[Federal Register Volume 87, Number 26 (Tuesday, February 8, 2022)]
[Proposed Rules]
[Pages 7048-7056]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-02576]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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Federal Register / Vol. 87, No. 26 / Tuesday, February 8, 2022 /
Proposed Rules
[[Page 7048]]
DEPARTMENT OF ENERGY
10 CFR Parts 429 and 431
[EERE-2022-BT-STD-0002]
RIN 1904-AC55
Energy Conservation Program: Energy Conservation Standards for
Fans and Blowers
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Request for information.
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SUMMARY: The U.S. Department of Energy (``DOE'' or ``the Department'')
is evaluating potential energy conservation standards for fans and
blowers, including air circulating fans. Through this request for
information (``RFI''), DOE seeks data and information to help determine
whether potential energy conservation standards for fans and blowers,
including air circulating fans, would result in standards that are
technologically feasible and economically justified while producing
significant conservation of energy. DOE welcomes written comments from
the public on any subject within the scope of this document (including
those topics not specifically raised in this RFI), as well as the
submission of data and other relevant information.
DATES: Written comments and information are requested and will be
accepted on or before March 10, 2022.
ADDRESSES: Interested persons are encouraged to submit comments using
the Federal eRulemaking Portal at www.regulations.gov. Follow the
instructions for submitting comments. Alternatively, interested persons
may submit comments, identified by docket number EERE-2022-BT-STD-0002,
by any of the following methods:
1. Federal eRulemaking Portal: www.regulations.gov. Follow the
instructions for submitting comments.
2. Email: To [email protected]. Include docket
number EERE-2022-BT-STD-0002 in the subject line of the message.
No telefacsimilies (``faxes'') will be accepted. For detailed
instructions on submitting comments and additional information on this
process, see section III of this document.
Although DOE has routinely accepted public comment submissions
through a variety of mechanisms, including the Federal eRulemaking
Portal, email, postal mail, or hand delivery/courier, the Department
has found it necessary to make temporary modifications to the comment
submission process in light of the ongoing coronavirus 2019 (``COVID-
19'') pandemic. DOE is currently suspending receipt of public comments
via postal mail and hand delivery/courier. If a commenter finds that
this change poses an undue hardship, please contact Appliance Standards
Program staff at (202) 586-1445 to discuss the need for alternative
arrangements. Once the COVID-19 pandemic health emergency is resolved,
DOE anticipates resuming all of its regular options for public comment
submission, including postal mail and hand delivery/courier.
Docket: The docket for this activity, which includes Federal
Register notices, comments, and other supporting documents/materials,
is available for review at www.regulations.gov. All documents in the
docket are listed in the www.regulations.gov index. However, some
documents listed in the index, such as those containing information
that is exempt from public disclosure, may not be publicly available.
The docket web page can be found at www.regulations.gov/docket/EERE-2022-BT-STD-0002. The docket web page contains instructions on how
to access all documents, including public comments, in the docket. See
section III for information on how to submit comments through
www.regulations.gov.
FOR FURTHER INFORMATION CONTACT:
Mr. Jeremy Dommu, U.S. Department of Energy, Office of Energy
Efficiency and Renewable Energy, Building Technologies Office, EE-5B,
1000 Independence Avenue SW, Washington, DC 20585-0121. Telephone:
(202) 586-9870. Email: [email protected].
Ms. Amelia Whiting, U.S. Department of Energy, Office of the
General Counsel, GC-33, 1000 Independence Avenue SW, Washington, DC
20585-0121. Telephone: 202-586-2588. Email: [email protected].
For further information on how to submit a comment or review other
public comments and the docket, contact the Appliance and Equipment
Standards Program staff at (202) 287-1445 or by email:
[email protected].
SUPPLEMENTARY INFORMATION:
Table of Contents
I. Introduction
A. Authority and Background
B. Rulemaking History
C. Rulemaking Process
D. Deviation From Appendix A
II. Request for Information
A. Scope
B. Market and Technology Assessment
1. Equipment Classes
2. Technology Assessment
C. Screening Analysis
D. Engineering Analysis
1. Efficiency Analysis
2. Cost Analysis
E. Distribution Channels
F. Energy Use Analysis
G. Life-Cycle Cost and Payback Period Analyses
1. Installation, Repair and Maintenance Costs
2. Lifetime
3. Efficiency Distribution in the No-New Standards Case
H. Shipments
III. Submission of Comments
I. Introduction
A. Authority and Background
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 C \2\ of EPCA, added by Public Law 95-619, Title
IV, section 441(a) (42 U.S.C. 6311-6317 as codified), established the
Energy Conservation Program for Certain Industrial Equipment, which
sets forth a variety of provisions designed to improve energy
efficiency.
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\1\ All references to EPCA in this document refer to the statute
as amended through the Infrastructure Investment and Jobs Act,
Public Law 117-58 (Nov. 15, 2021).
\2\ For editorial reasons, upon codification in the U.S. Code,
Part C was redesignated Part A-1.
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EPCA specifies a list of equipment that constitutes covered
equipment
[[Page 7049]]
(hereafter referred to as ``covered equipment'').\3\ EPCA also provides
that ``covered equipment'' includes any other type of industrial
equipment for which the Secretary of Energy (``Secretary'') determines
inclusion is necessary to carry out the purpose of Part A-1. (42 U.S.C.
6311(1)(L); 42 U.S.C. 6312(b)) EPCA specifies the types of industrial
equipment that can be classified as covered in addition to the
equipment enumerated in 42 U.S.C. 6311(1) This industrial equipment
includes fans and blowers. (42 U.S.C. 6311(2)(B)(ii) and (iii))
Additionally, industrial equipment must be of a type that consumes, or
is designed to consume, energy in operation; is distributed in commerce
for industrial or commercial use \4\; and is not a covered product as
defined in 42 U.S.C. 6291(a)(2) other than a component of a covered
product with respect to which there is in effect a determination under
42 U.S.C. 6312(c). (42 U.S.C. 6311(2)(A)) On August 19, 2021, DOE
published a final determination that the inclusion of fans and blowers
as covered equipment was necessary to carry out the purpose of Part A-1
and classified fans and blowers as covered equipment. 86 FR 46579,
46588. Air circulating fans are a class of fans and blowers.
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\3\ ``Covered equipment'' means one of the following types of
industrial equipment: Electric motors and pumps; small commercial
package air conditioning and heating equipment; large commercial
package air conditioning and heating equipment; very large
commercial package air conditioning and heating equipment;
commercial refrigerators, freezers, and refrigerator-freezers;
automatic commercial ice makers; walk-in coolers and walk-in
freezers; commercial clothes washers; packaged terminal air-
conditioners and packaged terminal heat pumps; warm air furnaces and
packaged boilers; and storage water heaters, instantaneous water
heaters, and unfired hot water storage tanks. (42 U.S.C. 6311(1)(A)-
(K))
\4\ DOE notes that distribution for residential use does not
preclude coverage as covered equipment, so long as the equipment is
of a type that is also distributed in commerce for industrial and
commercial use.
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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 include definitions (42 U.S.C. 6311), test
procedures (42 U.S.C. 6314), labeling provisions (42 U.S.C. 6315),
energy conservation standards (42 U.S.C. 6313), and the authority to
require information and reports from manufacturers. (42 U.S.C. 6316; 42
U.S.C. 6296)
Federal energy efficiency requirements for covered equipment
established under EPCA generally supersede State laws and regulations
concerning energy conservation testing, labeling, and standards. (42
U.S.C. 6316(a) and (b); 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.
6316(b)(2)(D))
In proposing new standards, DOE must evaluate that proposal against
the criteria of 42 U.S.C. 6295(o), as described in section I.C of this
document, and follow the rulemaking procedures set out in 42 U.S.C.
6295(p). (42 U.S.C. 6316(a)) DOE is publishing this RFI consistent with
its obligations in EPCA.
B. Rulemaking History
On June 28, 2011, DOE published a notice of proposed determination
of coverage proposing to determine that fans, blowers, and fume hoods
qualify as covered equipment. 76 FR 37678. DOE noted that there are no
statutory definitions for ``fan,'' ``blower,'' or ``fume hood,'' and
presented definitions for consideration. 76 FR 37678, 37679. DOE
subsequently published a framework document on February 1, 2013
detailing the analytical approach for developing potential energy
conservation standards for commercial and industrial fans and blowers
should the Secretary classify such equipment as covered equipment
(``Framework Document''). 78 FR 7306. In the Framework Document, DOE
determined that it lacks authority to establish energy conservation
standards for fume hoods because fume hoods are not listed as a type of
equipment for which DOE could establish standards. (Docket EERE-2013-
BT-STD-0006, No. 1 at p. 15) DOE acknowledged that the fan, which
provides ventilation for the fume hood, consumes the largest portion of
energy within the fume hood system, and that DOE planned to cover all
commercial and industrial fan types, which includes fans used to
ventilate fume hoods. Id.
On December 10, 2014, DOE published a notice of data availability
that presented a provisional analysis estimating the economic impacts
and energy savings from potential energy conservation standards for
certain fans and blowers. This analysis did not include air circulating
fans. 79 FR 73246.
On April 1, 2015, DOE published a notice of intent to establish an
Appliance Standards and Rulemaking Federal Advisory Committee
(``ASRAC'') Working Group for fans (hereafter referred to as the
``Working Group''). 80 FR 17359.
The Working Group commenced negotiations at an open meeting on May
18, 2015 and held 16 meetings and three webinars to discuss scope,
metrics, test procedures, and standard levels for fans and blowers.\5\
The Working Group concluded its negotiations on September 3, 2015, and,
by consensus vote,\6\ approved a term sheet containing 27
recommendations related to scope, test procedure and energy
conservation standards (``term sheet'').\7\ See Docket No. EERE-2013-
BT-STD-0006, No. 179. ASRAC approved the term sheet on September 24,
2015. The Working Group term sheet recommended the exclusion of
circulating fans.\8\
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\5\ All documentation from the Working Group meetings may be
found in Docket No. EERE-2013-BT-STD-0006) at www.regulations.gov/docket/EERE-2013-BT-STD-0006/document.
\6\ At the beginning of the negotiated rulemaking process, the
Working Group defined that before any vote could occur, the Working
Group must establish a quorum of at least 20 of the 25 members and
defined consensus as an agreement with less than 4 negative votes.
Twenty voting members of the Working Group were present for this
vote. Two members (Air-Conditioning, Heating, and Refrigeration
Institute and Ingersoll Rand/Trane) voted no on the term sheet.
\7\ In addition to the 27 recommendations, there were five
recommendations that did not receive a consensus vote.
Recommendations 28, 29, 30, 31, and 32 are included in Appendix F of
the term sheet and were not approved by ASRAC.
\8\ See Recommendation 2 of the term sheet.
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On May 10, 2021, DOE published a request for information requesting
comments on a potential fan or blower definition. 86 FR 24752 (``May
2021 RFI''). On August 19, 2021, DOE published in the Federal Register
a final coverage determination classifying fans and blowers as covered
equipment (``August 2021 Final Coverage Determination''). 86 FR 46579.
To date, DOE has not proposed test procedures or energy
conservation standards for fans and blowers, including air circulating
fans.
C. Rulemaking Process
DOE must follow specific statutory criteria for prescribing new or
amended standards for covered equipment. EPCA requires that any new or
amended energy conservation standard prescribed by the Secretary of
Energy (``Secretary'') be designed to achieve the maximum improvement
in energy or water efficiency that is technologically feasible and
economically justified. (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(2)(A))
Furthermore, DOE may not adopt any standard that would not result in
the significant conservation of energy. (42 U.S.C. 6316(a); 42 U.S.C.
6295(o)(3))
The significance of energy savings offered by a new or amended
energy conservation standard cannot be determined without knowledge of
the specific circumstances surrounding a
[[Page 7050]]
given rulemaking.\9\ For example, the United States has now rejoined
the Paris Agreement on February 19, 2021. As part of that agreement,
the United States has committed to reducing the GHG emissions in order
to limit the rise in mean global temperature. As such, energy savings
that reduce GHG emission have taken on greater importance.
Additionally, some covered products and equipment have most of their
energy consumption occur during periods of peak energy demand. The
impacts of these products on the energy infrastructure can be more
pronounced than products with relatively constant demand. In evaluating
the significance of energy savings, DOE considers differences in
primary energy and full fuel cycle (``FFC'') effects for different
covered products and equipment when determining whether energy savings
are significant. Primary energy and FFC effects include the energy
consumed in electricity production (depending on load shape), in
distribution and transmission, and in extracting, processing, and
transporting primary fuels (i.e., coal, natural gas, petroleum fuels),
and thus present a more complete picture of the impacts of energy
conservation standards. Accordingly, DOE evaluates the significance of
energy savings on a case-by-case basis.
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\9\ See 86 FR 70892, 70901 (Dec. 13, 2021).
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To determine whether a standard is economically justified, EPCA
requires that DOE determine whether the benefits of the standard exceed
its burdens by considering, to the greatest extent practicable, the
following seven factors:
(1) The economic impact of the standard on the manufacturers and
consumers of the affected products;
(2) The savings in operating costs throughout the estimated average
life of the product compared to any increases in the initial cost, or
maintenance expenses;
(3) The total projected amount of energy and water (if applicable)
savings likely to result directly from the standard;
(4) Any lessening of the utility or the performance of the products
likely to result from the standard;
(5) The impact of any lessening of competition, as determined in
writing by the Attorney General, that is likely to result from the
standard;
(6) The need for national energy and water conservation; and
(7) Other factors the Secretary considers relevant.
(42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(2)(B)(i)(I)-(VII))
DOE fulfills these and other applicable requirements by conducting
a series of analyses throughout the rulemaking process. Table I.1 shows
the individual analyses that are performed to satisfy each of the
requirements within EPCA.
Table I.1--EPCA Requirements and Corresponding DOE Analysis
------------------------------------------------------------------------
EPCA requirement Corresponding DOE analysis
------------------------------------------------------------------------
Significant Energy Savings........ Shipments Analysis, National Impact
Analysis, Energy and Water Use
Determination.
Technological Feasibility......... Market and Technology Assessment,
Screening Analysis, Engineering
Analysis.
------------------------------------------------------------------------
Economic Justification
------------------------------------------------------------------------
Economic Impact on Manufacturers Manufacturer Impact Analysis, Life-
and Consumers. Cycle Cost and Payback Period
Analysis, Life-Cycle Cost Subgroup
Analysis, Shipments Analysis.
Lifetime Operating Cost Savings Markups for Product Price
Compared to Increased Cost for Determination, Energy and Water Use
the Product. Determination, Life-Cycle Cost and
Payback Period Analysis.
Total Projected Energy Savings.... Shipments Analysis, National Impact
Analysis.
Impact on Utility or Performance.. Screening Analysis, Engineering
Analysis.
Impact of Any Lessening of Manufacturer Impact Analysis.
Competition.
Need for National Energy and Water Shipments Analysis, National Impact
Conservation. Analysis.
Other Factors the Secretary Employment Impact Analysis, Utility
Considers Relevant. Impact Analysis, Emissions
Analysis, Monetization of Emission
Reductions Benefits, Regulatory
Impact Analysis.
------------------------------------------------------------------------
As detailed throughout this RFI, DOE is publishing this document
seeking input and data from interested parties to aid in the
development of the technical analyses on which DOE will ultimately rely
to determine whether (and if so, how) to establish the standards for
air circulating fans.
D. Deviation From Appendix A
In accordance with section 3(a) of 10 CFR part 430, subpart C,
appendix A, DOE notes that it is deviating from that appendix's
provision requiring a 75-day comment period for all pre-NOPR standards
documents. 10 CFR part 430, subpart C, appendix A, section 6(d)(2). DOE
is opting to deviate from this step because DOE believes a 30-day
comment period is sufficient given the substantial stakeholder
engagement to date, as discussed in section I.B of this document.
Further, the 30-day comment period will allow DOE to review comments
received in response to this RFI to inform the scope of equipment
considered in evaluating potential energy conservation standards, in
particular whether air circulating fans should be included as part of
that evaluation. DOE believes that the test procedure request for
information on air circulating fan heads provided early notice that the
Department is interested in evaluating potential energy savings for
this equipment.
II. Request for Information
In the following sections, DOE has identified a variety of issues
on which it seeks input to aid in the development of the technical and
economic analyses regarding whether standards for air circulating fans
may be warranted. DOE also welcomes comments on other issues relevant
to its analysis that may not specifically be identified in this
document.
A. Scope
On October 1, 2021, DOE published a request for information
pertaining to potential test procedures for fans and blowers (``October
2021 TP RFI''). 86 FR 54412. As part of the October 2021 TP RFI, DOE
discussed potential scope and definitions for air circulating fans,
which include air circulating fan heads, personnel coolers, box fans,
and table fans. 86 FR 54412, 54414-54415. DOE is considering including
air circulating fans in its analysis of potential energy
[[Page 7051]]
conservation standards for fans and blowers.
B. Market and Technology Assessment
The market and technology assessment that DOE routinely conducts
when analyzing the impacts of a potential new or amended energy
conservation standard provides information about the air circulating
fan industry that will be used in DOE's analysis throughout the
rulemaking process. DOE uses qualitative and quantitative information
to characterize the structure of the industry and market. DOE
identifies manufacturers, estimates market shares and trends, addresses
regulatory and non-regulatory initiatives intended to improve energy
efficiency or reduce energy consumption, and explores the potential for
efficiency improvements in the design and manufacturing of air
circulating fans. DOE also reviews product literature, industry
publications, and company websites. Additionally, DOE considers
conducting interviews with manufacturers to improve its assessment of
the market and to better understand available air circulating fan
technologies.
1. Equipment Classes
When evaluating and establishing energy conservation standards, DOE
may divide covered equipment into equipment classes by the type of
energy used, by capacity, or by other performance-related features that
may justify a different standard. (42 U.S.C. 6316(a); 42 U.S.C.
6295(q)(1)) In making a determination whether a performance-related
feature justifies a different standard, DOE must consider such factors
as the utility of the feature to the consumer and other factors DOE
deems appropriate. Id. ANSI/AMCA Standard 230-15 ``Laboratory Methods
of Testing Air Circulating Fans for Rating and Certification'' (``AMCA
230-15'') \10\ is the industry test procedure for air circulating fans,
which includes air circulating fan heads, personnel coolers, box fans,
and table fans. Section 5.1. of AMCA 230-15 defines an air circulating
fan as ``a non-ducted fan used for the general circulation of air
within a confined space'' and provides additional definitions for air
circulating fan head (section 5.1.1), ceiling fan (section 5.1.2),
personnel cooler (section 5.1.3), box fan (section 5.1.4), and table
fan (section 5.1.5).
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\10\ ANSI/AMCA 230-15 is available at the AMCA website at
www.amca.org/publish/publications-and-standards/amca-standards/amca-standard-230-15-laboratory-methods-of-testing-air-circulating-fans-for-rating-and-certification.html.
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Table II.2 lists the four categories of air circulating fans as
defined in in AMCA 230-15. DOE is evaluating whether to consider these
four categories of air circulating fans separately, or if they should
be considered as a single equipment category.
Table II.2--Definitions of Air Circulating Fan Categories
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Category Definition according to AMCA 230-15
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Air Circulating Fan Head..... An assembly consisting of a motor,
impeller, and guard for mounting on a
pedestal having a base and column, wall
mount bracket, ceiling mount bracket, I-
beam bracket, or other commonly accepted
mounting means.
Box Fan...................... A fan used in an office or residential
application and having the motor and
impeller enclosed in an approximately
square box frame having a handle.
Personnel Cooler............. A fan used in shops, factories, etc.
Generally supplied with wheels or
casters on the housing or frame to aid
in portability and with motor and
impeller enclosed in a common guard and
shroud.
Table Fan.................... A fan intended for use on a desk, table,
or countertop. The fan may also be
provided with the means for mounting to
a wall.
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DOE's evaluation of product literature indicates that drum fans,
barrel fans, and portable blowers are also sold as air circulating
fans. DOE has tentatively included these fans under the definition of
personnel coolers in Table II.2 of this RFI.
DOE suggested a potential definition for air circulating fan heads
in the October 2021 RFI, including that these fans are fans are
designed for directional airflow. DOE is interested in understanding
the type(s) of airflow typically associated with personnel coolers, box
fans, and table fans. DOE will consider any feedback and comments on
the flow and potential definitions for personnel cooler, box fan, and
table fan in the test procedure docket (EERE-2021-BT-TP-0021).
Issue 1: DOE requests comment on whether it should consider air
circulating fan heads, personnel coolers, box fans, and table fans as
separate categories or whether some or all of these four categories
should be grouped together when evaluating potential energy
conservation standards for fans. Specifically, DOE seeks information
and data on whether these four fan categories have unique features or
applications that warrant separate consideration from each other or
whether any of them are so similar that they should be grouped
together. DOE also requests feedback on whether there are any air
circulating fans that it should include in its analysis that are not
listed in Table II.2 of this RFI.
Issue 2: DOE requests information on whether each of the four
categories of air circulating fans shown in Table II.2 of this RFI
provide general circulation of air, directional airflow, or some other
type of airflow.
Issue 3: DOE requests feedback on whether air circulating fan
heads, personnel coolers, box fans, or table fans could be delineated
into separate equipment classes based on diameter, operating speed,
efficiency, or utility. If so, DOE seeks feedback on what those
equipment classes would be for the particular air circulating fan
categories and what features distinguish them from one another.
Issue 4: DOE requests feedback on whether the definition of
personnel coolers in Table II.2 of this RFI is sufficiently describes
drum fans, barrel fans, and portable blower fans. If not, DOE requests
information and data showing any differences in size, operating speed,
efficiency, or utility between personnel coolers, drum fans, barrel
fans, and portable blower fans.
2. Technology Assessment
In analyzing the feasibility of potential new energy conservation
standards, DOE uses information about existing and past technology
options and prototype designs to help identify technologies that
manufacturers could use to meet and/or exceed a given energy
conservation standard level under consideration. In consultation with
interested parties, DOE intends to develop a list of technologies to
consider in its analysis of air circulating fans.
DOE reviewed manufacturer catalogs, recent trade publications, and
technical journals to develop a list of technology
[[Page 7052]]
options that could improve the efficiency of air circulating fans. A
list of potential technology options for air circulating fans is shown
in Table II.3 of this document.
Table II.3--Potential Technology Options for Air Circulating Fans
------------------------------------------------------------------------
Technology option Description
------------------------------------------------------------------------
Improved aerodynamic design.. Improving the aerodynamics of fan
components that are placed in the flow
of air can improve efficiency. This
includes the motor housing and the rear
and front fan guards but does not
include blade design.
Blade shape.................. Adjusting the amount or direction of the
curvature of the blades can improve
efficiency. Airfoil blades, in
particular, may offer better efficiency
than other blade shapes.\11\
More efficient motors........ Three-phase AC Induction motors and
Brushless DC motors have improved
efficiencies compared to Single-phase AC
Induction motors.
Three-phase induction motors can produce
higher torque than single-phase
induction motors and can therefore turn
the fan shaft more efficiently. They
also have less thermal energy losses
than single-phase induction motors.
Brushless DC motors are a type of
permanent magnet synchronous motor,
which are more efficient than induction
motors due to the lack of rotor losses.
Material selection........... Different materials, such as aluminum,
plastic, steel, and fiberglass can be
used for fan blade impellers and may
improve fan efficiency.
Variable speed drives (VSDs). VSDs allow control over fan speed for
fans sold with a motor. The fan speed
can be optimized to maximize efficiency
for fans that experience variable loads.
------------------------------------------------------------------------
Issue 5: DOE requests information on how the technologies listed in
Table II.3 of this document may impact the efficiency of air
circulating fans. Specifically, DOE seeks data showing how one or more
of the technology options listed in Table II.3 of this RFI improves air
circulating fan efficiency. Additionally, DOE requests comment on
whether the technology options listed in Table II.3 of this document
apply equally to the different categories of air circulating fans
(i.e., air circulating fan heads, personnel fans, box fans, and table
fans). If not, DOE requests information on why they cannot be applied
equally for the different classes.
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\11\ United States Department of Energy Office of Energy
Efficiency and Renewable Energy (2013). Energy Conservation
Standards Rulemaking Framework for Commercial and Industrial Fans
and Blowers. www.regulations.gov/document/EERE-2013-BT-STD-0006-0001, p. 34.
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Issue 6: DOE requests data on the impact of curved blades and
airfoil blades on the efficiency of air circulating fans. Additionally,
DOE requests feedback on whether any blade shapes not listed in Table
II.3 are typically used for air circulating fans. DOE also requests
data on the percentage of shipments for each category of air
circulating fan (i.e., air circulating fan heads, personnel coolers,
box fans, and table fans) with curved blades, airfoil blades, or other
blade types.
Issue 7: DOE requests data on the percentage of air circulating
fans sold with a motor. For those fans sold with a motor, DOE seeks
data on the percentage of these fans currently sold with a variable
speed drive. Additionally, DOE requests information on whether a higher
percentage of certain categories of air circulating fans (i.e., air
circulating fan heads, personnel fans, box fans, and table fans) are
sold with motors and/or variable speed drives than other types.
Issue 8: DOE requests feedback on the efficiency impact of the
blade materials listed in Table II.3 of this RFI for air circulating
fans. Specifically, DOE requests data on the percentage of air
circulating fan shipments that utilize aluminum, plastic, steel, or
fiberglass for the design and manufacture of fan blades. Additionally,
DOE seeks information on whether any materials not listed in Table II.3
of this RFI are used, and if so, the percentage of fans sold with these
other materials.
Issue 9: DOE seeks comment on technology options not listed in
Table II.3 of this document that it should consider for inclusion in
its analysis of air circulating fans, or for specific categories of air
circulating fans (i.e., air circulating fan heads, personnel fans, box
fans, and table fans) and if these technologies may impact product
features or consumer utility.
Issue 10: DOE requests feedback on the order in which manufacturers
would implement the technology options listed in Table II.3 of this RFI
to increase the energy efficiency of air circulating fans.
Additionally, DOE solicits feedback on whether the order in which the
technology options listed in Table II.3 of this document might change
for the different categories of air circulating fans (i.e., air
circulating fan heads, personnel fans, box fans, and table fans). DOE
is also interested in understanding whether the increased energy
efficiency from any combination of the technology options in Table II.3
of this RFI would result in design changes that would not otherwise
occur. Finally, DOE requests information on how incorporating any of
the technology options listed in Table II.3 of this RFI may impact
other fan functions or attributes in response to consumer demand.
C. Screening Analysis
The purpose of the screening analysis is to evaluate the
technologies that improve energy efficiency to determine which
technologies will be eliminated from further consideration and which
will be passed to the engineering analysis for further consideration.
DOE determines whether to eliminate certain technology options from
further consideration based on the following criteria:
(1) Technological feasibility. DOE will only consider technologies
that are incorporated in commercial products or in working prototypes.
(2) Practicability to manufacture, install, and service. If DOE
determines that mass production of a technology in commercial products
and reliable installation and servicing of the technology could not be
achieved on the scale necessary to serve the relevant market at the
time of the compliance date of the standard, DOE will eliminate that
technology from further consideration.
(3) Impacts on product utility or product availability. If DOE
determines a technology has a significant adverse impact on the utility
of the product to significant subgroups of consumers, or results in the
unavailability of any covered product type with performance
characteristics (including reliability), features, sizes, capacities,
and volumes that are substantially the same as products generally
available in the
[[Page 7053]]
United States at the time, DOE will eliminate it from further
consideration.
(4) Adverse impacts on health or safety. If DOE determines that a
technology will have significant adverse impacts on health or safety,
DOE will eliminate that technology from consideration.
(5) Unique-Pathway Proprietary Technologies. If a design option
utilizes proprietary technology that represents a unique pathway to
achieving a given efficiency level, DOE will eliminate that technology
from consideration due to the potential for monopolistic concerns.
10 CFR 431.4; 10 CFR part 430, subpart C, appendix A, sections 6(b)(3)
and 7(b)
Technology options identified in the technology assessment are
evaluated against these criteria using DOE analyses and inputs from
interested parties (e.g., manufacturers, trade organizations, and
energy efficiency advocates). Technologies that pass through the
screening analysis are referred to as ``design options'' in the
engineering analysis. As described above, DOE eliminates from
consideration any technology options that fail to meet one or more of
the five criteria.
Issue 11: DOE requests feedback on what impact, if any, the five
screening criteria described in this section would have on each of the
technology options listed in Table II.3 of this document with respect
to air circulating fans. Similarly, DOE seeks information regarding how
these same criteria would affect any other technology options not
already identified in this document with respect to their potential use
in air circulating fans.
Issue 12: DOE seeks information on the technology options listed in
Table II.3 of this RFI for air circulating fans regarding their market
adoption, costs, and any potential issues with incorporating them into
products (e.g., impacts on consumer utility, potential safety concerns,
manufacturing, or production challenges, etc.). Additionally, DOE
requests comment on if there are any differences in the market
adoption, costs, safety, or utility of the technology options in Table
II.3 of this RFI for the different categories of air circulating fans
(i.e., air circulating fan heads, personnel fans, box fans, and table
fans).
D. Engineering Analysis
The purpose of the engineering analysis is to establish the
relationship between the efficiency and cost of air circulating fans.
There are two elements to consider in the engineering analysis: The
selection of efficiency levels to analyze (i.e., the ``efficiency
analysis'') and the determination of product cost at each efficiency
level (i.e., the ``cost analysis''). In determining the performance of
higher-efficiency products, DOE considers technologies and design
option combinations not eliminated by the screening analysis. For each
equipment class, DOE estimates the baseline cost, as well as the
incremental cost for the equipment at efficiency levels above the
baseline. The output of the engineering analysis is a set of cost-
efficiency ``curves'' that are used in downstream analyses (i.e., the
life-cycle cost (``LCC'' and payback period (``PBP'') analyses and the
national impacts analysis (``NIA'')).
1. Efficiency Analysis
DOE typically uses one of two approaches to develop energy
efficiency levels for the engineering analysis: (1) Relying on observed
efficiency levels in the market (i.e., the efficiency level approach)
or (2) determining the incremental efficiency improvements associated
with incorporating specific design options to a baseline model (i.e.,
the design-option approach). Using the efficiency-level approach, the
efficiency levels established for the analysis are determined based on
the market distribution of existing products (in other words, based on
the range of efficiencies and efficiency level ``clusters'' that
already exist on the market). Using the design option approach, the
efficiency levels established for the analysis are determined through
detailed engineering calculations and/or computer simulations of the
efficiency improvements from implementing specific design options that
have been identified in the technology assessment. DOE may also rely on
a combination of these two approaches. For example, the efficiency-
level approach (based on actual products on the market) may be extended
using the design option approach to interpolate to define ``gap fill''
levels (to bridge large gaps between other identified efficiency
levels) and/or to extrapolate to the max-tech level (particularly in
cases where the max-tech level exceeds the maximum efficiency level
currently available on the market).
a. Baseline Efficiency
For each evaluated equipment class, DOE selects a baseline model as
a reference point against which any changes resulting from new or
amended energy conservation standards can be measured. The baseline
model in each equipment class represents the characteristics of common
or typical equipment in that class. Air circulating fans do not
currently have established energy conservation standards, so DOE cannot
use certification values or current minimum energy conservation
standards to determine a baseline for air circulating fans. Instead,
DOE plans to use performance data from air circulating fans currently
on the market to establish a baseline.
Issue 13: DOE requests efficiency data measured according to the
ACMA 230-15 test procedure to characterize the baseline efficiency
level of air circulating fans. Alternatively, DOE requests feedback on
how it can best determine appropriate baseline efficiency levels for
air circulating fans.
b. Maximum Available Efficiency
As part of DOE's analysis, the maximum available efficiency level
is the highest efficiency unit currently available on the market. DOE
also defines a ``max-tech'' efficiency level to represent the
theoretical maximum possible efficiency if all available design options
are incorporated in a model. In applying these design options, DOE
would only include those that are compatible with each other and that
when combined, would represent the theoretical maximum possible
efficiency. In many cases, the max-tech efficiency level is not
commercially available because it is not economically feasible.
Issue 14: DOE seeks input on the maximum available efficiencies for
air circulating fans and whether the maximum available efficiencies are
appropriate and technologically feasible for consideration as possible
energy conservation standards for air circulating fans. Additionally,
DOE requests comment on whether the maximum available efficiencies for
air circulating fan categories (i.e., air circulating fan heads,
personnel coolers, box fans, and table fans) are comparable, or whether
there are significant differences in maximum efficiencies between
categories.
Issue 15: DOE seeks feedback on what design options would be
incorporated at a max-tech efficiency level for all categories of air
circulating fans, and the efficiencies associated with those levels. As
part of this request, DOE also seeks information as to whether there
are limitations on the use of certain combinations of design options.
c. Differences Between Air Circulating Fans and General Fans
DOE is aware that the design and use of air circulating fans is
different from the fans and blowers evaluated by the Working Group. For
instance, air
[[Page 7054]]
circulating fans use a total pressure basis rather than a static
pressure basis. Additionally, Section 5.1.1 of AMCA 214-21 uses a
target of 0.66 when establishing the FEI based on the total pressure of
the air circulating fan under test.
Issue 16: DOE requests comment on additional differences between
air circulating fans and general fans that it should include in its
analysis.
2. Cost Analysis
The cost analysis portion of the engineering analysis is conducted
using one or a combination of cost approaches. The selection of cost
approach depends on a suite of factors, including availability and
reliability of public information, characteristics of the regulated
product, and the availability and timeliness of purchasing the product
on the market. The cost approaches are summarized as follows:
Physical teardowns: Under this approach, DOE physically
dismantles a commercially available product, component-by-component, to
develop a detailed bill of materials for the product.
Catalog teardowns: In lieu of physically deconstructing a
product, DOE identifies each component using parts diagrams (available
from manufacturer websites or appliance repair websites, for example)
to develop the bill of materials for the product.
Price surveys: If neither a physical nor catalog teardown
is feasible (for example, for tightly integrated products such as
fluorescent lamps, which are infeasible to disassemble and for which
parts diagrams are unavailable) or cost-prohibitive and otherwise
impractical (e.g., large commercial boilers), DOE conducts price
surveys using publicly available pricing data published on major online
retailer websites and/or by soliciting prices from distributors and
other commercial channels.
The resulting bill of materials provides the basis for the
manufacturer production cost (``MPC'') estimates. DOE then applies a
manufacturer markup to convert the MPC to manufacturer selling price
(``MSP''). The manufacturer markup accounts for costs such as overhead
and profit.
As described at the beginning of this section, the main outputs of
the engineering analysis are cost-efficiency relationships that
describe the estimated increases in manufacturer production cost
associated with the higher-efficiency products for the analyzed product
classes.
As previously discussed, DOE is considering several technology
options for improving the energy efficiency of air circulating fans.
Those technology options are listed in Table II.3 of this document.
Issue 17: DOE requests input on the increase in MPC associated with
incorporating each technology option for air circulating fans listed in
Table II.3 of this document. DOE also seeks information on the
investments necessary to incorporate specific design options,
including, but not limited to, costs related to new or modified tooling
(if any), materials, engineering, and development efforts to implement
each design option, and manufacturing/production impacts.
DOE is also interested in determining a realistic production cost
value for air circulating fans. This information is used to inform the
MPC calculation and the total cost to the industry to redesign air
circulating fans.
Issue 18: DOE requests data showing the total cost of manufacturing
for air circulating fan heads, personnel coolers, box fans, and table
fans.
E. Distribution Channels
In generating end-user price inputs for the life-cycle cost
(``LCC'') analysis and national impact analysis (``NIA''), DOE must
identify distribution channels (i.e., how the products are distributed
from the manufacturer to the consumer) and estimate relative sales
volumes through each channel. DOE is interested in developing
distribution channels for each categories of air circulating fans
(i.e., air circulating fan heads, personnel coolers, box fans, and
table fans) and may consider different channels depending on the input
power of the fans or other design characteristic.
Issue 19: DOE requests information to help characterize
distribution channels for air circulating fans. DOE also requests data
on the fraction of sales that go through these channels.
F. Energy Use Analysis
As part of the rulemaking process, DOE conducts an energy use
analysis to identify how equipment is used by consumers, and thereby
determine the energy savings potential of energy efficiency
improvements. The energy use analysis is meant to represent the energy
consumption of a given equipment when used in the field. The annual
energy use of air circulating fans is calculated based on the fans'
input power (in watts) and annual operating hours per year. In any
future analysis, DOE may consider combining air circulating fan input
power ratings in each operating mode (e.g., high speed, medium speed,
low speed) from the engineering analysis based on estimates of the
distribution of annual operating hours at each mode.
DOE is interested in information to help characterize the annual
operating hours of air circulating fans and time spend in each
operating mode, if applicable.
In the absence of existing data indicating the daily hours of
operation specific to air circulating fans, DOE may consider relying on
the annual operating hours developed for ceiling fans as used in the
final rule published on January 19, 2017. See 82 FR 6826, 6846-6847.
For example, for air circulating fans used in commercial and industrial
applications, DOE may consider an estimated 12 hours of use per day
consistent with the hours of use estimated for large-diameter ceiling
fans and high-speed small diameter fans as used in the final rule
published on January 19, 2017. 82 FR 6826, 6847. Large-diameter ceiling
fans and high-speed small diameter fans are also used in commercial and
industrial applications.
Issue 20: DOE seeks information to help characterize the usage of
air circulating fans. Specifically, DOE seeks input on data sources to
help characterize the variability in annual energy consumption for air
circulating fans. For each air circulating fan category, DOE is
requesting data and information (by sectorial) related to: (1) Annual
operating hours; and (2) fraction of time spent at each speed setting
and standby mode (if applicable).
Issue 21: For each air circulating fan category, DOE is also
interested in percentage of shipments by sector of application. To the
extent any of these usage parameters differ by geographical region or
other user characteristics, DOE requests information to help
characterize these variations.
G. Life-Cycle Cost and Payback Period Analyses
DOE conducts the LCC and payback period (``PBP'') analysis to
evaluate the economic effects of potential energy conservation
standards for air circulating fans, on individual consumers. For any
given efficiency level, DOE measures the PBP and the change in LCC
relative to an estimated baseline level. The LCC is the total consumer
expense over the life of the equipment, consisting of purchase,
installation, and operating costs (expenses for energy use,
maintenance, and repair). Inputs to the calculation of total installed
cost include the cost of the equipment--which includes MSPs,
distribution channel markups, and sales taxes--and installation costs.
Inputs to the calculation of operating expenses
[[Page 7055]]
include annual energy consumption, energy prices and price projections,
repair and maintenance costs, equipment lifetimes, discount rates, and
the year that compliance with new and amended standards is required. In
this section, DOE discusses specific inputs to the LCC and PBP analysis
for which it requests comment and feedback.
1. Installation, Repair and Maintenance Costs
As part of a potential energy conservation standards rulemaking,
should one be conducted, DOE will review available air circulating fan
installation, maintenance, and repair cost information.
Issue 22: DOE requests information describing installation,
maintenance, and repair practices of air circulating fans. DOE requests
feedback and data on whether installation, maintenance, and repair
costs of air circulating fans at higher efficiency levels differ in
comparison to the baseline installation, maintenance, and repair costs.
To the extent that these costs differ, DOE seeks supporting data and
the reasons for those differences.
Issue 23: DOE requests information on the repair rate of each air
circulating fan category (i.e., percentage of fans purchased that are
repaired).
2. Lifetime
The equipment lifetime is the age at which given equipment is
retired from service. DOE typically develops survival probabilities
using on a Weibull function to characterize variability in lifetimes.
As part of a potential energy conservation standards rulemaking, DOE
will review available air circulating fan lifetime data by category and
sector of application.
Issue 24: DOE seeks data and input on the appropriate average,
minimum, and maximum equipment lifetimes (by sector of application) for
air circulating fans in years and/or in total lifetime operating hours
that DOE should apply when performing its analysis.
3. Efficiency Distribution in the No-New Standards Case
To accurately estimate the share of consumers that would be
affected by a potential energy conservation standard at a particular
efficiency level, DOE's LCC analysis considers the projected
distribution (market shares) of equipment efficiencies in the no-new-
standards case (i.e., the case without amended or new energy
conservation standards) in the compliance year.
Issue 25: DOE seeks data and input on the appropriate efficiency
distribution in the no-new standards case for each air circulating fan
category. DOE seeks data that would support changes in efficiency
distributions over time in the no-new standards case. To the extent any
of the efficiency distributions in the no-new standards case differ by
size or other user design characteristic within an air circulating fan
category, DOE requests information to characterize these variations.
H. Shipments
DOE develops shipments forecasts to calculate the national impacts
of potential energy conservation standards on energy consumption, net
present value (``NPV''), and future manufacturer cash flows. DOE
shipments projections are typically based on available historical data
broken out by equipment class, capacity, and efficiency. Current sales
estimates allow for a more accurate model that captures recent trends
in the market.
As part of a potential energy conservation standards rulemaking,
DOE will review available historical and current shipments data to
estimate current and future shipments of air circulating fans by
category (i.e., air circulating fan heads, personnel coolers, box fans,
and table fans).
Issue 26: DOE requests 2021 annual sales data (or the most recent
year available)--i.e., number of shipments--for air circulating fans.
If disaggregated data of annual sales are not available for different
air circulating fan categories, DOE requests more aggregated data of
annual sales as available.
Issue 27: DOE requests 2021 data (or the most recent year
available) on the fraction of shipments in the industrial, commercial,
and residential sectors for air circulating fans. In each sector, DOE
requests 2021 data (or the most recent year available) on the fraction
of shipments that represent replacement versus new installations.
Issue 28: DOE requests information on the rate at which annual
sales (i.e., number of shipments) of air circulating fans is expected
to change in the next 5-10 years. If possible, DOE requests this
information for each air circulating fan category. If disaggregated
data of annual sales are not available for each air circulating fan
category, DOE requests more aggregated data of annual sales.
Issue 29: DOE requests data and information on any trends in the
fans market that could be used to forecast expected trends in market
share by efficiency levels for air circulating fans. If disaggregated
data are not available for each air circulating fan category, DOE
requests more aggregated data.
III. Submission of Comments
DOE invites all interested parties to submit in writing by the date
specified under the DATES heading, comments and information on matters
addressed in this RFI and on other matters relevant to DOE's
consideration of energy conservation standards for fans and blowers.
These comments and information will aid in the development of an energy
conservation standards notice of proposed rulemaking for fans and
blowers, including air circulating fans, if DOE determines that new
energy conservation standards may be appropriate for this equipment.
Submitting comments via www.regulations.gov. The
www.regulations.gov web page will require you to provide your name and
contact information. Your contact information will be viewable to DOE
Building Technologies staff only. Your contact information will not be
publicly viewable except for your first and last names, organization
name (if any), and submitter representative name (if any). If your
comment is not processed properly because of technical difficulties,
DOE will use this information to contact you. If DOE cannot read your
comment due to technical difficulties and cannot contact you for
clarification, DOE may not be able to consider your comment.
However, your contact information will be publicly viewable if you
include it in the comment or in any documents attached to your comment.
Any information that you do not want to be publicly viewable should not
be included in your comment, nor in any document attached to your
comment. Following this instruction, persons viewing comments will see
only first and last names, organization names, correspondence
containing comments, and any documents submitted with the comments.
Do not submit to www.regulations.gov information for which
disclosure is restricted by statute, such as trade secrets and
commercial or financial information (hereinafter referred to as
Confidential Business Information (``CBI'')). Comments submitted
through www.regulations.gov cannot be claimed as CBI. Comments received
through the website will waive any CBI claims for the information
submitted. For information on submitting CBI, see the Confidential
Business Information section.
DOE processes submissions made through www.regulations.gov before
posting. Normally, comments will be posted within a few days of being
submitted. However, if large volumes of
[[Page 7056]]
comments are being processed simultaneously, your comment may not be
viewable for up to several weeks. Please keep the comment tracking
number that www.regulations.gov provides after you have successfully
uploaded your comment.
Submitting comments via email. Comments and documents submitted via
email also will be posted to www.regulations.gov. If you do not want
your personal contact information to be publicly viewable, do not
include it in your comment or any accompanying documents. Instead,
provide your contact information on a cover letter. Include your first
and last names, email address, telephone number, and optional mailing
address. The cover letter will not be publicly viewable as long as it
does not include any comments.
Include contact information each time you submit comments, data,
documents, and other information to DOE. Faxes will not be accepted.
Comments, data, and other information submitted to DOE
electronically should be provided in PDF (preferred), Microsoft Word or
Excel, WordPerfect, or text (ASCII) file format. Provide documents that
are not secured, are written in English and are free of any defects or
viruses. Documents should not contain special characters or any form of
encryption and, if possible, they should carry the electronic signature
of the author.
Campaign form letters. Please submit campaign form letters by the
originating organization in batches of between 50 to 500 form letters
per PDF or as one form letter with a list of supporters' names compiled
into one or more PDFs. This reduces comment processing and posting
time.
Confidential Business Information. According to 10 CFR 1004.11, any
person submitting information that he or she believes to be
confidential and exempt by law from public disclosure should submit via
email, postal mail, or hand delivery/courier two well-marked copies:
one copy of the document marked confidential including all the
information believed to be confidential, and one copy of the document
marked ``non-confidential'' with the information believed to be
confidential deleted. DOE will make its own determination about the
confidential status of the information and treat it according to its
determination.
It is DOE's policy that all comments may be included in the public
docket, without change and as received, including any personal
information provided in the comments (except information deemed to be
exempt from public disclosure).
DOE considers public participation to be a very important part of
the process for developing test procedures and energy conservation
standards. DOE actively encourages the participation and interaction of
the public during the comment period in each stage of this process.
Interactions with and between members of the public provide a balanced
discussion of the issues and assist DOE in the process. Anyone who
wishes to be added to the DOE mailing list to receive future notices
and information about this process should contact Appliance and
Equipment Standards Program staff at (202) 287-1445 or via email at
[email protected].
Signing Authority
This document of the Department of Energy was signed on February 2,
2022, by Kelly J. Speakes-Backman, Principal Deputy Assistant Secretary
for 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 February 3, 2022.
Treena V. Garrett,
Federal Register Liaison Officer, U.S. Department of Energy.
[FR Doc. 2022-02576 Filed 2-7-22; 8:45 am]
BILLING CODE 6450-01-P