Energy Conservation Program for Certain Industrial Equipment: Energy Conservation Standards for Commercial Heating, Air-Conditioning, and Water-Heating Equipment
Federal Register, Volume 79 Issue 70 (Friday, April 11, 2014)
Federal Register Volume 79, Number 70 (Friday, April 11, 2014)
Proposed Rules
Pages 20114-20138
From the Federal Register Online via the Government Printing Office www.gpo.gov
FR Doc No: 2014-08214
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DEPARTMENT OF ENERGY
10 CFR Part 431
Docket No. EERE-2014-BT-STD-0015
RIN 1904-AB23
Energy Conservation Program for Certain Industrial Equipment: Energy Conservation Standards for Commercial Heating, Air-Conditioning, and Water-Heating Equipment
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of Energy.
ACTION: Notice of data availability and request for public comment.
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SUMMARY: The Energy Policy and Conservation Act of 1975 (EPCA), as amended, directs the U.S. Department of Energy (DOE) to establish energy conservation standards for certain commercial and industrial equipment, including commercial heating, air-conditioning, and water-
heating equipment. Of particular relevance here, the statute also requires that each time the corresponding consensus standard--the American Society of Heating, Refrigerating and Air-Conditioning Engineers, Inc. (ASHRAE)/Illuminating Engineering Society (IES) Standard 90.1--is amended by the industry, DOE must assess whether there is a need to update the uniform national energy conservation standards for the same equipment covered under EPCA. ASHRAE officially released an amended version of this industry standard (ASHRAE Standard 90.1-2013), on October 9, 2013, thereby triggering DOE's related obligations under EPCA. As a first step in meeting this statutory requirement, today's notice of data availability (NODA) discusses the results of DOE's analysis of the energy savings potential of amended energy conservation standards for certain types of commercial equipment covered by ASHRAE Standard 90.1. The energy savings potentials are based upon either the efficiency levels specified in the amended industry standard (i.e., ASHRAE Standard 90.1-2013) or more-stringent levels that would result in significant additional conservation of energy and are technologically feasible and economically justified. DOE is publishing this NODA to: announce the results and preliminary conclusions of DOE's analysis of potential energy savings associated with amended standards for this equipment, and request public comment on this analysis, as well as the submission of data and other relevant information.
DATES: DOE will accept written comments, data, and information regarding this NODA no later than May 12, 2014.
ADDRESSES: Any comments submitted must identify the NODA for ASHRAE Equipment and provide the docket number EERE-2014-BT-STD-0015 and/or Regulatory Information Number (RIN) 1904-AB23. Interested parties are encouraged to submit comments electronically. However, comments may be submitted by any of the following methods:
Federal eRulemaking Portal: www.regulations.gov. Follow the instructions for submitting comments.
Email: ComHeatingACWHEquip2014STD0015@ee.doe.gov. Include docket number EERE-2014-BT-STD-0015 and/or RIN number 1904-AB23 in the subject line of the message. All comments should clearly identify the name, address, and, if appropriate, organization of the commenter. Submit electronic comments in WordPerfect, Microsoft Word, PDF, or ASCII file format, and avoid the use of special characters or any form of encryption.
Postal Mail: Ms. Brenda Edwards, U.S. Department of Energy, Building Technologies Office, Mailstop EE-5B, 1000 Independence Avenue SW., Washington, DC 20585-0121. If possible, please submit all items on a compact disc (CD), in which case it is not necessary to include printed copies. (Please note that comments sent by mail are often delayed and may be damaged by mail screening processes.)
Hand Delivery/Courier: Ms. Brenda Edwards, U.S. Department of Energy, Building Technologies Office, Sixth Floor, 950 L'Enfant Plaza SW., Washington, DC 20024. Telephone: (202) 586-2945. If possible, please submit all items on a CD, in which case it is not necessary to include printed copies.
No telefacsimilies (faxes) will be accepted. For detailed instructions on submitting comments and additional information on the rulemaking process, see section IV of this document (Public Participation).
Docket: The docket is available for review at http://www.regulations.gov, including Federal Register notices, comments, and other supporting documents/materials throughout the rulemaking process. All documents in the docket are listed in the www.regulations.gov index. However, not all documents listed in the index may be publicly available, such as information that is exempt from public disclosure.
A link to the docket Web page can be found at: http://
www.regulations.gov/
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!docketDetail;D=EERE-2014-BT-STD-0015. This Web page contains a link to the docket for this notice on the www.regulations.gov site. The www.regulations.gov Web page contains simple instructions on how to access all documents, including public comments, in the docket. See section IV, ``Public Participation,'' for information on how to submit comments through www.regulations.gov.
For information on how to submit a comment or review other public comments and the docket, contact Ms. Brenda Edwards at (202) 586-2945 or by email: Brenda.Edwards@ee.doe.gov.
FOR FURTHER INFORMATION CONTACT: Ms. Ashley Armstrong, U.S. Department of Energy, Office of Energy Efficiency and Renewable Energy, Building Technologies Office, EE-5B, 1000 Independence Avenue SW., Washington, DC 20585-0121. Telephone: (202) 586-6590. Email: Ashley.Armstrong@ee.doe.gov.
Mr. Eric Stas, U.S. Department of Energy, Office of the General Counsel, GC-71, 1000 Independence Avenue SW., Washington, DC 20585-
0121. Telephone: (202) 586-9507. Email: Eric.Stas@hq.doe.gov.
SUPPLEMENTARY INFORMATION:
Table of Contents
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Introduction
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Authority
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Purpose of the Notice of Data Availability
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Background
1. ASHRAE Standard 90.1-2013
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Summary of DOE's Preliminary Assessment of Equipment for Energy Savings Analysis
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Discussion of Changes in ASHRAE Standard 90.1-2013
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Commercial Package Air-Conditioning and Heating Equipment
1. Air-Cooled Equipment
2. Water-Source Equipment
3. Packaged Terminal Air Conditioners
4. Small-Duct, High-Velocity, and Through-The-Wall Equipment
5. Single-Package Vertical Air Conditioners and Single-Package Vertical Heat Pumps
6. Consideration of a Space-Constrained Single-Package Vertical Unit Equipment Class
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Commercial Water Heaters
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Test Procedures
1. Updates to the AHRI 210/240 Test Method
2. Updates to the AHRI 340/360 Test Method
3. Updates to the AHRI 1230 Test Method
4. Updates to the ANSI Z21.47 Test Method
5. Updates to the ANSI Z21.10.3 Test Method
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Analysis of Potential Energy Savings
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Annual Energy Use
1. Small Commercial Packaged Air Conditioners and Heat Pumps
2. Water-Source Heat Pumps
3. Package Terminal Air Conditioners
4. Single-Package Vertical Air Conditioners and Heat Pumps
5. Commercial Water Heaters
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Shipments
1. Small Commercial Air Conditioners and Heat Pumps
2. Water-Source Heat Pumps
3. Packaged Terminal Air Conditioners
4. Single-Package Vertical Air Conditioners and Heat Pumps
5. Commercial Water Heaters
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Base-Case Efficiency Distribution
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Other Analytical Inputs
1. Conversion of Site Energy Savings
2. Equipment Lifetime
3. Compliance Date and Analysis Period
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Estimates of Potential Energy Savings
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Public Participation
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Submission of Comments
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Issues on Which DOE Seeks Comment
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Approval of the Office of the Secretary
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Introduction
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Authority
Title III, Part C \1\ of the Energy Policy and Conservation Act of 1975 (EPCA or the Act), Public Law 94-163 (42 U.S.C. 6311-6317, as codified), added by Public Law 95-619, Title IV, Sec. 441(a), established the Energy Conservation Program for Certain Industrial Equipment, which includes the commercial heating, air-conditioning, and water-heating equipment that is the subject of this rulemaking.\2\ In general, this program addresses the energy efficiency of certain types of commercial and industrial equipment. Relevant provisions of the Act specifically include definitions (42 U.S.C. 6311), test procedures (42 U.S.C. 6314), labelling provisions (42 U.S.C. 6315), energy conservation standards (42 U.S.C. 6313), and the authority to require information and reports from manufacturers (42 U.S.C. 6316).
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\1\ For editorial reasons, upon codification in the U.S. Code, Part C was redesignated Part A-1.
\2\ All references to EPCA in this document refer to the statute as amended through the American Energy Manufacturing Technical Corrections Act (AEMTCA), Pub. L. 112-210 (Dec. 18, 2012).
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In relevant part here, EPCA contains mandatory energy conservation standards for commercial heating, air-conditioning, and water-heating equipment. (42 U.S.C. 6313(a)) Specifically, the statute sets standards for small, large, and very large commercial package air-conditioning and heating equipment, packaged terminal air conditioners (PTACs) and packaged terminal heat pumps (PTHPs), warm-air furnaces, packaged boilers, storage water heaters, instantaneous water heaters, and unfired hot water storage tanks. Id. In doing so, EPCA established Federal energy conservation standards that generally correspond to the levels in the American Society of Heating, Refrigerating and Air-
Conditioning Engineers (ASHRAE) Standard 90.1, Energy Standard for Buildings Except Low-Rise Residential Buildings, as in effect on October 24, 1992 (i.e., ASHRAE Standard 90.1-1989), for each type of covered equipment listed in 42 U.S.C. 6313(a). The Energy Independence and Security Act of 2007 (EISA 2007) further amended EPCA by adding definitions and setting minimum standards for single-package vertical air conditioners (SPVACs) and single-package vertical heat pumps (SPVHPs), which are collectively referred to as single-package vertical units (SPVUs). (42 U.S.C. 6313(a)(10)(A)) The standards for SPVACs and SPVHPs established by EISA 2007 corresponded to the levels contained in ASHRAE Standard 90.1-2004, which originated as addendum ``d'' to Standard 90.1-2001.
In acknowledgement of technological changes that yield energy efficiency benefits, Congress directed DOE through EPCA to consider amending the existing Federal energy efficiency standard for each type of equipment listed, each time ASHRAE Standard 90.1 is amended with respect to such equipment. (42 U.S.C. 6313(a)(6)(A)) For each type of equipment, EPCA directs that, if ASHRAE Standard 90.1 is amended,\3\
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DOE must adopt amended standards at the new efficiency level in ASHRAE Standard 90.1, unless clear and convincing evidence supports a determination that adoption of a more-stringent level as a national standard would produce significant additional energy savings and be technologically feasible and economically justified. (42 U.S.C. 6313(a)(6)(A)(ii)) If DOE decides to adopt as a national standard the minimum efficiency levels specified in the amended ASHRAE Standard 90.1, DOE must establish such standard not later than 18 months after publication of the amended industry standard. (42 U.S.C. 6313(a)(6)(A)(ii)(I)) However, if DOE determines that a more-stringent standard is justified under 42 U.S.C. 6313(a)(6)(A)(ii)(II), then DOE must establish such more-stringent standard not later than 30 months after publication of the amended ASHRAE Standard 90.1. (42 U.S.C. 6313(a)(6)(B))
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\3\ Although EPCA does not explicitly define the term ``amended'' in the context of ASHRAE Standard 90.1, DOE provided its interpretation of what would constitute an ``amended standard'' in a final rule published in the Federal Register on March 7, 2007 (hereafter referred to as the ``March 2007 final rule''). 72 FR 10038. In that rule, DOE stated that the statutory trigger requiring DOE to adopt uniform national standards based on ASHRAE action is for ASHRAE to change a standard for any of the equipment listed in EPCA section 342(a)(6)(A)(i) (42 U.S.C. 6313(a)(6)(A)(i)) by increasing the energy efficiency level for that equipment type. Id. at 10042. In other words, if the revised ASHRAE Standard 90.1 leaves the standard level unchanged or lowers the standard, as compared to the level specified by the national standard adopted pursuant to EPCA, DOE does not have the authority to conduct a rulemaking to consider a higher standard for that equipment pursuant to 42 U.S.C. 6313(a)(6)(A). DOE subsequently reiterated this position in a final rule published in the Federal Register on July 22, 2009. 74 FR 36312, 36313.
However, in the AEMTCA amendments to EPCA in 2012, Congress modified several provisions related to ASHRAE Standard 90.1 equipment. In relevant part, DOE is now triggered to act whenever ASHRAE Standard 90.1's ``standard levels or design requirements under that standard'' are amended. (42 U.S.C. 6313(a)(6)(A)(i)) Furthermore, DOE is now required to conduct an evaluation of each class of covered equipment in ASHRAE Standard 90.1 ``every 6 years.'' (42 U.S.C. 6313(a)(6)(C)(i)) For any covered equipment for which more than 6 years has elapsed since issuance of the most recent final rule establishing or amending a standard for such equipment, DOE must publish either the required notice of determination that standards do not need to be amended or a NOPR with proposed standards by December 31, 2013. DOE has incorporated these new statutory mandates into its rulemaking process for covered ASHRAE 90.1 equipment.
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As a preliminary step in the process of reviewing the changes to ASHRAE Standard 90.1, EPCA directs DOE to publish in the Federal Register for public comment an analysis of the energy savings potential of amended energy efficiency standards within 180 days after ASHRAE Standard 90.1 is amended with respect to any of the covered products specified under 42 U.S.C. 6313(a). (42 U.S.C. 6313(a)(6)(A))
On October 9, 2013, ASHRAE officially released for distribution and made public ASHRAE Standard 90.1-2013.\4\ This action by ASHRAE triggered DOE's obligations under 42 U.S.C. 6313(a)(6), as outlined previously. This notice of data availability (NODA) presents the analysis of the energy savings potential of amended energy efficiency standards, as required under 42 U.S.C. 6313(a)(6)(A)(i).
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\4\ This industry standard is developed with input from a number of organizations--most prominently ASHRAE, the American National Standards Institute (ANSI), and the Illuminating Engineering Society (IES). Therefore, this document may sometimes be referred to more formally as ANSI/ASHRAE/IES Standard 90.1-2013. See www.ashrae.org for more information.
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Purpose of the Notice of Data Availability
As explained previously, DOE is publishing today's NODA as a preliminary step pursuant to EPCA's requirements for DOE to consider amended energy conservation standards for certain types of commercial equipment covered by ASHRAE Standard 90.1, whenever ASHRAE amends its standard to increase the energy efficiency level for that equipment type. Specifically, this NODA presents for public comment DOE's analysis of the potential energy savings for amended national energy conservation standards for these types of commercial equipment based on: (1) The amended efficiency levels contained within ASHRAE Standard 90.1-2013, and (2) more-stringent efficiency levels. DOE describes these analyses and preliminary conclusions and seeks input from interested parties, including the submission of data and other relevant information.
DOE is not required by EPCA to review additional changes in ASHRAE Standard 90.1-2013 for those equipment types where ASHRAE did not increase the efficiency level or change the design requirements compared to the existing Federal energy conservation standards. For those types of equipment for which efficiency levels or design requirements clearly did not change, DOE has conducted no further analysis. Therefore, DOE carefully examined the changes for such equipment in ASHRAE Standard 90.1 in order to thoroughly evaluate the amendments in ASHRAE 90.1-2013, thereby permitting DOE to determine what action, if any, is required under its statutory mandate.
Section II of this notice contains a discussion of DOE's evaluation of each ASHRAE equipment type for which energy conservation standards have been set pursuant to EPCA (``covered equipment''), in order for DOE to determine whether the amendments in ASHRAE Standard 90.1-2013 have resulted in increased efficiency levels or changes in design requirements. For covered equipment types determined to have increased efficiency levels or changes in design requirements in ASHRAE Standard 90.1-2013, DOE subjected that equipment to further analysis as discussed in section III of this NODA.
In summary, the energy savings analysis presented in this NODA is a preliminary step required under 42 U.S.C. 6313(a)(6)(A)(i). After review of the public comments on this NODA, if DOE determines that the amended efficiency levels in ASHRAE Standard 90.1-2013 have the potential for additional energy savings for types of equipment currently covered by uniform national standards, DOE will commence a rulemaking to consider amended standards, based upon either the efficiency levels in ASHRAE Standard 90.1-2013 or more-stringent efficiency levels that would be expected to result in significant additional conservation of energy and are technologically feasible and economically justified. In conducting such rulemaking, DOE will address the general rulemaking requirements for all energy conservation standards, such as the anti-backsliding provision \5\ (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(1); 42 U.S.C. 6313(a)(6)(B)(iii)(I)), the criteria for making a determination that a standard is economically justified \6\ (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(2)(B)(i)-(ii); 42 U.S.C. 6313(a)(6)(B)(ii)), and the prohibition on making unavailable existing products with performance characteristics generally available in the United States.\7\ (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(4); 42 U.S.C. 6313(a)(6)(B)(iii)(II)).
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\5\ EPCA contains what is commonly known as an ``anti-
backsliding'' provision. (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(1)) This provision mandates that the Secretary not prescribe any amended standard that either increases the maximum allowable energy use or decreases the minimum required energy efficiency of covered equipment. The AEMTCA amendments to EPCA added this requirement to Part A-1 directly at 42 U.S.C. 6313(a)(6)(B)(iii)(I).
\6\ In deciding whether a more stringent standard is economically justified, DOE must review comments on the proposed standard, and then determine whether the benefits of the standard exceed its burdens by considering the following seven factors to the greatest extent practicable:
(1) The economic impact on manufacturers and consumers subject to the standard;
(2) The savings in operating costs throughout the estimated average life of the product in the type (or class), compared to any increase in the price, initial charges, or maintenance expenses of the products likely to result from the standard;
(3) The total projected amount of energy savings likely to result directly from the standard;
(4) Any lessening of product utility or performance likely to result from the standard;
(5) The impact of any lessening of competition, as determined in writing by the Attorney General, likely to result from the standard;
(6) The need for national energy conservation; and
(7) Other factors the Secretary considers relevant.
(42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(2)(B)(i)-(ii)) The AEMTCA amendments to EPCA added this requirement to Part A-1 directly at 42 U.S.C. 6313(a)(6)(B)(ii).
\7\ The Secretary may not prescribe an amended standard if interested persons have established by a preponderance of evidence that the amended standard would likely result in unavailability in the U.S. of any covered product type or class of performance characteristics, such as reliability, features, capacities, sizes, and volumes that are substantially similar to those generally available in the U.S. at the time of the Secretary's finding. (42 U.S.C. 6316(a); 42 U.S.C. 6295(o)(4)) The AEMTCA amendments to EPCA added this requirement to Part A-1 directly at 42 U.S.C. 6313(a)(6)(B)(iii)(II).
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Background
1. ASHRAE Standard 90.1-2013
As noted previously, ASHRAE released a new version of ASHRAE Standard 90.1 on October 9, 2013. The ASHRAE standard addresses efficiency levels for many types of commercial heating, ventilating, air-conditioning (HVAC), and water-heating equipment
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covered by EPCA. ASHRAE Standard 90.1-2013 revised the efficiency levels for certain commercial equipment, but for the remaining equipment, ASHRAE left in place the preexisting levels (i.e. the efficiency levels specified in EPCA or the efficiency levels in ASHRAE Standard 90.1-2010). ASHRAE Standard 90.1-2013 did not change any of the design requirements for the commercial (HVAC) and water-heating equipment covered by EPCA.
Table I.1 shows the equipment classes (and corresponding efficiency levels) for which efficiency levels in ASHRAE Standard 90.1-2013 (for metrics included in Federal energy conservation standards) differed from the previous version of ASHRAE Standard 90.1 (i.e., ASHRAE Standard 90.1-2010). Table I.1 also displays the existing Federal energy conservation standards for those equipment classes. Section II of this document assesses each of these equipment types to determine whether the amendments in ASHRAE Standard 90.1-2013 constitute increased energy efficiency levels, which would necessitate further analysis of the potential energy savings from amended Federal energy conservation standards; the conclusions of this assessment are presented in the final column of Table I.1.
Table I.1--Federal Energy Conservation Standards and Energy Efficiency Levels in ASHRAE Standard 90.1-2013 for
Specific Types of Commercial Equipment *
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Energy Energy
efficiency efficiency Federal energy
ASHRAE equipment class ** levels in levels in conservation Energy-Savings potential
ASHRAE standard ASHRAE standard standards analysis required?
90.1-2010 90.1-2013
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Commercial Package Air-Conditioning and Heating Equipment--Air-Cooled
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Air-Cooled Air Conditioner, 3- 13.0 SEER....... 14.0 SEER....... 13.0 SEER....... Yes.
Phase, Single-Package, (as of 1/1/2015) See section II.A.1.
=17,000 and =65,000 and =7,000 and (0.300 x Cap (0.300 x Cap (0.300 x Cap See section II.A.3.
15,000 Btu/h, (as of 10/8/12). (as of 1/1/2015) .See section II.A.3.
Standard Size (New
Construction) dagger.
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Commercial Package Air-Conditioning and Heating Equipment--SDHV and TTW
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Through-the-Wall (TTW), Air- 13.0 SEER....... 12.0 SEER....... 13.0 SEER....... No.
Cooled Heat Pumps, =65,000 and See section II.A.5.
=135,000 and See section II.A.5.
=65,000 and =135,000 and 2.9 COP......... 3.0 COPH ***.... 2.9 COP......... See section II.A.5.
30,000
and 30,000 and
12 kW, >=20 gal. shel1/shel2 DaggerDagger DaggerDagger See Section II.B.
SL Dagger %/h. Dagger %/h.
DaggerDagger
, Btu/h.
Gas Storage Water Heaters, 80% Et; Q/800 + 80% Et; Q/799 + 80% Et; Q/800 + No.
>75,000 Btu/h, 105,000 Btu/h, =200,000 Btu/h, 110 V shel1/ 16.6 V shel1/ 110 Vr shel1/ See section II.A.5.
>=4,000 Btu/h/gal, >=10 gal. shel2 SL shel2 SL shel2 Btu/hr.
diam, Btu/h. diam, Btu/h
diamdiam.
Oil Instantaneous Water 78% Et, Q/800 + 78% Et, Q/799 + 78% Et, Q/800 + No.
Heaters, >210,000 Btu/h, 110 V shel1/ 16.6 V shel1/ 110 Vr shel1/ See section II.A.5.
>=4,000 Btu/h/gal, >=10 gal. shel2 SL shel2 SL shel2 Btu/hr.
diam, Btu/h. diam, Btu/h
diamdiam.
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* ``Et'' means thermal efficiency; ``EER'' means energy efficiency ratio; ``SEER'' means seasonal energy
efficiency ratio; ``HSPF'' means heating seasonal performance factor; ``COP'' and ``COPH'' mean coefficient of
performance; and ``Btu/h'' or ``Btu/hr'' means British thermal units per hour.
** ASHRAE Standard 90.1-2013 equipment classes may differ from the equipment classes defined in DOE's
regulations, but no loss of coverage will occur (i.e., all previously covered DOE equipment classes remained
covered equipment).
*** While ASHRAE Standard 90.1-2013 added a subscript H to COP for all heat pumps, its definition for
``coefficient of performance (COP), heat pump--heating'' has not changed. As a result, DOE believes the
subscript to be a clarifying change of nomenclature (to differentiate from the COP metric used for
refrigeration) only, rather than a change to the metric itself.
dagger ``Standard size'' refers to PTAC equipment with wall sleeve dimensions >=16 inches high or >=42 inches
wide. For DOE's purposes, this equipment class applies to standard-size equipment regardless of application
(e.g., new construction or replacement).
daggerdagger ``Cap'' means cooling capacity in kBtu/h at 95degF outdoor dry-bulb temperature.
daggerdaggerdagger This may have been an editorial error in ASHRAE 90.1-2010.
Dagger While ASHRAE Standard 90.1-2013 added this equipment class, DOE believes that equipment falling into
these classes is already covered by Federal standards, most commonly in the residential space-constrained
central air conditioning equipment class with minimum standards of 12.0 SEER for air conditioners and heat
pumps and 7.4 HSPF for heat pumps. See section II.A.5.1 of this NODA.
DaggerDagger ``V'' means rated volume in gallons; ``SL'' means standby loss.
DaggerDaggerDagger ``Vm'' means measured volume in tank.
diam ``Q'' means the nameplate input rate in Btu/hr; ``V'' means rated volume in gallons; ``SL'' means standby
loss. DOE's descriptor, ``Vr,'' also means rated volume in gallons and differs only in nomenclature.
diamdiam As explained in section II.A of this NODA, DOE believes this level was a mistake; the formula for
SI units was included instead of that for IP units.
DOE notes that ASHRAE 90.1-2013 also increased integrated energy efficiency ratio (IEER) levels for additional equipment not listed in Table I.1, including small, large, and very large air-cooled and water-
cooled air conditioners and heat pumps.\8\ However, because Federal energy conservation standards for this equipment do not use IEER as a rating metric, DOE is not triggered to review this equipment. In February 2013, DOE published a request for information (RFI) and notice of document availability for commercial air-cooled equipment. 78 FR 7296 (Feb. 1, 2013). In the RFI, DOE sought information on the merits of adopting IEER as the energy efficiency descriptor for small, large, and very large air-cooled commercial air conditioners and heat pumps. Should DOE adopt new standards using IEER as the metric, future increases in IEER levels in ASHRAE Standard 90.1-2013 as compared to the Federal energy conservation standards would trigger DOE to review its efficiency levels for that equipment?
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\8\ ASHRAE 90.1-2013 also decreased the IEER levels for small, large, and very large air-cooled variable refrigerant flow equipment; however, on December 9, 2013, ASHRAE issued errata indicating that this was an error for air conditioners. See: https://www.ashrae.org/File%20Library/docLib/StdsErrata/90-1-2013-IP_ErrataSheet_12-9-2013.pdf. DOE believes this was also an editorial error for heat pumps.
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Summary of DOE's Preliminary Assessment of Equipment for Energy Savings Analysis
DOE has reached a preliminary conclusion for each of the classes of commercial equipment in ASHRAE Standard 90.1-2013 addressed in today's NODA. For each class of commercial equipment addressed in this NODA, section II presents DOE's initial determination as to whether ASHRAE increased the efficiency level for a given type of equipment (based on a rating metric used in the relevant Federal energy conservation standards), a change that would require an energy-savings potential analysis. As DOE is not required by EPCA to review additional changes in ASHRAE Standard 90.1-2013 for those equipment types where ASHRAE did not increase the efficiency level or change the design requirements, DOE has conducted no further analysis for those types of equipment where efficiency levels clearly did not change. Additionally, for equipment where ASHRAE Standard 90.1-2013 has increased the level in comparison to the previous version of ASHRAE Standard 90.1, but the level does not exceed the current Federal standard level, DOE does not have the authority to conduct a rulemaking to consider a higher standard for that equipment pursuant to 42 U.S.C. 6313(a)(6)(A) and did not perform a potential energy-savings analysis. For those equipment classes where ASHRAE increased the efficiency level (in comparison to the Federal standard), DOE performed an analysis of the energy-savings potential, unless DOE found no equipment in the market in that equipment class (in which case there is no potential for energy savings).\9\
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\9\ In the case where there is no equipment on the market or insufficient data for analysis, DOE would adopt the ASHRAE level, as required by the statute, without further analysis.
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Based upon DOE's analysis, as discussed in section II, DOE has determined that ASHRAE increased the efficiency level for the following equipment categories:
Small Three-Phase Commercial Air-Cooled Air Conditioners (Single Package Only) and Heat Pumps (Single Package and Split System) Water Source Heat Pumps;
Packaged Terminal Air Conditioners (Standard Size);
Single Package Vertical Air Conditioners and Heat Pumps; and
Oil-Fired Storage Water Heaters.
For most of those equipment classes, DOE found that equipment is available on the market and adequate information exists to reasonably estimate potential energy savings, and DOE performed an analysis of the energy-savings potential, which is described in section III. However, when DOE did not find equipment available on the market (such as for SPVACs and SPVHPs with capacities above 135,000 Btu/h), DOE did not perform a potential energy savings analysis.
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Discussion of Changes in ASHRAE Standard 90.1-2013
Before beginning an analysis of the potential energy savings that would result from adopting the efficiency levels specified by ASHRAE Standard 90.1-2013 or more-stringent efficiency levels, DOE first determined whether or not the ASHRAE Standard 90.1-2013 efficiency levels actually represented an increase in efficiency above the current Federal standard levels or whether ASHRAE Standard 90.1-2013 adopted new design requirements, thereby triggering DOE action. This section contains a discussion of each equipment class where the ASHRAE Standard 90.1-2013 efficiency level differs from the ASHRAE Standard 90.1-2010 level (based on a rating metric used in the relevant Federal energy conservation standards),\10\ along with DOE's preliminary conclusion regarding the appropriate action to take with respect to that equipment. In addition, this section contains a discussion of DOE's determination with regard to newly created equipment classes in ASHRAE Standard 90.1-2013 (i.e., nonweatherized, space-constrained SPVAC and SPVHP). Finally, this section provides a brief discussion of the test procedure updates contained in ASHRAE Standard 90.1-2013.
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\10\ ASHRAE Standard 90.1-2013 did not change any of the design requirements for the commercial (HVAC) and water-heating equipment covered by EPCA, so this potential category of change is not discussed in this section.
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Commercial Package Air-Conditioning and Heating Equipment
EPCA, as amended, defines ``commercial package air conditioning and heating equipment'' as air-cooled, evaporatively-cooled, water-cooled, or water source (not including ground water source) electrically operated, unitary central air conditioners and central air conditioning heat pumps for commercial use. (42 U.S.C. 6311(8)(A); 10 CFR 431.92) EPCA also defines ``small,'' ``large,'' and ``very large'' commercial package air conditioning and heating equipment based on the equipment's rated cooling capacity. (42 U.S.C. 6311(8)(B)-(D); 10 CFR 431.92) ``Small commercial package air conditioning and heating equipment'' means equipment rated below 135,000 Btu per hour (cooling capacity). (42 U.S.C. 6311(8)(B); 10 CFR 431.92) ``Large commercial package air conditioning and heating equipment'' means equipment rated (i) at or above 135,000 Btu per hour; and (ii) below 240,000 Btu per hour (cooling capacity). (42 U.S.C. 6311(8)(C); 10 CFR 431.92) ``Very large commercial package air conditioning and heating equipment'' means equipment rated (i) at or above 240,000 Btu per hour; and (ii) below 760,000 Btu per hour (cooling capacity). (42 U.S.C. 6311(8)(D); 10 CFR 431.92)
1. Air-Cooled Equipment
The current Federal energy conservation standards for the three classes of air-cooled commercial package air conditioners and heat pumps for which ASHRAE Standard 90.1-2013 amended efficiency levels are shown in Table I.1 and can be found in DOE's regulations at 10 CFR 431.97. The Federal energy conservation standards for air-cooled air conditioners and heat pumps are differentiated based on the cooling capacity (i.e., small, large, or very large). For small equipment, there is an additional disaggregation into: (1) Equipment less than 65,000 Btu/h and (2) equipment greater than or equal to 65,000 Btu/h and less than 135,000 Btu/h. Three-phase equipment less than 65,000 Btu/h, although commercial equipment, is rated with the same metric as residential single-phase equipment (i.e., SEER). Unlike the current Federal energy conservation standards, ASHRAE Standard 90.1 also differentiates the equipment that is less than 65,000 Btu/h into split system and single package subcategories. Historically, ASHRAE has set equivalent efficiency levels for this equipment; however, effective January 1, 2015, ASHRAE Standard 90.1-2013 increases the efficiency level for single package air conditioners but not split system air conditioners. The increased efficiency level for single package air conditioners surpasses the current Federal energy conservation standard level for the overall equipment class, while the efficiency level for split system air conditioners meets and does not exceed the Federal energy conservation standard for the overall equipment class. ASHRAE Standard 90.1-2013 also increases the efficiency levels, effective January 1, 2015, for both single package and split system air-cooled heat pumps, for SEER and HSPF, to efficiency levels that surpass the current Federal energy conservation standard levels. ASHRAE Standard 90.1-2013 increases the HSPF level for split systems above that for single package heat pumps.
In the past, DOE has separated the equipment classes for three-
phase air conditioners and heat pumps less than 65,000 Btu/h into single package and split system classes, for a total of four classes. However, when EISA 2007 increased the efficiency levels to identical levels across single package and split system equipment, effective in 2008, DOE combined the equipment classes in the Code of Federal Regulations (CFR), resulting in only two equipment classes, one for air conditioners and one for heat pumps. Because ASHRAE has increased the standard for only single package air conditioners, and has increased the HSPF level to a more-stringent level for split system heat pumps than for single package heat pumps, and DOE is obligated to adopt, at a minimum, the increased level in ASHRAE 90.1-2013 for that equipment class, DOE proposes to re-create separate equipment classes for single package and split system equipment in the overall equipment classes of small commercial package air conditioners and heat pumps (air-cooled, three-phase) less than 65,000 Btu/h. DOE requests comment on whether it should re-create these separate equipment classes, which is identified as Issue 1 in section IV.B, ``Issues on Which DOE Seeks Comment.''
DOE conducted an analysis of the potential energy savings due to amended standards for single package air conditioners and single package and split system heat pumps (air-cooled, three-phase, less than 65,000 Btu/h), which is described in section III of this NODA. DOE did not conduct an analysis of the potential energy savings for split system air conditioners.
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2. Water-Source Equipment
The current Federal energy conservation standards for the three classes of commercial water source heat pumps for which ASHRAE Standard 90.1-2013 amended efficiency levels are shown in Table I.1 and can be found in DOE's regulations at 10 CFR 431.97. The Federal energy conservation standards for water source equipment are differentiated based on the cooling capacity. ASHRAE Standard 90.1-2013 increased the energy efficiency levels for all three equipment classes to efficiency levels that surpass the current Federal energy conservation standard levels. Therefore, DOE conducted an analysis of the potential energy savings due to amended standards for this equipment, which is described in section III of this NODA.
ASHRAE Standard 90.1-2013 also changed the name of this equipment class from ``water source'' to ``water to air, water loop.'' DOE believes this to be an editorial change only and that this new nomenclature refers to the same water source heat pump equipment covered by Federal energy conservation standards. ASHRAE also changed the descriptor for this equipment from COP to COPH. DOE believes this is also an editorial change to clarify the difference between COP for refrigeration and COP for heat pumps. DOE requests comment on whether these changes are other than editorial, which is identified as Issue 2 in section IV.B, ``Issues on Which DOE Seeks Comment.''
EPCA does not define ``water source heat pump'' other than to exclude ground-water-source units from the definition of ``commercial package air conditioning and heating equipment.'' (42 U.S.C. 6311(8)(A)) However, DOE notes that there are several related types of water-source and ground-water-source heat pumps, as shown in Table II.1. ASHRAE Standard 90.1-2013 included new nomenclature for all such types of heat pumps. DOE further notes that the vast majority of water-
source (water-to-air, water-loop) heat pump models are also rated for performance in ground-loop or ground-water heat pump applications. It is DOE's understanding that design differences of the models used in the different applications are minimal, including potentially more corrosion-resistant metal in the water coil (for open-loop systems only) and/or added insulation for ground-water or ground-loop systems. Efficiency ratings are different across these three application types primarily because of the different test conditions (ground and ground-
water-source are tested with cooler entering water). Because of the similarity in models across application, DOE believes that increased efficiency standards for water-loop applications may affect heat pumps for ground-source and ground-water applications, although they are excluded from coverage. DOE is not aware of any differences between water-source heat pumps for residential and commercial applications.
Table II.1--Nomenclature for Types of Water-Loop, Ground-Loop, and Ground-Water-Source Heat Pumps
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ASHRAE Standard 90.1-2010 ASHRAE Standard 90.1-2013 Test procedure
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Water-source (86deg entering water).. Water-to-air, water-loop.. ISO Standard 13256-1.
Ground-water-source 59deg entering Water-to-air, ground-water
water.
Ground-water source 77deg entering Brine-to-air, ground-loop.
water.
Water-source water-to-water 86deg Water-to-water, water-loop ISO Standard 13256-2.
entering water.
Water-source water-to-water 59deg Water-to-water, ground-
entering water. water.
Ground-water-source brine-to-water Brine-to-water, ground-
77deg entering water. loop.
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As noted above, DOE views these changes in nomenclature as nonsubstantive in terms of the associated standard levels. Consequently, DOE is maintaining its current requirements for these equipment classes.
However, DOE is considering adding a definition for ``water-source heat pump'' to the CFR that would include both single-phase and three-
phase units of all capacities (up to 760,000 Btu/h) and would be applicable to water-to-air heat pumps. DOE is considering adapting the definition from that in the ASHRAE handbook: \11\ ``A water-source heat pump is a single-phase or three-phase reverse-cycle heat pump that uses a circulating water loop as the heat source for heating and as the heat sink for cooling. The main components are a compressor, refrigerant-to-water heat exchanger, refrigerant-to-air heat exchanger, refrigerant expansion devices, and refrigerant reversing valve.'' DOE requests comment on this definition, which is identified as Issue 3 in section IV.B, ``Issues on Which DOE Seeks Comment.''
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\11\ 2012 ASHRAE Handbook, Heating, Ventilating, and Air-
Conditioning Systems and Equipment. ASHRAE, Atlanta, GA. Chapter 9 (Available at: https://www.ashrae.org/resources-publications/description-of-the-2012-ashrae-handbook-hvac-systems-and-equipment).
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3. Packaged Terminal Air Conditioners
EPCA defines a ``packaged terminal air conditioner'' as ``a wall sleeve and a separate unencased combination of heating and cooling assemblies specified by the builder and intended for mounting through the wall. It includes a prime source of refrigeration, separable outdoor louvers, forced ventilation, and heating availability by builder's choice of hot water, steam, or electricity.'' (42 U.S.C. 6311(10)(A); 10 CFR 431.92)
In February 2013, DOE published a notice of public meeting and availability of the Framework Document regarding energy conservation standards for packaged terminal air conditioners and heat pumps standards. 78 FR 12252 (Feb. 22, 2013). This framework was published as a first step toward meeting the six-year look back requirement specified in EISA 2007. (42 U.S.C. 6313(a)(6)(C)(i)) As part of the six-year look back, DOE expects to issue a notice of proposed rulemaking (NOPR) for PTAC and PTHP equipment that will include equipment classes for which ASHRAE Standard 90.1-2013 increased efficiency levels (i.e., standard-size PTACs), as well as those for which it did not. The PTACs/PTHPs NOPR will be issued along a timeline that meets the six-year look back requirements (for those equipment classes where DOE was not triggered), as well as either the 18 or 30 month timeline noted previously (for those equipment classes where DOE was triggered).
The current Federal energy conservation standards for the three classes of PTACs for which ASHRAE Standard 90.1-2013 amended efficiency levels are shown in Table I.1 and are found in DOE's regulations at 10 CFR 431.97. The Federal energy conservation standards for PTACs are differentiated based on the cooling capacity and physical dimensions (standard versus nonstandard size). ASHRAE Standard 90.1-2013 increased the energy efficiency levels for all three standard-size PTAC equipment classes to efficiency levels that meet those for
Page 20121
PTHPs and surpass the current Federal energy conservation standard levels for PTACs. Therefore, DOE conducted an analysis of the potential energy savings due to amended standards for standard-size PTACs, which is described in section III of this NODA.
4. Small-Duct, High-Velocity, and Through-The-Wall Equipment
EPCA does not separate small-duct high-velocity (SDHV) or through-
the-wall (TTW) heat pumps from other types of small commercial package air-conditioning and heating equipment in its definitions. (42 U.S.C. 6311(8)) Therefore, EPCA's definition of ``small commercial package air conditioning and heating equipment'' would include SDHV and TTW heat pumps.
ASHRAE Standard 90.1-2013 appeared to change some of the efficiency levels for these classes of equipment. Specifically, ASHRAE Standard 90.1-2010 had increased the cooling efficiency requirements for TTW heat pumps to 13.0 SEER in comparison to the efficiency levels of 12.0 SEER in ASHRAE Standard 90.1-2007. However, in March 2011, ASHRAE issued Proposed Addendum h for public review that would correct the minimum SEER for this equipment to 12.0 SEER, and this addendum was approved and incorporated into ASHRAE Standard 90.1-2013. Therefore, this change in ASHRAE Standard 90.1-2013 was correcting an editorial error in ASHRAE Standard 90.1-2010.
For SDHV air conditioners and heat pumps, ASHRAE Standard 90.1-2013 increases the cooling efficiency requirement from 10.0 SEER to 11.0 SEER. It also includes a heating efficiency requirement for SDHV heat pumps of 6.8 HSPF, which was present in ASHRAE 90.1-2007 but not ASHRAE 90.1-2010 (which DOE also thought to be an editorial error). These changes were made through Addendum bj to ASHRAE 90.1-2010, which noted that the previously adopted Addendum j to ASHRAE Standard 90.1-2010 had deleted the SDHV equipment class entirely because all SDHV models sold were single-phase residential products, but that Addendum bj was re-
establishing the equipment class because manufacturers had expressed an intention to introduce three-phase equipment to the market. In addition, Addendum bj noted that it contained minimum efficiency levels identical to those established by DOE for single-phase residential SDHV products.
The DOE standards for both commercial TTW and SDHV air conditioners, which are 13.0 SEER, and for heat pumps, which are 13.0 SEER and 7.7 HSPF, were established for the overall equipment category of small commercial package air-conditioning and heating equipment by EISA 2007, which amended EPCA. (42 U.S.C. 6313(a)(7)(D)) Because the ASHRAE Standard 90.1-2013 efficiency levels for TTW and SDHV equipment are less than those in the DOE standards, DOE has tentatively concluded that it is not required to take action on this equipment at this time.
5. Single-Package Vertical Air Conditioners and Single-Package Vertical Heat Pumps
EPCA, as amended, defines ``single package vertical air conditioner'' as air-cooled commercial package air conditioning and heating equipment that:
(1) is factory-assembled as a single package that:
(i) has major components that are arranged vertically;
(ii) is an encased combination of cooling and optional heating components; and
(iii) is intended for exterior mounting on, adjacent interior to, or through an outside wall;
(2) is powered by a single- or 3-phase current;
(3) may contain one or more separate indoor grilles, outdoor louvers, various ventilation options, indoor free air discharges, ductwork, wall plenum, or sleeves; and
(4) has heating components that may include electrical resistance, steam, hot water, or gas, but may not include reverse cycle refrigeration as a heating means. (42 U.S.C. 6311(22);\12\ 10 CFR 431.92)
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\12\ In the EISA 2007 amendments to EPCA, Congress renumbered several statutory definitions to accommodate new definitions. Consequently, the definition for ``harvest rate'' was moved from 42 U.S.C. 6311(21) to 42 U.S.C. 6311(22). However, in a separate provision, EISA 2007 provided for a definition of ``single package vertical air conditioner'' at 42 U.S.C. 6311(22). Similarly, EISA 2007 added a definition for ``single package vertical heat pump'' at 42 U.S.C. 6311(23), which given the other definitions present, probably should have been codified at 42 U.S.C. 6311(24). DOE has implemented these statutory provisions as if the drafting error had not occurred.
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EPCA, as amended, defines ``single package vertical heat pump'' as a single-package vertical air conditioner that
(1) uses reverse cycle refrigeration as its primary heat source; and
(2) may include secondary supplemental heating by means of electrical resistance, steam, hot water, or gas. (42 U.S.C. 6311(23); 10 CFR 431.92)
The current Federal energy conservation standards for the six classes of SPVUs for which ASHRAE Standard 90.1-2013 amended efficiency levels are shown in Table I.1 and can be found in DOE's regulations at 10 CFR 431.97. The product classes for SPVACs and SPVHPs, as well as their attendant Federal energy conservation standards, are differentiated based on cooling capacity. ASHRAE Standard 90.1-2013 increased the energy efficiency levels for all six equipment classes to efficiency levels that surpass the current Federal energy conservation standard levels. Therefore, DOE conducted an analysis of the potential energy savings due to amended standards for this equipment, which is described in section III of this NODA.
DOE reviewed the SPVU market and identified several models of SPVUs in the 65,000 Btu/h or less equipment class. However, DOE did not identify any models of SPVUs in the large category >=135,000 Btu/h and =65,000 Btu/h and =65,000 Btu/h and =65,000 Btu/h and 2O to a 0.05 inch H2O tolerance to the external static pressure test condition, and add an external static pressure equation and a tolerance to the leaving dry-bulb temperature to the IEER part-load test. 77 FR 28928, 28943.
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3. Updates to the AHRI 1230 Test Method
In 2011, AHRI published Addendum 1, updating AHRI Standard 1230-
2010. AHRI Standard 1230, Performance Rating of Variable Refrigerant Flow (VRF) Multi-Split Air-Conditioning and Heat Pump Equipment, is incorporated by reference into the DOE test procedure for variable refrigerant flow multi-split systems at 10 CFR 431.95. Although ASHRAE 90.1-2013 referenced the addenda to the 2010 version for the first time, DOE incorporated by reference AHRI 1230-2010 with Addendum 1 in a final rule for commercial heating, air-conditioning, and water heating equipment, published in the Federal Register on May 16, 2012, 77 FR 28928, 28989. Because DOE has already incorporated by reference the most recent AHRI 1230 edition and addendum referenced by ASHRAE Standard 90.1-2013, DOE does not need to take action at this time.
4. Updates to the ANSI Z21.47 Test Method
In 2012, ANSI updated ANSI Z21.47, Standard for Gas-Fired Central Furnaces. DOE's test procedure for measuring the energy efficiency of gas-fired warm air furnaces incorporates by reference ANSI Z21.47-2006 at 10 CFR 431.75, but the uniform test method set out at 10 CFR 431.76 only directs one to use those procedures contained in ANSI Z21.47-2006 that are relevant to the steady-state efficiency measurement (i.e., sections 1.1, 2.1 through 2.6, 2.39, and 4.2.1 of ANSI Z21.47). As a result, DOE focused its test procedure review on the relevant sections of ANSI Z21.47
Page 20125
that DOE's test procedure references. In those sections referenced by DOE's test procedures, ANSI did not make any updates. Therefore, DOE has preliminarily determined that the changes to ANSI Z21.47-2012 are not relevant to the DOE test procedure for gas-fired warm air furnaces and, therefore, do not impact the energy efficiency ratings for gas-
fired furnaces. Consequently, no further action is required at this time. DOE seeks comments regarding this tentative conclusion. This is identified as Issue 5 in section IV.B, ``Issues on Which DOE Seeks Comment.''
5. Updates to the ANSI Z21.10.3 Test Method
In 2011, ANSI updated ANSI Z21.10.3, Gas Water Heaters, Volume III, Storage Water Heaters with Input Ratings Above 75,000 Btu Per Hour, Circulating and Instantaneous. DOE's test procedure for gas-fired water heaters incorporates by reference ANSI Z21.10.3-2011 at 10 CFR 431.105, but the uniform test method set out at 10 CFR 431.106 only directs one to use sections G1 (Method of Test for Measuring Thermal Efficiency) and G2 (Method of Test for Measuring Standby Loss) of the ANSI Z21.10.3 test procedure. Although ASHRAE 90.1-2013 referenced the 2011 version for the first time, the version was previously evaluated by DOE and adopted \21\ as part of a 7-year test procedure review (conducted pursuant to 42 U.S.C. 6314(a)(1)(A)) in a final rule for commercial heating, air-conditioning, and water heating equipment, published in the Federal Register on May 16, 2012. 77 FR 28928. In that test procedure amendment, DOE concluded that the new version would not alter the DOE test method or the energy efficiency ratings for commercial water heaters as compared to adopting ANSI Z21.10.3-2004, and it proceeded to incorporate ANSI Z21.10.3-2011 by reference. 77 FR 28928, 28944, 28996 (May 16, 2012). Because DOE has already incorporated by reference ANSI Z21.10.3-2011, the test procedure referenced by ASHRAE Standard 90.1-2013, DOE does not need to take action at this time.
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\21\ DOE also adopted a correction regarding Figures 2 and 3 in Exhibit G of ANSI Z21.10.3-2011.
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-
-
Analysis of Potential Energy Savings
As required under 42 U.S.C. 6313(a)(6)(A), DOE performed an analysis to determine the energy-savings potential of amending Federal energy conservation standard levels to the efficiency levels specified in ASHRAE Standard 90.1-2013, as well as to more-stringent efficiency levels than those specified in ASHRAE Standard 90.1-2013. As explained previously, DOE's energy-savings analysis is limited to types of equipment covered by Federal energy conservation standards for which the amended ASHRAE Standard 90.1-2013 increase the efficiency levels and for which a market exists and sufficient data are available.\22\ Based upon the conclusions reached in section II, DOE is conducting the energy-savings analysis for:
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\22\ As discussed in section II, when no products are available on the market or no reliable data exist for calculating potential energy savings, DOE did not perform an analysis. The products for which ASHRAE Standard 90.1-2013 increase the efficiency level, but for which DOE did not perform an analysis due to lack of a market or lack of data include: (1) SPVHP 65,000 to less than 135,000 Btu/h; (2) SPVAC 135,000 to less than 240,000 Btu/h; and (3) SPVHP 135,000 to less than 240,000 Btu/h. (See section II.A.5.)
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Three equipment classes of small air-cooled, three-phase commercial packaged air-conditioning and heating equipment: (1) Single-
package air conditioners less than 65,000 Btu/h, (2) single-package heat pumps less than 65,000 Btu/h, and (3) split system heat pumps less than 65,000 Btu/h;
Three equipment classes of small commercial water-source heat pumps: (1) Less than 17,000 Btu/h, (2) 17,000 to less than 65,000 Btu/h, and (3) 65,000 to less than 135,000 Btu/h;
Three equipment classes of standard size PTACs: (1) Less than 7,000 Btu/h, (2) 7,000 to 15,000 Btu/h, and (3) greater than 15,000 Btu/h;
Three equipment classes of SPVUs: (1) SPVACs less than 65,000 Btu/h, (2) SPVHPs less than 65,000 Btu/h, and (3) SPVACs 65,000 to less than 135,000 Btu/h; and
One equipment class of commercial water-heating equipment: (1) Oil-fired storage water heaters greater than 105,000 Btu/h and less than 4,000 Btu/h/gal.
The following discussion provides an overview of the energy-savings analysis conducted for these 13 classes of equipment, followed by summary results of that analysis. For each efficiency level analyzed, DOE calculated the potential energy savings to the Nation as the difference between a base-case projection (without amended standards) and the standards-case projection (with amended standards). The national energy savings (NES) refers to cumulative lifetime energy savings for equipment purchased in a 30-year period that differs by equipment (i.e., the compliance date differs by equipment class because of the ASHRAE trigger legal requirements). The analysis is based on a stock accounting method. In the standards case, equipment that is more efficient gradually replaces less-efficient equipment over time. This affects the calculation of the potential energy savings, which are a function of the total number of units in use and their efficiencies. Savings depend on annual shipments and equipment lifetime. Inputs to the energy-savings analysis are presented below, and details are available in the ASHRAE NODA technical support document (TSD) on DOE's Web site.\23\
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\23\ The ASHRAE NODA TSD is available on the Web page for ASHRAE Products at: http://www1.eere.energy.gov/buildings/appliance_standards/rulemaking.aspx?ruleid=90
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Annual Energy Use
This section describes the energy use analysis performed for each type of equipment. The Federal standard and higher efficiency levels are expressed in terms of an efficiency metric or metrics. For each equipment class, this section describes how DOE developed estimates of annual energy consumption at the baseline efficiency level and at higher levels for each equipment type. These annual unit energy consumption (UEC) estimates form the basis of the national energy savings estimates discussed in section III.E. More detailed discussion is found in the ASHRAE NODA TSD.
1. Small Commercial Packaged Air Conditioners and Heat Pumps
To estimate the UEC for each class of small commercial packaged air conditioning and heating equipment less than 65,000 Btu/h (air-cooled, three-phase), DOE began with the cooling UECs for single-phase equipment installed in commercial buildings as presented in the national impact analysis associated with the 2010 notice of public meeting and availability of preliminary technical support document for residential central air conditioners and heat pumps. (EERE-2008-BT-STD-
0006-0003). DOE believes that three-phase commercial equipment would have similar energy usage to single-phase equipment, as it would tend to be used in similar locations and in a similar manner. DOE seeks comment on this assumption, which is identified as Issue 6 in section IV.B, ``Issues on Which DOE Seeks Comment.''
In the 2010 analysis, the UECs for split and single-package systems were very similar (and therefore comparable), but UECs were available for higher efficiency levels for split systems than
Page 20126
for single-package equipment. As a result, DOE used the 2010 UECs for split systems for all equipment classes analyzed for today's NODA, including both split and single-package systems.
Although ASHRAE 90.1-2013 increased the HSPF levels for this equipment, DOE did not include heating UECs in this analysis. For commercial installations in the 2010 analysis, DOE determined that the heating UECs did not scale proportionally with HSPF. Based on these data, DOE has preliminarily determined that using available data to quantify energy savings related to increasing HSPF for small commercial heat pumps is not possible. DOE seeks data and information related to the heating energy use of commercial heat pumps, as related to HSPF, which is identified as Issue 7 in section IV.B, ``Issues on Which DOE Seeks Comment.''
Table III.1 shows the UEC estimates for the current Federal standards levels (baseline), the ASHRAE 90.1-2013 levels, and the higher efficiency levels for the three small air-cooled commercial packaged air-conditioning and heating equipment classes analyzed. DOE derived the ``max-tech'' level from the market maximum in the AHRI Certified Directory \24\ as of November 2013. However, the highest available efficiency level for split system heat pumps was only 16.2, whereas for single-package units it was 18.05. DOE believes that split system heat pumps are capable of reaching the same efficiency level as single-package units because the same technologies to increase efficiency can be employed for each type of equipment and, therefore, analyzed a ``max-tech'' level of 18.05 for both single package and split system heat pumps.
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\24\ Available at: http://www.ahridirectory.org/ahridirectory/pages/home.aspx.
Table III.1--National UEC Estimates for Air-Cooled Air Conditioners and Heat Pumps
----------------------------------------------------------------------------------------------------------------
Small three- Small three- Small three-
phase air-cooled phase air-cooled phase air-cooled
single-package single-package split system
air conditioners heat pumps heat pumps
=17,000 and >=65,000 and
=7,000 and PTAC >15,000 Btu/
h =65,000
SPVAC 105,000
Btu/h and =7,000--15,000 =7,000--15,000
Btu/h Btu/h Btu/h Btu/h Btu/h Btu/h
----------------------------------------------------------------------------------------------------------------
1998-2004 Average Shipments... 12,898 205,355 15,407 7,702 168,068 13,534
Percent....................... 3% 48% 4% 2% 40% 3%
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4. Single-Package Vertical Air Conditioners and Heat Pumps
To develop the SPVU shipments model, DOE started with 2005 shipment estimates from the Air-Conditioning and Refrigeration Institute (ARI, now AHRI) for units less than 65,000 Btu/h as published in a previous rulemaking \40\ (more recent data are not available). Table III.11 shows these data.
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\40\ U.S. Department of Energy--Office of Energy Efficiency and Renewable Energy, Technical Support Document: Energy Efficiency Program for Commercial and Industrial Equipment: Efficiency Standards for Commercial Heating, Air-Conditioning, and Water Heating Equipment Including Packaged Terminal Air-Conditioners and Packaged Terminal Heat Pumps, Small Commercial Packaged Boiler, Three-Phase Air-Conditioners and Heat Pumps =17,000 to =65,000 to 135,000 Btu/h................. 10/2015 04/2020
PTAC =7,000 to 15,000 Btu/h........................................ 01/2017 04/2020
SPVAC =65,000 to 105,000 Btu/h and =17,000 and =65,000 and =7,000 and 15,000 Btu/h
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Primary energy savings FFC energy savings
Efficiency level estimate* (quads) estimate* (quads)
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Level 1--ASHRAE--9.5 EER.................................. 0.0009 0.0009
Level 2--9.7 EER.......................................... 0.0007 0.0007
Level 3--10.0 EER......................................... 0.0022 0.0023
Level 4--10.4 EER......................................... 0.0037 0.0038
Level 5--10.8 EER......................................... 0.0053 0.0053
Page 20136
Level 6--``Max-Tech''--11.2 EER........................... 0.0068 0.0069
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* The potential energy savings for efficiency levels more stringent than those specified by ASHRAE Standard 90.1-
2013 were calculated relative to the efficiency levels that would result if ASHRAE Standard 90.1-2013
standards were adopted.
Table III.23--Potential Energy Savings Estimates for SPVAC =65,000 and 105,000 Btu/h
and
-
