[Federal Register Volume 87, Number 93 (Friday, May 13, 2022)]
[Proposed Rules]
[Pages 29576-29603]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-09808]
[[Page 29575]]
Vol. 87
Friday,
No. 93
May 13, 2022
Part III
Department of Energy
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10 CFR Part 430
Energy Conservation Program: Test Procedure for Consumer Furnace Fan;
Proposed Rule
Federal Register / Vol. 87, No. 93 / Friday, May 13, 2022 / Proposed
Rules
[[Page 29576]]
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DEPARTMENT OF ENERGY
10 CFR Part 430
[EERE-2020-BT-TP-0041]
RIN 1904-AE15
Energy Conservation Program: Test Procedure for Consumer Furnace
Fans
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Notice of proposed rulemaking and request for comment.
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SUMMARY: The U.S. Department of Energy (``DOE'') proposes to amend the
test procedure for consumer furnace fans to: Clarify the scope of
applicability; incorporate by reference the most recent version of
industry test methods; establish a test method for furnace fans
incapable of operating at the required external static pressure;
clarify testing of certain products, including furnace fans with
modulating controls, furnace fans and modular blowers tested with
electric heat kits, certain two-stage furnaces that operate at reduced
input only for a preset period of time, dual-fuel furnaces, and certain
oil-fired furnaces; and make updates to improve test procedure
repeatability and reproducibility. DOE is seeking comment from
interested parties on the proposals.
DATES: DOE will accept comments, data, and information regarding this
proposal no later than July 12, 2022. See section V, ``Public
Participation,'' for details. DOE will hold a webinar on Thursday, May
19, 2022, from 1:00 p.m. to 3:00 p.m. See section V, ``Public
Participation,'' for webinar registration information, participant
instructions, and information about the capabilities available to
webinar participants.
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-2020-BT-TP-0041,
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-2020-BT-TP-0041 in the subject line of the message.
No telefacsimiles (``faxes'') will be accepted. For detailed
instructions on submitting comments and additional information on this
process, see section V of this document.
Although DOE has routinely accepted public comment submissions
through a variety of mechanisms, including postal mail and 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, which includes Federal Register notices, public
meeting attendee lists and transcripts (if a public meeting is held),
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-2020-BT-TP-0041. The docket web page contains instructions on how
to access all documents, including public comments, in the docket. See
section V for information on how to submit comments through
www.regulations.gov.
FOR FURTHER INFORMATION CONTACT:
Ms. Catherine Rivest, U.S. Department of Energy, Office of Energy
Efficiency and Renewable Energy, Building Technologies Office, EE-2J,
1000 Independence Avenue SW, Washington, DC 20585-0121. Telephone:
(202) 586-7335. Email [email protected].
Mr. Pete Cochran, U.S. Department of Energy, Office of the General
Counsel, GC-33, 1000 Independence Avenue SW, Washington, DC 20585-0121.
Telephone: (202) 586-9496. Email: [email protected].
For further information on how to submit a comment, review other
public comments and the docket, or participate in a public meeting (if
one is held), contact the Appliance and Equipment Standards Program
staff at (202) 287-1445 or by email:
[email protected].
SUPPLEMENTARY INFORMATION: DOE maintains a previously approved
incorporation by reference (ASHRAE 41.1-1986 (Reapproved (``RA'')
2006)), and proposes to incorporate by reference the following industry
standards into 10 CFR part 430:
ANSI/AMCA 210-07, ANSI/ASHRAE 51-07 (``AMCA 210-2007''), Laboratory
Methods of Testing Fans for Certified Aerodynamic Performance Rating,
approved 2007.
ANSI/ASHRAE Standard 37-2009 (RA 2019) (including Errata Sheets
issued October 3, 2016 and April 25, 2019) (``ASHRAE 37-2009 (RA
2019)''), Methods of Testing for Rating Electrically Driven Unitary
Air-Conditioning and Heat Pump Equipment, approved 2019.
ANSI/ASHRAE Standard 41.2-1987 (RA 92), (``ASHRAE 41.2-1987 (RA
1992)''), Standard Methods for Laboratory Airflow Measurement, approved
1992.
ANSI/ASHRAE 103-2017 (``ASHRAE 103-2017''), Method of Testing for
Annual Fuel Utilization Efficiency of Residential Central Furnaces and
Boilers, approved 2017.
Copies of AMCA 210-2007 can be obtained from Air Movement and
Control Association International, Inc. (AMCA), 30 West University
Drive, Arlington Heights, IL 60004, (847) 394-0150, or by going to
http://www.amca.org/store/item.aspx?ItemId=81.
Copies of ANSI/ASHRAE 37-2009 (RA 2019), ASHRAE 41.2-1987 (RA
1992), and ASHRAE 103-2017, can be obtained from the American Society
of Heating, Refrigerating and Air-Conditioning Engineers, Inc.,
Publication Sales, 1791 Tullie Circle NE, Atlanta, GA 30329, 800-527-
4723 or (404) 636-8400, or go to www.ashrae.org.
For a further discussion of these standards, see section IV.M. of
this document.
Table of Contents
I. Authority and Background
A. Authority
B. Background
C. Deviation From Appendix A
II. Synopsis of the Notice of Proposed Rulemaking
III. Discussion
A. Scope and Definitions
1. CACs, HPs, and SDHVs
2. Dual-Fuel Heating Products
B. Updates to Industry Standards
C. Furnace Fans That Operate at Low External Static Pressures
D. Test Procedure Repeatability and Reproducibility
1. Ambient Conditions
a. Temperature
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b. Humidity
2. Airflow Determination
3. Location of External Static Pressure Measurements
4. Language Updates
a. Definitions
b. External Static Pressure
c. Power Measurements
d. Other Language Clarifications
E. Nomenclature and Equations
F. Thermocouple Accuracy
G. Burner Selection
H. Reporting Requirements
I. Test Procedure Costs and Harmonization
1. Test Procedure Costs and Impact
a. Airflow Determination
b. Additional Amendments
2. Harmonization With Industry Standards
J. Compliance Date and Waivers
IV. Procedural Issues and Regulatory Review
A. Review Under Executive Order 12866 and 13563
B. Review Under the Regulatory Flexibility Act
1. Description of Reasons Why Action Is Being Considered
2. Objectives of, and Legal Basis for, Rule
3. Description and Estimate of Small Entities Regulated
4. Description and Estimate of Compliance Requirements
5. Identification of Duplication, Overlap, and Conflict With
Other Rules and Regulations
6. A Description of Significant Alternatives to the Rule
C. Review Under the Paperwork Reduction Act of 1995
D. Review Under the National Environmental Policy Act of 1969
E. Review Under Executive Order 13132
F. Review Under Executive Order 12988
G. Review Under the Unfunded Mandates Reform Act of 1995
H. Review Under the Treasury and General Government
Appropriations Act, 1999
I. Review Under Executive Order 12630
J. Review Under Treasury and General Government Appropriations
Act, 2001
K. Review Under Executive Order 13211
L. Review Under Section 32 of the Federal Energy Administration
Act of 1974
M. Description of Materials Incorporated by Reference
V. Public Participation
A. Participation in the Webinar
B. Procedure for Submitting Prepared General Statements for
Distribution
C. Conduct of the Webinar
D. Submission of Comments
E. Issues on Which DOE Seeks Comment
VI. Approval of the Office of the Secretary
I. Authority and Background
The Energy Policy and Conservation Act, as amended (``EPCA''),\1\
authorizes DOE to establish and amend energy conservation standards and
test procedures for consumer furnace fans. (42 U.S.C. 6295(f)(4)(D))
DOE's energy conservation standards and test procedures for consumer
furnace fans are currently prescribed at title 10 of the Code of
Federal Regulations (``CFR''), part 430 section 32(y); and 10 CFR part
430 subpart B appendix AA, Uniform Test Method for Measuring the Energy
Consumption of Furnace Fans (``appendix AA''), respectively. The
following sections discuss DOE's authority to establish test procedures
for consumer furnace fans and relevant background information regarding
DOE's consideration of test procedures for this product.
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\1\ All references to EPCA in this document refer to the statute
as amended through the Energy Act of 2020, Public Law 116-260 (Dec.
27, 2020), which reflect the last statutory amendments that impact
Parts A and A-1 of EPCA.
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A. Authority
EPCA 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
products include consumer furnace fans, the subject of this document.
(42 U.S.C. 6295(f)(4)(D))
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\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 Federal testing requirements consist of test procedures that
manufacturers of covered products must use as the basis for: (1)
Certifying to DOE that their products comply with the applicable energy
conservation standards adopted pursuant to EPCA (42 U.S.C. 6295(s)),
and (2) making other representations about the efficiency of those
consumer products (42 U.S.C. 6293(c)). Similarly, DOE must use these
test procedures to determine whether the products comply with relevant
standards promulgated under EPCA. (42 U.S.C. 6295(s))
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 requires that any test procedures prescribed or
amended under this section be reasonably designed to produce test
results which measure energy efficiency, energy use or estimated annual
operating cost of a covered product during a representative average use
cycle or period of use and not be unduly burdensome to conduct. (42
U.S.C. 6293(b)(3))
EPCA also requires that, at least once every 7 years, DOE evaluate
test procedures for each type of covered product, including consumer
furnace fans, 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 her own behalf or in response to a
petition by any interested person, that a test procedure should be
prescribed or amended, the Secretary shall promptly publish in the
Federal Register proposed test procedures and afford interested persons
an opportunity to present oral and written data, views, and arguments
with respect to such procedures. The comment period on a proposed rule
to amend a test procedure shall be at least 60 days and may not exceed
270 days. In prescribing or amending a test procedure, the Secretary
shall take into account such information as the Secretary determines
relevant to such procedure, including technological developments
relating to energy use or energy efficiency of the type (or class) of
covered products involved. (42 U.S.C. 6293(b)(2)) If DOE determines
that test procedure revisions are not appropriate, DOE must publish its
determination not to amend the test procedures.
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. (42 U.S.C. 6295(gg)(2)(A)) Standby mode and off
mode energy consumption must be incorporated into the overall energy
efficiency, energy consumption, or other energy descriptor for each
covered product unless the
[[Page 29578]]
current test procedures already account for and incorporate standby and
off mode energy consumption or such integration is technically
infeasible. If an integrated test procedure is technically infeasible,
DOE must prescribe a separate standby mode and off mode energy use test
procedure for the covered product, if technically feasible. (42 U.S.C.
6295(gg)(2)(A)(ii)) Any such amendment must consider the most current
versions of the International Electrotechnical Commission (IEC)
Standard 62301 \3\ and IEC Standard 62087 \4\ as applicable. (42 U.S.C.
6295(gg)(2)(A))
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\3\ IEC 62301, Household electrical appliances--Measurement of
standby power (Edition 2.0, 2011-01).
\4\ IEC 62087, Audio, video and related equipment--Methods of
measurement for power consumption (Edition 1.0, Parts 1-6: 2015,
Part 7: 2018).
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DOE is publishing this NOPR in satisfaction of the 7-year review
requirement specified in EPCA. (42 U.S.C. 6293(b)(1)(A))
B. Background
As discussed, DOE's existing test procedures for consumer furnace
fans appear at appendix AA. Appendix AA provides procedures and
calculations to determine the fan energy rating (``FER''), expressed as
watts per 1,000 cubic feet per minute of airflow (``W/1000 cfm'').
DOE established the test procedure for consumer furnace fans at
appendix AA in a final rule published on January 3, 2014 (``January
2014 Final Rule''). 79 FR 499. The test procedure is applicable to
furnace fans used by weatherized and non-weatherized gas furnaces, oil
furnaces, electric furnaces, and modular blowers.\5\ Section 1,
appendix AA. For each of these categories, the test procedure covers
both mobile home and non-mobile home models. The test procedure is not
applicable to non-ducted products, such as whole-house ventilation
systems without ductwork, central air-conditioning (``CAC'') condensing
unit fans, room fans, and furnace draft inducer fans, since a ``furnace
fan'' is defined as ``an electrically-powered device used in a consumer
product for the purpose of circulating air through ductwork.'' 10 CFR
430.2.
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\5\ DOE defines the term ``modular blower'' in section 2.9 of
appendix AA as a product which only uses single-phase electric
current, and which: (a) Is designed to be the principal air
circulation source for the living space of a residence; (b) Is not
contained within the same cabinet as a furnace or central air
conditioner; and (c) Is designed to be paired with HVAC products
that have a heat input rate of less than 225,000 Btu per hour and
cooling capacity less than 65,000 Btu per hour.
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As established in the January 2014 Final Rule, appendix AA
incorporates by reference the definitions, test setup and equipment,
and procedures for measuring steady-state combustion efficiency from
the 2007 version of American National Standards Institute (``ANSI'')/
American Society of Heating, Refrigerating and Air Conditioning
Engineers (``ASHRAE'') Standard 103, Method of Testing for Annual Fuel
Utilization Efficiency of Residential Central Furnaces and Boilers
(``ASHRAE 103-2007''). In addition to these provisions, appendix AA
includes provisions for apparatuses and procedures for measuring
temperature rise, external static pressure (``ESP''), and furnace fan
electrical input power. Appendix AA also incorporates by reference
provisions for measuring temperature and ESP from ANSI/ASHRAE 37-2009,
Methods of Testing for Rating Electrically Driven Unitary Air-
Conditioning and Heat Pump Equipment (``ASHRAE 37-2009'') including its
reference in Section 5.1 to ASHRAE 41.1-1986 (RA 2006), Standard Method
for Temperature Measurement.
In the January 2014 Final Rule, DOE determined that there is no
need to address standby and off mode energy use in the test procedure
for consumer furnace fans, as the standby mode and off mode energy use
associated with furnace fans is measured by test procedures for the
products in which furnace fans are used (i.e., consumer furnaces and
consumer central air conditioners and heat pumps). 79 FR 499, 504.
On July 7, 2021, DOE published in the Federal Register a request
for information (``July 2021 RFI'') seeking comments on the existing
DOE test procedure for consumer furnace fans to determine whether
amendments are warranted for the test procedure for consumer furnace
fans. 86 FR 35660. More specifically, DOE requested comments,
information, and data about a number of issues, mainly concerning: Test
settings (including selection of airflow control settings and ESP
requirement for airflow settings other than the maximum setting);
incorporation by reference of the most recent industry test method;
clarifications for testing of certain products, including furnace fans
with modulating controls, furnace fans and modular blowers tested with
electric heat kits, certain two-stage furnaces that operate at reduced
input only for a preset period of time, dual-fuel furnaces, and certain
oil-fired furnaces; and issues related to test procedure repeatability
and reproducibility. Id.
DOE received comments in response to the July 2021 RFI from the
interested parties listed in Table I.1.
Table I.1--List of Commenters With Written Submissions in Response to
the July 2021 RFI
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Reference in this
Commenter(s) NOPR Commenter type
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Carrier Corporation............. Carrier........... Manufacturer.
Air Conditioning, Heating & AHRI.............. Trade Association.
Refrigeration Institute.
Pacific Gas and Electric CA IOUs........... Utilities.
Company, Southern California
Edison, San Diego Gas &
Electric Company; collectively,
the California Investor-Owned
Utilities.
Northwest Energy Efficiency NEEA.............. Efficiency
Alliance. Organization.
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A parenthetical reference at the end of a comment quotation or
paraphrase provides the location of the item in the public record.\6\
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\6\ The parenthetical reference provides a reference for
information located in the docket of DOE's rulemaking to develop
test procedures for consumer furnace fans. (Docket No. EERE-2020-BT-
STD-0041, which is maintained at www.regulations.gov). The
references are arranged as follows: (commenter name, comment docket
ID number, page of that document).
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C. Deviation From Appendix A
In accordance with section 3(a) of 10 CFR part 430, subpart C,
appendix A (``appendix A''), DOE notes that it is deviating from the
provision in appendix A regarding the pre-NOPR process for test
procedure rulemakings. Section 8(b) of appendix A states if DOE
determines that it is appropriate to continue the test procedure
rulemaking after the early assessment process, it
[[Page 29579]]
will provide further opportunities for early public input through
Federal Register documents, including notices of data availability and/
or requests for information. DOE is opting to deviate from this
provision due to the substantial feedback and information supplied by
commenters in response to the July 2021 RFI. As discussed previously,
DOE requested comment on a number of specific topics in the July 2021
RFI, and comments received in response to the July 2021 RFI informed
the proposals included in this NOPR, as addressed in the following
sections.
II. Synopsis of the Notice of Proposed Rulemaking
In this NOPR, DOE proposes to update appendix AA of 10 CFR part
430, Uniform Test Method for Measuring the Energy Consumption of
Furnace Fans as follows:
(1) Specify testing instructions for furnace fans incapable of
operating at the required ESP.
(2) Incorporate by reference the most recent versions of industry
standards, ASHRAE 103-2017 and ASHRAE 37-2009 (RA 2019), in 10 CFR
430.3.
(3) Define dual-fuel furnace fans and exclude them from the scope
of appendix AA.
(4) Change the term ``default airflow-control settings'' to
``specified airflow-control settings''.
(5) Add provisions to directly measure airflow.
(6) Revise the ambient temperature conditions allowed during
testing to between 65 degreees Fahrenheit (``[hairsp][deg]F[hairsp]'')
and 85 [deg]F for all units (both condensing and non-condensing).
(7) Assign an allowable range of relative humidity during testing
to be between 20 percent and 80 percent.
DOE's proposed actions are summarized in Table II.1 compared to the
current test procedure as well as the reason for the proposed change.
Table II.1--Summary of Changes in Proposed Test Procedure Relative to
Current Test Procedure
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Proposed test
Current DOE test procedure procedure Attribution
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Does not specify instructions Specifies testing Response to
for testing furnace fans that instructions for granted waiver
are incapable of operating at furnace fans from the test
the specified ESP. incapable of procedure.
operating at the
specified ESP.
Incorporates by reference Incorporates by Incorporate the
ASHRAE 103-2007 and ASHRAE 37- reference ASHRAE 103- most recent
2009. 2017 and ASHRAE 37- industry test
2009 (RA 2019). procedure.
Does not address dual-fuel Defines dual-fuel Clarify scope of
furnace fans. furnace fans in coverage of the
appendix AA and test procedure.
explicitly excludes
them from the scope
of the test method.
Defines ``default airflow- Defines ``specified Clarifying
control settings''. airflow-control selection of
settings'' to airflow control
differentiate the settings during
settings used in testing.
testing from the as-
shipped settings.
Calculates airflow using ESP Requires measuring Improve
and temperature rise airflow directly. repeatability
measurements. and
reproducibility
of test
results.
Ambient temperature must Ambient temperature Improve
remain between 65 [deg]F and must remain between repeatability
100 [deg]F for non-condensing 65 [deg]F and 85 and
furnaces and between 65 [deg]F for all reproducibility
[deg]F and 85 [deg]F for furnaces. of test
condensing furnaces. results.
Does not specify an allowable Requires ambient Improve
range of relative humidity. relative humidity to repeatability
be maintained between and
20% and 80% for all reproducibility
furnaces. of test
results.
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DOE has tentatively determined that the proposed amendments
described in section III of this NOPR would not alter the measured
efficiency of consumer furnace fans, or require retesting or
recertification solely as a result of DOE's adoption of the proposed
amendments to the test procedures, if made final. Discussion of DOE's
proposed actions are addressed in detail in section III of this NOPR.
III. Discussion
A. Scope and Definitions
As discussed, a ``furnace fan'' is ``an electrically-powered device
used in a consumer product for the purpose of circulating air through
ductwork.'' 10 CFR 430.2. As stated, DOE's test procedure is applicable
to furnace fans used in weatherized and non-weatherized gas furnaces,
oil furnaces, electric furnaces, and modular blowers. Section 1,
appendix AA. The test procedure is not applicable to non-ducted
products, such as whole-house ventilation systems without ductwork, CAC
condensing unit fans, room fans, and furnace draft inducer fans, since
a ``furnace fan'' is defined as ``an electrically-powered device used
in a consumer product for the purpose of circulating air through
ductwork.'' 10 CFR 430.2.
In the July 2021 RFI, DOE sought comment on whether any changes are
warranted to the scope of applicable products currently covered by the
test procedure in appendix AA and if so, how the scope should be
revised. 86 FR 35660, 35662.
1. CACs, HPs, and SDHVs
In response to DOE's questions about the scope of products covered
by appendix AA, AHRI recommended that the exclusion of fans in CACs,
heat pumps (``HPs''), small-duct high-velocity (``SDHV'') modular
blowers, SDHV electric furnaces, and ductless products from the test
procedure at appendix AA be maintained. AHRI commented that the fan
efficiency for CAC and HP products is adequately addressed through
DOE's test procedure at appendix M1.\7\ (AHRI, No. 5 at p. 2)
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\7\ Use of appendix M1 is required on or after January 1, 2023,
for any representations, including compliance certifications, made
with respect to the energy use, power, or efficiency of CACs and CAC
heat pumps.
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NEEA suggested that the language of 42 U.S.C. 6295(f)(4)(D),\8\ as
discussed by DOE in the January 2014 Final Rule, could support the
inclusion of furnace fans distributing air through ductwork for CACs,
air source HPs, and hydronic systems, and encouraged DOE to specify
that these are within the scope of the test procedures in appendix AA.
NEEA commented that the explicit inclusion of CAC and air source HP
units within the test procedure could result in significant energy
savings. (NEEA, No. 3 at p. 4)
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\8\ 42 U.S.C. 6295(f)(4)(D) specifies the following:
Notwithstanding any other provision of this chapter, if the
requirements of subsection (o) are met, not later than December 31,
2013, the Secretary shall consider and prescribe energy conservation
standards or energy use standards for electricity used for purposes
of circulating air through duct work.
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[[Page 29580]]
Carrier commented that the FER requirement for single packaged air
conditioners with gas heat is no longer needed because the fan
efficiency will be adequately measured when these products transition
to the appendix M1 test procedure on January 1, 2023. Carrier commented
that should DOE choose not to remove single packaged air conditioners
from the scope, the test procedure should be updated to account for
units with two stages of cooling operation and to credit these units
for the lower fan power during low-stage cooling operation. (Carrier,
No. 2 at pp. 1-2)
AHRI commented that modular blowers without supplementary heating
sources are currently included in the scope of the furnace fan test
procedure, but suggested that DOE should exempt these products from the
scope of the test procedure. AHRI stated that fans that are connected
to duct work but that are unable to be tested as shipped (e.g., without
an electric heat resistance kit) should be excluded from the regulation
and not be considered furnace fans. (AHRI, No. 5 at p. 3)
DOE is directed by EPCA to ``consider and prescribe energy
conservation standards or energy use standards for electricity used for
purposes of circulating air through ductwork.'' (42 U.S.C.
6295(f)(4)(D)) As DOE described in the January 2014 Final Rule, such
language could be interpreted as encompassing electrically-powered
devices used in any residential heating, ventilation, and air-
conditioning (``HVAC'') product to circulate air through duct work, not
just furnaces. 79 FR 499, 504. However, DOE established test procedures
only for those fans that are used in residential furnaces and modular
blowers. DOE did not address fans in other types of HVAC products (such
as CACs, HPs, and SDHV modular blowers) in that rule. Id.
Regarding the suggestion by AHRI to exclude modular blowers from
the scope of the test procedure, DOE notes that modular blower fans are
included within the scope of appendix AA and are subject to standards
prescribed at 10 CFR 430.32(y). DOE must maintain the test method for
modular blowers to assure that such products meet the required minimum
level of energy efficiency specified in the standard. (42 U.S.C.
6295(r)) DOE has not received any waiver requests regarding modular
blowers and is not aware of any modular blowers that are not designed
to be paired with supplementary heating sources. However, to the extent
that a specific basic model of modular blower is unable to be tested
according to the prescribed test procedure in appendix AA, DOE provides
the test procedure waiver process at 10 CFR 430.27.
In response to Carrier's suggestion to remove single packaged air
conditioners from the scope of appendix AA, DOE notes the ``anti-
backsliding'' provision of EPCA prevents the Secretary from prescribing
any amended standard that either increases the maximum allowable energy
use or decreases the minimum required energy efficiency of a covered
product. (42 U.S.C. 6295(o)(1)) DOE would be unable to separate the
furnace fan's energy consumption from that of other system components
that affect SEER2 and HSPF2 ratings, and thus could not ensure that the
energy consumption of covered furnace fans in such a product could not
decrease under this metric. Therefore, DOE is not proposing to remove
single packaged air conditioners from the scope of appendix AA.
In response to Carrier's suggestion to credit units with two stages
of cooling operation to account for the lower fan power during low-
stage cooling operation, DOE lacks adequate data to evaluate this
proposal at this time.
Issue 1: DOE requests information and data regarding the electrical
energy consumption of multi-stage furnace fans during low-stage cooling
operation, specifically in relation to single-stage furnace fans in
cooling mode.
Furthermore, DOE is not proposing to include fans used in other
types of HVAC products, such as CACs, HPs, and SDHV modular blowers
within the scope of appendix AA at this time. Similar to single
packaged air conditioners, DOE tentatively agrees with commenters that
the electrical energy consumption of furnace fans used in the
aforementioned types of HVAC products will be accounted for by the
seasonal energy efficiency ratio 2 (``SEER2'') and heating seasonal
performance factor 2 (``HSPF2'') metrics measured by appendix M1.
Although the applicable statutory provision (specifically, 42 U.S.C.
6295(f)(4)(D) directs DOE to ``consider and prescribe energy
conservation standards or energy use standards for electricity used for
purposes of circulating air through duct work''), could be interpreted
as encompassing electrically-powered devices used in any residential
HVAC product to circulate air through duct work, DOE has tentatively
concluded that it is not necessary to expand the scope of coverage of
appendix AA at this time.
2. Dual-Fuel Heating Products
Some consumer heating products include an electric heat pump and
gas burner and are often referred to as dual-fuel or hybrid heating
units. These products are designed to provide space heating with the
heat pump and/or gas burner, depending on the operating conditions
(e.g., outdoor air temperature and heating demand). The annual
operating characteristics of a dual-fuel product may differ
significantly from a typical furnace, because the inclusion of a heat
pump may change the operating time necessary to meet the heating load
demand when compared with a gas burner alone, resulting in changes to
the operating hours of the furnace fan. Therefore, the estimated
national annual operating values provided in Table IV.2 of appendix AA
may not be representative of an average use cycle for furnaces
installed in dual-fuel applications. In addition, the current DOE test
procedure does not specify provisions to set up or operate furnace fans
for dual-fuel heating units.
In the July 2021 RFI, DOE requested comment on the typical
operating characteristics of dual-fuel systems and whether and how the
user has control over which heating source is used in a dual-fuel
system. 86 FR 35660, 35666.
In response, AHRI commented that a dual-fuel-enabled thermostat
determines if the heat pump or gas burner provides heat, and that the
two cannot work at the same time. (AHRI, No. 5 at p. 10) AHRI stated
that lower ambient temperatures will make the thermostat switch from
the heat pump to the gas burner, but some controls can allow the
consumer to lock out one or the other method of heating at a specified
outdoor ambient temperature. (Id. at pp. 10-11) AHRI also described
more complicated settings that the installer or consumer may implement,
such as setting the thermostat to identify when a set point cannot be
maintained and triggering the furnace (specifically, DOE understands
the reference to ``furnace'' in this instance refers only to the burner
portion of the dual-fuel furnace), choosing an outdoor temperature
above which the furnace should not operate, and choosing an outdoor air
temperature at which only the furnace will operate. (Id. at p. 11)
NEEA commented that dual-fuel HVAC system operating conditions
should be included in testing procedures because of the expected
increase in their prevalence in the market due to trends in
electrification of space heating. (NEEA, No. 3 at pp. 4-6) NEEA
encouraged DOE to investigate common balance points and other factors
that might influence the temperature at which the heat source is
changed in dual-fuel HVAC systems and encouraged DOE to contact
researchers from Bonneville Power Administration
[[Page 29581]]
for information on their recently completed study pertaining to air
source HPs. (Id. at p. 5)
Carrier urged for the removal of FER requirements for packaged
dual-fuel units. Carrier stated that the electrical efficiency of the
indoor blower in these units is accounted for in the DOE test procedure
for heat pumps at appendix M, which Carrier asserted measures the
primary mode of operation of such units. Carrier stated that requiring
the indoor blower to meet the FER requirements is an additional
regulatory requirement that adds rulemaking, certification, and
enforcement effort to DOE and the regulated community with no
additional benefit to consumers. (Carrier, No. 2 at p. 1)
Dual-fuel units are subject to the separate applicable standards
for both heat pumps (i.e., in terms of seasonal energy efficiency ratio
(``SEER'') and heating seasonal performance factor (``HSPF'') or SEER2
and HSPF2) and furnaces (i.e., in terms of AFUE). As discussed in this
section, DOE tentatively concludes that the fan energy use of these
products is already accounted for by the SEER and HSPF metrics measured
by appendix M (i.e., the currently applicable test procedure for these
products) and will continue to be captured in the SEER2 and HSPF2
metrics when use of appendix M1 is required. The SEER2 and HSPF2
metrics measure the fan energy in its cooling and heating modes,
respectively, covering the two major functions of furnace fans. Dual-
fuel models were not subject to appendix AA prior to this notice and,
therefore, were not part of the previous standards analysis.
Consequently, DOE proposes to define dual-fuel units as a consumer
product that includes both a heat pump and a burner in a single cabinet
and to explicitly exclude them from the scope of appendix AA.
Issue 2: DOE requests comment on its proposed definition for dual-
fuel units. DOE further requests comment on its proposal to explicitly
exclude these units from the scope of appendix AA.
B. Updates to Industry Standards
As discussed previously, the current DOE test procedure for furnace
fans incorporates by reference ASHRAE 103-2007. ASHRAE 103-2007
provides test procedures for determining the annual fuel utilization
efficiency (``AFUE'') of residential furnaces and boilers. DOE's test
procedure for furnace fans in appendix AA adopts certain sections of
ASHRAE 103-2007 applicable to testing furnace fans, including
requirements for instrumentation and test apparatus setup and test
methodology.
In July 2017, ASHRAE published an update to ASHRAE 103, i.e.,
ASHRAE 103-2017. The 2017 version made several editorial changes to the
2007 version, including use of mandatory language and use of the
International System of units, in addition to other revisions such as
an extension of the minimum length of the inlet duct from 12 inches to
18 inches. In the July 2021 RFI, DOE requested comment on whether to
update the referenced version of ASHRAE 103 to the 2017 version. 86 FR
35660, 35665.
In response, AHRI commented that it agrees with DOE's description
of updates in the 2017 version and suggested that the changes would
only minimally impact FER. (AHRI, No. 5 at pp. 8, 9) Specifically, AHRI
stated that increasing the minimum inlet duct length from 12 inches to
18 inches will not significantly impact the performance rating. (Id. at
p. 9.) Further, AHRI commented that it does not object to the use of
the 2017 version in the DOE test procedure. (Id. at pp. 8, 9)
DOE has tentatively determined that updating the DOE test procedure
to reference the 2017 version of ASHRAE 103-2017 would not
significantly impact the FER ratings as compared to the current test
procedure. As noted, one substantive change between the versions of
ASHRAE 103 is the length of the inlet duct. DOE does not expect the
increase in length from 12 to 18 inches to impact the measured FER
because the external static pressure and airflow will not change with
this alteration, which is consistent with the comments from AHRI. Given
that ASHRAE 103-2017 is the most recent version of the industry
standard, and given DOE's tentative determination that its use as a
reference standard would not significantly impact FER ratings or
require retesting, DOE proposes to incorporate by reference ASHRAE 103-
2017 in its test procedure for furnace fans. This proposed change, if
adopted, would ensure that the test procedure references the most up-
to-date language and stays consistent with the latest industry testing
practices.
The current DOE test procedure for furnace fans also incorporates
by reference ASHRAE 37-2009. ASHRAE 37-2009 provides methods of testing
for unitary air conditioning and heat pump equipment. DOE's test
procedure for furnace fans at appendix AA adopts certain Sections of
ASHRAE 37-2009 regarding specifications for the required temperature
measuring instruments and the ESP apparatus. Since the publication of
the January 2014 Final Rule, two addenda for ASHRAE 37-2009 were
published on October 3, 2016 and April 25, 2019 (``ASHRAE 37-2009 (RA
2019)''). These addenda include errata that corrected the total heating
capacity equations for the outdoor liquid coil method in section
7.6.5.1 of the test standard and corrected the coefficient used to
calculate the specific heat of air in sections 7.3.3.1, 7.3.3.2, and
7.7.4.1 of the test standard. In reviewing these changes, DOE has
tentatively concluded that they would not significantly impact FER
ratings or require retesting, as these changes were made to sections
not used in appendix AA. Thus, DOE proposes to incorporate by reference
ASHRAE 37-2009 (RA 2019) and update all references of ASHRAE 37-2009 to
ASHRAE 37-2009 (RA 2019).
Finally, DOE currently incorporates by reference ASHRAE 41.1-1986
(RA 2006). ASHRAE 41.1-1986 (RA 2006) is referenced in Section 5.1 of
ASHRAE 37-2009. ASHRAE 41.1-1986 (RA 2006) provides practices for
temperature measurements for heating, refrigerating, and air-
conditioning equipment. Despite the most recent version of ASHRAE 41.1
being ASHRAE 41.1-2020, the proposed version of ASHRAE 37 to be
incorporated by reference (ASHRAE 37-2009 (RA 2019)) references ASHRAE
41.1-1986 (RA 2006). Thus, DOE proposes to maintain by reference ASHRAE
41.1-1986 (RA 2006).
Issue 3: DOE requests comment on its proposal to incorporate by
reference ASHRAE 103-2017, ASHRAE 37-2009 (RA 2019), and maintain by
reference ASHRAE 41.1-1986 (RA 2006).
C. Furnace Fans That Operate at Low External Static Pressures
On February 20, 2019, DOE received a petition for waiver and an
application for interim waiver from ECR International, Inc. (``ECR'')
for certain basic models of furnace fans that ECR described as belt-
driven, single-speed furnace fans designed for heating-only
applications in oil-fired warm air furnaces.\9\ ECR asserted that the
furnace fan basic models specified in the petition have design
characteristics that prevent testing of the basic model according to
the test procedure prescribed in appendix AA. Specifically, ECR claimed
that the specified products are not designed to operate within the
range of ESP required in appendix AA and that testing such furnace fans
at the required ESP reduces airflow and increases temperature rise to
the point where the units shut off during testing due to high
temperature limits, making it impossible to reach
[[Page 29582]]
steady state for testing at the required conditions. On March 9, 2021,
DOE published a Decision and Order (``2021 Decision and Order'')
granting ECR a test procedure waiver specifying an alternate test
procedure that must be used to test and rate the specified basic
models.\10\ 86 FR 13530, 13534-13535. Specifically, the 2021 Decision
and Order specified adjustments to the ESP test conditions specified in
section 8.6.1.2 of appendix AA. Basic models subject to the 2021
Decision and Order must be tested at the specified ESP. Id. The
alternate test procedure in the 2021 Decision and Order further
specifies that if the unit under test shuts down prior to completion of
the test, the ESP range is incrementally reduced by 0.05 inches of
water column (``'' w.c.''), and the test is to be re-run. Id. This
process is repeated until a range is reached at which the test can be
conducted to its conclusion, with a minimum allowable ESP range of
0.30-0.35'' w.c., which corresponds to the first range at which shut-
off could be avoided in the ECR data. Id. at 86 FR 13532 and 13534-
13535.
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\9\ See: www.regulations.gov/document?D=EERE-2019-BT-WAV-0004-0001.
\10\ See: www.regulations.gov/document/EERE-2019-BT-WAV-0004-0015.
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In the July 2021 RFI, DOE requested feedback on whether the
approach in the test procedure waiver would be appropriate for testing
all basic models of furnace fans designed for heating-only
applications. 86 FR 35660, 35667.
In response, AHRI commented that it is not opposed to the test
procedure waiver approach being applied to all basic models of furnace
fans designed for heating-only applications. (AHRI, No. 5 at p. 12) In
contrast, the CA IOUs asserted that the alternate test procedure
specified in the Decision and Order--by requiring testing at the
highest ESP (and accordingly the highest discharge temperature) that
does not trip the furnace's thermal safety limits--is likely to produce
temperature rises that would exceed the manufacturer recommended
maximum temperature rise specified in installation instructions. (CA
IOUs, No. 4 at pp. 1-2) The CA IOUs additionally presented an analysis
of the relationship between ESP and fan power consumption, from which
the CA IOUs asserted that for a forward-curved fan operating at a given
speed, FER improves (decreases) as ESP increases. (Id. at pp. 2-3) The
CA IOUs asserted based on this analysis that testing at the highest ESP
that the unit can accommodate before thermal cutoff may result in an
artificially low (i.e., more favorable) FER rating, and therefore the
methodology provided in the 2021 Decision and Order may not accomplish
the goal of increasing the representativeness of heating-only furnace
fan ratings. (Id.) The CA IOUs recommended using a lower ESP to test
heating-only furnaces and additionally providing a method to correct
for how the fan would perform at the current ESP. The CA IOUs stated
that this would ensure that heating-only units are not unfairly
advantaged and would avoid DOE having to conduct a separate analysis of
heating-only units in energy conservation standards rulemakings. (Id.
at p. 3) The CA IOUs also commented that, should a separate test
procedure be established for heating-only products, then the procedure
should be designed such that it is analogous to that in appendix AA to
produce an FER rating appropriately representative of heating-only
furnace fan energy use in the field and should include an ESP value
that reasonably represents values that heating-only equipment encounter
in the field. (Id. at pp. 1, 4) Further, the CA IOUs recommended
required labeling for ``heating-only'' units to explicitly indicate
that they are not to be installed with air-conditioning cooling coils
or air conditioners. (Id. at p. 4)
NEEA stated that the approach in the waiver granted to ECR is
inappropriate for representative furnace fan testing and recommended
that DOE use a consistent test procedure for all products, including
heating-only applications. (NEEA, No. 3 at pp. 1-3) NEEA asserted that
the basic models subject to the waiver are intended for use with
cooling, and that the waiver allows separate testing procedures for
less efficient furnace fans that may overstate real-world efficiency.
(Id. at p. 2) NEEA referenced concerns that the CA IOUs had previously
expressed to DOE regarding the end use applications for the basic
models subject to the waiver. (Id.) NEEA cited DOE's decision in the
January 2014 Final Rule not to create separate testing procedures for
heating-only installation types and asserted that DOE's justification
was that doing so would create multiple conditions for testing the same
equipment and lead to non-representative energy use information. (Id.)
NEEA further raised concerns that since energy consumption is a
function of ESP, the waiver approach may produce lower (i.e., more
favorable) FER values that are not comparable to other furnace fans
also used for cooling applications, and that this approach could create
an unfair advantage for heating-only products. (Id.) NEEA asserted that
the test conditions specified under the waiver are not representative
of field conditions for these units if the oil furnace is eventually
paired with an air conditioner. (Id.) To support its position, NEEA
presented an analysis of FER ratings from DOE's Compliance
Certification Database, which indicated that the majority of oil
furnace fans have an FER greater than 450 W/1000 cfm; whereas, among
the basic models subject to the waiver, the highest FER is 443 and the
average value is 409. NEEA noted that while these lower FER values are
achievable by other furnace fans not subject to the waiver, the FER
ratings of the basic models subject to the waiver are not comparable
since they are tested at different ESP conditions. (Id. at p. 3) In
summary, NEEA recommended that DOE not establish separate testing
provisions for heating-only furnace fans. (Id. at p. 1-3)
As discussed in section I.A of this document, DOE is required by
EPCA to ensure that its test procedures are 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 not be unduly
burdensome to conduct. (42 U.S.C. 6293(b)(3)) In the notices leading up
to the January 2014 Final Rule, DOE considered creating a ``heating-
only'' product designation for products that would have different
reference system ESP installation considerations than other products.
However, as discussed in an SNOPR published on April 2, 2013 (``April
2013 SNOPR''), DOE did not create a heating-only product designation
because it was not aware of any heating-only products at the time other
than hydronic air handlers, but those were outside the scope of
applicability of the test procedure. 78 FR 19606, 19619.
As indicated by the waiver request submitted by ECR, certain
furnace fans may not be able to operate at the ESP conditions specified
by the current DOE test procedure (i.e., cannot be tested at the
currently required conditions). For such furnace fans, the current test
procedure is unable to produce test results which measure energy
efficiency during a representative average use cycle or period of use.
Therefore, DOE is proposing to amend the test procedure in order to
ensure that such furnace fans will be able to complete a valid test
under conditions corresponding to representative average use.
Specifically, DOE is proposing to add provisions to require that all
furnace fans be initially tested at the applicable ESP range specified
in Table 1 of appendix AA. If the unit under test is unable to complete
the testing (i.e.,
[[Page 29583]]
the unit shuts down), the ESP range would be incrementally reduced by
0.05'' w.c. (e.g., for units designed to be paired with an evaporator
coil but without one installed, first from 0.65''-0.70'' to 0.60''-
0.65'' w.c.). This process would be repeated until an ESP range is
reached at which the test can be conducted to its conclusion.
DOE found in the January 2014 Final Rule that generally the ESP
values in appendix AA are representative of national average ductwork
system characteristics. 79 FR 499, 502. DOE now recognizes that certain
furnace fans are designed for operation at ESP conditions lower than
those specified in the test procedure and that such units are incapable
of operating at the specified ESP conditions. DOE has tentatively
determined that requiring all furnace fans to begin tests at the ESP
levels specified in Table 1 and allowing furnace fans that are unable
to complete tests at those ESPs to test at their maximum possible ESP,
would provide results representative of the average use of that unit
under test. A method of testing in which products are subject to ESP
values at which they are incapable of operating would yield results
that are unrepresentative of their typical performance when installed.
The proposed modifications will address products designed for all
operating ESPs to be tested according to the same proposed test
procedure.
Furnaces that cannot operate at the ESP conditions outlined in
Table 1 of appendix AA will be tested according to the highest
achievable ESP for the unit. DOE notes that, as suggested by the CA
IOUs, testing these furnace fans at the highest achievable ESP could
result in lower-than-usual airflows, which in turn could lead to higher
temperature rises than expected for that unit. However, the proposed
test method ensures that all units would be tested at or as close as
possible to the ESP levels that represent the national average ductwork
system, and therefore the operation mode closest to this representative
scenario.
Additionally, as noted in the 2021 Decision and Order, DOE is not
aware of any conversion equation that has been validated to accurately
predict the change in FER as ESP varies at a given fan setting.
Validating an equation for extrapolating to FER at an ESP that is
higher than that at which the unit can operate may be difficult or even
not possible (as the unit cannot operate at that point). 86 FR 13530,
13533. As a result of these considerations regarding the accuracy and
representativeness of an adjustment factor, DOE is not proposing an
adjustment factor to the test procedure for furnace fans that are
unable to complete testing at the ESPs specified in Table 1 of this
document.
DOE has also tentatively concluded the proposed test procedure
amendment, if adopted, would not create an advantage for furnace fans
incapable of operating at the applicable ESP values specified in Table
1 of appendix AA. Because a ``low-ESP'' furnace fan would be unable to
operate at the ESP values specified by Table 1, such a unit would not
be manufactured for the same application as furnace fans that are able
to operate at the ESP values specified by Table 1 of this document.
Furthermore, because DOE has not received any applications for
waiver besides the waiver submitted by ECR in 2020, and these
provisions would result in the same test conditions for the furnace
fans that were subject to ECR's waiver, DOE believes these proposed
provisions would not affect the ratings or require the retesting of any
fans currently on the market. Therefore, DOE tentatively determines
that this change would allow all products, including those subject to
ECR's waiver, to be able to use appendix AA as written, while having no
impact on test burden.
DOE is not proposing labeling requirements for furnace fans that
test at ESPs other than those in Table 1. Manufacturers of those fans
would already be incentivized to specify in their product literature
that such models are not suitable for use in systems with higher ESPs.
Otherwise, it would be expected that there would be issues with
consumer satisfaction if a furnace fan were installed in an environment
in which it was incapable of operating. As previously noted, DOE is
currently only aware of one manufacturer (ECR) that produces furnace
fans that are incapable of operating at the ESPs currently in Table 1
of appendix A because DOE has not received any applications for waiver
from any other manufacturers, which indicates that all other furnace
fans currently available on the market are able to complete a valid
test according to the test procedure currently prescribed in appendix
AA. The current product literature from ECR specifies the intended
applications and operating conditions of the furnace fans which are not
intended for operation at higher ESPs.
This proposed amendment is consistent with the test procedure
waiver provision at 10 CFR 430.27(l) that provides that, as soon as
practicable after the granting of any waiver, DOE will publish in the
Federal Register a NOPR to amend its regulations so as to eliminate any
need for the continuation of such waiver. 10 CFR 430.27(l). As soon
thereafter as practicable, DOE will publish in the Federal Register a
final rule to that effect. Id. With regard to whether separate product
classes may be warranted for ``low-ESP'' furnace fans, DOE would
undertake such consideration in a separate furnace fans standards
rulemaking. See 86 FR 66465, 66467-66468.
Issue 4: DOE requests comment on the proposed test instructions for
furnace fans unable to complete testing at the ESP values currently
specified in appendix AA.
D. Test Procedure Repeatability and Reproducibility
In the July 2021 RFI, DOE requested comment on whether stakeholders
have encountered difficulty obtaining repeatable and reproducible FER
results using appendix AA, and sought information on whether
fluctuations in ESP and ambient conditions (within the boundaries
allowed by appendix AA) impact FER ratings. 86 FR 35660, 35666.
Additionally, to further understand the repeatability and
reproducibility of the FER test procedure, DOE had confidential
interviews conducted with several furnace fan manufacturers. The
manufacturers similarly responded that there is generally a high level
of uncertainty in FER results. Based on the collected feedback, DOE
understands that there are several key areas of possible improvement to
the current furnace fan test procedure that could improve repeatability
and reproducibility including limiting the allowable range of ambient
conditions, updating the method of airflow determination, and making
clarifications to the current test procedure language.
In response to DOE's questions in the July 2021 RFI, AHRI stated
that it had conducted an assessment to identify causes of variability
in FER. (AHRI, No. 5 at p. 12) AHRI found that FER results are affected
by natural gas input rate and relative humidity, which it said is
problematic because testing is not conducted in a controlled
environment. (Id.) AHRI stated that its assessment indicates that there
is an 11-percent error in FER due solely to the tolerances of the
inputs to the FER equation. (Id.)
DOE agrees with AHRI's comment that the natural gas input rate
could impact FER, but notes that DOE previously considered tightening
the tolerance on firing rate (from 2 percent) in its test
procedure for the residential furnaces and boilers. In a NOPR published
on March 11, 2015, DOE determined that it could not change the
tolerance on firing rate without increasing manufacturer burden because
[[Page 29584]]
of variations in gas valve performance. 80 FR 12875, 12886-12887.
ASHRAE 103-2017, which is referenced in the current furnace fan test
procedure, also includes a requirement that the burner input rate be
within 2 percent of the hourly British thermal unit
(``Btu'') nameplate input rating. Because DOE is not aware of any data
suggesting it would now be possible to tighten this tolerance, DOE is
not proposing to change the tolerance on fuel input rating at this
time.
Issue 5: DOE requests comment on its tentative decision not to
tighten the tolerance on fuel input ratings beyond what is required in
ASHRAE 103-2017.
1. Ambient Conditions
DOE also acknowledges that FER results can be affected by several
other inputs, including the measurement accuracy of measured variables
feeding into the FER calculation as well as allowable variation in
these variables. Specifically, through communications with
manufacturers and comments received in response to the July 2021 RFI,
DOE understands that the FER results are also affected by ambient air
temperature and humidity. As discussed in more detail in the following
subsections, DOE is proposing additional restrictions on these test
conditions.
a. Temperature
To help improve the repeatability and reproducibility of test
results, DOE proposes to tighten the range of allowable ambient
conditions during testing. The current range of ambient temperature is
prescribed in section 7 of appendix AA, which references Section 8.5.2
of ASHRAE 103-2007. Section 8.5.2 of ASHRAE 103-2007 specifies that the
ambient temperature must be maintained between 65 [deg]F and 100 [deg]F
for non-condensing furnaces or between 65 [deg]F and 85 [deg]F for
condensing furnaces. DOE proposes to modify the ambient temperature
range such that for all tests and all furnaces (i.e., both condensing
and non-condensing), ambient air temperature must be maintained between
65 [deg]F and 85 [deg]F. Based on an analysis of the impact of ambient
temperature on the test result and feedback received during
communications with manufacturers, DOE tentatively concludes that the
tightening of ambient temperature ranges will reduce FER variability.
DOE reasons that furnace fan manufacturers produce both non-condensing
and condensing furnace products and, therefore, manufacturers and
third-party testing laboratories already have the capability to
maintain the test room at a temperature between 65 [deg]F and 85 [deg]F
to be able to test condensing furnaces. Further, DOE expects that most
testing is conducted in at least semi-conditioned spaces and are
unlikely to experience temperatures above 85 [deg]F even if the outdoor
conditions occasionally exceed that threshold. Because manufacturers
and third-party test laboratories likely already have the capability to
test furnaces while maintaining ambient air temperatures between 65
[deg]F and 85 [deg]F, DOE tentatively determines that this change would
improve reproducibility by limiting extreme temperatures during
testing, while having no impact on test burden. Additionally, this
change would maintain the representativeness of the test procedure
because it would ensure that air temperature in the test room is in
line with the temperatures that furnace fans are likely to experience
in residential applications.
Issue 6: DOE requests comment on its proposal to modify the
allowable ambient temperature range in appendix AA such that for all
tests and all furnaces (i.e., both condensing and non-condensing),
ambient air temperature must be maintained between 65 [deg]F and 85
[deg]F. DOE also requests comment regarding any potential burden
associated with the change in allowable ambient temperature.
Additionally, DOE requests data of the typical ambient temperatures of
testing facilities throughout the year as well as any data on the
relationship between ambient temperature and FER.
b. Humidity
As noted previously, AHRI commented that relative humidity (``RH'')
can impact FER ratings. (AHRI, No. 5 at p. 12) Currently, there is no
humidity requirement currently applicable to DOE's test procedure for
furnace fans. However, there is a humidity tolerance in the test
procedure applicable to consumer furnaces and boilers. Specifically,
ASHRAE Standard 103-1993, which is referenced in the DOE test procedure
for consumer furnaces and boilers, specifies that the relative humidity
of the air in the test room at no time exceed 80 percent when measuring
the condensate of condensing furnaces and boilers (see Sections 9.2 and
9.8.1 of ASHRAE 103-1993).
DOE proposes to specify the RH conditions for all tests of FER and
all furnaces (i.e., both condensing and non-condensing) to require that
ambient air RH must be maintained at or below 80 percent. DOE reasons
that most furnace fan manufacturers produce both non-condensing and
condensing furnace products and, therefore, DOE expects that most
manufacturers and third-party testing laboratories already have the
capability to maintain the test room at an RH below 80 percent to be
able to measure condensate for condensing furnaces. Because
manufacturers and third-party test laboratories likely already have the
capability to maintain the test room RH below 80 percent, DOE
tentatively determines that this change would improve reproducibility
by limiting extreme humidity conditions during testing, while having no
impact on test burden.
DOE is also proposing to specify a limit on the lower range of
allowable RH values during testing, specifically to require that for
all tests and all furnaces, ambient air RH must be maintained at or
above 20 percent. Similar to its proposal to add a maximum RH, DOE
expects that imposing a minimum limit on the allowable RH values during
testing would improve reproducibility but have no impact on test
burdens because it is very unlikely that any test laboratories would be
unable to meet a requirement excluding only the driest conditions.
The optimal RH values in conditioned living space are typically
considered to range from 30 percent to 50 percent.\11\ Therefore,
imposing a requirement on RH during testing to maintain the RH of the
room air between 20 percent and 80 percent will improve the
representativeness of the FER test method compared to allowing RH to
range from 0 percent to 100 percent, as the proposed range is closer to
the optimal RH range for residences. However, the proposed range is not
so tight that it would be expected to add burden for manufacturers.
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\11\ See, for example:
(1) U.S. Consumer Product Safety Commission. The Inside Story: A
Guide to Indoor Air Quality. Available at: www.cpsc.gov/safety-education/safety-guides/home/inside-story-guide-indoor-air-quality.
Last accessed February 1, 2022; or
(2) U.S. Environmental Production Agency. Dehumidifier Basics.
www.energystar.gov/products/appliances/dehumidifiers/
dehumidifier_basics#:~:text=Relative%20Humidity%20(RH)%20and%20Humidi
stats&text=The%20optimum%20RH%20level%20for,RH%20to%20prevent%20windo
w%20condensation. Last accessed February 2, 2022.
---------------------------------------------------------------------------
Issue 7: DOE requests comment on its proposal to require
maintaining the room air RH between 20 percent and 80 percent during
FER testing, and on its tentative determination that this proposal
would decrease variability between tests. DOE also requests comment on
its tentative determination that the requirement of room air RH to be
maintained between 20 percent and 80 percent would not add burden for
manufacturers or test laboratories. DOE
[[Page 29585]]
requests comment on whether a tighter range for RH during testing (for
example, 30 percent to 50 percent RH, which could further improve
representativeness and further increase repeatability beyond the
proposed range) would be possible to maintain without being unduly
burdensome. DOE seeks data on ambient RH values at test facilities
throughout the year and any data on the relationship between RH and FER
variability.
2. Airflow Determination
In the January 2014 Final Rule, DOE adopted in appendix AA a method
of calculating airflow based on temperature rise. Specifically, the
equation for airflow in airflow control setting ``i''
(``Qi'') compares the input heat energy to the heat picked
up by the air based on temperature rise and the specific conditions of
the inlet air (see section 10.1 of appendix AA). 79 FR 499, 508-510.
In response to the April 2013 SNOPR, Goodman recommended that DOE
consider allowing an alternate method of directly measuring airflow
using a code tester \12\ and ASHRAE 37 ductwork.\13\ 79 FR 499, 509. In
response to this comment, DOE stated in the January 2014 Final Rule
that a test setup that includes a code tester is not typical when
testing a furnace, and that DOE tried to harmonize, where possible, the
test set up for furnaces and furnace fans. Additionally, DOE stated
that an alternative test method using a code tester and ASHRAE 37
ductwork could provide similar results as the test procedure
established in the January 2014 Final Rule, but that the test procedure
would differ significantly. Thus, DOE concluded at the time that adding
a code tester to the furnace fan test procedure would add substantial
burden. Id.
---------------------------------------------------------------------------
\12\ A ``code tester'' is an instrument used to measure airflow.
Such instruments determine airflow by measuring the pressure drop
across one or more nozzles as air passes between two chambers.
\13\ See: www.regulations.gov/comment/EERE-2010-BT-TP-0010-0037.
---------------------------------------------------------------------------
As previously noted, in response to the July 2021 RFI, AHRI
commented that it had conducted an uncertainty analysis and found that
there is an 11-percent error in FER due solely to the tolerances of the
inputs to the FER equation. (AHRI, No. 5 at p. 12) Additionally, AHRI
commented that it had commissioned an assessment of the FER metric,
including the variability therein. (Id.) AHRI stated that this report
showed that the natural gas input rate and relative humidity affect FER
ratings and stated that this finding was also supported by reports from
AHRI members. AHRI asserted that these sources of variability are
problematic because testing is not conducted in a controlled
environment. (Id.)
After considering these comments and given DOE's understanding
based on discussions with manufacturers that some of the challenges
associated with repeatability may stem from the current method of
calculating airflow indirectly based on measurements of other
parameters, DOE has reconsidered the previous suggestion to allow
airflow to be measured directly.
Each parameter involved in the calculation of the airflow at the
maximum airflow-control setting (``Qmax'') and FER has its
own inherent variability. Measuring airflow directly would avoid the
dependence on measured temperature rise (which is the difference
between the measured outlet and inlet air temperatures), fuel input
rate, and fan power consumption (and avoid the uncertainty associated
with each of these measurements), which could therefore reduce the
overall variation inherent to the final FER value. Using the allowable
accuracies specified in Sections 5.3 and 6.1.2 of ASHRAE 37-2009 (RA
2019), DOE understands that an airflow-measuring device would have an
accuracy of about 2-3 percent. This 2-3-percent range is significantly
smaller than the percentage variation in airflow as calculated based on
measurements of other test conditions that each have a degree of
variability.
DOE acknowledges that requiring the use of an airflow-measuring
device for furnace fans could introduce a one-time cost for
manufacturers that either do not utilize such devices for their current
testing programs (presumably of other products) or do not have enough
of such devices available to test furnace fans in addition to other
HVAC products that use airflow-measuring devices. The estimated cost of
an airflow-measuring device is up to $50,000. DOE discusses test
procedure costs and impacts further in section III.I.1 of this
document.
Having considered the potential benefits and burdens associated
with measuring airflow directly using an airflow-measuring device, DOE
has tentatively determined that the benefits would outweigh the
burdens, and that requiring directly measuring airflow would not be
unduly burdensome. DOE therefore proposes to require that airflow be
measured directly during each test. Specifically, DOE is proposing that
this measurement be done using the procedures and methods for measuring
airflow specified in ASHRAE 37-2009 (RA 2019), similar to how it is
done for central air conditioners and heat pumps. As part of this
proposal, DOE proposes to incorporate by reference Figure 12 of ANSI/
Air Movement and Control Association International, Inc. (``AMCA'')
210-07, ANSI/ASHRAE 51-07 (``AMCA 210-2007''), Laboratory Methods of
Testing Fans for Certified Aerodynamic Performance Rating and Figure 14
of ANSI/ASHRAE Standard 41.2-1987 (RA 92), (``ASHRAE 41.2-1987 (RA
1992)''), Standard Methods for Laboratory Airflow Measurement. However,
DOE is also aware of several other additional methods of directly
measuring the airflow, such as methods outlined in AMCA 210 (e.g., the
pitot traverse method),\14\ duct-mounted airflow measurement devices,
and anemometers. DOE has tentatively determined that the proposed
approach to measure airflow as specified by ASHRAE 37-2009 offers the
most accurate and repeatable option for direct measurement of airflow
and is not unduly burdensome but seeks comment on the proposed approach
as well as any potential alternative approaches. Specifically, DOE
requests comment on alternative methods of direct airflow measurement,
including on the level of measurement accuracy associated with each
approach and any associated test burden.
---------------------------------------------------------------------------
\14\ See: https://www.amca.org/assets/resources/public/pdf/Education%20Modules/AMCA%20210-16.pdf. (Last accessed April 7,
2022.)
---------------------------------------------------------------------------
Issue 8: DOE requests comment on its tentative conclusion that
measuring airflow directly would be more accurate and result in less
variability than the current method of calculating airflow based on
temperature rise. Additionally, DOE requests comment on its estimated
cost for an apparatus to measure airflow directly using the procedures
and methods for measuring airflow specified in ASHRAE 37-2009 (RA 2019)
(up to $50,000). DOE also requests comment on whether test laboratories
would need to purchase additional equipment for testing, if DOE adopts
this proposal to measure airflow directly, or if test laboratories
generally already have this equipment available.
Issue 9: DOE requests comment on whether it is necessary to
reference AMCA 210-2007 and ASHRAE 41.2-1987 (RA 1992) in the test
procedure instructions for constructing an airflow measuring apparatus.
Issue 10: DOE requests comment on alternative methods of direct
airflow measurement, other than using the procedures and methods for
measuring airflow specified in ASHRAE 37-2009 (RA 2019). For these
alternatives, DOE requests comment on the expected
[[Page 29586]]
measurement accuracy, the cost of associated instrumentation, and
appropriate associated setup and operation procedures.
3. Location of External Static Pressure Measurements
Currently, section 6.4 of appendix AA specifies that for all test
configurations, external static pressure taps shall be placed 18 inches
from the outlet. Additionally, although section 6.4 of appendix AA
references Section 6.4 of ASHRAE 37-2009 for a description of the
apparatus for measuring external static pressure, section 6.4 of
appendix AA includes explicit instructions to not follow the
specifications in Section 6.4 of ASHRAE 37-2009 regarding the minimum
length of the ducting and minimum distance between the external static
pressure taps and product inlet and outlet. The external static
pressure measurement location in Section 6.4 of ASHRAE 37-2009 varies
depending on the dimensions of the duct outlet. DOE adopted the
requirement to measure external static pressure at 18 inches from the
outlet in the January 2014 Final Rule in response to comments from
manufacturers concerning practical constraints of the test setup. 79 FR
500, 511. Specifically, DOE previously determined that a fixed
dimension requirement of measuring external static pressure 18 inches
from the outlet (as opposed to the requirements in ASHRAE 37-2009,
which depend on the dimensions of the outlet duct) would allow larger
products to be tested in existing furnace testing facilities and would
improve consistency with the test setup for consumer furnace testing.
Id. However, in light of the concerns about the repeatability of the
current furnace fan test procedure, DOE is reconsidering the
appropriate location for measuring external static pressure. ASHRAE 37-
2009 was developed through a consensus process and would generally be
expected to represent the current best practices for measuring external
static pressure. DOE is concerned that measuring at a fixed location of
18 inches from the outlet could lead to a less accurate and less
repeatable measurement than the approach provided in ASHRAE 37-2009
because the airflow profile may not be fully developed. Therefore,
although DOE is not proposing a change to the measurement location in
this NOPR, DOE is seeking more information to determine whether a
change would improve the repeatability of the FER test. If DOE
determines that changing the location of the pressure taps could
improve repeatability, DOE may do so in a future final rule.
Issue 11: DOE requests comment on whether requiring that the
external static pressure be measured at the location specified in
Section 6.4 of ASHRAE 37-2009, as opposed to specifying that external
static pressure taps always be placed 18 inches from the outlet, could
improve test repeatability. DOE also requests comment on whether
manufacturer facilities and other test laboratories would be able to
accommodate the added duct length during testing. Further, if test
facilities would not be able to accommodate the added duct length
during testing, DOE requests comment on whether a different length
requirement could improve test repeatability while not preventing any
existing test facilities from completing a valid test for furnace fans.
4. Language Updates
In the July 2021 RFI, DOE sought comment on whether any definitions
in the test procedure require revision and if so, how the definitions
should be revised. 86 FR 35660, 35662. DOE received a number of
comments in response suggesting revisions to the language in appendix
AA that could reduce confusion about the test procedure.
a. Definitions
For furnace fans used in furnaces or modular blowers with single-
stage heating, the three airflow-control settings required to be tested
are: The maximum setting, the default constant-circulation setting, and
the default setting when operated using the maximum heat input
rate.\15\ For furnace fans used in furnaces or modular blowers with
multi-stage heating or modulating heating, the airflow-control settings
to be tested are: The maximum setting; the default constant-circulation
setting; and the default setting when operated using the reduced heat
input rate. See sections 8.6.1, 8.6.2 and 8.6.3 of appendix AA. For
both single-stage and two-stage or modulating units, if a default
constant-circulation setting is not specified, the lowest airflow-
control setting is used to represent constant circulation for testing.
See section 8.6.2, appendix AA.
---------------------------------------------------------------------------
\15\ For furnace fans where the maximum airflow control setting
is a heating setting, the maximum airflow control setting test and
the default heating airflow control setting test would be identical,
such that only two tests are required: Maximum airflow (which is the
same as the default heating setting) and constant circulation.
---------------------------------------------------------------------------
In addition, if the manufacturer specifies multiple heating
airflow-control settings, the highest heating airflow-control setting
specified for the given function (i.e., at the maximum or reduced
input, as applicable) is used. See section 8.6.3, appendix AA.
Inquiries sent to DOE since the publication of the January 2014
Final Rule indicate that there are differing interpretations regarding
the appropriate airflow-control settings for testing, with some
manufacturers interpreting the DOE test procedure as requiring testing
only the ``as-shipped'' airflow-control settings. However, the
definition for ``default airflow-control setting'' specifically states
that ``[i]n instances where a manufacturer specifies multiple airflow-
control settings for a given function to account for varying
installation scenarios, the highest airflow-control setting specified
for the given function shall be used for the procedures specified in
this appendix.'' Section 2.6, appendix AA. Further, the default
airflow-control settings are defined as airflow-control settings
specified for installed-use by the manufacturer. That section in turn
clarifies that the ``manufacturer specifications for installed use''
are those specifications provided for typical consumer installations in
the product literature shipped with the product in which the furnace
fan is installed.
The ``default airflow-control setting'' should not be conflated
with the as-shipped airflow-control settings. For example, a furnace
may be shipped with the low-speed airflow-control setting configured
for the heating function (i.e., the as-shipped airflow-control
setting), but the installation manual shipped with the furnace fan
specifies the medium speed airflow-control setting for the heating
function for certain installations, which is the highest airflow-
control setting specified for the heating function. In this scenario,
the DOE definition for ``default airflow-control setting'' requires the
medium airflow-control setting to be used during the heating-mode test,
rather than the as-shipped setting (i.e., the low setting) because
there are multiple airflow-control settings for the heating function,
and the medium setting is the highest setting specified.
Additionally, inquiries sent to DOE indicate that some
manufacturers may be interpreting the test procedure to require testing
according to installation instructions printed on the control board.
However, DOE notes that the same control board may be used across
multiple products to reduce manufacturing complexity and costs, and as
a result, instructions provided on a control board may not be
applicable to every unit in which a control board is
[[Page 29587]]
used and could contradict the specifications in product literature. For
this reason, DOE specifies in the definition of default airflow-control
setting that the manufacturer specifications for installed-use are
those specifications provided for typical consumer installations in the
product literature shipped with the product in which the furnace fan is
installed. Section 2.6, appendix AA.
In the July 2021 RFI, DOE requested comment on whether further
instruction was necessary for determining the appropriate airflow
controls used for testing. 86 FR 35660, 35663.
AHRI recommended that DOE change the term ``default airflow-control
settings,'' which AHRI stated implies as-shipped settings or factory
settings, to ``specified airflow-control settings'' or ``multiple
airflow-control settings'' to ensure the correct settings are used for
testing. (AHRI, No. 5 at pp. 3-4) AHRI also commented that there is a
conflict between the directions in section 8.6.2 and section 2.6 of
appendix AA, with section 8.6.2 directing the testing laboratory to use
the lowest available airflow-control setting if none is provided, and
section 2.6 specifying to use the highest. (Id. at pp. 4-5) AHRI
recommended providing a flow chart to outline the hierarchy of
instructions to guide the selection of airflow-control settings for
each mode. (Id. at p. 4)
To provide further clarity regarding the correct airflow control
setting to be used for each test, DOE proposes to change the defined
term at section 2.6 in appendix AA from ``default airflow-control
settings'' to ``specified airflow-control settings.'' This revised
definition would avoid potential misinterpretation of the term
``default,'' which is not intended to limit testing to the as-shipped
airflow-control settings. Additionally, DOE agrees with AHRI's comment
that the conflicting direction from sections 8.6.2 and 2.6 of appendix
AA could cause confusion when selecting airflow-control settings for
testing. The intended hierarchy of these sections is for the airflow
control setting to be selected according to section 2.6, unless section
8.6.2 applies, in which case section 8.6.2 should be used to select
airflow control settings. To clarify this hierarchy, in addition to
changing the term ``default airflow-control settings'' to ``specified
airflow-control settings,'' DOE proposes to add the phrase ``unless
otherwise specified within the test procedure'' to the end the
definition of ``specified airflow-control settings.''
These proposed changes would clarify the appropriate airflow
control settings to use for testing. Because these changes are meant to
improve clarity but not change the current test methodology, DOE does
not expect that these proposals would cause any changes to current
testing or ratings. Additionally, DOE expects that these proposals will
alleviate confusion about the appropriate airflow control settings to
use for testing, and therefore DOE does not also propose to add a
flowchart into appendix AA to further clarify which airflow control
settings are appropriate.
Issue 12: DOE seeks comment on its proposal to change the term
``default airflow-control settings'' to ``specified airflow-control
settings'' and to add the phrase ``unless otherwise specified within
the test procedure'' to the end of the revised term's definition.
Additionally, the CA IOUs recommended that DOE further investigate
the effect of control features on fan performance to ensure that fan
energy use in the test procedure is representative of use in the field
for all available furnace capabilities, including for modulating
furnaces with very low heating outputs. The commenter stated that
modulating controls increase both the frequency of fan speed variation
and the number of hours spent in heating mode at reduced speeds. (CA
IOUs, No. 4 at p. 4)
In a NOPR published in the Federal Register on May 15, 2012 (``the
May 2012 NOPR''), DOE tentatively concluded that a metric based on
measurements in multiple airflow-control settings would be appropriate
to account for furnace fan energy consumption across its entire
operating range. 77 FR 28673, 28687. DOE recognized that furnace fans
are used not just for circulating air through duct work during heating
operation, but also for circulating air during cooling and constant-
circulation operation. Id. DOE also stated that it understands that
higher airflow-control settings are factory set for cooling operation,
and that the electrical energy consumption of a furnace fan is
generally higher while performing the cooling function. Id.
Additionally, DOE compared ratings that use measurements in two, three,
and five airflow-control settings and found that a metric that uses
measurements in three of the available airflow-control settings
appropriately captures the efficiency advantages of using more-
efficient technologies while minimizing burden on manufacturers. Id. In
the absence of data or examples indicating otherwise for modulating
units, DOE tentatively concludes that including maximum airflow,
cooling, and constant circulation tests fully encompass the fan control
features and are therefore representative of field use. Accordingly,
DOE is not proposing any changes to how modulating units are tested
under appendix AA.
Additionally, in the July 2021 RFI, DOE requested comment on the
appropriate hierarchy to follow in the event of conflicting airflow-
control settings in the manufacturer's product literature. 86 FR 35660,
35663. In response, AHRI recommended DOE clarify that the order of
priority should be the AHRI Database followed by the manufacturer's
installation guide. Additionally, AHRI stated that operating furnaces
intended for high-static pressure applications at the highest airflow-
control setting may lead to excessive airflow that will result in the
furnace operating outside the nameplate-specified temperature rise
range. AHRI stated that furnace safety certification requires furnace
airflow settings in heating mode to be limited by the labeled rise
range and recommended that heating mode airflow control settings should
be limited by the requirements of the labeled rise range. (AHRI, No. 5
at p. 5)
As discussed previously, DOE tentatively concludes that with the
proposed changes to the airflow-control settings definitions, the
instructions for selecting the appropriate airflow-control setting for
testing are sufficiently clear. Regarding AHRI's concern that certain
furnaces may operate with excessive airflow that would cause the
furnace to operate outside the nameplate-specified rise range, DOE
notes that the test method requires testing of the maximum heating
airflow mode as specified by the manufacturer. DOE expects that if a
fan setting is identified for heating mode operation that the fan would
be capable operating in that mode at the ESP specified in appendix AA
(which is representative of a typical ESP that would be encountered in
the field) and at the specified temperature rise range.
Issue 13: DOE requests further comment on this issue of whether it
is necessary to specify that the maximum heating airflow-control
setting used during testing be one that also allows for operation
within the manufacturer-specified temperature rise range during
testing. DOE is also interested in information regarding how often
furnace fans operate outside of the manufacturer-specified temperature
rise range during FER testing under the current requirements.
In response to DOE's question about whether any definitions in the
furnace fan test procedure require revision, AHRI commented that the
phrase ``manufacturer specifications . . . in product literature . . .
shipped with products'' should be clarified to include
[[Page 29588]]
values used in testing that may be located on the label, printed
literature, or online. AHRI stated that manufacturers understand the
FER test procedure is intended to limit furnace fan operation to within
the manufacturer's intended range of use, which it interprets as the
manufacturer-specified temperature rise range, static pressure range
for the given operation mode, and airflow range for the function being
evaluated. AHRI further commented that it understands these limits may
be provided on the label, in printed literature, or through a web
address provided with the product. (AHRI, No. 5 at pp. 3-4)
Currently, DOE refers to ``manufacturer specifications for
installed-use'' in sections 2.2 and 2.6 of appendix AA. DOE agrees with
AHRI that the current instructions could benefit from additional
clarity. As discussed in section III.E.3.a of this document, DOE is
proposing to replace the definition of ``default airflow settings''
with ``manufacturer-specified airflow settings.'' DOE is also creating
a new definition of dual fuel units, as discuss in section III.A.2 of
this document.
b. External Static Pressure
Sections 8.6.2 and 8.6.3 of appendix AA provide the test
requirements for taking measurements in airflow-control settings other
than the maximum airflow-control setting. Both sections state that
their respective required operating settings be maintained until
steady-state conditions are attained as specified in sections 8.3, 8.4,
and 8.5 of appendix AA. Regarding ESP, sections 8.3, 8.4, and 8.5 state
that stabilization is ``indicated by an external static pressure within
the range shown in Table 1.'' The ESP values in Table 1, as indicated
by the table's title, apply only to the maximum airflow-control setting
(section 8.6.1), and therefore are not applicable to sections 8.6.2 and
8.6.3 of appendix AA. In an accompanying statement immediately below
Table 1, appendix AA directs that ``once the specified ESP has been
achieved, the same outlet duct restrictions shall be used for the
remainder of the furnace fan test.'' As such, the test procedure
specifies the ESP conditions in terms of the ductwork geometry when
testing at airflow-control settings other than the maximum airflow-
control setting.
In the July 2021 RFI, DOE requested comment on how manufacturers
are currently implementing sections 8.6.2 and 8.6.3 of appendix AA with
respect to ESP. DOE requested further comment regarding whether
additional direction is needed as to the ESP requirement provided in
the statement accompanying Table 1, including whether additional
criteria are necessary to limit variability in ESP readings for steady-
state operation during the tests for airflow-control settings other
than the maximum airflow setting, and if so, what that direction should
be. 86 FR 35660, 35664.
AHRI asserted that to implement sections 8.6.2 and 8.6.3 of
appendix AA with respect to ESP, manufacturers first set the supply
duct restrictions, then adjust the ESP according to section 8.6.1.1 or
section 8.6.1.2, then record the electrical power. AHRI stated that the
airflow control setting is next adjusted according to section 8.6.2,
without adjusting the ESP, and then electrical power is recorded again.
AHRI stated the airflow control setting is then adjusted according to
section 8.6.3, again without adjusting the ESP unless the temperature
rise is not within the rise range, in which case the ESP is adjusted
until the temperature rise is within the rise range. (AHRI, No. 5 at p.
7)
AHRI also commented that the asterisk located in the ESP table
column heading for Table 1 was intended to precede a clarifying
comment, but this asterisk was left out and should be reintroduced and
linked to the statement reading ``once the specified ESP has been
achieved, the same outlet duct restrictions shall be used for the
remainder of the furnace fan test'' that follows Table 1 of appendix
AA. (AHRI, No. 5 at p. 7)
Based on AHRI's description of how testing is typically performed,
DOE tentatively concludes that the current test procedure generally
provides sufficient instruction (i.e., the test is being performed as
intended). DOE agrees that the asterisk was omitted in appendix AA, and
proposes to add an asterisk prior to the statement ``once the specified
ESP has been achieved, the same outlet duct restrictions shall be used
for the remainder of the furnace fan test'' in section 8.6.1.2 of
appendix AA to link this statement to the ESP column of Table 1. This
proposed change would clarify the appropriate duct restrictions for
testing and not make any substantive changes.
c. Power Measurements
Sections 8.6.1.1, 8.6.1.2, 8.6.2, and 8.6.3 of appendix AA require
the following parameters to be measured once steady-state operation is
achieved: The furnace fan electrical input power, fuel or electric
resistance heat kit input energy, external static pressure, steady-
state efficiency, outlet air temperature, and/or temperature rise. DOE
believes that some test facilities take a single reading for each of
these parameters after achieving the steady state criteria. In DOE
testing where these parameters were measured in one second intervals
throughout the steady-state period, data showed that the values
fluctuate sometimes significantly between readings, even while steady-
state conditions are maintained. These fluctuations could contribute to
repeatability issues in FER testing if a value from a single point in
time is used for each test due to the potential for significant
differences from one reading to the next. In particular, DOE has seen
that the standard deviation of furnace fan power measurements over a 30
minute period (at steady state operation) can be up to 16 percent of
the average, although for most units the standard deviation is less
than 1 percent of the average power consumption. Therefore, DOE is
considering whether further clarifications are necessary for appendix
AA to clarify how manufacturers should take power measurements.
Specifically, DOE believes that increasing the number of discrete
measurements taken (i.e., increasing the sample size) and averaging
them to determine each furnace fan power consumption measurement may
yield a result that is more representative and repeatable than using
single point measurements of the furnace fan power. For example, DOE
could require that power measurements should be based on the average
value over a one-minute interval beginning immediately after steady-
state operation has been achieved, during which the power is measured
at least once per second. Alternatively, DOE could require furnace fan
power measurements to be based on the average of measurements taken
over the entire steady-state period at certain specified intervals
(e.g., every minute or every 5 minutes). If DOE determines that adding
instructions to appendix AA to clarify how to measure furnace fan power
consumption could improve the repeatability of FER tests, DOE may do so
in the final rule.
Issue 14: DOE requests data and information on the methods and
granularity with which test facilities currently measure the
aforementioned variables, particularly furnace fan power (EMax, ECirc,
and EHeat). DOE also requests comment on the intervals at which test
facilities are currently capable of recording these measurements with
their current instrumentation. Finally, DOE also requests information
on whether there are variables besides the fan power
[[Page 29589]]
consumption variables for which there are significant fluctuations in
measurements that DOE should also consider requiring be determined as
an average of multiple measurements.
Issue 15: DOE requests comment on the number of samples that should
be taken and the length of time over which data should be collected in
order for a representative average to be achieved. DOE also requests
comment on the associated costs, if any, to upgrade measurement
instruments or software to be able to collect furnace fan power
consumption measurements at frequencies of once per second, once per
minute, once per 5 minutes, and/or other recommended sampling
frequencies.
d. Other Language Clarifications
The title of section 8.3 of appendix AA is Steady-State Conditions
for Gas and Oil Furnaces, the title of section 8.4 is Steady-State
Conditions for Electric Furnaces and Modular Blowers, and the title of
section 8.5 of appendix AA is Steady-State Conditions for Cold Flow
Tests. The former two sections (8.3 and 8.4) describe the steady-state
conditions for ``hot flow'' tests where the burner or heating element
is on, while the latter section (8.5) describes the steady-state
conditions for ``cold flow'' tests when the burner or heating element
is off. To provide better consistency between the section titles and to
provide clarity for the intended use of sections 8.3 and 8.4 of
appendix AA, DOE proposes to amend the section titles to include the
terminology ``for Hot Flow Tests'' in the titles.
Section 10.1 of appendix AA specifies that in calculating FER, the
furnace fan electrical consumption in the maximum airflow-control
setting (Emax) is multiplied by the cooling hours (CH).
However, if the maximum airflow-control setting is a not a cooling
setting (e.g., if it is only a heating setting), Emax would
not necessarily be measured during operation in a cooling airflow-
control setting. Therefore, DOE proposes to change the description of
the operating mode hours to be ``maximum airflow hours'' and to
designate it with the variable ``MH'' in the nomenclature and
associated equations. DOE tentatively concludes that this proposed
change would provide consistency with the description of the
operational mode and Emax measurement and avoid the
implication that the maximum airflow-control setting will always be a
cooling mode.
E. Nomenclature and Equations
In response to the July 2021 RFI, AHRI submitted several comments
regarding the nomenclature and equations in appendix AA. In the current
test procedure for furnace fans, the equation for FER includes a
dependence on the term Qmax, which represents the airflow at
the maximum airflow-control setting. For products for which the maximum
airflow-control setting is the specified heat setting, Qmax
will equal the airflow measured at the heating mode control setting
(``Qheat''). Otherwise, a separate equation in section 10.1
of appendix AA is used to adjust Qheat to determine the
expected Qmax. Qheat is first determined using
the equation for Qi (the airflow in airflow-control setting
i), when i indicates heating mode.
AHRI stated that the use of subscript ``i'' is confusing.
Specifically, AHRI stated that the subscript ``i'' has two different
meanings within the equation for Qmax: The airflow control
setting, and the heat input setting. AHRI recommended that the
subscript ``k'' be used to indicate the heat setting, thereby creating
measured input at heat setting k (QIN,k), steady-state
efficiency at heat input setting k (EffySS,k), and furnace
fan electrical consumption at heat setting k (Ek). Further,
AHRI recommended replacing Qi with Qheat.k as
opposed to implying that Qheat is equal to Qi.
(AHRI, No. 5 at p. 4)
DOE agrees that the current use of subscripts could lead to
confusion. However, as discussed in section III.D.2 of this document,
DOE is proposing to measure airflow directly. As a result, the
equations to calculate airflow would no longer be needed if this
proposal were adopted. However, if DOE does not ultimately adopt its
proposal to measure airflow directly, it would consider using the
subscripts ``i'' and ``k'' to distinguish between airflow control
settings and heat input settings.
Additionally, AHRI submitted a revised equation for
Qmax. Specifically, AHRI submitted a derivation of the
Qmax equation based on the fan laws from the 2016 ASHRAE
Handbook suggesting that the average outlet air temperatures in the
heating and maximum airflow modes (THeat, Out and
TMax,Out, respectively) of the adjustment factor for
Qheat should be inverted. (AHRI, No. 5 at pp. 4, 24-26) In
response to AHRI's suggestion that the Qmax calculation
should be corrected, DOE notes that the derivation of the
Qmax equation was discussed in the April 2013 SNOPR. 78 FR
19606, 19614-19616. Further, DOE notes that the fan laws are not an
appropriate starting point for AHRI's derivation of the Qmax
equation. Residential furnaces are almost exclusively designed such
that air is not heated until after it has passed through the furnace
fan (i.e., the furnace fan pushes rather than pulls air through the
heat exchanger) so the inlet air, which is what is experienced by the
fan, will remain at approximately the same (ambient) conditions
throughout the course of the test, independent of the furnace fan's
operating mode. As a result, the air temperature and density
experienced by the fan will not change when testing a furnace fan in
different operating modes. In contrast, DOE's derivation was based on
differences in the temperatures of the air passing through the outlet
ductwork but is not derived from the fan laws.
In addition, AHRI recommended several clarifications for the
calculation of the airflow equation to determine Qi. AHRI's
suggestions included defining the previously undefined variables in the
Qi equation. Specifically, it suggested a definition for
jacket loss (``LJ''), using the definition and default value
of 1 percent based on the January 2014 Final Rule. (AHRI, No. 5 at p.
17) Next, AHRI suggested a definition for the steady-state efficiency
in airflow setting i (``Effyss,'') to incorporate comments
from the January 2014 Final Rule. (Id.) AHRI also suggested adding a
specific definition for the electrical energy to the furnace fan motor
in the airflow control setting i (``Ei'') for clarity. (Id.
at p. 18) Further, AHRI commented that several constants in the
Qi equation should be explicitly defined and/or corrected.
It recommended defining 60 as the conversion factor from hours to
minutes (``min/h''), 0.24 as the approximate specific heat capacity of
dry air, and 0.444 as the approximate specific heat capacity of
saturated water vapor. AHRI stated that each of these definitions would
provide additional clarity when calculating Qi. (Id.) AHRI
also recommended revising the included factor for converting watts to
Btu per hour (``(Btu/h)/W'') from 3,413 to 3.413 to correct the
misplaced the decimal point. (Id.) AHRI noted that DOE currently uses
the variable ``W'' to represent both relative humidity in section 8.6.1
of appendix AA and humidity ratio in section 9 of appendix AA. AHRI
recommends clarifying that humidity ratio is denoted using the variable
``W,'' while the relative humidity is represented by the variable ``q''
to align with the ASHRAE handbook. (Id.) Finally, AHRI suggested
changing the definition of the specific volume of air
(vair,i), which is currently defined in the test procedure
as the ``specific volume of dry air'' in units of lb/ft\3\, to the
``specific volume of moist air mixture in the airflow-control setting
i'' in units of ft\3\/lbda. (Id. at p. 19) Id.
[[Page 29590]]
Were DOE to adopt in a final rule its proposal to measure airflow
directly rather than to calculate airflow (as discussed in section
III.D.2 of this document), the terms reference system descriptor
(``kref''), air throughput temperature rise in setting i
(``[Delta]Ti''), inlet air temperature at time of the
electrical power measurement in airflow-control setting i
(``Ti,In''), Effyss, LJ, the airflow
variable (``Qi''), and a specific volume of dry air
(``vair'') would no longer be used and as a result, their
definitions would be removed from the test procedure in appendix AA.
The humidity ratio, W, and average outlet air temperature at time of
the electrical power measurements in airflow-control setting i
(``Ti,out'') would remain in appendix AA even though they
would not be used directly in any calculations because they would be
necessary for measurement of airflow. Should, however, DOE determine to
maintain the indirect calculation of airflow based on measurement of
temperature rise, as required by the current test procedure, DOE would
consider adopting several of the nomenclature revisions recommended by
AHRI, including those for variables EffySS, vair,
LJ, Qi, 60, 0.24, and 0.44. In addition, the
variables for [Delta]Ti, Ti,In,
Ti,Out were not mentioned by AHRI but would be
updated for consistency with the clarifications of the indices. The
nomenclature definition for variable QIN,i is relevant
regardless of whether DOE ultimately adopts its proposal to directly
measure airflow; therefore, DOE proposes to revise it within the test
procedure for furnace fans at appendix AA as discussed in the
paragraphs below.
In reviewing the suggested changes, DOE agrees with AHRI's
recommended definitions for steady-state efficiency in airflow-control
setting i (Effyss,i), jacket loss (LJ),
clarification of the meaning of the indices for airflow(Qi),
humidity ratio (W), conversion from hours to minutes, the approximate
specific heat capacity of dry air in Btu per pound per [deg]F (``Btu/
lb-[deg]F''), the approximate specific heat capacity of saturated water
vapor in Btu/lb-[deg]F, and the correction of the units for the
specific volume of air (vair) in the nomenclature from lb/
ft\3\ to ft\3\/lb. All other variables that would include the modified
indices would also be updated in the nomenclature section of appendix
AA including [Delta]Ti,k, Ti,k, In,
Ti,k, Out, and QIN,k. Should DOE not adopt the
proposal to measure airflow directly, DOE tentatively concludes that
providing a specific definition for each of these variables and
constants would allow for increased clarity when calculating airflow.
Therefore, should DOE not adopt the proposal to measure airflow
directly, DOE would propose to include the following new definitions in
section 9 of appendix AA:
60 = conversion factor from hours to minutes, (min/h)
0.24 = approximate specific heat capacity of dry, (Btu/lb-
[deg]F)
0.44 = approximate specific heat capacity of saturated water
vapor, (Btu/lb-[deg]F)
Effyss,i = Steady-State Efficiency in airflow-
control setting i. For gas and oil furnaces, Effyss,i as
specified in Sections 11.2.7 (Non-Condensing and Non modulating),
11.3.7.3 (Condensing and Non modulating), 11.4.8.8 (Non-Condensing and
Modulating), or 11.5 (Condensing and Modulating) of ASHRAE 103-2017, in
%. For electric furnaces or modular blowers, Effyss,i equals
100, in %.
LJ = jacket loss as determined as specified in
Section 8.6 of ASHRAE 103-2017 or a default value of 1% if the jacket
loss test is not performed, in %
Ti,k, In = inlet air temperature at time of the
electrical power measurement, in [deg]F, in airflow-control setting i
and heat setting k, where i can be ``Circ'' to represent constant-
circulation (or minimum airflow) mode, ``Heat'' to represent heating
mode, or ``Max'' to represent maximum airflow (typically designated for
cooling) mode. If i = Heat, k can be ``H'' to represent the high heat
setting or ``R'' to represent the reduced heat setting. If i = Max or
Circ, k is not needed.
Ti,k, Out = average outlet air temperature as
measured by the outlet thermocouple grid at time of the electrical
power measurement, in [deg]F, in airflow-control setting i and heat
setting k, where i can be ``Circ'' to represent constant-circulation
(or minimum airflow) mode, ``Heat'' to represent heating mode, or
``Max'' to represent maximum airflow (typically designated for cooling)
mode. If i = Heat, k can be ``H'' to represent the high heat setting or
``R'' to represent the reduced heat setting. If i = Max or Circ, k is
not needed.
[Delta]Ti,k = Ti,k, Out minus
Ti,k, In, which is the air throughput temperature rise in
setting i and heat setting k, in [deg]F
Qi,k = airflow in airflow-control setting i and
heat setting k, in cubic feet per minute (CFM)
QIN,k = measured fuel energy input rate, in Btu/h,
at specified operating conditions k based on the fuel's high heating
value (HHV) determined as required in Section 8.2.1.3 or 8.2.2.3 of
ASHRAE 103-2017, where k can be ``H'' for the maximum heat setting or
``R'' for the reduced heat setting.
vair = specific volume of dry air at specified
operating conditions per the equations in the psychrometric chapter in
2001 ASHRAE Handbook--Fundamentals in ft\3\/lb
DOE also agrees with AHRI's comment regarding the conversion factor
from watts to Btu/h. Currently, the conversion factor multiplies watts
by 3,413, and therefore converts the value to thousand Btu per hour per
watt (``(kBtu/h)/W''). However, the measured fuel energy input rate,
QIN,k, is expressed in Btu/h. Therefore, to stay consistent
throughout the equation, the appropriate conversion factor is 3.413,
which would convert watts to Btu/h. Although DOE is proposing to
directly measure the maximum airflow for determining Qmax
which obviates the need for the Qi equation used to
calculate Qmax, if DOE were to ultimately not adopt that
proposal, DOE would propose the following equation for airflow in
airflow-control setting i and heat setting k in section 10.1 of
appendix AA:
[GRAPHIC] [TIFF OMITTED] TP13MY22.025
Finally, DOE agrees that there should be different variables
assigned to represent relative humidity and the humidity ratio. To
provide clarity regarding these variables, DOE proposes to redesignate
the variable for relative humidity from ``W'' to ``q.''
Issue 16: DOE requests comment on its proposals to add definitions
to certain variables and constants in the airflow equation and change
the conversion factor from (kBtu/h)/W to (Btu/h)/W in the event that
DOE were to
[[Page 29591]]
decide not to adopt the proposal to directly measure airflow in the
final rule. DOE seeks further comment regarding its proposal to
redesignate the variable for relative humidity from ``W'' to ``q.''
AHRI further commented that the hours used in the equation to
calculate FER are assigned arbitrarily that do not represent the
performance in either the north or the south. (AHRI, No. 5 at p. 12)
DOE notes that these hours were estimated to be the national average
for each function, and therefore represent the mean usage across the
country, as opposed to the performance in any particular part of the
country. DOE originally proposed these hours in the May 2012 NOPR. 77
FR 28673, 28683. AHRI responded in a comment to the May 2012 NOPR that
DOE should calculate FER using the annual operating hours that DOE
proposed.\16\ 78 FR 19606, 19613. Therefore, DOE does not propose any
deviation from the operating hours as outlined in Table IV.2 of
appendix AA.
---------------------------------------------------------------------------
\16\ For AHRI's comment see: www.regulations.gov/comment/EERE-2010-BT-TP-0010-0016.
---------------------------------------------------------------------------
F. Thermocouple Accuracy
Section 5.1 of appendix AA, which references Section 5.1 of ASHRAE
37-2009, requires that temperature measuring instruments must be
accurate to within 0.75 [deg]F. Section 6 of appendix AA references
Section 7 of ASHRAE 103-2007 for the test apparatus setup. Section 7.6
of ASHRAE 103-2007 includes instructions to take temperature
measurements with thermocouple grids constructed of either 5, 9, or 17
thermocouples, depending on the stack diameter. The measurement
accuracy of a thermocouple grid depends on the type and number of
thermocouples used, as well as the magnitude of the air temperature
being measured.
In the July 2021 RFI, DOE requested information regarding the
number and types of thermocouples, or other temperature measurement
devices, that laboratories use to measure the stack temperatures of
oil-fired furnaces. DOE also sought feedback on whether the stack
temperatures of gas-fired furnaces are likely to exceed 450 [deg]F, and
the accuracy of instruments used to test furnaces (gas- or oil-fired)
with stack temperatures exceeding 450 [deg]F. 86 FR 35660, 35665.
AHRI commented that stack temperatures of gas furnaces probably
would not exceed 450 [deg]F and recommended using five thermocouples in
the stack to measure temperature. (AHRI, No. 5 at p. 10) AHRI commented
that required thermocouple accuracy should be adjusted because
thermocouples are only accurate to 1-2 degrees Celsius (``[deg]C'')
depending on the class of the product, while ASHRAE 37 (and by
extension the DOE test method at appendix AA) require measurement
devices to be accurate within 0.75 [deg]F. (Id.) AHRI
recommended reviewing and updating the measurement tolerances to
address this issue. (Id.) DOE did not receive any further comments on
these topics.
As discussed in the July 2021 RFI, using the types of thermocouples
commonly used in test facilities (including ``T-type'' and ``K-type''),
DOE determined that the measurement accuracy required in appendix AA
(0.75 [deg]F) is achievable with a minimum of five thermocouples at
temperatures up to approximately 450 [deg]F. 89 FR 35660, 35665. This
measurement accuracy requirement was calculated using the thermocouple
characteristics found in Table 1 of ANSI/ASTM E230/E230M-17 \17\ and
assuming that the overall measurement accuracy is equal to the
measurement tolerance of individual thermocouples of that type divided
by the square root of the number of thermocouples. Assuming that the
stack temperatures of gas furnaces would not likely exceed 450 [deg]F
as indicated by AHRI, DOE tentatively concludes that current
instrumentation is adequate to measure the stack temperature of
furnaces on the market and does not propose any changes to accuracy of
temperature measuring instruments in appendix AA.
---------------------------------------------------------------------------
\17\ ANSI/ASTM E230/E230M-17, Standard Specification For
Temperature-Electromotive Force (Emf) Tables For Standardized
Thermocouples. Available at: webstore.ansi.org/standards/astm/astme230e230m17.
---------------------------------------------------------------------------
G. Burner Selection
In the July 2021 RFI, DOE requested comment on the potential impact
(if any) of burner selection on furnace fan performance. DOE also
requested comment on the potential approaches for specifying burner(s)
for testing. 86 FR 35660, 35666. In response, AHRI asked for
clarification regarding DOE's question, and indicated that it was
unable to provide meaningful comment. (AHRI, No. 5 at p. 11)
DOE notes that there are oil-fired furnaces that are shipped
without a burner, but for which the manufacturer instead provides
several burner options in the accompanying product literature. These
burners may have different steady-state heating efficiencies and/or
different airflow resistance characteristics, that could result in
differences in furnace fan operation and efficiency. Therefore, if
different burner options are used in tests for a given oil furnace and
if burner selection impacts FER, test repeatability issues could arise.
Because DOE did not receive any additional information about burner
selection, DOE is not proposing to add any requirements related to
burner selection into appendix AA at this time.
H. Reporting Requirements
NEEA and the CA IOUs encouraged DOE to require mandatory reporting
of fan performance results for maximum/cooling, heating, and air
circulation individually. (NEEA, No. 3 at p. 6; CA IOUs, No. 4 at p. 4)
The CA IOUs suggested that this method of reporting would allow
consumers and utility incentive program designers to better understand
fan performance in each mode, which they assert is particularly
important in regions where operation time in each mode differs from the
FER weighting factors. (CA IOUs, No. 4 at p. 4) Similarly, NEEA
commented that reporting the specific energy consumption values in each
mode would provide information for planners for the adoption of
efficient fan equipment suitable for their region. (NEEA, No. 3, at pp.
6-7) NEEA asserted that this additional reporting is reasonable,
considering manufacturers already test for each consumption value
separately. (Id. at p. 7)
Manufacturers, including importers, must use product-specific
certification templates to certify compliance to DOE. For consumer
furnace fans, the certification template reflects the general
certification requirements specified at 10 CFR 429.12 and the product-
specific requirements specified at 10 CFR 429.58. DOE is not proposing
to amend the product-specific certification requirements for these
products. Were DOE to finalize the proposals as amended, DOE would
consider as part of a separate rulemaking whether amendments to the
certification requirements and reporting for furnace fans would be
warranted.
I. Test Procedure Costs and Harmonization
1. Test Procedure Costs and Impact
In this NOPR, DOE proposes to amend the existing test procedure for
consumer furnace fans by specifying a test method for furnace fans that
operate at low ESPs, incorporating by reference the most recent
industry test procedures, clarifying the scope of the definition of
``furnace fans,'' directly measuring airflow, tightening ambient
conditions, and clarifying language for airflow-
[[Page 29592]]
control settings. DOE has tentatively determined that only the proposed
amendment requiring directly measuring air flow would impact testing
costs as discussed in the following paragraphs.
a. Airflow Determination
DOE proposes to require that airflow be measured directly in
appendix AA in accordance with procedures specified in ASHRAE 37-2009
(RA 2019). This would impose additional cost if a manufacturer or test
laboratory does not already have an airflow-measuring device for
testing other HVAC equipment, or if they would need to purchase one to
specifically dedicate to testing furnace fans. DOE estimates a purchase
price of approximately $50,000 for an airflow-measuring device that
meets the requirements of ASHRAE 37-2009 (RA 2019). DOE recognizes that
laboratories may have multiple test rigs, and that each test rig could
require its own additional equipment. As an example, for a laboratory
with two furnace fan test rigs, the cost associated with new test
equipment resulting from this proposed requirement would be $100,000.
However, DOE expects that not all manufacturers and test laboratories
would need to purchase new equipment, since direct airflow measurement
is performed for testing of other HVAC equipment and the necessary
equipment could also be used for furnace fan testing, depending on the
testing capacity at that site. As such, DOE is unable to estimate the
total expected cost to industry that would be incurred as a result of
this proposal. Further, this proposed change is intended to increase
the accuracy of FER ratings and consistency of test results but would
not be expected to change the actual performance of any units.
Additionally, DOE is not proposing to require units that are currently
certified to retest according to the updated test procedure.
Issue 17: DOE requests comment, specifically from manufacturers and
third-party test laboratories, on whether costs would be incurred as a
result of the proposals in this NOPR to require measuring airflow
directly; and if so, the total incurred cost expected for each test
facility.
DOE has initially determined that the proposed amendments would not
impact the representations of consumer furnace fan energy efficiency.
Based on the initial determination, manufacturers would be able to rely
on data generated under the current test procedure should the proposed
amendments be finalized. As such, retesting of consumer furnace fans
would not be required solely as a result of DOE's adoption of the
proposed amendments to the test procedure.
Issue 18: DOE requests comment on the impact and associated costs
of the proposed amendments.
b. Additional Amendments
DOE does not anticipate that the remainder of the amendments
proposed in this NOPR would impact test costs.
In response to petition for waiver and an application for interim
waiver for heating-only furnace fans, DOE granted a waiver requiring
use of an alternate test procedure that specifies alternate ESP test
conditions for furnace fans that operate at low ESPs. Any such furnace
fan models currently on the market have already been granted a test
procedure waiver from DOE, which specifies use of the alternate test
procedure. As such, DOE's proposal to incorporate a similar methodology
as the waiver methodology into the test procedure for furnace fans that
operate at low ESPs will not result in any additional costs for
manufacturers.
DOE's proposal to incorporate by reference the most recent versions
of ASHRAE 103, ASHRAE 37, and maintain by reference ASHRAE 41.1-1986
(RA 2006), would update references to the most recent versions of
ASHRAE 103 and ASHRAE 37. As discussed previously, DOE's review of
these standards indicates that reference to the latest versions of them
would not impact FER ratings and would not require that manufacturers
recertify their units. Therefore, manufacturers would not incur any
additional costs.
DOE's proposal to define and explicitly exclude dual-fuel furnace
fans from the scope of appendix AA would make clear that such products
are not subject to testing under appendix AA, and would not impose any
additional burden.
DOE's proposal to tighten ambient conditions would limit the
permissible ambient temperature range to between 65 [deg]F and 85
[deg]F and the ambient humidity range to between 20 percent and 80
percent for both condensing and non-condensing furnaces. As discussed,
appendix AA currently already limits ambient temperatures to between 65
[deg]F and 85 [deg]F, as well as humidity to below 80 percent for
condensing furnaces, and DOE understands that testing laboratories are
generally able to meet these criteria in their testing laboratories
without the use of a specialized test chamber. Additionally, DOE
tentatively concludes that it is unlikely that test laboratories would
be unable to meet a minimum requirement of 20 percent, because that
limit would exclude only the driest conditions. Therefore, DOE expects
that test laboratories would not incur additional cost in applying
these same temperature tolerances to testing of non-condensing furnaces
as well. Similar to the proposal to directly measure the airflow in
section III.J.1.a of this document, the ambient condition requirements
proposed in this NOPR are intended to increase the accuracy of FER
ratings and the consistency of test results but should not change the
actual performance of any units. Additionally, DOE is not proposing to
require units that are currently certified to retest according to the
updated test procedure.
DOE's remaining proposals to clarify nomenclature and fix
typographic errors would not result in any changes to the test conduct
and therefore would not affect the cost of testing.
DOE has tentatively determined that manufacturers would be able to
rely on data generated under the current test procedure, should any of
these additional proposed amendments be finalized.
2. Harmonization With Industry Standards
DOE's established practice is to adopt relevant industry standards
as DOE test procedures unless such methodology would be unduly
burdensome to conduct or would not produce test results that reflect
the energy efficiency, energy use, water use (as specified in EPCA) or
estimated operating costs of that product during a representative
average use cycle or period of use. Section 8(c) of appendix A of 10
CFR part 430 subpart C. In cases where the industry standard does not
meet EPCA statutory criteria for test procedures, DOE will make
modifications through the rulemaking process to these standards as the
DOE test procedure.
The test procedure for consumer furnace fans at appendix AA
incorporates by reference ASHRAE 103-2017, ASHRAE 37-2009, and ASHRAE
41.1-1986 (RA 2006), which provide test conditions, testing equipment,
and methods for measuring the energy use of furnace fans.
In the July 2021 RFI, DOE sought comment on the availability of
consensus-based test procedures for measuring the energy use of furnace
fans that could be adopted without modification and more accurately or
fully comply with the requirement that the test procedure produces
results that measure energy use during a representative average use
cycle for the product, and not be unduly burdensome to conduct. 86 FR
35660, 35665.
In response, AHRI commented that the industry test standard
Canadian
[[Page 29593]]
Standards Organization (``CSA'') Standard C823:11 (R2021) ``Performance
of air handlers in residential space conditioning systems'' specifies
requirements for measuring both the air delivery and the electrical
energy consumption of air handlers in residential space conditioning
systems over a range of static pressures and speed control settings.
(AHRI, No. 5 at p. 9) AHRI stated that while performance ratings can be
developed for each of the air handler operating controls settings,
manufacturers find this procedure to be unduly burdensome for
regulatory purposes, where multiple test samples are required to
establish ratings. (Id.) Upon review of the standard, DOE tentatively
concludes that harmonizing DOE's test method with this test procedure
could impose unnecessary burden on the testing facility and does not
propose to reference or incorporate this procedure in its test
procedure for consumer furnace fans.
AHRI also commented that it is beginning work on an industry rating
procedure, AHRI 630 Performance Rating of Annual Fuel Utilization
Efficiency 2 (AFUE2) for Residential Furnaces, the purpose of which is
to establish for residential furnaces the following: Definitions; test
requirements; rating requirements; minimum data requirements for
published ratings; marking and nameplate data; and conformance
conditions. (AHRI, No. 5 at p. 9) The scope is limited to products that
are either a gas-fired or oil-fired central furnace, use single-phase
electric current, and have a heat input rates of less than 225,000 Btu/
h. (Id.) AHRI further stated that this standard will combine the three
metrics used to rate residential furnaces--AFUE, as determined by DOE's
test procedures for furnaces at appendix N; standby mode electrical
consumption, as determined by appendix N; and the electric efficiency
of furnace fans, as determined by appendix AA--into a single
performance rating, ``AFUE2.'' AHRI asserted that AFUE2 will reduce
consumer confusion and increase the opportunity for innovation through
a streamlined performance rating. (Id.)
On October 12, 2018, DOE received a petition from AHRI (``AHRI
Petition'') asking DOE to initiate notice-and-comment rulemaking to
develop a new test procedure for residential furnaces and furnace fans
which would replace the two currently required performance metrics for
furnaces (i.e., AFUE and PW,SB/PW,OFF) and the
one performance metric for furnace fans (i.e., FER) with a single new
metric (i.e., AFUE2). On November 14, 2018, DOE published a Notice of
Petition for Rulemaking announcing the receipt of the AHRI Petition and
inviting interested parties to submit comments. 83 FR 56746. After
considering the AFUE2 metric and comments from interested parties, DOE
published a final denial of petition for rulemaking on September 21,
2021. 86 FR 52422. In denying the petition, DOE determined that a
combined test procedure and energy conservation standard for consumer
furnaces and furnace fans would enable an increase in the maximum
allowable energy use and/or minimum required efficiency of furnaces and
furnace fans, which is impermissible under the ``anti-backsliding''
provision EPCA.\18\ 86 FR 52422, 52423. DOE also determined that a
unified metric for consumer furnaces and furnace fans (using the
proposed combined metric AFUE2) would be contrary to DOE's prior
determination that it is technologically infeasible to integrate active
mode and standby or off mode energy use for furnaces. Id. DOE maintains
its conclusions presented in the denial of the AHRI petition and for
these reasons, did not further consider the AFUE2 test method.
---------------------------------------------------------------------------
\18\ The ``anti-backsliding'' provision prevents the Secretary
from prescribing any amended standard that either increases the
maximum allowable energy use or decreases the minimum required
energy efficiency of a covered product. (42 U.S.C. 6295(o)(1))
---------------------------------------------------------------------------
The industry standards that DOE proposes to incorporate by
reference via amendments described in this proposed rule are discussed
in further detail in section IV.M of this document.
Issue 19: DOE requests comment on the benefits and burdens of the
proposed updates and additions to industry standards referenced in the
test procedure for consumer furnace fans.
J. Compliance Date and Waivers
EPCA prescribes that, if DOE amends a test procedure, all
representations of energy efficiency and energy use, including those
made on marketing materials and product labels, must be made in
accordance with that amended test procedure, beginning 180 days after
publication of such a test procedure final rule in the Federal
Register. (42 U.S.C. 6293(c)(2)).
If DOE were to publish an amended test procedure, 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.)
Upon the compliance date of test procedure provisions of an amended
test procedure, should DOE issue a such an amendment, any waivers that
had been previously issued and are in effect that pertain to issues
addressed by such provisions are terminated. 10 CFR 430.27(h)(3).
Recipients of any such waivers would be required to test the products
subject to the waiver according to the amended test procedure as of the
compliance date of the amended test procedure. The amendments proposed
in this document pertain to issues addressed by waivers granted to ECR
International, Inc. (Case number 2019-001). 86 FR 13530.
IV. Procedural Issues and Regulatory Review
A. Review Under Executive Order 12866 and 13563
Executive Order (``E.O.'')12866, ``Regulatory Planning and
Review,'' as supplemented and reaffirmed by E.O. 13563, ``Improving
Regulation and Regulatory Review, 76 FR 3821 (Jan. 21, 2011), requires
agencies, to the extent permitted by law, to (1) propose or adopt a
regulation only upon a reasoned determination that its benefits justify
its costs (recognizing that some benefits and costs are difficult to
quantify); (2) tailor regulations to impose the least burden on
society, consistent with obtaining regulatory objectives, taking into
account, among other things, and to the extent practicable, the costs
of cumulative regulations; (3) select, in choosing among alternative
regulatory approaches, those approaches that maximize net benefits
(including potential economic, environmental, public health and safety,
and other advantages; distributive impacts; and equity); (4) to the
extent feasible, specify performance objectives, rather than specifying
the behavior or manner of compliance that regulated entities must
adopt; and (5) identify and assess available alternatives to direct
regulation, including providing economic incentives to encourage the
desired behavior, such as user fees or marketable permits, or providing
information upon which choices can be made by the public. DOE
emphasizes as well that E.O. 13563 requires agencies to use the best
available techniques to quantify anticipated present and future
benefits and costs as accurately as possible. In its guidance, the
Office of Information and Regulatory Affairs (``OIRA'') in the Office
of Management and Budget (``OMB'') has emphasized
[[Page 29594]]
that such techniques may include identifying changing future compliance
costs that might result from technological innovation or anticipated
behavioral changes. For the reasons stated in the preamble, this
proposed regulatory action is consistent with these principles.
Section 6(a) of E.O. 12866 also requires agencies to submit
``significant regulatory actions'' to OIRA for review. OIRA has
determined that this proposed regulatory action does not constitute a
``significant regulatory action'' under section 3(f) of E.O. 12866.
Accordingly, this action was not submitted to OIRA for review under
E.O. 12866.
B. Review Under the Regulatory Flexibility Act
The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires
preparation of an initial regulatory flexibility analysis (``IRFA'')
for any rule that by law must be proposed for public comment, unless
the agency certifies that the rule, if promulgated, will not have a
significant economic impact on a substantial number of small entities.
As required by Executive Order 13272, ``Proper Consideration of Small
Entities in Agency Rulemaking,'' 67 FR 53461 (Aug. 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: energy.gov/gc/office-general-counsel.
1. Description of Reasons Why Action Is Being Considered
DOE is proposing to amend the existing DOE test procedures for
consumer furnace fans. EPCA requires that, at least once every 7 years,
DOE evaluate test procedures for each type of covered product,
including consumer furnace fans, 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))
DOE is proposing amendments to the test procedures for consumer
furnace fans in satisfaction of its statutory obligations under EPCA.
2. Objectives of, and Legal Basis for, Rule
DOE is required to review existing DOE test procedures for all
covered products every 7 years to determine if an amended test
procedure would more accurately or fully comply with the requirement
that a test procedure be reasonably designed to measure energy
efficiency during a representative average use cycle and not be unduly
burdensome to conduct. (42 U.S.C. 6293(b)(1)(A))
3. Description and Estimate of Small Entities Regulated
For manufacturers of consumer furnace fans, the U.S. Small Business
Administration (``SBA'') has set a size threshold, which defines those
entities classified as ``small businesses'' for the purposes of the
statute. DOE used the SBA's small business size standards to determine
whether any small entities would be subject to the requirements of the
rule. (See 13 CFR part 121.) The size standards are listed by North
American Industry Classification System (``NAICS'') code and industry
description and are available at www.sba.gov/document/support--table-size-standards. Manufacturing of consumer furnace fans is classified
under NAICS 333415, ``Air-Conditioning and Warm Air Heating Equipment
and Commercial and Industrial Refrigeration Equipment Manufacturing.''
The SBA sets a threshold of 1,250 employees or fewer for an entity to
be considered as a small business for this category.
DOE reviewed this proposed rule under the provisions of the
Regulatory Flexibility Act and the procedures and policies published on
February 19, 2003. 68 FR 7990.
DOE conducted a market survey using available public information to
identify manufacturers of the products covered by this rulemaking.
DOE's research involved its Compliance Certification Database
(``CCD''),\19\ California Energy Commission's Modernized Appliance
Efficiency Database System (``MAEDbS''),\20\ individual company
websites, and consumer furnace fan energy conservation standards
rulemakings \21\ to create a list of companies that manufacture or sell
consumer furnace fans in the United States. DOE then consulted other
publicly available data, such as manufacturer specifications and
product literature, U.S. import and export data (e.g., Panjiva \22\)
and basic model numbers, to identify original equipment manufacturers
(``OEMs'') of the products covered by this proposed rulemaking. DOE
further relied on public sources and subscription-based market research
tools (e.g., Dun & Bradstreet reports \23\) to determine company
location, headcount, and annual revenue. DOE screened out companies
that do not offer products covered by this proposed rulemaking, do not
meet the SBA's definition of a ``small business,'' or are foreign-owned
and operated.
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\19\ DOE's Compliance Certification Database,
www.regulations.doe.gov/certification-data/ (last accessed February
2, 2022).
\20\ California Energy Commission's Modernized Appliance
Efficiency Database System, cacertappliances.energy.ca.gov/Pages/Search/AdvancedSearch.aspx (last accessed February 2, 2022).
\21\ DOE relied on written comments submitted by AHRI in
response to the consumer furnace fan energy conservation standards
RFI published in the Federal Register on November 23, 2021. 86 FR
66465. (AHRI, No. 11, p. 7).
\22\ Panjiva: S&P Global. Available at: panjiva.com/import-export/United-States (Last access February 25, 2022).
\23\ The Dun & Bradstreet Hoovers subscription login is
accessible online at app.dnbhoovers.com/ (last accessed February 25,
2022).
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DOE initially identified 25 OEMs offering consumer furnace fans for
the domestic market. Of the 25 OEMs identified, DOE estimates that
eight companies qualify as small businesses and are not foreign-owned
and operated.
4. Description and Estimate of Compliance Requirements
In this NOPR, DOE proposes to amend the existing test procedure for
consumer furnace fans by (1) specifying testing instructions for
furnace fans incapable of operating at the required external static
pressure (``ESP''); (2) incorporating by reference the most recent
versions of industry standards, ASHRAE 103-2017 and ASHRAE 37-2009 (RA
2019), in 10 CFR 430.3; (3) defining dual-fuel furnace fans and
excluding them from the scope of appendix AA; (4) changing the term
``default airflow-control settings'' to ``specified airflow-control
settings''; (5) adding provisions to directly measure airflow; (6)
revising the ambient temperature condition allowed during testing; and
(7) assigning an allowable range of relative humidity during testing.
DOE has tentatively determined that only the proposed amendment
requiring directly measuring air flow would impact testing costs. This
amendment would impose additional testing costs if a manufacturer or
test laboratory does not already have an airflow-measuring device for
testing other HVAC equipment, or if they would need to purchase one to
specifically dedicate to testing furnace fans. DOE estimates a
[[Page 29595]]
purchase price of approximately $50,000 for an airflow-measuring device
that meets the requirements of ASHRAE 37-2009 (RA 2019). DOE estimates
that domestic small businesses would incur this one-time cost
associated with the proposed change to measure airflow directly, if
they do not already have the necessary apparatus to directly measure
airflow. This cost is not re-occurring, and DOE does not expect that
any of the proposed changes would increase the cost of performing
testing on an ongoing basis. Furthermore, DOE is not proposing to
require units that are currently certified to retest according to the
updated test procedure.
DOE identified eight small, domestic OEMs that manufacture the
products covered by this rulemaking. DOE does not have a method for
determining which manufacturers have an existing airflow-measuring
device that meets the requirements of ASHRAE 37-2009 (RA 2019). For the
cost analysis, DOE assumed all small manufacturers identified would
purchase the additional equipment. DOE estimates that the annual
revenue of these small companies range from $4.8 million to $187.4
million, with an average annual revenue of $61.8 million.\24\ Using the
$50,000 one-time cost estimate, DOE expects that the additional costs
associated with this NOPR would account for one percent or less of
annual revenue for each small business.
---------------------------------------------------------------------------
\24\ DOE relied on information from Dun & Bradstreet to estimate
the annual revenues of the eight small businesses identified. The
Dun & Bradstreet subscription login is accessible at:
app.dnbhoovers.com/ (Last accessed February 25, 2022).
---------------------------------------------------------------------------
Issue 20: DOE requests comment on the number of small consumer
furnace fan manufacturers. DOE also seeks comment on DOE's estimates of
potential costs these small manufacturers may incur.
5. Identification of Duplication, Overlap, and Conflict With Other
Rules and Regulations
DOE is not aware of any rules or regulations that duplicate,
overlap, or conflict with the rule being considered in this action.
6. A Description of Significant Alternatives to the Rule
DOE considered alternative test methods and modifications to the
test procedure for consumer furnace fans, and the Department has
initially determined that there are no better alternatives than the
modifications and test procedures proposed in this Notice, in terms of
both meeting the agency's objectives and reducing burden. Specifically,
DOE is aware of and did consider several other methods of directly
measuring the airflow, such as methods outlined in AMCA 210 (e.g., the
pitot traverse method),\25\ duct-mounted airflow measurement devices,
and anemometers. However, DOE has tentatively determined that the
proposed approach to measure airflow as specified by ASHRAE 37-2009
offers the most accurate and repeatable option for direct measurement
of airflow and is not unduly burdensome.
---------------------------------------------------------------------------
\25\ See: https://www.amca.org/assets/resources/public/pdf/Education%20Modules/AMCA%20210-16.pdf. (Last accessed 4/7/2022.)
---------------------------------------------------------------------------
DOE is requesting comment on methods of direct airflow measurement
that would be appropriate alternatives to the proposal in this
document, including requesting comment on the expected measurement
accuracy and the cost of associated instrumentation.
DOE also examined relevant industry test standards, and the
Department incorporated these standards in the proposed test procedures
whenever appropriate. Specifically, this NOPR incorporates by reference
the most recent versions of industry standards, ASHRAE 103-2017 and
ASHRAE 37-2009 (RA 2019), in 10 CFR 430.3.
Additionally, manufacturers subject to DOE's energy efficiency
standards may apply to DOE's Office of Hearings and Appeals for
exception relief under certain circumstances. Manufacturers should
refer to 10 CFR part 430, subpart E, and 10 CFR part 1003 for
additional details.
C. Review Under the Paperwork Reduction Act of 1995
Manufacturers of furnace fans 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 consumer furnace
fans. (See generally 10 CFR part 429.) The collection-of-information
requirement for the certification and recordkeeping is subject to
review and approval by OMB under the Paperwork Reduction Act (``PRA'').
This requirement has been approved by OMB under OMB control number
1910-1400. Public reporting burden for the certification is estimated
to average 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 not proposing to amend the certification or reporting
requirements for furnace fans in this NOPR. Instead, DOE may consider
proposals to amend the certification requirements and reporting for
furnace fans under a separate rulemaking regarding appliance and
equipment certification. DOE will address changes to OMB Control Number
1910-1400 at that time, as necessary.
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.
D. Review Under the National Environmental Policy Act of 1969
In this NOPR, DOE proposes test procedure amendments that it
expects will be used to develop and implement future energy
conservation standards for consumer furnace fans. DOE has determined
that this proposed 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.
E. Review Under Executive Order 13132
Executive Order 13132, ``Federalism,'' 64 FR 43255 (Aug. 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
[[Page 29596]]
describing the intergovernmental consultation process it will follow in
the development of such regulations. 65 FR 13735. DOE has examined this
proposed rule and has determined that it would 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 proposed
rule. States can petition DOE for exemption from such preemption to the
extent, and based on criteria, set forth in EPCA. (42 U.S.C. 6297(d))
No further action is required by Executive Order 13132.
F. 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,
the proposed rule meets the relevant standards of Executive Order
12988.
G. Review Under the Unfunded Mandates Reform Act of 1995
Title II of the Unfunded Mandates Reform Act of 1995 (``UMRA'')
requires each Federal agency to assess the effects of Federal
regulatory actions on State, local, and Tribal governments and the
private sector. Public Law 104-4, sec. 201 (codified at 2 U.S.C. 1531).
For a proposed regulatory action likely to result in a rule that may
cause the expenditure by State, local, and Tribal governments, in the
aggregate, or by the private sector of $100 million or more in any one
year (adjusted annually for inflation), section 202 of UMRA requires a
Federal agency to publish a written statement that estimates the
resulting costs, benefits, and other effects on the national economy.
(2 U.S.C. 1532(a), (b)) The UMRA also requires a Federal agency to
develop an effective process to permit timely input by elected officers
of State, local, and Tribal governments on a proposed ``significant
intergovernmental mandate,'' and requires an agency plan for giving
notice and opportunity for timely input to potentially affected small
governments before establishing any requirements that might
significantly or uniquely 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 energy.gov/gc/office-general-counsel.
H. Review Under the Treasury and General Government Appropriations Act,
1999
Section 654 of the Treasury and General Government Appropriations
Act, 1999 (Pub. L. 105-277) requires Federal agencies to issue a Family
Policymaking Assessment for any rule that may affect family well-being.
This proposed rule would not have any impact on the autonomy or
integrity of the family as an institution. Accordingly, DOE has
concluded that it is not necessary to prepare a Family Policymaking
Assessment.
I. 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 proposed regulation
would not result in any takings that might require compensation under
the Fifth Amendment to the U.S. Constitution.
J. 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). Pursuant
to OMB Memorandum M-19-15, Improving Implementation of the Information
Quality Act (April 24, 2019), DOE published updated guidelines which
are available at www.energy.gov/sites/prod/files/2019/12/f70/DOE%20Final%20Updated%20IQA%20Guidelines%20Dec%202019.pdf. DOE has
reviewed this proposed rule under the OMB and DOE guidelines and has
concluded that it is consistent with applicable policies in those
guidelines.
K. 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 proposed 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 proposed significant energy action,
the agency must give a detailed statement of any adverse effects on
energy supply, distribution, or use should the proposal be implemented,
and of reasonable alternatives to the action and their expected
benefits on energy supply, distribution, and use.
The proposed regulatory action to amend the test procedure for
measuring the energy efficiency of consumer furnace fans 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.
L. 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.
[[Page 29597]]
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 proposed modifications to the test procedure for consumer
furnace fans would incorporate testing methods contained in certain
sections of the following commercial standards: ASHRAE 103-2017, ASHRAE
37-2009 (RA 2019), and ASHRAE 41.1-1986 (RA 2006). 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 it
was developed in a manner that fully provides for public participation,
comment, and review.) DOE will consult with both the Attorney General
and the Chairman of the FTC concerning the impact of these test
procedures on competition, prior to prescribing a final rule.
M. Description of Materials Incorporated by Reference
In this NOPR, DOE proposes to incorporate by reference the
following test standards:
(1) The test standard published by ANSI/ASHRAE, titled Method of
Testing for Annual Fuel Utilization Efficiency of Residential Central
Furnaces and Boilers, ASHRAE 103-2017. ASHRAE 103-2017 is an industry-
accepted test procedure for measuring the performance of consumer
furnaces and boilers. Copies of ASHRAE 103-2017 may be purchased from
ANSI at 1899 L Street NW, 11th Floor, Washington, DC 20036, or by going
to webstore.ansi.org/standards/ashrae/ansiashrae1032017.
(2) The test standard published by ASHRAE, titled Methods of
Testing for Rating Electrically Driven Unitary Air-Conditioning and
Heat Pump Equipment, ANSI/ASHRAE Standard 37-2009 (RA 2019). ANSI/
ASHRAE Standard 37-2009 (R 2109) is an industry-accepted test procedure
that provides a method of test for many categories of air conditioning
and heating equipment. ANSI/ASHRAE Standard 37-2009 (RA 2019) is
available on ANSI's website at webstore.ansi.org/RecordDetail.aspx?sku=ANSI%2FASHRAE+Standard+37-2009.
(3) The test standard published by AMCA, titled Laboratory Methods
of Testing Fans for Certified Aerodynamic Performance Rating, ANSI/AMCA
210-07. ANSI/AMCA 210-07 is an industry-accepted standard that
prescribes methods of testing fans and other air moving devices. ANSI/
AMCA 210-07 is available on ANSI's website at webstore.ansi.org/standards/amca/ansiamca21007.
(4) The test standard published by ASHRAE, titled Standard Methods
for Laboratory Airflow Measurement, ASHRAE 41.2-1987 (RA 1992). ASHRAE
41.2-1987 (RA 1992) is an industry-accepted standard that prescribes
pressure measurement for the calculation of airflow under laboratory
conditions. ASHRAE 41.2-1987 (RA 1992) is available on ANSI's website
at webstore.ansi.org/standards/ashrae/ansiashrae411987ra92.
The Director of the Federal Register previously approved ASHRAE
41.1-1986 (RA 2006) for incorporation by reference in the locations in
which it appears in this proposed rule's regulatory text for 10 CFR
part 430.
V. Public Participation
A. Participation in the Webinar
The time and date of the webinar meeting are listed in the DATES
section at the beginning of this document. Webinar registration
information, participant instructions, and information about the
capabilities available to webinar participants will be published on
DOE's website: www.energy.gov/eere/buildings/public-meetings-and-comment-deadlines. Participants are responsible for ensuring their
systems are compatible with the webinar software.
B. Procedure for Submitting Prepared General Statements for
Distribution
Any person who has an interest in the topics addressed in this
proposed rule, or who is representative of a group or class of persons
that has an interest in these issues, may request an opportunity to
make an oral presentation at the webinar. Such persons may submit to
[email protected]. Persons who wish to speak
should include with their request a computer file in WordPerfect,
Microsoft Word, PDF, or text (ASCII) file format that briefly describes
the nature of their interest in this rulemaking and the topics they
wish to discuss. Such persons should also provide a daytime telephone
number where they can be reached.
DOE requests persons selected to make an oral presentation to
submit an advance copy of their statements at least two weeks before
the webinar. At its discretion, DOE may permit persons who cannot
supply an advance copy of their statement to participate, if those
persons have made advance alternative arrangements with the Building
Technologies Office. As necessary, requests to give an oral
presentation should ask for such alternative arrangements.
C. Conduct of the Webinar
DOE will designate a DOE official to preside at the webinar and may
also use a professional facilitator to aid discussion. The meeting will
not be a judicial or evidentiary-type public hearing, but DOE will
conduct it in accordance with section 336 of EPCA (42 U.S.C. 6306). A
court reporter will be present to record the proceedings and prepare a
transcript. DOE reserves the right to schedule the order of
presentations and to establish the procedures governing the conduct of
the webinar. There shall not be discussion of proprietary information,
costs or prices, market share, or other commercial matters regulated by
U.S. anti-trust laws. After the webinar and until the end of the
comment period, interested parties may submit further comments on the
proceedings and any aspect of the proposed rulemaking.
The webinar will be conducted in an informal, conference style. DOE
will present a general overview of the topics addressed in this
proposed rulemaking, allow time for prepared general statements by
participants, and encourage all interested parties to share their views
on issues affecting this rulemaking. Each participant will be allowed
to make a general statement (within time limits determined by DOE),
before the discussion of specific topics. DOE will permit, as time
permits, other participants to comment briefly on any general
statements.
At the end of all prepared statements on a topic, DOE will permit
participants to clarify their statements briefly. Participants should
be prepared to answer questions by DOE and by other participants
concerning these issues. DOE representatives may also ask questions of
participants concerning other matters relevant to this proposed
rulemaking. The official conducting the webinar will accept additional
comments or questions from those attending, as time permits. The
presiding official will announce any further procedural rules or
modification of the above procedures that may be needed for the proper
conduct of the webinar.
A transcript of the webinar will be included in the docket, which
can be
[[Page 29598]]
viewed as described in the Docket section at the beginning of this
document. In addition, any person may buy a copy of the transcript from
the transcribing reporter.
D. Submission of Comments
DOE will accept comments, data, and information regarding this
proposed rule no later than the date provided in the DATES section at
the beginning of this proposed rule.\26\ Interested parties may submit
comments using any of the methods described in the ADDRESSES section at
the beginning of this document.
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\26\ DOE has historically provided a 75-day comment period for
test procedure NOPRs pursuant to the North American Free Trade
Agreement, U.S.-Canada-Mexico (``NAFTA''), Dec. 17, 1992, 32 I.L.M.
289 (1993); the North American Free Trade Agreement Implementation
Act, Public Law 103-182, 107 Stat. 2057 (1993) (codified as amended
at 10 U.S.C.A. 2576) (1993) (``NAFTA Implementation Act''); and
Executive Order 12889, ``Implementation of the North American Free
Trade Agreement,'' 58 FR 69681 (Dec. 30, 1993). However, on July 1,
2020, the Agreement between the United States of America, the United
Mexican States, and the United Canadian States (``USMCA''), Nov. 30,
2018, 134 Stat. 11 (i.e., the successor to NAFTA), went into effect,
and Congress's action in replacing NAFTA through the USMCA
Implementation Act, 19 U.S.C. 4501 et seq. (2020), implies the
repeal of E.O. 12889 and its 75-day comment period requirement for
technical regulations. Thus, the controlling laws are EPCA and the
USMCA Implementation Act. Consistent with EPCA's public comment
period requirements for consumer products, the USMCA only requires a
minimum comment period of 60 days. Consequently, DOE now provides a
60-day public comment period for test procedure NOPRs.
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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. 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 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. No faxes will be accepted.
Comments, data, and other information submitted to DOE
electronically should be provided in PDF (preferred), Microsoft Word or
Excel, WordPerfect, or text (ASCII) file format. Provide documents that
are not secured, written in English and free of any defects or viruses.
Documents should not contain special characters or any form of
encryption and, if possible, they should carry the electronic signature
of the author.
Campaign form letters. Please submit campaign form letters by the
originating organization in batches of between 50 to 500 form letters
per PDF or as one form letter with a list of supporters' names compiled
into one or more PDFs. This reduces comment processing and posting
time.
Confidential Business Information. Pursuant to 10 CFR 1004.11, any
person submitting information that he or she believes to be
confidential and exempt by law from public disclosure should submit via
email 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).
E. Issues on Which DOE Seeks Comment
Although DOE welcomes comments on any aspect of this proposal, DOE
is particularly interested in receiving comments and views of
interested parties concerning the following issues:
Issue 1: DOE requests information and data regarding the electrical
energy consumption of multi-stage furnace fans during low-stage cooling
operation, specifically in relation to single-stage furnace fans in
cooling mode.
Issue 2: DOE requests comment on its proposed definition for dual-
fuel units. DOE further requests comment on its proposal to explicitly
exclude these units from the scope of appendix AA.
Issue 3: DOE requests comment on its proposal to incorporate by
reference ASHRAE 103-2017, ASHRAE 37-2009 (RA 2019), and maintain by
reference ASHRAE 41.1-1986 (RA 2006).
Issue 4: DOE requests comment on the proposed test instructions for
furnace fans unable to complete testing at the ESP values currently
specified in appendix AA.
Issue 5: DOE requests comment on its tentative decision not to
tighten the tolerance on fuel input ratings beyond what is required in
ASHRAE 103-2017.
Issue 6: DOE requests comment on its proposal to modify the
allowable ambient temperature range in appendix AA such that for all
tests and all furnaces (i.e., both condensing and non-condensing),
ambient air temperature must be maintained between 65 [deg]F and 85
[deg]F. DOE also requests comment regarding any potential burden
associated with the change in allowable ambient temperature.
Additionally, DOE requests data of the typical ambient temperatures of
testing facilities throughout the year as well as any data on the
relationship between ambient temperature and FER.
[[Page 29599]]
Issue 7: DOE requests comment on its proposal to require
maintaining the room air RH between 20 percent and 80 percent during
FER testing, and on its tentative determination that this proposal
would decrease variability between tests. DOE also requests comment on
its tentative determination that the requirement of room air RH to be
maintained between 20 percent and 80 percent would not add burden for
manufacturers or test laboratories. DOE requests comment on whether a
tighter range for RH during testing (for example, 30 percent to 50
percent RH, which could further improve representativeness and further
increase repeatability beyond the proposed range) would be possible to
maintain without being unduly burdensome. DOE seeks data on ambient RH
values at test facilities throughout the year and any data on the
relationship between RH and FER variability.
Issue 8: DOE requests comment on its tentative conclusion that
measuring airflow directly would be more accurate and result in less
variability than the current method of calculating airflow based on
temperature rise. Additionally, DOE requests comment on its estimated
cost for an apparatus to measure airflow directly (up to $50,000). DOE
also requests comment on whether test laboratories would need to
purchase additional equipment for testing, if DOE adopts this proposal
to measure4 airflow directly, or if test laboratories generally already
have this equipment available.
Issue 9: DOE requests comment on whether it is necessary to
reference AMCA 210-2007 and ASHRAE 41.2-1987 (RA 1992) in the test
procedure instructions for constructing an airflow measuring apparatus.
Issue 10: DOE requests comment on alternative methods of direct
airflow measurement, other than using the procedures and methods for
measuring airflow specified in ASHRAE 37-2009 (RA 2019). For these
alternatives, DOE requests comment on the expected measurement
accuracy, the cost of associated instrumentation, and appropriate
associated setup and operation procedures.
Issue 11: DOE requests comment on whether requiring that the
external static pressure be measured at the location specified in
Section 6.4 of ASHRAE 37-2009, as opposed to specifying that external
static pressure taps always be placed 18 inches from the outlet, could
improve test repeatability. DOE also requests comment on whether
manufacturer facilities and other test laboratories would be able to
accommodate the added duct length during testing. Further, if test
facilities would not be able to accommodate the added duct length
during testing, DOE requests comment on whether a different length
requirement could improve test repeatability while not preventing any
existing test facilities from completing a valid test for furnace fans.
Issue 12: DOE seeks comment on its proposal to change the term
``default airflow-control settings'' to ``specified airflow-control
settings'' and to add the phrase ``unless otherwise specified within
the test procedure'' to the end of the revised term's definition.
Issue 13: DOE requests further comment on this issue of whether it
is necessary to specify that the maximum heating airflow-control
setting used during testing be one that also allows for operation
within the manufacturer-specified temperature rise range during
testing. DOE is also interested in information regarding how often
furnace fans operate outside of the manufacturer-specified temperature
rise range during FER testing under the current requirements.
Issue 14: DOE requests data and information on the methods and
granularity with which test facilities currently measure the
aforementioned variables, particularly furnace fan power
(EMax, ECirc, and EHeat). DOE also
requests comment on the intervals at which test facilities are
currently capable of recording these measurements with their current
instrumentation. Finally, DOE also requests information on whether
there are variables besides the fan power consumption variables for
which there are significant fluctuations in measurements that DOE
should also consider requiring be determined as an average of multiple
measurements.
Issue 15: DOE requests comment on the number of samples that should
be taken and the length of time over which data should be collected in
order for a representative average to be achieved. DOE also requests
comment on the associated costs, if any, to upgrade measurement
instruments or software to be able to collect furnace fan power
consumption measurements at frequencies of once per second, once per
minute, once per 5 minutes, and/or other recommended sampling
frequencies.
Issue 16: DOE requests comment on its proposals to add definitions
to certain variables and constants in the airflow equation and change
the conversion factor from (kBtu/h)/W to (Btu/h)/W in the event that
DOE were to decide not to adopt the proposal to directly measure
airflow in the final rule. DOE seeks further comment regarding its
proposal to redesignate the variable for relative humidity from ``W''
to ``q.''
Issue 17: DOE requests comment, specifically from manufacturers and
third-party test laboratories, on whether costs would be incurred as a
result of the proposals in this NOPR to require measuring airflow
directly; and if so, the total incurred cost expected for each test
facility.
Issue 18: DOE requests comment on the impact and associated costs
of the proposed amendments.
Issue 19: DOE requests comment on the benefits and burdens of the
proposed updates and additions to industry standards referenced in the
test procedure for consumer furnace fans.
Issue 20: DOE requests comment on the number of small consumer
furnace fan manufacturers. DOE also seeks comment on DOE's estimates of
potential costs these small manufacturers may incur.
VI. Approval of the Office of the Secretary
The Secretary of Energy has approved publication of this notice of
proposed rulemaking and request for comment.
List of Subjects in 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 May 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 May 3, 2022.
Treena V. Garrett,
Federal Register Liaison Officer, U.S. Department of Energy.
For the reasons stated in the preamble, DOE is proposing to amend
[[Page 29600]]
part 430 of Chapter II of Title 10, Code of Federal Regulations as set
forth below:
PART 430--ENERGY CONSERVATION PROGRAM FOR CONSUMER PRODUCTS
0
1. The authority citation for part 430 continues to read as follows:
Authority: 42 U.S.C. 6291-6309; 28 U.S.C. 2461 note.
0
2. Section 430.3 is amended by:
0
a. Redesignating paragraphs (b)(3) and (4) as paragraphs (b)(4) and
(5);
0
b. Adding new paragraph (b)(3);
0
c. Redesignating paragraphs (g)(17) and (18) as (g)(19) and (20) and
paragraphs (g)(5) through (16) as paragraphs (g)(6) through (17),
respectively;
0
d. Adding new paragraph (g)(5);
0
e. In newly redesignated paragraph (g)(6), removing the text
``(Reaffirmed 2006)'' and adding, in its place, the text ``(Reaffirmed
2006) (``ASHRAE 41.1-1986 (RA 2006)'')'';
0
f. In newly redesignated paragraph (g)(9), removing the text ``appendix
F'' and adding in its place, the text ``appendices F and AA'';
0
g. In newly redesignated paragraph (g)(17), removing the text
``appendices O and AA'' and adding in its place, the text ``appendix
O''; and
0
h. Adding new paragraph (g)(18).
The revisions and additions read as follows:
Sec. 430.3 Materials incorporated by reference.
* * * * *
(b) * * *
(3) ANSI/AMCA 210-07, ANSI/ASHRAE 51-07 (``AMCA 210-2007''),
Laboratory Methods of Testing Fans for Certified Aerodynamic
Performance Rating, ANSI-approved August 17, 2007, IBR approved for
appendix AA to subpart B.
* * * * *
(g) * * *
(5) ANSI/ASHRAE Standard 37-2009 (RA 2019), (``ASHRAE 37-2009 (RA
2019)''), Methods of Testing for Rating Electrically Driven Unitary
Air-Conditioning and Heat Pump Equipment (including Errata Sheets
issued October 3, 2016 and April 25, 2019, ANSI-approved June 21; 2019,
IBR approved for appendix AA to subpart B.
* * * * *
(18) ANSI/ASHRAE Standard 103-2017, (``ASHRAE 103-2017''), Method
of Testing for Annual Fuel Utilization Efficiency of Residential
Central Furnaces and Boilers; ANSI-approved July 3, 2017, IBR approved
for appendices AA to subpart B.
* * * * *
0
3. Appendix AA to subpart B of part 430 is revised to read as follows:
Appendix AA to Subpart B of Part 430--Uniform Test Method for Measuring
the Energy Consumption of Furnace Fans
0. Incorporation by Reference
DOE incorporated by reference in Sec. 430.3, the entire
standard for ASHRAE 103-2017, ASHRAE 37-2009 (RA 2019), ASHRAE 41.1-
1986 (RA 2006), AMCA 210-07, and ASHRAE 41.2-1987 (RA 1992). In
cases where there is a conflict, the language of the test procedure
in this appendix takes precedence over the incorporated standards.
Only enumerated provisions of AMCA 210-07 and ASHRAE 41.2-1987 (RA
1992) are applicable to this appendix, as follows:
0.1 AMCA 210-07
(i) Figure 12--Outlet Chamber Setup--Multiple Nozzles in Chamber
0.2 ASHRAE 41.2-1987 (RA 1992)
(i) Section 5.2--Test Ducts, Section 5.2.2--Mixers, 5.2.2.1--
Performance of Mixers (excluding Figures 11 and 12 and Table 1);
(ii) Figure 14--Outlet Chamber Setup for Multiple Nozzles in
Chamber
1. Scope. This appendix covers the test requirements used to
measure the energy consumption of fans used in weatherized and non-
weatherized gas furnaces, oil furnaces, electric furnaces, and
modular blowers. This appendix does not apply to furnace fans used
in dual-fuel units.
2. Definitions. Definitions include the definitions as specified
in Section 3 of ASHRAE 103-2017 and the following additional
definitions, some of which supersede definitions found in ASHRAE
103-2017:
2.1. Active mode means the condition in which the product in
which the furnace fan is integrated is connected to a power source
and circulating air through ductwork.
2.2. Airflow-control settings are programmed or wired control
system configurations that control a fan to achieve discrete,
differing ranges of airflow--often designated for performing a
specific function (e.g., cooling, heating, or constant
circulation)--without manual adjustment other than interaction with
a user-operable control such as a thermostat that meets the
manufacturer specifications for installed-use. For the purposes of
this appendix, manufacturer specifications for installed-use shall
be found in the product literature shipped with the unit.
2.3. Dual-fuel unit means a consumer product that includes both
a heat pump and a burner in a single cabinet.
2.4. External static pressure (ESP) means the difference between
static pressures measured in the outlet duct and return air opening
(or return air duct when used for testing) of the product in which
the furnace fan is integrated.
2.5. Furnace fan means an electrically-powered device used in a
consumer product for the purpose of circulating air through
ductwork.
2.6. Modular blower means a product which only uses single-phase
electric current, and which:
(a) Is designed to be the principal air circulation source for
the living space of a residence;
(b) Is not contained within the same cabinet as a furnace or
central air conditioner; and
(c) Is designed to be paired with HVAC products that have a heat
input rate of less than 225,000 Btu per hour and cooling capacity
less than 65,000 Btu per hour.
2.7. Off mode means the condition in which the product in which
the furnace fan is integrated either is not connected to the power
source or is connected to the power source but not energized.
2.8. Seasonal off switch means a switch on the product in which
the furnace fan is integrated that, when activated, results in a
measurable change in energy consumption between the standby and off
modes.
2.9. Specified airflow-control settings are the airflow-control
settings specified for installed-use by the manufacturer. For the
purposes of this appendix, manufacturer specifications for
installed-use are those specifications provided for typical consumer
installations in the product literature shipped with the product in
which the furnace fan is installed. In instances where a
manufacturer specifies multiple airflow-control settings for a given
function to account for varying installation scenarios, the highest
airflow-control setting specified for the given function shall be
used for the procedures specified in this appendix, unless otherwise
specified within this test procedure.
2.10. Standby mode means the condition in which the product in
which the furnace fan is integrated is connected to the power source
and energized, but the furnace fan is not circulating air.
2.11. Thermal stack damper means a type of stack damper that
opens only during the direct conversion of thermal energy of the
stack gases.
3. Classifications. Classifications are as specified in Section
4 of ASHRAE 103-2017.
4. Requirements. Requirements are as specified in Section 5 of
ASHRAE 103-2017. In addition, Fan Energy Rating (FER) of furnace
fans shall be determined using test data and estimated national
average operating hours pursuant to section 10.1 of this appendix.
5. Instruments. Instruments must be as specified in section 6,
not including Section 6.2, of ASHRAE 103-2017; and as specified in
section 5.1 and 5.2 of this appendix.
5.1. Temperature. Temperature measuring instruments shall meet
the provisions specified in Section 5.1 of ASHRAE 37-2009 (RA 2019),
including the references to ASHRAE 41.1-1986 (RA 2006), and shall be
accurate to within 0.75 degrees Fahrenheit (within 0.4 degrees
Celsius).
5.1.1. Outlet Air Temperature Thermocouple Grid. Outlet air
temperature shall be measured as described in Section 8.2.1.5.5 of
ASHRAE 103-2017 and illustrated in Figure 2 of ASHRAE 103-2017.
Thermocouples shall be placed downstream
[[Page 29601]]
of pressure taps used for external static pressure measurement.
5.2. Humidity. Air humidity shall be measured with a relative
humidity sensor that is accurate to within 5% relative humidity. Air
humidity shall be measured as close as possible to the inlet of the
product in which the furnace fan is installed.
6. Apparatus. The apparatus used in conjunction with the furnace
during the testing shall be as specified in Section 7 of ASHRAE 103-
2017 except for section 7.1, the second paragraph of sections
7.2.2.2, 7.2.2.5, and 7.7, and as specified in sections 6.1, 6.2,
6.3, 6.4, 6.5, 6.6, and 6.7 of this appendix.
6.1. General. The product in which the furnace fan is integrated
shall be installed in the test room in accordance with the product
manufacturer's written instructions that are shipped with the
product unless required otherwise by a specific provision of this
appendix. The apparatus described in this section is used in
conjunction with the product in which the furnace fan is integrated.
Each piece of the apparatus shall conform to material and
construction specifications and the reference standard cited. Test
rooms containing equipment shall have suitable facilities for
providing the utilities necessary for performance of the test and be
able to maintain conditions within the limits specified.
6.2. Downflow furnaces. Install the internal section of vent
pipe the same size as the flue collar for connecting the flue collar
to the top of the unit, if not supplied by the manufacturer. Do not
insulate the internal vent pipe during steady-state test described
in Section 9.1 of ASHRAE 103-2017. Do not insulate the internal vent
pipe before the cool-down and heat-up tests described in Sections
9.5 and 9.6, respectively, of ASHRAE 103-2017. If the vent pipe is
surrounded by a metal jacket, do not insulate the metal jacket.
Install a 5-ft test stack of the same cross sectional area or
perimeter as the vent pipe above the top of the furnace. Tape or
seal around the junction connecting the vent pipe and the 5-ft test
stack. Insulate the 5-ft test stack with insulation having a minimum
R-value of 7 and an outer layer of aluminum foil. (See Figure 3-E of
ASHRAE 103-2017.)
6.3. Modular Blowers. A modular blower shall be equipped with
the electric heat resistance kit that is likely to have the largest
volume of retail sales with that particular basic model of modular
blower.
6.4. Ducts and Plenums. Ducts and plenums shall be built to the
geometrical specifications in Section 7 of ASHRAE 103-2017 and
section 6.7 of this appendix. An apparatus for measuring external
static pressure shall be integrated in the plenum and test duct as
specified in Sections 6.4 of ASHRAE 37-2009 (RA 2019), excluding
specifications regarding the minimum length of the ducting and
minimum distance between the external static pressure taps and
product inlet and outlet, and Section 6.5 of ASHRAE 37-2009 (RA
2019). External static pressure measuring instruments shall be
placed between the furnace openings and any restrictions or elbows
in the test plenums or ducts. For all test configurations, external
static pressure taps shall be placed 18 inches from the outlet.
6.4.1. For tests conducted using a return air duct. Additional
external static pressure taps shall be placed 12 inches from the
product inlet. Pressure shall be directly measured as a differential
pressure as depicted in Figure 8 of ASHRAE 37-2009 (RA 2019) rather
than determined by separately measuring inlet and outlet static
pressure and subtracting the results.
6.4.2. For tests conducted without a return air duct. External
static pressure shall be directly measured as the differential
pressure between the outlet duct static pressure and the ambient
static pressure as depicted in Figure 7a of ASHRAE 37-2009 (RA
2019).
6.5. Air Filters. Air filters shall be removed.
6.6. Electrical Measurement. Only electrical input power to the
furnace fan (and electric resistance heat kit for electric furnaces
and modular blowers) shall be measured for the purposes of this
appendix. Electrical input power to the furnace fan and electric
resistance hate kit shall be sub-metered separately. Electrical
input power to all other electricity-consuming components of the
product in which the furnace fan is integrated shall not be included
in the electrical input power measurements used in the FER
calculation. If the procedures of this appendix are being conducted
at the same time as another test that requires metering of
components other than the furnace fan and electric resistance heat
kit, the electrical input power to the furnace fan and electric
resistance heat kit shall be sub-metered separately from one another
and separately from other electrical input power measurements.
6.7. Airflow Measuring Apparatus.
6.7.1. Fabricate and operate an airflow measuring apparatus as
specified in Sections 6.2 and 6.3 of ASHRAE 37-2009 (RA 2019). Place
the static pressure taps and position the diffusion baffle (settling
means) relative to the chamber inlet as indicated in Figure 12 of
AMCA 210-07 and/or Figure 14 of ASHRAE 41.2-1987 (RA 1992). When
measuring the static pressure difference across nozzles and/or
velocity pressure at nozzle throats using electronic pressure
transducers and a data acquisition system, if high frequency
fluctuations cause measurement variations to exceed the test
tolerance limits specified in Section 9.2 and Table 2 of ASHRAE 37-
2009 (RA 2019), dampen the measurement system such that the time
constant associated with response to a step change in measurement
(time for the response to change 63% of the way from the initial
output to the final output) is no longer than five seconds.
6.7.2. Connect the airflow measuring apparatus to the outlet
duct of the unit at a distance of at least 0.5 x (A x B) \1/2\
(where A and B are the duct dimensions) downstream of the outlet
pressure taps (specified in section 6.4 of this appendix).
7. Test Conditions. The testing conditions shall be as specified
in Section 8, not including Sections 8.5.2 and 8.6.1.1 of ASHRAE
103-2017; and as specified in sections 7.1 and 7.2 of this appendix.
7.1. Ambient Temperature and Humidity Conditions. During the
time required to perform all tests, maintain the room temperature
within 5 [deg]F (2.8 [deg]C) of the air temperature
value measured at the end of the steady-state performance test
(TRA). For condensing furnaces and boilers, maintain the
relative humidity within 5% of the relative humidity
measured at the end of the steady-state performance test. During all
tests, the room temperature shall not fall below 65 [deg]F (18.3
[deg]C) or exceed 85 [deg]F (29.4 [deg]C) and the relative humidity
shall not fall below 20% or exceed 80%.
7.2. Measurement of Jacket Surface Temperature (optional). The
jacket of the furnace or boiler shall be subdivided into 6-inch
squares when practical, and otherwise into 36-square-inch regions
comprising 4 in. x 9 in. or 3 in. x 12 in. sections, and the surface
temperature at the center of each square or section shall be
determined with a surface thermocouple. The 36-square-inch areas
shall be recorded in groups where the temperature differential of
the 36-square-inch area is less than 10 [deg]F for temperature up to
100 [deg]F above room temperature and less than 20 [deg]F for
temperature more than 100 [deg]F above room temperature. For forced
air central furnaces, the circulating air blower compartment is
considered as part of the duct system and no surface temperature
measurement of the blower compartment needs to be recorded for the
purpose of this test. For downflow furnaces, measure all cabinet
surface temperatures of the heat exchanger and combustion section,
including the bottom around the outlet duct, and the burner door,
using the 36 square-inch thermocouple grid. The cabinet surface
temperatures around the blower section do not need to be measured
(see Figure 3-E of ASHRAE 103-2017.)
8. Test Procedure. Testing and measurements shall be as
specified in Section 9 of ASHRAE 103-2017 except for Sections
9.1.2.1, 9.3, 9.5.1.1, 9.5.1.2.1, 9.5.1.2.2, 9.5.2.1, and Section
9.7.1; and as specified in sections 8.1 through 8.6 of this
appendix.
8.1. Direct Measurement of Off-Cycle Losses Testing Method.
[Reserved]
8.2. Measurement of Electrical Standby and Off Mode Power.
[Reserved]
8.3. Steady-State Conditions for Hot Flow Tests for Gas and Oil
Furnaces. Steady-state conditions are indicated by an external
static pressure within the range shown in Table 1 of this appendix
and a temperature variation in three successive readings, taken 15
minutes apart, of not more than any of the following:
(a) 3 [deg]F in the stack gas temperature for furnaces equipped
with draft diverters;
(b) 5 [deg]F in the stack gas temperature for furnaces equipped
with either draft hoods, direct exhaust, or direct vent systems; and
(c) 1 [deg]F in the flue gas temperature for condensing
furnaces.
8.4. Steady-state Conditions for Hot Flow Tests for Electric
Furnaces and Modular Blowers. Steady-state conditions are indicated
by an external static pressure within the range shown in Table 1 of
this appendix and a temperature variation of not more than 5 [deg]F
in the outlet air temperature in four successive temperature
readings taken 15 minutes apart.
8.5. Steady-State Conditions for Cold Flow Tests. For tests
during which the burner or
[[Page 29602]]
electric heating elements are turned off (i.e., cold flow tests),
steady-state conditions are indicated by an external static pressure
within the range shown in Table 1 of this appendix and a variation
in the difference between outlet temperature and ambient temperature
of not more than 3 [deg]F in three successive temperature readings
taken 15 minutes apart.
8.6. Fan Energy Rating (FER) Test.
8.6.1. Initial FER test conditions and maximum airflow-control
setting measurements. Measure the relative humidity (q) and dry bulb
temperature (Tdb) of the test room.
8.6.1.1. Furnace fans for which the maximum airflow-control
setting is not a specified heating airflow-control setting. The main
burner or electric heating elements shall be turned off. Adjust the
external static pressure to within the range shown in table 1 of
this appendix. Maintain these settings until steady-state conditions
are attained as specified in section 8.3, 8.4, and 8.5 of this
appendix. Measure furnace fan electrical input power
(EMax), and airflow (QMax).
8.6.1.2. Furnace fans for which the maximum airflow-control
setting is a specified heating airflow-control setting. Adjust the
main burner or electric heating element controls to the default heat
setting designated for the maximum airflow-control setting. Burner
adjustments shall be made as specified by Section 8.4.1 of ASHRAE
103-2017. Adjust the furnace fan controls to the maximum airflow-
control setting. Adjust the external static to within the range
shown in table 1 of this appendix. Maintain these settings until
steady-state conditions are attained as specified in section 8.3,
8.4, and 8.5 of this appendix and the temperature rise
([Delta]TMax) is at least 18 [deg]F. Measure furnace fan
electrical input power (EMax) and airflow
(QMax).
Table 1--Required Minimum External Static Pressure in the Maximum
Airflow-Control Setting by Installation Type
------------------------------------------------------------------------
Installation type ESP (in. wc.) *
------------------------------------------------------------------------
Units with an internal, factory-installed 0.50-0.55
evaporator coil...............................
Units designed to be paired with an evaporator 0.65-0.70
coil, but without one installed...............
Mobile home.................................... 0.30-0.35
------------------------------------------------------------------------
* Once the specified ESP has been achieved, the same outlet duct
restrictions shall be used for the remainder of the furnace fan test.
If the unit under test is unable to complete the testing (i.e., the
unit shuts down before completing a test), reduce the target ESP range
by 0.05'' w.c. and restart the test. Repeat this process until the
test can be completed.
8.6.2. Constant circulation airflow-control setting
measurements. The main burner or electric heating elements shall be
turned off. The furnace fan controls shall be adjusted to the
specified constant circulation airflow-control setting. If the
manufacturer does not specify a constant circulation airflow-control
setting in the installation and operations manual supplied with the
unit, the lowest airflow-control setting shall be used. Maintain
these settings until steady-state conditions are attained as
specified in sections 8.3, 8.4, and 8.5 of this appendix.
8.6.3. Heating airflow-control setting measurements. For single-
stage gas and oil furnaces, the burner shall be fired at the maximum
heat input rate. For single-stage electric furnaces, the electric
heating elements shall be energized at the maximum heat input rate.
For multi-stage and modulating furnaces the reduced heat input rate
settings shall be used. Burner adjustments shall be made as
specified by Section 8.4.1 of ASHRAE 103-2017. After the burner is
activated and adjusted or the electric heating elements are
energized, the furnace fan controls shall be adjusted to operate the
fan in the default heat airflow-control setting. In instances where
a manufacturer specifies multiple airflow-control settings for a
given function to account for varying installation scenarios, the
highest airflow-control setting specified for the given function
shall be used. High heat and reduced heat shall be considered
different functions for multi-stage heating units. Maintain these
settings until steady-state conditions are attained as specified in
section 8.3, 8.4, and 8.5 of this appendix and the temperature rise
([Delta]THeat) is at least 18 [deg]F. Measure furnace fan
electrical input power (EHeat), airflow
(QHeat), external static pressure (ESPHeat),
steady-state efficiency for this setting (EffySS) as
specified in Sections 11.2 and 11.3 of ASHRAE 103-2017, outlet air
temperature (THeat, Out) and temperature rise
([Delta]THeat).
9. Nomenclature. Nomenclature shall include the nomenclature
specified in Section 10 of ASHRAE 103-2017 and the following
additional variables:
CCH = annual furnace fan constant-circulation hours
ECirc = furnace fan electrical consumption at the
specified constant-circulation airflow-control setting (or minimum
airflow-control setting operating point if a default constant-
circulation airflow-control setting is not specified), in watts
EHeat = furnace fan electrical consumption in the
specified heat airflow-control setting for single-stage heating
products or the specified low-heat setting for multi-stage heating
products, in watts
EMax = furnace fan electrical consumption in the maximum
airflow-control setting, in watts
FER = fan energy rating, in watts/1000 cfm
HH = annual furnace fan heating operating hours
HCR = heating capacity ratio (nameplate reduced heat input capacity
divided by nameplate maximum input heat capacity)
MH = annual furnace fan maximum airflow hours
QIN,,k = nameplate fuel energy input rate, in Btu/h, at
specified operating conditions k, where k can be ``H'' for the
maximum heat setting or ``R'' for the reduced heat setting.
QMax = airflow at the maximum airflow-control setting, in
cfm
10. Calculation of derived results from test measurements for a
single unit. Calculations shall be as specified in Section 11 of
ASHRAE 103-2017, except for appendices B and C; and as specified in
sections 10.1 through 10.10 and Figure 1 of this appendix.
10.1. Fan Energy Rating (FER)
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The estimated national average operating hours presented in
table 2 to this appendix shall be used to calculate FER.
[[Page 29603]]
Table 2--Estimated National Average Operating Hour Values for Calculating FER
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Multi-stage or
Operating mode Variable Single-stage modulating
(hours) (hours)
----------------------------------------------------------------------------------------------------------------
Heating..................................... HH................................ 830 830/HCR
Maximum Airflow............................. MH................................ 640 640
Constant Circulation........................ CCH............................... 400 400
----------------------------------------------------------------------------------------------------------------
Where:
[GRAPHIC] [TIFF OMITTED] TP13MY22.027
[FR Doc. 2022-09808 Filed 5-12-22; 8:45 am]
BILLING CODE 6450-01-P