises the Code of Federal Regulations to incorporate, 
without substantive change, statutorily-imposed definitional changes 
affecting coverage under current energy conservation standards, 
applicable timelines related to certain rulemaking

[[Page 33878]]

requirements, and related provisions prescribed by Public Law 115-78 
and Public Law 115-115, along with a separate correction to reflect the 
current language found in the statute. This rulemaking grants a 
petition from CEI to establish a product class for dishwashers with a 
``normal cycle'' of less than one hour from washing through drying. 
Appropriate standard levels would be established in a subsequent 
rulemaking. As a result, no economic impact is expected from the 
rulemaking.

D. Review Under the Paperwork Reduction Act of 1995

    This rulemaking, which proposes to establish a product class for 
dishwashers with a ``normal cycle'' of less than one hour from washing 
through drying but does not set standards or establish testing 
requirements for such dishwashers, imposes no new information or record 
keeping requirements. Accordingly, Office of Management and Budget 
clearance is not required under the Paperwork Reduction Act. (44 U.S.C. 
3501 et seq.)
    Manufacturers of covered products generally must certify to DOE 
that their products comply with any applicable energy conservation 
standards. To certify compliance, manufacturers must first obtain test 
data for their products according to the DOE test procedures, including 
any amendments adopted for those test procedures. DOE has established 
regulations for the certification and recordkeeping requirements for 
all covered consumer products and commercial equipment, including 
ceiling fans. (See generally 10 CFR part 429.) The collection-of-
information requirement for the 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.

E. Review Under the National Environmental Policy Act of 1969

    In this proposed rule, DOE proposes to establish a product class 
for dishwashers with a ``normal cycle'' of one hour or less from 
washing through drying. 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 only establish a new product class for dishwashers, 
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.

F. Review Under Executive Order 13132, ``Federalism''

    Executive Order 13132, ``Federalism,'' 64 FR 43255 (August 4, 
1999), imposes certain requirements on 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 accountable 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. EPCA governs and 
prescribes Federal preemption of State regulations as to energy 
conservation for the products that are 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) No 
further action is required by Executive Order 13132.

G. Review Under Executive Order 12988, ``Civil Justice Reform''

    With respect to the review of existing regulations and the 
promulgation of new regulations, section 3(a) of Executive Order 12988, 
``Civil Justice Reform,'' 61 FR 4729 (February 7, 1996), imposes on 
Federal agencies the general duty to adhere to the following 
requirements: (1) Eliminate drafting errors and ambiguity; (2) write 
regulations to minimize litigation; and (3) provide a clear legal 
standard for affected conduct rather than a general standard and 
promote simplification and burden reduction. 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 section 3(a) and section 3(b) to determine whether they 
are met or it is unreasonable to meet one or more of them. DOE has 
completed the required review and determined that, to the extent 
permitted by law, this rule meets the relevant standards of Executive 
Order 12988.

H. 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

[[Page 33879]]

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://www.gc.doe.gov). This proposed 
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 under the Unfunded Mandates Reform Act do not apply.

I. 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 proposed 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.

J. Review Under Executive Order 12630, ``Governmental Actions and 
Interference With Constitutionally Protected Property Rights''

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

K. Review Under the 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 (February 22, 2002), 
and DOE's guidelines were published at 67 FR 62446 (October 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.

L. Review Under Executive Order 13211, ``Actions Concerning Regulations 
That Significantly Affect Energy Supply, Distribution, or Use''

    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 the 
Office of Information and Regulatory Affairs (OIRA), Office of 
Management and Budget, a Statement of Energy Effects for any proposed 
significant energy action. A ``significant energy action'' is defined 
as any action by an agency that promulgates 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. 
This proposed rule, which would establish a product class for 
dishwashers with a ``normal cycle'' of one hour or less from washing 
through drying, would not have a significant adverse effect on the 
supply, distribution, or use of energy and, therefore, is not a 
significant energy action. Accordingly, DOE has not prepared a 
Statement of Energy Effects.

M. Description of Materials Incorporated by Reference

    In this document, DOE proposes to incorporate by reference the 
industry standard published by ANSI/AHAM, titled ``Household Electric 
Dishwashers,'' ANSI/AHAM DW-1-2010. ANSI/AHAM DW-1-2010 is an industry-
accepted standard to measure the energy and water consumption of 
residential dishwashers and is already incorporated by reference for 
the current dishwasher test procedure at 10 CFR part 430, subpart B, 
appendix C1. In this document, DOE proposes to incorporate by reference 
this industry consensus standard at 10 CFR 430.32(f), which specifies 
the energy conservation standards for compact and standard dishwashers, 
for the purpose of distinguishing the standard and compact product 
classes pursuant to the industry standard.
    Copies of ANSI/AHAM DW-1-2010 may be purchased from AHAM at 1111 
19th Street NW, Suite 402, Washington, DC 20036, 202-872-5955, or by 
going to http://www.aham.org.

VIII. Approval of the Office of the Secretary

    The Secretary of Energy has approved publication of this proposed 
rule.

List of Subjects in 10 CFR Part 430

    Administrative practice and procedure, Confidential business 
information, Energy conservation, Household appliances, Incorporation 
by reference, and Small businesses.

    Signed in Washington, DC, on June 28, 2019.
Daniel R Simmons,
Assistant Secretary, Energy Efficiency and Renewable Energy.

    For the reasons set forth in the preamble, DOE proposes to amend 
part 430 of title 10 of the Code of Federal Regulations as set forth 
below:

PART 430--ENERGY CONSERVATION PROGRAM FOR CONSUMER PRODUCTS

0
1. The authority citation for part 430 continues to read as follows:

    Authority: 42 U.S.C. 6291-6309; 28 U.S.C. 2461 note.


Sec.  430.3   [Amended]

0
2. Section 430.3 paragraph (i)(2) is amended by adding the words 
``Sec.  430.32 and'' immediately before the words ``appendix C1''.
0
3. Section 430.32 is amended by revising paragraph (f) to read as 
follows:


Sec.  430.32   Energy and water conservation standards and their 
compliance dates.

* * * * *
    (f) Dishwashers. (1) All dishwashers manufactured on or after May 
30, 2013, shall meet the following standard--
    (i) Standard size dishwashers (capacity equal to or greater than 
eight place settings plus six serving pieces as specified in ANSI/AHAM 
DW-1-2010 (incorporated by reference, see Sec.  430.3) using the test 
load specified in section 2.7 of appendix C1 in subpart B of this part) 
shall not exceed 307 kwh/year and 5.0 gallons per cycle.
    (ii) Compact size dishwashers (capacity less than eight place 
settings plus six serving pieces as specified in ANSI/AHAM DW-1-2010 
(incorporated by reference, see Sec.  430.3) using the test load 
specified in section 2.7 of appendix C1 in subpart B of this part) 
shall not exceed 222 kwh/year and 3.5 gallons per cycle.

[[Page 33880]]

    (iii) Standard size dishwashers with a ``normal cycle'', as defined 
in section 1.12 of appendix C1 in subpart B of this part, of 60 minutes 
or less are not currently subject to energy or water conservation 
standards.

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    (2) [Reserved].
* * * * *
[FR Doc. 2019-14545 Filed 7-15-19; 8:45 am]
BILLING CODE 6450-01-P