[Federal Register Volume 85, Number 178 (Monday, September 14, 2020)]
[Rules and Regulations]
[Pages 56475-56498]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-14646]


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DEPARTMENT OF ENERGY

10 CFR Parts 429 and 430

[EERE-2017-BT-TP-0005]
RIN 1904-AD67


Energy Conservation Program: Test Procedure for Fluorescent Lamp 
Ballasts

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

ACTION: Final rule.

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SUMMARY: On March 18, 2019, the U.S. Department of Energy (``DOE'') 
published a notice of proposed rulemaking (``NOPR'') to amend the test 
procedure for fluorescent lamp ballasts. That proposed rulemaking 
serves as the basis for the final rule. Specifically, in this final 
rule, DOE updates references to industry standards; clarifies the 
selection of reference lamps; removes extraneous requirements in the 
stabilization procedure; provides a second stabilization option for 
measuring ballast luminous efficiency; and revises the test procedure 
for measuring standby mode energy consumption.

DATES: The effective date of this rule is October 14, 2020. The final 
rule changes will be mandatory for product testing starting March 15, 
2021. The incorporation by reference of certain publications listed in 
this rulemaking is approved by the Director of the Federal Register on 
October 14, 2020. The incorporation by reference of certain other 
publications listed in this rulemaking was approved by the Director of 
the Federal Register on June 3, 2011.

ADDRESSES: The docket, 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.
    A link to the docket web page can be found at https://www.regulations.gov/docket?D=EERE-2017-BT-TP-0005. The docket web page 
contains instructions on how to access all documents, including public 
comments, in the docket.
    For further information on how to review the docket contact the 
Appliance and Equipment Standards Program staff at (202) 287-1445 or by 
email: [email protected].

FOR FURTHER INFORMATION CONTACT: Ms. Lucy deButts, 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) 287-1604. Email: 
[email protected].
    Ms. Sarah Butler, U.S. Department of Energy, Office of the General 
Counsel, GC-33, 1000 Independence Avenue SW, Washington, DC 20585-0121. 
Telephone: (202) 586-1777. Email: [email protected].

SUPPLEMENTARY INFORMATION: DOE maintains previously approved 
incorporation by references and incorporates by reference the following 
industry standards into 10 CFR part 430:
    ANSI C78.81, (``ANSI C78.81-2016''), American National Standard for 
Electric Lamps--Double-Capped Fluorescent Lamps--Dimensional and 
Electrical Characteristics, approved June 29, 2016.
    ANSI C78.375A-2014, (``ANSI C78.375A''), American National Standard 
for Electric Lamps--Fluorescent Lamps--Guide for Electrical Measures, 
approved August 28, 2014.
    ANSI/NEMA C78.901-2016, (``ANSI C78.901-2016''), American National 
Standard for Electric Lamps--Single-Based Fluorescent Lamps--
Dimensional and Electrical Characteristics, ANSI approved August 23, 
2016.
    ANSI C82.1-2004 (R2008, R2015), (``ANSI C82.1''), American National 
Standard for Lamp Ballasts--Line Frequency Fluorescent Lamp Ballast, 
approved November, 20, 2015.
    ANSI C82.2-2002 (R2007, R2016), (``ANSI C82.2''), American National 
Standard for Lamp Ballasts--Method of Measurement of Fluorescent Lamp 
Ballasts, approved July 12, 2016.
    ANSI C82.3-2016, (``ANSI C82.3''), American National Standard for 
Lamp Ballasts--Reference Ballasts for Fluorescent Lamps, approved April 
8, 2016.
    ANSI/NEMA C82.11-2017, (``ANSI C82.11''), American National 
Standard for Lamp Ballasts--High-frequency Fluorescent Lamp Ballasts, 
approved January 23, 2017.
    ANSI C82.13-2002, (``ANSI C82.13''), American National Standard for 
Lamp Ballasts--Definitions for Fluorescent Lamps and Ballasts, approved 
July 23, 2002.
    ANSI C82.77-2002, (``ANSI C82.77''), Harmonic Emission Limits--
Related Power Quality Requirements for Lighting Equipment, approved 
January 17, 2002.
    Copies of ANSI C78.81-2016, ANSI C78.375A, ANSI C78.901-2016, ANSI 
C82.1, ANSI C82.2, ANSI C82.3, ANSI C82.11, ANSI C82.13, and ANSI 
C82.77, are available at http://www.ansi.org or http://www.nema.org.
    International Electrotechnical Commission (``IEC'') Standard 60081, 
(``IEC 60081''), Double-capped fluorescent lamps--Performance 
specifications (Amendment 6, Edition 5.0, August 2017).
    IEC 62301:2011, (``IEC 62301''), Household electrical appliances--
Measurement of standby power, (Edition 2.0, 2011-01).
    Copies of IEC 60081 and IEC 62301 are available on IEC's website at 
https://webstore.iec.ch/home.
    For a further discussion of these standards, see section IV.O.

Table of Contents

I. Authority and Background
    A. Authority

[[Page 56476]]

    B. Background
II. Synopsis of the Final Rule
III. Discussion
    A. Scope of Applicability
    B. Updates to Industry Standards
    C. Definitions
    D. Amendments to Active Mode Test Method
    1. General
    2. Instrumentation
    3. Test Setup
    4. Test Conditions
    5. Test Method for BLE
    6. Measuring Ballast Performance at Less Than Full Light Output
    E. Amendments to Standby Mode Test Method
    F. Amendments to 10 CFR 430.23(q)
    G. Amendments to 10 CFR 429.26
    H. Effective and Compliance Dates
    I. Test Procedure Costs and Impact
IV. Procedural Issues and Regulatory Review
    A. Review Under Executive Order 12866
    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
    G. Review Under Executive Order 12988
    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
    K. Review Under Treasury and General Government Appropriations 
Act, 2001
    L. Review Under Executive Order 13211
    M. Review Under Section 32 of the Federal Energy Administration 
Act of 1974
    N. Congressional Notification
    O. Description of Materials Incorporated by Reference
V. Approval of the Office of the Secretary

I. Authority and Background

    Fluorescent lamp ballasts are 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)(13)) 
DOE's energy conservation standards and test procedures for fluorescent 
lamp ballasts are currently prescribed in the Code of Federal 
Regulations (``CFR'') at 10 CFR 430.32(m) and 10 CFR 430.23(q), 
respectively. The following sections discuss DOE's authority to 
establish test procedures for fluorescent lamp ballasts and relevant 
background information regarding DOE's consideration of test procedures 
for these products.

A. Authority

    The Energy Policy and Conservation Act, as amended (``EPCA''),\1\ 
authorizes DOE to regulate the energy efficiency of a number of 
consumer products and certain industrial equipment. (42 U.S.C. 6291-
6317) 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 
consumer products include fluorescent lamp ballasts, the subject of 
this document. (42 U.S.C. 6292(a)(13))
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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 (October 23, 2018).
    \2\ For editorial reasons, upon codification in the U.S. Code, 
Part B was redesignated Part A.
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    The energy conservation program under EPCA consists essentially of 
four parts: (1) Testing, (2) labeling, (3) Federal energy conservation 
standards, and (4) certification and enforcement procedures. Relevant 
provisions of EPCA specifically include definitions (42 U.S.C. 6291), 
test procedures (42 U.S.C. 6293), labeling provisions (42 U.S.C. 6294), 
energy conservation standards (42 U.S.C. 6295), and the authority to 
require information and reports from manufacturers. (42 U.S.C. 6296)
    The 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 under EPCA (42 U.S.C. 6295(s)), and (2) 
making representations about the efficiency of those products (42 
U.S.C. 6293(c)). Similarly, DOE must use these test procedures to 
determine whether the products comply with any relevant standards 
promulgated under EPCA. (42 U.S.C. 6295(s))
    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))
    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 provides that any test procedures prescribed or 
amended under this section shall 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 shall not be unduly burdensome to conduct. 
(42 U.S.C. 6293(b)(3))
    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, 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.) Any such amendment must consider the 
most current versions of the International Electrotechnical Commission 
(``IEC'') Standard 62301 (``IEC 62301'') \3\ and IEC Standard 62087 \4\ 
as applicable. (42 U.S.C. 6295(gg)(2)(A))
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    \3\ IEC Standard 62301, Household electrical appliances--
Measurement of standby power (Edition 2.0, 2011-01).
    \4\ IEC Standard 62087, Methods of measurement for the power 
consumption of audio, video, and related equipment (Edition 3.0, 
2011-04).
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    If DOE determines that a test procedure amendment is warranted, it 
must publish a proposed test procedure and offer the public an 
opportunity to present oral and written comments on it. (42 U.S.C. 
6293(b)(2))
    EPCA also requires that, at least once every 7 years, DOE evaluate 
test procedures for each type of covered product, including fluorescent 
lamp ballasts, 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

[[Page 56477]]

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. DOE is publishing this 
final rule in satisfaction of the 7-year review requirement specified 
in EPCA. (42 U.S.C. 6293(b)(1)(A))
    DOE's test procedure for fluorescent lamp ballasts appears at 10 
CFR part 430, subpart B, appendix Q (``appendix Q''). DOE's energy 
conservation standards for fluorescent lamp ballasts can be found at 10 
CFR 430.32(m) and require a minimum power factor and minimum ballast 
luminous efficiency (``BLE''). In this final rule, DOE updates 
references to industry standards; clarifies the selection of reference 
lamps; provides a second stabilization option for measuring ballast 
luminous efficiency; and revises the test procedure for measuring 
standby mode energy consumption.

B. Background

    DOE published a final rule establishing an active mode test 
procedure for fluorescent lamp ballasts on April 24, 1991. 56 FR 18677. 
DOE last completed a full review of the active mode test procedure for 
fluorescent lamp ballasts on May 4, 2011. 76 FR 25211. Some of the key 
amendments in that test procedure final rule included updates to 
industry standards, adopting BLE as the metric for measuring energy 
efficiency of fluorescent lamp ballasts, and expanding the test 
procedure to apply to additional products.
    DOE published a final rule establishing a standby mode energy 
consumption test procedure for fluorescent lamp ballasts on October 22, 
2009. 74 FR 54445. DOE determined that, according to EPCA's definition 
of standby mode,\5\ fluorescent lamp ballasts capable of standby mode 
operation are designed to operate in, or function as, a lighting 
control system where auxiliary control devices send signals to the 
ballast; and at zero light output, the ballast is standing by, 
connected to a main power source without being disconnected by an on-
off switch or other type of relay. Further, DOE determined that it is 
not possible for fluorescent lamp ballasts to meet EPCA's definition of 
``off mode,'' \6\ because there is no condition in which the ballast is 
connected to the main power source and is not in a mode already 
accounted for in either active mode or standby mode. 74 FR 54445, 
54448.
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    \5\ EPCA defines ``standby mode'' as the condition in which an 
energy-using product--(1) is connected to a main power source; and 
(2) offers 1 or more of the following user-oriented or protective 
functions: (i) To facilitate the activation or deactivation of other 
functions (including active mode) by remote switch (including remote 
control), internal sensor, or timer. (ii) Continuous functions, 
including information or status displays (including clocks) or 
sensor-based functions. (42 U.S.C. 6295(gg)(1)(A)(iii))
    \6\ EPCA defines ``off mode'' as ``the condition in which an 
energy-using product--(I) is connected to a main power source; and 
(II) is not providing any standby or active mode function.'' (42 
U.S.C. 6295(gg)(1)(A)(ii))
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    DOE published final rules establishing and amending energy 
conservation standards for fluorescent lamp ballasts on September 19, 
2000, and November 14, 2011, respectively. 65 FR 56740; 76 FR 70547. 
DOE also published final rules on February 4, 2015, June 5, 2015, and 
April 29, 2016, to correct and clarify certain requirements and 
specifications in the CFR relating to energy conservation standards and 
test procedures. 80 FR 5896; 80 FR 31971; 81 FR 25595. On June 23, 
2015, DOE initiated a rulemaking to review energy conservation 
standards for fluorescent lamp ballasts by publishing a Federal 
Register notice announcing a public meeting and availability of the 
framework document (``June 2015 framework document''). 80 FR 35886. On 
October 22, 2019, DOE published a notice of proposed determination 
(``NOPD'') initially determining that energy conservation standards for 
fluorescent lamp ballasts do not need to be amended. 84 FR 56540 
(``October 2019 NOPD''). DOE held a webinar open to the public on 
October 30, 2019, during which it described the analyses and results 
from the October 2019 NOPD and requested comments.\7\
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    \7\ A transcript of the public webinar and supporting documents 
are available in the docket for this proposed determination at: 
https://www.regulations.gov/docket?D=EERE-2015-BT-STD-0006.
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    On March 18, 2019, DOE published in the Federal Register a NOPR 
proposing amendments to the fluorescent lamp ballast (``FLB'') test 
procedure. 84 FR 9910 (``March 2019 NOPR''). This document addresses 
information and comments received in response to the March 2019 NOPR 
and details the amendments to the test procedure adopted in this final 
rule.
    DOE received six written comments in response to the March 2019 
NOPR from the interested parties listed in Table I.1 of this document.

   Table I.1--Written Comments Received in Response to March 2019 NOPR
------------------------------------------------------------------------
                                   Reference in this
         Organization(s)                 NOPR          Organization type
------------------------------------------------------------------------
Appliance Standards Awareness     ASAP/ACEEE........  Efficiency
 Project, American Council for                         Organizations.
 an Energy-Efficient Economy.
National Electrical               NEMA..............  Trade Association.
 Manufacturers Association.
Lutron Electronics Co...........  Lutron............  Manufacturer.
Signify North America             Signify...........  Manufacturer.
 Corporation.
California Energy Commission....  CEC...............  State Commission.
Pacific Gas and Electric          CA IOUs...........  Utilities.
 Company, San Diego Gas and
 Electric, and Southern
 California Edison; collectively
 California Investor Owned
 Utilities.
------------------------------------------------------------------------

II. Synopsis of the Final Rule

    In this final rule, DOE amends 10 CFR 430.3, 10 CFR 430.23(q), and 
appendix Q as follows: (1) Updates references to industry standards; 
(2) clarifies the selection of reference lamps; (3) removes extraneous 
requirements in the stabilization procedure; (4) provides a second 
stabilization option for measuring BLE; and (5) revises the test 
procedure for measuring standby mode energy consumption.
    The amendments adopted for appendix Q are summarized in Table II.1 
compared to the current test procedure as well as the reason for the 
adopted change.

[[Page 56478]]



                          Table II.1--Summary of Changes in the Amended Test Procedure
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        Current DOE test procedure                  Amended test procedure                   Attribution
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References the 2002 version of ANSI        Adds checks on inrush current and         Industry update to ANSI
 C82.11 for testing high frequency          references lamp datasheets in ANSI        C82.11.
 ballasts.                                  C78.81 and ANSI C78.901 for appropriate
                                            maximum glow current.
References lamp datasheets in ANSI C78.81  The 2016 version of ANSI C78.81 updates   Industry update to ANSI
 to specify the appropriate reference       the high frequency characteristics of     C78.81.
 lamp to use when testing a particular      three lamps currently referenced in
 ballast.                                   Table A.
References lamp datasheets in IEC 60081    Amendment 6 of IEC 60081 updates the      Industry update to IEC
 Amendment 4 to specify the appropriate     high frequency characteristics of two     60081.
 reference lamp to use when testing a       lamps currently referenced in Table A.
 particular ballast.
Does not provide detail to determine       Adds direction for how to select a        Improve representativeness
 which lamp to use for testing when         reference lamp to use for testing         of test results.
 ballasts can operate lamps of more than    fluorescent lamp ballasts designed and
 one base type.                             marketed to operate lamps of multiple
                                            base types.
Measures lamp arc voltage, current, and    Measures lamp arc voltage, current, and   Reduce test burden while
 power once per second during               power once per minute during              maintaining representative
 stabilization.                             stabilization.                            results.
Operates ballast for no longer than one    No maximum operating time until stable    Reduce test burden while
 hour until stable operating conditions     operating conditions are met.             maintaining representative
 are met.                                                                             results.
Has one method of stabilization where      Allows a second stabilization option      Reduce test burden while
 lamp arc voltage, current, and power are   where an oven is used to heat the         maintaining representative
 measured once per second until the         ballasts prior to testing and lamp arc    results.
 difference between the maximum and         voltage, current, and power are
 minimum values do not exceed one percent   measured once per minute.
 over a four minute moving window.
Measures standby mode power by             References IEC 62301 to measure standby   Improve the repeatability
 referencing ANSI C82.2.                    mode power.                               and reproducibility of
                                                                                      test results.
Ballast connects to reference lamp while   Reference lamps are not required when     Reduce test burden while
 measuring standby mode power.              measuring standby mode power.             maintaining representative
                                                                                      results.
Standby power test conditions are based    Standby power test conditions are based   Improve representativeness,
 on conditions defined in ANSI C82.2,       on conditions defined in appendix Q for   repeatability, and
 which do not include instructions          the active mode measurement, which        reproducibility of test
 specifying input voltage.                  include specifications for which input    results.
                                            voltage to operate ballasts designed
                                            and marketed to operate at multiple
                                            input voltages.
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    DOE is also amending the reporting requirements under 10 CFR 429.26 
to require reporting average total lamp arc power, a value that is 
already determined in appendix Q; specify rounding requirements for 
average total lamp arc power; and remove references to values no longer 
required.
    DOE has determined that the amendments described in section III of 
this document and adopted in this final rule will not alter the 
measured efficiency of fluorescent lamp ballasts, and that the test 
procedure will not be unduly burdensome to conduct. Discussion of DOE's 
actions are addressed in detail in section III of this document.
    The effective date for the amended test procedure adopted in this 
final rule is October 14, 2020. Representations of energy use or energy 
efficiency must be based on testing in accordance with the amended test 
procedures beginning March 15, 2021.

III. Discussion

A. Scope of Applicability

    This rulemaking applies to fluorescent lamp ballasts, which are 
devices that can start and operate fluorescent lamps by providing a 
starting voltage and current and limiting the current during normal 
operation. 10 CFR 430.2. DOE defines a fluorescent lamp as a lamp of 
certain shapes, lengths, bases, and wattages \8\ that is a low pressure 
mercury electric-discharge source in which a fluorescing coating 
transforms some of the ultraviolet energy generated by the mercury 
discharge into light. 10 CFR 430.2.
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    \8\ See definition of ``fluorescent lamps'' in 10 CFR 430.2 for 
the specific lamps defined as fluorescent lamps.
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    DOE received comments regarding potential amendments to FLB energy 
conservation standards. NEMA commented that the market for fluorescent 
lamps and fluorescent lamp ballasts (particularly, dimming ballasts) is 
decreasing substantially due to the transition to solid-state lighting 
(``SSL''). (NEMA, No. 3 at p. 2) \9\ NEMA stated that manufacturers are 
not currently investing, nor are expected to invest, material resources 
in fluorescent lamp ballasts. Id. NEMA added there have been no 
technological changes since the adoption of the current FLB standards 
and amending these standards will not result in new investment but 
rather discontinuance of products. Id. ASAP/ACEEE stated it could take 
many years for existing fluorescent systems to transition to SSL, and 
fluorescent lighting is still competitive on a lifecycle cost basis. 
(ASAP/ACEEE, No. 8 at p. 1)
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    \9\ A notation in the form ``NEMA, No. 3 at p. 2'' identifies a 
written comment: (1) Made by NEMA; (2) recorded in document number 3 
that, unless otherwise specified, is filed in the docket of this 
test procedure rulemaking (Docket No. EERE-2017-BT-TP-0005-0003) and 
available for review at http://www.regulations.gov; and (3) which 
appears on page 2 of document number 3.
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    Lutron asserted that amended FLB standards are not technologically 
feasible due to lack of any technological breakthrough in FLB 
technology and are not economically justified due to the FLB market 
decline. (Lutron, No. 6 at p. 2) Lutron added that amended FLB 
standards are unlikely to meet the energy savings threshold envisioned 
in the Process Rule. Id.
    As discussed, DOE issued the October 2019 NOPD in which it 
initially determined that energy conservation standards for fluorescent 
lamp ballasts do not need to be amended. 84 FR 56540. DOE will address 
potential

[[Page 56479]]

amendments to the energy conservation standards under that separate 
review.
    Lutron stated DOE should adopt a ``No-Rule Rule'' and not amend FLB 
test procedures for the following reasons: (1) No technological 
breakthroughs or investments in fluorescent lamp ballasts since the 
last rulemaking, (2) decline in FLB sales due to adoption of light 
emitting diode (``LED'') technology, (3) ballasts are highly efficient, 
and dimming ballasts already save significant energy over standard non-
dimming ballasts, and (4) updating test procedures may result in a 
significant regulatory burden for manufacturers without achieving 
energy savings. (Lutron, No. 6 at p. 2)
    NEMA stated that, while it was appropriate to update the FLB test 
procedure as proposed, compliance to the changes should not be 
effective until amendments to FLB standards are justified in accordance 
with EPCA. NEMA asserted that some manufacturers may incur higher test 
cost burdens which should only be imposed if amended FLB standards are 
justified. (NEMA, No. 3 at pp. 2-3) Lutron stated that, if a ``No-Rule-
Rule'' is not possible, it agreed with NEMA's suggestion of aligning 
the compliance date of amended FLB test procedures and amended FLB 
standards. (Lutron, No. 6 at pp. 2-3)
    In the March 2019 NOPR, DOE preliminarily determined that the 
proposed amendments to its FLB test procedure would not change measured 
values; and therefore, would not require manufacturers to retest 
fluorescent lamp ballasts previously tested and certified under the 
previous test procedure. The amendments being adopted in this final 
rule further align the DOE test procedure with industry standards and 
best practices and clarify existing test methods. As described, DOE has 
determined that the amendments adopted in this final rule will not 
alter the measured efficiency of fluorescent lamp ballasts; hence, 
there is no need to delay the compliance date of the amendments. 
Additionally, DOE has determined the amendments being adopted in this 
final rule do not add regulatory burden (see section III.I of this 
document).
    ASAP/ACEEE commented that DOE should address the issue resulting 
from the statutory exclusion from the definition of general service 
fluorescent lamps (``GSFLs'') those lamps with a color rendering index 
(``CRI'') of 87 or greater (``high CRI''). They stated that the 
exclusion has allowed large numbers of inexpensive T12 \10\ linear 
fluorescent lamps with high CRI to be sold and that these lamps are 
significantly less efficient than standards-compliant GSFLs. ASAP/ACEEE 
stated that the sale of high CRI T12 lamps has allowed a continued 
market for T12 ballasts, and thereby inefficient T12 fluorescent 
lighting systems.\11\ (ASAP/ACEEE, No. 8 at p. 3)
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    \10\ T indicates the tubular shape of the lamp and the 12 is the 
diameter in eighths of an inch (i.e., 12/8 inches).
    \11\ DOE's findings in previous rulemakings of GSFL energy 
conservation standards have shown that T8 lamps have a higher lamp 
efficacy (lumens per watt) than comparable T12 lamps. See documents 
from previous rulemaking at https://www.regulations.gov/docket?D=EERE-2011-BT-STD-0006.
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    As noted, this rulemaking addresses the test procedure for 
fluorescent lamp ballasts and does not address GSFLs. The amendments to 
the test procedure adopted in this final rule are updates to industry 
standard references and clarifications to the test methods and do not 
impact the sale of fluorescent lamp ballasts or associated products 
such as fluorescent lamps.

B. Updates to Industry Standards

    The FLB test procedure references several industry standards. 
Industry periodically updates its testing standards to account for 
changes in technology and/or developments in test methodology and/or 
test instruments. In the March 2019 NOPR, DOE identified updated 
versions of the referenced industry standards incorporated by reference 
for appendix Q as shown in Table III.1 of this document. 84 FR 9910, 
9913.

  Table III.1--Industry Standards Referenced in Appendix Q With Updated
                     Versions Adopted in Final Rule
------------------------------------------------------------------------
    Industry standard currently        Updated versions adopted in this
      referenced in Appendix Q                   Final Rule *
------------------------------------------------------------------------
ANSI C82.11 \12\ version 2002        ANSI C82.11 \13\ version 2017.
 (sections 2.1 and 2.4.1 of
 appendix Q).
ANSI C82.1 \14\ version 2004         ANSI C82.1 \15\ version 2015.
 (sections 2.1, 2.3.1, and 2.4.1 of
 appendix Q).
ANSI C82.2 \16\ version 2002         ANSI C82.2 \17\ version 2016.
 (sections 2.1, 2.2.1, 2.2.2,
 2.2.3, 2.4.1, 2.4.3, 2.5.1.6,
 2.5.1.7, 2.5.1.8, 3.2.1, 3.3.1,
 and 3.3.3 of appendix Q).
ANSI C82.3 \18\ version 2002         ANSI C82.3 \19\ version 2016.
 (section 2.4.1 of appendix Q).
ANSI C78.375 \20\ version 1997       ANSI C78.375A \21\ version 2014.
 (section 2.4.2 of appendix Q).
ANSI C78.901 \22\ version 2005       ANSI C78.901 \23\ version 2016.
 (Table A of appendix Q).
ANSI C78.81 \24\ version 2010        ANSI C78.81 \25\ version 2016.
 (sections 1.6, 1.7, 1.8, 2.1,
 2.3.1, 2.4.1, and Table A of
 appendix Q).
IEC 60081 Amendment 4, Edition 5,    IEC 60081 Amendment 6, Edition 5,
 2010 \26\ (Table A of appendix Q).   2017. \27\
------------------------------------------------------------------------
* Note: Additionally, this final rule incorporates by reference ANSI
  C82.77-2002 and IEC 62301 Edition 2.0 in appendix Q.

    In the March 2019 NOPR, DOE compared updated and current versions

[[Page 56480]]

to determine, as directed by EPCA, whether incorporating by reference 
the latest industry standards would alter measured energy efficiency. 
(42 U.S.C. 6293(e)(1)) For ANSI C82.2, DOE identified no substantial 
changes in the 2016 version compared to the 2002 version. For ANSI 
C82.1, DOE identified no substantial changes in the 2015 version 
compared to the 2004 version. For ANSI C78.375A, DOE identified no 
changes in the 2014 version compared to the 1997 version in the ambient 
conditions or electrical instruments instructions, for which the 
industry standard is referenced. 84 FR 9910, 9914-9916.
---------------------------------------------------------------------------

    \12\ ANSI Standard C82.11, American National Standard For Lamp 
Ballasts--High-frequency Fluorescent Lamp Ballasts--Supplements 
(approved January 17, 2002).
    \13\ ANSI Standard C82.11, American National Standard For Lamp 
Ballasts--High-frequency Fluorescent Lamp Ballasts (approved January 
23, 2017).
    \14\ ANSI Standard C82.1, American National Standard For Lamp 
Ballasts--Line Frequency Fluorescent Lamp Ballast (approved 
November, 19, 2004).
    \15\ ANSI Standard C82.1, American National Standard For Lamp 
Ballasts--Line Frequency Fluorescent Lamp Ballast (approved 
November, 20, 2015).
    \16\ ANSI Standard C82.2, American National Standard for Lamp 
Ballasts--Method of Measurement of Fluorescent Lamp Ballasts 
(approved June 6, 2002).
    \17\ ANSI Standard C82.2, American National Standard for Lamp 
Ballasts--Method of Measurement of Fluorescent Lamp Ballasts 
(approved July 12, 2016).
    \18\ ANSI Standard C82.3, American National Standard for Lamp 
Ballasts--Reference Ballasts for Fluorescent Lamps (approved 
September 4, 2002).
    \19\ ANSI Standard C82.3, American National Standard for Lamp 
Ballasts--Reference Ballasts for Fluorescent Lamps (approved April 
8, 2016).
    \20\ ANSI Standard C78.375, American National Standard For 
Fluorescent Lamps--Guide for Electrical Measures (approved 
September, 25, 1997).
    \21\ ANSI Standard C78.375A, American National Standard For 
Fluorescent Lamps--Guide for Electrical Measures (approved August, 
28, 2014).
    \22\ ANSI Standard C78.901, American National Standards for 
Electric Lamps--Single-Based Fluorescent Lamps--Dimensional and 
Electrical Characteristics (approved March 23, 2005).
    \23\ ANSI Standard C78.901, American National Standards for 
Electric Lamps--Single-Based Fluorescent Lamps--Dimensional and 
Electrical Characteristics (approved August 23, 2016).
    \24\ ANSI Standard C78.81, American National Standard For 
Electric Lamps--Double-Capped Fluorescent Lamps-- Dimensional and 
Electrical Characteristics (approved January, 14, 2010).
    \25\ ANSI Standard C78.81, American National Standard For 
Electric Lamps--Double-Capped Fluorescent Lamps-- Dimensional and 
Electrical Characteristics (approved June 29, 2016).
    \26\ IEC Standard--Double-capped fluorescent lamps--Performance 
specifications, (Amendment 4, Edition 5.0) (approved February 2010).
    \27\ IEC Standard--Double Capped Fluorescent Lamps--Performance 
specifications, (Amendment 6, Edition 5.0) (approved August 2017).''
---------------------------------------------------------------------------

    For ANSI C82.11, DOE identified several key changes in the 2017 
version compared to the 2002 version. For ANSI C82.3, DOE identified 
several key changes in the 2016 version compared to the 2002 version. 
In the March 2019 NOPR DOE tentatively determined these changes would 
not result in changes to measured values of BLE because the differences 
do not result in substantive changes to test setup or methodology. 84 
FR 9910, 9916.
    ANSI C78.81, ANSI C78.901, and IEC 60081 consist of lamp datasheets 
referenced by Table A of the DOE FLB test procedure to specify the 
appropriate reference lamp to use when testing a particular ballast. In 
the March 2019 NOPR, DOE tentatively determined changes to the values 
of reference lamp characteristics in the latest 2016 versions of ANSI 
C78.81 and ANSI C 78.901 and IEC 60081 Amendment 6 are within testing 
tolerances and therefore, will have minimal impact on current 
requirements. However, the 2016 versions of ANSI C78.81 and ANSI 
C78.901 remove the low frequency specifications from lamp datasheets 
for the 32 W 4-foot medium bipin T8 lamp, 59 W 8-foot single pin T8 
lamp, and 32 W 2-foot U-shaped medium bipin T8 lamp. Low frequency lamp 
characteristics and reference ballast characteristics are necessary to 
determine the appropriate reference lamp for testing low frequency 
ballasts. In the March 2019 NOPR, DOE proposed adding the low frequency 
specifications absent in the latest versions of the industry standards 
directly in appendix Q to ensure measured values are not impacted. 84 
FR 9910, 9916-9917.
    NEMA supported DOE's proposal to incorporate up-to-date industry 
standards. (NEMA, No. 3 at p. 3) ASAP/ACEEE also supported the updates 
if they improve the accuracy of the test procedures, avoid biasing the 
results, and provide representative results. (ASAP/ACEEE, No. 8 at p. 
2) ASAP/ACEEE added that they were not aware of any such problems with 
the updates proposed. Id.
    Consistent with its assessment in the March 2019 NOPR, DOE has 
determined that, because updates to industry standard references do not 
involve substantive changes to the test setup and methodology, they 
would not affect measured values. DOE has not identified any potential 
for bias or non-representative results under these updates as proposed. 
DOE has determined that incorporation by reference of the latest 
versions of industry standards will better align DOE's test procedure 
with updates to test methods that industry considers to be improvements 
to previous methods and also increase the clarity of DOE test methods. 
Hence, in this final rule DOE incorporates by reference for appendix Q 
the industry standards ANSI C78.81-2016, ANSI C78.375A-2014, ANSI 
C78.901-2016, ANSI C82.1-2004 (R2008, R2015), ANSI C82.2-2002 (R2007, 
R2016) (referred to as ANSI C82.2-2016 in this rulemaking), ANSI C82.3-
2016, ANSI C82.11-2017, ANSI C82.77 and IEC 60081 Amendment 6 (see 
Table III.1).
    Additionally, DOE is ensuring that the necessary low frequency 
specifications no longer in ANSI C78.81-2016 or ANSI C78.901-2016 
remain available in appendix Q. Hence, in this final rule, for the 32 W 
4-foot medium bipin T8 lamp, 59 W 8-foot single pin T8 lamp, and 32 W 
2-foot U-shaped medium bipin T8 lamp, DOE is specifying directly in new 
section 2.3.3 of appendix Q the following low frequency specifications: 
(1) The low frequency lamp characteristics (i.e., arc wattage, 
approximate cathode wattage, total wattage, voltage, and current), (2) 
reference ballast characteristics (i.e., rated input voltage, reference 
current, impedance) and (3) cathode heating requirements for rapid 
start circuits. These specifications are the same as those in the 
earlier versions of the standards, ANSI C78.81-2010 and ANSI C78.901-
2005.
    In the March 2019 NOPR, DOE also proposed to incorporate by 
reference for appendix Q the following industry standards not already 
incorporated: (1) ANSI C82.77-2002 \28\ because this standard is 
explicitly referenced by ANSI C82.11-2017, which DOE proposed to 
incorporate by reference; and (2) IEC 62301 \29\ because it provides 
specific instructions for standby mode measurements. 84 FR 9910, 9914-
9917.
---------------------------------------------------------------------------

    \28\ ANSI Standard C82.77, American National Standard--Harmonic 
Emission Limits--Related Power Quality Requirements (approved 
January 17, 2002).
    \29\ IEC 62301, Household electrical appliances--Measurement of 
standby power (Edition 2.0, 2011-01).
---------------------------------------------------------------------------

    Signify suggested that DOE reference the 2014 version of ANSI 
C82.77 rather than the 2002 version and noted that ANSI is currently 
working on an update, with expected publication in 2019. Signify 
specified that the two major changes in the 2014 version were to 
describe harmonic current limits for LED lighting and the displacement 
and harmonic factor optional power quality metric. (Signify, No. 7 at 
p. 1)
    For testing high frequency ballasts, DOE's test procedure 
references the 2002 version of ANSI C82.11, which DOE is updating to 
the 2017 version in this final rule. While ANSI C82.11-2002 provides 
the limits for harmonic distortion of input currents, ANSI C82.11-2017 
references ANSI C82.77-2002 for these limit specifications. The 
harmonic distortion input current limits in ANSI C82.77-2002 are the 
same as those specified in ANSI C82.11-2002. Because the update to ANSI 
C82.11 references the 2002 version of ANSI C82.77, DOE proposed to 
incorporate by reference ANSI C82.77-2002 into appendix Q. 84 FR 9910, 
9915. Additionally, in its normative references section, ANSI C82.11-
2017 states that at the time of publication the editions indicated are 
valid and lists the 2002 version of ANSI C82.77. While the section also 
encourages the possibility of applying the most recent editions, at the 
time of publication of ANSI C82.11-2017, the 2014 version of ANSI 
C82.77 was available but not referenced by the standard. The harmonic 
distortion input current limits for modular office furniture, which 
includes fluorescent lamp sources, is 155 percent in the 2014 version 
compared to 32 percent in the 2002 version. DOE notes that the key 
changes in the 2014 version of ANSI C82.77 noted by stakeholders are 
not

[[Page 56481]]

relevant (i.e., LED lighting harmonic current limits and optional power 
quality metric) to DOE's FLB test procedure. Therefore, in this final 
rule DOE is adopting the 2002 version of ANSI C82.77 for incorporation 
by reference.
    DOE also received comments on IEC 62301, which it proposed for 
incorporation by reference for measurements of standby mode power of 
fluorescent lamp ballasts. These comments are discussed in section 
III.E of this document, which specifically addresses standby mode and 
addresses the related comments.

C. Definitions

    In the March 2019 NOPR, DOE proposed several updates to definitions 
related to the FLB test procedure. Currently, ``designed and marketed'' 
means that the intended application of the lamp is clearly stated in 
all publicly available documents (e.g., product literature, catalogs, 
and packaging labels).\30\ In the March 2019 NOPR, DOE proposed to 
specify explicitly that the term also includes the intended application 
of ballast consistent with the application of the definition of 
``designed and marketed'' to fluorescent lamp ballasts. 84 FR 9910, 
9917.
---------------------------------------------------------------------------

    \30\ The definition of ``designed and marketed'' is applicable 
to terms related to the following covered lighting products: 
Fluorescent lamp ballasts; fluorescent lamps; general service 
fluorescent lamps; general service incandescent lamps; general 
service lamps; incandescent lamps; incandescent reflector lamps; 
medium base compact fluorescent lamps; and specialty application 
mercury vapor lamp ballasts. 10 CFR 430.2.
---------------------------------------------------------------------------

    DOE also proposed to update definitions for the instant-start, 
programmed-start, and rapid-start starting methods in appendix Q. 
Specifically, DOE proposed to add language to these definitions stating 
that these starting methods are typically indicated on publicly 
available documents of a fluorescent lamp ballast. DOE finds that this 
language will provide further guidance in identifying the starting 
method of the ballast.
    Additionally, DOE proposed to remove the following terms in 
appendix Q that are currently defined but will no longer be used in the 
revised test procedure: ``AC control signal,'' ``cathode heating,'' 
``DC control signal,'' ``F34T12 lamp,'' ``F96T12/ES lamp,'' ``F96T12HO/
ES lamp,'' ``PLC control signal,'' and ``wireless control signal.'' 
``AC control signal'' and ``DC control signal'' are not reflective of 
the products currently available on the market, and the rest of the 
terms are not used in the FLB test procedure.
    NEMA and Signify agreed with DOE's proposed removal of unused 
definitions. (NEMA, No. 3 at p. 3; Signify, No. 7 at p. 3) DOE has 
determined that the removal of definitions described in this section 
will improve the clarity of FLB test procedure and will not affect 
measured values.
    Hence, in this final rule DOE is (1) updating the term ``designed 
and marketed'' in 10 CFR 430.2 to include the intended application of 
ballasts, (2) updating language in definitions of ``instant-start,'' 
``programmed-start,'' and ``rapid-start,'' and (3) removing the 
following terms in the Definitions section of appendix Q: ``AC control 
signal,'' ``cathode heating,'' ``DC control signal,'' ``F34T12 lamp,'' 
``F96T12/ES lamp,'' ``F96T12HO/ES lamp,'' ``PLC control signal,'' and 
``wireless control signal.''

D. Amendments to Active Mode Test Method

1. General
    In the March 2019 NOPR, DOE proposed several updates to appendix Q 
regarding instrumentation, test setup, test conditions, and 
measurements. DOE also proposed a general instruction in section 2.1 
(``Active Mode Procedure'') that specifications in referenced industry 
standards that are recommended, stated as ``shall'' or ``should'' be 
met, or that are not clearly mandatory are, for purposes of the DOE 
test procedure, mandatory (unless they conflict with language in 
appendix Q) to ensure testing is conducted in a uniform manner by 
different entities to yield consistent results. 84 FR 9910, 9918. DOE 
received no comments on this proposed change. DOE has determined this 
is not a substantive change to the test procedure, and will not change 
measured values. DOE is adopting section 2.1 as proposed.
2. Instrumentation
    In the March 2019 NOPR, DOE proposed to reference section 9 
(``Electrical Instruments'') of ANSI C78.375A-2014 in section 2.2 
(``Instruments'') of the active mode test procedure instead of 
referencing ANSI C82.2 generally. The reference to ANSI C82.2 is being 
updated from the 2002 version to the 2016 version in this final rule. 
Both versions of ANSI C82.2 reference ANSI C78.375A-1997 but also 
specify that the latest version of ANSI C78.375 applies. The latest 
version of ANSI C78.375 (the 2014 version) makes no updates to its 
electrical instruments section compared to the 1997 version (see 
section III.B). 84 FR 9910, 9919.
    DOE did not receive any comments on these proposed amendments. DOE 
has determined that directly referencing ANSI C78.375A-2014 improves 
the readability of the DOE test procedure by identifying subsequently 
referenced industry standards, that this change does not make 
substantive changes to the test procedure, and that this amendment will 
not change measured values. In this final rule, DOE adopts the 
clarifications regarding references to industry standards in the 
``Instrumentation'' section as described in this section.
3. Test Setup
    In the March 2019 NOPR, DOE proposed several amendments to section 
2.3 (``Test Setup'') of the active mode test procedure in appendix Q. 
These included: (1) More precisely referencing industry standards, (2) 
renaming the ``Power Analyzer'' subsection to ``Test Circuits'' and 
clarifying the specified power analyzer capabilities, (3) clarifying 
selection of reference lamps, and (4) clarifying instructions for 
identifying the reference lamp.
a. References to Industry Standards
    Section 2.3.1 of the active mode test procedure in appendix Q 
references ANSI C82.1 and ANSI C78.81 without specific instruction 
regarding applicability to low- or high-frequency ballasts. In the 
March 2019 NOPR, DOE proposed to specify use of ANSI C82.1 to test low-
frequency ballasts and use of ANSI C82.11 to test high-frequency 
ballasts. 84 FR 9910, 9918. DOE also proposed to remove the reference 
to ANSI C78.81, which contains no wiring instructions. Id. In 
conjunction with referencing ANSI C82.1, DOE proposed to add an 
instruction to disregard section 5.3 (``Ballast Output'') of the 
standard. Id. Section 5.3 of ANSI C82.1 specifies minimum power factor 
requirements, which may be confused with the minimum power factor 
requirements set forth in DOE's energy conservation standards for 
fluorescent lamp ballasts (see 10 CFR 430.32(m)). In referencing ANSI 
C82.11, DOE proposed to disregard section 5.3.1 (``Ballast Factor'') in 
the standard because the DOE test procedure does not specify 
determination of ballast factor. 84 FR 9910, 9918. DOE also proposed to 
disregard Annex D (``Dimming Ballast Energy Efficiency Test Method'') 
and section 5.13 (``Ballast Efficiency'') in ANSI C82.11 for the active 
mode test procedure of measuring BLE at full light output, a metric 
that is different from ballast efficiency described in these sections. 
84 FR 9910, 9918-9919.
    DOE did not receive any comments on the proposed amendments. DOE 
has determined that these updates provide clearer instructions on using 
referenced

[[Page 56482]]

industry standards and do not make substantive changes to the test 
procedure or change measured values. In this final rule, DOE adopts the 
clarifications regarding references to industry standards in the ``Test 
Setup'' section as described in this section.
b. Updates to Power Analyzer
    In the March 2019 NOPR, DOE also proposed to rename the ``Power 
Analyzer'' section (section 2.3.2 of appendix Q) to ``Test Circuits'' 
because it provides instructions regarding not only the power analyzer 
but also for connecting the power supply, ballast, and lamp in the 
appropriate circuit. Section 2.3.2.1 of appendix Q requires that the 
power analyzer must have ``n + 1'' channels where ``n'' is the number 
of lamps the ballast can operate. In the March 2019 NOPR, DOE also 
proposed to specify that ``n'' is the maximum number of lamps the 
ballast is designed and marketed to operate, to ensure that the power 
analyzer has enough channels. 84 FR 9910, 9918.
    DOE did not receive any comments on the proposed amendments. DOE 
has determined these updates provide clearer instructions regarding the 
power analyzer setup and do not make substantive changes to the test 
procedure or change measured values. In this final rule, DOE adopts the 
clarifications regarding the power analyzer setup as described in this 
section.
c. Selection of Reference Lamps
    As compared to when DOE initially established a test procedure for 
fluorescent lamp ballasts, the market now offers certain ballasts that 
each can operate lamps of more than one lamp base type and diameter--
for example, ballasts that can operate T5 (miniature bipin), T8 (medium 
bipin), and T12 lamps (both recessed double contact and slimline). 
Because appendix Q currently does not specify which reference lamp to 
select for these types of ballasts, in the March 2019 NOPR, DOE 
proposed to provide additional direction in appendix Q. First, DOE 
proposed in newly added section 2.3.3.3 that a ballast designed and 
marketed to operate lamps of multiple base types, except for sign 
ballasts, must be tested with one base type in the following order of 
decreasing preference: Medium bipin, miniature bipin, single pin, and 
recessed double contact. 84 FR 9910, 9918. Second, DOE proposed in 
newly added section 2.3.3.4 to require, after selecting the base type, 
a ballast designed and marketed to operate lamps of multiple diameters 
must be tested with one diameter in the following order of decreasing 
preference: T8, T5, or T12. Id.
    NEMA stated that base type has less influence on efficiency 
measurements than the number and type of lamps being operated, 
emphasizing that the number of lamps is more relevant. (NEMA, No. 3 at 
p. 3) Signify commented that, while DOE's proposed criteria may work, 
because DOE's efficiency standard for fluorescent lamp ballasts is a 
function of the ballast circuit and output power, it would be simpler 
to specify choosing the maximum lamp power for multi-lamp type 
ballasts. Signify stated that testing for the highest lamp power 
results in testing for the highest efficiency requirement. Signify 
added that the ballast will operate at its maximum power with the 
maximum load regardless of lamp base type. (Signify, No. 7 at pp. 2-4)
    DOE based the proposed selection of the base type and diameter of 
the reference lamp for ballasts that can operate multiple lamp types on 
the most common products on the market. As noted by commentators, base 
type does not impact lamp power. However, lamp diameters may impact 
lamp power. Hence, the order of preference dictated by most common 
diameter may not always result in selecting the lamp diameter with the 
maximum lamp power. Testing ballasts that can operate multiple lamp 
types with the most common lamp type provides test results more 
appropriately representative of an average period of use. (See, 42 
U.S.C. 6293(b)(3)) DOE also notes that, regardless of the selection of 
base type or diameter, section 2.3.1.4 of appendix Q already requires 
that the ballast be tested connected to the maximum number of lamps the 
ballast is designed and marketed to operate.
    DOE has determined the updates to the selection of reference lamps 
for ballasts that can operate more than one lamp type adds consistency 
and repeatability to the test procedure and do not make substantive 
changes to the test procedure or change measured values. In this final 
rule, DOE adopts the selection criteria for reference lamps for 
ballasts that can operate more than one lamp type as described in this 
section.
d. Reference Lamp Identification
    Section 2.3.1.3 of appendix Q, which pertains to testing in active 
mode, specifies that the fluorescent lamp used for testing must be a 
reference lamp as defined in ANSI C82.13 and be seasoned for at least 
12 hours. ANSI C82.13 states that reference lamps are ``seasoned lamps 
which under stable operating conditions and in conjunction with the 
specified reference ballast operate at'' certain voltage, wattage, and 
current. In the March 2019 NOPR, DOE proposed further clarification in 
newly added section 2.3.3.1 that the reference lamp be tested with a 
reference ballast that meets the criteria of the 2016 version of ANSI 
C82.3, the industry standard for reference ballasts of fluorescent 
lamps. ANSI C82.13 also states that reference lamps must meet certain 
voltage, wattage, and current criteria under stable operating 
conditions. Hence, DOE also proposed to include the stabilization 
criteria for reference lamps as specified in newly added section 
2.5.2.1 of appendix Q. 84 FR 9910, 9918.
    In the March 2019 NOPR, DOE also proposed to remove references to 
``rapid-start lamps'' and ``instant-start lamps'' in the ``Ballast 
Type'' column in Table A. The starting method (e.g. rapid start, 
instant start) is dictated by the type of ballast, and the lamp 
datasheet referenced by Table A for each lamp type provides the 
appropriate reference lamp specifications for the applicable starting 
method. As such, including the lamps' associated starting method in the 
Ballast Type column of this table is unnecessary and potentially 
confusing. DOE also proposed changing the title of the table from Table 
A to Table 1. 84 FR 9910, 9916, 9932.
    DOE did not receive any comments on the proposed amendments related 
to the reference lamps. DOE has determined these updates provide 
explicit instructions to ensure correct procedures and requirements are 
followed when identifying a reference lamp that meets the definition in 
ANSI C82.13. DOE has further determined that these amendments do not 
make substantive changes to the test procedure or change measured 
values. In this final rule, DOE adopts the changes relating to 
identifying reference lamps described in this section.
4. Test Conditions
    Section 2.4 of appendix Q, which pertains to the active mode test 
procedure, generally references ANSI C82.2 for all test conditions. In 
the March 2019 NOPR, DOE proposed to specifically reference ANSI C82.2-
2016 sections 3 ``Pertinent measurements'' and 4 ``Electrical supply 
characteristics--test ballast measurement circuits.'' DOE also proposed 
to remove instructions in section 2.4.1 of appendix Q regarding 
normative references in ANSI C82.2, since DOE proposed directly 
referencing industry standards when necessary rather than relying 
generally on the normative references in ANSI C82.2.

[[Page 56483]]

    Similarly, section 2.4.2 of appendix Q generally references ANSI 
C78.375 to specify requirements for room temperature and air 
circulation in the test facility. In the March 2019 NOPR, DOE proposed 
to specifically reference ANSI C78.375A-2014 section 4, ``Ambient 
Conditions for Lamp Measurements,'' which contains the appropriate 
information for temperature and air movement requirements.
    DOE did not receive any comments on these proposed amendments. DOE 
determined that these updates provide more direct references to 
industry standards, and do not make substantive changes to the test 
procedure or change measured values. In this final rule, DOE is 
revising general references to ANSI C82.2 and ANSI C78.375A in section 
2.4 of appendix Q to provide more precise references to sections 3 and 
4 of ANSI C82.2-2016 and section 4 of ANSI C78.375A-2014, as described 
in this section.
5. Test Method for Ballast Luminous Efficiency
    In the March 2019 NOPR, DOE proposed the following amendments to 
section 2.5 (``Test Method'') of appendix Q, which pertains to the 
active mode test procedure: (1) Revising the stabilization procedure, 
including adding a second stabilization option, and (2) requiring 
measuring lamp arc current and voltage as root mean square (``RMS'') 
values.
a. Stabilization Criteria
    In response to the June 2015 framework document, Signify (as 
Philips Lighting) recommended DOE adopt a second stabilization option 
to use when measuring BLE that was developed by industry stakeholders. 
(Philips Lighting, Docket EERE-2015-BT-STD-0006, No. 8 at pp. 2-5) This 
stabilization option was also supported by comments from NEMA and 
Universal Lighting Technologies (``ULT''). (NEMA, Docket EERE-2015-BT-
STD-0006, No. 12 at p. 2; ULT, Docket EERE-2015-BT-STD-0006, No. 6 at 
p. 2) DOE evaluated the second stabilization option as recommended by 
Signify and proposed its adoption in the March 2019 TP NOPR (``Option 
2''). 84 FR 9910, 9919. The Option 2 stabilization method proposed 
would incorporate by reference the method in Annex D of ANSI C82.11. 
Specifically, DOE proposed that stable operating conditions under this 
option be determined according to steps 1 through 6 of section D.2.1 in 
Annex D of ANSI C82.11.
    NEMA and Signify supported DOE's proposal to allow the Option 2 
stabilization method for measuring the BLE of ballasts at full light 
output, stating it reduces testing burden and data management 
complexity without affecting the accuracy of energy efficiency 
measurements. (NEMA, No. 3 at p. 4; Signify, No. 7 at p. 6) NEMA 
suggested DOE offer both Option 1 and Option 2 stabilization methods 
because some manufacturers will choose to continue with the Option 1 
method. (NEMA, No. 3 at p. 4) ASAP/ACEEE supported use of the optional 
Option 2 stabilization method so long as it is statistically comparable 
to the current method. ASAP/ACEEE asked DOE to demonstrate that the two 
options provide statistically identical results before allowing the 
Option 2 stabilization method. (ASAP/ACEEE, No. 8 at p. 2)
    DOE has determined that the second stabilization method will save 
overall testing time, particularly when testing large batches of 
ballasts. In response to the June 2015 framework document, Signify (as 
Philips Lighting) provided BLE test data using both methods for T5 and 
T8 rapid start and T8 instant start ballasts. For each type of ballast, 
Philips tested five units of four different models and provided an 
average BLE for each model at 120 V and 277 V. (Philips Lighting, 
Docket EERE-2015-BT-STD-0006, No. 8, pp. 2-5) \31\ Because the data did 
not include total lamp arc power for the ballast models, DOE could not 
conduct an analysis of how these reported values would comply with FLB 
standards. DOE did again review and compare the methodologies of the 
two options. Option 2 is different from Option 1 as follows: (1) Option 
2 involves pre-heating the ballast in an oven and pre-burning the lamp 
with a similar ballast while Option 1 does not; and (2) Option 2 
requires reaching stable conditions over a five-minute window while 
Option 1 requires a four-minute window. DOE has determined the 
difference between the two methods is not substantive enough to yield 
different final represented values. Pre-heating the ballast will mainly 
allow the ballasts to be stabilized more quickly and the difference 
between a five-minute and four-minute window is minimal. Therefore, DOE 
has determined that Option 2 only impacts the time it takes to achieve 
stabilization and does not impact final represented values. In this 
final rule DOE adopts the second stabilization option (``Option 2'') as 
described in the March 2019 NOPR.
---------------------------------------------------------------------------

    \31\ These documents were submitted to the docket of DOE's 
rulemaking to review energy conservation standards for fluorescent 
lamp ballasts (Docket No. EERE-2015-BT-STD-0006).
---------------------------------------------------------------------------

    Currently, section 2.5.1.2.1 of appendix Q requires that lamp arc 
voltage, current, and power be measured once per second while 
determining stability. In the March 2019 NOPR, DOE proposed to modify 
the requirement that lamp arc voltage, current, and power be measured 
once per second, to require instead that those factors be measured once 
per minute in the Option 1 stabilization method. The once-per-minute 
requirement is already incorporated in the Option 2 stabilization 
method. 84 FR 9910, 9919-9920.
    NEMA and Signify supported DOE's proposal to change the sampling 
frequency from one second to one minute in the Option 1 stabilization 
method, asserting the change will reduce the data storage needs and 
associated costs. (NEMA, No. 3 at p. 3; Signify, No. 7 at pp. 4-5) NEMA 
added that lamp-and-ballast systems have high thermal mass and that 
temperature does not change quickly, thereby generating redundant data 
at a per-second sampling frequency. (NEMA, No. 3 at p. 3)
    As stated in the March 2019 NOPR, DOE reviewed the stabilization 
criteria in IES LM-9 (proposed in the Option 2 stabilization method) 
and tentatively determined that taking measurements once per minute to 
determine if a fluorescent lamp has stabilized is sufficient to 
determine if a fluorescent lamp ballast has stabilized. 84 FR 9910, 
9919. Therefore, DOE has determined that a per-second sampling 
frequency is unnecessary and its removal would not impact final steady-
state conditions reached. In this final rule, DOE is changing the 
sampling frequency from one second to one minute in the Option 1 
stabilization method.
    Section 2.5.1.2 of appendix Q currently requires operating the 
ballast at full output for at least 15 minutes but no longer than 1 
hour until stable operating conditions are reached. In the March 2019 
NOPR, DOE stated that it does not find a need to restrict the maximum 
time required to achieve stable operating conditions and therefore 
proposed to remove the maximum time of one hour required to achieve 
stable operating conditions in the Option 1 stabilization method. 84 FR 
9910, 9919-9920.
    NEMA and Signify supported changing the requirement that 
fluorescent lamp ballasts cannot be operated for longer than one hour 
to determine stable operating conditions. NEMA stated that in some 
cases, especially with ballasts that are

[[Page 56484]]

potted,\32\ it may take some time for ballast components to reach 
optimal operating temperature. Signify stated that, for a ballast 
tested with an amalgam lamp or any other energy saving lamp type, the 
proposed change may reduce test costs by preventing repeat testing if 
the system has not stabilized in an hour. (NEMA, No. 3 at pp. 3-4; 
Signify, No. 7 at p. 5) ASAP/ACEEE expressed concern that lifting the 
one hour restriction may result in test data being collected before 
ballasts achieve stable operating conditions. (ASAP/ACEEE, No. 8 at p. 
2)
---------------------------------------------------------------------------

    \32\ In electronics, ``potting'' refers to the process of 
filling an electronic assembly with a solid or gelatinous compound 
to provide shock and vibration resistance, as well as protection 
against moisture and corrosion.
---------------------------------------------------------------------------

    Per both Option 1 and Option 2 stabilization methods, a lamp-
ballast system is determined to be stable when the differences in 
measured values of each lamp arc voltage, current, and power do not 
exceed one percent over a four-minute moving window. To achieve 
stabilization, this criterion must be met even if the stabilization 
period exceeds one hour. Hence, in this final rule DOE is removing the 
maximum stabilization time requirement, as it is irrelevant in 
determining whether final steady-state conditions have been reached.
b. Measurements
    Based on general industry practice of electrical circuit 
measurements, DOE has interpreted the measurements for lamp arc current 
and lamp arc voltage to be RMS values. In the March 2019 NOPR, DOE 
proposed to make explicit this industry practice. 84 FR 9910, 9920.
    DOE did not receive any comments on this proposed amendment. DOE 
has determined that these updates provide clearer instructions on 
taking measurements consistent with industry practice and do not make 
substantive changes to the test procedure or change measured values. In 
this final rule, DOE adopts the explicit direction that measurements of 
lamp arc current and lamp arc voltage must be RMS values.
    In the March 2019 NOPR, DOE also proposed to amend references to 
sections of ANSI C82.2 as they pertain to taking measurements. 84 FR 
9910, 9920. Specifically, DOE proposed to remove references to sections 
3.2.1 and 4 of ANSI C82.2 for measuring input current and voltage. DOE 
initially determined that 3.2.1 of ANSI C82.2 lists parameters to 
measure for ballast input operating conditions and provides no 
measurement specifications and that section 4 of ANSI C82.2 provides 
electrical supply specifications relevant to test conditions but not 
measurements. Id. DOE also proposed to retain the reference to section 
7 of ANSI C82.2, but add instruction to disregard references to Figure 
1 and Figure 3, as Figure 1 is not relevant for input power 
measurements and Figure 3 is unnecessary as it specifies a circuit to 
measure current in rapid start ballasts, which is already provided in 
the DOE test procedure. Id.
    NEMA supported DOE's proposal to replace the existing ANSI C82.2 
references stating: Section 3.2.1 referenced the ballast efficiency 
factor metric and not BLE; and the referenced figures showed separate 
wattage, voltage and current meters, whereas modern testing facilities 
would be using power analyzers to take measurements. (NEMA, No. 3 at p. 
4) Signify suggested DOE retain section 4, stating that several 
technical requirements in section 4 affect electrical and energy 
efficiency measurements. (Signify, No. 7 at p. 7)
    DOE agrees that section 4 of ANSI C82.2 is a pertinent section to 
reference. Because it provides electrical supply specifications, DOE 
references it in the ``Test Conditions'' section rather than in the 
``Test Method'' section of the active mode test procedure. DOE has 
determined that section 3.2.1 of ANSI C82.2 is unnecessary, as it only 
lists parameters to measure for ballast input operating conditions but 
provides no measurement specifications. Regarding the referenced 
figures, only Figure 2 in ANSI C82.2, which involves measuring a 
ballast's input voltage and current, is relevant to taking input 
measurements. Hence, in this final rule, in the ``Test Method'' section 
of the active mode test procedure, DOE removes references to sections 
3.2.1 and 4 for measuring input voltage and input current, and instead 
specifies section 7 with the exclusion of Figure 1 and Figure 3 for 
measuring input power, input voltage, and input current.
6. Measuring Ballast Performance at Less Than Full Light Output
    In the March 2019 NOPR, DOE assessed comments received in response 
to the June 2015 framework document regarding measuring the performance 
of fluorescent lamp ballasts at dimmed light output levels and proposed 
a method to measure ballast efficiency (``BE'') at reduced light output 
levels for representations in the marketplace. 84 FR 9910, 9920-9921. 
The proposed BE measurement was the ballast output power divided by the 
ballast input power, where the ballast output power includes not only 
the lamp arc power but also the filament power (i.e., ``cathode 
power'') and power provided for other features such as networking and 
sensors. Thus, the proposed BE measurement was different than BLE, 
which does not include filament power in the ballast output power 
measurement. The proposal did not require manufacturers to test for and 
measure BE; but, if a manufacturer were to choose to make 
representations of BE at reduced light output levels, it would have 
been required to use the test procedure for the BE metric provided in 
Annex D of ANSI C82.11-2017. Consistent with Annex D, DOE's proposed 
test method would have applied only to measurements at light output 
levels at or greater than 50 percent of full light output and require 
use of the Option 2 stabilization method (see section III.D.5.a of this 
document). 84 FR 9910, 9921.
    DOE received several comments on the proposed test method for 
measuring BE at reduced light output levels. NEMA stated that, when 
dimming a fluorescent lamp ballast, cathode heat must be applied \33\ 
to ensure that the reduction in the arc discharge current does not 
result in shortened lamp lifetime. NEMA asserted that power required to 
maintain cathode heat (i.e., cathode power, filament power) must be 
included in the ballast output power measurement. NEMA added that, 
because the arc discharge and cathode heating currents flow through the 
same wire and low levels of power are being measured, it is not 
possible to make reliable measurements below 50 percent light output. 
(NEMA, No. 3 at p. 4) Signify supported DOE's proposed test method for 
BE, stating that the test procedures in ANSI C82.11-2014 provide a high 
level of accuracy and repeatability for measurements at 50 percent and 
full light output. (Signify, No. 7 at p. 6)
---------------------------------------------------------------------------

    \33\ NEMA referenced NEMA Standard LL-9 2011 for guidance 
related to cathode heat requirements during dimming.
---------------------------------------------------------------------------

    NEMA described a multi-channel measurement approach for BE testing 
that relies on 13 time-synchronized channels for a 4-lamp fluorescent 
lamp ballast to capture the input and output power in the same time 
interval. NEMA stated this approach would require (1) three power 
analyzers, each costing about $20,000, as most power analyzers have a 
maximum of six channels, and (2) a test management computer system and 
software costing about $5,000 to control and synchronize the analyzers. 
NEMA stated that, while some labs may have this equipment, others may 
not and may choose not to make the expenditure; resulting in some 
manufacturers not making BE

[[Page 56485]]

representations of some or all of their products that may require it. 
(NEMA, No. 3 at p. 5) Signify stated that the test method for measuring 
BE at reduced light outputs does not necessarily require purchasing new 
equipment, as power analyzers are also used to measure BLE. Signify 
explained that the test method can be implemented utilizing (1) a 
dedicated multi-channel power analyzer, (2) two or more power analyzers 
used simultaneously, or (3) one power analyzer measuring one lamp port 
at a time. Signify noted that a multi-channel power analyzer can cost 
between $2,200 to $20,000, which is comparable to a power analyzer. 
Signify also stated that the test method for measuring BE would already 
be adopted by any lab that is accredited to National Voluntary 
Laboratory Accreditation Program and that tests ballasts at reduced 
light output levels per ANSI standards. (Signify, No. 7 at pp. 9, 13-
14)
    Lutron asserted that the efficiency measurement of ballasts at 
reduced light outputs specified in ANSI C82.11-2014 is slightly 
different than that required to meet CEC's Title 20 energy efficiency 
regulations for deep-dimming \34\ fluorescent lamp ballasts, and 
therefore may require significant re-testing without resulting in any 
energy savings. Lutron added that testing efficiency at reduced light 
output will be very expensive, as it requires highly specialized 
equipment and third-party labs will be able to test only a few samples 
per day. Lutron also noted that the test method for measuring BE at 
reduced light outputs had been available in ANSI C82.11 since 2014, 
giving manufacturers ample opportunity to begin publishing such 
efficiencies. Lutron stated it did not foresee an equivalent DOE test 
method to increase the use of this metric, as manufacturers are no 
longer investing in fluorescent technology. (Lutron, No. 6 at pp. 2-3)
---------------------------------------------------------------------------

    \34\ ``Deep-dimming fluorescent lamp ballast'' means a 
fluorescent ballast that is capable of operating lamps in dimmed 
operating modes at any number of levels at or below 50 percent of 
full output. California Title 20 Appliance Efficiency Regulations.
---------------------------------------------------------------------------

    CEC and CA IOUs stated that DOE's proposed BE metric is an 
inappropriate measurement of efficiency at reduced light outputs, as it 
does not count cathode power used at lower light outputs as a loss. (CA 
IOUs, No. 5 at p. 1; CEC, No. 4 at p. 1) CEC stated that, while certain 
dimming levels require cathode heating to protect against lamp failure, 
this is not necessary at all dimming levels. (CEC, No. 4 at p. 2) CA 
IOUs stated that the BE metric would result in falsely high efficiency 
ratings, and CEC asserted that the BE metric would allow any amount of 
cathode power to be used, whether necessary or not. (CA IOUs, No. 5 at 
p. 1; CEC, No. 4 at p. 2)
    ASAP/ACEEE stated that energy efficiency ratings for dimmable 
ballasts should reflect both the light level output at which a ballast 
must provide cathode power to sustain lamp ignition and the efficiency 
of the ballast to illuminate the lamp. They recommended DOE review 
comments submitted by CEC to revise the proposed BE test method. (ASAP/
ACEEE, No. 8 at pp. 1-2) CA IOUs stated that, while cathode power is 
required at lower lamp currents, it is not necessary at typical lamp 
currents nearer to full output, and multiple manufacturers employ 
cathode ``cut out'',\35\ which removes cathode power when it is not 
required. CA IOUs stated that cathode cut out can result in significant 
energy savings and should be considered a key metric for determining 
ballast efficiency. CA IOUs added this can only be done using the BLE 
metric at low light output levels. CA IOUs stated DOE should include 
testing for both BE and BLE regardless of light output level. (CA IOUs, 
No. 5 at pp. 3-4)
---------------------------------------------------------------------------

    \35\ The term ``cut out'' refers to removing all power to the 
lamp electrodes after lamp ignition.
---------------------------------------------------------------------------

    CEC also suggested alternative options including (1) requiring 
measurement of both ballast BLE and BE for any performance measurements 
at light levels less than 100 percent, (2) requiring the BLE 
measurement at the light level output just above the threshold where 
cathode heating would be necessary as well as at light levels above 
this threshold, and measurement of BE at light outputs below this 
level,\36\ or (3) an alternative method that allows for the amount of, 
and cut-in light level output point of, cathode power to be measured. 
(CEC, No. 4 at pp. 1-3)
---------------------------------------------------------------------------

    \36\ CEC suggested using NEMA Standard LL9-2011, section 2.2 to 
develop this method.
---------------------------------------------------------------------------

    ASAP/ACEEE expressed concern that DOE's proposed test method does 
not specifically measure cathode power at any light output less than 
100 percent. (ASAP/ACEEE, No. 8 at pp. 1-2) CEC added that the 
technical challenges to measuring the BLE at light output levels less 
than 50 percent should not be a reason for DOE to not develop 
appropriate efficiency metrics and standards for dimming ballasts. 
(CEC, No. 4 at pp. 3-4)
    DOE is maintaining the metric of BLE at full light output for 
representations and for determining compliance with the current energy 
conservation standards. The BLE metric accounts for cathode power as a 
loss because DOE's test procedure isolates lamp arc voltage by 
capturing cathode power in the input power measurement, but not in the 
output power measurement (which is quantified as total lamp arc power). 
76 FR 25216 (May 4, 2011). Therefore, all else being equal, ballasts 
that use cathode power are measured as less efficient at full light 
output than those that do not because cathode power increases the 
measured input power but not the measured total lamp arc power.
    Based on further consideration, including the comments received, 
DOE is not adopting a BE test method. DOE proposed the BE measurement 
to include cathode power in ballast output power to account for its 
necessary use at reduced light output levels. Regarding determining at 
what light output level cathode power is necessary, manufacturers can 
apply different cathode cut out designs. DOE does not have data on the 
light output levels at which cathode power is applied and current 
product marketing material does not specify the cathode cut out light 
output level. The industry standard, NEMA Standard LL9-2011, specifies 
minimum and maximum voltages across cathodes in dimmed operation. 
However, incorporating such parameters in a metric may influence 
manufacturer choice as to cathode cut designs that can be employed in 
fluorescent lamp ballasts. A lamp and ballast manufacturer may be able 
to employ only the minimum amount of cathode power necessary because 
the lamp can be designed to only require the minimum amount of cathode 
power, while a manufacturer that produces only ballasts may have to 
provide more cathode power to ensure that its ballasts can operate all 
lamps since the minimum amount of cathode power required can vary by 
lamp. DOE finds that it is important to allow for flexibility in 
designing ballasts, and a metric should not favor one approach over 
another.
    Given these issues the proposed BE test method may not provide an 
accurate representation of efficiency for all dimmable ballasts at all 
reduced light outputs. DOE is not aware of an industry standard at this 
time that provides a test method to accurately capture the efficiency 
of a ballast at reduced light output levels. Additionally, current 
energy conservation standards for fluorescent lamp ballasts do not 
require efficiency measurements at lower light outputs. Because the 
proposed BE test method may not provide the most accurate 
representations, and such a test method is not necessary for 
compliance, DOE is

[[Page 56486]]

not adopting a test method for measuring ballast efficiency at reduced 
light outputs in this final rule.

E. Amendments to Standby Mode Test Method

    Currently, the measurement of standby mode power is not required to 
determine compliance with energy conservation standards for fluorescent 
lamp ballasts. However, if a manufacturer chooses to make any 
representations with respect to the standby mode power use of 
fluorescent lamp ballasts, section 3 of appendix Q requires standby 
mode power testing to be performed in accordance with ANSI C82.2.
    EPCA directs DOE to establish test procedures to include standby 
mode energy consumption, ``taking into consideration the most current 
versions of Standards 62301 and 62087 of the International 
Electrotechnical Commission[.]'' (42 U.S.C. 6295(gg)(2)(A)) IEC 
Standard 62087 applies only to audio, video, and related equipment, and 
therefore is not relevant to lighting products. The current standby 
mode test procedure is consistent with procedures outlined in IEC 
Standard 62301, which applies generally to household electrical 
appliances. 74 FR 54445, 54449 (Oct. 22, 2009). To provide a test 
method that would be familiar to FLB manufacturers at the time the 
standby mode test procedure was initially established, DOE referenced 
language and methodologies presented in 2002 edition of ANSI C82.2. Id.
    In the March 2019 NOPR, DOE proposed requiring stabilization and 
subsequent measurement of standby mode energy consumption according to 
the measurements in section 5 of IEC 62301 (edition 2.0), instead of 
ANSI C82.2. IEC 62301, which applies generally to household electrical 
appliances, provides requirements specifically for measuring standby 
mode energy consumption, whereas ANSI C82.2 does not. For consistency 
within the test procedure and to reduce the test burden, DOE also 
proposed that the appendix Q requirements for instruments, test setup 
and test conditions for the active mode test procedure be followed for 
standby power measurements. (This includes direction regarding the 
input voltage at which to test when the ballast can operate at multiple 
input voltages, which is not currently specified by the current test 
conditions referenced in ANSI C82.2.) Furthermore, unlike the active 
mode test procedure, DOE proposed not to require use of reference lamps 
because lamps are not turned on during the measurement of standby mode 
power consumption. Additionally, DOE proposed that whatever lamp to 
which the ballast is connected be turned on initially at full light 
output for the purpose of ensuring the ballast is not defective. 84 FR 
9910, 9921-9922.
    NEMA stated that DOE should not incorporate IEC 62301 at this time, 
as the IEC is currently working on lighting-specific standards and 
adoption of a less-appropriate method of measurement could negatively 
impact the product sector. (NEMA, No. 3 at p. 5) Similarly, Signify 
suggested DOE should wait for either ANSI or IEC to publish a standby 
power test method for fluorescent lamp ballasts, and noted that IEC is 
currently considering developing a standby power test method for 
lighting devices based on IEC 62301, but that the committee found it 
necessary to make some changes, explanations, and adaptations to the 
appliances standby power test method provided in IEC 62301. (Signify, 
No. 7 at p. 8) Lutron agreed with NEMA's comments that, if DOE needs to 
reference a standard for standby power, it should wait to reference the 
lighting-specific IEC standard under development. Lutron further stated 
in its written comments that during the public meeting for the Process 
Rule,\37\ stakeholder discussion had included the possibility that test 
procedures may need to be updated quickly with the consensus of all 
stakeholders. Lutron stated that such a consensus could be achievable 
for adopting a lighting-specific IEC standard for FLB standby mode 
power measurements. (Lutron, No. 6 at p. 3)
---------------------------------------------------------------------------

    \37\ Information regarding the Process Rule can be found on 
https://www.regulations.gov, Docket number EERE-2017-BT-STD-0062-
0163 at https://www.regulations.gov/document?D=EERE-2017-BT-STD-0062-0163.
---------------------------------------------------------------------------

    Fluorescent lamp ballasts are included in the scope of the IEC 
63201, which applies to electrical products with a rated input voltage 
between 100 V a.c. to 250 V a.c. for single phase products and 130 V 
a.c. to 480 V a.c. for other products. DOE has determined that the 
instructions and criteria specified in IEC 62301 for stabilization and 
subsequent measurement of standby mode power consumption are 
appropriate for fluorescent lamp ballasts. DOE has not received any 
comments specifying technical reasons as to why the use of IEC 62301 
would not result in representative FLB standby mode power measurements. 
Moreover, IEC 62301 provides specific instruction regarding the 
measurement of standby power, whereas the currently referenced industry 
test procedure, ANSI C82.2, does not. DOE is largely maintaining the 
same instruments, test setup, and test conditions to measure standby 
mode power as are used to measure active mode power; these requirements 
are largely contained in ANSI C82.2. IEC 62301 is only referenced 
regarding stabilization and when taking the actual power measurement as 
the stabilization and power measurement of a ballast that is not 
operating a lamp is not included in ANSI C82.2.
    DOE acknowledges that industry is in the process of developing a 
lighting-specific standby mode power test method, but at the present, 
no such industry standard has been issued. DOE will review any such 
industry standby mode power test method once it becomes available. At 
this time, DOE has determined that IEC 62301 is more appropriate for 
measuring standby mode power than the currently referenced ANSI C82.2, 
which makes no mention of standby mode power. As such DOE is amending 
appendix Q to reference IEC 62301 in place of ANSI C82.2 for the 
measurement of standby mode power consumption.
    CEC supported DOE's proposed standby mode test method if it 
explicitly captures ballast features not associated with light output 
such as networking and sensors. (CEC, No. 4 at p. 4) ASAP/ACEEE also 
supported the recommendation of the CA IOUs provided in response to the 
June 2015 framework document \38\ that ballasts with communication and 
control capabilities be tested with the ballasts connected to a network 
and with communication and control capabilities enabled. (ASAP/ACEEE, 
No. 8 at pp. 2-3)
---------------------------------------------------------------------------

    \38\ ASAP/ACEEE referenced the CA IOUs comment submitted under 
Docket No. EERE-2015-BT-STD-0006.
---------------------------------------------------------------------------

    Section 3.2.1 of appendix Q specifies that, if standby mode power 
is measured, fluorescent lamp ballasts that are designed and marketed 
for connection to control devices must be tested with all commercially 
available compatible control devices connected in all possible 
configurations. DOE is maintaining this instruction in this final rule 
as it sufficiently addresses connection of all features necessary for 
the operation of the fluorescent lamp ballast designed and marketed to 
connect to control devices.
    ASAP/ACEEE requested DOE provide the technical basis for DOE's 
initial determination in the March 2019 NOPR that specific lamps to 
which the ballast is connected do not affect standby mode energy, as 
well as the applicability to all

[[Page 56487]]

fluorescent lamp ballasts. (ASAP/ACEEE, No. 8 at pp. 2-3)
    Regarding connection of lamps, DOE tested the standby mode power 
consumption of certain digital ballasts with 1 to 3 different types of 
controllers with and without lamps connected to the ballast. Table 
III.2 shows standby mode power consumption measurements for a ballast 
and controller combination with and without lamps connected and 
differences in power consumption.

                       Table III.2--Standby Mode Power Consumption With and Without Lamps
----------------------------------------------------------------------------------------------------------------
                                                                   Standby power   Standby power   Difference in
                                                                    consumption     consumption    standby power
               Ballast and controller combination                   with lamps     without lamps    consumption
                                                                       (mW)            (mW)            (mW)
----------------------------------------------------------------------------------------------------------------
1...............................................................             595             590               5
2...............................................................             590             591              -1
3...............................................................             592             592               0
4...............................................................            91.9            87.5             4.4
5...............................................................            91.2            86.6             4.6
6...............................................................            88.3            87.1             1.2
7...............................................................             903             904              -1
----------------------------------------------------------------------------------------------------------------

    DOE found that the difference in standby mode power consumption 
with lamps versus without lamps ranged from 0 milliwatts (``mW'') to 5 
mW. These differences are within general tolerances of measurements. 
Per IEC 62301 section 5, for products that have power measurements 
equal to or less than 1 W, stability is achieved when the power 
difference is at or less than 10 mW/h across a certain time period. 
Using the stability criteria of 10 mW/h as a general guideline for 
expected fluctuations in measurements, DOE finds differences in 
observed power measurements with lamps versus without lamps to be de 
minimis. Hence, DOE has determined that testing with or without a lamp 
does not impact measured values and therefore, the lamp connected to 
the ballast does not impact measured values. Further, standby power 
consumption is measured after lamps at full light output are turned 
off. In this state, the power being consumed by the ballast cannot be 
applicable to the lamp, as fluorescent lamps do not have any features 
that consume standby power, nor is there any residual power consumption 
from the lamp having been turned on.
    ASAP/ACEEE also suggested the standby mode test procedure reference 
the active mode test procedure sections pertaining to instrumentation 
and connection of lamps. (ASAP/ACEEE, No. 8 at pp. 2-3) As stated 
previously, DOE is applying the requirements in the active mode test 
procedure for instrumentation and test setup to the standby power 
measurements.
    DOE has determined that the proposed amendments to the standby mode 
energy consumption test procedure provide further clarity to the test 
steps by referencing a more appropriate industry standard for the 
actual measurement of power and that the proposed amendments do not 
affect measured values. Therefore, in this final rule, DOE adopts the 
amendments to the standby mode test procedure for fluorescent lamp 
ballasts as described in this section.

F. Amendments to 10 CFR 430.23(q)

    In the March 2019 NOPR, DOE proposed to remove paragraphs 
specifying the calculation of estimated annual energy consumption and 
estimated annual operating cost for fluorescent lamp ballasts in 10 CFR 
430.23(q), as these calculations are not required by DOE or the Federal 
Trade Commission. DOE also proposed to add a paragraph in 10 CFR 
430.23(q) to calculate power factor using appendix Q. 84 FR 9910, 9922. 
Signify supported DOE's proposal to include a description of power 
factor calculation and remove calculations for estimated annual energy 
consumption and annual operating cost. (Signify, No. 7 at p. 8)
    DOE has determined that these proposed updates to 10 CFR 430.23(q) 
provide further clarification and would not impact current requirements 
of the DOE test procedure or measured values. In this final rule DOE 
adopts the changes to 10 CFR 430.23(q) described in this section.

G. Amendments to 10 CFR 429.26

    In the March 2019 NOPR, DOE proposed explicitly requiring reporting 
average total lamp arc power in certification reports for fluorescent 
lamp ballasts. Average total lamp arc power, a value that is already 
determined in appendix Q, is necessary to determine the required 
minimum BLE for an FLB model. Manufacturers are already reporting 
average total lamp arc power when certifying basic models, thus, DOE 
does not expect any changes in burden. DOE also proposed to require 
that average total lamp arc power be rounded to the nearest tenth of a 
watt. Additionally, DOE proposed to specify that the represented value 
of average total lamp arc power must be equal to the mean of the 
sample. Finally, DOE proposed to remove ``annual energy operating 
costs'' in 10 CFR 429.26(a)(2)(i), as this value is not required by DOE 
or the Federal Trade Commission. 84 FR 9910, 9922.
    DOE did not receive any comments on the proposed amendments to the 
reporting requirements. DOE has determined that these proposed updates 
to 10 CFR 429.26 provide further clarification and would not impact 
current requirements of the DOE test procedure, change measured values, 
or change the current reporting burden. In this final rule, DOE adopts 
the changes to 10 CFR 429.26 described in this section.

H. Effective and Compliance Dates

    The effective date for the adopted test procedure amendment is 
October 14, 2020. EPCA prescribes that all representations of energy 
efficiency and energy use, including those made on marketing materials 
and product labels, must be made in accordance with an amended test 
procedure, beginning 180 days after publication of the final rule in 
the Federal Register. (42 U.S.C. 6293(c)(2)) EPCA provides an allowance 
for individual manufacturers to petition DOE for an extension of the 
180-day period if the manufacturer may experience undue hardship in 
meeting the deadline. (42 U.S.C. 6293(c)(3)) To receive such an 
extension, petitions must be filed with DOE no later than 60 days 
before the end of the 180-day period and must detail how the 
manufacturer will experience undue hardship. (Id.)

[[Page 56488]]

I. Test Procedure Costs and Impact

    EPCA requires that test procedures adopted by DOE not be unduly 
burdensome to conduct. In this final rule, DOE amends the existing test 
procedure for fluorescent lamp ballasts by providing a second 
stabilization option for measuring BLE. The amendments also: (1) Update 
references to industry standards; (2) clarify the selection of 
reference lamps; (3) remove extraneous requirements in the 
stabilization procedure; and (4) revise the test procedure for 
measuring standby mode energy consumption. DOE has determined that the 
test procedure as amended by this final rule will not be unduly 
burdensome for manufacturers to conduct and instead will decrease the 
test burden for manufacturers.
    This final rule will result in a net cost savings to manufacturers, 
as presented in Table III.3 and Table III.4 of this document.

   Table III.3--Summary of Cost Impacts for Fluorescent Lamp Ballasts
------------------------------------------------------------------------
                                           Present value
                Category                     (thousand     Discount rate
                                              2016$)         (percent)
------------------------------------------------------------------------
Cost Savings:
    Reduction in Future Testing Costs...              74               3
                                                      28               7
Total Net Cost Impact:
    Total Net Cost Impacts..............            (74)               3
                                                    (28)               7
------------------------------------------------------------------------


  Table III.4--Summary of Annualized Cost Impacts for Fluorescent Lamp
                                Ballasts
------------------------------------------------------------------------
                                            Annualized     Discount rate
                Category                   value (2016$)     (percent)
------------------------------------------------------------------------
Cost Savings:
    Reduction in Future Testing Costs...           2,222               3
                                                   1,982               7
Total Net Cost Impact:
    Total Net Cost Impacts..............         (2,222)               3
                                                 (1,982)               7
------------------------------------------------------------------------

    Further discussion of the cost impacts of the test procedure 
amendments are presented in the following paragraphs.
a. Option 2 Stabilization Method
    In this final rule, DOE is allowing manufacturers to use a second 
stabilization option (i.e., ``Option 2'') when measuring BLE. As 
described in section III.D.5.a, the Option 2 stabilization method would 
minimize the time the test lamps are off, thereby reducing the 
stabilization time and, consequently, the overall testing time. DOE 
estimates the cost savings of the Option 2 stabilization method to be 
$2,519 annually. This estimate is based on a savings of 15 minutes per 
ballast test (due to reduced stabilization time). Inputs to the 
calculation were updated in this notice to reflect the most recent 
known values. Based on a median hourly labor rate of $40.96 \39\ per 
electrical engineering technician (this includes an inflation factor of 
31 percent to account for the cost of providing benefits), DOE 
estimates the savings to be $10.24 per ballast test, or $40.96 per 
basic model, assuming four ballast tests per basic model. DOE does not 
expect all manufacturers to choose to use the Option 2 stabilization 
method. Based on the manufacturers that already possess the equipment 
necessary for Option 2 (i.e., an oven for ballasts), DOE estimates that 
only four manufacturers (comprising about 18 percent of FLB 
manufacturers) will choose to utilize the Option 2 stabilization 
method. DOE estimates that these manufacturers combined offer about 246 
basic models of fluorescent lamp ballasts, comprising about 54 percent 
of all basic models certified in DOE's Compliance Certification 
Database.\40\ New basic models of fluorescent lamp ballasts are 
introduced and certified to DOE about once every four years. Thus, DOE 
estimates overall annualized industry savings due to proposing the 
Option 2 stabilization method to be $2,222 at a 3 percent discount rate 
and $1,982 at a 7 percent discount rate. In summary, DOE's analysis 
indicates that allowing the Option 2 stabilization method would result 
in a reduction of future testing (see Table III.3 and Table III.4).
---------------------------------------------------------------------------

    \39\ Bureau of Labor Statistics, Occupational Employment 
Statistics, available at: https://www.bls.gov/oes/current/oes173023.htm (May 2018). Last accessed January 9, 2020.
    \40\ DOE's Compliance Certification Database is available at 
https://www.regulations.doe.gov/certification-data/#q=Product_Group_s%3A*. Last accessed January 9, 2020.
---------------------------------------------------------------------------

    DOE has determined that the amendment to allow manufacturers to use 
the Option 2 stabilization method will not require changes to the 
designs of fluorescent lamp ballasts, and that the amendments will not 
impact the utility of such product or impact the availability of 
available FLB options. The amendments will not impact the 
representations of FLB energy efficiency. Manufacturers will be able to 
rely on data generated under the test procedure in effect prior to the 
adoption of this amendment. As such, retesting of fluorescent lamp 
ballasts will not be required solely as a result of DOE's adoption of 
this amendment to the test procedure.
b. Additional Amendments
    The remainder of the amendments adopted in this final rule will not 
impact test costs: (1) Updating references to industry standards; (2) 
clarifying the selection of reference lamps; (3) removing extraneous 
requirements in the stabilization procedure; and (4) revising the test 
procedure for measuring standby mode energy consumption.

[[Page 56489]]

    First, in this final rule, DOE is incorporating by reference newer 
versions of already referenced industry standards in DOE's FLB test 
procedure (see section III.B). Regarding the adoption of the latest 
versions of industry standards, Signify stated that there would hardly 
be any additional burden to a testing facility that has been accredited 
to the current edition of ANSI standards, and further the use of the 
latest versions would keep testing facilities up-to-date on current 
technologies and provide access to more modern test methods. (Signify, 
No.7, p. 14)
    Second, in this final rule, DOE is providing additional 
clarifications on how to select reference lamps to address, in 
particular, new products on the market (i.e., ballasts that can operate 
multiple lamp types) (see section III.D.3.c). The additional direction 
on selecting reference lamps reflects the current FLB market.
    Third, this final rule removes a maximum operating time for 
stabilization and changes the requirement to take measurements from 
once per second to once per minute during the stabilization process 
(see section III.D.5.a). DOE finds that these changes to the 
stabilization process will have no impact on costs or test burden. 
Removing the maximum operating time may prevent the restart of the 
stabilization procedure in certain cases, but due to the unpredictable 
nature, DOE is unable to quantify how many products may experience an 
increase or decrease in stabilization time. The reduction in the 
frequency (i.e., seconds to minute) of measuring data during 
stabilization will reduce the amount of data required to determine 
stabilization. However, because this data is collected electronically, 
changing the measurement frequency results in no cost savings based on 
time and labor.
    Finally, for taking standby mode measurements in this final rule, 
DOE changes the industry standard reference from ANSI C82.2 to IEC 
62301 Section 5; specifies that use of reference lamps is not required; 
and aligns instrumentation, test setup, and test conditions for taking 
active mode measurements with standby mode measurements (see section 
III.E). IEC 62301 Section 5 provides detailed instructions but does not 
change the overall method of obtaining power measurements and does not 
require new or additional instrumentation. Currently manufacturers are 
not making representations of standby power mode.
    DOE has determined that the amendments described above do not 
require additional measurements, steps, or instruments, and therefore 
will have no impact on cost. Manufacturers will be able to rely on data 
generated under the test procedure in effect prior to the adoption of 
this amendment.

IV. Procedural Issues and Regulatory Review

A. Review Under Executive Order 12866

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

B. Review Under Executive Orders 13771 and 13777

    On January 30, 2017, the President issued Executive Order (E.O.) 
13771, ``Reducing Regulation and Controlling Regulatory Costs.'' E.O. 
13771 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. E.O. 13771 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 E.O. 
13777, ``Enforcing the Regulatory Reform Agenda.'' E.O. 13777 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 concludes that this rulemaking is consistent with the 
directives set forth in these executive orders. This final rule is 
estimated to result in a cost savings. The final rule yields annualized 
cost savings of approximately $1,982 using a perpetual time horizon 
discounted to 2016 at a 7 percent discount rate. Therefore, this final 
rule is an E.O. 13771 deregulatory action.

C. Review Under the Regulatory Flexibility Act

    The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires 
preparation of a final regulatory flexibility analysis (``FRFA'') for 
any final rule where the agency was first required by law to publish a 
proposed rule for public comment, unless the agency certifies that the 
rule, if promulgated, will not have a significant economic impact on a 
substantial number of small entities. As required by Executive Order 
13272, ``Proper Consideration of Small Entities in Agency Rulemaking,'' 
67 FR 53461 (August 16, 2002), DOE published procedures and policies on 
February 19, 2003 to ensure that the potential impacts of its rules on 
small entities are properly considered during the DOE rulemaking 
process. 68 FR 7990. DOE has made its procedures and policies available 
on the Office of the General Counsel's website: http://energy.gov/gc/office-general-counsel. DOE certified in the March 2019 NOPR that the 
adopted amendments will not have a significant economic impact on a 
substantial number of small entities. The factual basis of this 
certification is set forth in the following paragraphs.
    The Small Business Administration (``SBA'') considers a business 
entity to be a small business, if, together, with its affiliates, it 
employs less than a threshold number of workers specified in 13 CFR 
part 121. These size standards and codes established by the North 
American Industry Classification System (``NAICS'') and are available 
at https://www.sba.gov/document/support--table-size-standards. FLB 
manufacturing is classified under NAICS 335311, ``Power, Distribution, 
and Specialty Transformer Manufacturing.'' The SBA sets a threshold of 
750 employees or fewer for an entity to be considered as a small 
business for this category.
    To estimate the number of companies that could be small businesses 
that

[[Page 56490]]

manufacture these ballasts, DOE conducted a market survey using 
publicly available information. DOE's research involved reviewing 
information provided by trade associations (e.g., NEMA), information 
from individual company websites, market research tools (i.e., Hoover's 
reports) and DOE's Certification Compliance Database. DOE screened out 
companies that do not meet the definition of a ``small business'' or 
are completely foreign owned and operated. DOE identified no small 
businesses that manufacture fluorescent lamp ballasts in the United 
States. DOE requested comment on its tentative determination that there 
are no small businesses that manufacture fluorescent lamp ballasts in 
the United States. NEMA was not aware of any small businesses that 
manufacture fluorescent lamp ballasts in the United States. (NEMA, No. 
3 at pp. 5-6) Signify stated that it did not have sufficient data to 
comment on this topic. (Signify, No. 7 at p. 16)
    Based on the criteria outlined earlier and the reasons discussed in 
this section, DOE previously certified in the March 2019 TP NOPR that 
the amendments adopted in this final rule will not have a significant 
economic impact on a substantial number of small entities. The factual 
basis for this certification has not changed. Therefore, DOE concludes 
that the cost effects accruing from the final rule would not have a 
``significant economic impact on a substantial number of small 
entities,'' and that the preparation of a FRFA is not warranted. DOE 
has submitted a certification and supporting statement of factual basis 
to the Chief Counsel for Advocacy of the Small Business Administration 
for review under 5 U.S.C. 605(b).

D. Review Under the Paperwork Reduction Act of 1995

    Manufacturers of fluorescent lamp ballasts 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 
fluorescent lamp ballasts. (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 35 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.
    DOE is adopting slight modifications to the reporting requirements 
for fluorescent lamp ballasts. DOE received no comments on its proposal 
and has determined that these updates to 10 CFR 429.26 do not impact 
current reporting burden.
    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 final rule, DOE establishes test procedure amendments that 
it expects will be used to develop and implement future energy 
conservation standards for fluorescent lamp ballasts. 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, DOE has determined that 
adopting test procedures for measuring energy efficiency of consumer 
products and industrial equipment is consistent with activities 
identified in 10 CFR part 1021, appendix A to subpart D, A5 and A6. 
Accordingly, neither an environmental assessment nor an environmental 
impact statement is required.

F. Review Under Executive Order 13132

    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. DOE examined this final 
rule and determined that it will not have a substantial direct effect 
on the States, on the relationship between the National Government and 
the States, or on the distribution of power and responsibilities among 
the various levels of government. EPCA governs and prescribes Federal 
preemption of State regulations as to energy conservation for the 
products that are the subject of this final rule. States can petition 
DOE for exemption from such preemption to the extent, and based on 
criteria, set forth in EPCA. (42 U.S.C. 6297(d)) No further action is 
required by Executive Order 13132.

G. Review Under Executive Order 12988

    Regarding the review of existing regulations and the promulgation 
of new regulations, section 3(a) of Executive Order 12988, ``Civil 
Justice Reform,'' 61 FR 4729 (Feb. 7, 1996), imposes on Federal 
agencies the general duty to adhere to the following requirements: (1) 
Eliminate drafting errors and ambiguity; (2) write regulations to 
minimize litigation; (3) provide a clear legal standard for affected 
conduct rather than a general standard; and (4) promote simplification 
and burden reduction. Section 3(b) of Executive Order 12988 
specifically requires that Executive agencies make every reasonable 
effort to ensure that the regulation (1) clearly specifies the 
preemptive effect, if any; (2) clearly specifies any effect on existing 
Federal law or regulation; (3) provides a clear legal standard for 
affected conduct while promoting simplification and burden reduction; 
(4) specifies the retroactive effect, if any; (5) adequately defines 
key terms; and (6) addresses other important issues affecting clarity 
and general draftsmanship under any guidelines issued by the Attorney 
General. Section 3(c) of Executive Order 12988 requires Executive 
agencies to review regulations in light of applicable standards in 
sections 3(a) and 3(b) to determine whether they are met or it is 
unreasonable to meet one or more of them. DOE has completed the 
required review and determined that, to the extent permitted by law, 
this final 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,

[[Page 56491]]

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

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 final rule will 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

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

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

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

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

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

    Under section 301 of the Department of Energy Organization Act 
(Pub. L. 95-91; 42 U.S.C. 7101), DOE must comply with section 32 of the 
Federal Energy Administration Act of 1974, as amended by the Federal 
Energy Administration Authorization Act of 1977. (15 U.S.C. 788; 
``FEAA'') Section 32 essentially provides in relevant part that, where 
a proposed rule authorizes or requires use of commercial standards, the 
notice of proposed rulemaking must inform the public of the use and 
background of such standards. In addition, section 32(c) requires DOE 
to consult with the Attorney General and the Chairman of the Federal 
Trade Commission (``FTC'') concerning the impact of the commercial or 
industry standards on competition.
    The modifications to the test procedure for fluorescent lamp 
ballasts adopted in this final rule incorporates testing methods 
contained in the following commercial standards:

    (1) ANSI Standard C78.901, ``American National Standard for 
Electric Lamps--Single-Based Fluorescent Lamps--Dimensional and 
Electrical Characteristics,'' 2016;
    (2) ANSI C78.81-2016, ``American National Standard for Electric 
Lamps--Double-Capped Fluorescent Lamps--Dimensional and Electrical 
Characteristics,'' 2016;
    (3) ANSI C78.375A, ``American National Standard for Electric 
Lamps--Fluorescent Lamps--Guide for Electrical Measures,'' 2014;
    (4) ANSI Standard C82.11-2017, ``American National Standard for 
Lamp Ballasts--High Frequency Fluorescent Lamp Ballasts--
Supplements,'' 2017;
    (5) ANSI Standard C82.77, ``American National Standard for 
Lighting Equipment--Harmonic Emission Limits--Related Power Quality 
Requirements for Lighting Equipment,'' 2002;
    (6) ANSI Standard C82.1, ``American National Standard for Lamp 
Ballasts--Line Frequency Fluorescent Lamp Ballast,'' 2015;
    (7) ANSI Standard C82.2, ``American National Standard for Lamp 
Ballasts--Method of Measurement of Fluorescent Lamp Ballasts,'' 
2016;
    (8) ANSI Standard C82.3, (``ANSI C82.3'') ``American National 
Standard for Lamp Ballasts--Reference Ballasts for Fluorescent 
Lamps,'' approved April 8, 2016.
    99) IEC Standard 60081, ``Double Capped Fluorescent Lamps--
Performance specifications (Amendment 6, Edition 5.0, August 
2017),'' 2013; and
    (10) IEC Standard 62301, ``Household electrical appliances--
Measurement of standby power (Edition 2.0, January 2011),'' 2011.

    DOE has evaluated these standards and is unable to conclude whether 
they fully comply with the requirements of section 32(b) of the FEAA 
(i.e., whether they were developed in a manner that fully provides for 
public participation, comment, and review.) DOE has consulted with both 
the Attorney General and the Chairman of the FTC about the impact on 
competition of using the methods contained in these

[[Page 56492]]

standards and has received no comments objecting to their use.

N. Congressional Notification

    As required by 5 U.S.C. 801, DOE will report to Congress on the 
promulgation of this rule before its effective date. The report will 
state that it has been determined that this rule is not a ``major 
rule'' as defined by 5 U.S.C. 804(2).

O. Description of Materials Incorporated by Reference

    In this final rule, DOE incorporates by reference the test standard 
published by ANSI, titled ``American National Standard for Electric 
Lamps--Single-Based Fluorescent Lamps--Dimensional and Electrical 
Characteristics,'' ANSI/NEMA C78.901-2016. ANSI C78.901-2016 is an 
industry accepted test standard that describes physical and electrical 
characteristics of single-based fluorescent lamps. The test procedure 
adopted in this final rule references sections of ANSI C78.901-2016 for 
characteristics of reference lamps that must be used when testing 
fluorescent lamp ballasts. ANSI C78.901-2016 is readily available on 
ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference the test standard 
published by ANSI, titled ``American National Standard for Electric 
Lamps--Double-Capped Fluorescent Lamps--Dimensional and Electrical 
Characteristics,'' ANSI C78.81-2016. ANSI C78.81-2016 is an industry 
accepted test standard that describes the physical and electrical 
characteristics of double-capped fluorescent lamps. The test procedure 
adopted in this final rule references sections of ANSI C78.81-2016 for 
characteristics of reference lamps that must be used when testing 
fluorescent lamp ballasts. ANSI C78.81-2016 is readily available on 
ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference the test standard 
published by ANSI, titled ``American National Standard for Electric 
Lamps--Fluorescent Lamps--Guide for Electrical Measures,'' ANSI 
C78.375A-2014. ANSI C78.375A-2014 is an industry accepted test standard 
that describes procedures for measuring the electrical characteristics 
of fluorescent lamps. The test procedure adopted in this final rule 
references sections of ANSI C78.375A-2014 for testing performance of 
fluorescent lamp ballasts. ANSI C78.375A-2014 is readily available on 
ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference the test standard 
published by ANSI, titled ``American National Standard for Lamp 
Ballasts--High Frequency Fluorescent Lamp Ballasts--Supplements,'' 
ANSI/NEMA C82.11-2017. ANSI/NEMA C82.11-2017 is an industry accepted 
test standard that describes characteristics and measurements of high 
frequency fluorescent lamp ballasts. The test procedure adopted in this 
final rule references sections of ANSI/NEMA C82.11-2017 for testing 
performance of fluorescent lamp ballasts. ANSI/NEMA C82.11-2017 is 
readily available on ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE maintains the incorporation by reference of 
the test standard published by ANSI, titled ``American National 
Standard for Lamp Ballasts--Definitions for Fluorescent Lamps and 
Ballasts,'' ANSI C82.13-2002. ANSI C82.13-2002 is an industry accepted 
standard that that provides definitions for terms used in ANSI C78 and 
ANSI C82 series standards for fluorescent lamps and ballasts. ANSI 
C82.13-2002, incorporated by reference provides definitions for terms 
used in the DOE test procedure for fluorescent lamp ballasts. ANSI 
C82.13-2002 is readily available on ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference sections of the 
test standard published by ANSI, titled ``American National Standard 
Harmonic Emission Limits--Related Power Quality Requirements for 
Lighting Equipment,'' ANSI C82.77-2002. ANSI C82.77-2002 is an industry 
accepted standard that describes maximum harmonic emission limits for 
lighting equipment. ANSI/NEMA C82.11-2017, incorporated by reference in 
this final rule for testing high frequency fluorescent lamp ballasts, 
references ANSI C82.77-2002 to determine the maximum harmonic emission 
limits of the input current to the ballast. ANSI C82.77-2002 is readily 
available on ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference the test standard 
published by ANSI, titled ``American National Standard for Lamp 
Ballasts--Line Frequency Fluorescent Lamp Ballast,'' ANSI C82.1-2004 
(R2008, R2015). ANSI C82.1-2004 (R2008, R2015) (also referred to in 
this rulemaking as ``ANSI C82.1-2015'') is an industry accepted test 
standard that describes characteristics and measurements of line 
frequency fluorescent lamp ballasts. The test procedure adopted in this 
final rule references ANSI C82.1-2004 (R2008, R2015) for testing 
performance of fluorescent lamp ballasts. ANSI C82.1-2004 (R2008, 
R2015) is readily available on ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference the test standard 
published by ANSI, titled ``American National Standard for Lamp 
Ballasts--Method of Measurement of Fluorescent Lamp Ballasts,'' ANSI 
C82.2-2002 (R2007, R2016). ANSI C82.2-2002 (R2007, R2016) (also 
referred to in this rulemaking as ANSI C82.2-2016) is an industry 
accepted standard for testing line frequency fluorescent lamp ballasts. 
The 2016 version is a reaffirmation of the 2002 version. ANSI C82.2-
2002 (R2007, R2016) is readily available on ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference the test standard 
published by ANSI, titled ``American National Standard for Lamp 
Ballasts--Reference Ballasts for Fluorescent Lamps,'' ANSI C82.3-2016. 
ANSI C82.3-2016 (also referred to in this rulemaking as ANSI C82.3) is 
an industry accepted standard that describes characteristics and 
requirements of fluorescent lamp reference ballasts. The test procedure 
adopted in this final rule references ANSI C82.3-2016 for determining a 
reference fluorescent lamp to use when testing the performance of 
fluorescent lamp ballasts. ANSI C82.3-2016 is readily available on 
ANSI's website at http://webstore.ansi.org/.
    In this final rule, DOE incorporates by reference the test standard 
published by IEC, titled, ``Double Capped Fluorescent Lamps--
Performance specifications (IEC 60081:1997/AMD6, Amendment 6, Edition 
5.0, August 2017),'' IEC 60081 Amendment 6. IEC 60081 Amendment 6 is an 
industry accepted test standard that describes physical and electrical 
characteristics of double-capped fluorescent lamps. The test procedure 
adopted in this final rule reference sections of IEC 60081 Amendment 6 
for characteristics of reference lamps that must be used when testing 
fluorescent lamp ballasts. IEC 60081 Amendment 6 is readily available 
on IEC's website at https://webstore.iec.ch/home.
    In this final rule, DOE incorporates by reference the test standard 
published by IEC, titled ``Household electrical appliances--Measurement 
of standby power (Edition 2.0, January 2011),'' IEC 62301 (Edition 
2.0). IEC 62301 (Edition 2.0) is an industry accepted test standard 
that describes measurements of electrical power consumption in standby 
mode, off mode, and network mode. The test procedure adopted in this 
final rule reference sections of IEC 62301 (Edition 2.0) for testing 
standby mode power consumption of fluorescent lamp ballasts. IEC 62301 
(Edition 2.0) is

[[Page 56493]]

readily available on IEC's website at https://webstore.iec.ch/home.

V. Approval of the Office of the Secretary

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

List of Subjects

10 CFR Part 429

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

10 CFR Part 430

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

Signing Authority

    This document of the Department of Energy was signed on July 1, 
2020, by Alexander N. Fitzsimmons, Deputy Assistant Secretary for 
Energy Efficiency, Energy Efficiency and Renewable Energy, pursuant to 
delegated authority from the Secretary of Energy. That document with 
the original signature and date is maintained by DOE. For 
administrative purposes only, and in compliance with requirements of 
the Office of the Federal Register, the undersigned DOE Federal 
Register Liaison Officer has been authorized to sign and submit the 
document in electronic format for publication, as an official document 
of the Department of Energy. This administrative process in no way 
alters the legal effect of this document upon publication in the 
Federal Register.

    Signed in Washington, DC, on July 2, 2020.
Treena V. Garrett,
Federal Register Liaison Officer, U.S. Department of Energy.

    For the reasons stated in the preamble, DOE amends parts 429 and 
430 of chapter II of title 10, Code of Federal Regulations as set forth 
below:

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

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

    Authority:  42 U.S.C. 6291-6317; 28 U.S.C. 2461 note.


0
2. Section 429.26 is amended by:
0
a. Revising the introductory text of paragraph (a)(2)(i);
0
b. Adding paragraph (a)(2)(iii); and
0
c. Revising paragraphs (b)(2) and (c).
    The revisions and addition read as follows:


Sec.  429.26  Fluorescent lamp ballasts.

    (a) * * *
    (2) * * *
    (i) Any represented value of the energy consumption of a basic 
model for which consumers would favor lower values shall be greater 
than or equal to the higher of:
* * * * *
    (iii) The represented value of average total lamp arc power must be 
equal to the mean of the sample,
[GRAPHIC] [TIFF OMITTED] TR14SE20.005

Where:

    x is the sample mean;
    n is the number of units in the sample; and
    xi is the ith unit.

    (b) * * *
    (2) Pursuant to Sec.  429.12(b)(13), a certification report must 
include the following public product-specific information: The ballast 
luminous efficiency, the average total lamp arc power, the power 
factor, the number of lamps operated by the ballast, and the type of 
lamps operated by the ballast (i.e., wattage, base, shape, diameter, 
and length).
    (c) Rounding requirements. (1) Round ballast luminous efficiency to 
the nearest thousandths place.
    (2) Round power factor to the nearest hundredths place.
    (3) Round average total lamp arc power to the nearest tenth of a 
watt.

PART 430--ENERGY CONSERVATION PROGRAM FOR CONSUMER PRODUCTS

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

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


0
4. Section 430.2 is amended by revising the definition of ``Designed 
and marketed'' to read as follows:


Sec.  430.2  Definitions.

* * * * *
    Designed and marketed means that the intended application of the 
lamp or ballast is clearly stated in all publicly available documents 
(e.g., product literature, catalogs, and packaging labels). This 
definition is applicable to terms related to the following covered 
lighting products: Fluorescent lamp ballasts; fluorescent lamps; 
general service fluorescent lamps; general service incandescent lamps; 
general service lamps; incandescent lamps; incandescent reflector 
lamps; medium base compact fluorescent lamps; and specialty application 
mercury vapor lamp ballasts.
* * * * *

0
5. Section 430.3 is amended by:
0
a. Revising paragraph (a);
0
b. Removing the references ``Sec.  430.2, Sec.  430.32, appendix Q,'' 
and adding in their place ``Sec. Sec.  430.2 and 430.32'' in paragraph 
(e)(5);
0
c. Removing the words ``appendix Q and'' in paragraph (e)(6);
0
d. Removing the words ``, appendix Q,'' in paragraph (e)(7);
0
e. Redesignating paragraphs (e)(17) through (21) as (e)(22) through 
(26);
0
f. Redesignating paragraphs (e)(6) through (16) as follows:

------------------------------------------------------------------------
               Old paragraph                        New paragraph
------------------------------------------------------------------------
(e)(6)....................................  (e)(7)
(e)(7)....................................  (e)(9)
(e)(8)....................................  (e)(10)
(e)(9)....................................  (e)(12)
(e)(10)...................................  (e)(13)
(e)(11)...................................  (e)(14)
(e)(12)...................................  (e)(15)
(e)(13)...................................  (e)(16)
(e)(14)...................................  (e)(17)
(e)(15)...................................  (e)(19)
(e)(16)...................................  (e)(20)
------------------------------------------------------------------------

0
g. Adding new paragraphs (e)(6), (8), and (11);
0
h. Revising newly redesignated paragraphs (e)(15) and (16);
0
i. Removing the words ``appendix Q and'' in newly redesignated 
paragraph (e)(17);
0
j. Adding new paragraph (e)(18);
0
k. Revising newly redesignated paragraph (e)(19);
0
l. Adding new paragraph (e)(21);
0
m. Adding Note 1 to paragraph (e);
0
n. Revising paragraph (o)(2); and
0
o. Removing the references ``appendices C1, D1, D2, G, H, I, J2, N, O, 
P, X, X1, Y, Z, BB, and CC to subpart B'' in paragraph (o)(6) and 
adding in their place the references ``appendices C1, D1, D2, G, H, I, 
J2, N, O, P, Q, X, X1, Y, Z, BB, and CC to subpart B''.
    The revisions and additions read as follows:


Sec.  430.3  Materials incorporated by reference.

    (a) General. We incorporate by reference the following standards 
into this part. The material listed has been approved for incorporation 
by reference by the Director of the Federal Register in accordance with 
5 U.S.C. 552(a) and 1 CFR part 51. To enforce any edition

[[Page 56494]]

other than that specified in this section, the Department of Energy 
must publish a document in the Federal Register and the material must 
be available to the public. All approved material is available for 
inspection at U.S. Department of Energy, Office of Energy Efficiency 
and Renewable Energy, Building Technologies Program, 6th Floor, 950 
L'Enfant Plaza, SW, Washington, DC 20024, (202) 586-2945, or go to: 
www1.eere.energy.gov/buildings/appliance__standards/. Standards can be 
obtained from the sources listed in this section. Material is also 
available for inspection at the National Archives and Records 
Administration (NARA). For information on the availability of this 
material at NARA, email [email protected], or go to: 
www.archives.gov/federal-register/cfr/ibr-locations.html.
* * * * *
    (e) * * *
    (6) ANSI C78.81-2016, (``ANSI C78.81-2016''), American National 
Standard for Electric Lamps--Double-Capped Fluorescent Lamps--
Dimensional and Electrical Characteristics, approved June 29, 2016, IBR 
approved for appendix Q to subpart B.
* * * * *
    (8) ANSI C78.375A-2014, (``ANSI C78.375A''), American National 
Standard for Electric Lamps--Fluorescent Lamps--Guide for Electrical 
Measures, approved August 28, 2014, IBR approved for appendix Q to 
subpart B.
* * * * *
    (11) ANSI/NEMA C78.901-2016 (``ANSI C78.901-2016''), American 
National Standard for Electric Lamps--Single-Based Fluorescent Lamps--
Dimensional and Electrical Characteristics, ANSI approved August 23, 
2016, IBR approved for appendix Q to subpart B.
* * * * *
    (15) ANSI C82.1-2004 (R2008, R2015), (``ANSI C82.1''), American 
National Standard for Lamp Ballasts--Line Frequency Fluorescent Lamp 
Ballasts, approved November 20, 2015; IBR approved for appendix Q to 
subpart B.
    (16) ANSI C82.2-2002 (R2007, R2016), (``ANSI C82.2''), American 
National Standard for Lamp Ballasts--Method of Measurement of 
Fluorescent Lamp Ballasts, approved July 12, 2016, IBR approved for 
appendix Q to subpart B.
* * * * *
    (18) ANSI C82.3-2016, (``ANSI C82.3''), American National Standard 
for Reference Ballasts for Fluorescent Lamps, approved April 8, 2016; 
IBR approved for appendix Q to subpart B.
    (19) ANSI/NEMA C82.11-2017, (``ANSI C82.11''), American National 
Standard for Lamp Ballasts--High-Frequency Fluorescent Lamp Ballasts, 
approved January 23, 2017; IBR approved for appendix Q to subpart B.
* * * * *
    (21) ANSI C82.77-2002, (``ANSI C82.77'') Harmonic Emission Limits--
Related Power Quality Requirements for Lighting Equipment, approved 
January 17, 2002; IBR approved for appendix Q to subpart B.
* * * * *
    Note 1 to paragraph (e). The standards referenced in paragraphs 
(e)(6), (8), (11), (15), (16), (18), (19), and (21) of this section 
were all published by National Electrical Manufacturers Association 
(NEMA) and are also available from National Electrical Manufacturers 
Association, 1300 North 17th Street, Suite 900, Rosslyn, Virginia 
22209, https://www.nema.org/Standards/Pages/default.aspx.
* * * * *
    (o) * * *
    (2) IEC 60081:1997/AMD6, (``IEC 60081''), Double-capped fluorescent 
lamps--Performance specifications (Amendment 6, Edition 5.0, August 
2017); IBR approved for appendix Q to subpart B.
* * * * *

0
6. Section 430.23 is amended by revising paragraph (q) to read as 
follows:


Sec.  430.23  Test procedures for the measurement of energy and water 
consumption.

* * * * *
    (q) Fluorescent lamp ballasts. (1) Calculate ballast luminous 
efficiency (BLE) using appendix Q to this subpart.
    (2) Calculate power factor using appendix Q to this subpart.
* * * * *

0
7. Appendix Q to subpart B of part 430 is revised to read as follows:

Appendix Q to Subpart B of Part 430--Uniform Test Method for Measuring 
the Energy Consumption of Fluorescent Lamp Ballasts

    Note regarding effective date: After October 14, 2020 and prior 
to March 15, 2021 any representations with respect to energy use or 
efficiency of fluorescent lamp ballasts must be in accordance with 
the results of testing pursuant to this appendix or the test 
procedures as they appeared in appendix Q to this subpart revised as 
of January 1, 2020. On or after March 15, 2021, any representations, 
including certifications of compliance for ballasts subject to any 
energy conservation standard, made with respect to the energy use or 
efficiency of fluorescent lamp ballasts must be made in accordance 
with the results of testing pursuant to this appendix.

0. Incorporation by Reference

    DOE incorporated by reference ANSI C78.81-2016, ANSI C78.375A, 
ANSI C78.901-2016, ANSI C82.1, ANSI 82.2, ANSI 82.3, ANSI 82.11, 
ANSI C82.13, ANSI 82.77, IEC 60081, and IEC 62301, each in their 
entirety in Sec.  430.3; however, only enumerated provisions of ANSI 
C78.375A, ANSI C82.2, and IEC 62301 are applicable to this appendix, 
as follows:
    (a) ANSI C78.375A, as follows:
    (i) Section 4, Ambient conditions for temperature measurement, 
as specified in section 2.4.2 of this appendix; and
    (ii) Section 9, Electrical instruments, as specified in sections 
2.2.1, 2.2.2, and 2.2.3 of this appendix.
    (b) ANSI C82.2, as follows:
    (i) Section 3, Pertinent measurements, as specified in section 
2.4.1 of this appendix;
    (ii) Section 4, Electrical supply characteristics--test ballast 
measurement circuits, as specified in section 2.4.1 of this 
appendix; and
    (iii) Section 7, Test measurements circuits, as specified in 
sections 2.5.6, 2.5.7, and 2.5.8 of this appendix.
    (c) IEC 62301 as follows:
    (i) Section 5, Measurements, as specified in sections 3.4.3 and 
3.4.4 of this appendix.

1. Definitions

    1.1. Average total lamp arc power means the sample mean of the 
total lamp arc power of the ballast units tested.
    1.2. Dimming ballast means a ballast that is designed and 
marketed to vary its output and that can achieve an output less than 
or equal to 50 percent of its maximum electrical output.
    1.3. High frequency ballast is as defined in ANSI C82.13 
(incorporated by reference; see Sec.  430.3).
    1.4. Instant-start is the starting method used in instant-start 
systems as defined in ANSI C82.13, as typically indicated on 
publicly available documents of a fluorescent lamp ballast (e.g., 
product literature, catalogs, and packaging labels).
    1.5. Low-frequency ballast is a fluorescent lamp ballast that 
operates at a supply frequency of 50 to 60 Hz and operates the lamp 
at the same frequency as the supply.
    1.6. Programmed-start is the starting method used in a 
programmed-start system as defined in ANSI C82.13, as typically 
indicated on publicly available documents of a fluorescent lamp 
ballast (e.g., product literature, catalogs, and packaging labels).
    1.7. Rapid-start is the starting method used in rapid-start type 
systems as defined in ANSI C82.13, as typically indicated on 
publicly available documents of a fluorescent lamp ballast (e.g., 
product literature, catalogs, and packaging labels).
    1.8. Reference lamp is a fluorescent lamp that meets the 
operating conditions of a reference lamp as defined by ANSI C82.13.
    1.9. Residential ballast means a fluorescent lamp ballast that 
meets Federal Communications Commission (FCC) consumer limits as set 
forth in 47 CFR part

[[Page 56495]]

18 and is designed and marketed for use only in residential 
applications.
    1.10. RMS is the root mean square of a varying quantity.
    1.11 Sign Ballast means a ballast that has an Underwriters 
Laboratories Inc. Type 2 rating and is designed and marketed for use 
only in outdoor signs.

2. Active Mode Procedure for Measuring BLE at Full Light Output

    2.1. Where ANSI C82.2 (incorporated by reference; see Sec.  
430.3) references ANSI C82.1, use ANSI C82.1 (incorporated by 
reference; see Sec.  430.3) for testing low-frequency ballasts and 
use ANSI C82.11 (incorporated by reference; see Sec.  430.3) for 
testing high-frequency ballasts. In addition when applying ANSI 
C82.2, use the standards ANSI C78.375A, ANSI C78.81-2016, ANSI 
C82.1, ANSI C82.11, ANSI C82.13, ANSI C82.3, ANSI C82.77, and ANSI 
C78.901-2016 (incorporated by reference; see Sec.  430.3) instead of 
the normative references in ANSI 82.2. Specifications in referenced 
standards that are recommended, that ``shall'' or ``should'' be met, 
or that are not clearly mandatory, are mandatory. In cases where 
there is a conflict between any industry standard(s) and this 
appendix, the language of the test procedure in this appendix takes 
precedence over the industry standard(s).

2.2. Instruments

    2.2.1. All instruments must meet the specifications of section 9 
of ANSI C78.375A.
    2.2.2. Power Analyzer. In addition to the specifications in 
section 9 of ANSI C78.375A, the power analyzer must have a maximum 
100 pF capacitance to ground and frequency response between 40 Hz 
and 1 MHz.
    2.2.3. Current Probe. In addition to the specifications in 
section 9 of ANSI C78.375A, the current probe must be galvanically 
isolated and have frequency response between 40 Hz and 20 MHz.

2.3. Test Setup

    2.3.1. Connect the ballast to a main power source and to the 
fluorescent lamp(s) as specified in this section. Ensure the ballast 
is connected to fluorescent lamp(s) according to any manufacturer's 
wiring instructions on or sold with each unit (including those 
provided online). To test a low-frequency ballast, follow ANSI C82.1 
but disregard section 5.3 of ANSI C82.1. To test a high-frequency 
ballast, follow ANSI C82.11 but disregard sections 5.3.1 and 5.13 
and Annex D of ANSI C82.11.
    2.3.2. In the test setup, all wires used in the apparatus, 
including any wires from the ballast to the lamps and from the lamps 
to the measuring devices, must meet the following specifications:
    2.3.2.1. Use the wires provided by the ballast manufacturer and 
only the minimum wire length necessary to reach both ends of each 
lamp. If the wire lengths supplied with the ballast are too short to 
reach both ends of each lamp, add the minimum additional wire length 
necessary to reach both ends of each lamp, using wire of the same 
wire gauge(s) as the wire supplied with the ballast. If no wiring is 
provided with the ballast, use 18 gauge or thicker wire.
    2.3.2.2. Keep wires loose. Do not shorten or allow bundling of 
any wires. Separate all wires from each other, and ground them to 
prevent parasitic capacitance.
    2.3.3. Test each ballast with only one fluorescent lamp type. 
Select the one type of fluorescent lamp for testing as follows:
    2.3.3.1. Each fluorescent lamp must meet the specifications of a 
reference lamp as defined by ANSI C82.13, be seasoned at least 12 
hours, and be stabilized as specified in 2.5.2.1 of this appendix. 
Test each reference lamp with a reference ballast that meets the 
criteria of ANSI C82.3. For low frequency ballasts that operate:
    (a) 32 W 4-foot medium bipin T8 lamps, use the following 
reference lamp specifications: 30.8 W, arc wattage; 1.7 W, 
approximate cathode wattage (with 3.6 V on each cathode); 32.5 W, 
total wattage; 137 V, voltage; 0.265 A, current. Test the selected 
reference lamp with the following reference ballast specifications: 
300 V, rated input voltage; 0.265 A, reference current; 910 ohms, 
impedance. Use the following cathode heat requirements for rapid 
start: 3.6 V nominal, voltage; 2.5 V min, 4.4 V max, limits during 
operation; 11.0 ohms +/- 0.1 ohms, dummy load resistor; 3.4 V min, 
4.5 V max, voltage across dummy load.
    (b) 59 W 8-foot single pin T8 lamps, use the following reference 
lamp specifications: 60.1 W, arc wattage; 270.3 V, voltage; 0.262 A, 
current. Test the selected reference lamp with the following 
reference ballast specifications: 625 V, rated input voltage; 0.260 
A, reference current; 1960 ohms, impedance.
    (c) 32 W 2-foot U-shaped medium bipin T8 lamps, use the 
following reference lamp specifications: 30.5 W, arc wattage; 1.7 W, 
approximate cathode wattage (with 3.6 V on each cathode); 32.2 W, 
total wattage; 137 V, voltage; 0.265 A, current. Test the selected 
reference lamp with the following reference ballast specifications: 
300 V, rated input voltage; 0.265 A, reference current; 910 ohms, 
impedance. Use the following cathode heat requirements for rapid 
start: 3.6 V nominal, voltage; 2.5 V min, 4.4 V max, limits during 
operation; 11.0 ohms +/- 0.1 ohms, dummy load resistor; 3.4 V min, 
4.5 V max, voltage across dummy load.
    2.3.3.2 For any sign ballast designed and marketed to operate 
both T8 and T12 lamps, use a T12 lamp as specified in Table 1 of 
this appendix.
    2.3.3.3. For any ballast designed and marketed to operate lamps 
of multiple base types, select lamp(s) of one base type, in the 
following order of decreasing preference: Medium bipin, miniature 
bipin, single pin, or recessed double contact.
    2.3.3.4. After selecting the base type (per section 2.3.3.3), 
select the diameter of the reference lamp. Any ballast designed and 
marketed to operate lamps of multiple diameters, except for any sign 
ballast capable of operating both T8 and T12 lamps, must be tested 
with lamps of one of those diameters, selected in the following 
order of decreasing preference: T8, T5, or T12.
    2.3.3.5. Connect the ballast to the maximum number of lamps 
(lamp type as determined by 2.3.3.2, 2.3.3.3, and 2.3.3.4 of this 
section) the ballast is designed and marketed to operate 
simultaneously.
    For any ballast designed and marketed to operate both 4-foot 
medium bipin lamps and 2-foot U-shaped lamps, test with the maximum 
number of 4-foot medium bipin lamp(s).
    2.3.3.6. Test each ballast with the lamp type specified in Table 
A of this section that corresponds to the lamp diameter and base 
type the ballast is designed and marketed to operate.

             Table 1 to Section 2.3.3.6--Lamp-and-Ballast Pairings and Frequency Adjustment Factors
----------------------------------------------------------------------------------------------------------------
                                                        Lamp type                   Frequency adjustment factor
                                       ------------------------------------------            ([beta])
             Ballast type                                                        -------------------------------
                                         Lamp diameter and base    Nominal lamp                        High-
                                                                      wattage     Low- frequency     frequency
----------------------------------------------------------------------------------------------------------------
Ballasts that operate straight-shaped   T8 MBP (Data Sheet 7881-              32            0.94             1.0
 lamps (commonly referred to as 4-foot   ANSI-1005-4) *.                      34            0.93             1.0
 medium bipin lamps) with medium bipin  T12 MBP (Data Sheet 7881-
 bases and a nominal overall length of   ANSI-1006-1) *.
 48 inches.
Ballasts that operate U-shaped lamps    T8 MBP (Data Sheet 78901-             32            0.94             1.0
 (commonly referred to as 2-foot U-      ANSI-4027-2) *.                      34            0.93             1.0
 shaped lamps) with medium bipin bases  T12 MBP **..............
 and a nominal overall length between
 22 and 25 inches.
Ballasts that operate lamps (commonly   T8 HO RDC (Data Sheet                 86            0.92             1.0
 referred to as 8-foot-high output       7881-ANSI-1501-2) *.                 95            0.94             1.0
 lamps) with recessed double contact    T12 HO RDC (Data Sheet
 bases and a nominal overall length of   7881-ANSI-1017-1) *.
 96 inches.

[[Page 56496]]

 
Ballasts that operate lamps (commonly   T8 slimline SP (Data                  59            0.95             1.0
 referred to as 8-foot slimline lamps)   Sheet 7881-ANSI-1505-1)              60            0.94             1.0
 with single pin bases and a nominal     *.
 overall length of 96 inches.           T12 slimline SP (Data
                                         Sheet 7881-ANSI-3006-1)
                                         *.
Ballasts that operate straight-shaped   T5 SO Mini-BP (Data                   28            0.95             1.0
 lamps (commonly referred to as 4-foot   Sheet 60081-IEC-6640-7)
 miniature bipin standard output         *.
 lamps) with miniature bipin bases and
 a nominal length between 45 and 48
 inches.
Ballasts that operate straight-shaped   T5 HO Mini-BP (Data                   54            0.95             1.0
 lamps (commonly referred to as 4-foot   Sheet 60081-IEC-6840-6)
 miniature bipin high output lamps)      *.
 with miniature bipin bases and a
 nominal length between 45 and 48
 inches.
Sign ballasts that operate lamps        T8 HO RDC (Data Sheet                 86            0.92             1.0
 (commonly referred to as 8-foot high    7881-ANSI-1501-2) *.       [dagger] 110            0.94             1.0
 output lamps) with recessed double     T12 HO RDC (Data Sheet
 contact bases and a nominal overall     7881-ANSI-1019-1) *.
 length of 96 inches.
----------------------------------------------------------------------------------------------------------------
MBP, Mini-BP, RDC, and SP represent medium bipin, miniature bipin, recessed double contact, and single pin,
  respectively.
* Data Sheet corresponds to ANSI C78.81-2016, ANSI C78.901-2016, or IEC 60081 page number (incorporated by
  reference; see Sec.   430.3).
** No ANSI or IEC Data Sheet exists for 34 W T12 MBP U-shaped lamps. For ballasts designed and marketed to
  operate only T12 2-foot U-shaped lamps with MBP bases and a nominal overall length between 22 and 25 inches,
  select T12 U-shaped lamps designed and marketed as having a nominal wattage of 34 W.
[dagger] This lamp type is commonly marketed as 110 W; however, the ANSI C78.81-2016 Data Sheet (incorporated by
  reference; see Sec.   430.3) lists nominal wattage of 113 W. Test with specifications for operation at 0.800
  amperes (A).

2.3.4. Test Circuits

    2.3.4.1. The power analyzer test setup must have exactly n + 1 
channels, where n is the maximum number of lamps (lamp type as 
determined by sections 2.3.3.2, 2.3.3.3, and 2.3.3.4 of this 
appendix) a ballast is designed and marketed to operate. Use the 
minimum number of power analyzers possible during testing. 
Synchronize all power analyzers. A system may be used to synchronize 
the power analyzers.
    2.3.4.2. Lamp Arc Voltage. Attach leads from the power analyzer 
to each fluorescent lamp according to Figure 1 of this section for 
rapid- and programmed-start ballasts; Figure 2 of this section for 
instant-start ballasts operating single pin (SP) lamps; and Figure 3 
of this section for instant-start ballasts operating medium bipin 
(MBP), miniature bipin (mini-BP), or recessed double contact (RDC) 
lamps. The programmed- and rapid-start ballast test setup includes 
two 1000 ohm resistors placed in parallel with the lamp pins to 
create a midpoint from which to measure lamp arc voltage.
    2.3.4.3. Lamp Arc Current. Position a current probe on each 
fluorescent lamp according to Figure 1 of this section for rapid- 
and programmed-start ballasts; Figure 2 of this section for instant-
start ballasts operating SP lamps; and Figure 3 of this section for 
instant-start ballasts operating MBP, mini-BP, and RDC lamps.
    For the lamp arc current measurement, set the full transducer 
ratio in the power analyzer to match the current probe to the power 
analyzer.
[GRAPHIC] [TIFF OMITTED] TR14SE20.006

Where: Iin is the current through the current transducer, 
Vout is the voltage out of the transducer, Rin 
is the power analyzer impedance, and Rs is the current 
probe output impedance.
BILLING CODE 6450-01-P

[[Page 56497]]

[GRAPHIC] [TIFF OMITTED] TR14SE20.007

BILLING CODE 6450-01-C

2.4. Test Conditions

    2.4.1. Establish and maintain test conditions for testing 
fluorescent lamp ballasts in accordance with sections 3 and 4 of 
ANSI C82.2.
    2.4.2. Room Temperature and Air Circulation. Maintain the test 
area at 25 1 [deg]C, with minimal air movement as 
defined in section 4 of ANSI C78.375A.
    2.4.3. Input Voltage. For any ballast designed and marketed for 
operation at only one input voltage, test at that specified voltage. 
For any ballast that is neither a residential ballast nor a sign 
ballast but is designed and marketed for operation at multiple 
voltages, test the ballast at 277 V 0.1%. For any 
residential ballast or sign ballast designed and marketed for 
operation at multiple voltages, test the ballast at 120 V 0.1%.

2.5. Test Method

    2.5.1. Connect the ballast to the selected fluorescent lamps (as 
determined in section 2.3.3 of this appendix) and to measurement 
instrumentation as specified in the Test Setup in section 2.3 of 
this appendix.
    2.5.2. Determine stable operating conditions according to Option 
1 or Option 2.
    2.5.2.1. Option 1. Operate the ballast for at least 15 minutes 
before determining stable operating conditions. Determine stable 
operating conditions by measuring lamp arc voltage, current, and 
power once per minute in accordance with the setup described in 
section 2.3 of this appendix. The system is stable once the 
difference between the maximum and minimum for each value of lamp 
arc voltage, current, and power divided by the average value of the 
measurements do not exceed one percent over a four minute moving 
window. Once stable operating conditions are reached, measure each 
of the parameters described in sections 2.5.3 through 2.5.9 of this 
appendix.
    2.5.2.2 Option 2. Determine stable operating conditions for lamp 
arc voltage, current, and power according to steps 1 through 6 of 
section D.2.1 in Annex D of ANSI C82.11.
    2.5.3. Lamp Arc Voltage. Measure lamp arc voltage in volts (RMS) 
using the setup in section 2.3.4.2.
    2.5.4. Lamp Arc Current. Measure lamp arc current in amps (RMS) 
using the setup in section 2.3.4.3 of this appendix.
    2.5.5. Lamp Arc Power. The power analyzer must calculate output 
power by using the measurements from sections 2.5.3 and 2.5.4 of 
this appendix.
    2.5.6. Input Power. Measure the input power in watts to the 
ballast in accordance with section 7 of ANSI C82.2 (disregard 
references to Figure 1 and Figure 3).
    2.5.7. Input Voltage. Measure the input voltage in volts (RMS) 
to the ballast in accordance with section 7 of ANSI C82.2 (disregard 
references to Figure 1 and Figure 3).
    2.5.8. Input Current. Measure the input current in amps (RMS) to 
the ballast in accordance with section 7 of ANSI C82.2 (disregard 
references to Figure 1 and Figure 3).
    2.5.9. Lamp Operating Frequency. Measure the frequency of the 
waveform delivered from the ballast to any lamp used in the test in 
accordance with the setup in section 2.3 of this appendix.

2.6. Calculations

    2.6.1. Calculate ballast luminous efficiency (BLE) as follows 
(do not round values of total lamp arc power and input power prior 
to calculation):

[[Page 56498]]

[GRAPHIC] [TIFF OMITTED] TR14SE20.008

Where: Total Lamp Arc Power is the sum of the lamp arc powers for 
all lamps operated by the ballast as measured in section 2.5.5 of 
this appendix, Input Power is as determined by section 2.5.6 of this 
appendix, and [beta] is equal to the frequency adjustment factor in 
Table 1 of this appendix.

    2.6.2. Calculate Power Factor (PF) as follows (do not round 
values of input power, input voltage, and input current prior to 
calculation):
[GRAPHIC] [TIFF OMITTED] TR14SE20.009

Where: Input Power is measured in accordance with section 2.5.6 of 
this appendix, Input Voltage is measured in accordance with section 
2.5.7 of this appendix, and Input Current is measured in accordance 
with section 2.5.8 of this appendix.

3. Standby Mode Procedure

    3.1. The measurement of standby mode power is required to be 
performed only if a manufacturer makes any representations with 
respect to the standby mode power use of the fluorescent lamp 
ballast. When there is a conflict, the language of the test 
procedure in this appendix takes precedence over IEC 62301 
(incorporated by reference; see Sec.  430.3). Specifications in 
referenced standards that are not clearly mandatory are mandatory. 
Manufacturer's instructions, such as ``instructions for use'' 
referenced in IEC 62301 mean the manufacturer's instructions that 
come packaged with or appear on the unit, including on a label. It 
may include an online manual if specifically referenced (e.g., by 
date or version number) either on a label or in the packaged 
instructions. Instructions that appear on the unit take precedence 
over instructions available electronically, such as through the 
internet.

3.2. Test Setup

    3.2.1. Take all measurements with instruments as specified in 
section 2.2 of this appendix. Fluorescent lamp ballasts that are 
designed and marketed for connection to control devices must be 
tested with all commercially available compatible control devices 
connected in all possible configurations. For each configuration, a 
separate measurement of standby power must be made in accordance 
with section 3.4 of this appendix.
    3.2.2. Connect each ballast to the maximum number of lamp(s) as 
specified in section 2.3 (specifications in 2.3.3.1 are optional) of 
this appendix. Note: ballast operation with reference lamp(s) is not 
required.

3.3. Test Conditions

    3.3.1. Establish and maintain test conditions in accordance with 
section 2.4 of this appendix.

3.4. Test Method and Measurements

    3.4.1. Turn on all of the lamps at full light output.
    3.4.2. Send a signal to the ballast instructing it to have zero 
light output using the appropriate ballast communication protocol or 
system for the ballast being tested.
    3.4.3. Stabilize the ballast prior to measurement using one of 
the methods as specified in section 5 of IEC 62301.
    3.4.4. Measure the standby mode energy consumption in watts 
using one of the methods as specified in section 5 of IEC 62301.

[FR Doc. 2020-14646 Filed 9-11-20; 8:45 am]
BILLING CODE 6450-01-P