[Federal Register Volume 79, Number 203 (Tuesday, October 21, 2014)]
[Proposed Rules]
[Pages 62891-62894]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-24978]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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Federal Register / Vol. 79, No. 203 / Tuesday, October 21, 2014 /
Proposed Rules
[[Page 62891]]
DEPARTMENT OF ENERGY
10 CFR Part 430
[Docket Number EERE-2014-BT-STD-0045]
Energy Conservation Program for Consumer Products: Test
Procedures and Energy Conservation Standards for Residential Water
Heaters
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Request for information (RFI).
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SUMMARY: The U.S. Department of Energy (DOE) is requesting comments,
data, and information related to solar-thermal water heating systems
where solar components are paired with electric and/or fossil fuel-
fired water heaters, which are utilized as secondary heat sources.
Although this document contains several specific topics on which DOE is
particularly interested in receiving written comment, DOE welcomes
suggestions and information from the public on any subject related to
solar water heaters.
DATES: Written comments and information are requested on or before
November 20, 2014.
ADDRESSES: Interested parties are encouraged to submit comments
electronically. However, interested persons may submit comments,
identified by docket number EERE-2014-BT-STD-0045 by any of the
following methods:
Federal eRulemaking Portal: www.regulations.gov. Follow
the instructions for submitting comments.
Email: [email protected]. Include
docket number EERE-2014-BT-STD-0045 in the subject line of the message.
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 Program, 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.
Hand Delivery/Courier: Ms. Brenda Edwards, U.S. Department
of Energy, Building Technologies Program, 6th 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.
For detailed instructions on submitting comments and additional
information on the rulemaking process, see section III. of this
document (Public Participation).
FOR FURTHER INFORMATION CONTACT: Requests for additional information
may be sent to Ms. Ashley Armstrong, U.S. Department of Energy, Office
of Energy Efficiency and Renewable Energy, Building Technologies
Program, EE-5B, 1000 Independence Avenue SW., Washington, DC 20585-
0121. Telephone: (202) 586-6590. Email: [email protected].
For information on how to submit or review public comments, contact
Ms. Brenda Edwards, U.S. Department of Energy, Office of Energy
Efficiency and Renewable Energy, Building Technologies Program,
Mailstop EE-5B, 1000 Independence Avenue SW., Washington, DC 20585-
0121. Telephone: (202) 586-2945. Email: [email protected].
SUPPLEMENTARY INFORMATION:
Table of Contents
I. Authority and Background
II. Discussion
A. Solar Water Heating Technology
B. Solar Water Heating Market
III. Public Participation
I. Authority and Background
Title III, Part B \1\ of the Energy Policy and Conservation Act of
1975 (``EPCA'' or ``the Act''), Public Law 94-163 (42 U.S.C. 6291-6309,
as codified) sets forth a variety of provisions designed to improve
energy efficiency and established the Energy Conservation Program for
Consumer Products Other Than Automobiles.\2\ These include residential
water heaters, the subject of this notice. (42 U.S.C. 6292(a)(4))
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\1\ For editorial reasons, upon codification in the U.S. Code,
Part B was redesignated as Part A.
\2\ All references to EPCA in this document refer to the statute
as amended through the American Energy Manufacturing Technical
Corrections Act (AEMTCA), Public Law 112-210 (Dec. 18, 2012).
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Under EPCA, energy conservation programs generally consist of four
parts: (1) Testing; (2) labeling; (3) establishing Federal energy
conservation standards; and (4) certification and enforcement
procedures. The testing requirements consist of test procedures that
manufacturers of covered products and equipment must use as both the
basis for certifying to DOE that their products and equipment comply
with the applicable energy conservation standards adopted pursuant to
EPCA, and for making other representations about the efficiency of
those products. (42 U.S.C. 6293(c); 42 U.S.C. 6295(s)) Similarly, DOE
must use these test requirements to determine whether the products
comply with any relevant standards promulgated under EPCA. (42 U.S.C.
6295(s))
A residential ``water heater'' is defined by EPCA as a product
which utilizes oil, gas, or electricity to heat potable water for
use outside the heater upon demand, including--
(A) storage type units which heat and store water at a
thermostatically controlled temperature, including gas storage water
heaters with an input of 75,000 Btu per hour or less, oil storage
water heaters with an input of 105,000 Btu per hour or less, and
electric storage water heaters with an input of 12 kilowatts or
less;
(B) instantaneous type units which heat water but contain no
more than one gallon of water per 4,000 Btu per hour of input,
including gas instantaneous water heaters with an input of 200,000
Btu per hour or less, oil instantaneous water heaters with an input
of 210,000 Btu per hour or less, and electric instantaneous water
heaters with an input of 12 kilowatts or less; and
(C) heat pump type units, with a maximum current rating of 24
amperes at a voltage no greater than 250 volts, which are products
designed to transfer thermal energy from one temperature level to a
higher temperature level for the purpose of heating water, including
all ancillary equipment such as fans, storage tanks, pumps, or
controls necessary for the device to perform its function. (42
U.S.C. 6291(27))
Water heaters are included in EPCA as covered products. The
amendments to EPCA effected by the National Appliance Energy
Conservation Act of 1987 (NAECA; Pub. L. 100-12)
[[Page 62892]]
established standards for the residential water heaters and directed
that DOE determine whether these standards should be amended. (42
U.S.C. 6295(e)(1); 42 U.S.C. 6295(e)(4))
On January 17, 2001, DOE published a final rule prescribing the
current Federal energy conservation standards for residential water
heaters manufactured on or after January 20, 2004, which set minimum
energy factors (EFs) that vary based on the storage volume of the water
heater, the type of energy it uses (i.e., gas, oil, or electricity),
and whether it is a storage, instantaneous, or tabletop model. 66 FR
4474; 10 CFR 430.32(d).
Table I.1 presents the current Federal energy conservation
standards for residential water heaters. The water heater standards,
set forth in 10 CFR 430.32(d), consist of minimum EF that vary based on
the rated storage volume of the water heater, the type of energy it
uses (i.e., gas, oil, or electricity), and whether it is a storage,
instantaneous, or tabletop model.
Table I.1--Current Federal Energy Conservation Standards for Residential
Water Heaters
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Energy factor as of January 20,
Product class 2004
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Gas-Fired Storage Water Heater......... EF = 0.67 - (0.0019 x Rated
Storage Volume in gallons).
Oil-Fired Storage Water Heater......... EF = 0.59 - (0.0019 x Rated
Storage Volume in gallons).
Electric Storage Water Heater.......... EF = 0.97 - (0.00132 x Rated
Storage Volume in gallons).
Tabletop Water Heater.................. EF = 0.93 - (0.00132 x Rated
Storage Volume in gallons).
Gas-Fired Instantaneous Water Heater... EF = 0.62 - (0.0019 x Rated
Storage Volume in gallons).
Instantaneous Electric Water Heater.... EF = 0.93 - (0.00132 x Rated
Storage Volume in gallons).
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On April 16, 2010, DOE published a final rule in the Federal
Register amending the energy conservation standards for residential
water heaters for a second time. 75 FR 20111. The updated standards
maintained the existing product class structure, dividing water heaters
based on the type of energy used (i.e., gas, oil, or electricity) and
whether it is a storage, instantaneous, or tabletop model, but also
differentiated standard levels for electric and gas-fired storage water
heaters based on whether the rated storage volume is greater than 55
gallons, or less than or equal to 55 gallons. Compliance with the
energy conservation standards contained in the April 2010 final rule
will be required starting on April 16, 2015.
Table I.2 presents the amended Federal energy conservation
standards for residential water heaters, which are also set forth in 10
CFR 430.32(d).
Table I.2--Amended Federal Energy Conservation Standards for Residential
Water Heaters Established by April 2010 Final Rule
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Product class Energy factor as of April 16, 2015
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Gas-Fired Storage Water Heater.... For tanks with a Rated Storage
Volume at or below 55 gallons: EF =
0.675 - (0.0015 x Rated Storage
Volume in gallons).
For tanks with a Rated Storage
Volume above 55 gallons: EF =
0.8012 - (0.00078 x Rated Storage
Volume in gallons).
Oil-Fired Storage Water Heater.... EF = 0.68 - (0.0019 x Rated Storage
Volume in gallons).
Electric Storage Water Heater..... For tanks with a Rated Storage
Volume at or below 55 gallons: EF =
0.960 - (0.0003 x Rated Storage
Volume in gallons).
For tanks with a Rated Storage
Volume above 55 gallons: EF = 2.057
- (0.00113 x Rated Storage Volume
in gallons).
Tabletop Water Heater............. EF = 0.93 - (0.00132 x Rated Storage
Volume in gallons).
Gas-Fired Instantaneous Water EF = 0.82 - (0.0019 x Rated Storage
Heater. Volume in gallons).
Instantaneous Electric Water EF = 0.93 - (0.00132 x Rated Storage
Heater. Volume in gallons).
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II. Discussion
This section briefly discusses the solar water heating systems that
are the subject of this RFI and raises the key issues on which DOE
seeks comment. As noted in section I, a residential ``water heater''
means ``a product which utilizes oil, gas, or electricity to heat
potable water.'' DOE has previously determined that water heaters that
use solar energy as the sole energy source (e.g., solar thermal
collectors without the use of a secondary heat source) are not covered
as residential water heaters. 75 FR 20111, 20126. However, many solar
water heating systems utilize electricity or gas as a secondary heat
source, and these types of solar water heating systems (with a
secondary electric or fossil fuel heat source) are the subject of this
notice.
A. Solar Water Heating Technology
Solar water heating systems consist of a solar collector to capture
heat from the sun and storage tanks that maintain the potable water
that has been heated by the solar collector. These systems typically
require some type of secondary heat source when the sun is not
available to provide adequate hot water for the residence. That heat
source could be provided within the storage tank, in a second tank that
is plumbed downstream of the solar storage tank, or by means of an
instantaneous water heater installed downstream of the solar storage
tank.
Systems can be characterized as being either ``active'' or
``passive.'' \3\ Active systems rely on pumps to circulate fluid from
the solar collectors to the storage tank. These types of systems can
pump potable water directly through the solar collector and into the
storage tank in climates where it rarely freezes (``direct circulation
systems'') or can circulate a non-freezing, heat-transfer fluid through
the collectors and a heat exchanger to transfer the heat from the
collector into the potable water (``indirect circulation systems'').
Passive solar water heating systems require no pumps, instead relying
on pressure from the water main
[[Page 62893]]
to move water through the system or on natural convection to transfer
heat to the potable water. An integral collector storage system is a
passive system in which the storage tank also serves as the collector,
with the entire storage and collection system being located outdoors in
a location where it captures sunlight. Thermosyphon systems are types
of passive solar water heating systems that rely on the fact that
heated water rises to transfer heated water from a collector to a
storage tank that is located above the collector.
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\3\ U.S. Department of Energy, ``Solar Water Heaters,'' http://energy.gov/energysaver/articles/solar-water-heaters, last accessed
October 2, 2014.
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As noted, a secondary heating method is required for times when the
sun does not provide sufficient heat to raise the water to a
temperature required by the end user. DOE is aware of storage tanks
that utilize electric resistance elements or gas burners to provide
that secondary heat. Those tanks could be part of a single tank system,
in which the heat from the solar collectors and the secondary source is
applied to the same tank of water, or a dual-tank system, in which one
tank stores water heated by the solar collectors and serves as the
supply to a second tank downstream that supplies any necessary
additional heat. Additionally, DOE is aware that instantaneous water
heaters utilizing gas or electricity can also be used to raise the
water temperature from that which is stored in the storage tank to the
end use temperature. The components that provide supplemental heat are
the primary topic on which DOE seeks information in this RFI.
DOE requests comment on design differences between storage and
instantaneous water heaters used in solar systems and those that are
used in non-solar applications in typical residences, particularly as
they are supplied by the manufacturer as opposed to modified in the
field. These water heaters could include storage tanks with heating
capability based on any fuel source, instantaneous water heaters
designed specifically for solar water heating systems, or other
technologies that may not be known to the Department.
DOE also requests comments on the heating capacity of water heaters
meant for solar water heating systems compared to those meant for non-
solar applications. Related to this question, DOE seeks comments on the
amount of hot water that the secondary heat source of a solar water
heating system can provide without a solar collector compared with
water heaters that are designed for non-solar applications.
Finally, DOE requests information on whether water heaters designed
to be a component in a solar water heating system are a direct
substitute for traditional water heating technology and whether
conventional water heaters can be directly used as a component in a
solar water heating system. Considering that some storage tanks
designed for solar water heating systems may contain built-in heat
exchangers and multiple inlet and outlet ports to accommodate both
potable water and the heat transfer fluid carrying heat from the solar
collectors, DOE also seeks comment on whether solar thermal storage
tanks can be easily modified in the field to convert them for use in a
residence without solar collectors. Likewise, DOE seeks information on
whether conventional water heaters can be easily modified for use in
solar installations. In summary, DOE seeks comment on the following
issues related to solar water heating technologies:
Issue 1. Solar water heating technologies that utilize a secondary
heating source that are currently available to the consumer.
Issue 2. Design differences between water heaters that are designed
to be part of a solar water heating system compared to those meant for
typical residences without a solar water heating system.
Issue 3. Heating rates and the amount of hot water that can be
supplied by water heaters meant to serve as a secondary heat source for
a solar collector compared to the heating rates and hot water supply
capacity water heaters.
B. Solar Water Heating Market
DOE has conducted preliminary research to investigate the solar
water heating equipment market. Based on a report by the National
Renewable Energy Laboratory (NREL),\4\ DOE distinguished between two
distinctive periods of solar water heater installations. From 1985 to
2005, when there were no tax incentives for solar water heaters, the
number of installations ranged from approximately 5,000 to 10,000
annually. Federal and State tax incentives were instituted in 2006.
Between 2006 and 2010, there were between approximately 18,000 and
33,500 solar thermal water heater systems installed annually in the
U.S.
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\4\ Hudon, K., T. Merrigan, J. Burch, and J. Maguire. Low-Cost
Solar Water Heating Research and Development Roadmap. National
Renewable Energy Laboratory. August 2012. NREL/TP-5500-54793.
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Additionally, ENERGY STAR[supreg] Unit Shipment Data \5\ reports
that in 2010, 2011, and 2012, 10,000, 10,000, and 7,000 ENERGY STAR-
qualified solar water heaters were shipped, respectively. Almost all
ENERGY STAR models are indirect forced circulation systems. However,
all available installation and shipment data do not provide information
on the types of secondary water heaters used with these systems.
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\5\ U.S. Environmental Protection Agency: ENERGY STAR, Unit
Shipment Data Archives, 2014. (Last accessed October 2014)
(Available at: http://www.energystar.gov/index.cfm?c=partners.unit_shipment_data_archives).
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DOE also examined data on the stock of solar water heaters from the
American Housing Survey (AHS) and the Energy Information
Administration's (EIA) Residential Energy Consumption Survey (RECS)
from 1990 to 2011. These data indicate a decreasing trend from around
300,000 solar water heaters installed in primary and secondary housing
units in the 1990s to approximately 150,000 or less in the 2000s. RECS
2009 reports that 135,000 solar water heaters served as the household
primary water heater. AHS reports that in 2011, 163,000 solar water
heaters served as the household primary water heater.
Based on ENERGY STAR model data,\6\ DOE determined that the
following companies manufacture solar water heaters (collector and
storage tank): A.O. Smith Corporation; Agua Del Sol, L.L.C.; EZINC
Metal San. Tic. A. S.; NY Thermal Inc.; Pacific West Solar; Integrated
Solar, LLC; and Rheem-Ruud Manufacturing. In addition, from
manufacturer literature, DOE determined that several more manufacturers
produce secondary water heaters (storage and instantaneous) used in
solar thermal water heating installations, including Bradford White,
Rinnai, and Heliodyne.\7\
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\6\ U.S. Environmental Protection Agency, ENERGY STAR Certified
Water Heaters, 2014. (Last accessed October 2013). (Available at:
http://www.energystar.gov/productfinder/product/certified-water-heaters/results).
\7\ Bradford White: http://www.bradfordwhite.com/products/solar.
Rinnai: http://www.rinnai.us/. Heliodyne: http://www.heliodyne.com/.
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Regarding the market for solar water heating systems, DOE seeks
comment on the following issues:
Issue 4. DOE seeks comment on the fractions of single tank and dual
tank solar water heating systems, and whether the secondary water
heaters used include design features that differ from conventional
residential water heaters.
Issue 5. DOE seeks comment on the manufacturers of water heaters
used in solar thermal installations. DOE also seeks input regarding the
market share of each manufacturer, and whether any of them are small
businesses.
Issue 6. DOE understands that solar water heaters may be installed
with secondary water heaters of varying rated
[[Page 62894]]
volumes (e.g., 60 gal, 80 gal, 120 gal, etc.), input capacity, and fuel
type. DOE seeks input regarding the total annual shipments of the
market for solar water heating systems that utilize secondary heat
sources, the fractions of water heaters that are used to provide
secondary water heating by rated volume, input capacity, and fuel type.
Issue 7. DOE seeks comment on any other attributes of solar water
heating systems that utilize secondary heating tanks, which distinguish
them from conventional storage or instantaneous water heaters.
III. Public Participation
DOE will accept comments, data, and information regarding this RFI
and other matters relevant to solar water heating equipment no later
than the date provided in the DATES section at the beginning of this
RFI. Interested parties may submit comments using any of the methods
described in the ADDRESSES section at the beginning of this RFI.
Instructions: All submissions received must reference the Office of
Energy Efficiency and Renewable Energy and Docket Number EERE-2014-BT-
STD-0045. No telefacsimilies (faxes) will be accepted.
Docket: The docket is available for review at www.regulations.gov,
including Federal Register notices, public meeting attendees' lists and
transcripts, comments, and other supporting documents/materials. 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/#!docketDetail;D=EERE-2014-BT-STD-0045. This Web
page contains a link to the docket for this notice on the
www.regulations.gov Web site. The www.regulations.gov Web page contains
simple instructions on how to access all documents, including public
comments, in the docket.
For information on how to submit a comment, review other public
comments and the docket, or participate in the public meeting, contact
Ms. Brenda Edwards at (202) 586-2945 or by email:
[email protected].
DOE actively encourages the participation and interaction of the
public during the comment period in each stage of the rulemaking
process. Interactions with and between members of the public provide a
balanced discussion of the issues and assist DOE in the rulemaking
process. Anyone who wishes to be added to the DOE mailing list to
receive future notices and information about the subject of this notice
should contact Ms. Brenda Edwards at (202) 586-2945, or via email at
[email protected].
Issued in Washington, DC, on October 10, 2014.
Kathleen Hogan,
Deputy Assistant Secretary for Energy Efficiency, Energy Efficiency and
Renewable Energy.
[FR Doc. 2014-24978 Filed 10-20-14; 8:45 am]
BILLING CODE 6450-01-P