[Federal Register Volume 86, Number 58 (Monday, March 29, 2021)]
[Rules and Regulations]
[Pages 16446-16480]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-05415]
[[Page 16445]]
Vol. 86
Monday,
No. 58
March 29, 2021
Part II
Department of Energy
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10 CFR Parts 429 and 430
Energy Conservation Program: Test Procedure for Room Air Conditioners;
Final Rule
Federal Register / Vol. 86, No. 58 / Monday, March 29, 2021 / Rules
and Regulations
[[Page 16446]]
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DEPARTMENT OF ENERGY
10 CFR Parts 429 and 430
[EERE-2017-BT-TP-0012]
RIN 1904-AD47
Energy Conservation Program: Test Procedure for Room Air
Conditioners
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Final rule.
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SUMMARY: On June 11, 2020, the U.S. Department of Energy (``DOE'')
issued a notice of proposed rulemaking (``NOPR'') to amend the test
procedure for room air conditioners (``room ACs''). That proposed
rulemaking serves as the basis for the final rule. Specifically, this
final rule adopts the following updates to the test procedure for room
ACs at appendix F: Incorporate by reference current versions of
applicable industry standards; establish test provisions to measure
energy use of variable-speed room ACs during a representative average
use cycle; update definitions to define key terms and support
provisions for testing variable-speed room ACs; and incorporate
specifications and minor corrections to improve the test procedure
repeatability, reproducibility, and overall readability. This final
rule does not modify the test procedures for single-speed room ACs and
does not affect the measured energy use for these models. The
provisions established to measure energy use of variable-speed room ACs
will improve the representativeness of the measured energy use of these
models.
DATES: Effective date: The effective date of this rule is April 28,
2021.
Compliance date: The final rule changes will be mandatory for
product testing starting September 27, 2021.
Incorporation by reference: The incorporation by reference of
certain publications listed in the rule is approved by the Director of
the Federal Register on April 28, 2021. The incorporation by reference
of certain other publications listed in this rulemaking were approved
by the Director of the Federal Register on March 7, 2012, and July 31,
2015.
ADDRESSES: The docket, which includes Federal Register notices, public
meeting attendee lists and transcripts, comments, and other supporting
documents/materials, is available for review at http://www.regulations.gov. All documents in the docket are listed in the
http://www.regulations.gov index. However, some documents listed in the
index, such as those containing information that is exempt from public
disclosure, may not be publicly available.
A link to the docket web page can be found at https://www.regulations.gov/docket?D=EERE-2017-BT-TP-0012. The docket web page
contains instructions on how to access all documents, including public
comments, in the docket.
For further information on how to review the docket contact the
Appliance and Equipment Standards Program staff at (202) 287-1445 or by
email: ApplianceStandardsQuestions@ee.doe.gov.
FOR FURTHER INFORMATION CONTACT: Mr. Bryan Berringer, 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) 586-0371. Email:
ApplianceStandardsQuestions@ee.doe.gov.
Ms. Sarah Butler, U.S. Department of Energy, Office of the General
Counsel, GC-33, 1000 Independence Avenue SW, Washington, DC 20585-0121.
Telephone: (202) 586-1777. Email: Sarah.Butler@hq.doe.gov.
SUPPLEMENTARY INFORMATION: DOE maintains previously approved
incorporation by references and incorporates by reference the following
industry standards into title 10, Code of Federal Regulations
(``CFR''), part 430:
Association of Home Appliance Manufacturers (``AHAM'') RAC-1-2020,
(``AHAM RAC-1-2020''), ``Room Air Conditioners;''
American National Standards Institute (``ANSI'')/American Society
of Heating, Refrigerating, and Air-Conditioning Engineers (``ASHRAE'')
Standard 16-2016, (``ANSI/ASHRAE Standard 16-2016''), ``Method of
Testing for Rating Room Air Conditioners, Packaged Terminal Air
Conditioners, and Packaged Terminal Heat Pumps for Cooling and Heating
Capacity;'' ANSI approved October 31, 2016.
ANSI/ASHRAE Standard 41.1-2013, (``ANSI/ASHRAE Standard 41.1''),
``Standard Method for Temperature Measurement;'' ANSI approved January
30, 2013.
ANSI/ASHRAE Standard 41.2-1987 (RA 1992), (``ANSI/ASHRAE Standard
41.2-1987 (RA 1992)''), ``Standard Methods for Laboratory Airflow
Measurement;'' ANSI reaffirmed April 20, 1992.
ANSI/ASHRAE Standard 41.3-2014, (``ANSI/ASHRAE Standard 41.3-
2014''), ``Standard Methods for Pressure Measurement;'' ANSI approved
July 3, 2014.
ANSI/ASHRAE Standard 41.6-2014, (``ANSI/ASHRAE Standard 41.6-
2014''), ``Standard Method for Humidity Measurement;'' ANSI approved
July 3, 2014.
ANSI/ASHRAE Standard 41.11-2014, (``ANSI/ASHRAE Standard 41.11-
2014''), ``Standard Methods for Power Measurement;'' ANSI approved July
3, 2014.
International Electrotechnical Commission (``IEC'') Standard 62301,
(``IEC Standard 62301 Second Edition''), ``Household electrical
appliances--Measurement of standby power, (Edition 2.0, 2011-01)''.
Copies of AHAM RAC-1-2020 can be obtained from the Association of
Home Appliance Manufacturers at https://www.aham.org/ht/d/Store/.
Copies of ANSI/ASHRAE Standard 16-2016, ANSI/ASHRAE Standard 41.1-2013,
ANSI/ASHRAE Standard 41.2-1987, ANSI/ASHRAE Standard 41.3-2014, ANSI/
ASHRAE Standard 41.6-2014, and ANSI/ASHRAE Standard 41.11-2014 can be
obtained from the American National Standards Institute at https://webstore.ansi.org/. Copies of IEC Standard 62301 can be obtained from
http://webstore.iec.ch.
See section IV.N of this document for additional information on
these standards.
Table of Contents
I. Authority and Background
A. Authority
B. Background
II. Synopsis of the Final Rule
III. Discussion
A. Room Air Conditioner Definition
B. Industry Test Standards
1. AHAM RAC-1
2. ANSI/ASHRAE Standard 16
3. ANSI/ASHRAE Standards 41.1, 41.2, 41.3, 41.6, and 41.11
C. Variable-Speed Room Air Conditioner Test Procedure
1. Methodology
2. Test Conditions
3. Variable-Speed Compressor Operation
4. Capacity and Electrical Power Adjustment Factors
5. Cycling Loss Factors
6. Test Condition Weighting Factors
7. Weighted CEER and Performance Adjustment Factor
8. Air-Enthalpy Test Alternative
9. Product Specific Reporting Provisions
10. Estimated Annual Operating Cost Calculation
D. Definitions
1. Key Terms
2. Compressor Speeds
E. Active Mode Testing
1. Cooling Mode
2. Heating Mode
3. Off-Cycle Mode
F. Standby Modes and Off Mode
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1. Referenced Standby Mode and Off Mode Test Standard
G. Network Functionality
H. Demand Response
I. Combined Energy Efficiency Ratio
J. Certification and Verification Requirements
K. Reorganization of Calculations in 10 CFR 430.23
L. Effective Date, Compliance Date and Waivers
M. Test Procedure Costs and Impact
1. Appendix F
2. Additional Amendments
IV. Procedural Issues and Regulatory Review
A. Review Under Executive Order 12866
B. Review Under the Regulatory Flexibility Act
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. Congressional Notification
N. Description of Materials Incorporated by Reference
V. Approval of the Office of the Secretary
I. Authority and Background
Room ACs are included in the list of ``covered products'' for which
DOE is authorized to establish and amend energy conservation standards
and test procedures. (42 U.S.C. 6292(a)(2)) DOE's energy conservation
standards and test procedure for room ACs are currently prescribed at
10 CFR 430.32(b) and 10 CFR 430.23(f), respectively. The following
sections discuss DOE's authority to establish test procedures for room
ACs and relevant background information regarding DOE's consideration
of test procedures for this product.
A. Authority
The Energy Policy and Conservation Act, as amended (``EPCA''),\1\
authorizes DOE to regulate the energy efficiency of a number of
consumer products and certain industrial equipment. (42 U.S.C. 6291-
6317) Title III, Part B \2\ of EPCA established the Energy Conservation
Program for Consumer Products Other Than Automobiles, which sets forth
a variety of provisions designed to improve energy efficiency. These
products include room ACs, the subject of this document. (42 U.S.C.
6292(a)(2))
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\1\ All references to EPCA in this document refer to the statute
as amended through Energy Act of 2020, Public Law 116-260 (Dec. 27,
2020).
\2\ For editorial reasons, upon codification in the U.S. Code,
Part B was redesignated Part A.
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The energy conservation program under EPCA consists essentially of
four parts: (1) Testing, (2) labeling, (3) Federal energy conservation
standards, and (4) certification and enforcement procedures. Relevant
provisions of EPCA specifically include definitions (42 U.S.C. 6291),
test procedures (42 U.S.C. 6293), labeling provisions (42 U.S.C. 6294),
energy conservation standards (42 U.S.C. 6295), and the authority to
require information and reports from manufacturers (42 U.S.C. 6296).
The testing requirements consist of test procedures that
manufacturers of covered products must use as the basis for (1)
certifying to DOE that their products comply with the applicable energy
conservation standards adopted under EPCA (42 U.S.C. 6295(s)), and (2)
making representations about the efficiency of those products (42
U.S.C. 6293(c)). Similarly, DOE must use these test procedures to
determine whether the products comply with any relevant standards
promulgated under EPCA. (42 U.S.C. 6295(s))
Federal energy efficiency requirements for covered products
established under EPCA generally supersede State laws and regulations
concerning energy conservation testing, labeling, and standards. (42
U.S.C. 6297) DOE may, however, grant waivers of Federal preemption for
particular State laws or regulations, in accordance with the procedures
and other provisions of EPCA. (42 U.S.C. 6297(d))
Under 42 U.S.C. 6293, EPCA sets forth the criteria and procedures
DOE must follow when prescribing or amending test procedures for
covered products. EPCA provides that any test procedures prescribed or
amended under this section shall be reasonably designed to produce test
results which measure energy efficiency, energy use or estimated annual
operating cost of a covered product during a representative average use
cycle or period of use and shall not be unduly burdensome to conduct.
(42 U.S.C. 6293(b)(3))
EPCA also requires that, at least once every 7 years, DOE evaluate
test procedures for each type of covered product, including room ACs,
to determine whether amended test procedures would more accurately or
fully comply with the requirements of 42 U.S.C. 6293(b)(3). (42 U.S.C.
6293(b)(1)(A)) If the Secretary determines, on his own behalf or in
response to a petition by any interested person, that a test procedure
should be prescribed or amended, the Secretary shall promptly publish
in the Federal Register proposed test procedures and afford interested
persons an opportunity to present oral and written data, views, and
arguments with respect to such procedures. The comment period on a
proposed rule to amend a test procedure shall be at least 60 days and
may not exceed 270 days. In prescribing or amending a test procedure,
the Secretary shall take into account such information as the Secretary
determines relevant to such procedure, including technological
developments relating to energy use or energy efficiency of the type
(or class) of covered products involved. (42 U.S.C. 6293(b)(2)) If DOE
determines that test procedure revisions are not appropriate, DOE must
publish its determination not to amend the test procedures. DOE is
publishing this final rule in satisfaction of the 7-year review
requirement specified in EPCA. (42 U.S.C. 6293(b)(1)(A))
In addition, EPCA requires that DOE amend its test procedures for
all covered products to integrate measures of standby mode and off mode
energy consumption into the overall energy efficiency, energy
consumption, or other energy descriptor, unless the current test
procedure already incorporates the standby mode and off mode energy
consumption, or if such integration is technically infeasible. (42
U.S.C. 6295(gg)(2)(A)) If an integrated test procedure is technically
infeasible, DOE must prescribe separate standby mode and off mode
energy use test procedures for the covered product, if a separate test
is technically feasible. (Id.) Any such amendment must consider the
most current versions of the International Electrotechnical Commission
(``IEC'') Standard 62301 \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, Methods of measurement for the power consumption
of audio, video, and related equipment (Edition 3.0, 2011-04).
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B. Background
DOE's existing test procedure for room ACs appears at Title 10 of
the CFR part 430, subpart B, appendix F (``Uniform Test Method for
Measuring the Energy Consumption of Room Air Conditioners'' (``appendix
F'')), and the room AC performance metric calculations are codified at
10 CFR 430.23(f). DOE most recently amended the test procedure for room
ACs in a final rule published on January 6, 2011, (hereafter the
``January 2011 Final Rule''), which added a test procedure to measure
standby mode and off mode
[[Page 16448]]
power and to introduce a new combined efficiency metric, Combined
Energy Efficiency Ratio (``CEER''), that accounts for energy
consumption in active mode, standby mode, and off mode. 76 FR 971.
The previous room AC test procedure incorporates by reference three
industry test methods: (1) American National Standards Institute
(``ANSI'')/Association of Home Appliance Manufacturers (``AHAM'') RAC-
1-2008, ``Room Air Conditioners'' (``ANSI/AHAM RAC-1-2008''),\5\ (2)
ANSI/American Society of Heating, Refrigerating, and Air-Conditioning
Engineers (``ASHRAE'') Standard 16-1983 (RA 2009), ``Method of Testing
for Rating Room Air Conditioners and Packaged Terminal Air
Conditioners'' (``ANSI/ASHRAE Standard 16-2009''),\6\ and (3) IEC
Standard 62301, ``Household electrical appliances--Measurement of
standby power (first edition June 2005)'' (``IEC Standard 62301 First
Edition'').\7\
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\5\ Copies can be purchased from http://webstore.ansi.org.
\6\ Copies can be purchased from http://www.techstreet.com.
\7\ Copies can be purchased from http://webstore.iec.ch.
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On May 8, 2019, DOE published a Decision and Order, granting a
waiver for certain room AC models with variable-speed capabilities in
response to a petition from LG Electronic USA, Inc. (``LG''). 84 FR
20111 (``LG Waiver''). As required under the waiver, the specified LG
variable-speed room ACs must be tested at four different outdoor
temperatures instead of a single outdoor temperature, with the unit
compressor speed fixed at each temperature. This approach for the
alternate test procedure was derived from the current DOE test
procedure for central air conditioners (10 CFR part 430, subpart B,
appendix M (``appendix M'')). The LG Waiver provides definitions for
each fixed compressor speed, adjusts the annual energy consumption and
operating cost calculations that provide the basis for the information
presented to consumers on the EnergyGuide Label, and requires that
compressor speeds be set in accordance with instructions submitted to
DOE by LG on April 2, 2019.\8\ 84 FR 20111, 20118-20121.
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\8\ While the instructions provided by LG on April 2, 2019 are
listed in the docket for this rulemaking, they were marked as
confidential and were treated accordingly.
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On May 26, 2020, DOE published a Decision and Order, granting a
waiver to GD Midea Air Conditioning Equipment Co. LTD. (``Midea'') for
six variable-speed basic models with the condition that Midea must test
and rate these models according to an alternate test procedure that is
substantively consistent with that prescribed by in the LG Waiver, and
report product-specific information that reflects the alternate test
procedure. 85 FR 31481 (``Midea Waiver'').
On June 11, 2020, DOE published a notice of proposed rulemaking
(``June 2020 NOPR'') proposing amendments to the test procedures for
room ACs to: (1) Update to the latest versions of industry test methods
that are incorporated by reference; (2) adopt new testing provisions
for variable-speed room ACs that reflect the relative efficiency gains
at reduced cooling loads; (3) adopt new definitions consistent with
these two proposed amendments; and (4) provide specifications and minor
corrections to improve the test procedure repeatability,
reproducibility, and overall readability. 85 FR 35700.
DOE received comments in response to the June 2020 NOPR from the
interested parties listed in Table II.1.
Table II.1--June 2020 NOPR Written Comments
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Commenter(s) Reference in this NOPR Commenter type
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Association of Home Appliance Manufacturers.......... AHAM........................ Trade Association.
California Investor-Owned Utilities.................. California IOUs............. Utility.
Appliance Standards Awareness Project (``ASAP''), Joint Commenters............ Efficiency Organizations.
American Council for an Energy-Efficient Economy
(``ACEEE''), Natural Resources Defense Council
(``NRDC'').
Northwest Energy Efficiency Alliance................. NEAA........................ Efficiency Organization.
Keith Rice........................................... Rice........................ Consultant.
GE Appliances, a Haier Company....................... GEA......................... Manufacturer.
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Subsequent to the publication of the June 2020 NOPR, on September
23, 2020, DOE granted GE Appliances, a Haier Company (``GEA)'' an
interim waiver from the room AC test procedure for the 18 basic models
listed in GEA's petition, using an alternate test procedure consistent
with that granted to Midea in the Midea Waiver. 85 FR 59770. (``GEA
Interim Waiver'')
Additionally, on February 14, 2020, DOE published its updated
Process Rule to improve the internal framework for establishing new
energy efficiency regulations, with the goal of increasing
transparency, accountability, and certainty for stakeholders. 85 FR
8626. As required under the updated Process Rule, DOE will adopt
industry test standards as DOE test procedures for covered products and
equipment, 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 equipment during a representative average use
cycle. Section 8(c) of 10 CFR part 430 subpart C appendix A. See also,
85 FR 8626, 8708.
II. Synopsis of the Final Rule
In this final rule, DOE amends the existing test procedure for room
ACs to: (1) Incorporate by reference current versions of the applicable
industry standards; (2) adopt test provisions for variable-speed room
ACs that reflect energy efficiency during a representative average use
cycle; (3) update definitions to define key terms and support the
adopted provisions for testing variable-speed room ACs; and (4) update
specifications and implement minor corrections to improve the test
procedure repeatability, reproducibility, and overall readability.
DOE has determined that the amendments will both provide efficiency
measurements more representative of the energy efficiency of variable-
speed room ACs and will not alter the measured efficiency of single-
speed room ACs, which constitute the large majority of units on the
market. DOE has determined that the amended test procedure will not be
unduly burdensome to conduct. DOE's actions are summarized in Table
II.2 and addressed in detail in section III of this document.
[[Page 16449]]
Table II.2--Summary of Changes in the Amended Test Procedure
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Previous DOE test procedure Amended test procedure Attribution
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References industry standards--.......... Updates references to applicable sections Industry test procedure
of:. updates.
ANSI/AHAM RAC-1-2008,....... AHAM RAC-1-2020,
ANSI/ASHRAE Standard 16- ANSI/ASHRAE Standard 16-2016
2009, and. (including relevant cross-referenced
industry standards), and
IEC Standard 62301 First IEC Standard 62301 Second
Edition. Edition.
Testing, calculation of CEER metric, and Relevant definitions, testing, In response to test
certification for all room ACs based on calculation of CEER metric, and procedure waivers.
single temperature rating condition. certification for variable-speed room
ACs based on additional reduced outdoor
temperature test conditions.
Definitions--
--Definition of ``room air --Adds the word ``cooled'' to describe Added by DOE
conditioner'' does not explicitly the conditioned air a room AC provides (clarification).
include function of providing cool and the phrase ``notwithstanding ASHRAE
conditioned air to an enclosed 16 and RAC-1 (incorporated by reference;
space, and references ``prime,'' an see Sec. 430.3)'' to reiterate that
undefined term, to describe the the DOE definition takes precedence over
source of refrigeration. conflicting language in relevant
industry standards, in the definition of
``room air conditioner'' and removes
``prime'' from the definition.
--``Cooling mode,'' ``cooling --Adds definition for ``cooling mode,''
capacity,'' ``combined energy ``cooling capacity,'' and ``combined
efficiency ratio,'' are undefined energy efficiency ratio.''
terms.
Appendix F does not explicitly identify Creates new section indicating the Added by DOE (specifies
the scope of the test procedure. appendix applies to the energy the applicability of the
performance of room ACs. test procedure).
Provides that test unit be installed in a --References ANSI/ASHRAE Standard 16- Industry test procedure
manner similar to consumer installation. 2016, specifying that the perimeter of update and added by DOE
louvered room ACs be sealed to the (additional installation
separating partition, consistent with specifications).
common testing practice.
--Specifies that non-louvered room ACs be
installed inside a compatible wall
sleeve, with the manufacturer-provided
installation materials.
Calculations for average annual energy --Moves calculations for CEER and annual Added by DOE (improve
consumption, combined annual energy energy consumption for each operating readability).
consumption, energy efficiency ratio mode into appendix F.
(``EER''), and CEER are located in 10 --Removes EER calculation and references
CFR 430.23(f). entirely, as it is obsolete..
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The effective date for the amended test procedure adopted in this
final rule is 30 days after publication of this document in the Federal
Register. Representations of energy use or energy efficiency must be
based on testing in accordance with the amended test procedure
beginning 180 days after the publication of this final rule.
III. Discussion
A. Room Air Conditioner Definition
DOE defines a ``room air conditioner'' as a consumer product, other
than a packaged terminal air conditioner, which is powered by a single-
phase electric current and which is an encased assembly designed as a
unit for mounting in a window or through the wall for the purpose of
providing delivery of conditioned air to an enclosed space. It includes
a prime source of refrigeration and may include a means for ventilating
and heating. 10 CFR 430.2.
In the June 2020 NOPR, DOE proposed adding the term ``cooled'' to
the room AC definition, so that it refers to a system that ``. . .
delivers cooled, conditioned air to an enclosed space . . .'' (emphasis
added). 85 FR 35700, 35705 (Jun. 11, 2020). DOE believed that this
revised wording would better represent the key function of a room AC,
and would avoid any potential for the room AC definition to cover other
indoor air quality systems that could be described as ``conditioning''
the air, but that would not be appropriately included within the scope
of coverage of a room AC. Id.
Additionally, as described previously, the previous definition of
room AC specified that it includes a prime source of refrigeration. Id.
DOE contended that using the word ``prime'' to describe the source of
refrigeration in the previous definition was extraneous and could be
construed as referring to a ``primary'' refrigeration system, a
distinction that could inadvertently exclude future products that
implement a different technology as the primary source of air
conditioning, while implementing a refrigeration loop as the
``secondary'' means of cooling or heating. Id. Primary and secondary
means of conditioning air are not uncommon in certain refrigeration
products and chiller systems; in fact, some room ACs with heating
functionality implement a resistance heater as a supplemental form of
heating to the primary heat pump, for use under extreme temperature
conditions. DOE also noted that the recently codified portable AC
definition was not limited to products with a prime source of
refrigeration. Id. For these reasons, DOE proposed to remove the word
``prime'' from the room AC definition.
DOE also proposed to add to the phrase ``notwithstanding ASHRAE 16
and RAC-1 (incorporated by reference; see Sec. 430.3),'' to the room
air conditioner definition to reiterate that the DOE definition takes
precedence over conflicting language in relevant industry standards.
Id. Additionally, DOE proposed to reorganize the room AC definition to
improve its readability. Id. The minor editorial revisions and
specifications discussed in this section do not modify the scope of the
room AC definition.
In summary, DOE proposed to modify the room AC definition in 10 CFR
430.2 to read as follows:
``Room air conditioner means a window-mounted or through-the-wall-
mounted encased assembly, other than a `packaged terminal air
conditioner,' that delivers cooled, conditioned air to an enclosed
space, and is powered by single-phase electric current. It includes a
source of refrigeration and may include additional means for
ventilating and heating, notwithstanding ASHRAE 16 and RAC-1
(incorporated by reference; see Sec. 430. 3).''
AHAM supported DOE's proposed amendments to the definition of room
air conditioner which are consistent, though not verbatim, with the
definitions in AHAM RAC-1-2020.
[[Page 16450]]
(AHAM, No. 13 at p. 6) \9\ DOE did not receive any comment in
opposition to the proposed definition. For the reasons provided in the
June 2020 NOPR, DOE adopts the definition of ``room air conditioner''
as proposed.
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\9\ A notation in the form ``AHAM, No. 13 at p. 6'' identifies a
written comment: (1) Made by the Association of Home Appliance
Manufacturers; (2) recorded in document number 13 that is filed in
the docket of this test procedure rulemaking (Docket No. EERE-2017-
BT-TP-0012-0008) and available for review at http://www.regulations.gov; and (3) which appears on page 6 of document
number 13.
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In the June 2020 NOPR, DOE also proposed to further specify the
scope of coverage of appendix F by adding a new ``Scope'' section
stating that appendix F contains the test requirements used to measure
the energy performance of room ACs. In doing so, DOE would explicitly
limit the scope of products tested in accordance with appendix F, and
appendix F would be consistent with test procedures for other similar
covered products in that it would include an introductory statement of
scope.
There were no comments pertaining to this addition. DOE adds this
new provision to appendix F as proposed.
B. Industry Test Standards
The DOE room AC test procedure in appendix F references the
following two industry standards as the basis of the cooling mode test:
ANSI/AHAM RAC-1-2008 and ANSI/ASHRAE Standard 16-2009. ANSI/AHAM RAC-1-
2008 provides the specific test conditions and associated tolerances,
while ANSI/ASHRAE Standard 16-2009 describes the test setup,
instrumentation and procedures used in the DOE test procedure. The
cooling capacity, efficiency metric, and other indicators are
calculated based on the results obtained through the application of
these test methods, as described in appendix F and 10 CFR 430.23(f).
Updated versions of AHAM RAC-1 and ANSI/ASHRAE Standard 16 have
been released since the publication of the previous DOE test procedure.
DOE assessed the updated versions of these standards to determine
whether a DOE test procedure that adopted the updated industry
standards would produce test results which measure energy efficiency of
room ACs during a representative average use cycle without being unduly
burdensome to conduct.
1. AHAM RAC-1
The cooling mode test in appendix F is conducted in accordance with
the testing conditions, methods, and calculations in Sections 4, 5,
6.1, and 6.5 of ANSI/AHAM RAC-1-2008, as summarized in Table III-1.
Table III-1--Summary of ANSI/AHAM RAC-1-2008 Sections Referenced in
Appendix F
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Section Description
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4............................... General test requirements, including
power supply and test tolerances.
5............................... Test conditions and requirements for a
standard measurement test.
6.1............................. Determination of cooling capacity in
British thermal units per hour (``Btu/
h'').
6.5............................. Determination of electrical input in
watts (``W'').
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In the June 2020 NOPR, DOE proposed to incorporate by reference
ANSI/AHAM RAC-1-2015 but limit the section references in appendix F to
cooling mode-specific sections of ANSI/AHAM RAC-1-2015 (by excluding
standby mode, off mode, and heating mode sections), and to update the
section reference for measuring electrical power input. 85 FR 35700,
35706 (Jun. 11, 2020). ANSI/AHAM RAC-1-2015 introduced new provisions
for the measurement of standby mode and off mode power in Section 6.3,
as well as the calculations for annual energy consumption and CEER in
Sections 6.4 through 6.8. Because those updates do not impact the
sections relevant to appendix F, DOE noted in the June 2020 NOPR that
it expects that updating the references to ANSI/AHAM RAC-1-2015 in
appendix F would not substantively affect test results or test burden.
Id. ANSI/AHAM RAC-1-2015 added test requirements and conditions for
standby mode and off mode, and heating mode in Sections 4 and 5,
respectively. Because the DOE test procedure already addresses standby
mode and off mode testing but not heating mode, which is now included
in ANSI/AHAM RAC-1-2015, and to avoid confusion regarding the
appropriate applicability of ANSI/AHAM RAC-1-2015, DOE proposed in the
June 2020 NOPR to update the existing references to Sections 4 and 5 of
ANSI/AHAM RAC-1-2008 in appendix F with references to only the cooling
mode-specific subsections of ANSI/AHAM RAC-1-2015: Sections 4.1, 4.2,
5.2.1.1, and 5.2.4. Id.
DOE also noted in the June 2020 NOPR that the provisions in ANSI/
AHAM RAC-1-2015 for measuring electrical power input appear in Section
6.2, rather than Section 6.5 of ANSI/AHAM RAC-1-2008. To reflect this
change in section numbers, DOE proposed to update appendix F to
reference Section 6.2 of ANSI/AHAM RAC-1-2015 to determine the
electrical power input in cooling mode. Id.
Since the June 2020 NOPR, AHAM RAC-1 has been updated and the
current standard was released in September 2020 as AHAM RAC-1-2020,
``Room Air Conditioners'' (AHAM RAC-1-2020). Unlike ANSI/AHAM RAC-1-
2015, AHAM RAC-1-2020 includes a test method for products with
variable-speed compressor units; allows for voluntary testing inside a
psychometric chamber; removes the tests for uncommon water-cooled units
as well as the sweat, drip, and heating tests; and updates references
to the most recent versions of other industry standards--AHAM RAC-1-
2020 references ANSI/ASHRAE Standard 16-2016, for reasons outlined
below, and IEC Standard 62301 Second Edition for standby power
measurement.\10\
---------------------------------------------------------------------------
\10\ Copies of AHAM RAC-1-2020 can be purchased from the
Association of Home Appliance Manufacturers at 1111 19th Street NW,
Suite 402, Washington, DC 20036, 202-872-5955, or by going to http://www.aham.org.
---------------------------------------------------------------------------
AHAM and GEA urged DOE to adopt AHAM RAC-1-2020. AHAM commented
that this test procedure is identical to the existing test procedure
waivers and the test procedure proposed in the June 2020 NOPR. AHAM
further commented that uncommon practices such as water-cooled unit
testing have been eliminated and tests irrelevant to energy and
capacity measurement such as the sweat, drip, and heating tests have
been removed from AHAM RAC-1-2015 such that the AHAM RAC-1-2020
procedure is now consistent with the scope of the DOE test procedure.
AHAM stated that AHAM RAC-1-2020 does allow for voluntary testing in a
psychrometric (air-enthalpy) chamber, which DOE declined to propose for
adoption in the June 2020 NOPR. AHAM and GEA further stated that
adopting AHAM RAC-1-2020 as the DOE test procedure would not change the
substance of DOE's proposed rule unless DOE were to consider allowing
voluntary testing in a psychrometric chamber. AHAM asserted that AHAM
RAC-1-2020 is not unduly burdensome to conduct and produces results
that reflect the energy efficiency of room ACs during a representative
average use cycle. (AHAM, Public Meeting Transcript, No. 12 at pp. 9-
10, 21; AHAM, No. 13 at p. 2; GEA, No. 18 at p. 1) \11\ AHAM further
noted that, at the
[[Page 16451]]
time of the June 2020 NOPR comment period, AHAM RAC-1-2020 had not yet
been published. However, in an additional comment submitted on December
18, 2020, AHAM confirmed publication of AHAM RAC-1-2020 and that it is
consistent with what AHAM stated it would be in their previous comment.
(AHAM, No. 20 at pp. 1-2)
---------------------------------------------------------------------------
\11\ A notation in the form ``AHAM, Public Meeting Transcript,
No. 12 at pp. 9-10, 21'' identifies an oral comment that DOE
received on August 6, 2020 during the public meeting, and was
recorded in the public meeting transcript in the docket for this
test procedure rulemaking (Docket No. EERE-2017-BT-TP-0012-0012).
This particular notation refers to a comment (1) made by AHAM during
the public meeting; (2) recorded in document number 12, which is the
public meeting transcript that is filed in the docket of this test
procedure rulemaking; and (3) which appears on pages 9 through 10
and 21 of document number 12.
---------------------------------------------------------------------------
Consistent with the comments received, DOE has determined that AHAM
RAC-1-2020 generally provides results that are representative of an
average use cycle of room ACs, including room ACs that are variable-
speed, and is not unduly burdensome to conduct. Therefore, DOE is
adopting AHAM RAC-1-2020 as a referenced standard for the DOE room AC
test procedure in appendix F, with modifications that DOE has
determined are necessary to improve the representativeness and
repeatability of the test procedure. The modifications are discussed in
further detail in the sections that follow.
2. ANSI/ASHRAE Standard 16
Appendix F previously referenced the 1983 version of ANSI/ASHRAE
Standard 16, which was reaffirmed in 2009, for cooling mode temperature
conditions, methods, and calculations.
In the June 2020 NOPR, DOE proposed to reference sections of ANSI/
ASHRAE Standard 16-2016 in appendix F. 85 FR 35700, 35707 (Jun. 11,
2020). In the June 2020 NOPR, DOE stated that ANSI/ASHRAE Standard 16-
2016 made a number of updates to the industry standard, including an
air-enthalpy test approach as an alternative to the calorimeter
approach, heating mode testing, additional clarification on placement
of air samplers and thermocouples, stability requirement definitions,
and new figures for additional tests and to also improve previous
figures. 85 FR 35700, 35706 (Jun. 11, 2020). DOE initially determined,
however, that the general cooling mode methodology remains unchanged.
Id. The addition of the air-enthalpy approach provides more flexibility
in conducting the tests, and the heating mode test is based on the
tests previously included in ANSI/ASHRAE Standard 58-1986 ``Method of
Testing for Rating Room Air Conditioner and Packaged Terminal Air
Conditioner Heating Capacity.''
In the June 2020 NOPR DOE stated that the general calorimeter test
methodology is unchanged in ANSI/ASHRAE Standard 16-2016 and
tentatively determined that the additional detail and clarifying
updates would improve the repeatability and reproducibility of test
results. Id. ANSI/ASHRAE Standard 16-2016 provides best practices for
thermocouple and air sampler placement, recognizing that the unique
characteristics of each test chamber will result in particular air flow
and temperature gradients in the chamber, influenced by the interaction
of the reconditioning equipment and the test unit. These practices
address the distances for placing the air sampler from the unit
discharge points and thermocouple spacing on the air sampling device.
Figure 1 and Figure 2 of ANSI/ASHRAE Standard 16 are updated with
additional details and references. Section 5 of ANSI/ASHRAE Standard
16-2016 includes additional provisions regarding instrument calibration
and accuracy. ANSI/ASHRAE Standard 16-2016 requires measuring data at
more frequent intervals to minimize the sensitivity of the final
average value to variations in individual data points, resulting in a
more repeatable and reproducible test procedure. Based on DOE's
experience with testing at various test laboratories, requiring more
frequent data measurements will have minimal impact on testing burden
because most testing laboratories are already using a data acquisition
system that has the capability to take more frequent measurements.
In urging DOE to incorporate AHAM RAC-1-2020, AHAM and GEA
supported the incorporation of relevant sections of the 2016 version of
ANSI/ASHRAE Standard 16, ANSI/ASHRAE Standard 16-2016. In AHAM RAC-1-
2020, AHAM adopted the most current industry standards, including ANSI/
ASHRAE Standard 16-2016. (AHAM, Public Meeting Transcript, No. 12 at
pp. 9-10; AHAM, No. 13 at p. 2; GEA, No. 18 at p. 1)
For these reasons provided in the June 2020 NOPR and in this
document, and in consideration of the comments received in support of
ANSI/ASHRAE Standard 16-2016, DOE is updating appendix F to reference
ANSI/ASHRAE Standard 16-2016.
ANSI/ASHRAE Standard 16-2016 also updates requirements for the
accuracy of instruments. The 2009 reaffirmation of ANSI/ASHRAE Standard
16 requires, in Section 5.4.2, accuracy to 0.5 percent of
the quantity measured for instruments used for measuring all electrical
inputs to the calorimeter compartments. ANSI/ASHRAE Standard 16-2016,
in Section 5.6.2, no longer broadly includes any inputs and instead
includes more specific language (e.g., it explicitly mentions the power
input to the test unit, heaters, and other cooling load contributors).
To ensure that the electrical input for all key equipment is properly
measured, in the June 2020 NOPR, DOE proposed to maintain the accuracy
requirement of 0.5 percent of the quantity measured for
instruments used for measuring all electrical inputs, to the test unit,
all reconditioning equipment, and any other equipment that operates
within the calorimeter walls. 85 FR 35700, 35707 (Jun. 11, 2020).
No comments were received pertaining to this reference. While DOE
is incorporating by reference ANSI/ASHRAE Standard 16-2016 generally,
DOE maintains that the instrument accuracy of 0.5 percent
of the quantity measured is applicable to all devices measuring
electrical input for the room AC test procedure, and not just those
explicitly mentioned in ANSI/ASHRAE Standard 16-2016.
3. ANSI/ASHRAE Standards 41.1, 41.2, 41.3, 41.6, and 41.11
ANSI/ASHRAE Standard 16-2016 references industry standards in
specifying certain test conditions and measurement procedures. In the
June 2020 NOPR, DOE proposed to incorporate those industry standards
specified in the relevant sections of ANSI/ASHRAE Standard 16-2016.
Specifically, DOE proposed to incorporate by reference: ANSI/ASHRAE
Standard 41.1-2013, ``Standard Method for Temperature Measurement, as
referenced in ANSI/ASHRAE Standard 16-2016 Section 5.1.1 for all
temperature measurements except for dew-point temperature; ANSI/ASHRAE
Standard 41.2-1987 (RA 1992), ``Standard Methods for Laboratory Airflow
Measurement,'' as referenced in Section 5.5.1 of ANSI/ASHRAE Standard
16-2016 for airflow measurements; ANSI/ASHRAE Standard 41.3-2014,
``Standard Methods for Pressure Measurement,'' as referenced in Section
5.2.5 of ANSI/ASHRAE Standard 16-2016 for the prescribed use of
pressure measurement instruments; ANSI/ASHRAE Standard 41.6-2014,
``Standard Method for Humidity Measurement,'' as referenced in Section
5.1.2 of ANSI/ASHRAE Standard 16-2016 for measuring dew-point
temperatures using hygrometers; and ANSI/ASHRAE Standard 41.11-2014,
``Standard Methods for Power Measurement,'' as referenced in Section
5.6.4 of ANSI/ASHRAE Standard 16-2016 regarding the use and application
of electrical instruments during tests.
[[Page 16452]]
Incorporating these standards would clarify which versions of the
standards are required to conduct tests according to the procedure in
appendix F. 85 FR 35700, 35707 (Jun. 11, 2020).
DOE received no comments on the proposal to incorporate ANSI/ASHRAE
Standard 41.1-2013, ANSI/ASHRAE Standard 41.2-1987 (RA 1992), ANSI/
ASHRAE Standard 41.3-2014, ANSI/ASHRAE Standard 41.6-2014, and ANSI/
ASHRAE Standard 41.11-2014 in appendix F. DOE is adopting its proposal
to incorporate those industry standards appendix F.
C. Variable-Speed Room Air Conditioner Test Procedure
Historically, room ACs have been designed using a single-speed
compressor, which operates at full cooling capacity while the
compressor is on. To match the cooling load of the space, which in most
cases is less than the full cooling capacity of the compressor, a
single-speed compressor cycles on and off. This cycling behavior
generally introduces inefficiencies in refrigeration system
performance. Variable-speed room ACs became available on the U.S.
market in 2018. These models employ an inverter compressor that can
reduce its speed to provide continuous cooling that matches the
observed cooling load. Accordingly, a variable-speed compressor runs
continuously, adjusting its speed up or down as required. In addition
to reducing or eliminating cycling inefficiencies, in a variable-speed
unit operating at reduced capacity the evaporator and condenser heat
exchange effectiveness are improved, since they are handling reduced
loads, thereby improving compressor efficiency.
The previous DOE test procedure measured the performance of a room
AC while operating under a full cooling load; i.e., the compressor is
operated continuously in its ``on'' state. As a result, the DOE test
does not capture any inefficiencies due to compressor cycling.
Consequently, the efficiency gains that can be achieved by variable-
speed room ACs due to the avoidance of cycling losses were not measured
by the previous test procedure.
In the June 2020 NOPR, DOE presented the results of its
investigative testing to quantify the impacts of cycling losses and the
relative efficiency benefits of a variable-speed compressor. 85 FR
35700, 35707-35708 (Jun. 11, 2020). DOE compared the performance of two
variable-speed room ACs from two different manufacturers, with single-
speed room AC of similar capacity from the same manufacturers, under
reduced cooling load conditions.\12\ DOE installed each room AC in a
calorimeter test chamber, set the unit thermostat to 80 degrees
Fahrenheit ([deg]F), and applied a range of fixed cooling loads to the
indoor chamber.13 14 The calorimeter chamber conditioning
system was configured to apply a fixed cooling load rather than
maintaining constant indoor chamber temperature, thereby allowing the
test unit to maintain the target indoor chamber temperature by
adjusting its cooling operation in response to the changing temperature
of the indoor chamber.\15\ Figures III-1 and III-2 show the efficiency
gains and losses for the range of reduced cooling loads tested for each
unit, relative to the performance of each unit as tested using appendix
F.\16\
---------------------------------------------------------------------------
\12\ The first room AC was tested under the 95 [deg]F outdoor
test condition (Figure III-1), the second under the 82 [deg]F
outdoor test condition (Figure III-2), and the change in EER and
load from full-load used for each test was determined based on an
appendix F test with the noted outdoor test condition.
\13\ A cooling load is ``applied'' by adjusting and fixing the
rate of heat added to the indoor test chamber to a level at or below
that of the nominal cooling capacity of the test unit.
\14\ This approach aims to represent a consumer installation in
which the amount of heat added to a room may be less than the rated
cooling capacity of the room AC (e.g., electronics or lighting
turned off, people or pets leaving the room, and external factors
such as heat transfer through walls and windows reducing with
outdoor temperature).
\15\ DOE notes that this test chamber configuration differs from
the configuration used in appendix F. Appendix F uses a constant-
temperature configuration, in which the indoor chamber temperature
is held fixed (i.e., the indoor temperature does not drop while the
room AC is operational).
\16\ For single-speed room ACs under appendix F, the thermostat
is typically set as low as possible to ensure that the unit provides
maximum cooling during the cooling mode test period.
---------------------------------------------------------------------------
[[Page 16453]]
BILLING CODE 3510-33-P
[GRAPHIC] [TIFF OMITTED] TR29MR21.000
[GRAPHIC] [TIFF OMITTED] TR29MR21.001
BILLING CODE 3510-33-C
In Figures III-1 and III-2, the distance of each data point from
the x-axis represents the change in efficiency relative to the full-
load efficiency for each unit at the outdoor test condition used.\12\
The single-speed room AC efficiency decreases in correlation with a
reduction in cooling load, reflecting cycling losses that become
relatively larger as the cooling load decreases. In contrast, the
efficiency of the variable-speed room AC increases as the cooling load
decreases, reflecting the lack of cycling losses and inherent
improvements in system efficiency associated with lower-capacity
operation. As explained in the June 2020 NOPR, these results
demonstrate that the previous test procedure does not account for
significant efficiency gains that variable-speed room ACs can achieve
under reduced temperature conditions. 85 FR 35700, 35708 (Jun. 11,
2020).
[[Page 16454]]
1. Methodology
In the June 2020 NOPR, DOE proposed a test method to measure the
efficiency gains for variable-speed room ACs that are not captured by
the previous DOE test procedure. 85 FR 35700, 35708-35709 (Jun. 11,
2020). DOE based the proposed method on the alternate test procedure
required under the LG Waiver and the Midea Waiver, (collectively, ``the
waivers'') for specified basic models of variable-speed room ACs. 84 FR
20111 (May 8, 2019) and 85 FR 31481 (May 26, 2020). The alternate test
procedure proposed in the NOPR, which is substantively consistent with
the waivers, is generally consistent with the approach in AHAM RAC-1-
2020, as discussed in section III.B.1 of this document. As discussed in
this section below, DOE is adopting the AHAM RAC-1-2020 test procedure
in this final rule, with some modifications for the purposes of
improved representativeness and repeatability, which provides a
methodology for obtaining a reported CEER value by adjusting the
intermediate CEER value as tested at the 95 [deg]F test condition
according to appendix F using a ``performance adjustment factor''
(``PAF'').
Conceptually, the approach for variable-speed room ACs adopted in
this final rule involves measuring performance over a range of four
test conditions, applying user settings to achieve the full compressor
speed at two test conditions and manufacturer-provided instructions to
achieve a reduced fixed compressor speed at the other two test
conditions, which collectively comprise representative use. These
temperature conditions were derived from the DOE test procedure for
central air conditioners with variable-speed compressors and include
three reduced-temperature test conditions--under which variable-speed
room ACs perform more efficiently than single-speed room ACs--and the
test condition specified in the previous test procedure.\17\ The
single-speed room AC test procedure, however, does not factor in the
reduced-temperature test conditions under which single-speed units also
will perform more efficiently (although not as well as variable-speed
room ACs). As a result, comparing variable-speed performance at all
test conditions against a single-speed unit at the highest-temperature
test condition would not yield a fair comparison. The PAF represents
the average relative benefit of variable-speed over single-speed across
the whole range of test conditions. It is applied to the measured
variable-speed room AC performance only at the high-temperature test
condition to provide a comparison to the single-speed CEER metric based
on representative use.
---------------------------------------------------------------------------
\17\ The central air conditioner test procedure can be found at
Title 10 of the CFR part 430, subpart B, appendix M, ``Uniform Test
Method for Measuring the Energy Consumption of Central Air
Conditioners and Heat Pumps.''
---------------------------------------------------------------------------
The steps for determining a variable-speed room AC's PAF are
summarized as follows:
Measure the capacity and energy consumption of the sample
unit at the single test condition used for single-speed room ACs (95
[deg]F dry-bulb outdoor temperature), with the compressor speed at the
maximum (full) speed, achieved using the user settings (i.e., setpoint)
selected in accordance with the appendix F test.
Measure the capacity and energy consumption of the sample
unit at three additional test conditions (92 [deg]F, 87 [deg]F, and 82
[deg]F dry-bulb outdoor temperature),\18\ with compressor speed at full
using the user settings in accordance with appendix F, and fixed at
intermediate and minimum (low) speed, respectively.\19\ Using
theoretically determined adjustment factors,\20\ calculate the
equivalent performance of a single-speed room AC with the same cooling
capacity and electrical power input at the 95 [deg]F dry-bulb outdoor
temperature, with no cycling losses (i.e., a ``theoretical comparable
single-speed'' room AC) for each of the three test conditions.
---------------------------------------------------------------------------
\18\ The additional reduced-temperature conditions are described
further in section III.C.2 of this document.
\19\ The fixed compressor speeds are described further in
section III.C.3 of this document.
\20\ These adjustment factors are described further in section
III.C.4 of this document.
---------------------------------------------------------------------------
Calculate the annual energy consumption in cooling mode at
each of the four cooling mode test conditions for a variable-speed room
AC, as well as for a theoretical comparable single-speed room AC with
no cycling losses. This theoretical single-speed room AC would perform
the same as the variable-speed test unit at the 95 [deg]F test
condition but perform differently at the other test conditions.
Calculate an individual CEER value at each of the four
cooling mode test conditions for the variable-speed room AC, as well as
for a theoretical comparable single-speed room AC with no cycling
losses.
Using cycling loss factors derived from an industry test
procedure and DOE test data,\21\ calculate an adjusted CEER value at
each of the four cooling mode test conditions for a theoretical
comparable single-speed room AC, which includes cycling losses.
---------------------------------------------------------------------------
\21\ The derivation of these cycling loss factors is described
in more detail in section III.C.5 of this document.
---------------------------------------------------------------------------
Using weighting factors \22\ representing the fraction of
time spent and cooling load expected at each test condition in
representative real-world operation, calculate a weighted-average CEER
value (reflecting the weighted-average performance across the four test
conditions) for the variable-speed room AC, as well as for a
theoretical comparable single-speed room AC.
---------------------------------------------------------------------------
\22\ These ``fractional temperature bin'' weighting factors are
described in more detail in section III.C.6 of this document.
---------------------------------------------------------------------------
Using these weighted-average CEER values for the variable-
speed room AC and a theoretical comparable single-speed room AC,
calculate the PAF as the percent improvement of the weighted-average
CEER value of the variable-speed room AC compared to a theoretical
comparable single-speed room AC.\23\ This PAF represents the
improvement resulting from the implementation of a variable-speed
compressor.
---------------------------------------------------------------------------
\23\ The performance adjustment factor is described in more
detail in section III.C.7 of this document.
---------------------------------------------------------------------------
DOE's approach to addressing the performance improvements
associated with variable-speed room ACs is generally consistent with
the alternate test procedures required in the waivers and with the test
procedure updates proposed in the June 2020 NOPR.\24\ The following
sections of this document describe each aspect of the approach in
greater detail.
---------------------------------------------------------------------------
\24\ DOE estimates that the CEER value for a variable-speed room
AC determined in accordance with the amendments adopted in this
final rule would be about 1.6 percent greater than the CEER value
determined in accordance with the June 2020 NOPR proposed test
approach, which was consistent with the alternate test procedure
prescribed in a Decision and Order granting a waiver from the DOE
test procedure for room air conditions to LG Electronics (84 FR
2011; May 8, 2019) and in an Interim Waiver granted to GD Midea Air
Conditioning Equipment Co. LTD (84 FR 68159; Dec. 13, 2109). 85 FR
35700, 35709.
---------------------------------------------------------------------------
2. Test Conditions
As discussed previously, variable-speed room ACs provide improved
performance at reduced cooling loads by reducing the compressor speed
to match the load, thereby improving system efficiency. DOE recognizes
that throughout the cooling season, room ACs operate under various
outdoor temperature conditions. DOE also asserts that these varying
outdoor conditions present a range of reduced cooling loads in the
conditioned space, under which a variable-speed room AC would perform
more efficiently than a
[[Page 16455]]
theoretical comparable single-speed room AC.
To measure this improved performance, in the June 2020 NOPR, DOE
proposed a test procedure for variable-speed room ACs that adds three
test conditions (92 [deg]F, 87 [deg]F, and 82 [deg]F dry-bulb outdoor
temperatures and 72.5 [deg]F, 69 [deg]F, and 65 [deg]F wet-bulb outdoor
temperatures, respectively) to the existing 95 [deg]F test condition,
consistent with the test conditions in the waivers. 85 FR 35700, 35709
(Jun. 11, 2020). These temperatures represent potential outdoor
temperature conditions between the existing 95 [deg]F test condition
and the indoor setpoint of 80 [deg]F. These additional test conditions
are also consistent with the representative temperatures for bin
numbers 6, 5, and 4 in Table 19 of DOE's test procedure for central air
conditioners at appendix M. See id.
Rice expressed concern that the temperature range of the proposed
test points in the NOPR is too narrow, as they are based on only four
of the eight cooling-mode outdoor-temperature bins of the 2017 version
of Air-Conditioning, Heating and Refrigeration Institute (``AHRI'')
Standard 210/240, (``AHRI Standard 210/240''), ``Performance Rating of
Unitary Air-conditioning & Air-source Heat Pump Equipment,'' and a
wider temperature range for testing is needed. Rice commented that the
binned loads in AHRI Standard 210/240 were determined for more typical
indoor dry-bulb settings, but the analysis in AHRI Standard 210/240
uses 80 [deg]F dry-bulb and 67 [deg]F wet-bulb indoor ratings data.
Rice recommended that a more complete range of temperature bins and
their associated cooling load hours from AHRI Standard 210/240 should
be considered for the CEER analysis. (Rice, No. 17 at pp. 1-2; see also
Rice, Preliminary Analysis,\25\ No. 25 at p. 2) Rice recommended
accounting for the fractional loads and hours of outdoor-temperature
bins 67, 72, and 77 [deg]F with a lower temperature test condition with
an outdoor dry-bulb temperature of 75 [deg]F be used in place of the 92
[deg]F dry-bulb temperature test condition. Rice asserted that there
was not sufficient justification to test at full speed test at 92
[deg]F, as it is close to a full speed test at the 95 [deg]F dry-bulb
temperature test condition. Rice recommended that the fractional bin
hours of the 92, 97, and 102 [deg]F outdoor-temperature bins should be
applied to the 95 [deg]F dry-bulb temperature test condition, which is
actually the midpoint temperature of the lower two bins. (Rice, No. 17
at pp. 1-2; see also Rice, Preliminary Analysis, No. 25 at p. 2)
---------------------------------------------------------------------------
\25\ The notation ``Preliminary Analysis'' indicates that the
comment is filed in the docket of the Energy Conservation Standards
for Room Air Conditioners Preliminary Analysis rulemaking (EERE-
2014-BT-STD-0059) and available for review at http://www.regulations.gov.
---------------------------------------------------------------------------
DOE recognizes that the test conditions proposed in the June 2020
NOPR do not encompass the full range of bin temperature in Table 16 of
ANSI/AHRI Standard 210/240. The temperature bins in Table 16 of ANSI/
AHRI Standard 201/240 apply to central air conditioners, which are
fixed appliances, installed year-round, built into homes, and operate
based on a central thermostat to maintain a relatively constant
temperature throughout the conditioned space. Room ACs are instead,
often seasonally, installed in a single room; operate based on an
internal thermostat when turned on, typically only during the cooling
season; and may be readily turned off when the room is not occupied.
Consumers are more acutely aware of a room AC's operation than that of
a central air conditioner; as they are used to cool a single room,
often only when that room is occupied; make more noise; and are visible
in the room. For these reasons, consumers are more likely to rely on a
room AC at the higher temperatures in the range of bin temperatures in
Table 16 of ANSI/AHRI Standard 210/240, as compared to at the lower
temperatures in the bin. At the lower temperatures, consumers using
room ACs are more likely than consumers with central air conditioners
to open a window or operate the unit with only the fan on to circulate
indoor air when cooler outdoor air is available to draw in through a
``fresh air'' vent, making the lower temperature bins less
representative of room AC operation in cooling mode. DOE also notes
that the temperature conditions proposed in the June 2020 NOPR are
consistent with the industry-accepted test procedure, AHAM RAC-1-2020.
For the reasons discussed in this section, DOE is adopting the four
temperature conditions for variable-speed room ACs proposed in the June
2020 NOPR.
3. Variable-Speed Compressor Operation
The DOE test procedure maintains fixed temperature and humidity
conditions in the indoor chamber and requires configuring the test unit
settings (i.e., setpoint and fan speed), to achieve maximum cooling
capacity. See Section 3.1 of appendix F, as amended, and Section
6.1.1.4 of ANSI/ASHRAE Standard 16-2016. Under these conditions, units
under test may operate continuously at their full cooling capacity,
even at the reduced outdoor temperature test conditions described in
section III.C.2 of this document, without the compressor cycling (for
single-speed units) or compressor speed reduction (for variable-speed
units) that would be expected under real-world operation. Therefore, in
this final rule, DOE establishes additional test procedure adjustments,
beyond reduced outdoor temperature test conditions, to fully capture
the energy efficiency of variable variable-speed room ACs at reduced
cooling loads.
As described previously, in a typical consumer installation,
reduced outdoor temperatures would result in reduced indoor cooling
loads. A test that would provide constant reduced cooling loads could
be considered, but as discussed below in section III.E.1.e of this
document, DOE concludes such a test would not be feasible at this time.
Instead, in the June 2020 NOPR, DOE proposed adopting a test that
requires fixing the variable-speed room AC compressor at particular
compressor speeds that would reflect the expected load under each of
the four test conditions, as described further in the following
sections. 85 FR 35700, 35709 (Jun. 11, 2020).
a. Compressor Speeds
In the June 2020 NOPR, to ensure the compressor speeds are
representative of actual speeds at the expected cooling loads at each
of the outdoor test conditions, DOE proposed requiring that the
compressor speed of a variable-speed room AC be set to full speed at
the two highest outdoor temperature test conditions (based on test
AFull at 95 [deg]F and test BFull at 92 [deg]F
from Table 8 of AHRI Standard 210/240), at intermediate compressor
speed at the 87 [deg]F test condition (based on test EInt),
and at low compressor speed at the 82 [deg]F test condition (based on
test DLow), consistent with the tests and requirements in
Table 8 of AHRI Standard 210/240, which specifies representative test
conditions and the associated compressor speeds for variable-speed
unitary air conditioners. 85 FR 35700, 35709 (Jun. 11, 2020).
The California IOUs questioned the representativeness of testing
variable-speed room ACs using fixed-speed testing and referenced
statements from the 2019 Appliance Standards and Rulemaking Federal
Advisory Committee's Variable Refrigerant Flow Working Group that such
testing was not representative of field performance, largely because
the control settings used during testing did not match the operational
behavior of units outside of
[[Page 16456]]
their test mode.\26\ The California IOUs also cited research conducted
at the Bundesanstalt f[uuml]r Materialforschung und -pr[uuml]fung
(``BAM'') Federal Institute for Material Research and Testing in
Germany, in which all but one of the seven residential mini-split air
conditioners with variable-speed equipment that were tested consumed
significantly higher energy when consumer-adjustable, built-in controls
were used relative to fixed controls (i.e., controls that set the
compressor speed using a manufacturer-provided remote or code).\27\ The
California IOUs stated that researchers reported many units reverted to
on-off (cycling) operation when the outdoor temperatures were between
77 and 86 [deg]F. The California IOUs encouraged DOE to amend the test
procedure to improve representativeness and facilitate product
comparison with air conditioners tested under appendix M1 \28\ to 10
CFR part 430. The California IOUs further encouraged DOE, in
collaboration with industry and energy efficiency advocates, to update
the test procedure for room ACs by requiring the measurement of units
at the 95 [deg]F test condition under their native controls to see the
speeds at which the compressors operate to ensure accurate testing.
(California IOUs, Public Meeting Transcript, No. 12 at pp. 30-33;
California IOUs, No. 14 at p. 4)
---------------------------------------------------------------------------
\26\ All published documents directly related to the 2019
Appliance Standards and Rulemaking Federal Advisory Committee's
Variable Refrigerant Flow Working Group test data are available in
docket EERE-2018-BT-STD-0003 (https://regulations.gov/docket/EERE-2018-BT-STD-0003).
\27\ Palkowski, Carsten & Schwarzenberg, Stefan & Simo, Anne.
(2019). ``Seasonal cooling performance of air conditioners: The
importance of independent test procedures used for MEPS and
labels.'' International Journal of Refrigeration. 104. 10.1016/
j.ijrefrig.2019.05.021.
\28\ Appendix M is the currently applicable DOE test procedure
for central air conditioners and heat pumps. Appendix M1 will become
the test procedure mandatory for use for central air conditioners
and heat pumps on or after January 1, 2023. Appendix M and appendix
M1 contain similar test conditions, so DOE's evaluation of comments
relative to appendix M applies equally to appendix M1.
---------------------------------------------------------------------------
DOE notes that the findings of the 2019 Appliance Standards and
Rulemaking Federal Advisory Committee's Variable Refrigerant Flow
Working Group applied to variable-refrigerant flow multi-split air
conditioners and heat pumps, which have different applications and
typical use cases from room ACs and which typically provide cooling to
multiple locations within a home. Based on a review of the market, room
ACs are typically marketed for temporary seasonal installation \29\ for
the purpose of cooling a single room,\30\ whereas multi-split systems
are permanent and may be used as part of a larger whole-home cooling
system. For these reasons, the comparability of the room AC test
procedure and the test procedure for multi-split air conditioners was
not further considered in this final rule.
---------------------------------------------------------------------------
\29\ Only 14 room AC models on the market have reverse-cycle
heating (a heating technology implemented in other electric cooling
products intended for year-round operation), compared to the 1,825
total room AC models on the market according to DOE's CCMS database,
as accessed February 10, 2021. This indicates that room AC are
overwhelmingly used for seasonal cooling.
\30\ Room air conditioners are typically purchased by selecting
cooling capacity to match the size of a single room to be cooled.
See, for example, the ENERGY STAR buying guidance at: https://www.energystar.gov/products/heating_cooling/air_conditioning_room.
---------------------------------------------------------------------------
During investigative testing, two variable-speed room AC models
from different manufacturers performed differently under fixed
temperature conditions with the user settings (e.g., fan speed, grille
position) and thermostat setpoint selected in accordance with the
appendix F test (``appendix F setpoint''), relative to the fixed
controls, as specified in the waivers and proposed in the June 2020
NOPR. When operating under fixed temperature conditions and the
appendix F setpoint (i.e., the setpoint which resulted in the maximum
cooling capacity, per the requirement in ASHRAE 16-2016), one unit was
10 percent more efficient than when using fixed controls at the 95
[deg]F test condition as specified in the waivers. The second unit was
11 percent less efficient when operated under fixed temperature
conditions and the appendix F setpoint than when using fixed controls.
Based on the observed differences in the room AC performance when using
the fixed full compressor speed as compared to the fixed temperature
conditions and appendix F setpoint, DOE is requiring the use of fixed
chamber temperature conditions with a unit setpoint of 75 [deg]F for
the ``full speed'' test, as use of this test setup improves
representativeness and reproducibility of results. While AHAM RAC-1-
2020 requires the use of a fixed full compressor speed set in
accordance with manufacturer instructions, as described above, DOE is
adopting a revised approach in this final rule to improve
representativeness and repeatability. Using a constant temperature test
with a thermostat setpoint of 75 [deg]F, in place of the fixed ``full''
compressor speed, will ensure measured performance reflects the
expected performance of the unit when using a common setpoint selected
in the field at 95 [deg]F and 92 [deg]F outdoor temperatures, where DOE
expects these units to be operating at full speed.
However, DOE is not requiring the use of fixed temperature
conditions, user settings, and thermostat set at 75 [deg]F for the 87
[deg]F and 82 [deg]F outdoor test condition tests, because those tests
represent lower cooling load conditions and would require a load-based
test to represent expected unit performance at the associated reduced
loads without fixing the compressor speed. As discussed in section
III.E.1.d of this document, a load-based test is not feasible at this
time. Therefore, the reduced outdoor conditions tests are conducted
with fixed compressors speeds that are representative of performance at
the expected loads at those reduced conditions. The fixed compressor
speeds are defined based on the resulting cooling capacity using fixed
temperature condition tests and a unit thermostat setpoint at 75
[deg]F, as discussed in section III.D of this document.
Therefore, in this final rule, DOE is requiring fixed temperature
conditions with a unit thermostat setpoint of 75 [deg]F, rather than
using manufacturer instructions to fix the compressor speed for
variable-speed room ACs at the 95 [deg]F and 92 [deg]F test conditions,
while requiring that the compressor speed be fixed to intermediate
speed at the 87 [deg]F test condition and low speed at the 82 [deg]F
test condition, as discussed and defined in section III.D.1.b of this
document and in Sections 2.15 and 2.16 in appendix F, respectively.
b. Instructions for Fixing Compressor Speeds
Setting and maintaining a specific compressor speed for a variable-
speed room AC is not typically possible without special control
instructions from manufacturers.
In the June 2020 NOPR, DOE proposed to require that manufacturers
provide in their certification reports the control settings for each
variable-speed room AC basic model required to achieve the fixed
compressor speed for each test condition, consistent with the approach
in the waivers. 85 FR 35700, 35709 (Jun. 11, 2020). These include the
compressor frequency setpoints at each test condition, instructions
necessary to maintain the compressor speeds required for each test
condition, and the control settings used for the variable components.
Id. DOE received no comments on the proposal.
Due to the change to require that user settings be implemented to
achieve maximum cooling capacity when testing at the 95 [deg]F and 92
[deg]F test conditions, as
[[Page 16457]]
discussed in section III.C.3.a of this document, DOE is requiring that
the manufacturer provide in the certification reports the control
settings to achieve the fixed compressor speed at only the 87 [deg]F
and 82 [deg]F test conditions, thus minimizing certification burden on
manufacturers.
c. Boost Compressor Speed
DOE is aware that a variable-speed room AC's full compressor speed
may not be its fastest speed. In particular, the fastest compressor
speed may be one that is automatically initiated and used for a brief
period of time to rapidly reduce the indoor temperature to within
typical range of the setpoint. This compressor speed is referred to as
``Boost Compressor Speed'' in AHRI Standard 210/240 and is defined as a
speed faster than full compressor speed, at which the unit will operate
to achieve increased capacity.
Manufacturers have described boost compressor speed as used for
limited periods of time on occasions where the indoor room temperature
is far out of normal operating range of the setpoint. Once the indoor
room temperature is within the typical operating range of the setpoint,
the room AC returns to the ``Full Compressor Speed,'' as defined in
AHRI Standard 210/240. Because of the typical limited duration of boost
compressor speed, it would not significantly contribute to annual
energy consumption. AHRI Standard 210/240 does not measure boost
compressor speed energy use, and in a final rule published on June 8,
2016, DOE declined to include provisions for measuring boost compressor
speed energy use in the central air conditioner test procedure. 81 FR
36992, 37029. DOE stated that accurately accounting for boost
compressor speed requires more careful consideration of test procedure
changes beyond simply allowing the compressor speed to vary for the
test conditions required by the previous procedure, and that DOE would
consider such revisions in a future rulemaking. Id.
Accordingly, DOE did not propose to measure boost compressor speed
performance and energy consumption in appendix F in the June 2020 NOPR,
because of the minimal expected operating hours in boost compressor
mode and the subsequent insignificant impact on annual energy
consumption and performance, to harmonize with AHRI Standard 210/240,
the industry approach for variable-speed compressor testing, and
because DOE has previously opted to forgo including it for other air
conditioning products. 85 FR 35700, 35710 (Jun. 11, 2020).
AHAM supported DOE's proposal to forgo measuring boost compressor
speed for variable-speed room ACs. AHAM commented that boost compressor
speed is used for limited periods of time on occasions where the indoor
room temperature is far out of normal operating range of the setpoint.
AHAM stated that once the indoor temperature is within the typical
operating range of the setpoint, the room AC will return to full
compressor speed. AHAM asserted that accounting for boost compressor
speed would likely not impact annual energy consumption and performance
and, thus, additional test burden would not have a corresponding energy
savings or consumer benefit. According to AHAM, EPCA does not require
testing of every available mode; EPCA only requires testing of the
average consumer use cycle, which boost mode is not according to data
available. (AHAM, Public Meeting Transcript, No. 12 at p. 53; AHAM, No.
13 at p. 5)
The Joint Commenters, the California IOUs, NEAA, and Rice commented
in favor of capturing boost compressor speed operation in the test
procedure. (ASAP, Public Meeting Transcript, No. 12 at p. 12; Joint
Commenters, No. 15 at pp. 2-3; California IOUs, Public Meeting
Transcript, No. 12 at pp. 23-24; NEAA, Public Meeting Transcript, No.
12 at pp. 42-48, 56; Rice, No. 17 at p. 3) The California IOUs
commented that boost mode operation may be a significant portion of how
consumers actually use the product. (California IOUs, Public Meeting
Transcript, No. 12 at pp. 23-24)
Rice commented that boost compressor capability requires the
inverter/motor drives to be oversized to handle the increased torque
and power draw, resulting in more performance drop off at lighter
loads. Rice stated that this performance drop-off supports why limiting
variable-speed rating tests to no lower than 82 [deg]F may preclude
future introduction of more efficient variable-speed drive/motor
combinations in compressors that have larger performance advantages
below 50-percent capacity reduction. Rice commented that boost
compressor speed capability not only can result in unnecessary energy
use and increased power demand during rapid cooldown but can also
penalize unit performance at lower outdoor temperatures where
significant amounts of cooling are delivered. Rice further commented
that there is no incentive for manufacturers to limit or drop boost
compressor speed features from their designs without some performance
penalty applied to units with boost operation, especially if the lowest
test point remains at the 82 [deg]F test condition with 50 percent of
rated capacity loading. Rice suggested provisions might also be
included for suitable performance credits for variable-speed units that
allow boost mode to be turned off by the homeowner or utility to reduce
unnecessary energy use and/or peak demand. (Rice, No. 17 at pp. 2-3)
ASAP, NEAA, the Joint Commenters, and Rice encouraged DOE to
further investigate the use and timing of boost compressor speed,
expressing concern that not testing it may result in excluding a
significant component of the energy use of these units. (ASAP, Public
Meeting Transcript, No. 12 at p. 12; NEAA, Public Meeting Transcript,
No. 12 at pp. 42-48; Joint Commenters, No. 15 at pp. 2-3; Rice, No. 17
at p. 3) Specifically, NEAA recommended that DOE conduct tests to
determine the setpoint differential that would cause boost mode to kick
in and the difficulty at which that is under normal or extreme
operating conditions. (NEAA, Public Meeting Transcript, No. 12 at pp.
42-48) Rice recommended that DOE conduct additional load-based testing
to estimate the added energy use and peak demand from boost compressor
speed operation from a typical daytime setback, evening setup
schedule.\31\ (Rice, No. 17 at p. 3)
---------------------------------------------------------------------------
\31\ ``Setback'' typically refers to when the temperature
setting on a thermostat is adjusted to a higher temperature for a
period of time when the space will not be occupied or won't require
as much cooling, and ``setup'' refers to when the thermostat
setpoint is adjusted back to its original setting, at which the
desired level of comfort is provided when the conditioned space is
occupied.
---------------------------------------------------------------------------
As discussed, boost compressor speed is a temporary period of
elevated compressor speed that occurs to quickly reduce the indoor
temperature of a room, typically upon startup or after a service
interruption. DOE is not aware of any publicly available data on the
frequency or duration of boost compressor speed operation in the field.
As such, DOE is unable to ensure the representativeness of a test
procedure that addresses boost compressor speed operation.
Further, in limited investigative testing of boost compressor
speeds for two variable-speed room ACs, DOE was not able to induce a
compressor speed higher than the full compressor speed, either by
increasing the cooling load to greater than 100 percent or by adjusting
the temperature setpoint during cooling mode operation. As such, it is
unclear what test procedure provisions would be necessary to test boost
compressor speed operation, or if there exists a compressor speed
greater than that already activated by the settings in appendix F,
without being unduly
[[Page 16458]]
burdensome. Therefore, DOE is not adopting boost compressor speed
provisions in appendix F.
4. Capacity and Electrical Power Adjustment Factors
In the waivers and proposed June 2020 NOPR approach, a capacity
adjustment factor is used to estimate the increased cooling capacity
and reduced electrical power draw of a single-speed room AC at lower
outdoor temperature conditions, using a linear extrapolation based on
the measured capacity and power draw at the 95 [deg]F test condition,
respectively. 85 FR 35700, 35711 (Jun. 11, 2020). To determine these
two adjustment factors, DOE used the MarkN model \32\ to model room AC
performance at reduced outdoor temperature conditions. Id. These
modeling results suggested linear capacity and electrical power
adjustment factors of 0.0099 per [deg]F and 0.0076 per [deg]F,
respectively. Id.
---------------------------------------------------------------------------
\32\ MarkN is an energy modeling program developed in an ECS
direct final rule for room ACs that DOE published on April 21, 2011.
76 FR 22454. The MarkN program is an update of an adaptation to the
Oak Ridge National Laboratory Mark III Heat Pump program for
modeling room AC cooling performance.
---------------------------------------------------------------------------
To confirm the validity of these modeled adjustment factors, DOE
tested a sample of 14 single-speed room ACs at a range of reduced
outdoor temperature test conditions (92 [deg]F, 87 [deg]F, and 82
[deg]F) and compared the predicted values of cooling capacity and
electrical power with the measured values at each test condition. The
results generally indicated close agreement (i.e., less than 5 percent
difference on average) between the modeled cooling capacity (based on
an adjustment factor of 0.0099 per [deg]F) and the measured capacity at
each test condition, and between the modeled electrical power draw
(based on an adjustment factor of 0.0076 per [deg]F) and the measured
electrical power draw at each test condition. DOE tentatively
determined that the average difference of less than 5 percent between
the modeled values and the experimental values confirmed the validity
of these modeled adjustment factors. Therefore, in the June 2020 NOPR,
DOE proposed to use the modeled adjustment factors of 0.0099 per [deg]F
and 0.0076 per [deg]F for capacity and electrical power, respectively,
to calculate the theoretical comparable single-speed room AC
performance at reduced outdoor temperature test conditions. 85 FR
35700, 35711 (Jun. 11, 2020).
NEAA expressed concern about DOE's proposal to use linear capacity
and electrical power adjustment factors to predict the capacity of
fixed speed equipment at lower outdoor temperatures. NEAA commented
that, while the order of magnitude of the error is small, the factors
chosen consistently overpredict capacity and underpredict energy use
for single-speed equipment. NEAA further commented that this will
reduce the CEER ratings of variable-speed room ACs. NEAA recommended
modifying the capacity and electrical power adjustment factors so that
they do not overpredict capacity and underpredict energy use
consistently. (NEAA, No. 16 at p. 5)
DOE disagrees with NEAA's assessment that the modeling factors
consistently overpredict capacity and underpredict energy use. DOE
observed that the modeling factors were able to predict capacity and
energy use in the test sample within four percent on average, and often
more accurately. Additionally, there was no consistent trend in the
variation in capacity or energy use predictions (i.e., some predictions
were higher than the actual, some were lower). Therefore, DOE is
adopting as proposed the capacity and electrical power adjustment
factors of 0.0099 per [deg]F and 0.0076 per [deg]F, respectively.
5. Cycling Loss Factors
In the June 2020 NOPR, to represent the cycling losses of a
theoretical comparable single-speed room AC at reduced outdoor
temperature test conditions and expected reduced cooling loads, DOE
identified cycling loss factors (``CLFs'') to apply to the interim CEER
values at each of the four cooling mode test conditions for a
theoretical comparable single-speed room AC. 85 FR 35700, 35711 (Jun.
11, 2020). Table III-4 shows the CLFs for each of the four test
conditions.
Table III-4--June 2020 NOPR Proposed Cycling Loss Factors
----------------------------------------------------------------------------------------------------------------
Evaporator inlet air, [deg]F Condenser inlet air, [deg]F
Test condition ---------------------------------------------------------------- Cycling loss
Dry bulb Wet bulb Dry bulb Wet bulb factor
----------------------------------------------------------------------------------------------------------------
Test Condition 1................ 80 67 95 75 1.0
Test Condition 2................ 80 67 92 72.5 0.971
Test Condition 3................ 80 67 87 69 0.923
Test Condition 4................ 80 67 82 65 0.875
----------------------------------------------------------------------------------------------------------------
These CLFs were based on the default cooling degradation
coefficient (``Cd'') in Section 11.2 of AHRI Standard 210/240. The CLF
at the 82 [deg]F test condition for a theoretical comparable single-
speed room AC is consistent with the default Cd of 0.25, which
corresponds to a part-load (cycling loss) factor of 0.875, as
determined in Section 11.2 of AHRI Standard 210/240. The remaining CLFs
for the other test conditions are consistent with linear interpolation
between the CLF of 0.875 at the 82 [deg]F test condition and the CLF of
1.0 at the 95 [deg]F test condition, at which no cycling is expected.
Thus, DOE proposed to implement CLFs consistent with the default Cd
in AHRI Standard 210/240, to represent the expected performance of a
theoretical comparable single-speed room AC at reduced outdoor
temperature test conditions. Id.
AHAM commented that while DOE cited Section 11.2 of AHRI Standard
210/240 and a Cd of 0.25, AHRI Standard 210/240 includes a Cd of 0.20
for Single Stage Systems in Section 6.1.3.1.1. AHAM recommended that
DOE ensure it uses the most recent version of the standard and the
correct Cd. (AHAM, No. 13 at p. 5)
The California IOUs, NEAA, and Rice expressed concern about the
proposed default Cd of 0.25. (California IOUs, Public Meeting
Transcript, No. 12 at p. 30; NEAA, No. 16 at p. 5; Rice, No. 17 at pp.
3-4) NEAA commented that room ACs may cycle more than central air
conditioners due to improper sizing, further pointing to a need for
additional testing. (NEAA, No. 16 at p. 5) Rice commented that Figure
III.1 in the June 2020 NOPR suggested that the Cd for the
[[Page 16459]]
load-tested room AC unit could be as high as 0.42, based on the 21-
percent performance loss observed at 50-percent load; this compared
with the 12.5-percent loss assumed at 50-percent load with the default
Cd assumption. (Rice, No. 17 at pp. 3-4) The California IOUs and Rice
recommended DOE conduct additional investigative load-based testing on
single-speed room ACs to better estimate the Cd at the 82 [deg]F test
condition. (California IOUs, Public Meeting Transcript, No. 12 at p.
30; Rice, No. 17 at pp. 3-4)
Rice also commented that a room AC unit is unlikely to be sized
exactly to match the room load at 95 [deg]F outdoor ambient conditions.
Rice further commented that a minimal 10-percent oversizing, equivalent
to that assumed in AHRI Standard 210/240 for unitary ACs, would be more
appropriate and would also provide a common basis with current AC
ratings practice. Rice stated that use of 110-percent sizing would also
provide an appropriate performance benefit, estimated to be
approximately 3 percent, to variable-speed room ACs relative to single-
speed units. Accordingly, Rice recommended that the assumption of exact
sizing be modified to at least be consistent with 110-percent sizing as
assumed in AHRI Standard 210/240 for unitary air conditioners. With
110-percent sizing, Rice noted that the default CLFs at 95, 87, and 82
[deg]F would need to be adjusted to 0.977, 0904, and 0.864,
respectively, for a Cd of 0.25. Rice also noted that they would need
further adjustment if a different default Cd were selected or if the
slope of the default single-speed capacity curve was changed. As for
the proposed 75 [deg]F test point, Rice commented that the CLFs with a
0.25 Cd are 0.820 at 100-percent sizing and 0.813 at 110-percent
sizing. (Rice, No. 19 at p. 6; see also Rice, Preliminary Analysis, No.
25 at pp. 1-2)
DOE disagrees with Rice's claim that it is unlikely that room ACs
are sized to match room cooling load at a 95 [deg]F outdoor temperature
test condition. Room ACs are intended to cool a single room, where the
cooling load is more likely to remain steady or within a smaller range.
DOE is not aware of any data showing that room ACs are typically
oversized. Given the application of room ACs to a more limited space,
DOE has determined that it is reasonable to assume that room ACs are
sized to match room cooling loads at a 95 [deg]F outdoor temperature
test condition.
DOE acknowledges the concerns regarding the Cd as proposed in the
June 2020 NOPR. In response, DOE conducted additional testing in
support of this final rule to determine whether the AHRI Standard 210/
240 single-stage Cd of 0.2 suggested by AHAM or a higher value such as
0.42 as suggested by the California IOUs, NEAA, and Rice would be more
appropriate. DOE conducted load-based testing on two single-speed room
ACs with cooling capacities comparable to variable-speed room ACs of
the same brand/manufacturer currently on the market using an outdoor
temperature of 82 [deg]F and cooling loads between 47 and 57 percent of
the full load, with a target of 52 percent (i.e., the center of the
acceptable range specified in the low compressor speed definition). DOE
did not consider cycling losses at an outdoor temperature of 75 [deg]F,
based on the decision to not include testing at that temperature
condition, as discussed in section III.C.2 of this document. The
results of this testing are summarized in Table III-5.
Table III-5--Cycling Loss Factors
------------------------------------------------------------------------
Unit Load % Cd
------------------------------------------------------------------------
Unit 1................................................ 52 0.42
Unit 2................................................ 49 0.39
54 0.30
\*\ 52 0.34
------------------------------------------------------------------------
* Due to difficulties in achieving the target load percentage of 52% for
Unit 2, data for the nearest higher and lower data points were
interpolated to estimate the expected Cd at a 52% load.
On average, the two single-speed room ACs had a Cd of 0.38 at the
82 [deg]F test condition and 52 percent cooling load, which is
relatively close to the maximum Cd value of 0.42 suggested by Rice.
Based on DOE's test data, use of a Cd of 0.38 would increase a
variable-speed room AC's measured CEER by approximately 5.5 percent.
Based on this testing, DOE is adopting a Cd of 0.38, resulting in a CLF
at the 82 [deg]F test condition of 0.81. Interpolating between the 82
[deg]F test condition and CLF of 0.81 and 95 [deg]F test condition and
CLF of 1, results in a CLF of 0.883 for the 87 [deg]F test condition
and a CLF of 0.956 for the 92 [deg]F test condition.
6. Test Condition Weighting Factors
In the approach proposed in the June 2020 NOPR, the four interim
CEER values representing each of the four cooling mode test conditions
were combined, using four weighting factors, into a single weighted-
average CEER value. 85 FR 35700, 35711-35712 (Jun. 11, 2020). The
resulting weighted-average CEER value represented the weighted-average
performance across the range of outdoor test conditions. Id. DOE
calculated weighting factors based on the fractional temperature bin
hours in Table 19 of DOE's test procedure for central air conditioners
at appendix M. DOE identified the fractional temperature bin hours
representing the four test conditions in the proposed approach and
normalized these four values from appendix M so that they sum to 1.00.
Table III-6 shows the June 2020 NOPR weighting factors for each of
the four test conditions.
Table III-6--June 2020 NOPR Proposed Temperature Condition Weighting Factors
----------------------------------------------------------------------------------------------------------------
Evaporator inlet air, [deg]F Condenser inlet air, [deg]F
Test condition ---------------------------------------------------------------- CEER weighting
Dry bulb Wet bulb Dry bulb Wet bulb factor
----------------------------------------------------------------------------------------------------------------
Test Condition 1................ 80 67 95 75 0.05
Test Condition 2................ 80 67 92 72.5 0.16
Test Condition 3................ 80 67 87 69 0.31
Test Condition 4................ 80 67 82 65 0.48
----------------------------------------------------------------------------------------------------------------
[[Page 16460]]
AHAM generally agreed with the waivers, which included the
weighting factors above. (AHAM, No. 13 at p. 4)
ASAP, the Joint Commenters, and Rice expressed concern that DOE's
proposed approach would not reflect seasonal efficiency, claiming it
would result in underweighting performance at the higher outdoor
temperature conditions and overweighting performance at the lower
temperature conditions. ASAP commented that, under the weighted-average
calculation proposed in the June 2020 NOPR delivered cooling from an
hour of operation under the 95 [deg]F test condition was equal to that
under the 82 [deg]F test condition, even though the delivered cooling,
and energy consumption, at the 95 [deg]F test condition is greater.
(ASAP, Public Meeting Transcript, No. 12 at pp. 35-36) Rice suggested
replacing the proposed performance weighting factors based on
fractional bin hours with fractional delivered cooling output per bin
because the proposed approach ignores that, at the lower ambient
temperature bins, the delivered amount of cooling is proportionally
lower (~50 percent at 82 [deg]F ambient). Rice also recommended
replacing the 92 [deg]F test condition with a 75 [deg]F test condition,
to supplement the 82, 87, and 95 [deg]F variable-speed ratings tests,
to represent the missing ~40 percent of cooling load, as discussed in
section III.C.2 of this document. For the proposed 75 [deg]F test
condition, Rice stated the variable-speed unit should be run at a
reduced speed level to obtain ~30 percent of rated capacity at 95
[deg]F ambient temperature. Rice expressed further concern that PAFs
based on the wrong weighting factors and an inappropriately narrowed
cooling range will give too much credit to variable-speed designs that
operate best in this narrowed range, and may inadvertently favor
variable-speed designs that seek ratings advantage by boosting
performance at the 82 [deg]F and higher test conditions at the expense
of lower ambient temperature performance. (Joint Commenters, No. 15 at
p. 2; Rice, No. 17 at pp. 1-2)
DOE agrees that the cooling delivered by room ACs at lower outdoor
temperature test conditions is proportionally lower than at the
appendix F single-speed test condition. Thus, calculating the test
condition weighting factors using fractional delivered cooling output
per temperature bin, as suggested by Rice, applied to the set of test
conditions required by DOE above, would improve the representativeness
of the test procedure. This change would not increase the testing
burden as compared to the test procedure required under the waivers.
While this change would diverge from the industry-accepted test
procedure AHAM RAC-1-2020, the deviation is justified due to the
improvements in representativeness of the test procedure. Therefore,
DOE is adopting the test condition weighting factors shown in Table
III-7, calculated by adjusting the weighting factors in Table III-6 by
the expected cooling load at each condition based on the building load
calculation in AHRI Standard 210/240 (Equation 11.60), and normalizing
the resulting values so the final weighting factors sum to 1.0.
Table III-7--Final Rule Temperature Condition Weighting Factors
----------------------------------------------------------------------------------------------------------------
Evaporator inlet air, [deg]F Condenser inlet air, [deg]F
Test condition ---------------------------------------------------------------- CEER weighting
Dry bulb Wet bulb Dry bulb Wet bulb factor
----------------------------------------------------------------------------------------------------------------
Test Condition 1................ 80 67 95 75 0.08
Test Condition 2................ 80 67 92 72.5 0.20
Test Condition 3................ 80 67 87 69 0.33
Test Condition 4................ 80 67 82 65 0.39
----------------------------------------------------------------------------------------------------------------
7. Weighted CEER and Performance Adjustment Factor
The final step in the waivers and the June 2020 NOPR proposed
approach is to calculate the PAF, representing the improvement over a
theoretical comparable single-speed room AC resulting from the
implementation of a variable-speed compressor. 84 FR 20111 (May 8,
2019); 85 FR 31481 (May 26, 2020); 85 FR 35700, 35712 (Jun. 11, 2020).
The PAF is calculated as the percent improvement of the weighted-
average CEER value of the variable-speed room AC compared to the
weighted-average CEER value of a theoretical comparable single-speed
room AC under the four defined test conditions.
After calculating the PAF, it is added to one and the sum is
multiplied by the CEER value of the variable-speed unit when tested at
the 95 [deg]F test condition according to appendix F, resulting in the
final CEER metric for the variable-speed room AC. By adjusting the
variable-speed room AC CEER values to be comparable to single-speed
room AC CEER values, DOE expects that consumers will have the
information they need to understand the relative efficiency of both
types of room AC. In the June 2020 NOPR, DOE proposed calculations to
determine a PAF, which would adjust the CEER of a variable-speed room
AC to appropriately account for its efficiency improvements relative to
a theoretical comparable single-speed room AC under varying operating
conditions. 85 FR 35700, 35712 (Jun. 11, 2020).
Rice proposed a new method to calculate the weighted average CEER
in which the individual weighting factors are divided by the tested
CEER values, summed, and the reciprocal of the sum is the weighted CEER
value. Rice noted that the result of this formulation exactly matches
the result of the conventional binned method from AHRI 210/240. (Rice,
No. 19 at pp. 3-4)
Rice provided little explanation or evidence supporting this new
calculation approach and whether it provides more representative
results than the approach proposed in the June 2020 NOPR, beyond
indicating the result matches that of the binned method in AHRI 210/
240. DOE notes that the calculation approach prescribed in the waivers
and proposed in the June 2020 NOPR is the same approach specified in
the AHAM RAC-1-2020, which is the latest version of the industry
standard specific to room ACs. Therefore, DOE is adopting the PAF and
weighted CEER calculations proposed in the June 2020 NOPR that align
with AHAM RAC-1-2020 and the waivers granted to date.
8. Air-Enthalpy Test Alternative
DOE recognized the additional test burden associated with testing
variable-speed room ACs at multiple test conditions as proposed. In an
effort to minimize that additional test burden, DOE initially provided
for an optional test in the interim waiver granted to LG that allowed
for use of the air-enthalpy method. 83 FR 30717 (Jun. 29, 2018;
[[Page 16461]]
``LG Interim Waiver''). Following the publication of the LG Interim
Waiver, DOE conducted investigative testing to further analyze the air-
enthalpy method and its suitability for testing room ACs. This testing
demonstrated that this method produced unrepresentative and
inconsistent results and remedying these deficiencies likely would be
unduly burdensome. See 84 FR 20111, 20117. (May 8, 2019) In addition,
the air-enthalpy method does not measure any heat transfer within and
through the unit chassis, while the calorimeter test does. See Id.
Because of the unrepresentative and inconsistent results obtained with
the air-enthalpy test equipment that testing laboratories are likely to
already own, as well as the higher cost and limited availability of
equipment that would be necessary to obtain consistent results for all
room ACs of differing airflow rates, DOE contended that the air-
enthalpy test method would be unduly burdensome for testing
laboratories to implement for room ACs at this time. DOE further noted
that, in the waivers granted since the publication of the LG Interim
Waiver, DOE did not allow the air-enthalpy test method as an
alternative to the calorimeter test method due to the concerns outlined
above. 84 FR 20111, 20117 (May 8, 2019), 84 FR 68159, 68162 (Dec. 13,
2019). In the June 2020 NOPR, DOE did not propose to include an
optional alternative air-enthalpy test method for variable-speed room
ACs in appendix F. 85 FR 35700, 35712 (Jun. 11, 2020).
The California IOUs supported DOE's proposal to exclude the air-
enthalpy test from the room AC test procedure. The California IOUs
commented that DOE's testing demonstrated that this method was
unrepresentative and inconsistent, and remedying those deficiencies
would be unduly burdensome. (California IOUs, No. 14 at pp. 5-6)
For the reasons discussed in the preceding paragraphs and in the
June 2020 NOPR, DOE is not adopting the air-enthalpy test method for
the testing of variable-speed room ACs in this final rule.
9. Product Specific Reporting Provisions
As described, the amendments to appendix F to test variable-speed
room ACs at multiple cooling mode test conditions will require the use
of fixed temperature conditions with a unit thermostat setpoint of 75
[deg]F, using the same specifications for single-speed room AC controls
given in appendix F, rather than using the manufacturer instructions to
fix the compressor speed for variable-speed room ACs at the 95 [deg]F
and 92 [deg]F test conditions. The amendments to appendix F will also
require the compressor speed to be fixed to intermediate speed at the
87 [deg]F test condition and low speed at the 82 [deg]F test condition,
as discussed and defined in section III.D.1.b of this document and in
Sections 2.15 and 2.16, respectively, in appendix F.
In the June 2020 NOPR, to ensure test reproducibility, DOE proposed
requiring in 10 CFR 429.15 that manufacturers provide DOE all necessary
instructions to maintain the compressor speeds required for each test
condition for a variable-speed basic model, as additional product-
specific information pursuant to 10 CFR 429.12 (b)(13). 85 FR 35700,
35713 (Jun. 11, 2020). DOE expected that this requirement would add a
de minimis incremental burden to the existing reporting requirements.
Id. DOE received no comments on this proposal.
DOE is including in 10 CFR 429.15 reporting requirements for
compressor frequencies and control settings at the 87 [deg]F and 82
[deg]F test conditions as additional product-specific information for
certification of each variable-speed room AC basic model. Note that,
unlike the proposal in the June 2020 NOPR, DOE is not requiring
reporting of the compressor frequency and control settings as
additional product-specific information for certification for the 95
[deg]F and 92 [deg]F test conditions for variable-speed units, as
discussed in section III.C.3 of this final rule. Manufacturers may
request treatment of reported material as confidential business
information pursuant to the regulations at 10 CFR 1004.11.
10. Estimated Annual Operating Cost Calculation
In the June 2020 NOPR, in conjunction with the amendments for
testing variable-speed room ACs, DOE proposed corresponding amendments
to the calculation that provides the basis of the annual energy
consumption and operating cost information presented to consumers on
the EnergyGuide Label. 85 FR 35700, 35713 (Jun. 11, 2020). These
changes would allow for an appropriate comparison of the annual energy
consumption and operating costs between single-speed room ACs and
variable-speed room ACs. As such, in the June 2020 NOPR, DOE proposed
that for variable-speed room ACs, the average annual energy consumption
used in calculating the estimated annual operating cost in 10 CFR
430.23(f) would be a weighted average of the annual energy consumption
at each of the four test conditions in newly added Table 1 of appendix
F and the annual energy consumption in inactive mode or off mode. Id.
DOE provided, however, that the electrical power input reported for
variable-speed room ACs for purposes of certification in 10 CFR
429.15(b)(2) would be the value measured at the 95 [deg]F rating
condition, to maintain consistency with the cooling capacity measured
at the same condition. Id.
The California IOUs asserted that the proposed methods for
calculating the annual operating costs will create market confusion,
mainly because the variable-speed annual operating energy consumption
would be based on a weighted average that includes and heavily weights
conditions at which the unit provides less cooling, whereas the average
annual energy consumption of a single-speed unit would continue to be
based on the 95 [deg]F condition, at which the unit provides more
cooling and thus consumes more energy. The California IOUs stated that
using different test procedures and energy consumption calculations for
different equipment that provide the same consumer utility, in this
case, space conditioning, has the potential to create market
distortions. (California IOUs, No. 14 at p. 2)
Conceptually, variable-speed room ACs and single-speed room ACs
both deliver the same amount of cooling to a room, albeit in different
ways. The variable-speed room AC provides constant cooling at a reduced
rate, while the single-speed room AC switches on to provide maximum
cooling for a period of time before switching off and providing no
cooling until the temperature in the room rises again. In both cases,
the total amount of cooling provided to the room remains the same, only
the power consumed by the unit to provide the cooling is different.
Furthermore, the test procedure adopted in this final rule assesses the
improved efficiency associated with variable-speed room ACs relative to
single-speed room ACs, on the basis of adjusted operation at varying,
reduced-temperature operating conditions and accounting for reduced
energy use associated with eliminating cycling losses. This approach of
factoring in reduced-temperature operation over the varying load
conditions during the operating hours of the cooling season is thus
appropriate for variable-speed units but not for single-speed units.
For the reasons discussed above, as proposed in the June 2020 NOPR,
DOE is requiring that the average annual energy consumption used in
calculating the estimated annual operating cost of variable-speed room
ACs in 10 CFR 430.23(f) be a weighted average of the annual energy
consumption at each of the four test conditions in newly added
[[Page 16462]]
Table 1 of appendix F and the annual energy consumption in inactive
mode or off mode, to reflect a realistic measure of energy use and
operating costs in a representative average use cycle. Additionally, as
proposed in the June 2020 NOPR, DOE is defining the electrical power
input reported for variable-speed room ACs for purposes of
certification in 10 CFR 429.15(b)(2) to be the value measured at the 95
[deg]F rating condition, to maintain consistency with the cooling
capacity measured at the same condition, and to provide consumers with
the cooling capacity and power input expected at full load conditions.
D. Definitions
In the June 2020 NOPR, DOE proposed adding a number of definitions
to appendix F to accompany the amendments made in this final rule. None
of these definitions modified the scope of covered products. 85 FR
35700, 35713 (Jun. 11, 2020). The following section describes each
definition in detail.
1. Key Terms
In the June 2020 NOPR, DOE proposed definitions for three key terms
that appeared in appendix F but have no definitions: Cooling mode,
cooling capacity, and combined energy efficiency ratio. 85 FR 35700,
35713 (Jun. 11, 2020). Although room ACs may sometimes operate in other
modes as discussed further in section III.E of this final rule, the
room AC CEER metric determined in appendix F was based primarily on
performance in cooling mode, and several of the amendments also
reference ``cooling mode.'' Therefore, DOE proposed the following
definitions for cooling mode, cooling capacity, and combined energy
efficiency ratio in appendix F:
``Cooling mode'' means an active mode in which a room air
conditioner has activated the main cooling function according to the
thermostat or temperature sensor signal or switch (including remote
control).
``Cooling capacity'' means the amount of cooling, in Btu/h,
provided to an indoor conditioned space, determined in Section 4.1 of
appendix F.
``Combined energy efficiency ratio'' means the energy efficiency of
a room air conditioner as measured in Btu/Wh and determined in Section
5.2.2 of appendix F for single-speed room air conditioners and Section
5.3.12 of appendix F for variable-speed room air conditioners. Id.
To support the amendments pertaining to variable-speed basic
models, in the June 2020 NOPR, DOE proposed defining single-speed and
variable-speed room ACs as follows:
``Single-speed room air conditioner'' means a type of room air
conditioner that cannot automatically adjust the compressor speed based
on detected conditions.
``Variable-speed room air conditioner'' means a type of room air
conditioner that can automatically adjust compressor speed based on
detected conditions. 85 FR 35700, 35714 (Jun. 11, 2020).
AHAM supported DOE's proposal to add these new definitions in
appendix F. (AHAM, No. 13 at p. 6)
For the reasons discussed in the June 2020 NOPR, DOE is adopting
these new definitions in appendix F.
2. Compressor Speeds
In the June 2020 NOPR, DOE also proposed defining the three
compressor speeds required for variable-speed testing. 85 FR 35700,
35714 (Jun. 11, 2020). DOE referred to these compressor speeds as
``full,'' ``intermediate,'' and ``low'' based on the test procedure
terminology of AHRI Standard 210/240, and were proposed as follows:
``Full compressor speed (full)'' means the compressor speed at
which the unit operates at full load test conditions, achieved by
following the instructions certified by the manufacturer.
``Intermediate compressor speed (intermediate)'' means a compressor
speed higher than the low compressor speed by one third of the
difference between low compressor speed and full compressor speed with
a tolerance of plus 5 percent (designs with non-discrete speed stages)
or the next highest inverter frequency step (designs with discrete
speed steps), achieved by following the instructions certified by the
manufacturer.
``Low compressor speed (low)'' means the compressor speed at which
the unit operates at low load test conditions, achieved by following
the instructions certified by the manufacturer, such that
Capacity4, the measured cooling capacity at test condition 4
in Table 1 of appendix F, is not less than 47 percent and not greater
than 57 percent of Capacity1, the measured cooling capacity
with the full compressor speed at test condition 1 in Table 1 of
appendix F.\33\ Id.
---------------------------------------------------------------------------
\33\ Further information about the acceptable range of delivered
cooling at the low compressor speed and lowest test condition, and
how they were derived, can be found in the June 2020 TP NOPR. 85 FR
35700, 35714.
---------------------------------------------------------------------------
AHAM generally agreed with the waivers, which included the proposed
10-percent range and 57-percent cooling load as its upper bound above.
(AHAM, No. 13 at p. 6)
The Joint Commenters, NEAA, and the California IOUs urged DOE to
ensure that the proposed fixed compressor speeds are representative of
real-world operation. The Joint Commenters, NEAA, and the California
IOUs expressed concern that the proposed definition for low compressor
speed could lead to measured efficiency values that are not
representative. NEAA and the California IOUs pointed to the potential
that energy values can subsequently be better than the unit can
actually produce in the real world under conditions of less than 95
[deg]F, allowing manufacturers to ``game'' efficiency ratings as a unit
may run differently if its full-load speed does not match how the unit
runs in the real world under 95 [deg]F outdoor conditions. Thus, NEAA
and the California IOUs suggested that DOE perform additional
investigative testing under the 95 [deg]F test condition under native
controls and reference variable refrigerant flow air conditioning test
procedures regarding whether speed represents use. (NEAA, Public
Meeting Transcript, No. 12 at pp. 37-42; California IOUs, Public
Meeting Transcript, No. 12 at pp. 30-33; California IOUs, No. 14 at p.
4) Similarly, the Joint Commenters asserted that, under DOE's proposal,
manufacturers may have an incentive to test at the 82 [deg]F condition
at the compressor speed that provides a cooling capacity as close as
possible to 47 percent of the full-load capacity since efficiency
typically increases at lower compressor speeds. The Joint Commenters
stated that providing 47 percent of the full-load cooling capacity
would not meet the cooling load at 82 [deg]F, and that a low compressor
speed lower than the operating speed in the field could also result in
the intermediate compressor speed being artificially low. The Joint
Commenters noted that a variable-speed unit that cannot provide 57
percent of the full-load cooling capacity cannot in fact ``match'' the
representative cooling load at the 82 [deg]F condition. The Joint
Commenters stated the test procedure should reflect the potential
efficiency gains of variable-speed units that can vary their speed
continuously (or in smaller discrete steps) relative to units with
compressors with larger discrete steps. (Joint Commenters, No. 15 at
pp. 1-2)
As discussed in section III.D of the June 2020 NOPR, the 10-percent
range allows for discrete variable-speed compressor stages while
maintaining the representativeness of the test procedure. While a
variable-speed room
[[Page 16463]]
AC that cannot operate at precisely 57 percent of the full-load cooling
capacity cannot exactly match the cooling load at the 82 [deg]F test
condition, it could compensate for this in real world operation at an
82 [deg]F outdoor temperature by operating at a lower compressor speed
and moving to a higher compressor speed if the room becomes too hot.
DOE observed variable-speed compressors with this behavior during load-
based testing, though noted that the compressor speed adjustments did
not occur frequently, resulting in extended periods of operation at a
single compressor speed. Furthermore, the difference in power
consumption between the two speeds observed in these scenarios was only
about 5% of the full load operating power, and therefore this style of
operation would still result in more efficient operation compared to
cycling a single-speed compressor on and off to maintain the reduced
load. These variable-speed units still provide significant energy
savings, so it is important to account for this sort of variable-speed
compressor behavior and ensure the test procedure is applicable to even
those variable-speed room ACs that have discrete compressor speed steps
that may not provide exactly 57 percent of the full-load cooling
capacity. DOE further notes that requiring a low compressor speed that
results in a single loading percentage (i.e., 57 percent of the full-
load cooling capacity) with no tolerance could greatly increase design
and manufacturing burden, and thus may disincentivize the adoption of
more efficient technology being newly introduced for room ACs. A 10-
percent range would allow for the various types of variable-speed
compressors (i.e., discrete and non-discrete), avoid significant burden
on manufacturers, and avoid disincentivizing the adoption of this
technology. An upper compressor speed limit of 57 percent of the full-
load cooling capacity would ensure that the unit does not cycle on and
off under the cooling load expected at an outdoor temperature of 82
[deg]F, which would negate much of the efficiency benefits relative to
single-speed room ACs). Therefore, DOE proposed a lower limit of 47
percent to maintain the desired 10-percent range of cooling loads while
setting 57 percent of the full-load cooling capacity as the upper
limit.
In this final rule, DOE is revising the definition of ``full
compressor speed'' proposed in the June 2020 NOPR, to account for the
new requirements discussed in section III.C.3.a (i.e., to require that
user settings be implemented to achieve maximum cooling capacity when
testing using full compressor speed, rather than fixing the compressor
speed using instructions provided by the manufacturer).
Furthermore, DOE is also revising the ``intermediate compressor
speed'' definition proposed in the June 2020 NOPR, to clarify that the
intermediate compressor speed is defined based on the measured capacity
at the 95 [deg]F and 82 [deg]F test condition, using the full and low
compressor speeds, respectively.
Thus, DOE is adopting its proposals from the June 2020 NOPR, as
detailed below.
In summary, DOE defines the following in newly added Sections 2.14,
2.15, and 2.16 of appendix F:
``Full compressor speed (full)'' means the compressor speed at
which the unit operates at full load test conditions, achieved by using
user settings to achieve maximum cooling capacity, according to the
instructions in ANSI/ASHRAE Standard 16-2016 Section 6.1.1.4.
``Intermediate compressor speed (intermediate)'' means a compressor
speed higher than the low compressor speed at which the measured
capacity is higher than the capacity at low compressor speed by one
third of the difference between Capacity4, the measured
cooling capacity at test condition 4 in Table 1 of this appendix, and
Capacity1, the measured cooling capacity with the full
compressor speed at test condition 1 in Table 1 of this appendix, with
a tolerance of plus 5 percent (designs with non-discrete speed stages)
or the next highest inverter frequency step (designs with discrete
speed steps), achieved by following the instructions certified by the
manufacturer.
``Low compressor speed (low)'' as the compressor speed specified by
the manufacturer at which the unit operates at low load test
conditions, such that Capacity4, the measured cooling
capacity at test condition 4 in Table 1 of this appendix, is no less
than 47 percent and no greater than 57 percent of Capacity1,
the measured cooling capacity with the full compressor speed test
condition 1 in Table 1 of this appendix.
E. Active Mode Testing
The following sections describe amendments and other considerations
regarding the active mode testing provisions of appendix F.
1. Cooling Mode
The DOE room AC test procedure uses a calorimeter test method to
determine the cooling capacity and associated electrical power input of
a room AC. See Sections 3.1 and 4.1 of appendix F, as amended. Under
this approach, the test unit is installed between two chambers, one
representing the indoor side and the other representing the outdoor
side, which are both maintained at constant conditions by
reconditioning equipment. The room AC operates in cooling mode,
transferring heat from the indoor side to the outdoor side, while the
reconditioning equipment counteracts the effects of the room AC to
maintain constant test chamber conditions. The room AC cooling capacity
is determined by measuring the required energy inputs to the
reconditioning equipment.
a. Test Setup and Air Sampling
In the June 2020 NOPR, DOE discussed concerns about whether the
measured calorimeter chamber temperature reading is representative of
conditions at the test unit condenser and evaporator inlet, which may
be affected by recirculation from the condenser and evaporator exhaust,
respectively, thereby potentially reducing test repeatability and
reproducibility. 85 FR 35700, 35715 (Jun. 11, 2020). DOE noted that the
size, capability, and orientation of components within calorimeter test
chambers may vary significantly, and that third-party laboratories
extensively analyze their chambers and testing apparatus to maintain
consistent and accurate air sampling measurements. DOE also understood
that temperature gradients and unique airflow patterns can result from
the interaction of a chamber reconditioning apparatus and the room AC
under test, and that these interactions are particular to and dependent
upon factors such as chamber size and shape, chamber equipment
arrangement, size of reconditioning apparatus, and others, as noted in
ANSI/ASHRAE Standard 16-2016 Section 8.2.7. Therefore, in the June 2020
NOPR, DOE contended that universal requirements for air sampling
instrumentation and thermocouple placement could potentially reduce
test accuracy and reproducibility. As discussed in section III.B.2 of
this document, DOE proposed to update the reference to ANSI/ASHRAE
Standard 16 to the most current 2016 version, which includes additional
clarification on best practices for air sampler and thermocouple
placement. Id.
DOE received no comments on the test setup and air sampling
discussion and proposals from the June 2020 NOPR. For the reasons
discussed in the preceding paragraph, DOE is updating the reference to
ANSI/ASHRAE
[[Page 16464]]
Standard 16 to the most current 2016 version, which includes additional
clarification on best practices for air sampler and thermocouple
placement.
b. Air-Enthalpy Test
In the June 2020 NOPR, as discussed in section III.B.2 of this
document, DOE proposed to adopt the use of the calorimeter test method
specified in ANSI/ASHRAE Standard 16-2016 for determining the cooling
mode performance in appendix F. ANSI/ASHRAE Standard 16-2016
additionally permits an air-enthalpy test method (also referred to as a
psychrometric test method), in which a technician places instruments in
or near the evaporator air stream to measure the rate of cooled air
added to the conditioned space. DOE conducted testing to investigate
any differences in test results between air-enthalpy and calorimeter
approaches and found a wide range of discrepancies between the two, for
both cooling capacity and efficiency. DOE expected that obtaining more
accurate results would require specialized test equipment that is
limited in availability and costly to design, develop, and produce and,
hence, DOE did not propose to include an air-enthalpy test approach for
determining cooling mode performance of room ACs. 85 FR 35700, 35715
(Jun. 11, 2020).
The California IOUs agreed with DOE's conclusion to exclude the
air-enthalpy test procedure in ANSI/ASHRAE Standard 16-2016. The
California IOUs noted that DOE's testing, shown in the June 2020 NOPR,
demonstrated that this method was unrepresentative and inconsistent,
and remedying these deficiencies would be unduly burdensome.
(California IOUs, No. 14 at pp. 5-6)
Based on DOE's investigative testing data, DOE maintains its
proposal to not allow the use of the air-enthalpy method for
determining room AC cooling mode performance.\34\
---------------------------------------------------------------------------
\34\ Although DOE incorporates by reference ANSI/ASHRAE Standard
16-2016, which includes an optional air-enthalpy method, only those
sections in ANSI/ASHRAE Standard 16-2016 that apply to the
calorimeter method are referenced in Appendix F.
---------------------------------------------------------------------------
c. Side Curtain Heat Leakage and Infiltration Air
i. Non-Louvered (Through-The-Wall) Room Air Conditioners
In the June 2020 NOPR, DOE proposed to specify in appendix F that
non-louvered room ACs, which are designed for through-the-wall
installation, must be installed using a compatible wall sleeve (per
manufacturer instructions), with the provided or manufacturer-required
rear grille, and with the included trim frame and other manufacturer-
provided installation materials. 85 FR 35700, 35716 (Jun. 11, 2020).
The California IOUs supported DOE's language on the use of
manufacturer-provided wall sleeves. However, the California IOUs
expressed concern that it may not be apparent to laboratories that they
should not use additional material beyond that supplied by the
manufacturer. The California IOUs suggested adding the following
sentence to the proposed appendix F to 10 CRF Part 430: ``No sealing or
insulation material other than that provided by the manufacturer shall
be installed between the wall sleeve and the cabinet of the room air
conditioner.'' (California IOUs, No. 14 at p. 6) DOE understands the
concern about test laboratories using additional sealing and insulation
material between the unit and the wall sleeve. As discussed in the June
2020 NOPR, DOE determined that testing non-louvered room ACs, with the
provided or manufacturer-required rear grille, and with the included
trim frame and other manufacturer-provided installation materials
maximized repeatability and reproducibility. 85 FR 35700, 35716 (Jun.
11, 2020). To address the concern that test laboratories might provide
additional sealing or insulation for a non-louvered room AC, DOE is
clarifying in this final rule that these units should only be tested
using the manufacturer-provided materials.
Therefore, DOE is modifying its proposal from the June 2020 NOPR in
this final rule, specifying in appendix F that non-louvered room ACs,
which are designed for through-the-wall installation, must be installed
using a compatible wall sleeve (per manufacturer instructions), with a
provided or manufacturer-required rear grille, and with only the
included trim frame and other manufacturer-provided installation
materials.
ii. Louvered (Window) Room Air Conditioners
In the June 2020 NOPR, DOE proposed, consistent with Sections
6.1.1.4 and Section 8.4.2 of ANSI/ASHRAE Standard 16-2016, not to
require installing louvered room ACs with the manufacturer-provided
installation materials, including side curtains, and instead to require
testing with the partition wall sealed to the unit. 85 FR 35700, 35717
(Jun. 11, 2020).
AHAM agreed with DOE's proposal to not require the use of
manufacturer-provided installation materials in appendix F for louvered
room ACs. AHAM cited previous DOE testing which showed that using
manufacturer-provided materials included in the retail packaging led to
only a 2.5-percent increase in cooling capacity, while not using
manufacturer-provided installation materials led to a 4.7-percent
reduction in cooling capacity. AHAM stated that this testing did now
show consistent or significant change in cooling capacity. (AHAM, No.
13 at p. 6)
The California IOUs and Joint Commenters asserted the need for DOE
to capture the effects of real-world installations of room AC units.
(California IOUs, No. 14 at p. 6; Joint Commenters, No. 15 at pp. 5-6)
The California IOUs commented that with the requirement for indoor and
outdoor test rooms to have virtually no pressure differential, the
inclusion of side curtains would not have a significant effect in
laboratory testing. The California IOUs also stated that repeatability
of testing is likely to decrease with side curtains included in the
operational test. However, the California IOUs also asserted that
testing with side curtains during only the operational test of window
room AC units is unlikely to be representative of an average-use cycle.
The California IOUs commented that the consumer incurs energy losses
during all hours when the room AC is installed, not just while the
compressor is on. The California IOUs further commented that the method
for calculating the annual cost of operation assumes that the unit is
installed for at least 5,865 hours annually, with only 750 hours of
compressor operation, and thus including energy losses from side
curtains is important to ensure a fair comparison between room ACs with
side curtains and competing products that do not incur side curtain
losses, such as through-the-wall room ACs and mini-split air
conditioners. The California IOUs recommended that DOE evaluate energy
losses due to side curtains regardless of the mode of operation and
determine a constant representative adjustment factor to account for
the losses based on the size of the window room AC in the CEER.
(California IOUs, No. 14 at p. 6) The Joint Commenters cited laboratory
performance testing of louvered units in which the National Renewable
Energy Laboratory found that standard testing simulations do not
account for leakage in operation due to manufacturer-provided
installation materials. According to the Joint Commenters, leakage from
the manufacturer-provided
[[Page 16465]]
materials was equivalent to a 27-42 square inch hole in the wall, and
an improved installation has the potential to reduce this leakage by
65-85 percent. The Joint Commenters commented that, in the preliminary
2020-06 Technical Support Document (``TSD''), DOE explained that
because DOE's investigative testing was conducted with no pressure
difference between the rooms, the tests were not able to measure the
real-world impacts of infiltration.\35\ The Joint Commenters asserted
that the test procedure does not capture potentially significant
inefficiencies in typical installations. The Joint Commenters
encouraged DOE to investigate how the test procedure could capture the
effects of real-world installations of room AC units, which would
provide an incentive to manufacturers to offer improved installation
materials such that leakage is reduced. The Joint Commenters further
stated that, in addition to saving energy, reducing leakage would also
improve cooling performance by reducing the amount of hot air entering
from outdoors, which ultimately would improve consumer comfort. (Joint
Commenters, No. 15 at pp. 5-6)
---------------------------------------------------------------------------
\35\ 2020-06 Technical Support Document: Energy Efficiency
Program For Consumer Products And Commercial And Industrial
Equipment: Room Air Conditioners (EERE-2014-BT-STD-0059-0013).
---------------------------------------------------------------------------
DOE is not aware of an industry-accepted method to evaluate heat
losses to the outdoors during the room AC representative use cycle or
during times when the room AC is installed but not operating, or of any
data quantifying the magnitude of these losses.
DOE has preliminarily investigated applying a pressure difference
between the indoor and outdoor chambers during the standard appendix F
test procedure, as the Joint Commenters suggested. While it was
possible to create a pressure difference between the rooms, temperature
and humidity within the chamber did not stabilize and the resulting
test data did not meet the tolerance requirements from ASHRAE 16-2016
required in appendix F. Furthermore, for some larger-capacity units, it
was difficult for the chamber to maintain the pressure difference
throughout the rating test period given the air flow interaction
between the unit operation and the chamber reconditioning equipment. It
is therefore unclear how the influence of infiltration air could be
measured within the DOE test procedure for room ACs, given the
difficulties associated with testing using a fixed pressure difference
between the indoor and outdoor test chambers.
Therefore, as proposed, DOE is not requiring in this final rule
installation of louvered room ACs with the manufacturer-provided
installation materials, including side curtains, and instead is
requiring the partition wall be sealed to the unit during testing, as
specified in Section 6.1.1.4 of ANSI/ASHRAE Standard 16-2016.
Accordingly, as discussed above, DOE is not adopting a test to
evaluate, or a constant representative adjustment factor to account
for, heat losses to the outdoors during the room AC representative use
cycle or during times when the room AC is installed but not operating
and is not adopting a test requiring a pressure differential between
the indoor and outdoor chambers at this time.
d. Test Conditions
Multiple Test Conditions
In the June 2020 NOPR, DOE did not propose additional cooling mode
test conditions for single-speed room ACs because a test procedure that
measures performance at both peak temperature conditions and a less
extreme temperature would require a new overall weighted metric, room
AC performance has historically been based on peak performance under
elevated outdoor temperature conditions and peak performance would not
be clearly portrayed by a weighted metric, and information about
variable-speed room ACs is too limited to justify the expected
substantial increase in test burden, utility impacts, and consumer
confusion associated with measuring performance at reduced outdoor
temperature test conditions for all room ACs. 85 FR 35700, 35723 (Jun.
11, 2020).
AHAM agreed with maintaining a single test condition for single-
speed room ACs. (AHAM, Public Meeting Transcript, No. 12 at pp. 50-53)
ASAP, the California IOUs, and NEAA stated that testing only at the 95
[deg]F outdoor test condition may not provide an accurate relative
ranking of different single-speed room AC units as they are likely to
have varying efficiency and performance at lower temperature
conditions. (ASAP, Public Meeting Transcript, No. 12 at pp. 11-12;
California IOUs, Public Meeting Transcript, No. 12 at pp. 30-33) NEAA
suggested that single-speed room AC units be given the option to test
at multiple test conditions to allow better single-speed options to
demonstrate improved performance, while not requiring all products to
retest. (NEAA, No. 16 at p. 3)
The California IOUs encouraged DOE to amend the room AC test
procedure to improve representativeness and facilitate product
comparison with air conditioners tested under appendix M1 to 10 CFR
part 430. The California IOUs stated that DOE's proposal to create a
part-load test for room ACs with variable-speed compressors recognizes
that testing single-speed room ACs only at full capacity is
unrepresentative of an average-use cycle. The California IOUs stated
that, in their experience, using different test procedures and energy
consumption calculations for equipment that provides the same consumer
utility, in this case, space conditioning, has the potential to create
market distortions. The California IOUs further stated that the rest of
the air conditioning industry has moved towards testing at part load,
and recommended that DOE consider a consistent approach for room
ACs.\36\ To minimize market confusion, the California IOUs suggested
that the room AC test procedure should be as similar as possible for
the test procedure for central air conditioners and heat pumps,
including measuring part-load performance for room ACs, as defined for
central air conditioners and heat pumps in appendix M1 to 10 CFR part
430. The California IOUs stated that aligning test procedures and
energy efficiency metrics for room ACs with a cooling capacity greater
than or equal to 9,000 Btu/h and central air conditioners and heat
pumps would enhance consumers' ability to choose the product that best
fits their needs. The California IOUs further stated that, because many
room AC manufacturers also make products that fall under appendix M1 to
10 CFR part 430 and are familiar with the test procedure, the
transition to a test procedure for room ACs aligned with appendix M1
would be relatively easy. (California IOUs, No. 14 at pp. 1-3)
---------------------------------------------------------------------------
\36\ Based on the context of the California IOUs' comment, it is
understood that the California IOUs are referring to how appendix M1
accounts for operation at reduced cooling loads and not load-based
testing as discussed above.
---------------------------------------------------------------------------
While certain single-speed room ACs may perform differently under
reduced outdoor temperature test conditions, requiring two or more
tests for every single-speed room AC, either by testing at multiple
test conditions or aligning the room AC test procedure with appendix
M1, would at least double the test burden on manufacturers of single-
speed room ACs that represent the vast majority of the market. A
voluntary reduced outdoor temperature test would require a revision of
the test procedure and the CEER metric to account for a multiple-
condition single-speed room AC test. Such an option may be
[[Page 16466]]
confusing to consumers who are trying to compare single-speed room ACs
with metrics that are not directly comparable. Additionally, because
single-speed units cannot cycle on and off during a reduced outdoor
temperature test (i.e., because the chamber conditions are held
constant throughout the test), the reduced outdoor temperature test
alone would not be representative of the single-speed room AC's real
world operation, and cycling would need to additionally be considered.
Aligning the room AC test procedure with the appendix M1 test procedure
would greatly increase the test burden on manufacturers for typically
inexpensive and seasonal units. Therefore, in this final rule, DOE is
not establishing multiple test conditions for single-speed room ACs or
adopting provisions to align the room AC test procedure with the
central air conditioner test procedure at appendix M1.
Cooling Test Alternatives
DOE is aware of two approaches to measure part-load performance of
a room AC, dynamic-cooling-load testing and constant-cooling-load
testing. In both a dynamic-cooling-load test and a constant-cooling-
load test, the chamber indoor cooling load was provided at a specified
rate or value throughout testing instead of maintaining specific
temperature conditions within the test chamber. In the June 2020 NOPR,
DOE explored a constant-cooling-load test and concluded that increased
test burden, reduced repeatability and reproducibility, and a current
lack of industry consensus on a constant-cooling-load or dynamic-
cooling-load test procedure outweighed potential benefits. 85 FR 35700,
35723 (Jun. 11, 2020). Thus, in the June 2020 NOPR, DOE did not propose
a constant-cooling-load or dynamic-cooling-load test for room ACs. Id.
AHAM agreed with DOE's initial conclusion that the potential
benefits of constant-cooling-load or dynamic-cooling-load tests do not
justify the increase in test burden or the negative impact on
repeatability and reproducibility. According to AHAM, DOE's testing
demonstrated that conducting a constant-cooling-load test in a
calorimeter test chamber would impact the repeatability and
reproducibility--at cooling loads less than 75 percent of the tested
unit cooling capacity, the indoor wet-bulb temperature variation in
DOE's test sample sometimes exceeded 0.3 [deg]F. AHAM cited that DOE
also observed challenges with the test chamber--the chamber controls
were not capable of automatically achieving a specific cooling load
condition. Additionally, AHAM commented that this type of testing would
significantly increase test burden. (AHAM, No. 13 p. 6)
ASAP, Joint Commenters, NEAA, and the California IOUs disagreed
with DOE's initial conclusion and proposal in the June 2020 NOPR and
urged DOE to use a load-based test to better represent real-world
efficiency of both single-speed and variable-speed units. (ASAP, Public
Meeting Transcript, No. 12 at p. 1; Joint Commenters, No. 15 at pp. 3-
4; NEAA, No. 16 at pp. 4-5) ASAP commented that using a load-based test
procedure for all room ACs would provide the most representative
efficiency ratings and accurate information for customers. (ASAP,
Public Meeting Transcript, No. 12 at p. 1) The Joint Commenters noted
that, for single-speed units, a load-based test would capture the
impact of cycling losses. The Joint Commenters further noted that, for
variable-speed units, load-based testing would capture the impact of
control strategies that determine compressor and fan speed operation
and would ensure that the test procedure reflects the real-world
operation of these units. (Joint Commenters, No. 15 at pp. 3-5) NEAA
commented that its initial load-based testing of ductless heat pumps
indicated that controls can dramatically affect performance and
suggested the same effects could be found with room ACs. (NEAA, No. 16
at pp. 4-5)
DOE acknowledges that a constant-cooling-load or dynamic-cooling-
load test for all room ACs has the potential to be more representative
of real-world operation. However, a load-based test would reduce
repeatability and reproducibility due to limitations in current test
chamber capabilities, as discussed in the June 2020 NOPR, which would
negatively impact the representativeness of the results and potentially
be unduly burdensome. 85 FR 35700, 35723-35726 (Jun. 11, 2020).
Therefore, based on DOE's investigative testing and to maintain test
procedure alignment with AHAM RAC-1-2020, in this final rule DOE
maintains its proposal not to include a constant-cooling-load or
dynamic-cooling-load test for room ACs in appendix F.
e. Power Factor
In the June 2020 NOPR, DOE did not propose requirements for
measuring and reporting the power factor \37\ for room ACs. 85 FR
35700, 35726 (Jun. 11, 2020). Based on investigative testing DOE found
that there was no significant difference between the actual power drawn
by a room AC and the apparent power supplied to the unit, meaning the
additional burden of measuring and reporting the power factor would
outweigh any benefits this information would provide. Id. The
California IOUs agreed that the results--an average power factor of
0.97 on 23 units--do not provide evidence that warrants the inclusion
of power factor in the test procedure. However, the California IOUs
commented that variable-speed motor controllers often have lower power
factors compared to direct-on-line motors used in single-speed room ACs
\38\ and requested that DOE indicate whether the room ACs tested
included representative variable-speed compressor room ACs. If not, the
California IOUs requested that DOE consider conducting power factor
testing of variable-speed room ACs and reporting the results.
(California IOUs, No. 14 at p. 5)
---------------------------------------------------------------------------
\37\ The power factor of an alternating current electrical power
system is defined as the ratio of the real power flowing to the load
to the apparent power in the circuit. A load with a low power factor
draws more electrical current than a load with a high power factor
for the same amount of useful power transferred. The higher currents
associated with low power factor increase the amount of energy lost
in the electricity distribution system.
\38\ Greenberg, S. (1988). Technology Assessment: Adjustable-
Speed Motors and Motor Drives. Lawrence Berkeley National
Laboratory. LBNL Report #: LBL-25080. Retrieved from https://escholarship.org/uc/item/41z9k3q3.
---------------------------------------------------------------------------
None of the 23 units DOE tested during the power factor
investigation for the June 2020 NOPR were variable-speed units. To
date, DOE has been unable to gather power factor data for variable-
speed room ACs due to instrumentation limitations. In the absence of
data that suggest that variable-speed power factors are significantly
different than single-speed power factors, DOE is not adopting a power
factor measurement or reporting requirements for room ACs at appendix F
in this final rule.
2. Heating Mode
When a reverse cycle room AC is in heating mode, the indoor
evaporator coil switches roles and becomes the condenser coil,
providing heat to the indoor room. The outdoor condenser unit also
switches roles to serve as the evaporator and discharges cold air to
the outdoors. Appendix F does not include a method for measuring room
AC energy consumption in heating mode.
In the June 2020 NOPR, DOE did not propose a heating mode test
procedure for room ACs based on the lack of data of room AC used for
heating and given the potential concerns raised by stakeholders that
combining cooling mode and heating mode performance
[[Page 16467]]
into a single metric may limit a consumer's ability to recognize the
mode-specific performance and compare performance with room ACs that
only provide cooling, and may lead to a reduction in cooling mode
efficiency. 85 FR 35700, 35726 (Jun. 11, 2020).
AHAM supported DOE's proposal, noting that there are insufficient
data to support developing a test to measure heating mode as current
data suggest it is not a significant operating mode for room ACs. AHAM
stated that national, statistically significant consumer use data must
be used to justify changes in order to satisfy the requirements of the
Data Quality Act. In urging DOE to adopt AHAM RAC-1-2020 (formerly AHAM
RAC-1-2019), which does not include a heating mode test, AHAM further
agreed with DOE's proposal. (AHAM, Public Meeting Transcript, No. 12 at
pp. 9-10; AHAM, No. 13 at pp. 2, 7)
For the reasons discussed, and in the June 2020 NOPR, DOE is not
establishing a heating mode test procedure for room ACs in appendix F.
3. Off-Cycle Mode
Single-speed room ACs typically operate with a compressor on-off
control strategy, where the compressor runs until the room temperature
drops below a consumer-determined setpoint, then ceases to operate
(i.e., the unit operates in off-cycle mode \39\) until the room
temperature rises above the setpoint, at which time the compressor
starts again. The points at which the compressor stops and restarts
depend on the setpoint temperature defined by the user and the deadband
\40\ programmed by the manufacturer. During the period in which the
compressor remains off (i.e., off-cycle mode), the fan may operate in
different ways depending on manufacturer implementation: (1) The fan
ceases operation entirely; (2) the fan continues to operate for a short
period of time after the setpoint is reached and then stops until the
compressor is reactivated; (3) the fan continues to operate
continuously for a short period of time, after which it cycles on and
off periodically until the compressor is reactivated; or (4) the fan
continues to operate continuously until the compressor is
reactivated.\41\
---------------------------------------------------------------------------
\39\ ``Off-cycle mode'' is distinct from ``off mode,'' in which
a room AC not only ceases compressor and fan operation but also may
remain in that state for an indefinite time, not subject to restart
by thermostat or temperature sensor signal.
\40\ The term ``deadband'' refers to the range of ambient air
temperatures around the setpoint for which the compressor remains
off, and above which cooling mode is triggered on.
\41\ Unlike air circulation mode, off-cycle mode is not user-
initiated and only occurs when the ambient temperature has satisfied
the setpoint.
---------------------------------------------------------------------------
In the June 2020 NOPR, DOE did not propose a definition or test
procedure for off-cycle mode. 85 FR 35700, 35728 (Jun. 11, 2020)
Through investigative testing, DOE found that average power use in off-
cycle mode was relatively low (i.e., approximately 10 percent or less)
compared to the average power used in cooling mode. Id. Thus, DOE
initally determined that the additional 2-hour test burden that would
be required to establish a test procedure for off-cycle mode would
outweigh the benefits of measuring off-cycle mode power for room ACs.
Id.
AHAM agreed with DOE's proposal, commenting that EPCA requires test
procedures to measure only a representative average use cycle/period of
use, not every possible mode. AHAM further commented that the cooling
cycle continues to be the most representative average use cycle for
this purpose, with no data on the prevalence of consumer use of off-
cycle mode. (AHAM, No. 13 at p. 7)
The California IOUs, the Joint Commenters, and NEAA disagreed with
DOE's proposal, stating the exclusion of off-cycle mode testing would
result in non-representative efficiency ratings. (California IOUs, No.
14 at pp. 4-5; Joint Commenters, No. 15 at p. 3; NEAA, No. 16 at pp. 3-
4) The California IOUs commented that ENERGY STAR finds off-cycle power
consumption sufficiently important to require qualifying room ACs to
enable Energy Saver Mode (``ESM'') by default when the unit is switched
on. The California IOUs expressed concern that assuming all room ACs
typically operate in ESM may be unwarranted. (California IOUs, No. 14
at pp. 4-5) The Joint Commenters commented that room AC units with
continuous fan operation can consume close to 240 kilowatt-hours per
year of energy in off-cycle mode alone, pointing to its prevalence and
importance in testing. (Joint Commenters, No. 15 at p. 3) NEAA stated
that, while more data are needed on the number of hours spent in off-
cycle and recirculation mode, these modes have the potential to account
for a significant percentage of annual energy use. For example, NEAA
commented that if a unit in the 6,000-7,900 Btu/h capacity range spent
25 percent of the amount of time in the off-cycle mode than it does in
compressor mode (i.e., 187.5 hours, DOE estimates 750 compressor hours
per year on average), the off-cycle mode would account for 9 percent of
annual energy use for an average continuous operation fan. NEAA further
commented that if this same room AC spent the same number of hours in
off-cycle hours as in compressor mode, the off-cycle mode would account
for 37 percent of its annual energy use. (NEAA, No. 16 at pp. 3-4) The
California IOUs, the Joint Commenters, and NEAA urged DOE to capture
off-cycle mode power consumption, including fan operation, to provide a
better representation of actual efficiency in the field and more
accurate information to consumers. (California IOUs, No. 14 at pp. 4-5;
Joint Commenters, No. 15 at p. 3; NEAA, No. 16 at pp. 3-4) The
California IOUs specifically requested that DOE investigate consumer
use of ESM compared to always-on fan operation modes, and determine the
proportion of operating hours where the fan runs with the compressor
off in order to accurately determine average power consumption during
off-cycle mode and to include that power consumption in the test
procedure. The California IOUs also requested that DOE create a
definition for ``off-cycle mode''. (California IOUs, No. 14 at pp. 4-5)
EPCA requires that the test procedures be reasonably designed to
produce test results which measure the energy efficiency of room air
conditioners during a representative average use cycle or period of use
and not be unduly burdensome to conduct. (42 U.S.C. 6293(b)(2)) EPCA
does not require the test procedure to evaluate every mode of
operation. DOE notes that there are insufficient available data on the
amount of time room ACs spend in off-cycle mode to support a conclusion
that a test procedure capturing such operation would be representative
of an average use cycle. Furthermore, as discussed in the June 2020
NOPR, DOE found that energy consumption in off-cycle mode was
relatively low, approximately 10 percent or less, of the power used
during cooling mode. 85 FR 35700, 35728 (Jun. 11, 2020). While DOE
understands that units with continuous fan modes during off-cycle mode
may consume a higher percentage of energy relative to cooling mode, the
units in DOE's test sample that operated the fan continuously during
off-cycle mode were older models which are no longer in production and
are not likely prevalent on the market.
Because of the lack of data regarding operation in off-cycle, DOE
is not adopting test procedures to address this mode.
[[Page 16468]]
F. Standby Modes and Off Mode
Section 1.5 of appendix F defines inactive mode as a mode that
facilitates the activation of active mode by remote switch (including
by remote control) or internal sensor, or provides continuous status
display. Section 1.6 of appendix F defines off mode as a mode distinct
from inactive mode in which a room AC is connected to a mains power
source and is not providing any active or standby mode function and
where the mode may persist for an indefinite time. An indicator that
only shows the user that the product is in the off position is included
within the classification of an off mode. Section 1.7 of appendix F
defines standby mode as any mode where a room AC is connected to a
mains power source and offers one or more of the following user-
oriented or protective functions which may persist for an indefinite
time: (a) To facilitate the activation of other modes (including
activation or deactivation of active mode) by remote switch (including
remote control), internal sensor, or timer; or (b) continuous
functions, including information or status displays (including clocks)
or sensor-based functions.
1. Referenced Standby Mode and Off Mode Test Standard
In the January 2011 Final Rule, DOE amended the room AC test
procedure by incorporating provisions from IEC Standard 62301 First
Edition for measuring standby mode and off mode power. 76 FR 971, 979-
980 (Jan. 6, 2011). At that time, DOE reviewed the IEC Standard 62301
First Edition and concluded that it would generally apply to room ACs,
with some clarifications, including allowance for testing standby mode
and off mode in either the test chamber used for cooling mode testing,
or in a separate test room that meets the specified standby mode and
off mode test conditions. 76 FR 971, 986.
On January 27, 2011, IEC published IEC Standard 62301 Second
Edition, an internationally accepted test procedure for measuring
standby power in residential appliances, which included various
clarifications to IEC Standard 62301 First Edition. Provisions from IEC
Standard 62301 Second Edition are currently referenced in DOE test
procedures for multiple consumer products for which standby mode and
off mode energy use are measured (e.g., dehumidifiers, portable ACs,
dishwashers, clothes washers, clothes dryers, conventional cooking
products, microwave ovens).
Based on its previous determinations for similar consumer products,
DOE has determined that use of IEC Standard 62301 Second Edition for
measuring the standby mode and off mode energy use for room ACs would
improve the accuracy and representativeness of the test measurements
and would not be unduly burdensome, compared to IEC Standard 62301
First Edition. 80 FR 45801, 45822 (Jul. 31, 2015); 81 FR 35241, 35242
(Jun. 1, 2016); 77 FR 65942, 55943 (Oct. 31, 2012); 80 FR 46729, 46746
(Aug. 5, 2015); 78 FR 49607, 49609 (Aug. 14, 2013); 85 FR 50757, 50758
(Aug. 8, 2020); 78 FR 4015, 4016 (Jan. 18, 2013). Accordingly, DOE
references relevant paragraphs of IEC Standard 62301 Second Edition in
appendix F in place of those from IEC Standard 62301 First Edition, as
follows:
a. Power Measurement Uncertainty
In the June 2020 NOPR, DOE proposed to reference the power
equipment specifications from Section 4.4 of IEC Standard 62301 Second
Edition for determining standby mode and off mode power in appendix F.
85 FR 35700, 35729 (Jun. 11, 2020). DOE received no comments on these
proposals from the June 2020 NOPR. For the reasons discussed on the
June 2020 NOPR and in this document, DOE is requiring in this final
rule that the power equipment specifications from Section 4.4 of IEC
Standard 62301 Second Edition be used for determining standby mode and
off mode power in appendix F.
b. Power Consumption Measurement Procedure
In the June 2020 NOPR, DOE proposed to adopt through reference the
sampling method from Section 5.3.2 of IEC Standard 62301 Second Edition
to determine standby mode and off mode average power in appendix F. DOE
initially determined the proposed update to the sampling method for all
standby mode and off mode testing would not increase test burden,
because power meters that can measure, store, and output readings at
the required proposed sampling rate and accuracy for the sampling
method are already widely used by test laboratories. DOE also initially
determined that the power consumption measured with the sampling method
would not substantively vary from that measured with the direct meter
or average reading methods. 85 FR 35700, 35729 (Jun. 11, 2020).
DOE received no comments on the proposal discussed above. For the
reasons discussed on the June 2020 NOPR and in this document, DOE is
adopting and referencing the sampling method from Section 5.3.2 of IEC
Standard 62301 Second Edition to determine standby mode and off mode
average power in appendix F.
G. Network Functionality
Network functionality on room ACs may enable functions such as
communicating with a network to provide real-time information on the
temperature conditions in the room or receiving commands via a remote
user interface such as a smartphone. DOE has observed that network
features on room ACs are designed to operate in the background while
the room AC performs other functions. These network functions may
operate continuously during all operating modes, and therefore may
impact the power consumption in all operating modes.
DOE declined to adopt provisions to account for energy consumption
associated with network functionality in the January 2011 Final Rule
due to the lack of information about room ACs with network
functionality. 76 FR 971, 983-984 (Jan. 6, 2011). On September 17,
2018, DOE published a request for information (``RFI'') on the emerging
smart technology appliance and equipment market. 83 FR 46886. In that
RFI, DOE sought information to better understand market trends and
issues in the emerging market for appliances and commercial equipment
that incorporate smart technology. DOE's intent in issuing the RFI was
to ensure that DOE did not inadvertently impede such innovation in
fulfilling its statutory obligations in setting efficiency standards
for covered products and equipment.
In the June 2020 NOPR, DOE requested comment on the same issues
presented in the emerging smart technologies RFI, as they may be
applicable to room ACs and on the proposal to specify that all network
or connectivity settings must be disabled during testing. 85 FR 35700,
35730 (Jun. 11, 2020).
AHAM and GEA supported DOE's proposal to test units with network
capabilities with network settings disabled for all operating modes.
AHAM noted this proposal is in accordance with AHAM RAC-1-2020, AHAM
commented that there is not yet adequate consumer use data to justify
amending the room AC test procedure. AHAM further stated that they are
aware that some consumers do not even connect their network-enabled
appliances to use the available features. AHAM recommended that DOE
ensure that the room AC test procedure does not prematurely address new
designs
[[Page 16469]]
which may not yet have an average use or be in common use, which could
stifle innovation. Similarly, GEA commented that regulating the already
small energy consumption of connected features risks stifling
innovation, including the further development of energy saving
features. (AHAM, No. 13 at pp. 8; GEA at No. 18, pp. 2) GEA reiterated
these sentiments in comments on the energy conservation standards
(``ECS'') Preliminary Analysis. (GEA, Preliminary Analysis, No. 26 at
p. 2)
ASAP, the Joint Commenters, and NEAA expressed concern that testing
units with network capabilities with network settings disabled for all
operating modes would significantly underrepresent energy consumption.
They asserted that this would result in non-representative efficiency
ratings. ASAP commented that units with network capabilities may
consume additional power continuously in all operating modes. (ASAP,
Public Meeting Transcript, No. 12 at pp. 12, 80-81; Joint Commenters,
No. 15 at p. 3; NEAA, No. 16 at pp. 5-6)
As stated in the June 2020 NOPR, DOE is not aware of any data
regarding how often consumers use these features or how much energy the
features consume during an average representative use cycle, and
commenters did not provide any such data. Absent consumer usage data,
DOE is unable at this time to evaluate potential test procedure
provisions related to network capabilities.
Similarly, DOE declined to adopt provisions to account for energy
consumption associated with network functionality in the January 2011
Final Rule due to the lack of information about room ACs with network
functionality. 76 FR 971, 983-984 (Jan. 6, 2011). The test procedure
adopted, however, did not affirmatively require that network
capabilities of units under test be disabled. As a result, due to the
growth in the number of network-enabled models of room ACs on the
market, it has become increasingly likely that the test procedure
adopted in January 2011 Final Rule may unintentionally capture energy
use attributable to network functions. The amendment adopted in this
rule precludes this possibility by reinforcing the intent of the
January 2011 Final Rule.
While there are a number of connected room ACs on the market with
varying implementations of connected features, DOE is not aware of any
data available, nor did interested parties provide any such data,
regarding the consumer use of connected features. Without this data,
DOE is unable to establish a representative test configuration for
assessing the energy consumption of connected functionality for room
ACs. DOE therefore maintains its proposal to test room ACs with network
capabilities disabled. DOE is specifying in Section 3.1.4 of appendix F
that units with network capabilities must be tested with the network
settings disabled, and that those network settings remain disabled for
all tested operating modes (i.e., cooling mode, standby mode, and off
mode).
H. Demand Response
The current U.S. Environmental Protection Agency's (``EPA's'')
ENERGY STAR Product Specification for Room Air Conditioners Version 4.1
\42\ specifies optional criteria for room ACs designed to provide
additional functionality to consumers, such as alerts and messages,
remote control and energy information, as well as demand response
(``DR'') capabilities, which support the inclusion of room ACs in smart
grid applications (hereafter ``connected room ACs''). These
capabilities are network capabilities, as they require the room AC
maintain communication continuously or intermittently with a server;
however, DR functionality is a unique subset that enables smart grid
communication and active modified operation in response to DR signals
from an electric utility.
---------------------------------------------------------------------------
\42\ The ENERGY STAR Certification Criteria V4.1 is available at
https://www.energystar.gov/sites/default/files/ENERGY%20STAR%20Version%204.0%20Room%20Air%20Conditioners%20Program%20Requirements.pdf.
---------------------------------------------------------------------------
On June 7, 2017, DOE and EPA published the final ENERGY STAR
Program Requirements Product Specification for Room Air Conditioners:
Test Method to Validate Demand Response (hereafter the ``June 2017
ENERGY STAR Test Method''). This test method validates that a unit
complies with ENERGY STAR's DR requirements, which are designed to
reduce energy consumption upon receipt of a DR signal. However, DOE
notes that the June 2017 ENERGY STAR Test Method does not measure the
total energy consumption or average power while a unit responds to a DR
signal. DOE noted in the June 2020 NOPR that no connected room ACs were
available at that time on the market that complied with the full set of
ENERGY STAR Version 4.1 connected criteria, and therefore, the energy
consumption could not be determined for a range of products and
manufacturers. 85 FR 35700, 35731 (Jun. 11, 2020). DOE also stated that
there is little available information indicating the frequency of
received DR signals that are specified in the ENERGY STAR connected
criteria, and as a result, it is not possible to determine annual
energy use attributed to DR signals. Id. Given the issues raised in the
September 17, 2018 emerging smart technologies RFI, the lack of
available connected room ACs on the market, and the lack of energy
consumption and usage data regarding the DR signals, DOE did not
propose to amend its room AC test procedure to measure energy
consumption while a connected room AC is responding to a DR signal. Id.
AHAM supported DOE's proposal, stating that products are
continuously evolving with new features and with greater functionality.
AHAM stated that these new features, including connectivity, are in the
early stages of development and consumers are only beginning to use and
understand them. AHAM commented that there are not yet adequate
consumer use data to justify amending the room AC test procedure to
include energy consumption while a connected room AC responds to a DR
signal. AHAM further commented that consumer use and understanding of
new technologies continues to evolve and to inform manufacturers'
designs. As DOE evaluates potential changes, AHAM recommended that DOE
be mindful that it will take time before many new features, designs,
and technologies lend themselves to a ``representative average''
consumer use. AHAM further recommended that DOE ensure that the room AC
test procedure does not prematurely address new designs which may not
yet have an average use or be in common use, as doing so could stifle
innovation. (AHAM, No. 13 at p. 8) AHAM reiterated these points in
comments on the ECS Preliminary Analysis. (AHAM, Preliminary Analysis,
No. 19 at pp. 15-16)
DOE continues to find that there are insufficient consumer usage
data to support amending the room AC test procedure to include
connected energy consumption, and that the test procedure should not
prematurely address new technologies absent sufficient average use
data. Therefore, DOE is not amending the DOE test procedure for room
ACs to include energy consumption while a connected room AC responds to
a DR signal.
I. Combined Energy Efficiency Ratio
The room AC energy efficiency metric, CEER, accounts for the
cooling provided by the room AC in cooling mode as a function of the
total energy consumption in cooling mode and inactive mode or off mode.
In the June 2020 NOPR, DOE proposed to maintain
[[Page 16470]]
the current CEER calculations for single-speed room ACs, given the
proposals discussed above. 85 FR 35700, 35731 (Jun. 11, 2020).
AHAM supported DOE's proposal to maintain the current CEER
calculations for single-speed room ACs, stating that there was no need
to or justification for amending the CEER calculations at this time.
(AHAM, No. 13 at p. 8).
NEAA supported implementing a seasonal metric for all room ACs that
would represent the performance at multiple outdoor temperature
conditions, similar to the seasonal energy efficiency ratio (``SEER'')
metric used for central air conditioners. NEAA suggested that in the
near-term to reduce test burden, single-speed equipment should be
allowed to use the current test procedure and to calculate a seasonal
rating using a PAF. NEAA recommended that DOE maintain the peak CEER
metric as a voluntary reporting metric. NEAA noted that this peak-load
efficiency can continue to be used by utility programs and energy
modelers but would not be the basis for energy conservation standards.
(NEAA, No. 16 at p. 3; see also NEAA, Preliminary Analysis, No. 24 at
pp. 3-4)
DOE is not amending the energy efficiency metric for room ACs.
While DOE recognizes the utility of a single test approach for all room
ACs, as discussed in section III.E.1 of this document, DOE has
determined that testing single-speed room ACs at multiple outdoor
temperature conditions would result in an unwarranted increase in test
burden on manufacturers. While this increase in test burden could be
mitigated using NEEA's suggestion to test single-speed room ACs using
the current test procedure and applying a PAF, DOE notes that this
approach would require the recertification of all room ACs currently on
the market, and for most models would likely change the cooling
capacity and efficiency, both of which are metrics that are familiar to
consumers and are used as a basis for purchasing decisions. Thus, a
fundamental change to the cooling capacity and CEER metric, by adopting
multiple test conditions or applying an adjustment factor for all
single-speed room ACs would result in recertification costs and
potential consumer confusion. Based on this reasoning, DOE is
proceeding with its proposal to maintain the current CEER calculations
for single-speed room ACs.
J. Certification and Verification Requirements
In the June 2020 NOPR, DOE proposed to update the sampling plan and
certification reporting requirements in 10 CFR 429.15(a)(2)(ii) and
(b)(2) to conform the current metric by requiring the reporting of the
CEER metric and to remove references to the previous performance
metric, EER. 85 FR 35700, 35731(Jun. 11, 2020). For variable-speed room
ACs, DOE proposed to require additional reporting of cooling capacity
and electrical input power for each of the three additional test
conditions as part of a supplemental PDF that would be referenced
within the manufacturer's certification report. Id. DOE received no
comments on the proposed changes to 10 CFR 429.15. DOE is amending the
certification requirements as proposed to conform the reporting
requirements to the current CEER metric and removing references to the
previous performance metric, EER. For variable-speed room ACs, DOE
requires the additional reporting of cooling capacity and electrical
input power for each of the three additional test conditions as part of
a supplemental PDF that would be referenced within the manufacturer's
certification report.
K. Reorganization of Calculations in 10 CFR 430.23
Previously, 10 CFR 430.23(f) contained instructions for determining
a room AC's estimated annual operating cost, with calculations
described for the average annual energy consumption, combined annual
energy consumption, EER, and CEER.
In the June 2020 NOPR, DOE proposed to remove the obsolete EER
calculation. 85 FR 35700, 35731 (Jun. 11, 2020).
The California IOUs expressed concern with DOE removing the EER
calculation and metric, as doing so would prevent manufacturers from
showing information if they so choose. The California IOUs supported
its removal as long as DOE continues to require reporting of the full-
load capacity and power consumption, which is a substitute for EER.
With the retention of the full-load capacity and power consumption
metrics, the California IOUs stated that consumers are unlikely to be
harmed, as knowing power consumption and efficiency at full load is
essential to consumers in hot climates. Alternatively, the California
IOUs recommended that DOE require reporting of the EER metric in the
Compliance Certification Management System (``CCMS'') database, but
that it not be the metric for energy conservation standards.
(California IOUs, Public Meeting Transcript, No. 12 at pp. 72-75) AHAM
commented that everything that is recorded is an additional burden and,
in this case, continuing to report the EER metric in the CCMS database
would be an unnecessary, additional burden. (AHAM, Public Meeting
Transcript, No. 12 at p. 74)
DOE agrees that requiring manufacturers to report the EER metric
would be an unnecessary, additional burden on manufacturers. DOE also
notes that maintaining the EER metric in public-facing materials may be
confusing to consumers but that consumers will still have access to
similarly important information through the full-load capacity and
power consumption metrics that are currently reported to DOE and listed
in the CCMS. Therefore, DOE is proceeding with its proposal from the
June 2020 NOPR to remove the obsolete EER calculation and maintain the
requirement to report full-load capacity and power consumption.
In the June 2020 NOPR, DOE further proposed moving the CEER
calculation from 10 CFR 430.23(f) to appendix F, to mitigate potential
confusion, harmonize with the approach used for other products, and
improve the readability of the calculations previously in 10 CFR
430.23(f) and appendix F. 85 FR 35700, 35731 (Jun. 11, 2020).
Similarly, DOE proposed removing the calculations for average annual
energy consumption in cooling mode and combined annual energy
consumption from 10 CFR 430.23(f) and instead adding calculations for
annual energy consumption for each operating mode in appendix F. Id.
DOE also proposed to include in 10 CFR 429.15(a)(3) through (5),10 CFR
429.15 (b)(3), and 10 CFR 430.23(f) instructions to round cooling
capacity to the nearest 100 Btu/h, electrical input power to the
nearest 10 W, and CEER to the nearest 0.1 British thermal units per
watt-hour (``Btu/Wh''), to provide consistency in room AC capacity,
electrical input power, and efficiency representations. Id.
In the June 2020 NOPR, DOE similarly proposed to establish
instructions in appendix F to round cooling capacity to the nearest 100
Btu/h, electrical input power to the nearest 10 W, and CEER to the
nearest 0.1 Btu/Wh, to provide consistency in room AC capacity,
electrical input power, and efficiency representations. Id. DOE also
proposed to revise the estimated annual operating cost calculation to
reference the annual energy consumption for each operating mode as
calculated in appendix F, as opposed to the annual energy
[[Page 16471]]
consumption calculation previously located in 10 CFR 430.23. Id.
AHAM understood DOE's proposal to be that rounding would take place
on both the tested and reported values and opposed such an approach.
AHAM stated that rounding both the tested and reported values would add
too much variation; for example, it could add 1 percent error just due
to rounding for an 8,000 Btu/h unit. AHAM further commented that there
is a significant difference in results if only the mean is rounded
versus both the individual test measurements and the mean being
rounded. Accordingly, AHAM instead proposed rounding should take place
only on the rated values (i.e., the cooling capacity) and that rounding
should be to the hundreds of Btu/h because it is clearer to communicate
round numbers to retailers and consumers. (AHAM, No. 13 at p. 9)
DOE agrees with AHAM that rounding both the tested and reported
values may introduce too much variance in the rated values. In the June
2020 NOPR, DOE proposed to include rounding instructions to provide
consistency in room AC capacity, electrical input power, and efficiency
representations when conducting the test. 85 FR 35700, 35731 (Jun. 11,
2020). While consistency in rounding between reported values and tested
values is important, the accuracy of reported values outweighs concerns
about consistency with the rounding for tested values. The proposed
rounding instructions at 10 CFR 429.15 will ensure that there is
consistency in reported results, while not affecting the accuracy of
those reported values. Therefore, DOE is removing the proposed rounding
instructions from 10 CFR 430.23(f) but maintaining the rounding
instructions proposed in for 10 CFR 429.15.
L. Effective Date, Compliance Date and Waivers
The effective date for the adopted test procedure amendment will be
30 days after publication of this final rule in the Federal Register.
EPCA prescribes that all representations of energy efficiency and
energy use, including those made on marketing materials and product
labels, must be made in accordance with that amended test procedure,
beginning 180 days after publication of the test procedure final rule
in the Federal Register. (42 U.S.C. 6293(c)(2)) EPCA provides an
allowance for individual manufacturers to petition DOE for an extension
of the 180-day period if the manufacturer would experience undue
hardship in meeting the 180-day deadline. (42 U.S.C. 6293(c)(3)) To
receive such an extension, a manufacturer must file a petition with DOE
no later than 60 days before the end of the 180-day period and detail
how the manufacturer will experience undue hardship. Id.
Upon the compliance date of test procedure provisions in this final
rule 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)(2) (2020). Recipients of any such waivers are required to
test products subject to the waiver according to the amended test
procedure as of the compliance date of the amended test procedure. The
amendments adopted in this document pertain to issues addressed by
waivers and interim waivers granted to LG (Case No. 2020-011), Midea
(Case No. 2020-017), and GEA (Case No. 2020-004). This final rule also
addresses issues identified in pending waivers for Danby (Case No.
2020-019),\43\ Electrolux (Case No. 2020-016),\44\ MARS (Case No. 2020-
021),\45\ and Perfect Aire (Case No. 2020-018).\46\ Per 10 CFR
430.27(l), the publication of this final rule eliminates the need for
the continuation of granted waivers. Publication of this final rule
also eliminates the need for the pending petitions for waivers which
have been requested for certain room AC models with variable-speed
capabilities, as this final test procedure incorporates testing and
certification requirements for variable-speed room ACs. However, these
petitions are in ``pending'' status until DOE communicates a denial to
the petitioners.
---------------------------------------------------------------------------
\43\ The Danby waiver docket can be found at https://beta.regulations.gov/docket/EERE-2020-BT-WAV-0036/document.
\44\ The Electrolux waiver docket can be found at https://beta.regulations.gov/document/EERE-2020-BT-WAV-0033-0001.
\45\ The MARS waiver docket can be found at https://beta.regulations.gov/docket/EERE-2020-BT-WAV-0038/document.
\46\ The Perfect Aire waiver docket can be found at https://beta.regulations.gov/docket/EERE-2020-BT-WAV-0034.
---------------------------------------------------------------------------
M. Test Procedure Costs, Impacts, and Other Topics
1. Test Procedure Costs and Impacts
In this document, DOE amends the existing test procedure for room
ACs by: (1) Referencing current versions of industry standards, as
appropriate; (2) including test provisions to reflect the relative
performance improvements for variable-speed room ACs compared to
single-speed room ACs, including tests at multiple temperature
conditions, based on the alternate test procedure from recent waivers;
(3) updating definitions in support of the provisions for testing
variable-speed room ACs, to ensure the test procedure is self-
contained, reflects existing test procedure terminology, and
distinguishes between variable-speed and single-speed units; and (4)
incorporating specifications and minor corrections to improve the test
procedure repeatability, reproducibility, and overall readability. DOE
has determined that the test procedure as amended by this final rule
will not be unduly burdensome for manufacturers to conduct.
Further discussion of the cost impacts of the test procedure
amendments are presented in the following paragraphs.
Appendix F
This final rule generally adopts the latest industry standard test
procedure, AHAM RAC-1-2020, for determining the CEER for variable-speed
room ACs, consistent with the procedure prescribed in the test
procedure waivers. There are 10 basic models (four from LG and six from
Midea) currently on the market subject to the test procedure waivers
for variable-speed room ACs. 84 FR 20111 (May 8, 2019); 85 FR 31481
(May 26, 2020). DOE expects that as many as 18 additional basic models
will soon be introduced to the market subject to the GEA interim waiver
for their variable-speed room ACs. 85 FR 59770 (Sep. 23, 2020).
However, the final rule differs from those waivers in that it requires
the use of fixed temperature conditions with a unit setpoint of 75
[deg]F when testing at the 92 [deg]F and 95 [deg]F outdoor conditions,
and therefore, the 28 variable-speed room AC basic models identified by
DOE would need to be re-tested and re-certified according to this final
rule. DOE did not identify any other manufacturers currently producing
variable-speed room ACs that are sold in the United States.
DOE estimates that it would require approximately 8 hours for
manufacturers to conduct a variable-speed test for a room AC unit, as
specified in this final rule. Additionally, DOE requires that at least
two units must be tested per basic model. Therefore, a manufacturer
would spend approximately 16 hours to test one variable-speed room AC
basic model. DOE used the wage rate of a mechanical engineering
technician from the Bureau of Labor Statistics (``BLS'') to estimate
the wage rate of an employee performing these tests.\47\ Additionally,
[[Page 16472]]
DOE used data from the BLS to estimate the percent of wages that
account for the total employee compensation.\48\ Using data from these
sources, DOE estimates the hourly employer cost of an employee
performing these test to be approximately $40.63.\49\ Using these
estimates, DOE determines that there will be a one-time cost of
approximately $18,202 for the 28 variable-speed room AC basic models to
be re-tested.\50\
---------------------------------------------------------------------------
\47\ Based on data from BLS's May 2019 publication of the
``Occupational Employment and Wages,'' the mean hourly wage for
mechanical engineering technologists and technicians is $28.44. See:
https://www.bls.gov/oes/current/oes173027.htm. Last Accessed on
November 12, 2020.
\48\ Based on data from BLS's June 2020 publication of the
``Employer Costs for Employee Compensation,'' wages and salary are
70.0 percent of the total employer costs for a private industry
worker. See: https://www.bls.gov/bls/news-release/ecec.htm#2020.
Last Accessed on November 12, 2020.
\49\ $28.44/0.700 = $40.63
\50\ 28 (number of variable-speed room AC basic models
potentially requiring re-testing) x 2 (units tested per basic model)
x 8 (hours per test for variable-speed room ACs) x $40.63 (fully
burdened hourly labor rate of employee performing the tests) =
$18,202.24
---------------------------------------------------------------------------
In addition to the re-testing costs, DOE estimates these three
manufacturers may have to re-certify their variable-speed room AC basic
models to DOE. DOE estimates that manufacturers spend approximately 35
hours per manufacturer to submit a certification report to DOE, which
may contain multiple models per report. DOE used an hourly wage rate of
$100 for an employee to complete this certification report.\51\
Therefore, DOE estimates that the three manufacturers would spend
approximately $10,500 to re-certify their variable-speed room AC basic
models.\52\
---------------------------------------------------------------------------
\51\ The 35-hour estimate and the $100 hourly wage estimate are
based on information from 82 FR 57240; 57242 (December 4, 2017).
\52\ 3 (number of manufacturers with variable-speed room ACs) x
35 (hours per certification report) x $100 (hourly labor rate) =
$10,500.
---------------------------------------------------------------------------
Additional Amendments
The additional amendments adopted in this final rule (e.g., those
applicable to the test procedure for single-speed room ACs) will not
alter the measured energy efficiency as compared to the previous test
procedure. The manufacturers of single-speed room ACs are able to
continue relying on data generated under the previous test procedure
for single-speed room ACs. The remainder of the amendments adopted in
this final rule are as follows and will not impact test costs or
results: (i) Modify the room AC definition in 10 CFR 430.2; (ii) adopt
new definitions in appendix F for ``cooling mode,'' ``cooling
capacity,'' ``combined energy efficiency ratio,'' and ``single-speed
room air conditioner;'' (iii) update reference to ANSI/ASHRAE Standard
16 to the most current 2016 version, which includes additional
clarification on best practices for air sampler and thermocouple
placement; (iv) specify in appendix F that non-louvered room ACs, which
are designed for through-the-wall installation, must be installed using
a compatible wall sleeve (per manufacturer instructions), with a
provided or manufacturer-required rear grille, and with only the
included trim frame and other manufacturer-provided installation
materials; (v) require that the power equipment specifications from
Section 4.4 of IEC Standard 62301 Second Edition be used for
determining standby mode and off mode power in appendix F; (vi) adopt
and reference the sampling method from Section 5.3.2 of IEC Standard
62301 Second Edition to determine standby mode and off mode average
power in appendix F; (vii) modify the certification requirements to
conform the reporting requirements to the current CEER metric, and
remove references to the previous performance metric, EER; and (viii)
remove the proposed rounding instructions from the edits made to 10 CFR
430.23(f) but maintain the rounding instructions proposed in for 10 CFR
429.15.
The amendments described above update referenced standards, modify
or add definitions, and provide further instructions and clarification
to the existing test procedures, and thus have no impact on testing
cost.
2. Other Test Procedure Topics
In this final rule, DOE is adopting a number of modifications to
the Federal room AC test procedure to clarify provisions where the
applicable industry consensus standard may either be silent or not
fully address the matter in question. DOE has determined that the
modifications are necessary so that the DOE test method satisfies the
requirements of EPCA.
IV. Procedural Issues and Regulatory Review
A. Review Under Executive Order 12866
The Office of Management and Budget (``OMB'') has determined that
this test procedure rulemaking does not constitute a ``significant
regulatory action'' under section 3(f) of Executive Order (``E.O.'')
12866, Regulatory Planning and Review, 58 FR 51735 (Oct. 4, 1993).
Accordingly, this action was not subject to review under the Executive
Order by the Office of Information and Regulatory Affairs (``OIRA'') in
OMB.
B. Review Under the Regulatory Flexibility Act
The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires
preparation of a final regulatory flexibility analysis (``FRFA'') for
any final rule where the agency was first required by law to publish a
proposed rule for public comment, unless the agency certifies that the
rule, if promulgated, will not have a significant economic impact on a
substantial number of small entities. As required by Executive Order
13272, ``Proper Consideration of Small Entities in Agency Rulemaking,''
67 FR 53461 (August 16, 2002), DOE published procedures and policies on
February 19, 2003 to ensure that the potential impacts of its rules on
small entities are properly considered during the DOE rulemaking
process. 68 FR 7990. DOE has made its procedures and policies available
on the Office of the General Counsel's website: http://energy.gov/gc/office-general-counsel.
DOE reviewed this adopted rule under the provisions of the
Regulatory Flexibility Act and the procedures and policies published on
February 19, 2003. The final rule prescribes amended test procedures to
measure the energy consumption of room ACs in cooling mode, standby
modes, and off mode. DOE concludes that this final rule will not have a
significant impact on a substantial number of small entities, and the
factual basis for this certification is set forth in the following
paragraphs.
The Small Business Administration (``SBA'') considers a business
entity to be small business, if, together with its affiliates, it
employs less than a threshold number of workers specified in 13 CFR
part 121. These size standards and codes are established by the North
American Industry Classification System (``NAICS'') and are available
at https://www.sba.gov/document/support--table-size-standards. Room AC
manufacturing 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 used DOE's Compliance Certification Database to create a
list of companies that sell room ACs covered by this rulemaking in the
United States. Additionally, DOE surveyed the AHAM member directory to
identify manufacturers of room ACs. DOE then consulted other publicly
available data, purchased company reports from vendors such as Dun and
Bradstreet,
[[Page 16473]]
and contacted manufacturers, where needed, to determine if they meet
the SBA's definition of a ``small business manufacturing facility'' and
have their manufacturing facilities located within the United States.
Based on this analysis, DOE did not identify any small businesses that
currently manufacture room ACs in the United States. DOE requested
comment on its initial determination that there are no small businesses
that manufacture room ACs in the United States. 85 FR 35700, 35733
(Jun. 11, 2020). DOE received no comment on this issue.
Because DOE did not identify any small businesses that manufacture
room ACs in the United States, DOE concludes that the impacts of the
test procedure amendments adopted in this final rule will not have a
``significant economic impact on a substantial number of small
entities,'' and that the preparation of an FRFA is not warranted.
DOE has submitted a certification and supporting statement of
factual basis to the Chief Counsel for Advocacy of the Small Business
Administration for review under 5 U.S.C. 605(b).
C. Review Under the Paperwork Reduction Act of 1995
Manufacturers of room ACs 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 room ACs. (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.
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
Pursuant to the National Environmental Policy Act of 1969
(``NEPA''), DOE has analyzed this action in accordance with NEPA and
DOE's NEPA implementing regulations (10 CFR part 1021). DOE has
determined that this rule qualifies for categorical exclusion under 10
CFR part 1021, subpart D, Appendix A5 because it is an interpretive
rulemaking that does not change the environmental effect of the rule
and meets the requirements for application of a CX. See 10 CFR
1021.410. Therefore, DOE has determined that promulgation of this rule
is not a major Federal action significantly affecting the quality of
the human environment within the meaning of NEPA, and does not require
an EA or EIS.
E. Review Under Executive Order 13132
Executive Order 13132, ``Federalism,'' 64 FR 43255 (August 4,
1999), imposes certain requirements on agencies formulating and
implementing policies or regulations that preempt State law or that
have Federalism implications. The Executive Order requires agencies to
examine the constitutional and statutory authority supporting any
action that would limit the policymaking discretion of the States and
to carefully assess the necessity for such actions. The Executive Order
also requires agencies to have an accountable process to ensure
meaningful and timely input by State and local officials in the
development of regulatory policies that have Federalism implications.
On March 14, 2000, DOE published a statement of policy describing the
intergovernmental consultation process it will follow in the
development of such regulations. 65 FR 13735. DOE examined this final
rule and determined that it will not have a substantial direct effect
on the States, on the relationship between the national government and
the States, or on the distribution of power and responsibilities among
the various levels of government. EPCA governs and prescribes Federal
preemption of State regulations as to energy conservation for the
products that are the subject of this final rule. States can petition
DOE for exemption from such preemption to the extent, and based on
criteria, set forth in EPCA. (42 U.S.C. 6297(d)) No further action is
required by Executive Order 13132.
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,
this final 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 regulatory action resulting in a rule that may cause the
expenditure by State, local, and Tribal governments, in the aggregate,
or by the private sector of $100 million or more in any one year
(adjusted annually for inflation), section 202 of UMRA requires a
Federal agency to publish a written statement that estimates the
resulting costs, benefits, and other effects on the national economy.
(2 U.S.C. 1532(a), (b)) The UMRA also requires a Federal agency to
develop an effective process to permit timely input by elected officers
of State, local, and Tribal governments on a proposed ``significant
intergovernmental mandate,'' and requires an agency plan
[[Page 16474]]
for giving notice and opportunity for timely input to potentially
affected small governments before establishing any requirements that
might significantly or uniquely affect small governments. On March 18,
1997, DOE published a statement of policy on its process for
intergovernmental consultation under UMRA. 62 FR 12820; also available
at http://energy.gov/gc/office-general-counsel. DOE examined this final
rule according to UMRA and its statement of policy and determined that
the rule contains neither an intergovernmental mandate, nor a mandate
that may result in the expenditure of $100 million or more in any year,
so these requirements do not apply.
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 final rule will not have any impact on the autonomy or integrity
of the family as an institution. Accordingly, DOE has concluded that it
is not necessary to prepare a Family Policymaking Assessment.
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 regulation will 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 https://www.energy.gov/sites/prod/files/2019/12/f70/DOE%20Final%20Updated%20IQA%20Guidelines%20Dec%202019.pdf. DOE has
reviewed this final rule under the OMB and DOE guidelines and has
concluded that it is consistent with applicable policies in those
guidelines.
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 significant energy action. A
``significant energy action'' is defined as any action by an agency
that promulgated or is expected to lead to promulgation of a final
rule, and that (1) is a significant regulatory action under Executive
Order 12866, or any successor order; and (2) is likely to have a
significant adverse effect on the supply, distribution, or use of
energy; or (3) is designated by the Administrator of OIRA as a
significant energy action. For any significant energy action, the
agency must give a detailed statement of any adverse effects on energy
supply, distribution, or use if the regulation is implemented, and of
reasonable alternatives to the action and their expected benefits on
energy supply, distribution, and use.
This regulatory action is not a significant regulatory action under
Executive Order 12866. Moreover, it would not have a significant
adverse effect on the supply, distribution, or use of energy, nor has
it been designated as a significant energy action by the Administrator
of OIRA. Therefore, it is not a significant energy action, and,
accordingly, DOE has not prepared a Statement of Energy Effects.
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. 788;
``FEAA'') Section 32 essentially provides in relevant part that, where
a proposed rule authorizes or requires use of commercial standards, the
notice of proposed rulemaking must inform the public of the use and
background of such standards. In addition, section 32(c) requires DOE
to consult with the Attorney General and the Chairman of the Federal
Trade Commission (``FTC'') concerning the impact of the commercial or
industry standards on competition.
The modifications to the test procedure for room ACs adopted in
this final rule incorporates testing methods contained in certain
sections of the following commercial standards: AHAM RAC-1-2020, ANSI/
ASHRAE Standard 16-2016, ANSI/ASHRAE Standard 41.1-2013, ANSI/ASHRAE
Standard 41.2-1987 (RA 1992), ANSI/ASHRAE Standard 41.3-2014, ANSI/
ASHRAE Standard 41.6-2014, ANSI/ASHRAE Standard 41.11-2014, and IEC
Standard 62301 Second Edition. DOE has evaluated these standards and is
unable to conclude whether it fully complies 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
has consulted with both the Attorney General and the Chairman of the
FTC about the impact on competition of using the methods contained in
these standards and has received no comments objecting to their use.
M. Congressional Notification
As required by 5 U.S.C. 801, DOE will report to Congress on the
promulgation of this rule before its effective date. The report will
state that it has been determined that the rule is not a ``major rule''
as defined by 5 U.S.C. 804(2).
N. Description of Materials Incorporated by Reference
In this final rule, DOE incorporates by reference the industry
standard published by AHAM, titled ``AHAM RAC-1-2020, `Room Air
Conditioners' (AHAM RAC-1-2020).'' AHAM RAC-1-2020 establishes standard
methods for measuring performance and includes sections on definitions,
test conditions, tests for standard measurements, performance tests,
and safety which apply to room air conditioners.
Copies of AHAM RAC-1-2020 can be purchased from the Association of
Home Appliance Manufacturers at 1111 19th Street NW, Suite 402,
Washington, DC 20036, 202-872-5955, or by going to http://www.aham.org.
In this final rule, DOE incorporates by reference the industry test
standard published by ASHRAE, titled ``ANSI/ASHRAE 16-2016 (``ANSI/
ASHRAE 16-2016''), Method of Testing for Rating Room Air Conditioners
and Packaged Terminal Air Conditioners.'' The amendments in this final
rule include updated general references to ANSI/ASHRAE Standard 16-
2016, that address all areas of testing including installation, test
setup, instrumentation, test conduct, data collection, and
calculations. Specifically, the test procedure codified by this final
rule references section 5.6.2 ``Electrical Instruments'' of ANSI/ASHRAE
16-
[[Page 16475]]
2016, which provides requirements of accuracy for instruments used for
measuring all electrical inputs to the calorimeter compartments.
In this final rule, DOE incorporates by reference the industry test
standards published by ASHRAE, titled ``Standard Method for Temperature
Measurement,'' ANSI/ASHRAE Standard 41.1-2013, ``Standard Methods for
Air Velocity and Airflow Measurement,'' ANSI/ASHRAE Standard 41.2-1987
(RA 1992), ``Standard Methods for Pressure Measurement,'' ANSI/ASHRAE
Standard 41.3-2014, ``Standard Methods for Humidity Measurement,''
ANSI/ASHRAE Standard 41.6-2014, and ``Standard Methods for Power
Measurement,'' ANSI/ASHRAE Standard 41.11-2014. These standards are
industry-accepted test procedures that prescribe methods and
instruments for measuring temperature, air velocity, pressure,
humidity, and power, respectively. These standards are cited by ANSI/
ASHRAE Standard 16-2016, which this final rule incorporates by
reference.
Copies of the ASHRAE Standards may be purchased from the American
Society of Heating and Air-Conditioning Engineers at 1255 23rd Street
NW, Suite #825, Washington, DC 20037, (202) 833-1830, or by going to
https://webstore.ansi.org/.
In this final rule, DOE incorporates by reference the industry
standard by IEC, titled ``IEC 62301 Household electrical appliances--
Measurement of standby power,'' (Edition 2.0, 2011-01) for appendix F.
Specifically, the test procedure codified by this final rule references
Section 5, Paragraph 5.3.2 ``Sampling Method'' of IEC 62301, which
provides test conditions, testing equipment, and methods for measuring
standby mode and off mode power consumption, and Section 4.4 ``Power
measuring instruments'' of IEC 62301, which provides specifications for
determining standby mode and off mode power in appendix F. The
amendments in this final rule include updating general references to
IEC 62301 from the First Edition to the Second Edition and adopting a
new standby power test approach.
Copies of IEC Standard 62301 may be purchased from the
International Electrotechnical Commission at 3 rue de Varemb[eacute],
P.O. Box 131, CH-1211, Geneva 20, Switzerland, or by going to https://webstore.iec.ch/ and http://www.webstore.ansi.org.
V. Approval of the Office of the Secretary
The Secretary of Energy has approved publication of this final
rule.
List of Subjects
10 CFR Part 429
Administrative practice and procedure, Confidential business
information, Energy conservation, Household appliances, Reporting and
recordkeeping requirements.
10 CFR Part 430
Administrative practice and procedure, Confidential business
information, Energy conservation, Household appliances, Imports,
Incorporation by reference, Intergovernmental relations, Small
businesses.
Signing Authority
This document of the Department of Energy was signed on March 8,
2021, by Kelly Speakes-Backman, Principal Deputy Assistant Secretary
and Acting 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 March 11, 2021.
Treena V. Garrett,
Federal Register Liaison Officer, U.S. Department of Energy.
For the reasons stated in the preamble, DOE amends parts 429 and
430 of chapter II of title 10, Code of Federal Regulations as set forth
below:
PART 429--CERTIFICATION, COMPLIANCE, AND ENFORCEMENT FOR CONSUMER
PRODUCTS AND COMMERCIAL AND INDUSTRIAL EQUIPMENT
0
1. The authority citation for part 429 continues to read as follows:
Authority: 42 U.S.C. 6291-6317; 28 U.S.C. 2461 note.
0
2. Section 429.15 is amended by:
0
a. Removing the words ``energy efficiency ratio'' in paragraph
(a)(2)(ii) and adding in its place the words ``combined energy
efficiency ratio (CEER) (determined in Sec. 430.23(f)(3) for each unit
in the sample)'';
0
b. Adding paragraphs (a)(3), (4), and (5);
0
c. Revising paragraph (b)(2); and
0
d. Adding paragraph (b)(3).
The additions and revision read as follows:
Sec. 429.15 Room air conditioners.
(a) * * *
(3) The cooling capacity of a basic model is the mean of the
measured cooling capacities for each tested unit of the basic model, as
determined in Sec. 430.23(f)(1) of this chapter. Round the cooling
capacity value to the nearest hundred.
(4) The electrical power input of a basic model is the mean of the
measured electrical power inputs for each tested unit of the basic
model, as determined in Sec. 430.23(f)(2) of this chapter. Round the
electrical power input to the nearest ten.
(5) Round the value of CEER for a basic model to one decimal place.
(b) * * *
(2) Pursuant to Sec. 429.12(b)(13), a certification report shall
include the following public product-specific information: The combined
energy efficiency ratio in British thermal units per Watt-hour (Btu/
Wh)), cooling capacity in British thermal units per hour (Btu/h), and
the electrical power input in watts (W).
(3) Pursuant to Sec. 429.12(b)(13), a certification report for a
variable-speed room air conditioner basic model must include
supplemental information and instructions in PDF format that include--
(i) The mean measured cooling capacity for the units tested at each
additional test condition (i.e., respectively, the mean of
Capacity2, Capacity3, and Capacity4,
each expressed in Btu/h and rounded to the nearest 100 Btu/h, as
determined in accordance with section 4.1.2 of appendix F of subpart B
of part 430 of this chapter);
(ii) The mean electrical power input at each additional test
condition (respectively, the mean of Power2,
Power3, and Power4, each expressed in W and
rounded to the nearest 10 W, as determined in accordance with section
4.1.2 of appendix F of subpart B of part 430 of this chapter); and
(iii) All additional testing and testing set up instructions (e.g.,
specific operational or control codes or settings) necessary to operate
the basic model under the required conditions specified by the relevant
test procedure.
PART 430--ENERGY CONSERVATION PROGRAM FOR CONSUMER PRODUCTS
0
3. The authority citation for part 430 continues to read as follows:
[[Page 16476]]
Authority: 42 U.S.C. 6291-6309; 28 U.S.C. 2461 note.
0
4. Section 430.2 is amended by revising the definition of ``Room air
conditioner'' to read as follows:
Sec. 430.2 Definitions.
* * * * *
Room air conditioner means a window-mounted or through-the-wall-
mounted encased assembly, other than a ``packaged terminal air
conditioner,'' that delivers cooled, conditioned air to an enclosed
space, and is powered by single-phase electric current. It includes a
source of refrigeration and may include additional means for
ventilating and heating.
* * * * *
0
5. Section 430.3 is amended by:
0
a. Revising paragraph (g)(1);
0
b. In paragraph (g)(6), removing ``appendix X1'' and adding in its
place ``appendices F and X1'';
0
c. Redesignating paragraphs (g)(11) through (14) as (g)(15) through
(18), respectively;
0
d. Redesignating paragraphs (g)(9) as (g)(12) and (g)(10) as (g)(13);
0
e. Redesignating paragraph (g)(8) as (g)(9);
0
f. Adding new paragraphs (g)(8), (10), (11), and (14);
0
g. Revising paragraph (i)(6);
0
h. In paragraph (o)(5), removing ``appendix F, and''; and
0
i. In paragraph (o)(6), adding ``F,'' before ``G''.
The revisions and additions read as follows:
Sec. 430.3 Materials incorporated by reference.
* * * * *
(g) * * *
(1) ANSI/ASHRAE Standard 16-2016 (``ANSI/ASHRAE 16''), Method of
Testing for Rating Room Air Conditioners, Packaged Terminal Air
Conditioners, and Packaged Terminal Heat Pumps for Cooling and Heating
Capacity, ANSI approved November 1, 2016, IBR approved for appendix F
to subpart B.
* * * * *
(8) ANSI/ASHRAE Standard 41.2-1987 (RA 92), (``ASHRAE 41.2-1987 (RA
1992)''), Standard Methods for Laboratory Airflow Measurement, ANSI
reaffirmed April 20, 1992, IBR approved for appendix F to subpart B.
* * * * *
(10) ANSI/ASHRAE Standard 41.3-2014, (``ASHRAE 41.3-2014''),
Standard Methods for Pressure Measurement, ANSI approved July 3, 2014,
IBR approved for appendix F to subpart B.
(11) ANSI/ASHRAE Standard 41.6-2014, (``ASHRAE 41.6-2014''),
Standard Method for Humidity Measurement, ANSI approved July 3, 2014,
IBR approved for appendix F to subpart B.
* * * * *
(14) ANSI/ASHRAE Standard 41.11-2014, (``ASHRAE 41.11-2014''),
Standard Methods for Power Measurement, ANSI approved July 3, 2014, IBR
approved for appendix F to subpart B.
* * * * *
(i) * * *
(6) AHAM RAC-1-2020 (``AHAM RAC-1''), Energy Measurement Test
Procedure for Room Air Conditioners, approved 2020, IBR approved for
appendix F to subpart B.
* * * * *
0
6. Section 430.23 is amended by revising paragraph (f) to read as
follows:
Sec. 430.23 Test procedures for the measurement of energy and water
consumption.
* * * * *
(f) Room air conditioners. (1) Determine cooling capacity,
expressed in British thermal units per hour (Btu/h), as follows:
(i) For a single-speed room air conditioner, determine the cooling
capacity in accordance with section 4.1.2 of appendix F of this
subpart.
(ii) For a variable-speed room air conditioner, determine the
cooling capacity in accordance with section 4.1.2 of appendix F of this
subpart for test condition 1 in Table 1 of appendix F of this subpart.
(2) Determine electrical power input, expressed in watts (W) as
follows:
(i) For a single-speed room air conditioner, determine the
electrical power input in accordance with section 4.1.2 of appendix F
of this subpart.
(ii) For a variable-speed room air conditioner, determine the
electrical power input in accordance with section 4.1.2 of appendix F
of this subpart, for test condition 1 in Table 1 of appendix F of this
subpart.
(3) Determine the combined energy efficiency ratio (CEER),
expressed in British thermal units per watt-hour (Btu/Wh) and as
follows:
(i) For a single-speed room air conditioner, determine the CEER in
accordance with section 5.2.2 of appendix F of this subpart.
(ii) For a variable-speed room air conditioner, determine the CEER
in accordance with section 5.3.11 of appendix F of this subpart.
(4) Determine the estimated annual operating cost for a room air
conditioner, expressed in dollars per year, by multiplying the
following two factors and rounding as directed:
(i) For single-speed room air conditioners, the sum of
AECcool and AECia/om, determined in accordance
with section 5.2.1 and section 5.1, respectively, of appendix F of this
subpart. For variable-speed room air conditioners, the sum of
AECwt and AECia/om, determined in accordance with
section 5.3.4 and section 5.1, respectively, of appendix F of this
subpart; and
(ii) A representative average unit cost of electrical energy in
dollars per kilowatt-hour as provided by the Secretary. Round the
resulting product to the nearest dollar per year.
* * * * *
0
7. Appendix F to subpart B of part 430 is revised to read as follows:
Appendix F to Subpart B of Part 430-Uniform Test Method for Measuring
the Energy Consumption of Room Air Conditioners
Note: On or after September 27, 2021, any representations made
with respect to the energy use or efficiency of room air
conditioners must be made in accordance with the results of testing
pursuant to this appendix.
Prior to September 27, 2021, manufacturers must either test room
air conditioners in accordance with this appendix, or the previous
version of this appendix as it appeared in the Code of Federal
Regulations on January 1, 2020. DOE notes that, because
representations made on or after September 27, 2021 must be made in
accordance with this appendix, manufacturers may wish to begin using
this test procedure immediately.
0. Incorporation by Reference
DOE incorporated by reference the entire standard for AHAM RAC-
1, ANSI/ASHRAE 16, ANSI/ASHRAE 41.1, ASHRAE 41.2-1987 (RA 1992),
ASHRAE 41.3-2014, ASHRAE 41.6-2014, ASHRAE 41.11-2014 and IEC 62301
in Sec. 430.3. However, only enumerated provisions of AHAM RAC-1
and ANSI/ASHRAE 16 apply to this appendix, as follows:
(1) ANSI/AHAM RAC-1:
(i) Section 4--Testing Conditions, Section 4.1--General
(ii) Section 5--Standard Measurement Test, Section 5.2--Standard
Test Conditions: 5.2.1.1
(iii) Section 6--Tests and Measurements, Section 6.1--Cooling
capacity
(iv) Section 6-- Tests and Measurements, Section 6.2--Electrical
Input
(2) ANSI/ASHRAE 16:
(i) Section 3--Definitions
(ii) Section 5--Instruments
(iii) Section 6--Apparatus, Section 6.1--Calorimeters, Sections
6.1.1-6.1.1., 6.1.1.3a, 6.1.1.4-6.1.4, including Table 1
(iv) Section 7--Methods of Testing, Section 7.1--Standard Test
Methods, Section 7.1a, 7.1.1a
(v) Section 8--Test Procedures, Section 8.1--General
(vi) Section 8--Test Procedures, Section 8.2--Test Room
Requirements
[[Page 16477]]
(viii) Section 8--Test Procedures, Section 8.3--Air Conditioner
Break-In
(ix) Section 8--Test Procedures, Section 8.4--Air Conditioner
Installation
(x) Section 8 --Test Procedures, Section 8.5--Cooling Capacity
Test
(xi) Section 9--Data To Be Recorded, Section 9.1
(xii) Section 10--Measurement Uncertainty
(xiii) Normative Appendix A Cooling Capacity Calculations--
Calorimeter Test Indoor and Calorimeter Test Outdoor
If there is any conflict between any industry standard(s) and this
appendix, follow the language of the test procedure in this
appendix, disregarding the conflicting industry standard language.
Scope
This appendix contains the test requirements to measure the
energy performance of a room air conditioner.
2. Definitions
2.1 ``Active mode'' means a mode in which the room air
conditioner is connected to a mains power source, has been activated
and is performing any of the following functions: Cooling or heating
the conditioned space, or circulating air through activation of its
fan or blower, with or without energizing active air-cleaning
components or devices such as ultra-violet (UV) radiation,
electrostatic filters, ozone generators, or other air-cleaning
devices.
2.2 ``ANSI/AHAM RAC-1'' means the test standard published
jointly by the American National Standards Institute and the
Association of Home Appliance Manufacturers, titled ``Energy
Measurement Test Procedure for Room Air Conditioners,'' Standard
RAC-1-2020 (incorporated by reference; see Sec. 430.3).
2.3 ``ANSI/ASHRAE 16'' means the test standard published jointly
by the American National Standards Institute and the American
Society of Heating, Refrigerating, and Air-Conditioning Engineers
titled ``Method of Testing for Rating Room Air Conditioners and
Packaged Terminal Air Conditioners,'' Standard 16-2016 (incorporated
by reference; see Sec. 430.3).
2.4 ``ANSI/ASHRAE 41.1'' means the test standard published
jointly by the American National Standards Institute and the
American Society of Heating, Refrigerating, and Air-Conditioning
Engineers titled ``Standard Method for Temperature Measurement,''
Standard 41.1-2013 (incorporated by reference; see Sec. 430.3).
2.5 ``ASHRAE 41.2-1987 (RA 1992)'' means the test standard
published jointly by the American National Standards Institute and
the American Society of Heating, Refrigerating, and Air-Conditioning
Engineers titled ``Standard Methods for Laboratory Airflow
Measurement,'' Standard 41.2-1987 (RA 1992) (incorporated by
reference; see Sec. 430.3).
2.6 ``ASHRAE 41.3-2014'' means the test standard published
jointly by the American National Standards Institute and the
American Society of Heating, Refrigerating, and Air-Conditioning
Engineers titled ``Standard Methods for Pressure Measurement,''
Standard 41.3-2014 (incorporated by reference; see Sec. 430.3).
2.7 ``ASHRAE 41.6-2014'' means the test standard published
jointly by the American National Standards Institute and the
American Society of Heating, Refrigerating, and Air-Conditioning
Engineers titled ``Standard Method for Humidity Measurement,''
Standard 41.6-2014 (incorporated by reference; see Sec. 430.3).
2.8 ``ASHRAE 41.11-2014'' means the test standard published
jointly by the American National Standards Institute and the
American Society of Heating, Refrigerating, and Air-Conditioning
Engineers titled ``Standard Methods for Power Measurement,''
Standard 41.11-2014 (incorporated by reference; see Sec. 430.3).
2.9 ``Combined energy efficiency ratio'' means the energy
efficiency of a room air conditioner in British thermal units per
watt-hour (Btu/Wh) and determined in section 5.2.2 of this appendix
for single-speed room air conditioners and section 5.3.12 of this
appendix for variable-speed room air conditioners.
2.10 ``Cooling capacity'' means the amount of cooling, in
British thermal units per hour (Btu/h), provided to a conditioned
space, measured under the specified conditions and determined in
section 4.1 of this appendix.
2.11 ``Cooling mode'' means an active mode in which a room air
conditioner has activated the main cooling function according to the
thermostat or temperature sensor signal or switch (including remote
control).
2.12 ``Full compressor speed (full)'' means the compressor speed
at which the unit operates at full load test conditions, when using
user settings to achieve maximum cooling capacity, according to the
instructions in ANSI/ASHRAE Standard 16-2016.
2.13 ``IEC 62301'' means the test standard published by the
International Electrotechnical Commission, titled ``Household
electrical appliances--Measurement of standby power,'' Publication
62301 (Edition 2.0 2011-01), (incorporated by reference; see Sec.
430.3).
2.14 ``Inactive mode'' means a standby mode that facilitates the
activation of active mode by remote switch (including remote
control) or internal sensor or which provides continuous status
display.
2.15 ``Intermediate compressor speed (intermediate)'' means the
compressor speed higher than the low compressor speed at which the
measured capacity is higher than the capacity at low compressor
speed by one third of the difference between Capacity4,
the measured cooling capacity at test condition 4 in Table 1 of this
appendix, and Capacity1, the measured cooling capacity
with the full compressor speed at test condition 1 in Table 1 of
this appendix, with a tolerance of plus 5 percent (designs with non-
discrete speed stages) or the next highest inverter frequency step
(designs with discrete speed steps), achieved by following the
instructions certified by the manufacturer.
2.16 ``Low compressor speed (low)'' means the compressor speed
at which the unit operates at low load test conditions, achieved by
following the instructions certified by the manufacturer, such that
Capacity4, the measured cooling capacity at test
condition 4 in Table 1 of this appendix, is no less than 47 percent
and no greater than 57 percent of Capacity1, the measured
cooling capacity with the full compressor speed at test condition 1
in Table 1 of this appendix.
2.17 ``Off mode'' means a mode in which a room air conditioner
is connected to a mains power source and is not providing any active
or standby mode function and where the mode may persist for an
indefinite time, including an indicator that only shows the user
that the product is in the off position.
2.18 ``Single-speed room air conditioner'' means a type of room
air conditioner that cannot automatically adjust the compressor
speed based on detected conditions.
2.19 ``Standby mode'' means any product mode where the unit is
connected to a mains power source and offers one or more of the
following user-oriented or protective functions which may persist
for an indefinite time:
(a) To facilitate the activation of other modes (including
activation or deactivation of active mode) by remote switch
(including remote control), internal sensor, or timer. A timer is a
continuous clock function (which may or may not be associated with a
display) that provides regular scheduled tasks (e.g., switching) and
that operates on a continuous basis.
(b) Continuous functions, including information or status
displays (including clocks) or sensor-based functions.
2.20 ``Theoretical comparable single-speed room air
conditioner'' means a theoretical single-speed room air conditioner
with the same cooling capacity and electrical power input as the
variable-speed room air conditioner under test, with no cycling
losses considered, at test condition 1 in Table 1 of this appendix.
2.21 ``Variable-speed compressor'' means a compressor that can
vary its rotational speed in non-discrete stages or discrete steps
from low to full.
2.22 ``Variable-speed room air conditioner'' means a type of
room air conditioner that can automatically adjust compressor speed
based on detected conditions.
3. Test Methods and General Instructions
3.1 Cooling mode. The test method for testing room air
conditioners in cooling mode (``cooling mode test'') consists of
applying the methods and conditions in AHAM RAC-1 Section 4,
Paragraph 4.1 and for single-speed room air conditioners, Section 5,
Paragraph 5.2.1.1, and for variable-speed room air conditioners,
Section 5, Paragraph 5.2.1.2, except in accordance with ANSI/ASHRAE
16, including the references to ANSI/ASHRAE 41.1, ANSI/ASHRAE 41.2-
1987 (RA 1992), ANSI/ASHRAE 41.3-2014, ANSI/ASHRAE 41.6-2014, and
ANSI/ASHRAE 41.11-2014, all referenced therein, as defined in
sections 2.3 through 2.8 of this appendix. Use the cooling capacity
simultaneous indoor calorimeter and outdoor calorimeter test method
in Section 7.1.a and Sections 8.1 through 8.5 of ANSI/ASHRAE 16,
except as otherwise specified in this
[[Page 16478]]
appendix. If a unit can operate on multiple operating voltages as
distributed in commerce by the manufacturer, test it and rate the
corresponding basic models at all nameplate operating voltages. For
a variable-speed room air conditioner, test the unit following the
cooling mode test a total of four times: One test at each of the
test conditions listed in Table 1 of this appendix, consistent with
section 4.1 of this appendix.
3.1.1 Through-the-wall installation. Install a non-louvered room
air conditioner inside a compatible wall sleeve with the provided or
manufacturer-required rear grille, and with only the included trim
frame and other manufacturer-provided installation materials, per
manufacturer instructions provided to consumers.
3.1.2 Power measurement accuracy. All instruments used for
measuring electrical inputs to the test unit, reconditioning
equipment, and any other equipment that operates within the
calorimeter walls must be accurate to 0.5 percent of the
quantity measured.
3.1.3 Electrical supply. For cooling mode testing, test at each
nameplate operating voltage, and maintain the input standard voltage
within 1 percent. Test at the rated frequency,
maintained within 1 percent.
3.1.4 Control settings. If the room air conditioner has network
capabilities, all network features must be disabled throughout
testing.
3.1.5 Measurement resolution. Record measurements at the
resolution of the test instrumentation.
3.1.6 Temperature tolerances. Maintain each of the measured
chamber dry-bulb and wet-bulb temperatures within a range of 1.0
[deg]F.
3.2 Standby and off modes.
3.2.1 Install the room air conditioner in accordance with
Section 5, Paragraph 5.2 of IEC 62301 and maintain the indoor test
conditions (and outdoor test conditions where applicable) as
required by Section 4, Paragraph 4.2 of IEC 62301. If testing is not
conducted in a facility used for testing cooling mode performance,
the test facility must comply with Section 4, Paragraph 4.2 of IEC
62301.
3.2.2 Electrical supply. For standby mode and off mode testing,
maintain the electrical supply voltage and frequency according to
the requirements in Section 4, Paragraph 4.3.1 of IEC 62301.
3.2.3 Supply voltage waveform. For the standby mode and off mode
testing, maintain the electrical supply voltage waveform indicated
in Section 4, Paragraph 4.3.2 of IEC 62301.
3.2.4 Wattmeter. The wattmeter used to measure standby mode and
off mode power consumption must meet the resolution and accuracy
requirements in Section 4, Paragraph 4.4 of IEC 62301.
3.2.5 Air ventilation damper. If the unit is equipped with an
outdoor air ventilation damper, close this damper during standby
mode and off mode testing.
4. Test Conditions and Measurements
4.1 Cooling mode.
4.1.1 Temperature conditions. Establish the test conditions
described in Sections 4 and 5 of AHAM RAC-1 and in accordance with
ANSI/ASHRAE 16, including the references to ANSI/ASHRAE 41.1 and
ANSI/ASHRAE 41.6-2014, for cooling mode testing, with the following
exceptions for variable-speed room air conditioners: Conduct the set
of four cooling mode tests with the test conditions presented in
Table 1 of this appendix. For test condition 1 and test condition 2,
achieve the full compressor speed with user settings, as defined in
section 2.12 of this appendix. For test condition 3 and test
condition 4, set the required compressor speed in accordance with
instructions the manufacturer provided to DOE.
Table 1--Indoor and Outdoor Inlet Air Test Conditions--Variable-Speed Room Air Conditioners
----------------------------------------------------------------------------------------------------------------
Evaporator inlet (indoor) air, Condenser inlet (outdoor) air,
[deg]F [deg]F
Test condition ---------------------------------------------------------------- Compressor speed
Dry bulb Wet bulb Dry bulb Wet bulb
----------------------------------------------------------------------------------------------------------------
Test Condition 1.............. 80 67 95 75 Full.
Test Condition 2.............. 80 67 92 72.5 Full.
Test Condition 3.............. 80 67 87 69 Intermediate.
Test Condition 4.............. 80 67 82 65 Low.
----------------------------------------------------------------------------------------------------------------
4.1.2 Cooling capacity and power measurements. For single-speed
units, measure the cooling mode cooling capacity (expressed in Btu/
h), Capacity, and electrical power input (expressed in watts),
Pcool, in accordance with Section 6, Paragraphs 6.1 and
6.2 of AHAM RAC-1, respectively, and in accordance with ANSI/ASHRAE
16, including the references to ANSI/ASHRAE 41.2-1987 (RA 1992) and
ANSI/ASHRAE 41.11-2014. For variable-speed room air conditioners,
measure the condition-specific cooling capacity (expressed in Btu/
h), Capacitytc, and electrical power input (expressed in
watts), Ptc, for each of the four cooling mode rating
test conditions (tc), as required in Section 6, Paragraphs 6.1 and
6.2, respectively, of AHAM RAC-1, respectively, and in accordance
with ANSI/ASHRAE 16, including the references to ANSI/ASHRAE 41.2-
1987 (RA 1992) and ANSI/ASHRAE 41.11-2014.
4.2 Standby and off modes. Establish the testing conditions set
forth in section 3.2 of this appendix, ensuring the unit does not
enter any active mode during the test. For a unit that drops from a
higher power state to a lower power state as discussed in Section 5,
Paragraph 5.1, Note 1 of IEC 62301, allow sufficient time for the
room air conditioner to reach the lower power state before
proceeding with the test measurement. Use the sampling method test
procedure specified in Section 5, Paragraph 5.3.2 of IEC 62301 for
testing all standby and off modes, with the following modifications:
Allow the product to stabilize for 5 to 10 minutes and use an energy
use measurement period of 5 minutes.
4.2.1 If the unit has an inactive mode, as defined in section
2.14 of this appendix, as defined in section 2.17 of this appendix,
measure and record the average inactive mode power, Pia,
in watts.
4.2.2 If the unit has an off mode, as defined in section 2.17 of
this appendix, measure and record the average off mode power,
Pom, in watts.
5. Calculations
5.1 Annual energy consumption in inactive mode and off mode.
Calculate the annual energy consumption in inactive mode and off
mode, AECia/om, expressed in kilowatt-hours per year
(kWh/year).
AECia/om = (Pia x tia) + (Pom + tom)
Where:
AECia/om = annual energy consumption in inactive mode and
off mode, in kWh/year.
Pia = average power in inactive mode, in watts,
determined in section 4.2 of this appendix.
Pom = average power in off mode, in watts, determined in
section 4.2 of this appendix.
tia = annual operating hours in inactive mode and
multiplied by a 0.001 kWh/Wh conversion factor from watt-hours to
kilowatt-hours. This value is 5.115 kWh/W if the unit has inactive
mode and no off mode, 2.5575 kWh/W if the unit has both inactive and
off mode, and 0 kWh/W if the unit does not have inactive mode.
tom = annual operating hours in off mode and multiplied
by a 0.001 kWh/Wh conversion factor from watt-hours to kilowatt-
hours. This value is 5.115 kWh/W if the unit has off mode and no
inactive mode, 2.5575 kWh/W if the unit has both inactive and off
mode, and 0 kWh/W if the unit does not have off mode.
5.2 Combined energy efficiency ratio for single-speed room air
conditioners. Calculate the combined energy efficiency ratio for
single-speed room air conditioners as follows:
[[Page 16479]]
5.2.1 Single-speed room air conditioner annual energy
consumption in cooling mode. Calculate the annual energy consumption
in cooling mode for a single-speed room air conditioner,
AECcool, expressed in kWh/year.
AECcool = 0.75 x Pcool
Where:
AECcool = single-speed room air conditioner annual energy
consumption in cooling mode, in kWh/year.
Pcool = single-speed room air conditioner average power
in cooling mode, in watts, determined in section 4.1.2 of this
appendix.
0.75 is 750 annual operating hours in cooling mode multiplied by a
0.001 kWh/Wh conversion factor from watt-hours to kilowatt-hours.
5.2.2 Single-speed room air conditioner combined energy
efficiency ratio. Calculate the combined energy efficiency ratio,
CEER, expressed in Btu/Wh, as follows:
[GRAPHIC] [TIFF OMITTED] TR29MR21.002
Where:
CEER = combined energy efficiency ratio, in Btu/Wh.
Capacity = single-speed room air conditioner cooling capacity, in
Btu/h, determined in section 4.1.2 of this appendix.
AECcool = single-speed room air conditioner annual energy
consumption in cooling mode, in kWh/year, calculated in section
5.2.1 of this appendix.
AECia/om = annual energy consumption in inactive mode or
off mode, in kWh/year, calculated in section 5.1 of this appendix.
0.75 as defined in section 5.2.1 of this appendix.
5.3 Combined energy efficiency ratio for variable-speed room air
conditioners. Calculate the combined energy efficiency ratio for
variable-speed room air conditioners as follows:
5.3.1 Weighted electrical power input. Calculate the weighted
electrical power input in cooling mode, Pwt, expressed in
watts, as follows:
Pwt = [Sigma]tc Ptc x Wtc
Where:
Pwt = weighted electrical power input, in watts, in
cooling mode.
Ptc = electrical power input, in watts, in cooling mode
for each test condition in Table 1 of this appendix.
Wtc = weighting factors for each cooling mode test
condition: 0.08 for test condition 1, 0.20 for test condition 2,
0.33 for test condition 3, and 0.39 for test condition 4. tc
represents the cooling mode test condition: ``1'' for test condition
1 (95 [deg]F condenser inlet dry-bulb temperature), ``2'' for test
condition 2 (92 [deg]F), ``3'' for test condition 3 (87 [deg]F), and
``4'' for test condition 4 (82 [deg]F).
5.3.2 Theoretical comparable single-speed room air conditioner.
Calculate the cooling capacity, expressed in Btu/h, and the
electrical power input, expressed in watts, for a theoretical
comparable single-speed room air conditioner at all cooling mode
test conditions.
Capacityss_tc = Capacity1 x (1 +
(Mc x (95-Ttc)))
Pss_tc = P1 x (1-(Mp x (95-
Ttc)))
Where:
Capacityss_tc = theoretical comparable single-speed room
air conditioner cooling capacity, in Btu/h, calculated for each of
the cooling mode test conditions in Table 1 of this appendix.
Capacity1 = variable-speed room air conditioner unit's
cooling capacity, in Btu/h, determined in section 4.1.2 of this
appendix for test condition 1 in Table 1 of this appendix.
Pss_tc = theoretical comparable single-speed room air
conditioner electrical power input, in watts, calculated for each of
the cooling mode test conditions in Table 1 of this appendix.
P1 = variable-speed room air conditioner unit's
electrical power input, in watts, determined in section 4.1.2 of
this appendix for test condition 1 in Table 1 of this appendix.
Mc = adjustment factor to determine the increased
capacity at lower outdoor test conditions, 0.0099 per [deg]F.
Mp = adjustment factor to determine the reduced
electrical power input at lower outdoor test conditions, 0.0076 per
[deg]F.
95 is the condenser inlet dry-bulb temperature for test condition 1
in Table 1 of this appendix, 95 [deg]F.
Ttc = condenser inlet dry-bulb temperature for each of
the test conditions in Table 1 of this appendix (in [deg]F).
tc as explained in section 5.3.1 of this appendix.
5.3.3 Variable-speed room air conditioner unit's annual energy
consumption for cooling mode at each cooling mode test condition.
Calculate the annual energy consumption for cooling mode under each
test condition, AECtc, expressed in kilowatt-hours per
year (kWh/year), as follows:
AECtc = 0.75 x Ptc
Where:
AECtc = variable-speed room air conditioner unit's annual
energy consumption, in kWh/year, in cooling mode for each test
condition in Table 1 of this appendix.
Ptc = as defined in section 5.3.1 of this appendix.
0.75 as defined in section 5.2.1 of this appendix.
tc as explained in section 5.3.1 of this appendix.
5.3.4 Variable-speed room air conditioner weighted annual energy
consumption. Calculate the weighted annual energy consumption in
cooling mode for a variable-speed room air conditioner,
AECwt, expressed in kWh/year.
AECwt = [Sigma]tc AECtc x Wtc
Where:
AECwt = weighted annual energy consumption in cooling
mode for a variable-speed room air conditioner, expressed in kWh/
year.
AECtc = variable-speed room air conditioner unit's annual
energy consumption, in kWh/year, in cooling mode for each test
condition in Table 1 of this appendix, determined in section 5.3.3
of this appendix.
Wtc = weighting factors for each cooling mode test
condition: 0.08 for test condition 1, 0.20 for test condition 2,
0.33 for test condition 3, and 0.39 for test condition 4.
tc as explained in section 5.3.1 of this appendix.
5.3.5 Theoretical comparable single-speed room air conditioner
annual energy consumption in cooling mode at each cooling mode test
condition. Calculate the annual energy consumption in cooling mode
for a theoretical comparable single-speed room air conditioner for
cooling mode under each test condition, AECss_tc,
expressed in kWh/year.
AECss\tc = 0.75 x Pss\tc
Where:
AECss_tc = theoretical comparable single-speed room air
conditioner annual energy consumption, in kWh/year, in cooling mode
for each test condition in Table 1 of this appendix.
Pss_tc = theoretical comparable single-speed room air
conditioner electrical power input, in watts, in cooling mode for
each test condition in Table 1 of this appendix, determined in
section 5.3.2 of this appendix.
0.75 as defined in section 5.2.1 of this appendix.
tc as explained in section 5.3.1 of this appendix.
5.3.6 Variable-speed room air conditioner combined energy
efficiency ratio at each cooling mode test condition. Calculate the
variable-speed room air conditioner unit's combined energy
efficiency ratio, CEERtc, for each test condition,
expressed in Btu/Wh.
[[Page 16480]]
[GRAPHIC] [TIFF OMITTED] TR29MR21.003
Where:
CEERtc = variable-speed room air conditioner unit's
combined energy efficiency ratio, in Btu/Wh, for each test condition
in Table 1 of this appendix.
Capacitytc = variable-speed room air conditioner unit's
cooling capacity, in Btu/h, for each test condition in Table 1 of
this appendix, determined in section 4.1.2 of this appendix.
AECtc = variable-speed room air conditioner unit's annual
energy consumption, in kWh/year, in cooling mode for each test
condition in Table 1 of this appendix, determined in section 5.3.3
of this appendix.
AECia/om = annual energy consumption in inactive mode of
off mode, in kWh/year, determined in section 5.1 of this appendix.
0.75 as defined in section 5.2.1 of this appendix.
tc as explained in section 5.3.1 of this appendix.
5.3.7 Theoretical comparable single-speed room air conditioner
combined energy efficiency ratio. Calculate the combined energy
efficiency ratio for a theoretical comparable single-speed room air
conditioner, CEERss_tc, for each test condition,
expressed in Btu/Wh.
[GRAPHIC] [TIFF OMITTED] TR29MR21.004
Where:
CEERss_tc = theoretical comparable single-speed room air
conditioner combined energy efficiency ratio, in Btu/Wh, for each
test condition in Table 1 of this appendix.
Capacityss_tc = theoretical comparable single-speed room
air conditioner cooling capacity, in Btu/h, for each test condition
in Table 1 of this appendix, determined in section 5.3.2 of this
appendix.
AECss_tc = theoretical comparable single-speed room air
conditioner annual energy consumption, in kWh/year, in cooling mode
for each test condition in Table 1 of this appendix, determined in
section 5.3.5 of this appendix.
AECia/om = annual energy consumption in inactive mode or
off mode, in kWh/year, determined in section 5.1 of this appendix.
0.75 as defined in section 5.2.1 of this appendix.
tc as explained in section 5.3.1 of this appendix.
5.3.8 Theoretical comparable single-speed room air conditioner
adjusted combined energy efficiency ratio. Calculate the adjusted
combined energy efficiency ratio, for a theoretical comparable
single-speed room air conditioner, CEERss_tc_adj, with
cycling losses considered, for each test condition, expressed in
Btu/Wh.
CEERss\tc\adj = CEERss\tc x CLFtc
Where:
CEERss_tc_adj = theoretical comparable single-speed room
air conditioner adjusted combined energy efficiency ratio, in Btu/
Wh, for each test condition in Table 1 of this appendix.
CEERss_tc = theoretical comparable single-speed room air
conditioner combined energy efficiency ratio, in Btu/Wh, for each
test condition in Table 1 of this appendix, determined in section
5.3.7 of this appendix.
CLFtc = cycling loss factor for each test condition; 1
for test condition 1, 0.956 for test condition 2, 0.883 for test
condition 3, and 0.810 for test condition 4.
tc as explained in section 5.3.1 of this appendix.
5.3.9 Weighted combined energy efficiency ratio. Calculate the
weighted combined energy efficiency ratio for the variable-speed
room air conditioner unit, CEERwt, and theoretical
comparable single-speed room air conditioner, CEERss_wt,
expressed in Btu/Wh.
CEERwt = [Sigma]tc CEERtc x Wtc
CEERss\wt = [Sigma]tc CEERss\tc\adj x Wtc
Where:
CEERwt = variable-speed room air conditioner unit's
weighted combined energy efficiency ratio, in Btu/Wh.
CEERss_wt = theoretical comparable single-speed room air
conditioner weighted combined energy efficiency ratio, in Btu/Wh.
CEERtc = variable-speed room air conditioner unit's
combined energy efficiency ratio, in Btu/Wh, at each test condition
in Table 1 of this appendix, determined in section 5.3.6 of this
appendix.
CEERss_tc_adj = theoretical comparable single-speed room
air conditioner adjusted combined energy efficiency ratio, in Btu/
Wh, at each test condition in Table 1 of this appendix, determined
in section 5.3.8 of this appendix.
Wtc as defined in section 5.3.4 of this appendix.
tc as explained in section 5.3.1 of this appendix.
5.3.10 Variable-speed room air conditioner performance
adjustment factor. Calculate the variable-speed room air conditioner
unit's performance adjustment factor, Fp.
[GRAPHIC] [TIFF OMITTED] TR29MR21.005
Where:
Fp = variable-speed room air conditioner unit's
performance adjustment factor.
CEERwt = variable-speed room air conditioner unit's
weighted combined energy efficiency ratio, in Btu/Wh, determined in
section 5.3.9 of this appendix.
CEERss_wt = theoretical comparable single-speed room air
conditioner weighted combined energy efficiency ratio, in Btu/Wh,
determined in section 5.3.9 of this appendix.
5.3.11 Variable-speed room air conditioner combined energy
efficiency ratio. Calculate the combined energy efficiency ratio,
CEER, expressed in Btu/Wh, for variable-speed air conditioners.
CEER = CEER1 x (1 + Fp)
Where:
CEER = combined energy efficiency ratio, in Btu/Wh.
CEER1 = variable-speed room air conditioner combined
energy efficiency ratio for test condition 1 in Table 1 of this
appendix, in Btu/Wh, determined in section 5.3.6 of this appendix.
Fp = variable-speed room air conditioner performance
adjustment factor, determined in section 5.3.10 of this appendix.
[FR Doc. 2021-05415 Filed 3-26-21; 8:45 am]
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