[6450-01-P] DEPARTMENT OF ENERGY Docket Number EERE–2011–BT–TP-0041 RIN: 1904-AC50

Energy Efficiency Program: Test Proce dure for Lighting Systems (Luminaires)

AGENCY: Office of Energy Efficien cy and Renewable Energy, Department of Energy.

ACTION: Request for information

SUMMARY: The U.S. Department of Energy (“DOE” or the “Department”) is currently evaluating energy efficiency test procedures for luminaires (also referred to herein as lighting systems) and collecting information for the labe ling of such products. DOE recognizes that welldesigned test procedures are importa nt to produce reliable, repeatab le, and consistent test results and that labeling assists informed consumer choi ce. The existing luminaire test procedures DOE is evaluating include those already established by the Na tional Electrical Manufacturers Association (NEMA) and EN ERGY STAR, which include by reference numerous test procedures established by the American Nationa l Standards Institute (ANSI), the Illuminating Engineering Society of North America (IESNA) , the International Co mmission on Illumination (Commission Internationale de l’Eclairage (CIE)) , and the Illuminating Engineering Society of North America (IESNA). To inform interested part ies, facilitate its cons ideration of appropriate test procedures, and collect information on labeling, DOE seeks comment and requests
1information related to test procedures and labe ls for lighting systems based on industry-standard procedures and practices for luminaires. In part icular, DOE is interested in if and how test procedures and labels may include controls for powering the luminair e on or off depending on time of day, daylight or occupancy se nsor readings and other factors.

DATES: Written comments and informati on are requested by [INSERT DATE 45 DAYS FOLLOWING PUBLICATION IN FEDERAL REGISTER].

ADDRESSES: Interested persons may submit comment s in writing, identified by docket number EERE-2011-BT-TP-0041, by any of the following methods:
1. Federal eRulemaking Portal : www.regulations.gov Follow the instructions for submitting
comments. 2. E-mail : LightingSys-2011-TP-0041@ee.doe.gov . Include EERE-2011-BT-TP-0041 and/or RIN 1904-AC50 in the su bject line of the message.
3. Mail : Ms. Brenda Edwards, U.S. Department of Energy, Building Technologies Program,Mailstop EE-2J, Request for Information for Lighting Systems, EERE-2011-BT-TP0041 and/or RIN 1904-AC50, 1000 Independenc e Avenue SW., Washington, D.C. 20585-0121. Phone: (202) 586-2945. Please submit one signed paper original.
4. Hand Delivery/Courier : Ms. Brenda Edwards, U.S. Department of Energy, Building Technologies Program, 6 th Floor, 950 L’Enfant Plaza , SW., Washington, D.C. 20024. Phone: (202) 586-2945. Please submit one signed paper original. 5. Instructions : All submissions received must include the agency name and docket number.
2Docket : For access to the docket to read backgr ound documents or comments received, visit the U.S. Department of Energy, Building Technologies Program, 950 L’Enfant Plaza, SW., Suite 600, Washington, D.C., 20024, (202) 586- 2945, between 9:00 a.m. and 4:00 p.m., Monday through Friday, except Federal ho lidays. Please call Ms. Brenda Edwards at the above telephone number for additional information.

The docket also is available for review at regu lations.gov, including Federal Register notices, and other supporting documen ts/materials. All documents in the docket are listed in the regulations.gov index. However, not all documents li sted in the index may be publicly available, such as information that is exempt from public disclosure. A link to the docket web page can be found at: http://www.eere.energy.gov/buildings/appliance_standards/co mmercial/lighting_systems.html

. This web page contains a link to the docket for this notice on the re gulations.gov site. The regulations.gov web page contains instructions on how to access all documents, including public comments, in the docket.

FOR FURTHER INFORMATION CONTACT:
Dr. Tina Kaarsberg, U.S. Department of Energy, Office of Energy Efficiency and Renewable Energy, Building Technologies Prog ram, EE-2J, 1000 Independence Avenue SW, Washington, D.C. 20585-0121. Te lephone: (202) 287-1393. E-mail: Tina.Kaarsberg@ee.doe.gov

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3In the Office of General Counsel, contact Ms. Elizabeth Kohl, U.S. Department of Energy, Office of the General Counsel, GC- 71, 1000 Independence Avenue SW, Washington,
D.C. 20585. Telephone: (202) 586-7796. E-mail: Elizabeth.Kohl@hq.doe.gov

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SUPPLEMENTARY INFORMATION:

I. Statutory Authority The Energy Policy Act of 1992 (EPAct 1992, Pub. L. No. 102-486), Section 126, required DOE to support and monitor a national vo luntary testing and information program for widely used luminaires that have signifi cant energy savings potential, and to issue a determination as to whether the program devel oped was consistent with those objectives. The program was required to include specifications for test procedures and labels that will enable purchasers of such luminaires to make more in formed decisions about the energy efficiency and costs of alternative products. If DOE determines that a program of volunt ary national testing and information for luminaires consistent with t hose objectives has not been developed, EPAct 1992 directs DOE to develop test procedures for lumi naires. EPAct 1992 also provides for labels for these products. (42 U.S.C. 6292 note) The Energy Policy Act of 2005 (EPAct 2005, Pub. L. No. 109-58) and the Energy Independence and Security Act of 2007 established Federal efficiency standards for certain classes of luminaires—torch ieres, ceiling fan light kits, exit signs, traffic signals, and metal halide lamp fixtures—but currently there are no DOE-approved test procedures for most widely-used classes of lumina ires. There are also no labeling requirements for these products.

4II. Background In April 1992, the National Lighting Collaborative (NLC or Collaborative) initiated development of a testing and information program as described under EPAct 1992. The Collaborative, administered by NEMA, incl uded representatives from environmental organizations, State governments, the lighting industry, research entities, and utilities. 1 In 1995, the NLC issued a report on the program to DOE that served as the basis of DOE’s provisional determination on whether the pr ogram met the objectives set fo rth in EPAct 1992 (61 FR 10742, March 15, 1996). DOE found that the program would be consistent with the objectives set forth in EPAct 1992 when it had been demonstrated to DOE that the program had been “fully implemented so that energy efficiency informa tion about luminaires is widely available to luminaire purchasers”. Although the NLC continued activities through 2001, 2 DOE has not yet issued a final determinat ion re garding the program. 3

1 In 1999, membership included the following organiza tions: Environmental groups were represented by the Alliance to Save Energy, the American Council for an Energy-Efficient Economy, and the Natural Resources Defense Council. State and Federal government representatives included the California Energy Commission, the National Institute of Standards and Technology (NIST), the New York State Energy Research and Development Authority, DOE, and the US Environmental Protection Agen cy. Lighting and related industry organizations were represented by the American Lighting Association, th e American Society of Hea ting, Refrigerating and AirConditioning Engineers, the Association of Energy Engineers, the Building Owners and Managers Association, the Illuminating Engineering Society of North America, the International Association of Lighting Designers, the National Association of Lighting Management Companies, the National Association of Electrical Distributors, the National Association of State Energy Officials, the National Electrical Cont ractors Association, and the National Electrical Manufacturers Association. Testing and rese arch entities included the Lawrence Berkeley National Laboratory, the Lighting Research Center, and the Lightin g Research Institute. Utilities were represented by the Edison Electric Institute and the Electric Power Research Institute. 2 In 1999 the Collaborative issued a new Report on the Status of the Voluntary National Testing and Information Program for Luminaires, which described the program and urged DOE to approve it. The Program included luminaire test procedures for widely used fluorescent an d HID luminaires, a complaint resolution process to resolve disputes about Luminaire Efficacy Rating (LER) values, and an information program. In addition, the Program recommended that testing be carried out by a laborato ry accredited by NIST’s National Voluntary Laboratory Accreditation Program. 3 NEMA’s current Lighting Industry Dir ector was unaware of any program activ ity in recent years. LBNL staff who participated on the NLC stated that the last meeting was in 2001. While conceptually related, NEMA’s subsequent LE 6 activity was organizationally unrelated to the NLC. See www.nema.org/stds/le5.cfm (“When rating a fixture in accordance with EPAct 1992, use this standard. For other purposes, see NEMA LE 6, a newer standard for luminaire efficacy that su persedes the LE 5 series."). 5a. Evolution of National Luminaire Testing and Definitions In response to the EPAct 1992 requirement th at DOE provide financial and technical assistance to support a voluntary national testi ng and information program, NEMA developed, and the NLC incorporated into the program, thre e separate industry standards applicable to luminaires along with their as sociated test procedures:

o LE 5—Procedure for Determining Luminaire Efficacy Ratings for Fluorescent Luminaires

o LE 5A—Procedure for Determining Luminair e Efficacy Ratings for Commercial, NonResidential Downlight Luminaires

o LE 5B—Procedure for Determining Luminair e Efficacy Ratings for High-Intensity Discharge Industrial Luminaires

The Environmental Protection Agency (EPA ) created a voluntary specification for luminaires under its ENERGY STAR pr ogram. The ENERGY STAR specification ( www.energystar.gov/index.cfm?c=new_specs.luminaires ) includes a voluntary standard but does not generally include contro ls. The ENERGY STAR test proc edures reference industry test procedures for fluorescent, high-intensity discha rge and solid-state luminaires, none of which currently include controls. 4

4 ENERGY STAR® Program Requirements Product Specifica tion for Luminaires (Light Fixtures) Eligibility Criteria Version 1.0. 6In 2008, NEMA introduced its Target Efficacy Rating (TER), documented in NEMA standard LE 6, and adds to the LE 5 series efficacy calculation a f actor to address the fraction of light leaving the luminaire that is delivered to the intended targ et surface. LE 6 is intended to supersede the LE 5 series ratings for all purposes other than “rating a fixture in accordance with EPAct 1992”. The TER addresses major classes of commercial, residential, and industrial luminaires used for both indoor and outdoor lighting, but does not include controls.

b. Lighting System/Luminaire Controls

The EPAct 1992 requirements for luminaires di scussed above pertained to the energy efficiency of entire lighting systems, as opposed to just lamps or lamp and ballast systems. The Illuminating Engineering Society of North Amer ica defines luminaire as a “complete lighting unit consisting of lamp(s) and ballast(s) (when ap plicable) together with the parts designed to distribute the light, position and protect the lamp s, and to connect the lamp(s) to the power supply.” 5 6 The Energy Policy and Conservation Act of 1975 (EPCA), as amended, adopts the same definition for luminaires with fluorescent light sources: “a complete lighting unit consisting of a fluorescent lamp or lamps, together with parts designed to distribut e the light, to position and protect such lamps, and to connect such lamps to the power supply through the ballast. Controls are considered under these definitions as the part of the lighting system that connects the lamp(s) to the power supply.

5 Rea, M.S. (Editor), Illuminating Engineering Society of North America, IESNA Lighting Handbook, 9 th Edition, 2000. 6 This ANSI/IESNA definition of lumi naire has also been accepted by EN ERGY STAR® and the California Energy Commission. 7Although it has not yet included them in its own industry procedures, NEMA has argued generally that lighting standards should incorpor ate controls, not just source efficacies, because of their great poten tial for much larger savings in ma jor applications. On May 10, 2011, NEMA submitted public comments on the current fluorescent ballast rulemaking noting that a “ballast that is switched off or dimmed uses much less energy and can result in increased user satisfaction” (Document ID: EERE-2007-BT-STD-0016-0039.1). 7 On May 27, 2010, NEMA submitted public comments for the high-intensity discharge (HID) lamps determination arguing that “industry believes that the DOE will find much more energy savings from HID systems with the proper application of electroni c ballasts and/or intelligent controls [versus] standards that increase average HID lamp efficiencies” (Document ID: EERE-2006-DET-0112-0021.1). 8 In a May 15, 2008, public workshop for California’s me tal halide luminaires rulemaking, NEMA proposed using integral controls as an alternative co mpliance option to high efficiency ballasts and later worked with the P acific Gas and Electric Company, the American Council for an Energy Efficient Economy, and the California Ener gy Commission to develop that option for the final rule. 9
The American Council for an Energy Effici ent Economy (ACEEE) also encouraged DOE to take a systems-based approach to li ghting in its May 27, 2010 comments on the HID rulemaking: “In general, we would like to s ee DOE combine rulemakings—or at least analysis— whenever possible for individual lighting compone nts that are operated t ogether in a system. This would allow for greater efficiencies in th e analytical effort, better consideration and

7 Available online: http://www.regulations.gov/#!documen tDetail;D=EERE-2007- BT-STD-0016-0039 8 Available online: http://www.regulations.gov/#!s earchResults;rpp=10;po=0;s=DET- 0112-0021 9 California Energy Commission, 2008 Appliance Efficiency Ru lemaking: Staff Report, Phas e I, Part B, Docket #08

- AEER-1B , Report #CEE-400-2008-023, page 7. 8coordination of the impacts of standards ch anges for one component on overall system performance, and potentially for more effective final standards from an energy savings, economic, and environmental perspective.”

C. Evaluation of Luminaire/Lighting Systems Test Procedures DOE is evaluating whether test procedures for luminaires/lighting systems may be based on existing industry rating systems and test pr ocedures such as NEMA ’s LE 6 rating system, (which covers 22 classes of interior and ex terior luminaires) a nd EPA’s ENERGY STAR luminaire specifications (which covers a range of residential and commercial direction and nondirectional products) and is based on IESNA test procedures (LM-46, LM-41, LM-10-11, and LM-31-11). DOE is considering whether to de fine certain lighting systems and controls terminology to enable development of an appropriate national test procedure.

D. Collection of Information on Lu minaire/Lighting Systems Labeling. DOE is also collecting information on whether labels for luminaires/lighting systems may be based on industry rating systems such as those described in the previous section.

E. Conclusion
The Department recognizes th at voluntary luminaire test pr ocedures and labels exist and that the industry is increasingl y using controls tec hnologies to reduce lighting energy use. DOE therefore requests information on recent develo pments in luminaire testing and labeling programs and how energy savings from controls are addressed therein.

III. Public Participation

9A. Submission of Information
DOE will accept information and data in response to this Request for Information as provided in the DATES secti on above. Information submitted to the Department by e-mail should be provided in WordPerfect, Microsoft Wor d, PDF, or text file format. Those responding should avoid the use of special characters or an y form of encryption, and wherever possible, comments should include the electronic signatur e of the author. Comments submitted to the Department by mail or hand delivery/courier shou ld include one signed or iginal paper copy. No telefacsimiles will be accepted. Comments submitte d in response to this notice will become a matter of public record and will be made publicly available.

B. Issues on Which DOE Seeks Information
Although comments are welcome on all issues discussed in this notice, DOE is particularly interested in the following info rmation and substantiati ng data on existing test procedures and labels for luminaires.

1. Definitions. DOE invites comments on the defini tion of lighting system s, luminaires and other relevant terms.
2. Lighting systems/luminaire test procedures a nd labeling. DOE is particularly interested in details on industry, state, and international test procedur es and labels including, where feasible: luminaire classes covered, frac tion of current luminaire sales covered, percentage of products covered by the program currently being tested and reported on;

10the method used to inform purchasers of c overed luminaires about the results of the testing and other energy and pe rformance related information.
3. Inclusion of controls in lighting systems test procedures and labeling. DOE requests comments on means to include controls in test procedures and whether the inclusion of controls in labels would provide co nsumers with useful information.
4. The current status of labeling programs. DOE is particularly interested in what products are currently sold with luminaire efficiency la bels, what fraction of the market represents, what the leading labels are and what information the labels contain.

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