[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
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Reference in this
Organization(s) NOPR Organization type
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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.
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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 *
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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\
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* 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