Applying Best Practices to 

Florida Local Government 

Retrofit Programs

J. McIlvaine and K. Sutherland

Building America Partnership for Improved Residential 

Construction (BA-PIRC)

December 2013
NOTICE

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iii

Applying Best Practices to 

Florida Local Government Retrofit Programs

Prepared for: 

The National Renewable Energy Laboratory

On behalf of the U.S. Department of Energy’s Building America Program 

Office of Energy Efficiency and Renewable Energy 

15013 Denver West Parkway 

Golden, CO 80401 

NREL Contract No. DE-AC36-08GO28308 

Prepared by: 

J. McIlvaine and K. Sutherland

BA-PIRC/Florida Solar Energy Center 

1679 Clearlake Road 

Cocoa, FL 32922 

NREL Technical Monitor: Stacey Rothgeb

Prepared under Subcontract No. KNDJ-0-40339-03

December 2013
iv

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v

Table of Contents

List of Figures ............................................................................................................................................ vi

List of Tables ............................................................................................................................................. vii

Definitions................................................................................................................................................. viii

Acknowledgments ..................................................................................................................................... ix

Executive Summary................................................................................................................................... xi

1 Introduction........................................................................................................................................... 1

1.1 Remodeling Industry Trends and Spending.........................................................................1

1.2 Phase 1 Summary.................................................................................................................3

1.2.1 Development of the Current Best Practices.............................................................3

1.2.2 Cost Effectiveness....................................................................................................5

1.2.3 Phase 1 Gaps and Barriers Addressed in the Best Practices....................................6

1.3 Phase 2 Goals and Research Questions ...............................................................................6

2 Expected Improvement Results From Implementation of the Best Practices ............................... 7

2.1 Retrofit Scenario 1 .............................................................................................................10

2.2 Retrofit Scenario 2 .............................................................................................................12

2.3 Retrofit Scenario 3 .............................................................................................................16

2.4 Anticipated Level of Savings Summary ............................................................................19

3 Recruitment of Community-Scale Retrofit Partners ....................................................................... 21

4 Partnership With the City of Melbourne........................................................................................... 23

5 Key Concepts...................................................................................................................................... 30

5.1 Mechanical Equipment Efficiency, Air Distribution System, and Passive Outside Air 

Ventilation..........................................................................................................................30

5.2 Air Handling Unit Closet...................................................................................................33

5.3 Air Distribution System Testing ........................................................................................36

5.4 Enclosed Porches...............................................................................................................38

6 Conclusions ........................................................................................................................................ 40

6.1 Research Question 1 ..........................................................................................................40

6.2 Research Question 2 ..........................................................................................................42

6.3 Research Question 3 ..........................................................................................................44

6.4 Research Question 4 ..........................................................................................................45

6.5 Final Remarks....................................................................................................................46

References................................................................................................................................................. 47

Appendix A: Current Best Practices, Version 2..................................................................................... 49

Appendix B: City of Melbourne Retrofit Standards............................................................................... 60

Appendix C: City of Fort Myers Renovation Standards........................................................................ 75
vi

List of Figures

Figure 1. The value of private remodeling activity exceeded that of private single-family new 

construction by 1% in 2009 and 2010................................................................................................. 2

Figure 2. HERS Index improvement compared to the pre-retrofit HERS Index for the whole 70-

house dataset........................................................................................................................................ 8

Figure 3. Excerpt from bid document for Trade 21: HVAC incorporating some of the best practices 

for HVAC equipment .......................................................................................................................... 30

Figure 4. Excerpt from City of Melbourne bid document for Trade 21: HVAC incorporating all the 

best practices for HVAC equipment ................................................................................................. 32

Figure 5. Pre-retrofit metal AHU stand with no dedicated return air path (left); post-retrofit 

platform AHU support with dedicated, mastic sealed return air path (right) ............................... 33

Figure 6. City of Melbourne HVAC specification ................................................................................... 34

Figure 7. Pre-retrofit AHU closet with no dedicated return (left); post-retrofit with dedicated return 

and outside air ventilation (right)...................................................................................................... 35

Figure 8. AHU closet with side wall return grille: pre-retrofit (left) and post-retrofit (right) ............. 36

Figure 9. Intersection of shed or flat roof with conventional trusses (left) at enclosed porches 

creates a very shallow connection (right) to the main attic. Limits room for routing ductwork.38

Figure 10. Panned ceiling joist details common to enclosed porches ............................................... 39

Figure 11. Interior duct chase eliminates need for panned ceiling cavity .......................................... 39

Unless otherwise noted, all figures were created by BA-PIRC. 
vii

List of Tables

Table 1. Prevalence of 13 Key Efficiency Strategies Implemented........................................................ 4

Table 2. Energy-Related Characteristics of Base Home......................................................................... 8

Table 3. Cost References ......................................................................................................................... 10

Table 4. Scenario 1 Efficiency Enhancement Package and Full Costs ............................................... 11

Table 5. Scenario 1 Improvement Summary .......................................................................................... 11

Table 6. Scenario 1 First Year Cash Flow Analysis............................................................................... 12

Table 7. Scenario 2 Efficiency Enhancements and Costs .................................................................... 13

Table 8. Scenario 2 Replacement Improvements, Costs, and Cost Premiums .................................. 14

Table 9. Scenario 2 Improvement Summary .......................................................................................... 15

Table 10. Scenario 2 First-Year Cash Flow Analysis............................................................................. 15

Table 11. Scenario 3 Specifications and Costs for Efficiency Enhancements................................... 16

Table 12. Scenario 3 Specifications and Costs for Higher Performance Replacement Choices ..... 17

Table 13. Scenario 3 Improvement Summary ........................................................................................ 18

Table 14. Scenario 3 First-Year Cash Flow Analysis............................................................................. 18

Table 15. Summary of Scenarios 1, 2, and 3 .......................................................................................... 20

Table 16. City of Melbourne Test House Analysis................................................................................. 24

Table 17. City of Melbourne Test House 1 Improvement Summary..................................................... 25

Table 18. City of Melbourne Test House First Year Cash Flow Analysis ............................................ 25

Table 19. City of Melbourne Revised Typical Specifications and Costs for Efficiency 

Enhancements .................................................................................................................................... 27

Table 20. City of Melbourne Revised Typical Specifications and Costs for Higher Performance 

Replacement Choices ........................................................................................................................ 28

Table 21. City of Melbourne Revised Specifications Improvement Summary.................................... 28

Table 22. City of Melbourne Revised Specifications Projected First-Year Cash Flow Analysis ...... 29

Table 23. Post-Retrofit Duct Testing Results......................................................................................... 37

Table 24. Summary of Scenarios 1, 2, and 3 .......................................................................................... 41

Unless otherwise noted, all tables were created by BA-PIRC. 
viii

Definitions

ACCA Air Conditioning Contractors of America

ACH50 Air changes per hour at a standard test pressure difference of 50 Pascals

AHU Air handling unit

BA-PIRC Building America Partnership for Improved Residential Construction

BEopt Building Energy Optimization software

CFL Compact fluorescent lamp

COP Coefficient of performance

DOE U.S. Department of Energy

EF Energy factor

FSEC Florida Solar Energy Center

HERS Home Energy Rating System

HSPF Heating seasonal performance factor

HVAC Heating, ventilation, and air conditioning

JCHS Joint Center for Housing Studies

kWh Kilowatt hour

NFRC National Fenestration Rating Council

NSP Neighborhood Stabilization Program

QA Quality assured

SEER Seasonal energy efficiency ratio

SHGC Solar heat gain coefficient
ix

Acknowledgments

This report describes Phase 2 of collaborative research launched in 2009 as a field study (Phase 

1). The research was supported initially by the Florida Energy Systems Consortium (2009) and 

subsequently sponsored by the U.S. Department of Energy (DOE), Office of Energy Efficiency 

and Renewable Energy, Building America Program under cooperative agreement number DEFC26-06NT42767 (2010) and Subcontract Task Order KNDJ-0-40339-00.

The support and encouragement of past DOE program managers, George James, Terry Logee, 

Ed Pollock, Ren Anderson, and William Haslebacher, as well as current DOE program 

managers, Stacey Rothgeb, Eric Werling, Sam Rashkin, and David Lee, are gratefully 

acknowledged. This support does not constitute DOE endorsement of the views expressed in this 

paper.

We thank Eric Martin, project director of BA-PIRC, for his direction and support. 

Phase 2 research was conducted collaboratively with three local government partners:

• Melinda Thomas, Sueann Thomaston, Larry Shouppe, City of Melbourne, Housing & 

Community Development Department, Melbourne, Florida

• Diana Giraldo, City of Fort Myers, Office of Sustainability, Fort Myers, Florida 

• Ian Golden, Chuck Mays, Tom Sullivan, and Sandra Urban, Brevard County Housing and 

Human Services Department, Viera, Florida.

Phase 2 research could not have been conducted without the contributions of our Phase 1 

partners: 

• Nina Powers, Sustainability Outreach Coordinator at Sarasota County Government

• Don Hadsell, Director of the Sarasota Office of Housing and Community Development

• Nan Summers, former Director of the Florida House at Sarasota County Government

• Tanya Lukowiak and Sandy McKitterick of Community Housing Trust of Sarasota 

County, Inc.

• Che Barnett of Greater Newtown Community Redevelopment Corporation

• Dean Shelton of Habitat for Humanity of Sarasota, Inc.

• Laura Carter Taylor of Goodwill Industries, Manasota, Florida

• Ian Golden, Sam Detra, Roy Davis, and Tom Sullivan of Brevard County Housing and 

Human Services Department, Brevard County, Florida

• Dona DeMarsh, Paula Szabo, and Sue Redstone from Volusia County Community 

Assistance, Volusia County, Florida

• Mike Byerly, Alachua County Commission, Ken Fonorow, Florida H.E.R.O., and 

Thomas Webster and Karen Johnson of Alachua County Housing Programs, Alachua 

County, Florida
x

• Mitchell Glasser, Lee Coulter, Dave Tarpley, and Barry Counts of Orange County 

Housing & Community Development, Orange County, Florida

• Sue Hann, John Rodgers, and Robert Williams of the City of Palm Bay, Florida

• Certified Home Energy Raters Kevin Schleith and Patrick Gillis.

We are grateful for the dedication and contributions of fellow Florida Solar Energy Center staff 

members, past and present, including David Beal, Bryan Amos, Ian Lahiff, Oscar Toledo, David 

Hoak, Keith Abbott, Dave Chaser, Stephanie Thomas-Rees, Jamie Cummings, and Billy 

Bauman. Special thanks are due to Danielle Daniel for her excellent editorial assistance.
xi

Executive Summary

Approximately 70% of America’s 132 million existing homes were constructed prior to the 

1990s (U.S. Census Bureau 2011), when states began adopting residential energy codes. 

Improving the energy efficiency of even a portion of these homes could generate substantial 

energy savings. Many local government and nonprofit entities have funds to renovate distressed, 

foreclosed homes in this vintage for the affordable housing market. They have numerous 

opportunities to improve whole-house energy efficiency because of neglect and deterioration of 

both the envelope and major equipment. While motivation to capitalize on these opportunities is 

high, conflicting information in the marketplace and variations in house condition complicate 

decision-making. 

During 2009, 2010, and 2011, researchers of DOE’s Building America Partnership for Improved 

Residential Construction (BA-PIRC) provided analysis and recommendations to eight affordable 

housing entities conducting comprehensive renovations in 70 distressed, foreclosed homes in 

central Florida (Phase 1). Partners achieved a mutually agreed upon goal of 30% improvement in 

Home Energy Rating System (HERS) Index score in 46 renovations.

The study found that moderately more efficient replacement components and additional 

efficiency enhancements can be combined to cost-effectively achieve projected annual wholehouse energy savings of 15%–30% and higher in typical existing homes in central Florida. 

Improvement levels correlated more closely with pre-retrofit HERS Index scores, an indicator of 

whole-house efficiency, than with age of the home, which might be thought of as an indicator of 

relative inefficiency.

At the end of Phase 1, researchers identified the most prevalent strategies in the deep retrofits 

and compiled a set of best practices appropriate to the current labor pool and market conditions 

in central Florida (McIlvaine et al. 2013a).

1 The strategies apply variably to homes depending on 

existing conditions, simplifying decision-making for retrofit program managers and staff.

In Phase 2, the best practices were refined based on feedback from new partners: the City of 

Melbourne and the City of Fort Myers (Appendix A; McIlvaine et al. 2013b). Both partners 

incorporated the best practices into master specifications for community-scale renovation 

programs. The City of Fort Myers subsequently shifted activity to redevelopment. The 

Melbourne program included 10 renovations; seven were completed at the time of this report. 

Researchers posed four research questions in Phase 2 in preparation for broader deployment of 

the best practices:

• Research question #1: What range of energy efficiency cost savings can be expected from 

implementation of the current best practices in a variety of implementation scenarios? 

The answer varies with the pre-retrofit whole-house efficiency and condition of major energyrelated characteristics. Fewer of the best practices are relevant to homes that do not need energy-

 1 All subsequent reference to “best practices” refers to the current best practices reported by McIlvaine et al. 

(2013a). The best practices were refined and revised at the end of Phase 2 and published as a working document 

(McIlvaine et al. 2013b). The revised, Version 2, best practices are included in Appendix A.
xii

related replacements or that have relatively high whole-house efficiency. Researchers found 

typical specifications drawn from the best practices result in 19%–28% projected annual energy 

cost savings compared to minimum efficiency retrofit options when applied to an average 

distressed home (HERS Index ~130). This was reflected in both field work and simulation.

• Research question #2: To what extent are partners willing and able to adopt the best 

practices?

Program managers and staff were willing to adopt improvements if there was compelling 

evidence that the benefit to the occupants justified the investment, and that implementation 

would be practical given program boundaries and existing market conditions (labor, availability, 

code compliance, etc.). The decision-making process included input from multiple program 

stakeholders including top management, field work management, and contractors. In some cases, 

staff found that the cost and availability of higher performance options had changed since they 

last reviewed the market. Additionally, implementation of the best practices was easier to 

manage in stages. Achieving new goals was aided by developing clear, standardized language for 

bid documents and work write-ups. 

• Research question #3: What steps (training, test houses, presentations to decision-makers, 

provision of research results, etc.) help to engage partners in implementation?

Group discussions with administrators, financial, and field staff that encompassed building 

science, practical applications, and financial considerations clearly helped to build momentum, 

confidence, and interest. True engagement seemed to arise coincident with conducting 

simulation analysis to answer a partner’s specific questions (e.g. seasonal energy efficiency ratio 

[SEER] 13 versus SEER 15) and to compare their standard approach to the best practices in one 

of their real projects. The former contributed to confident decision-making. An important step in 

implementation of unfamiliar details, such as sealing return plenums, required prototyping in test 

homes to give staff and contractors guided, first-hand experience.

In Phase 2, it was intended that this support would come from a certified home energy rater or 

other qualified consultant rather from researchers. In the case of the City of Melbourne, there 

were no funds available for such support. This will likely be a barrier to wider adoption of the 

best practices.

• Research question #4: Which elements, if any, required technical assistance from BAPIRC? Can the language of the best practices be adjusted to overcome this need?

The City of Melbourne implemented the majority of best practices applicable to its homes. For 

elements involving unfamiliar building science concepts, there was a need to provide training on 

heat, air, and moisture flow dynamics to allay concerns. This could constitute a barrier to 

implementation in the absence of a qualified professional with a building science background. If 

the reasoning behind a practice is not well understood, there is a risk that it will be a lower 

priority practice. It is unlikely that this can be resolved in the context of a document focused on 

best practices; however, Building America publications available through the website, online 

training through programs such as ENERGY STAR® for Homes, and the emerging Building 
xiii

America Solution Center provide excellent resources to serve program staff who are motivated to 

learn building science principles and applications. 

Eight “lessons learned” presented in the conclusions provide recommendations for local 

governments and nonprofit affordable housing providers on incorporating the best practices into 

master specifications for community-scale deep retrofits.

These lessons, combined with the refined best practices documented in Appendix A, provide 

guidance for program managers striving to achieve deep retrofit goals in the context of a 

foreclosed home renovation in pre-energy code era homes.
1

1 Introduction

Approximately 70% of America’s 132 million existing homes were constructed prior to the 

1990s (US Census Bureau 2011), , when states began adopting residential energy codes.

Improving the energy efficiency of even a portion of these homes could generate substantial 

energy savings. 

In many communities, local government and nonprofit entities have funds to purchase and 

renovate distressed, foreclosed homes for resale in the affordable housing market. Numerous 

opportunities to improve whole-house energy efficiency are inherent in these comprehensive 

renovations. In 2009, researchers of the Building America Partnership for Improved Residential 

Construction (BA-PIRC) began talking to affordable housing providers in Florida about 

capitalizing on these opportunities. While motivation to capitalize on these opportunities is high, 

conflicting information in the marketplace and variations in house condition complicate 

decision-making. Program managers requested recommendations that could be applied 

unilaterally across all homes in their programs.

Researchers worked with about a dozen programs in a multiyear field study, making 

recommendations in individual homes, meanwhile compiling improvement costs, projected 

energy savings, practical challenges, and labor force factors surrounding common energy-related 

renovation measures. The field study, Phase 1 of this research, resulted in a set of current best 

practices appropriate to the current labor pool and market conditions in central Florida 

(McIlvaine et al. 2013a).

2 We found that moderately more efficient replacement components and 

additional efficiency enhancements can be combined to cost-effectively achieve projected annual 

whole-house energy savings of 15%–30% and higher.

In Phase 2, researchers conducted a simulation study and worked with a local government 

partner to implement and refine the “current best practices.” Our new local government partner, 

the City of Melbourne, implemented the best practices in a community-scale renovation program 

that included 10 homes in 2012. Additionally, a simulation study was conducted to characterize 

savings potential in the same home under three sets of as-found conditions (Scenarios 1, 2, and 

3). These represent varying two levels of renovation expenditure and three levels of replacement 

needs that apply readily to the general remodeling industry as well as renovation of distressed, 

foreclosed homes for the affordable housing market.

1.1 Remodeling Industry Trends and Spending

The downturn in construction activity affected new construction far more than remodeling,

which dropped to slightly above 2003 levels (Figure 1). Since 2005, the remodeling industry’s

share of total residential construction investment has steadily risen (JCHS 2011a). In fact, the 

value of private remodeling activity exceeded that of private single-family new construction by 

1% in 2009 and 2010 (Figure 1).

 2 All subsequent reference to “best practices” refers to the current best practices reported by McIlvaine et al. 

(2013a). The best practices were refined and revised at the end of Phase 2 and published as a working document 

(McIlvaine et al. 2013b). The revised, Version 2, best practices are included in Appendix A.
2

Figure 1. The value of private remodeling activity exceeded that of 

private single-family new construction by 1% in 2009 and 2010

(U.S. Census Bureau 2012)

The Joint Center for Housing Studies (JCHS) at Harvard University and the Home Improvement 

Research Institute collect and analyze data relating to household remodeling spending. Based on 

2009 data presented by JCHS (2011b), owners spent just over $6,000 annually during the first 2 

years of ownership ($12,000 combined). This figure was more than double the usual amount, 

which averages $2,500 (JCHS 2011b). This suggests a renovation effort that includes 

replacement of one or more major components or equipment.

According to the Home Improvement Research Institute, buyers of distressed homes, such as the 

ones involved in this study, spend an average of 14% more on improvements within the first year 

of ownership than buyers of nondistressed homes (JCHS 2011b). This is attributed to the lack of 

maintenance undertaken while homes have been in foreclosure or vacant (JCHS 2011b). As 

exhibited by projects in Phases 1 and 2 of this research, energy-related improvements are often 

included in these major renovations of distressed homes to replace worn-out equipment and 

components or bring homes up to market standards. Distressed homes were identified as those 

bought from financial institutions, purchased as short sales, or with loans that were either 

delinquent or in the foreclosure process in the JCHS report (2011b). The data are not 

disaggregated by buyer type, such as primary residence, investor, or publicly funded programs. 

Additionally, the amount spent repairing distressed homes at time of sale appears to be trending 

upward. Baker (2012) shows that Fannie Mae spending on foreclosed home repairs rose from 

$5,600 in 2010 to $6,100 in 2011.

This research (Phases 1 and 2) focuses on publicly funded programs that rehabilitate and 

renovate foreclosed homes; however, the previously described findings suggest that the research 

may be relevant to buyers and owners, in general, undertaking the improvement of distressed 

properties. Partners in Phase 1 were mostly recipients of Neighborhood Stabilization Program 

$0

$50

$100

$150

$200

$250

$300

$350

$400

$450

$500

1994 1996 1998 2000 2002 2004 2006 2008 2010

Expenditures (Billions)

Year

Annual Value of New Residential Construction and 

Existing Home Additions and Alterations* Put in Place

Single Family

Adds/Alts*

*Includes remodeling, additions, and major replacements to owner-occupied properties subsequent to 
3

(NSP) funding awarded by the U.S. Department of Housing and Urban Development for the 

purchase and renovation of foreclosed homes for resale as affordable housing. Proceeds from 

sales are reinvested to continue the work.

Phase 1 of this research was a field study of 70 comprehensive Florida (hot-humid climate) 

renovations conducted from mid-2009 through the end of 2011 by 10 nonprofit and local 

government housing entities, mostly NSP recipients. Findings are detailed by McIlvaine et al.

(2013a). Key findings underpinning and relevant to Phase 2 are presented here for convenience.

1.2 Phase 1 Summary

The partnership goal was a 30% improvement in Home Energy Rating System (HERS) Index 

score between pre-retrofit and post-retrofit conditions while preserving or enhancing occupant

safety, indoor air quality, building durability, and comfort at a cost-neutral price point. This is 

roughly equivalent to the program goal of 30% reduction in projected energy cost set forth in the 

Building America House Simulation Protocols (Hendron and Engebrecht 2010). Such 

renovations are referred to as “deep energy retrofits.” The goal criterion was modified slightly in 

Phase 2 to improve consistency with other Building America research. 

No utility data were available for these unoccupied homes. Improvement was assessed by 

comparing the HERS Index score and the projected annual energy cost of pre- and post-retrofit 

conditions of each house as assessed during pre- and post-retrofit audits. 

Nearly all the distressed homes in Phase 1 needed multiple energy-related improvements. The 

average HERS Index score improvement (pre- versus post-retrofit) among the 70 houses was 

34%, with average projected annual energy cost savings of 25%. The deep retrofit goal was met 

in 46 homes with an average HERS Index score improvement of 41%, ranging from 30% to 

60%.

The study found that moderately more efficient replacement components and additional 

efficiency enhancements can be combined to cost-effectively achieve projected annual energy 

savings of 15%–30% and higher in typical existing homes in central Florida. Improvement levels 

correlated more closely with pre-retrofit HERS Index scores, which reflect home improvements 

and replacements, than with vintage.

The most prevalent improvements among the deep retrofits were coalesced into a set of current 

best practices reported by McIlvaine et al. (2013a).

1.2.1 Development of the Current Best Practices

The current best practices were distilled from the choices made by partners for 70 homes in the 

current marketplace. In addition to projected energy savings, current marketplace conditions

influenced decisions including cost and availability, buyer expectations, skills and preferences of 

trade contractors, and program expectations, policies, and limitations. This methodology differs 

from a simulation optimization study, such as that conducted for “pre-code” homes by Fairey 

and Parker (2012) that examined a set of retrofit opportunities for the hot-humid climate similar 

to those found in the Phase 1 field study. The distilled “current best practices” represent what is 

currently accepted as practical and feasible to contractors, funding agencies, and trades in the 

affordable housing sector, which is traditionally risk averse and very cost conscious.
4

Another factor influencing energy improvement choices was that the overall scope of renovation 

in each house was set prior to purchase based on the condition of major components (e.g.,

structure, finishes, fixtures, windows) and equipment so that investment needed to restore the 

home to market acceptance could be weighed against the anticipated sale price. Unless a 

component or piece of equipment was at or near the end of its useful life (herein referred to as 

“replacement at wear out”) or below market expectations, it was not slated or even considered 

for replacement. Analysis provided to partners included moderately higher performance 

specifications for replacements and efficiency enhancements (excluding replacements at wear

out) such as compact fluorescent lamps (CFLs) and ceiling insulation. Researchers developed an

improvement package that collectively generated a positive first-year cash flow with a 30% 

improvement of HERS Index score between pre-retrofit and post-retrofit conditions. 

The current best practices reflect partner choices in the existing marketplace and labor force. 

Researchers found 13 key strategies that were evident in the field study (Table 1). Those formed 

the basis of the best practices. To that, we added some known missed opportunities and building 

science measures not thoroughly implemented but deemed necessary for high performance 

housing. In particular, a passive outside air ventilation system was recommended for all 70 

houses; however, only one included this. Reasoning is discussed in the field study report

(McIlvaine et al. 2013a).

Table 1. Prevalence of 13 Key Efficiency Strategies Implemented

13 Key Efficiency Strategies

Deep 

Retrofits 

(n = 46)

Non-Deep 

Retrofits 

(n = 24)

All 

Houses

(n = 70)

1. Higher cooling and/or heating efficiency at 

replacement 96% 71% 87%

2. Additional ceiling insulation 93% 63% 83%

3. Better whole-house airtightness (ACH50a) 92% 77% 88%

4. Better measured3 air distribution (duct) 

tightness (Qn,out) 86% 68% 80%

5. Lower solar heat gain coefficient (SHGC) 

window film or windows at replacement 

windows

80% 46% 67%

6. ENERGY STAR® refrigerator at replacement 76% 71% 74%

7. Slightly higher efficiency water heater at 

replacement (electric EF=0.92) 70% 38% 59%

8. 30% more fluorescent fixtures/bulbs 52% 42% 49%

9. Programmable thermostat 48% 42% 46%

10. Replaced duct system 39% 13% 30%

11. Higher reflectivity exterior wall color at 

replacement 30% 8% 23%

12. Higher reflectivity roof shingles at replacement 30% 13% 24%

13. Higher efficiency ceiling fan(s) at replacement 15% 13% 14%

a. Air changes per hour at a standard test pressure difference of 50 Pascals.

 3 Duct leakage to the outside measured under depressurization conditions according to ASTM test results normalized 

for conditioned square footage (ASTM International 2013).
5

These practices, too, relate to readily available, off-the-shelf technology and current labor and 

market conditions in the affordable housing sector. Higher performance specifications than those 

most evidenced in the field study may be cost effective; however, they were passed over for 

various reasons. This is explored in the field study report (McIlvaine et al. 2013a). 

Phase 1 key finding: The deep retrofit improvement packages (30% improvement in HERS 

Index score) were very similar but produced varying degrees of improvement because of varying 

degrees of pre-retrofit whole-house efficiency. The non-deep retrofits included many of the same 

best practices, but fewer in each home.

1.2.2 Cost Effectiveness

In both Phase 1 and Phase 2, cost effectiveness compared projected annual energy cost savings 

and the annual increase in mortgage cost for the improvement package. First cost estimates came 

from partners’ previous projects or cost data in the Building America Building Energy

Optimization (BEopt) software. Cost effectiveness is considered achieved if 1 year of projected 

savings exceeds 1 year of increased mortgage burden from financing the first cost. In the case of 

improvements made strictly for efficiency enhancement, such as ceiling insulation, the increased 

mortgage burden was calculated using the full first cost of the improvement which was then 

compared to full projected annual savings. However, for replacement equipment, which was 

selected by partners only when it was needed from a functionality standpoint, analysis 

considered only the cost and benefit of making a higher efficiency choice. For example, when 

partners determined that an air conditioner would be replaced, it was often a seasonal energy 

efficiency ratio (SEER) 10 unit, which is no longer available on the market. Even a minimum 

efficiency replacement under U.S. Department of Energy (DOE) appliance standards (a SEER 13 

unit) would generate significant savings. Analysis was done to project the additional or 

incremental savings generated by choosing a SEER 15 air conditioner instead of the minimum 

efficiency SEER 13 replacement, ignoring the savings gained between the SEER 10 and SEER 

13 systems. That incremental savings was then compared to the incremental cost of the higher 

efficiency replacement over the minimum efficiency replacement. 

In Phase 1 of the study, only mechanical equipment replacements were treated in this manner. 

But in Phase 2, researchers adopted several other minimum replacement specifications for 

windows, water heaters, and refrigerators related to Building America program standards for 

benchmarking rather than market availability. This change makes the analysis more consistent 

with other Building America existing homes analysis, specifically analysis done with BEopt’s

existing home reference building.

The cost effectiveness goal for this study was cost-neutral, first-year cash flow, which compares

the increase in annual mortgage cost to the projected annual energy cost savings. When annual 

savings exceed increased annual mortgage cost, a positive cash flow results from the first year of 

occupancy onward. This method of assessing cost effectiveness is applicable to programs such as

NSP that sell homes after renovation. However, it does not factor in the expected lives of items 

that will need replacement during the loan period. The mortgage terms of 30 years at 7% interest 

used in the analysis are consistent with other Building America projects. Cash flows would be 

higher under mortgage rates typical of the current market. The post-retrofit sales price was not a 

part of the evaluation.
6

Partners reported costs for 42 of the 46 deep retrofits. Incremental (premiums for higher 

performance options combined full cost for efficiency-only improvements) ranged from $780 to 

$8,382 with an average of $3,854. There was a positive cash flow in 36 of the retrofits, ranging 

from a few dollars to $626. The average first-year annual cash flow for the 46 deep retrofits was 

positive ($169).

Phase 1 key finding: The deep retrofit improvement packages generated positive first-year cash 

flow of varying degrees with reasonable incremental cost within the context of a major 

renovation.

1.2.3 Phase 1 Gaps and Barriers Addressed in the Best Practices

Several gaps and barriers identified in Phase 1 are addressed in the best practices included in 

Appendix A of this report. Key findings include:

• A home energy rater or similar professional can provide skills and knowledge to the

implementation planning, training, and analysis process to help fill the building science 

knowledge gap. 

• A home energy rater or similar professional can provide post-retrofit testing to ensure 

targets have been met that cannot be assessed visually.

• Lists of common leakage points for whole-house and duct air sealing can increase the 

likelihood that airtightness targets are met without a contractor recall.

• The Florida residential mechanical code includes requirements for system and equipment 

sizing, equipment and duct installation, and construction detailing for new construction 

that can be applicable, though not required, in existing homes. 

1.3 Phase 2 Goals and Research Questions

In Phase 2 of this study, researchers investigated three implementation scenarios for the current 

best practices and a community-scale implementation by the City of Melbourne. A second 

partner, the City of Fort Myers, completed the first segment of partnership but subsequently 

shifted activity to redevelopment. The following research questions are addressed: 

• What range of energy efficiency improvement can be expected from implementation of 

the current best practices in the three implementation scenarios? 

• To what extent are partners willing and able to adopt the best practices?

• What steps (training, test houses, presentations to decision-makers, provision of research 

results, etc.) help to engage partners in implementation?

• Which elements, if any, required technical assistance from BA-PIRC? Can the language 

of the best practices be adjusted to overcome this need?
7

2 Expected Improvement Results From Implementation of the 

Best Practices 

The best practices reflect the varying degree of efficiency in the existing housing stock. There is 

no one-size-fits-all improvement package for deep retrofits. For example, almost all of the deep 

retrofits in Phase 1 included replacement of worn-out or missing mechanical equipment. 

However, making mechanical system replacement part of a standardized deep retrofit

improvement package, regardless of need, would be imprudent. The incremental cost of a higher 

efficiency replacement can be justified based on first-year cash flow; however, the full cost of a 

system replacement cannot. For each category of energy-related renovation activity, the language 

of the best practices differentiates those that apply to replacement choices at “wear out” from 

those that apply when no replacement is needed. This means that the best practices are 

differentially applicable to houses in varying conditions. In a community-scale program, a range 

of efficiency improvement will be achieved from application of the best practices to the extent 

that the homes vary in as-found, whole-house efficiency and remaining service life of key 

equipment and components.

To assess what range of energy efficiency improvement might result from application of the 

current best practices at community scale, researchers produced a simulation analysis for three 

scenarios likely to manifest in any given community. A HERS Index score for a pre-energy code 

home of 1970s vintage was derived by selecting the most typical or approximate average 

characteristics of the 70-home dataset. Airtightness levels are representative of similar-aged 

homes from the field study. The resulting 131 HERS Index score is just slightly higher than the 

70-home dataset average of 129. This was also deemed to be an appropriate base model because 

homes with this level of whole-house efficiency or worse have a very good chance of achieving 

30% improvement over the pre-retrofit HERS Index score by implementing a combination of the 

best practices. This is evidenced by the linear regression line in Figure 2 that shows the fit 

between the pre- and post-retrofit HERS Index for the whole 70-house dataset (R2 = 0.4994). 

Only two homes (red diamonds) with pre-retrofit HERS Index score above 124 failed to achieve 

a 30% improvement when comparing pre-retrofit to post-retrofit HERS Index.

For reference, although the Florida energy code and the HERS Index calculation methodology do 

not have one-to-one correlation, researchers find that code compliant new homes in Florida 

generally score in the mid to upper 80s on the HERS Index.
8

Figure 2. HERS Index improvement compared to the pre-retrofit 

HERS Index for the whole 70-house dataset

Table 2 lists key energy-related characteristics and projected annual energy source energy 

generated with BEopt and site energy use, energy cost, and the HERS Index score generated with 

EnergyGauge USA.

4

Table 2. Energy-Related Characteristics of Base Home 

Characteristic As-Found Base Home Specification

Location, Climate Zone Orlando, Florida, climate zone 2

General 1,422 ft2

, typical for 1960s construction in 70-home 

field study, 3 bed, 2 bath

Utility rate $0.12/kWh (typical Florida)

Roof Finish Medium colored asphalt shingles; 

solar absorptance = 0.85; vented

Ceiling Insulation R-15 ceiling insulation, vented attic

Exterior Walls R-4.7 concrete masonry units, solar absorptance = 0.6

Windows Single, clear, metal (U = 1.16; SHGC = 0.76)

Floors 60% tile

Whole-House Infiltration ACH50 = 14

Heating and Cooling System 10 SEER; 2.5 ton; electric resistance heat; COPa = 1

Air Distribution System Leakage 18% @ supply leak (Qn,out = 0.19); R-6

 4 Projections generated by EnergyGauge USA, an hourly energy use simulation software, were used for analysis 

during partnership development and tracking. BEopt analysis was conducted for Building America program 

reporting and project tracking, but BEopt simulation results were not used for partnership activity or final analysis 

because of modeling challenges related to existing house reference home characteristics. 
9

Characteristic As-Found Base Home Specification

Supply/Return/Air Handler 

Locations Attic/interior/interior

Water Heating System 40 gal, electric; EFb = 0.88

Refrigerator 18 in.3

; 540 kWhc/year

Lighting 20% CFLs (1474 kWh/year)

Fans Standard default

Projected Annual Source Energy 

Use (MBtu) (BEopt) 195

Projected Annual Source Energy 

Use (kWh) (Energy Gauge USA) 21,132

Annual Energy Cost (Energy 

Gauge USA) $2,535

HERS Index 131 a Coefficient of performance

b Energy factor c Kilowatt-hour

The three scenarios modeled to assess the potential range of savings represent varying conditions 

in the as-found home that do not affect the HERS Index. Specifically, the useful lives left in the 

items delineated in Table 2 above have implications for the cost effectiveness of making 

efficiency improvements. If a refrigerator needs to be replaced, a very small incremental 

investment (i.e., cost premium) can render savings. On the other hand, if the refrigerator is just as 

inefficient, but only 3 years old, it does not need to be replaced. The full cost of a new 

refrigerator cannot be justified on the basis of energy savings alone. The three scenarios portray 

the same house with varying degrees of needed renovation. They also portray varying degrees of 

budget availability. All three evaluations focus only on energy-related, current best practices 

measures. Additional health, safety, durability, and indoor air quality measures that either have 

no impact on energy use, or their impact is not represented in modeling software, are not part of 

this analysis.

Throughout the three scenarios, when a replacement is needed for functionality, the costeffectiveness calculations consider only the incremental cost premium of a higher performance 

choice compared to the incremental energy cost savings. Whenever the minimum allowable or 

market-accepted replacement specifications exceed the as-found specifications, savings and costs

are calculated with respect to the minimum replacement, not the as-found condition. The 

minimal efficiency air conditioner replacement described previously in Section 1.1.2 is an 

example. Full and incremental costs were drawn from a variety of sources. BEopt 2.0 was 

referenced where costs reflected researchers’ field experience. Where BEopt was out of range for 

this market, costs from partners or other Florida Solar Energy Center (FSEC) studies were used.

Table 3 provides references for all costs used in this Phase 2 analysis.
10

Table 3. Cost References

Measure Full Cost References Incremental Cost References

Asphalt Shingles BEopt $0

Ceiling Insulation City of Melbourne City of Melbourne

Exterior Paint Phase 1 $0

Windows City of Melbourne City of Melbourne/sliding glass 

door projected

Window Film Phase 1 Phase 1

ACH50 = 7 Phase 1

Runtime Ventilation City of Melbourne City of Melbourne

Air Conditioner BEopt Internal research

Duct Leakage Reduction BEopt BEopt

Electric Water Heater BEopt $0

Refrigerator BEopt Internal research

Lighting Energy Reduction BEopt BEopt

Fans City of Melbourne BEopt

2.1 Retrofit Scenario 1

Retrofit Scenario 1 assumes that none of the energy-related components or equipment in the asfound home warrant replacement for functionality. The package of improvements consists of 

those key strategies that can be implemented in the absence of need for replacements. These 

improvements are strictly for efficiency gains, though dissatisfaction with comfort and moisture 

control may be other motivators. 

A home with a HERS Index score of 131 that does not need any replacements could have the 

following hypothetical but realistic characteristics:

• Original single-pane awning or single-hung metal frame windows, well maintained

• Medium color exterior paint (solar absorptance of 0.6) and medium colored shingles

(solar absorptance 0.85), less than 5 years old

• Ceiling insulation upgraded in the 1990s from R-11 to R-19, average of R-15 due to 

compression, poor coverage, or displacement

• Central SEER 10 air conditioning with electric resistance heating, 9 years old (installed 

shortly before the 2006 federal minimum air conditioning efficiency shifted to SEER 13).

Air infiltration consistent with pre-energy code home of 1970s vintage, airflow bypasses 

at poorly sealed windows and doors, recessed lighting, plumbing penetrations, air handler 

unit (AHU) closet, and attic hatch cover.

• Duct leakage consistent with pre-energy code home of 1970s vintage with return air 

plenum formed in the lower part of the AHU closet by open framing and the AHU

support platform 

• Standard efficiency refrigerator, 5–7 years remaining life
11

• Standard electric tank water heater, 7 years old

• Three ceiling fans, good condition.

This scenario represents the whole-house efficiency that would be possible in the field study 

houses if they had not been moderately or severely distressed, which are commonly available on 

the Florida housing market. 

Retrofit Scenario 1 consists of five improvements (Table 4) that target the cooling load and 

specifically airflow control, which is essential for all high performance homes. 

Table 4. Scenario 1 Efficiency Enhancement Package and Full Costs

Component Improvement Specification

Estimated

Full Cost

($)

Estimated

Cost Premium

($)

Ceiling Insulation Insulated to R-38 1,063 1,063

Windows Tint windows (SHGC = 0.35) 696 696

Air Distribution System

Reduce duct leakage to 9% of 

rated AHU flow, supply side 

(roughly equivalent to 

Qn,out = 0.06)

233 233

Lighting Increased efficient lighting. 

(approximately 950 kWh/year) 139 139

Whole-house Infiltration Reduced to ACH50 = 7 749 749

Efficiency Enhancement

Package Estimated Cost 2,880 2,880

None of the Scenario 1 improvements involve replacements at wear out. All are implemented as 

an energy efficiency retrofit; therefore, the estimated full cost of the improvement, $2,880, is a 

cost premium (compared to doing nothing) and is considered in the cost effectiveness 

calculations. This level of spending could easily be accommodated in the initial investment of 

about $12,000 over the first 2 years of ownership and is very close to the average annual 

renovation spending of $2,500 cited in the JCHS report (2011b), refer to Section 1.1 above. 

Table 5 shows the savings for Scenario 1 compared to the as-found condition of the house.

Table 5. Scenario 1 Improvement Summary

As Found Scenario 1 Savings Savings (%)

Projected Annual Energy Use (kWh) 21,132 16,905 4,227 20%

Projected Annual Energy Cost ($) $2,535 $2,030 $505 20%

HERS Index 131 94 37 28%

Projected annual energy use and energy cost for Retrofit Scenario 1 are approximately 20%. The 

improvement package reduced the HERS Index 28% to 94, which is similar to new construction

homes in Florida. 
12

Elements of the Scenario 1 improvement package would be applicable to homes with better asfound whole-house efficiency that resulted from, for example, a previous mechanical system 

change out. The savings produced would be consequently lower because the annual heating and 

cooling costs would be low in the as-found house; however, there would still be improved 

airflow control and enhanced comfort benefits. Likewise, for homes in worse condition, like

those in the field study, savings would be consequently higher. The economic implications of 

implementing the five items in Retrofit Scenario 1 are shown in Table 6.

Table 6. Scenario 1 First Year Cash Flow Analysis

Estimated Full Costs $2,800

Annual Mortgage Increase (7% @ 30 years) $232

Projected Annual Energy Cost Savings $505

First Year Cash Flow +$273

Simple Payback (Years) 5.7

The estimated full cost of $2,880 is used to calculate the additional annual mortgage burden of 

$232 associated with Scenario 1 improvements. The affordable housing entities participating in 

the field study and this community-scale phase were making improvements at the time of resale.

This package would also apply, in general, to a home sale transaction. Projected annual energy 

cost savings of $505 translate into a positive first-year cash flow of $273. Under finance terms 

more consistent with current market rates, first-year cash flow would be higher for all three 

scenarios considered. At the same time, the expected useful lives of some measures are shorter 

than the 30-year mortgage period, which is a known bias in the cost effectiveness calculations.

2.2 Retrofit Scenario 2

Retrofit Scenario 2 represents a moderately distressed home with specifications similar to those 

of Scenario 1, but with several energy-related components with no service life left. Scenario 2 

includes measures that carry a low or no-cost premium for better replacements and efficiency 

enhancements that have a low full cost. 

Hypothetical characteristics for Scenario 2 would resemble Scenario 1, except that the following 

items will be replaced because of function or market appropriateness:

• Medium color exterior walls 

• Medium color shingles

• Refrigerator

• Standard efficiency, electric tank water heater

• Three ceiling fans.

Ceiling insulation was not included here because the existing as-found condition of R-15 is 

acceptable in the current marketplace. Addition of this measure would add about $900 of full 

first cost, a key decision factor in this scenario. Analysis showed that the combination of lighting 

and whole-house air sealing saved slightly more than the ceiling insulation for about the same 

estimated cost. 
13

Scenario 2 assumes this level of renovation would cost about $10,000 in the central Florida 

market. Many of the replacement measures in this package would likely be included in an initial 

renovation after purchase. The scenario assumes a budget increase of about 16%, or $1,900, for 

additional efficiency enhancements and higher performance replacement choices, raising the 

total to about $12,000. This amount of spending is reasonable given it is consistent with the 

reported average investment level in the first 2 years of homeownership reported by JCHS 

(2011b). Refer to Section 1.1 above.

The improvement package consists of four efficiency enhancements (Table 7) and five higher 

performance replacement improvements (Table 8). The package targets the cooling load, airflow 

control, appliances, lighting, and water heating (very small improvement). As in Scenario 1, the 

full cost of the efficiency enhancements is compared to the full savings from those measures. 

The cost premium is the difference in cost for a standard or minimum replacement and a higher 

performance replacement. This difference is compared to the savings generated only by the 

higher performance specification. 

Table 7. Scenario 2 Efficiency Enhancements and Costs

Components Improvement Specification

Estimated 

Full Cost

($)

Estimated

Cost Premium

($)

Windows Tint windows (SHGC = 0.35) 696 696

Air Distribution System

Reduce duct leakage to 9% of 

rated AHU flow, supply side

(roughly equal to Qn,out = 0.06)

233 233

Lighting Increased efficient lighting. 

(approximately 950 kWh/year) 139 139

Whole-House Infiltration Reduced to ACH50 = 7 749 749

Efficiency Enhancements

Estimated Cost 1,817 1,817
14

Table 8. Scenario 2 Replacement Improvements, Costs, and Cost Premiums

Component Replaced at Wear 

Out

Minimum 

Replacement 

Specification

Higher Performance 

Replacement Specification

Estimated Full 

Cost of Higher 

Performance 

Specification

($)

Estimated Cost 

Premium Over 

Minimum 

Specification

($)

3 Ceiling Fans Like efficiency ENERGY STAR 

(130 cfm/W at medium speed) 750 54

Refrigerator Same size rated at 

480 kWh/year

5

ENERGY STAR same size 

(374 kWh/year) 900 50

Medium Shingle Roof Same color White shingles

(solar absorptance of 0.75) 5,941 0

Medium Exterior Wall Paint Same color Light paint

(solar absorptance of 0.55) 2,090 0

Water Heater Like efficiency Same size electric tank

(EF = 0.92) 723 0

Replacement Total 10,404 104

Efficiency Enhancement Total 

(from above) 1,817 1,817

Total Full Cost and Total Cost 

Premium for Whole Package 12,221 1,921

 5 This is the minimum refrigerator replacement specification allowable under the Building America benchmarking protocols.
15

The estimated full cost total is $12,221. Efficiency enhancements totaling $1,817 of that, and the 

cost premium for higher performance replacement, accounts for $104 of the total full cost. The 

estimated efficiency-related outlay is $1,921. Note that the lighter color paint and shingles and 

slightly higher efficiency water heater do not carry a cost premium. ENERGY STAR ceiling fans 

and refrigerators carry a small premium of about $50 each. 

Table 9 shows projected savings. Retrofit Scenario 2, representing a moderately distressed home,

generates an estimated 19% annual energy and energy cost savings. The HERS Index score 

improved 26% to 96, which is similar to new construction homes in Florida.

Table 9. Scenario 2 Improvement Summary

As Found

As-Found With 

Minimum 

Replacement

Specifications

Scenario 2

Savings 

Over 

Minimum

Savings 

Over 

Minimum 

(%)

Projected Annual 

Energy Use (kWh) 21,132 20,982 16,904 4,078 19%

Projected Annual 

Energy Cost ($) $2,535 $2,518 $2,028 $490 19%

HERS Index 131 130 96 34 26%

Cash flow analysis is shown in Table 10. The estimated cost premium for Scenario 2 is $1,921, 

representing 16% of the estimated full cost of the package. The additional mortgage burden for 

the cost premium is $155. Projected annual energy cost savings of $490 generate a positive firstyear cash flow of $335. 

Table 10. Scenario 2 First-Year Cash Flow Analysis

Estimated Full Costs $12,221

Estimated Efficiency Cost Premium Over 

Minimum Replacement Specifications $1,921

Annual Mortgage Increase (7% @ 30 years) $155

Projected Annual Energy Cost Savings Over 

Minimum Specifications $490

First Year Cash Flow $335

Simple Pay Back (Years) 3.9

Scenario 2 produces a level of improvement similar to Scenario 1, with a cost almost $1,000 

lower. The point here is that significant improvement can be achieved for little incremental cost 

when key energy-related components reach the end of their service lives and higher performance 

options cost little to nothing. Cashing in on these choices requires being prepared ahead of the 

need with knowledge of what to select. The best practices provide this type of advance decisionmaking that could save decision-makers the time and effort of evaluating specific choices in 

specific houses. 
16

2.3 Retrofit Scenario 3

Retrofit Scenario 3 represents a significantly distressed home with specifications similar to those 

of Scenario 2, but also in need of window and complete heating, ventilation, and air conditioning 

(HVAC) system replacement. This scenario is most similar to the deep retrofits in the field study, 

and similarly, it includes almost all of the 13 key efficiency strategies highlighted in the field 

study report (McIlvaine et al. 2013a).

Hypothetical characteristics for Scenario 3 would resemble Scenario 2, except that: 

• Original, metal frame windows no longer function adequately.

• Central SEER 10 air conditioning with electric resistance heating shows severe neglect

(fouled coils, rust, mold, compromised refrigerant lines, etc.).

Scenario 3 combines Scenarios 1 and 2 with mechanical system and window replacements,

which generate large annual savings but also carry high capital costs. This level of renovation 

could be part of the major renovation within the first 2 years of ownership of distressed 

properties. The package also includes a passive outside air ventilation system that is part of the 

best practices. It adds cost as well as possibly reducing savings by introducing about 50 cfm of 

outside air into the return plenum whenever the AHU is operating. It is incorporated as an indoor 

air quality and airflow control measure. Efficiency enhancements are shown in Table 11, and 

higher performance specifications for replacements are shown in Table 12.

Table 11. Scenario 3 Specifications and Costs for Efficiency Enhancements

Components Improvement Specification Full Cost

($)

Efficiency 

Enhancement

Package Cost 

Premium

($)

Ceiling Insulation Insulated to R-38 1,063 1,063

Air Distribution System

Reduce duct leakage to 9% of 

rated AHU flow, supply side 

(roughly equal to Qn,out = 0.06)

233 233

Lighting Increased efficient lighting. 

(approximately 950 kWh/yr) 139 139

Whole-House Infiltration Reduced to ACH50 = 7 749 749

Outside Air Ventilation

Passive, supply only, ducted, 

dampered, and filtered outside 

air duct from soffit register to 

return plenum

500 500

Efficiency Enhancement

Cost (Full Cost) 2,684 2,684
17

Table 12. Scenario 3 Specifications and Costs for Higher Performance Replacement Choices

Component Replaced at 

Wear Out

Minimum 

Replacement 

Specification

Higher Performance 

Replacement 

Specification

Estimated Full Cost of 

Higher Performance 

Specification

($)

Estimated Cost 

Premium Over 

Minimum Specification

($)

Central Heating and 

Cooling

SEER 13, electric 

resistance heat; COP = 1

15 SEER, 8.5 heating 

seasonal performance 

factor (HSPF) air 

source heat pump

4,431 1,168

Windows

Double-pane, singlehung, clear, metal-frame 

windows (U = 0.76, 

SHGC = 0.67)6

Double-pane, singlehung, low-e, vinylframe (U = 0.37; 

SHGC = 0.30)

5,860 1,582

3 Ceiling Fans ENERGY STAR (130

cfm/W medium speed) 750 54

Refrigerator Same size rated at 480 

kWh/year

ENERGY STAR same 

size (374 kWh/year) 900 50

Asphalt Shingle Roof White shingles (solar 

absorptance of 0.75) 5,941 $0

Exterior Wall Paint Light paint (solar 

absorptance of 0.55) 2,090 $0

Water Heater Same size electric tank

(EF = 0.92) 723 0

Replacement Total 20,695 2,854

Efficiency Enhancement

Total (from above) 2,684 2,684

Total Full Cost and Total 

Cost Premium for Whole 

Package

23,379 5,538

 6 These are the minimum window and refrigerator replacement specifications allowable under the Building America benchmarking protocols.
18

Scenario 3 assumes an energy-related renovation cost of approximately $23,000 in the central 

Florida market, with about $5,500 for higher performance replacements and efficiency-only 

improvements. Table 13 shows an improvement summary for Scenario 3.

Table 13. Scenario 3 Improvement Summary

As Found

As-Found With 

Minimum 

Replacement

Specifications

Scenario 3

Savings 

Over 

Minimum

($)

Savings 

Over 

Minimum 

(%)

Projected 

Annual Energy 

Use (kWh)

21,132 19,228 13,862 5,366 28%

Projected 

Annual Energy 

Cost ($)

$2,535 $2,308 $1,664 $644 28%

HERS Index 131 113 69 44 39%

Analysis indicates that Retrofit Scenario 3 generates approximately 28% annual energy savings 

compared to the minimum replacement case with a comparable savings in projected annual 

energy cost. The HERS Index score improved 39% to 69.

In this scenario, the specifications for the minimum replacement case are significantly better than 

the as-found case. Even when high impact replacements such as mechanical equipment and 

windows are needed, incremental savings do not skyrocket because the minimum replacement 

specifications are more similar to the higher performance choices than they are to as-found. This 

erodes incremental improvement. The outside air ventilation system also works against 

incremental improvement, causing a slight increase in cooling and heating energy use. Table 14 

summarizes projected first-year cash flow.

Table 14. Scenario 3 First-Year Cash Flow Analysis

Estimated Full Costs $23,379

Estimated Efficiency Cost Premium Over Minimum 

Replacement Specifications $5,538

Annual Mortgage Increase (7% @ 30 years) $446

Projected Annual Energy Cost Savings $644

First Year Cash Flow +$198

Simple Payback (years) 8.6

The estimated cost premium for Scenario 3 is $5,538, representing about 24% of the estimated 

full cost of the package. The additional annual mortgage burden for the cost premium is $446,

with a projected annual energy cost savings of $644. This results in a first-year positive cash 

flow of $198.

Two elements in Scenario 3 do not generate positive cash flow on an individual basis: the outside 

air ventilation system and the low-e windows. 
19

The windows produce a negative first-year cash flow even though they produce incremental 

annual savings second only to the HVAC equipment replacement. Our partners report that low-e

windows cost approximately one-third more than standard double-pane windows in central 

Florida. However, the vast majority of them chose window replacements that were low-e, not the 

minimum market-accepted, double-pane clear units. Partners cited the fact that if low-e units are 

not selected at replacement now, it will be perhaps two decades or more before the chance arises 

again. Therefore, it has been included in the best practices based on merit of avoiding a major 

“missed opportunity.” Improved comfort may reduce energy consumption in a way not 

accounted for in modeling by eliminating local “hot spots” near windows that prompt occupants 

to reduce the cooling set point. 

The passive ventilation system delivers a small amount (e.g., 50 cfm) of outside air via ducted 

path to the return plenum while the mechanical system is running. BA-PIRC and other Building 

America teams and partners have specified this system in thousands of new Florida homes to 

provide a small amount of ventilation and simultaneously induce a slight positive pressure in the 

main body of the home (with respect to outdoors) only while the AHU is operating. Combined 

with a tight duct system and passive return air pathways from bedrooms, this detail reduces 

mechanically induced infiltration. Unfamiliarity with the system and space constraints inside 

AHU closets designed for smaller machines are barriers to wider implementation of this 

approach. 

2.4 Anticipated Level of Savings Summary

Table 15 summarizes the anticipated expense and savings from application of the best practices 

in three scenarios representing varying conditions of energy-related components and equipment 

that would be expected in a community-scale retrofit program. The base home has characteristics 

typical of the 70-home field study. Table 15 compares the three.

The base house for Scenarios 1, 2, and 3 has a HERS Index of 131. Each scenario represents a 

different level of opportunity for efficiency gains based on what energy-related components and 

equipment need replacing and available budget. The anticipated level of projected annual energy 

cost savings in a home of this typical character ranged from 19% to 28%. Cost premiums among 

the three scenarios ranged from about $1,900 to about $5,500. 
20

Table 15. Summary of Scenarios 1, 2, and 3

Description

Scenario 1

Efficiency 

Enhancement Package 

(No Replacements)

Scenario 2

Efficiency Enhancements 

and Higher Performance 

Replacements

Scenario 3

Scenarios 1 and 2 Plus HVAC 

and Window Efficiency 

Upgrades at Replacement

HERS Index Pre-Retrofit 131 131 131

HERS Index With Minimum 

Replacements (where applicable) NA 130 113

HERS Index Post-Retrofit 94 96 69

HERS Index Improvement

(over minimum, if applicable) 28% 26% 39%

Projected Annual Energy Cost Savings

(% over minimum if applicable) 20% 19% 28%

Estimated Full Costs $2,880 $12,221 $23,379

Estimated Efficiency Cost Premium $2,880 $1,921 $5,538

Annual Mortgage (7% @ 30 years) $232 $155 $446

Projected Annual Energy Cost Savings $505 $490 $644

First Year Cash Flow $273 $355 $198

Simple Payback (years) 5.7 3.9 8.6
21

3 Recruitment of Community-Scale Retrofit Partners

The Building America systems-engineering process centers on identifying potential problems 

and developing standardized methods of resolving them before they occur on the job site. Past 

Building America experience in both new construction and the 70-home field study has shown 

that test, or prototype, homes help identify barriers to adoption and gaps in technology or labor 

that can be resolved prior to ramping up to community-scale implementation. A standardized 

approach facilitates adoption of a high performance goal at the community scale. 

We wanted to see if new partners could and would use the best practices to develop a master 

specification document that essentially sets “default” specifications and establishes a 

standardized treatment of predictable as-found conditions. Ideally, if a home needs a refrigerator 

replacement, there is a specification in the master standard to put in the bid documents; the 

decision-making process is streamlined. Master specifications result in consistent treatment of 

the same change in multiple houses, which is an important element in public and nonprofit 

program accountability (no favorites). 

In Phase 2, the objective was to work with a new partner to see if the best practices alone, 

without the detailed level of researcher support provided in Phase 1, would be sufficient for the 

organization to set up internal master specifications and standardized bid document language. In 

essence, we wanted to test the viability of using the best practices as a tool in the general 

renovation community with emphasis on foreclosed properties and affordable housing.

Partnership invitations were sent directly to Florida recipients of federal funding (e.g., NSP, 

Community Development Block Grant), state funding (e.g., Florida State Housing Initiatives 

Partnership, Residential Construction Mitigation Program), and private/nonprofit funding

organizations (e.g., Habitat for Humanity) for renovation of multiple houses. Local government 

housing entities at Brevard County, the City of Melbourne (in Brevard County on the east coast), 

and the City of Fort Myers (Lee County on the west coast of south Florida) responded with 

serious intent to adopt the best practices.

Initially, the potential partners were provided with the best practices, renovation standards 

developed by the Sarasota Office of Housing and Community Development, and analysis 

examples from projects in the field study similar to the three scenarios described in Section 2. 

These resources helped potential partners develop a concrete understanding of how the best 

practices could be developed into retrofit standards and what application of them would look like 

in their program homes. Seeing activity of peers in other parts of the state added credibility to 

and emphasized practicality of the best practices.

All three partners agreed to work with researchers on two or three pilot “test” houses to test-drive 

the best practices. A further commitment to use the best practices to develop or augment existing 

master specifications, similar to the Sarasota example, was also required. 

Researchers recognized the need to be flexible within the standardization process because of 

variation in organizational readiness, goals, commitment, and familiarity with key high 

performance concepts. This was evident in the field study from variation among partners. 
22

Each partner was tasked with identifying any “no go” elements of the best practices. Initial 

discussions with all three housing agencies focused on evaluating the feasibility of unfamiliar 

specifications, construction details, quality assurance, and mandatory measures in the best 

practices. These included:

• Outside air ventilation system 

• AHU closet detailing

• Duct testing requirement and participation of a home energy rater

• Availability and cost premiums of ENERGY STAR products

• Use of heat pumps instead of central electric resistance heating

• Higher efficiency air conditioning

• Whole-house air sealing points

• Lighting fixtures rated for insulation contact and airtightness

• Passive return air pathways.

During these initial talks, researchers used partner feedback to modify the language and 

organization of the best practices to improve understanding. The iterative process of selecting 

which best practices the partners would include in their master specifications revolved largely 

around cost and practicality. Partner feedback throughout this process was instrumental in 

developing an improved version of the current best practices to address some of the 

implementation challenges.

Ultimately, the City of Fort Myers and the City of Melbourne Housing & Community 

Development created master specifications. Fort Myers met with researchers over multiple 

conference calls. Though the City of Fort Myers was not involved in prior FSEC retrofit 

research, it was already committed to many energy-efficient elements as standard practice in its 

new construction projects, including an independent energy rater’s involvement. As part of the 

pre-partnership work, the City of Fort Myers developed a flowchart of how researcher and rater 

involvement would both fit into the work process for retrofits. This was a helpful tool in 

identifying how best to incorporate recommendations into the retrofits, which will initially 

involve change orders as decisions on the standard practices detailed in Appendix C are 

finalized.

Researchers learned that all three of the partners use software designed for development of work 

write-ups and bid documents. The software uses libraries to hold standard specifications for use 

in any project. That became the path for integrating the best practices into bid documents. 

The City of Fort Myers has a well-developed master specification (Appendix C); however, 

difficulty acquiring retrofit properties under funding program guidelines directed the focus to 

new construction just as the master specification was being completed. The City of Melbourne 

put in an overall implementation effort with 10 homes. Therefore, the partnership with the City 

of Melbourne is addressed in the next section.
23

4 Partnership With the City of Melbourne

Preliminary discussions with the City of Melbourne (herein referred to as “the City”) included an 

overview of the current best practices and discussion of foreseen implementation gaps and 

barriers. Subsequently, the City committed to a program-wide adoption of a modified version of 

the best practices. 

In the process of deciding which best practices to adopt, The City was interested in analyzing 

higher performance options for exterior walls, windows, air conditioners, and water heating 

systems. Researchers provided simulation analysis of projected annual energy costs and savings 

for higher performance alternatives to typical specifications. This exercise was instrumental in 

the City’s decision to adopt the HVAC best practice of using ENERGY STAR or higher 

efficiency heat pumps in central Florida. 

BA-PIRC researchers reviewed the work order and cost estimate for a project in the early stages 

of development and made recommendations. Recommendations were presented in the form of 

analysis that included projected annual energy cost savings and first-year cash flow calculations

using cost estimates that they provided. Similar to the field study, the analysis addressed the 

planned scope of work and alternate specifications from the best practices. 

Through modification of the scope of work, recommendations were incorporated into the 

renovation. Table 16 describes the as-found condition of the home, partner’s original retrofit 

package, and final retrofit package with full and incremental costs reported by the partner.
24

Table 16. City of Melbourne Test House Analysis

Home Components As Found

Minimum

Improvement

Scenario

Partner’s 

Original Package

Partner’s Actual 

Final Package

Partner’s

Reported Full 

Costs

($)

Cost 

Premium

($)

Ceiling Insulation 1,104 ft2

, R-5 Insulated to R-30 829 829

Doors 1 insulated door; 1 

wood door 3 insulated 714 –

Floors 5% vinyl; 25% tile; 

70% carpet

65% tile; 

35% carpet 2,799 –

Whole-House

Infiltration ACH50 = 15.22

Drywall patch and 

window pane 

repair (estimated 

ACH50 = 8)

ACH50 = 11.92

–

(coincident 

with minor 

repairs)

–

Outside Air 

Ventilation None Passive “runtime” 

ventilation 4,313 1,879

Central Heating and 

Cooling Equipment

Missing; default 10 

SEER straight cool

13 SEER straight 

cool

13 SEER; 

right-sized 15.25 SEER 4,313 1,879

Integrated electric 

resistance heat 

(COP = 1)

integrated electric

resistance heat 

(COP = 1)

Heat pump; 

HSPF = 7.7

Heat pump; 

HSPF = 8.7 4,313 1,879

Air Distribution 

System

Qn,out = 0.145; 

ducts R-5.8

Improved leakage; 

(estimated

Qn,out = 0.07)

Qn,out = 0.037 4,313 1,879

Water Heating 

System

40 gal, electric; 

EF = 0.92

40 gal, electric; EF 

unspecified (no 

change assumed), 

thermal wrap 

(R-7)

No change 774 –

Cost Totals 9,429 2,708
25

The differences between the original package and the improved package were changes 

recommended by BA-PIRC except for the insulated doors and tile flooring. Those replacements 

were made for functional or market appropriateness, not for energy efficiency; however, each 

carries a small boost to whole-house efficiency with no cost premium. The tile flooring would 

not be a recommended efficiency improvement based on very small cooling benefit and 

comparatively high cost. 

The final retrofit included a moderately higher efficiency heat pump, R-30 ceiling insulation, 

improving duct airtightness to Qn,out < 0.06, and passive outside air ventilation. The ceiling 

insulation level in the best practices is R-38. Shallow roof pitch sometimes makes this 

impractical, especially because supply ducts occupy a portion of the limited head room.

The passive outside air ventilation system adds cost and increases energy use slightly, but is part 

of the best practices for indoor air quality. In practice, it induces a slight positive pressure in the 

house that prevents outside air from entering through breaches in the whole house air barrier 

while the AHU is running (“runtime”). The modeling software is not sophisticated enough to 

model this effect and as such does not credit infiltration reduction during conditioning.

Regarding infiltration, the achieved whole-house airtightness test result was close to ACH50 of 

12, approximately double the best practices target ACH50 of 6. At ACH50 of 12, the industry 

ventilation standard, ASHRAE 62.2, would not indicate a need for outside air ventilation. It was 

installed here as part of the best practices implementation trial.

The incremental cost for the final improvement package over the minimum was $2,708 (Table 

16), with an estimated annual energy cost savings of $231 (Table 17). Projected first year cash 

flow calculations are shown in Table 18.

Table 17. City of Melbourne Test House 1 Improvement Summary

As 

Found

As-Found

With 

Minimum 

Replacement

Specifications

Partner’s 

Original 

Package

Partner’s 

Final 

Package

Original 

Package

Savings Over 

Minimum

Final 

Package

Savings Over 

Minimum

Projected Annual 

Energy Use (kWh) 12,771 11,887 10,549 9,911 1,338 (11%) 1976 (17%)

Projected Annual 

Energy Cost ($) $1,488 $1,385 $1,229 $1,154 $156 (11%) $231 (17%)

HERS Index 134 119 108 89 11 (9%) 30 (25%)

Table 18. City of Melbourne Test House First Year Cash Flow Analysis

Estimated Full Costs $9,429

Estimated Efficiency Cost Premium Over Minimum 

Replacement Specifications $2,708

Annual Mortgage Increase (7% @ 30 years) $218

Projected Annual Energy Cost Savings $231

First Year Cash Flow +$13
26

Projected annual costs were reduced from $1,229 (11% savings over minimum) given the 

original package to $1,154 (17% savings over minimum) implementing the added efficiency 

improvements of the final package. Rolling the incremental cost into the sale price would 

increase the annual mortgage burden by $218, which is outweighed by $231 in projected annual 

energy cost savings (Table 18).

The analysis presented here was produced after the renovation was completed. Pre-retrofit 

analysis included a proposed deep retrofit package based on the best practices and included 

annual energy cost savings projections for each element of the retrofit. City staff were tasked 

with developing their own cost data rather than using our cost estimates. Decision-makers can 

decide for themselves whether the incremental cost justifies the incremental savings.

Seeing the positive first-year cash flow ($13 with the final retrofit package) early in the 

partnership gave the City’s staff a concrete understanding of how a modest investment could 

benefit their prospective buyers even though it slightly elevated the annual mortgage burden. 

This partner and others report that this quantitative exercise, using houses specific to their 

programs, aids the decision-making process and builds confidence among staff and 

administrators that funds are spent prudently. In both the field study and this community-scale 

investigation, researchers found that partners had a more animated response to this type of 

analysis than to measured field data or analysis examples from other partnerships.

Ideally, this introductory analysis would be provided by an independent home energy rater, 

which is a guideline in the best practices, so that the evaluation and guidance process could be 

sustained in absence of research participation. As we conducted this initial evaluation, we 

simultaneously provided a list of certified home energy raters in the area and advised retaining 

one. 

Immediately, a barrier to adoption of this best practice was proffered. The City’s funding for the 

housing and rehabilitation program includes restrictions that do not allow expenditure outside the 

context of a specific house. Any home energy rater activity would have to be consigned to the 

budget for a specific house and, consequently, arranged and paid for by the contractor winning 

the bid for that house. This may create a perceived or real conflict of interest if general 

contractors pay for their own rating services. There could be a skewed presentation of analysis 

data. The HERS rating industry has a nationwide code of ethics as well as quality assurance by 

HERS providers that could ameliorate this conflict. Two potential alternative ways to get 

analysis help of this nature are to recruit a volunteer rater who needs to do provisionary ratings 

for certification or build the internal capacity for conducting the simulation analysis. There are 

online tools that may serve this purpose more readily than sending an employee through home 

energy rater training.

After the introductory evaluation, the City selected a set of best practices to incorporate into 

projects through a master specification (termed retrofit standards by this partner) and, separately, 

into work write-ups and bid documents for individual houses. These two activities proceeded in 

parallel; otherwise, the opportunity for immediate implementation and partnership would have 

been missed. Whereas the master specification sets forth the standard treatment of specific 
27

aspects of renovation, work write-ups and bid documents translate those standard treatments into 

specifications for a given house.

Throughout 2012 and for the first quarter of 2013, the City applied its best practices to a set of 10 

additional houses in varying degrees of incorporation; however, only seven of these homes had 

been completed by the writing of this report. With the last few houses, integration was more 

thorough and consistent.

The current best practices document was refined based on implementation experiences of the 

City of Melbourne as it incorporated them into the master specifications (Appendix A; McIlvaine 

et al. 2013b). For instance, it was found that specifying ENERGY STAR windows was not 

enough to ensure they were being installed because the National Fenestration Rating Council 

(NFRC) labels were removed before the program staff conducted the final inspection. A best 

practice was added that called for the retention of NFRC labels to confirm specifications were 

being met. 

The following analysis (Tables 19–22) shows the end result of the City’s effort to integrate the 

best practices by examining its revised typical characteristics. The analysis assumes the same 

base house as shown for Scenarios 1–3 but relocated to Melbourne, which is closer to the coast 

and has a slightly different climate. Replacement needs shown in Table 20 are similar to those 

for Scenario 3 in Section 2.3 above, which is a reasonable portrayal of home conditions in the 

City’s renovation program. The package of improvements includes efficiency enhancements

(Table 19) and replacement upgrades (Table 20).

Table 19. City of Melbourne Revised Typical Specifications and 

Costs for Efficiency Enhancements

Components Efficiency Enhancement

Specification

Full Cost

($)

Efficiency 

Enhancement

Package Cost 

Premium

($)

Ceiling Insulation R-38 ceiling insulation 1,064 1,064

Whole-House Infiltration ACH50 = 7 Part of other measures

Air Distribution System Leakage 4.5% @ supply leak 

(Qn,out = 0.03); R-6 Part of HVAC Cost

Mechanical Ventilation Runtime ventilation 

@ 20% A-62.2 500 500

Lighting Increased efficient lighting. 

(approximately 950 kWh/year) 139 139

Efficiency Enhancement

Full Cost 1,703 1,703
28

Table 20. City of Melbourne Revised Typical Specifications and 

Costs for Higher Performance Replacement Choices

Component 

Replaced at Wear 

Out

Minimum 

Replacement 

Specification

Higher 

Performance 

Replacement 

Specification

Full 

Cost

($)

Replacement 

Improvement 

Package Cost 

Premium

($)

Windows

Replace with doublepane (U = 0.76, 

SHGC = 0.67)

Double-pane, tinted, 

vinyl (U = 0.23; 

SHGC = 0.20)

5,750 1,553

Heating and Cooling 

System

SEER 13; 2.5 ton 15 SEER; 2.5 ton

electric resistance 5,300 1,168

heat; COP = 1

heat pump; 

8.5 HSPF

Water Heating 

System

Replace with 

EF = 0.90

Replace with 

EF = 0.92 450 0

Refrigerator Replace with 

480 kWh/year

18 in.3; 

374 kWh/year

780 50

Replacement Cost 12,280 2,771

Efficiency 

Enhancement Total 

(from above)

1,703 1,703

Total Full Cost and 

Total Cost Premium 

for Whole Package

13,983 4,474

This City of Melbourne typical retrofit scenario results in about $14,000 in energy-related 

renovation cost, with a cost premium of about $4,500 for efficiency-only measures and higher 

performance replacements. Table 21 shows an improvement summary for Scenario 3 followed 

by projected cash flow analysis in Table 22.

Table 21. City of Melbourne Revised Specifications Improvement Summary

As 

Found

As-Found 

With 

Minimum 

Replacements

City of 

Melbourne 

Revised

Savings 

Over 

Minimum

($)

Savings 

Over 

Minimum 

(%)

Projected Annual Energy Use 

(kWh) 21,140 19,150 14,283 4,867 25

Projected Annual Energy Cost ($) 2,536 2,297 1,714 583 25

HERS Index 129 111 70 41 37
29

Table 22. City of Melbourne Revised Specifications Projected First-Year Cash Flow Analysis

Final Full Costs $13,983

Estimated Efficiency Cost Premium $4,474

Annual Mortgage (7% @ 30 years) $361

Projected Annual Energy Cost Savings $583

First-Year Cash Flow $222

Simple Payback (years) 7.7

The City of Melbourne staff have worked diligently to refine their standardized approach and 

integrated it more smoothly into bid documents and work write-ups. Their bottom line benefits 

from exceeding the best practices in three areas: mechanical system efficiency, duct airtightness, 

and window specifications. The package of efficiency and replacement enhancements produces a 

projected annual energy use and cost savings of 25%, with a projected positive cash flow of 

$222.
30

5 Key Concepts

The City of Melbourne staff integrated the best practices and specifications into the work order 

development process over the course of several months. This is better done slowly and surely 

than all at once because there are legal and contractual implications inherent in bid documents.

The bid documents and work write-ups are developed with software that uses libraries arranged 

by standard trade/location divisions. The City’s field manager was able to quickly add language

for new specifications that amounted to changing a few words or numbers. Affected trade

divisions included Trade 16 (Conservation), Trade 21 (HVAC), Trade 23 (Electric), and Trade 

29 (Windows).

Some of the best practices, though, require rethinking conventional methods of construction. Key 

concepts discussed here related to the some of the best practices that require deviation from 

common practices and the related gaps, barriers, and lessons learned.

5.1 Mechanical Equipment Efficiency, Air Distribution System, and Passive 

Outside Air Ventilation 

From the preliminary analysis, we learned that the City of Melbourne was already specifying 

minimum efficiency heat pumps (rather than straight cool with integrated electric resistance 

heating). The shift to ENERGY STAR or better heat pumps initially drew skepticism because of 

perceived higher cost. However, staff agreed to revisit the issue with HVAC contractors and 

suppliers and found that the situation had changed since it was last investigated and was now at 

an acceptable price point to justify investment. 

The partner’s specification below (from bid documents) shows their decision to make SEER 15 

heat pumps standard practice and encompassing best practices for system-sizing, equipment 

matching, duct sealing at supply registers, return plenum air barrier and sealing was written 

(Figure 3). 

Figure 3. Excerpt from bid document for Trade 21: HVAC incorporating 

some of the best practices for HVAC equipment
31

By specifically asking for matched indoor and outdoor equipment, equipment right sizing, and 

return plenum and duct sealing, programs put themselves in a better position to ensure 

investments are paying for high performance installation as well as the high efficiency 

equipment.

A fundamental tenet of high performance housing is airflow control. The mechanical section of 

the best practices addresses air distribution system construction, assembly, and airtightness as 

well as reduction of household pressure differentials. Cummings et al. (2012) cited all of these

factors in uncontrolled airflow. The Florida residential mechanical code includes provisions 

addressing these details; however, these elements of the code apply to new construction only, not 

replacement equipment or systems. For residential mechanical systems undergoing “repair” or 

“alteration,” the Florida building code requires replacement or repair of materials and 

components to “preserve the original approval or listing” (ICC 2011a; ICC 2011b; ICC 2011c). 

In 2012, the Florida residential energy code added a requirement that replacement conditioning 

equipment must be sized using an approved method (e.g., ACCA Manual J) and that contractors

must seal all accessible duct joints that have 30 in. of clearance (ICC 2011d).

In the Phase 1 field study, researchers often observed scopes of work and bid documents written 

by local government partners that stated “all work shall be executed in accordance with 

prevailing codes.” We see here that this language is not sufficient to ensure that the mechanical 

system is brought up to new construction code requirements in existing homes. One of the 

refinements in Phase 2 was to add specific language modeled after individual provisions of the 

code requirements for new construction addressing flex duct installation, AHU closet and return 

plenum construction, air distribution system sealing, and passive return air pathways. 

The specification shown in Figure 3 (above) includes several of these. The new construction 

requirements also address passive return air pathways in homes with central returns. The City 

later integrated that language into bid documents (Figure 4).
32

Figure 4. Excerpt from City of Melbourne bid document for Trade 21: HVAC incorporating all the 

best practices for HVAC equipment

Passive return air pathways have been required in Florida new construction for many years. It 

was a surprise to hear that one of the City’s homes had failed an inspection because passive vents 

had been installed between the bedrooms and the main body of the house, as was called for in the 

City’s scope of work. The inspector cited fire safety concerns. We believe this might have been 

resolvable by discussion of the applicable code; however, we did not learn of the issue until 

corrective action had already been taken. The incident reinforces that unfamiliar details should 

be discussed with the building inspector’s office in advance of field implementation. While 

passive return air pathways are mandatory for new construction, the inspectors for existing 

homes likely do not encounter them often. 

The excerpt shown in Figure 4 (above) also includes language to eliminate air distribution via 

building cavities calling instead for retrofitting and sealing an air barrier into such spaces. 

Building cavities forming return air plenums were widely evident in the field study and a major 

source of return air bypass and pressure imbalances. Figure 5 illustrates a common pre-retrofit 

condition with City of Melbourne post-retrofit solution.
33

Figure 5. Pre-retrofit metal AHU stand with no dedicated return air path (left); 

post-retrofit platform AHU support with dedicated, mastic sealed return air path (right) 

In addition to the mechanical system criteria modeled after new construction code requirements, 

the best practices include two items that exceed that code, both shown in the City of Melbourne’s 

specification in Figures 4 (above): a passive outside ventilation system (described in Section 2) 

and a duct airtightness performance target.

5.2 Air Handling Unit Closet

AHU closets inside the conditioned space with door- or wall-mounted return air grilles were very 

common in the field study. Researchers observed AHU closets that were variously connected to 

attics through open framing of closet walls and/or absence of closet ceiling. 

At the onset of Phase 2 research, the best practices included reconfiguration of the air handler 

closet whenever the air handler was being replaced. Under the City of Melbourne partnership, 

the best practices were modified to read:

7

“Air Handler (AHU) Closet at AHU Replacement: Modify AHU closets to create a dedicated, 

sealed return plenum with a correctly-sized wall or ceiling-mounted return air grille.”

“AHU Closet – All homes regardless of replacement: Eliminate louvered doors that serve as 

returns. Eliminate metal AHU stands. Where the return plenum is formed by open framing and a 

plywood platform supporting the air handler, install and seal an air barrier (drywall or duct 

board) to separate return plenum from adjacent wall cavities and the closet space above. Provide 

partial door above return air grille (or solid door on side wall) for AHU access. If necessary, 

extend support platform to form door sill.”

 7 All quotes in this section are from unpublished work write-ups produced by the City of Melbourne provided to 

researchers through direct correspondence or from the best practices included in the Phase 1 report (McIlvaine et al. 

2013) and in Appendix A.
34

The Florida residential mechanical code recognizes drywall as an acceptable air barrier for return 

plenums in new construction. All drywall seams must be taped and finished. Additional sealant

must be applied at all intersections of drywall and other materials such as concrete slab floors, 

wood framing, and plywood. Figure 5 (above) includes elements of these practices. Later in the 

partnership, the specification language was expanded to include more direction on AHU closet 

framing, passive return air pathways, and duct testing (Figure 6 below). Examples of pre- and 

post-retrofit AHU closets are shown in Figures 7 and 8.

Figure 6. City of Melbourne HVAC specification 

The excerpt shown in Figure 6 (above), includes language to eliminate air distribution via 

building cavities calling instead for retrofitting and sealing an air barrier into such as a space as it 

is written in the best practices. Figures 7 and 8 illustrate common pre-retrofit conditions with 

post-retrofit City of Melbourne solutions.
35

Figure 7. Pre-retrofit AHU closet with no dedicated return (left);

post-retrofit with dedicated return and outside air ventilation (right)
36

Figure 8. AHU closet with side wall return grille: pre-retrofit (left) and post-retrofit (right)

AHU closet configuration is among the more complex elements of best practices. Developing a 

standardized approach is challenging because of the diversity in as-found conditions. Whereas 

specifications for equipment and major components such as windows can be applied without 

deviation across all homes, the AHU closet involves physical limitations of the existing space as 

well as the intended size of the replacement AHU. This is reflected in the City’s work write-ups. 

The language for heat pump specifications is consistent from one scope of work to the next, but

the AHU closet renovation is tailored for each house. This takes time in addition to being an 

unfamiliar goal. This area warrants training at the onset of program development for both the 

decision-makers writing the work orders and the contractors implementing the improvements. 

5.3 Air Distribution System Testing

The duct testing specification in the best practices calls for test-out only:
37

“Duct testing - Maximum acceptable test result is six cubic feet of air per minute (cfm) per 100 

square feet of conditioned area at the test pressure of 25 pascals (Qn,out ≤ 0.06). Contractor will 

revisit site to conduct additional sealing for all duct systems (new and existing) that do not pass 

the post-renovation leakage test.”

This approach was vetted by the Sarasota Office of Housing & Community Development under 

its NSP2 standards in dozens of homes. The municipality found the approach workable with the 

labor force in its communities, which includes many home energy raters. The rationale for not 

including a pre-retrofit duct test is that if the duct system is being replaced, testing the existing 

one produces no useful information. If the duct system is not being replaced, the best practices 

call on the mechanical contractor to inspect and seal common points of leakage. This activity, in 

addition to the AHU closet and return plenum detailing, represents the main extent of what 

should be done regardless of pre-retrofit test results. A visual inspection is not going to quantify 

duct airtightness, but it can be used to locate gross leakage points such as disconnects.

Note in Figure 6 (above) that the City is calling for a duct testing report showing compliance to 

be submitted to their office prior to payment of mechanical contractor. This quality control 

measure grew in importance to program staff after a contractor made a field decision that the 

duct testing was not necessary. In the absence of home energy raters to conduct this test, 

programs could take a prescriptive approach with a detailed duct sealing checklist.

For reference, the target level of normalized duct airtightness is consistent with typical new 

construction in Florida and slightly less stringent than the level required in the ENERGY STAR

for Homes program. Even though the City did not incorporate this specification immediately, 

results show that the participating HVAC contractors met the goal in five of the seven houses 

tested (Table 23). This may not be replicable in all markets. The active involvement of the 

mechanical contractor is paramount to meeting airflow and whole-house efficiency goals. As 

such, lack of a trained workforce or training availability is a major gap in the market. Training 

and certification for high performance mechanical systems installation and service are available 

through the Air Conditioning Contractors of America (ACCA), although feedback from 

contractors indicates that the cost is high compared to demand at present. As participation grows, 

energy retrofit programs may be able to specify installation in accordance with ACCA’s Quality 

Installation Standard (ACCA 2010). Currently there are 55 such contractors in Florida 

recognized as Quality Assured (QA) New Homes contractors. In March of 2013, ACCA 

launched the QA Residential Service & Installation program, which will apply the same QI 

Standard to existing homes.

Table 23. Post-Retrofit Duct Testing Results

Post-Retrofit Testing Required

in Bid Document? Qn,out Target Qn,out Test Result Target Met?

Yes ≤ 0.06 0.02  Yes

Yes ≤ 0.06 0.03  Yes

No ≤ 0.06 0.04  Yes

No ≤ 0.06 0.05  Yes

No ≤ 0.06 0.06  Yes

No ≤ 0.06 0.07 × No

No ≤ 0.06 0.09 × No
38

From Table 23, duct tightness results ranged from Qn,out of 0.02 (2 cfm to outside per 100 ft2 at 

test pressure) to 0.09 with only two homes exceeding the maximum threshold of 0.06. The 

workforce involved in these renovations is clearly capable of hitting the performance target with 

the type of homes in the community set. If the work write-up had called for the performance 

testing in the two homes that did not meet the target, the contractor could have been called back 

to the site to address common leakage points and attend to any specific leakage points identified 

by the tester. The two lowest test results (Qn,out of 0.02 and 0.03) were achieved by the same 

contractor who is credentialed through ACCA’s Quality Installation certification in homes where 

the work write-ups called for testing and leakage below 0.06 Qn,out. ACCA is an HVAC Quality 

Installation Training and Oversight Organization.

A potential gap in the labor force could arise if neither the tester (e.g., HERS rater) nor the 

contractor can identify where the illusive duct leakage is occurring. This may be a particular 

problem when a portion of the air distribution system is inaccessible such as those located in a 

floor cavity or single assembly roof as described in the next section. 

5.4 Enclosed Porches

Panned floor and ceiling joist cavities are other examples of difficult-to-eliminate duct leakage. 

These commonly arise when a porch with a shed roof has been enclosed and converted into 

conditioned living space. The shed roof framing intersects the roof trusses on the main house 

within about two feet of the eave where the head room in the main attic is severely limited

(Figure 9). 

Figure 9. Intersection of shed or flat roof with conventional trusses (left) at enclosed porches 

creates a very shallow connection (right) to the main attic. Limits room for routing ductwork.

Interior finish is adhered to the underside of the shed roof joists forming a “single assembly” 

roof. The connecting space between the Florida room ceiling cavity and the adjacent house attic 

is the depth of the roof/ceiling joists, which are usually 2 × 4s with nominal depth of 3.5 in. This 

affords very little room to run a supply duct to the new conditioned space. 

Instead of a proper supply duct, a portion of the ceiling in the new space is often “panned” and 

turned into an air distribution path which is very likely in direct communication with the general 

ceiling cavity and the adjacent house attic. Removing the supply register often reveals that a 

cardboard or metal end cap spanning the height and depth of the joist bay has been installed to 

terminate airflow at the supply register (Figure 10). 
39

Figure 10. Panned ceiling joist details common to enclosed porches

Note the lack of sealant at the edges of the end cap. Access to the joist bay from the main house 

attic is hampered by ceiling insulation and the limited head room. Not surprisingly, the duct 

leakage on this system was the highest among the seven tested, with Qn,out = 0.09. 

The best practices call for eliminating such building cavities being used for air distribution. The 

contractor is often working against difficult geometry to find an alternative way to direct 

conditioned air to that space. One of the City’s contractors constructed an interior duct chase at 

the common wall between the main house and the enclosed porch. Reference Figure 10 above to 

see the exterior geometry of the home shown in Figure 11 below. The duct chase continues 

around the room to serve a laundry room located in an extension off the enclosed porch. 

Figure 11. Interior duct chase eliminates need for panned ceiling cavity 
40

6 Conclusions

In Phase 2 of this retrofit research, we investigated three implementation scenarios for the 

current best practices and a community-scale partnership with the City of Melbourne. The 

conclusions section addresses the research questions outlined in Section 1.3. 

6.1 Research Question 1 

What level of whole-house efficiency improvement can be expected from implementation of the 

current best practices? 

The answer varies with the pre-retrofit whole-house efficiency and condition of major energyrelated characteristics. Fewer of the best practices are relevant to homes that do not need energyrelated replacements or that have relatively high whole-house efficiency. Phase 1 of the research 

showed that when only a few best practices are applicable to a home, less improvement can be 

expected. In Phase 2, researchers conducted a simulation analysis of a pre-code base home in 

central Florida with HERS Index scores of 13 based on the home characteristics evidenced in 

Phase 1. The analysis assesses improvement potential under three different scenarios (Table 24)

that represent three levels replacement need. Analysis shows homes of this level of whole-house

efficiency can likely achieve 19%–28% savings (Table 24) in projected annual energy costs and 

26%–39% HERS Index score improvement comparing post-retrofit to the minimal improvement 

case. Variations in condition and need for replacement of key energy-related components and 

equipment create the spread of savings potential. This is illustrated in analysis of three likely 

retrofit scenarios. Even higher performance replacements for water heating, HVAC, or windows 

would easily push projected annual cost savings over 30%. Cost effectiveness would depend on 

local market availability and cost.
41

Table 24. Summary of Scenarios 1, 2, and 3

(same as Table 15)

Description

Scenario 1

Efficiency 

Enhancement Package 

(No Replacements)

Scenario 2

Efficiency Enhancements 

and Higher Performance 

Replacements

Scenario 3

Scenarios 1 and 2 Plus HVAC 

and Window Efficiency 

Upgrades at Replacement

HERS Index Pre-Retrofit 131 131 131

HERS Index With Minimum 

Replacements (where applicable) NA 130 113

HERS Index Post-Retrofit 94 96 69

HERS Index Improvement 

(over minimum, if applicable) 28% 26% 39%

Projected Annual Energy Cost Savings 

(% over minimum if applicable) 20% 19% 28%

Estimated Full Costs $2,880 $12,221 $23,379

Estimated Efficiency Cost Premium $2,880 $1,921 $5,538

Annual Mortgage (7% @ 30 years) $232 $155 $446

Projected Annual Energy Cost Savings $505 $490 $644

First Year Cash Flow $273 $355 $198

Simple Payback (years) 5.7 3.9 8.6
42

The base house closely approximates the average HERS Index score and characteristics found in 

the Phase 1 field study. Full implementation of the best practices in Scenario 3 resulted in a 39% 

improvement in the HERS Index score and 28% in projected annual energy cost savings

comparing the post-retrofit to the minimum retrofit scenario. To reiterate, the minimum retrofit 

scenario includes minimum replacements at change out. Note, for instance, the HERS Index 

score for the minimum retrofit scenario is 113, significantly better than the as-found score of 

131, because even the minimum efficiency replacements are significantly better than the as 

found conditions. Comparing the post-retrofit HERS Index score to the pre-retrofit, which was 

the Phase 1 metric, produces a 47% improvement in the HERS Index.

Researchers assert that homes of similar or worse whole-house efficiency than the base house 

that also need extensive energy-related replacements have a high potential for achieving a deep 

retrofit with positive first year cash flow under the reported mortgage terms. Thus Scenarios 3 

represents the likely practical threshold for achieving deep retrofits in central Florida pre-code 

homes that generate positive first year cash flow. Depending on equipment cost in the local 

market conditions, higher efficiency heat pumps may be cost effective and would without a 

doubt push projected annual energy cost savings over 30%. Installation of a heat pump water 

heater would be another measure to help the project attain over 30% energy cost savings. Due to 

space and location considerations, however, the heat pump water heater is only a recommended 

measure within the current best practices. 

Homes that do not need as many (Scenario 2) or any (Scenario 1) energy-related retrofits can 

likely achieve around 25% or more improvement in whole-house efficiency with about 20% in 

projected annual energy use.

The savings expectations are in comparison to minimal efficiency upgrades. Program-wide 

improvement will be relative to the existing standard practice, which may or may not include 

efficiency measures beyond minimally available.

Lesson 1: Scenario 3, a comprehensive implementation of the best practices in an average home 

(HERS Index score 131) represents the likely practical threshold for achieving deep retrofits in 

central Florida pre-code homes that generate positive first year cash flow.

6.2 Research Question 2

To what extent are affordable housing partners willing and able to adopt and implement a 

standardized approach to energy efficiency and building science based on the best practices? 

Achieving replicable results requires a standardized methodology that can accommodate 

predictable variances with practical quality control procedures. The City of Melbourne, our 

primary partner in Phase 2, was willing to adopt improvements if there was compelling evidence 

that the benefit to the occupants justified the investment, and that implementation would be 

practical given program boundaries and existing market conditions (labor, availability, code 

compliance, etc.). The City of Fort Myers also incorporated best practices into its standard 

specifications for retrofits.
43

With due consideration and evaluation, the City of Melbourne has successfully integrated the 

hot-humid climate retrofit best practices into its retrofit standards and bid document development 

processes. The following lessons for program developers emerged from our partnership.

Lesson 2: Undertake a preliminary evaluation period among decision-makers and program 

stakeholders.

Before the City program manager committed to implementation of the best practices, they 

discussed each practice individually with researchers and internal staff. This was a technical 

dialogue revolving around practicality and building science. Taking time to evaluate the pros and 

cons of individual practices builds consensus among decision-makers, which is crucial to 

establishing program-wide commitment. In addition to addressing internal concerns, program 

managers or field staff should query likely program participants (contractors, etc.) and code 

officials regarding any unfamiliar construction detailing. Taking time at this juncture to consider 

potential barriers can prevent a breakdown in program activity later. The objective here is for 

program staff to work out in advance the questions and limitation that might arise during 

implementation. This is part of a systems engineering approach that favors anticipating and 

developing solutions for problems before they arise in community-scale implementation. 

Lesson 3: Review current market conditions.

In addition to building science principles and implementation, the preliminary discussions

between the City and researchers addressed the costs of individual practices. We had cost data 

from the field study, which is useful for getting a ballpark idea of costs for discussion purposes. 

Before committing to a specification or practice, though, program staff need to check into local 

market conditions, even if they were investigated in the past. For example, the City had 

previously opted for lower performance HVAC and window specifications than those in the best 

practices because of cost premiums. However, after conducting a market survey, the program 

manager and staff found that prices had declined enough to permit adoption of the higher 

performance specifications.

Lesson 4: Involve staff at all levels in the decision to adopt high performance specifications.

At the City of Melbourne, researchers met with administrative, field, and financial staff to 

discuss the best practices. It appeared that each perspective contributed to the feasibility 

evaluation. In other BA-PIRC projects, multilevel buy-in, rather than a top-down approach, has 

resulted in a more thorough, enthusiastic, and sustainable integration of high performance 

principles into standard procedures (Thomas-Rees et al. 2013).

Lesson 5: Stage integration of new specifications at a pace manageable for staff and program 

participants. 

The City took an incremental approach. Straightforward practices such as heat pump 

specifications were adopted quickly. Those that required changes in construction processes (and 

thinking) were adopted more slowly, as was illustrated in Section 5. Once these more complex 

changes were refined, the City was ready to include them in the master specification. This is the 

reverse order that researchers expected because The City of Fort Myers’ approach was to change 

the master specification document first. Depending on individual initiative and organization of 
44

staff, it may be necessary for staff to gain first-hand experience with unfamiliar details before 

program-wide adoption. 

Lesson 6: Develop clear, standardized language for communicating specifications and 

expectations to contractors and subcontractors and other program stakeholders.

Clear communication is necessary to ensure that high performance specifications translate into 

high performance results. The City of Melbourne already had a standardized procedure for 

producing bid documents, which very formally communicate expectations to contractors. 

Standardized language for each adopted best practice was added to existing libraries in the City’s

spec writing software. Standardized language can foster consistent results across a communityscale retrofit program. The City’s final walk-through requirement gives staff an opportunity to 

revisit the bid document at post-retrofit. Essentially, bid documents can serve as a quality control 

checklist. When multiple persons are conducting final inspections, a standardized level of 

acceptability must be established among program staff. 

The bid development paradigm is fairly typical for local government housing entities; however, 

nonprofit organizations such as Habitat for Humanity that make use of an internal labor force

rely more on a project management hierarchy than on scopes of work. In that case, developing a 

standardized procedure must be a collaboration of all the decision-makers and followed up with 

training for all affected staff to ensure specifications are implemented consistently across the 

community. A checklist format for each critical review point (e.g., prior to drywall installation) 

has proven effective in new construction projects as evidence by inclusion of extensive use of 

checklists in the ENERGY STAR for New Homes Standards beginning with Version 2.0 and 

continuing with Version 3 (ENERGY STAR 2012a, 2012b).

6.3 Research Question 3

What steps (training, test houses, presentations to decision-makers, provision of research results, 

etc.) are necessary to engage partners in implementation?

The results from the Phase 1 field study raised awareness and sparked interest; however, 

providing access to the best practices and analysis of similar homes from previous partnerships 

was not sufficient to spur adoption. Group discussions with administrators, financial, and field 

staff that encompassed building science, practical applications, and financial considerations 

clearly helped to build momentum, confidence, and interest. True engagement seemed to arise 

coincident with conducting simulation analysis to answer their specific questions (e.g., SEER 13 

versus SEER 15) and to compare their standard approach to the best practices in one of their real 

projects. The former contributed to confident decision-making. The latter quantified the benefit 

they were already providing to their buyers and clarified the magnitude of cost and cost savings

associated with higher performance specifications. We have noticed with this and other partners 

that this type of “discovery analysis” is more influential than analysis of other partners’ homes. 

Lesson 7: Prototype unfamiliar details with key contractors prior to making them a requirement 

to gain first-hand experience with challenges and solutions.

The good rapport between City staff and the organizations responsible for the actual renovations 

made it easier to conduct some field prototyping of new construction detailing, like the AHU
45

closet, before they were incorporated into actual bid documents. A design and implementation 

plan should be developed in advance. However, prototyping provides an opportunity to test and 

modify strategies in a three-dimensional environment. Successful prototyping also develops 

confidence in all parties that different construction practices can be done well and within 

standard operating procedure.

Researchers had not intended to provide this level of direct support in Phase 2 of the research. 

The best practices include working with a certified home energy rater or other qualified 

consultant who could provide program administrators with this support. In the case of the City of 

Melbourne, there were no funds available for such support. This will likely be a barrier to wider 

adoption of the best practices. 

6.4 Research Question 4

Which elements, if any, required technical assistance from BA-PIRC? Can the language of the 

best practices be adjusted to facilitate meeting the specifications without technical assistance?

The City of Melbourne did implement the majority of best practices applicable to its homes. For 

elements involving unfamiliar building science concepts, there was a need to provide training to 

both program decision-makers and field staff on heat, air, and moisture flow dynamics to allay 

concerns. In Phase 2, researchers provided this training, but this could constitute a significant 

barrier to implementation in absence of a qualified professional with a building science 

background. If the reasoning behind a practice is not well understood, there is a risk that it will 

receive a lower priority. It is unlikely that this can be resolved in the context of a document 

focused on best practices; however Building America publications available through the website 

and the emerging Building America Solution Center provide sufficient material to serve program 

staff motivated to learn building science principles and applications. 

Lesson 8: Use available resources from the Building America Solution Center and the ENERGY 

STAR website to bolster organizational familiarity with building science and “house as a 

system” thinking.

A few best practices warranted technical assistance discussions. The outside air ventilation 

practice was challenging for the City and its team of contractors, but no more so than was typical 

among other partners. Because the system design must factor in house size, operating static 

pressures, and physical constraints specific to each home, the detailing cannot really be 

standardized. An off-the-shelf ventilation system such as an energy recovery ventilator may be 

easier to implement; however we need more data before we can confidently recommend such 

systems in the subject housing type. BA-PIRC has two monitored ventilation studies planned 

for 2013.

The sealing of the return plenum was discussed extensively at the onset of the project. Once the 

field manager had a clear understanding of the desired end result, he worked with participating 

contractors to implement the detail with no researcher field support. The duct airtightness test 

results (Table 23) attest to their success.

The duct testing specification is now integrated into the City’s standard specifications. One of 

the general contractors hired a home energy rater to conduct the testing. Under another general 
46

contractor, the mechanical contractor was certified under the ACCA’s Quality Assurance 

program for new homes. He tested the duct system using an alternative to the depressurization 

method used in the home energy rating industry and called for in the best practices. We found the 

two duct systems he installed were tighter (measured with standard depressurization test 

conditions) than the results he reported from his alternative test method. They were the best ducts 

systems we tested, with Qn,out of 0.03 and 0.02. 

The number of ACCA-certified HVAC contractors in the labor force may rise if participation in 

the ENERGY STAR for New Homes Standard, version 3.0/3.1 program ramps up. Several 

related test methods are outlined in ACCA’s Quality Installation Specification Standard 

(ANSI/ACCA 2010). These warrant further investigation for community-scale retrofit programs,

though there may be a conflict of interest if contractors are testing systems they installed.

Passive return air pathways are required for new construction in Florida and called out 

specifically in the best practices using the language and sizing guidelines in Florida’s residential 

building code (ICC 2011c). Though contractors met this criterion with transoms and transfer 

ducts, one inspector required the contractor to take them out. This reemphasizes Lesson 2 above 

regarding a preliminary evaluation period. Any out-of-the-ordinary detailing should be discussed 

with contractors, subcontractors, code officials, suppliers, and other program stakeholders in 

advance to identify and resolve potential red flags before adopting as standard practice.

Discussions can be improved using material from the Building America Solution Center and 

materials from the DOE Challenge Home and Energy Star for Homes programs. 

6.5 Final Remarks

The simulation analysis exercise and the City of Melbourne partnership illustrates that deep 

retrofit goals can be met in pre-energy code homes with off-the-shelf technology and moderate 

changes in remodeling practices outlined in the hot-humid retrofit best practices. 

Analysis Scenarios 1, 2, and 3 and the City of Melbourne’s master specifications show that 

efficiency measures and replacement upgrades can produce positive cash flow when 

implemented and financed at the time of sale. Depending on local market conditions and labor

force readiness, some measures may be more cost effective than others. A home energy rater or 

other building science professionals can assist with evaluation of the best practices to build 

confidence and momentum for retrofit programs.

Lessons 1–8 presented in the conclusions provide valuable insight for program developers based 

on field experience with local governments and nonprofit housing providers in approximately 80 

central Florida homes (including Phase 1 and Phase 2).
47

References

ANSI/ACCA. (2010). HVAC Quality Installation Specification: Residential and Commercial 

Heating, Ventilating, and Air Conditioning (HVAC) Applications. Arlington, VA: Air 

Conditioning Contractors of America. Accessed December 2013: www.acca.org/Files/?id=693.

ASTM International. (2013). Standard Test Methods for Determining Air Leakage of Air 

Distribution Systems by Fan Pressurization. E1554/E1554M – 13. West Conshohocken, PA: 

ASTM International. Accessed December 2013: 

http://enterprise2.astm.org/DOWNLOAD/E1554.148689-1.pdf.

Baker, K. (2012). “The Outlook for the Home Improvement Industry.” Presented at the 2012 

IBS. Cambridge, MA: Joint Center for Housing Studies of Harvard University. Accessed 

November 2013. 

http://www.buildersshow.com/assets/docs/ises/RemodelingMarketReportBaker_2012020709591

9.pdf. 

Cummings, J., Withers, C., Martin, E., Moyer, N. (2012). Managing the Drivers of Air Flow and 

Water Vapor Transport in Existing Single-Family Homes. Cocoa, FL: Florida Solar Energy 

Center. Accessed November 2013: http://www.fsec.ucf.edu/en/publications/pdf/FSEC-RR-384-

12.pdf. 

ENERGY STAR. (2012a). ENERGY STAR Qualified Homes Thermal Bypass Inspection 

Checklist. Accessed December 2013. 

http://www.energystar.gov/ia/partners/bldrs_lenders_raters/downloads/Thermal_Bypass_Inspecti

on_Checklist.pdf?4472-744c.

ENERGY STAR. (2012b). ENERGY STAR Qualified Homes, Version 3 (Rev. 07) Inspection 

Checklists for National Program Requirements. Accessed December 2013: 

http://www.energystar.gov/ia/partners/bldrs_lenders_raters/downloads/Inspection_Checklists.pdf

.

Fairey, P.; Parker, D. (2012). Cost Effectiveness of Home Energy Retrofits in Pre-Code Vintage 

Homes in the United States. Cocoa, FL: Florida Solar Energy Center. Accessed December 2013: 

www.fsec.ucf.edu/en/publications/pdf/FSEC-CR-1939-12.pdf.

Hendron, R.; Engebrecht, C. (2010). Building America House Simulation Protocols. Golden, 

CO: National Renewable Energy Laboratory. Accessed December 2013: 

http://apps1.eere.energy.gov/buildings/publications/pdfs/building_america/house_simulation_rev

ised.pdf.

ICC. (2011a). “Florida Building Code 2010: Mechanical.” Washington, D.C.: International Code 

Council. Accessed December 2013: 

http://ecodes.biz/ecodes_support/free_resources/2010Florida/Mechanical/10FL_Mechanical.html
48

ICC. (2011b). “2010 Florida Building Code Existing Building.” Washington, D.C.: International 

Code Council. Accessed December 2013: 

http://ecodes.biz/ecodes_support/free_resources/2010Florida/ExistingBuilding/10FL_ExistingBu

ilding.html 

ICC. (2011c). “Florida Building Code 2010: Residential.” Washington, D.C.: International Code 

Council. Accessed December 2013: 

http://ecodes.biz/ecodes_support/free_resources/2010Florida/Residential/10FL_Residential.html.

ICC. (2011d). “Florida Building Code 2010: Energy Conservation.” Washington, D.C.: 

International Code Council. Accessed December 2013: 

http://ecodes.biz/ecodes_support/free_resources/2010Florida/Energy/10FL_Energy.html.

JCHS. (2011a). A New Decade of Growth for Remodeling: Improving America’s Housing. 

Cambridge, MA: Joint Center for Housing Studies of Harvard University. Accessed November 

2013: http://www.jchs.harvard.edu/sites/jchs.harvard.edu/files/2011_remodeling_color.pdf.

JCHS. (2011b). The State of the Nation’s Housing. Cambridge, MA: Joint Center for Housing 

Studies of Harvard University. Accessed December 2013: 

www.jchs.harvard.edu/sites/jchs.harvard.edu/files/son2011.pdf.

McIlvaine, J.; Sutherland, K.; Martin, E. (2013a). Energy Retrofit Field Study and Best Practices 

in a Hot-Humid Climate. Cocoa, FL: Florida Solar Energy Center. Accessed December 2013: 

www.fsec.ucf.edu/en/publications/pdf/FSEC-RR-404-13.pdf.

McIlvaine, J.; Sutherland, K.; Beal, D. (2013b). Current Best Practices for High Performance, 

Deep Energy Retrofits in Florida Affordable Housing. Cocoa, FL: FSEC. Accessed December 

2013: http://fsec.ucf.edu/en/publications/pdf/FSEC-RR-444-13.pdf. 

Thomas-Rees, S.; Beal, D.; Martin, E.; Fonorow, K. (2013). Approaches to 30% Energy Savings 

at the Community Scale in the Hot-Humid Climate. Cocoa, FL: FSEC. Accessed December 

2013: http://fsec.ucf.edu/en/publications/pdf/FSEC-CR-1947-13.pdf.

U.S. Census Bureau. (2011). “U.S. Census Bureau, 2011 American Community Survey.” 

Washington, D.C.: U.S. Census Bureau. Accessed December 2013: 

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R_DP04&prodType=table.

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– Value of Private Construction Put in Place.” Washington, D.C.: U.S. Census Bureau. 

Accessed December 2013: www.census.gov/compendia/statab/cats/construction_housing.html.
49

Appendix A: Current Best Practices, Version 2

(McIlvaine et al. 2013b)

This material is excerpted in entirety from Current Best Practices for High Performance, Deep Energy Retrofits in 

Florida Affordable Housing and provided here for the reader’s quick reference. The best practices will be 

periodically refined or updated. For the latest version, visit the “Publications” page at www.ba-pirc.org or contact 

the Buildings Research Division at the Florida Solar Energy Center.

1.0 Overview

In the fall of 2009, researchers at the Florida Solar Energy Center (FSEC) began a field study 

with affordable housing entities in central Florida that were conducting major renovation projects 

in unoccupied, foreclosed homes. The study was funded initially funded by the Florida Energy 

Systems Consortium, subsequently funded by the U.S. Department of Energy’s Building 

America program (www.buildingamerica.gov), and conducted by researchers of the Building 

America Partnership for Improved Residential Construction led by FSEC. 

The study was comprised of 70 homes. When partners were replacing components and 

equipment because they were worn out, researchers provided savings projections for higherefficiency choices. Additionally savings were projected for improvements that were strictly for 

energy efficiency, such as adding ceiling insulation. Improvement was gauged using the Home 

Energy Rating System (HERS) Index and projected annual energy use. Average whole-house

improvement was 34% in HERS Index score and 25% in projected annual energy use savings. 

The contents of this document are a refinement of the best practices presented in the original 

field study report (“Energy Retrofit Field Study and Best Practices”8

) and a direct excerpt from a

follow-on implementation study (Applying Best Practices to Florida Local Government Retrofit 

Programs” 9). Report and periodic updates based on user feedback will be posted on the BAPIRC website publications page (http://www.ba-pirc.org/pubs/index.htm).

In the field study, project managers had the ultimate decision over what retrofit options to 

implement in each home. Researchers tracked the choices and culled the best practices from a 

sub-set of 46 homes that achieved a 30% improvement in efficiency. The homes with 30% 

improvement all included “deep” retrofit measures that involved major system and/or component 

replacements. They also included “shallow” retrofit measures that contribute to but have a 

smaller impact on overall savings.

The best practices summarized in this document are specific to the hot-humid climate and market 

environment of central Florida. They are a mixture of assessment, design, specification, quality 

assurance, and verification measures. They represent either the most commonly adopted practice 

observed in this field work or, in some cases, the highest performance practice that did not 

involve additional cost. For example, although “medium” was the most commonly chosen 

exterior paint color, “white” is the highest performing color and herein the recommended 

 8 For further details see, “Energy Retrofit Field Study and Best Practices” (McIlvaine, Sutherland, Martin) 

http://www.fsec.ucf.edu/en/publications/pdf/FSEC-RR-404-13.pdf. 9 Report currently in peer review as of September 2013. The final report will be available on the BA-PIRC website 

publications page www.bapirc.org/pubs. 
50

practice. Additional building science measures from the ENERGY STAR for Homes program and 

Department of Energy’s Challenge Home programs have been included in the best practices to 

address occupant health, safety, building durability, and comfort concerns.

The checklist is organized by building component or equipment type. Best practices applicable to 

“All Homes” are distinguished from those applicable only at the time of “Replacement”. For 

example, ceiling insulation levels are applicable to all homes; however, some mechanical system 

efficiency practices are only applicable at the time of equipment replacement. Predictions show 

that it is cost-effective to choose higher-efficiency mechanical equipment at the time of 

replacement, but not to replace functioning equipment strictly for the efficiency gain. The 

projected annual energy use for practices recommended for “All Homes” justifies the full 

expense of the measure (or has been included for occupant health, safety, building durability, and 

comfort). Those components or equipment recommended for “Replacements” justify only the 

incremental cost for higher-performance choices, not the total cost for replacing a functioning 

system with useful life. 

As with all recommendations, common sense must prevail. The projected savings may not justify 

costs that exceed customary and reasonable bounds. For example, space constraints may increase 

labor and material costs. We highly recommend working with a home energy rater or other 

qualified consultant to evaluate the cost and benefit of specific measures in the context of a 

specific home or set of similar homes. However, in the absence of such individualized 

evaluation, these best practices may aid the decision-making process.

2.0 Critical Cautions

 For all homes with existing or planned atmospheric combustion furnaces or 

water heaters, refer to the Combustion Safety section (3.11) at the end of this 

checklist for cautions to be observed throughout the renovation process.

 Do not implement measures that conflict with code or manufacturer instructions. 

 Normal print indicates required measures for participation with the Building 

America Partnership for Improved Residential Construction (BA-PIRC), a U.S. 

Department of Energy Building team led by FSEC. Additional recommendations 

are in italics.

 Be advised that the required items affecting air, heat, or moisture flow should be 

implemented collectively to prevent safety, durability, and comfort issues. 

 These recommendations are not a substitute for evaluation of individual homes. 

We highly recommend working with building science professionals with 

certifications in home energy rating and combustion safety (e.g. a certified HERS 

rater or a Building Performance Institute (BPI) certified professional.)
51

3.0 Current Best Practice Recommendations

3.1 Heating, Ventilation, Cooling, and Air Conditioning (HVAC)

Distribution Systems 

Caution: Reference the Combustion Safety section (3.11) if a gas furnace exists or is 

planned.

3.1.1 Existing HVAC Equipment Not Being Replaced

 Hire a heating, ventilation, and air conditioning (HVAC) contractor to evaluate, 

and service if needed, refrigerant charge, inside and outside coil condition, 

condensate drain lines, and gas furnace components including exhaust flues, 

combustion air supply, gas lines, and other major equipment components.

 Implement all items in “All Homes Regardless of System Replacement” below.

3.1.2 Full or Partial HVAC System Replacement

 Install, at minimum, an ENERGY STAR heat pump (seasonal energy efficiency 

ratio (SEER) 14.5 or greater). In south Florida, an ENERGY STAR air 

conditioner is acceptable.

 Equipment Sizing: Perform ACCA Manual J calculations (now required for 

replacements by the Florida Energy Code). Use projected home characteristics 

provided by house supervisor.

 Supply and Return Ducts: Seal accessible (30” clearance) ducts left in place with 

code-approved sealant (required at equipment change out by Florida Energy 

Code), including the return plenum air barrier (drywall, duct board, etc.). Provide 

air barrier if not present. 

 Air Handler (AHU) Closet at AHU Replacement: Modify AHU closets to create a 

dedicated, sealed return plenum with a correctly-sized wall or ceiling-mounted 

return air grille. 

 Duct Replacement: Install new ducts with R-value ≥ 6. 

 Implement all items in “All Homes Regardless of System Replacement” below.

 AHU Location: When equipment and ducts are replaced, relocate AHU into 

conditioned space.

 Perform ACCA Manual S equipment selection.

 Perform ACCA Manual D duct sizing.

 Produce a schematic duct design for field crew showing sizes for each component 

and conduct rough-in inspection to ensure installation meets design intent.

3.1.3 All Homes Regardless of HVAC System Replacement

 Duct Sealing: Hire an HVAC contractor to seal all duct connections with UL181-

rated materials, preferably fiberglass mesh embedded mastic, including joints and 

edges in supply and return runs, return plenum, and connections to AHU. 

Important note: Contractor will revisit site to conduct additional sealing for all 

duct systems (new and existing) that do not pass the post-renovation leakage test. 
52

Maximum acceptable test result is six cubic feet of air per minute (cfm) per 100 

square feet of conditioned area at the test pressure of 25 pascals (Qn,out ≤ 0.06). 

 Duct Airtightness Testing: Have a certified home energy rater conduct a duct 

airtightness test as outlined in the Duct Testing section (4.1).

 AHU Closet: Eliminate louvered doors that serve as returns. Eliminate metal 

AHU stands. Where the return plenum is formed by open framing and a plywood 

platform, install and seal an air barrier (drywall or duct board) to separate return 

from adjacent wall cavities. Provide partial door above return (or solid door on 

side wall) for AHU access. If necessary, extend platform to form door sill.

 Flex Ducts: Ensure flex duct insulation covers all collar and boot connections. 

Flex duct runs should not be kinked or have sharp bends, and they should have as 

little contact as possible with ceiling insulation. Strap flex ducts to trusses, 5’ or 

less spacing, to achieve clearance over anticipated ceiling insulation. Ideally,

locate ducts midway between roof deck and insulation.

 Outside Air Ventilation: Given pre-retrofit whole house airtightness test results 

with estimated natural infiltration ≤ 0.35, seek technical support from home 

energy rater or other qualified consultant regarding possibility of mechanical

ventilation system including need, space availability, and physical challenges.

General guidance on a passive, run-time, outside air ventilation system is included 

in Appendix A.

 Filter: Do not obstruct under-AHU filter cavity, if present. Install MERV 6 filter.

 Ensure operational bathroom and kitchen exhaust fans ducted to outside. (Upon 

completion, ensure ceiling is insulated.) 

 Vent clothes dryer to outside (not crawl spaces or attics). 

 Bedroom Return Air: In homes with only one centrally-located return, hire an 

HVAC contractor to install passive return air pathways sized per guidelines in 

Florida Mechanical Code Section 601.4.

 Install a bath fan timer.

3.2 Whole-House Airtightness

 Ensure whole-house air leakage of 6 or less air changes per hour at the test 

pressure of 50 pascals (ACH50 ≤ 6.0), similar to new construction in Florida.

 Whole-House Airtightness Testing: Have a certified home energy rater conduct a 

whole-house tightness test as outlined in the Whole-House Testing section (4.2).

 Seal with code-approved sealant the following common air infiltration points:

 Windows 

 Doors – replace weather-stripping if missing or degraded

 Lighting fixtures and ceiling fans (drywall gap behind cover/trim)

 Kitchen exhaust fan chase (at ceiling)

 Switches and outlets – if replacing covers, seal boxes to drywall

 Plumbing penetrations through interior and exterior walls (e.g. under sinks) 

 Plumbing access panels – secure tightly and/or weather-strip

 Attic hatch or stair – weather-strip

 Interior AHU closet – seal all edges and seams of walls, ceiling, and ducts

 Soffits over cabinets or housing lighting – add air barrier above
53

 Holes in drywall

 Frame floor penetrations for plumbing and electrical

3.3 Roof Finish and Replacement

 If asphalt shingle, choose light or white-colored finish, Solar Reflectance ≥ 0.25.

 Ensure proper installation of roof flashing. 

 Install roof drip edge.

 If replacing roof decking, install radiant-barrier roof decking. Reference roofing 

manufacturer specifications to assure no void in warrantee.

3.4 Attic Insulation

Caution: Complete mechanical, electrical, and plumbing rough-in prior to ceiling insulation.

3.4.1 Vented Attics

 Add insulation to achieve RESNET Grade I R-38 throughout. 

 Prior to adding ceiling insulation, box-in or eliminate all recessed lighting fixtures 

not rated air tight and approved for insulation contact (ICAT).

 Strap flex duct above ceiling insulation. See description in section 3.1.3 above.

 Insulate interior attic hatches and stairs with rigid foam or batt insulation to R-19 

and weather-strip edge.

 Where attics extend over porches, provide air barrier (house wrap, blue board, 

etc.) to prevent ceiling insulation spillage onto porch ceiling. 

 Where floor cavities abut attic space, provide air barrier to keep attic air out of 

floor cavity.

 Install ventilation baffles at eaves. 

3.4.2 Attic Knee Walls

 Insulate knee walls to RESNET Grade I R-13 or greater. Ensure a durable 

installation that will hold insulation in contact with drywall.

3.4.3 Unvented Attics 

 Consult an energy rater regarding exiting or planned unvented attics. Careful 

detailing and quality control are required to prevent uncontrolled heat, air, and 

moisture flow.

3.5 Windows

3.5.1 Window Replacement

 Install, at minimum, ENERGY STAR-labeled windows (U-value ≤ 0.6 or lower 

and solar heat gain coefficient (SHGC) ≤ 0.27 or lower).

 Retain National Fenestration Rating Council (NFRC) label to provide project 

manager proof of window performance specification, including SHGC and Uvalue.

 Ensure proper window flashing installation.
54

 If installing house wrap, follow manufacturer instructions for cutting and 

wrapping at window openings.

 Check for and replace any rotted materials around window (e.g. studs, sheathing).

 Air seal between window frame and rough opening with a sealant designed for 

windows.

3.5.2 All Homes Regardless of Window Replacement

 Replace rotted materials around window (e.g. rough opening, sheathing).

 Replace missing head flashing at wood siding.

 Caulk edges of window frame/trim on both interior and exterior.

 For existing clear windows not being replaced, apply window tint to achieve 

combined (glass + tint) SHGC ≤ 0.5 and preferably visible transmittance ≥ 0.5. 

Note: Mock up tinting (e.g. tape in place) to assess aesthetics. For windows with 

active warranties, check with manufacturer before installing.

3.6 Exterior Walls

 Eliminate vinyl wall paper.

 If painting, use light or white color.

 If replacing drywall in frame construction, install RESNET Grade I R-13 

insulation 

 If replacing drywall in block construction, install a continuous layer of rigid 

insulation followed by furring strips for drywall attachment.

 If replacing siding, check for and replace rotted materials, install and integrate 

continuous drainage plane with window and door flashing, and if concrete 

masonry unit, assure weep holes at bottom of siding.

 If replacing drywall or siding, implement applicable criteria on the Thermal

Enclosure System and Water Management System checklists of the Energy Star 

for New Homes version 3 Standard. 

http://www.energystar.gov/index.cfm?c=bldrs_lenders_ raters.nh_v3_guidelines

3.7 Floors

 If crawl space, repair or install 6 mil polyethylene ground cover, lapping joints 6”, 

and continuing up stem wall and supports 2’. Add sump pump if potential for 

flooding.

3.8 Water Heating

Caution: Reference the Combustion Safety section (3.11) if a gas water heater exists or is 

planned.

3.8.1 Water Heater Replacement

 Discuss the following options and implications with home energy rater:

 Solar: solar access, cost and maintenance implications of different systems, 

and local incentives.

 Gas: direct-vent or tankless unit (energy factor (EF) ≥ 0.8, may require 

exterior wall).
55

 Electric: integrated heat pump water heater (COP ≥ 2.0, space constraints) or 

standard tank-type unit, EF ≥ 0.92.

3.8.2 All Homes Regardless of Water Heater Replacement

 Insulate accessible hot water pipes.

 Wrap tank with R-5 blanket (for gas units, read instructions carefully).

3.9 Appliances, Lighting, and Fans – All Homes

 Install ENERGY STAR-rated refrigerator upon replacement.

 Clean refrigerator coils, if not replacing.

 Install screw-in or pin-based compact fluorescent lamps (CFL). 

 Install electronic ballast with T8 lamps upon replacement or repair in fluorescent 

tube fixtures.

 Eliminate all recessed fixtures not rated air tight and approved for insulation 

contact (often labeled “ICAT”). 

 Select ENERGY STAR-rated ceiling fans upon replacement.

 Install air barrier above soffit-mounted light fixtures to separate soffit from attic 

or floor cavity.

3.10 Site

 Remove moisture loading at walls and foundation (e.g. irrigation system, roof 

runoff, soil contact).

 Add pool cover to all pools.

 Plant drought-tolerant shade trees near east and west-facing windows 

(Deciduous trees in North Florida).

3.11 Combustion Safety

3.11.1 Combustion Appliance Replacement

No new atmospheric combustion furnaces or water heaters should be installed inside the 

conditioned space. Replacement gas furnaces should be high-efficiency, sealed 

combustion units. Replacement gas water heaters should be direct-vent (tank type or 

tankless). These options are not likely to be cost-effective; however, health and safety 

considerations are the first priority. Work with a home energy rater to conduct an 

evaluation of projected savings for these options. Consult the U.S. Department of 

Energy’s Technology Fact Sheet “COMBUSTION EQUIPMENT SAFETY” for 

additional information on combustion safety10.

3.11.2 All Homes With Combustion Appliances Regardless of 

Replacement

Renovations can significantly alter combustion air-flow dynamics, potentially creating 

unsafe, life threatening situations that did not previously exist. Extreme caution is needed 

to ensure occupant and worker health and safety as well as building durability in any 

 10 http://apps1.eere.energy.gov/buildings/publications/pdfs/building_america/26464.pdf
56

home with an atmospheric combustion furnace and/or water heater, even if it is not 

located inside the conditioned space. If combustion appliances exist and are being 

replaced with non-combustion appliances, disable appliances and remove from premises 

prior to retrofit, otherwise:

 Pre-retrofit: In addition to defining equipment specifications and installation 

details for combustion air supply and exhaust components, work with a BPIcertified home professional, or other qualified professionals such as a certified 

HERS rater with additional combustion safety training, to evaluate and devise a 

combustion safety plan to prevent accidentally back drafting exhaust fumes into 

the conditioned space before, during, and after renovation. Tests should be 

conducted to assess air pressure conditions in the combustion air zone where the 

furnace and/or water heater are located and air pressure differences between the 

combustion air zone and the occupied areas of the home. Conducting testing prior 

to renovation will help identify existing air flow and pressure dynamics.

 During retrofit: Disable combustion furnaces and water heaters unless a plan has 

been executed specifically to ensure combustion safety. Unpredictable activity 

during construction could inadvertently create dangerous conditions.

 Post-retrofit, prior to occupancy: Arrange for post-renovation testing to verify that 

no air pressure conditions have been created that jeopardize either combustion air 

supply or exhaust or that would result in combustion exhaust gases entering the 

conditioned space. 

 Install carbon monoxide (CO) detectors and post an action plan near all 

combustion appliances and all bedrooms for occupants in the event of alarm.

4.0 Certified Home Energy Rater Minimum Scope of Activity – All Homes

Conduct all activity in accordance with RESNET standard, including taking all due combustion 

safety precautions prior to, during, and after testing. 

4.1 Duct Testing

 Pre-retrofit (recommended only if AHU and duct system is not being replaced): 

Conduct standard RESNET duct airtightness assessment. If leakage to outside 

exceeds target of 6% (Qn,out ≥ 0.06), assess the following common leakage

points, and where leakage exists, advise house supervisor of corrective action 

(→): 

 AHU closet → install drywall finish on all walls and ceiling, if not present.

Seal all edges and seams. 

 Central ducted return → seal return grille connection to framing; return 

plenum (e.g. duct board) connection to framing and connection to AHU.

 Open platform → seal all edges and seams.

 Registers → if supply registers are being removed (e.g. for painting), seal 

between drywall and boot.

 Joints → seal any loose connections, and ensure flex duct insulation fully 

covers collars.
57

 Post-retrofit: Conduct/repeat duct testing to ensure target of 6% (Qn,out ≥ 0.06) is 

met. If not, assess leakage points and advise house supervisor of recommended 

action.

4.2 Whole-House Testing

 Pre-retrofit: Conduct standard RESNET whole-house airtightness assessment. If 

test results exceed target of 6 or less air changes per hour at the test pressure of 

50 pascals (ACH50 ≤ 6.0), identify major leakage points (reference the WholeHouse Airtightness section (3.2) for common leakage areas), and communicate 

prioritized list of sealing points to house supervisor. 

 Post-retrofit: Repeat whole-house testing to ensure target is met. If not, assess 

leakage points and advise house supervisor of recommended action.

Table 1. Example Project Manager Verification Checklist for Heating, Cooling, and Air Distribution 

Systems

PRE-RETROFIT:

 Bid documents: 

o Include all applicable HVAC requirements from master specifications in the bid 

documents. 

o Alert general and HVAC contractors to duct testing requirements. 

o Provide list of common duct leakage points. 

o Include “retest at contractor’s expense if target is not met” in scope of work. 

o If passive outside air ventilation is being installed, provide general and HVAC 

contractors ‘General Guidance on Passive, Runtime, Outside Air Ventilation 

System’(see Appendix).

POST-RETROFIT:

 Acquire documentation for Manual J calculation (required for permit at replacement in 

Florida). Verify system is within 125% of Manual J calculation. If not, request explanation 

and justification. Keep with house records, for reference, in the event of discomfort 

complaints.

 Visually inspect the duct system and verify: 

o Duct R-value ≥ 6 for new ducts.

o Flex duct insulation fully covers collars and boot at connection insulated.

o Ductwork strapped to trusses above insulation.

o Recall contractor to attend to deficiencies.

 Work with home energy rater to determine if duct airtightness targets have been met. Target 

test result is leakage to the outside ≤ 6 cfm per 100 square feet of conditioned space (Qn,out 

≤ 0.06). If target is not met, visually inspect the following duct details, and recall contractor 

to attend to deficiencies (note: all sealants in air flow path must be code approved):

o Dedicated, sealed path for return air through a return air grille. Louvered doors that 

serve as returns and metal AHU stands have been eliminated.

o Gap between return air grille and rough opening is sealed. 

o Gap between AHU and platform is sealed.

o Gap between AHU platform and return plenum is sealed.

o Gap between drywall and supply boots (behind supply register).

o No visible holes or loose connections in duct system.
58

 Retest to verify target is met.

 If a mechanical ventilation system has been installed, inspect system to ensure proper 

installation of intake register, ducts, filters, and dampers. (See Appendix for guidance.)

o

Table 2. Example Project Manager Verification Checklist for Envelope Components, Post-Retrofit

 Visually inspect the building envelop and work with home energy rater to determine if 

whole-house airtightness targets have been met. Target test result is ACH50 ≤ 6.0. If 

target is not met, work with rater to assess airtightness at the following common air 

infiltration points:

o Windows – caulk edges of window/frame/trim on both interior and exterior

o Doors – replace weather-stripping if missing or degraded

o Lighting fixtures and ceiling fans (drywall gap behind cover/trim)

o Kitchen exhaust fan chase (at ceiling)

o Switches and outlets – if replacing covers, seal boxes to drywall

o Plumbing penetrations through interior and exterior walls (e.g. under sinks) 

o Plumbing access panels – secure tightly and/or weather-strip

o Attic hatch or stair – weather-strip

o Interior AHU closet – seal all edges and seams of walls, ceiling, and ducts

o Soffits over cabinets or housing lighting – add air barrier above rough framing, 

seal all edges and seams

o Holes in drywall

o Frame floor penetrations for plumbing and electrical

 Recall contractor to correct deficiencies.

 Retest to verify target is met.

 Visually inspect the attic to assess:

o Even level and proper depth of new insulation, if installed.

o Flex ducts are strapped above ceiling insulation.

o Attic insulation does not obstruct ventilation at eves (baffles are in place were 

possible).

 Acquire NFRC documentation for all newly-installed windows and glass doors to assure 

required performance specifications (SHGC and U-value) have been met.
59

5.0 Best Practices Review and FSEC Partnership:

All readers are encouraged to submit feedback and questions on the practicality and clarity of the 

best practices. Umbrella associations interested in adopting the Current Best Practices as 

required or recommended policy to member organizations are eligible for FSEC technical 

assistance. Please direct correspondence to:

Janet McIlvaine or Karen Sutherland

Florida Solar Energy Center

1679 Clearlake Road

Cocoa, FL 32922

Janet McIlvaine – 321-638-1434, janet@fsec.ucf.edu,

Karen Sutherland – 321-638-1474, ksutherland@fsec.ucf.edu

Please include the term “Building America” in your subject line.
60

Appendix B: City of Melbourne Retrofit Standards

Reprinted here with permission of the City of Melbourne, Housing & Community Development 

Department, Melbourne, Florida.

MINIMUM REHABILITATION 

STANDARDS

PURPOSE

The purpose of these standards is to protect the health, safety, and general welfare of 

homeowners by providing a reasonable set of provisions for the physical rehabilitation of 

dwelling units to be assisted through the City of Melbourne’s Neighborhood Stabilization 

Program (NSP).

All assisted units shall be in compliance with the International Property Maintenance Code upon 

completion and with Melbourne zoning ordinances. These Minimum Rehabilitation Standards

shall be the guiding document that sets forth the standard by which homes assisted under the 

Neighborhood Stabilization Program will be assisted.

SCOPE

The provisions of these standards shall apply only to existing residential buildings or those 

which will be residential upon completion of rehabilitation. 

These standards are intended for use as a supplement to applicable local codes and ordinances 

which regulate the design, construction, quality of materials, use and occupancy, location, and 

maintenance of buildings and structures. 

Additions and alterations: The provisions in these standards shall not prohibit additions and 

alterations that meet the requirements of building codes and zoning ordinances for new 

construction. 

Application of Local Codes and Ordinances: 

Any repair, alteration, or replacement of structural elements or equipment in buildings, which 

may be required by the provisions of these standards, shall be done in accordance with the 

applicable sections of the Florida Building Code (latest edition) as well as local building, 

electrical, plumbing, or other applicable codes or ordinances. The provisions in these standards 

shall not permit the abridgement or violation of the zoning ordinance of the jurisdiction. 

Rights Reserved by the City of Melbourne: 

The City of Melbourne, hereinafter “the City”, reserves the right to, at any time, impose 

requirements in addition to those set forth herein or waive any of said requirements when the 

City determines that doing so is in the best interest of the Neighborhood Stabilization Program.
61

DEFINITIONS

Scope: 

Unless otherwise expressly stated, the following terms shall, for the purpose of these standards 

have the meanings indicted. 

General: 

Terms not defined: Where terms are not defined under the provisions of the standards of the 

Florida Building Code or other locally adopted codes, the terms shall have their ordinarily 

accepted meanings or such as the context herein may imply. 

Technical definitions: The appropriate definitions of the applicable codes and ordinances duly 

adopted by the jurisdiction and defined therein shall be used in the interpretation of these 

standards, except that the definitions of words or phrases contained in these standards shall be 

used in determining which code or ordinance, as defined in this article, is acceptable. 

General Definitions: 

Addition: An extension or increase in the floor area or height of a building or structure. 

Alteration: A change or rearrangement in the structural parts, or in the exit facilities, of a building 

or structure. 

Approved: As applied to a material, device, or mode of construction, means approved by the 

City in accordance with the provisions of these standards, or by the authority designated by law 

to give approval of the matter in question.

Habitable Room: Conditioned space (heat and air conditioning) which includes a living room, 

dining room, bedroom, kitchen, or den. 

Rehabilitation: Construction that includes the following categories: 

1. Repairs to, or replacement of, present elements of any existing building, such as windows, 

stairs, flooring, wiring, plumbing, heating, etc.; or 

2. Rearrangement of rooms, by the relocation or partition of walls, or by the installation of new 

bathrooms or kitchens; or 

3. The general replacement of the interior or portions of the interior of a building which may or 

may not include changes to structural elements such as floor systems, roof systems, 

columns, or load bearing interior or exterior walls.

SITE CONDITIONS

The site and neighborhood must be free of conditions which do not provide for a safe and 

healthy living environment. 

Site Improvements: 

The site improvements shall conform to the following requirements: 

Exterior Grade: The exterior grade, adjoining footings, and basement walls shall be sloped so 

as to drain all surface water away from the building. 
62

Drainage: In areas showing evidence of adverse ground water conditions, an approved method, 

as defined by a civil engineer, of correcting conditions shall be provided as part of the 

rehabilitation work. 

Walkways: Hard surface walkways shall be provided for all-weather access from the street or 

other public open space to at least one (1) entrance to the building. 

Surfacing: Parking and driveway areas shall be surfaced for all-weather access. 

Utilities: 

Water Supply: The building water supply distribution system shall be connected to an approved 

public or private water supply system that is sanitary and free from contamination. 

Sanitary Drainage: The building sanitary drainage system shall be connected to an approved 

public or private sanitary disposal system (including a locally approved septic system). 

Electrical: The building electrical system shall be connected to an approved source of electric 

power. 

Fuel: The building fuel systems shall be connected to an approved supply source (bottled gas, 

natural gas, oil, electricity). 

Occupancy Limitations, Light and Ventilation: 

The City anticipates that most rehabilitation will be undertaken using the existing configuration 

of the units; however, where possible, the Space Standards the City suggests are as follows: 

Dwelling Unit: At minimum, the dwelling unit must have a living room, a kitchen area and a 

bathroom. Every dwelling unit shall have at least one habitable room of not less than 120 

square feet of floor area. The dwelling unit must provide adequate space and security for the 

occupant(s). 

Sleeping Area: Every dwelling unit shall contain at least one room occupied for sleeping 

purposes for every two persons. For one occupant, the room occupied for sleeping purposes 

shall contain at least 70 square feet, and for two occupants, the room occupied for sleeping 

purposes shall contain at least 120 square feet. Children of opposite sex, other than the very 

young, may not occupy the same sleeping area. 

Room Lighting: Room lighting shall be as required in the following provisions: 

1. Natural Light: All habitable rooms and spaces shall be provided with aggregate glazing area 

of not less than eight (8%) of the floor area of such room or space. 

Required glazed openings shall open directly to the outdoors, such as onto a street or alley, 

or into a yard or court located on the same lot as the building. Size of the opening shall 

conform to the Florida Building Code as well as local codes. 

2. Artificial Light: All habitable or occupiable rooms and spaces shall be provided with artificial 

light by means of permanent electrical fixtures or convenience receptacles. The distribution 

of fixtures and/or outlets shall be so as to provide satisfactory illumination throughout all 

rooms and spaces. The living area and each bedroom must have, at least, the required 

number of outlets in proper working condition as per the Florida Building Code as well as 

local code requirements. Permanent overhead or wall mounted light fixtures may not count 
63

as one of the required outlets. The kitchen area and the bathroom must have a permanent 

ceiling or wall light fixture in proper operating condition. 

Room Height: Habitable rooms shall have a ceiling height of not less than 7’6”. In rooms having 

a sloping ceiling, the required ceiling height shall be provided over at least fifty percent (50%) of 

the room, and a portion of a habitable room having a ceiling height less than five (5) feet shall 

not be considered as contributing to the minimum required area. 

Combustion Safety: No new atmospheric combustion furnaces or water heaters should be 

installed inside the conditioned space. Replacement gas furnaces should be high-efficiency, 

sealed combustion units. Replacement gas water heaters should be direct-vent (tank type or 

tankless). If combustion appliances exist and are being replaced with non-combustion 

appliances, disable appliances and remove from premises prior to retrofit; otherwise: 

1. Pre-retrofit: In addition to defining equipment specifications and installation details for

combustion air supply and exhaust components, work with a BPI-certified home professional, or 

other qualified professionals such as a certified HERS rater with additional combustion safety 

training, to evaluate and devise a combustion safety plan to prevent accidentally back drafting 

exhaust fumes into the conditioned space before, during and after renovation. Tests should be 

conducted to assess air pressure conditions in the combustion air zone where the furnace 

and/or water heater are located and air pressure differences between the combustion air zone 

and the occupied areas of the home. Conducting testing prior to renovation will help to identify 

existing air flow and pressure dynamics.

2. During retrofit: Disable combustion furnaces and water heaters unless a plan has been

executed specifically to ensure combustion safety. Unpredictable activity during construction 

could inadvertently create dangerous conditions.

3. Post-retrofit, prior to occupancy: Arrange for post-renovation testing to verify that no air

pressure conditions have been created that jeopardize either combustion air supply or exhaust 

or that would result in combustion exhaust gases entering the conditioned space.

4. Install carbon monoxide (CO) detectors and post an action plan near all combustion

appliances and all bedrooms for occupants in the event of alarm.

For fireplaces, glass doors shall be installed. Return air pathways and pressure relief to be 

provided as necessary to avoid depressurization.

Consult the U.S. Department of Energy’s Technology Fact Sheet “COMBUSTION EQUIPMENT 

SAFETY” for additional information on combustion safety 

(http://apps1.eere.energy.gov/buildings/publications/pdfs/building_america/26464.pdf).

Air Quality: The dwelling unit must be free from dangerous levels of carbon monoxide, sewer 

gas, dust and other harmful pollutants. There must be adequate air circulation for the dwelling 

unit. 

Room Ventilation: Room ventilation shall be as required in the following provisions: 

1. Natural Ventilation: Windows, doors, or other approved means of natural ventilation shall be 

provided, and be in proper working condition, in living room and each bedroom. An area of 

ventilating opening of forty-five percent (45%) of the minimum window area size shall be 

provided or as required by the Florida Building code.
64

2. Mechanical Ventilation of Habitable Rooms: When feasible, install a dampered, passive 

mechanical ventilation duct to provide outside air to the return plenum. Note that the system 

must be designed with occupant shut-off and so that the outside air passes through a filter 

before entering the air handler.

3. Cooking and Bathroom and Toilet Compartment: These spaces shall be provided with 

mechanical ventilation that is directly vented outdoors as required under the Florida Building 

Code. Kitchen exhaust fan ventilation of 100 CFM. Bathroom exhaust fans ventilation of 50 

CFM. Exception: Where installed in accordance with the manufacturer’s installation 

instructions and where mechanical or natural ventilation is otherwise prohibited, listed and 

labeled ductless mechanical ventilation systems shall not be required to discharge to the 

outdoors.

Ventilation of Structural Spaces: Natural and/or mechanical ventilation of spaces such as attics, 

under floor areas and crawl spaces shall be provided as required to overcome dampness and to 

minimize the effect of conditions conductive to decay and deterioration of the structure. 

Room Facilities: Each dwelling unit shall be provided with space necessary for storage, cooking, 

laundry, and sanitary facilities. 

Kitchen Facilities: 

1. The dwelling unit must have an oven, and a stove or range and a refrigerator of appropriate 

size for the family. All of the equipment must be in proper operating condition. 

2. The dwelling unit must have a kitchen sink in proper operating condition, with a sink trap and 

hot and cold running water. The sink must drain into an approved public or private system. 

Sink and all related plumbing shall be installed in accordance with the Florida Building Code.

3. The dwelling unit must have space for storage, preparation and serving of food. 

4. There must be facilities and services for the sanitary disposal of food waste and refuse, 

including temporary storage facilities (e.g. garbage cans). 

5. There must be a minimum of one receptacle at work surface which must be ground fault 

interruption (GFI) protected if within 6’ of the sink, one non-GFI receptacle adjacent to the 

refrigerator, and one ceiling fixture. All electrical work shall conform the Florida Building 

Code. 

Bathroom Facilities: Bathroom facilities must be located in the unit, a separate and private room 

in nature and shall include the following: 

1, Water Closets: Each dwelling unit shall contain a water closet supplied with running water in 

an enclosed area not less than thirty (30) inches in width not less than eight (18) inches 

clear space in from of the water closet therein and must be in proper working condition.

2. Bathing: Each dwelling unit shall contain a bathtub or shower with a supply of hot and cold 

running water in proper working condition. 
65

3. Lavatory: Each dwelling unit shall contain a lavatory with a sink trap and a supply of hot and 

cold running water and must be in proper working condition. The lavatory shall be located in 

the same room as the water closet or immediately adjacent thereto. 

4. A minimum of one GFI receptacle and one permanent wall or ceiling fixture. All plumbing 

work shall be in accordance with the Florida Building Code as well as all local code 

requirements. 

Room Arrangements: Access to all parts of a dwelling unit shall be possible without passing 

outside the dwelling unit, or passing through another dwelling unit. 

A bathroom shall not be used as the only passageway to a habitable room, hall, basement, or 

dwelling unit. 

A utility room, sleeping room, closet, or storage room shall not be used as the only passageway 

to a habitable room or to a dwelling unit. 

Habitable rooms below grade: Habitable rooms below grade or partially below grade shall 

comply with all the requirements of these standards pertaining to habitable rooms. 

MEANS OF EGRESS

Not less than one exit, sized in accordance with the Florida Building Code as provided herein 

shall be provided for each dwelling unit. 

Every sleeping room shall have at least one operable window or exterior door approved for 

emergency egress or rescue, as per the Florida Building Code. The window or exterior door 

must be operable from the inside to a full clear opening without the use of separate tools. 

Windows that are accessible from the outside, such as basement, first floor and fire escape 

windows must be lockable (such as window units with sash pins or sash locks and combination 

windows with latches). Exterior doors must be lockable. Where windows are provided as a 

means of egress or rescue they shall have a sill height in accordance with the Florida Building 

Code and have a minimum net clear opening in accordance with the Florida Building Code. The 

minimum net clear opening dimension should be in accordance with the Florida Building Code. 

Each sleeping room or room with a required exit door that has security bars, grilles, grates or 

similar devices installed shall have at least one emergency escape and rescue opening as per 

the Florida Building Code. Bars, grilles, grates, or screens placed over windows must be 

releasable or removable from the inside without the use of a key, tool, or excessive force as per 

the Florida Building Code. 

FIRE RESISTANCE REQUIREMENTS

Dwelling-Garage Separation: The common wall or floor-ceiling, if any, between a garage and a 

dwelling shall be protected as required by the Florida Building Code for new construction. 

Smoke Detector: Each dwelling unit must include at least one battery-operated or hard-wired 

smoke detector, in proper working condition, on each level of the unit including basement but 

excluding crawlspaces and unfinished attics. Smoke detectors must be installed in accordance 

with and meet the requirements of the National Fire Protection Association Standard (NFPA) 74 

or successor standards. It should be located, to the extent practicable, in a hallway adjacent to a 

bedroom. If the unit is occupied by hearing-impaired persons, smoke detectors must have an 

alarm system, designed for hearing-impaired persons, as specified in NFPA 74 or successor 
66

standards, in each bedroom occupied by a hearing-impaired person, connected to the smoke 

detector located in the hallway. Smoke detectors must be installed in accordance with local 

code requirements. 

CONSTRUCTION

General Requirements: 

All components of the building shall be in sound condition or shall be restored to a sound 

condition. 

Roofs should be given particular attention in any inspection to be certain of the long term 

serviceability of the system. Roofs must be structurally sound and weather tight. 

Provisions shall be made for roof drainage as required by applicable code or ordinance. Ensure 

proper installation of flashing and installation of a drip edge. (See Energy-Efficiency and 

Environmentally-Friendly Green Elements for efficiency specifications.)

All exterior walls shall be weather tight. The surface of the exterior walls must not have any 

serious defects such as serious leaning, buckling, sagging, large holes or defects that may 

result in air infiltration or vermin infestation. 

All new construction shall be in accordance with the Florida Building Code. 

Interior Finish: 

Floors: Floors shall comply with the following provisions: 

1. Floors must not have any serious defects such as severe bulging or leaning, large holes, 

loose surface materials, severe buckling, missing parts or other severe damage. 

2. Floors of habitable or occupiable rooms in basements or cellars shall be surfaced or paved 

in an acceptable manner when in direct contact with the grade. 

3. Floors in bathroom and water closet compartments and kitchens shall be impervious to 

water, and shall be constructed so as to permit the floor to be easily kept in a clean and 

sanitary condition. The floor finish shall be of a durable, waterproof, non-absorptive material 

such as asphalt, vinyl-plastic, rubber tile, ceramic tile, terrazzo, linoleum, concrete or other 

approved material. 

4. Finish floors in habitable rooms or common spaces shall meet the requirements of the 

Florida Building Code for new construction. 

Walls and Ceilings: Interior walls and ceilings shall conform to the following requirement: 

1. Walls and ceilings must not have any serious defects such as severe bulging or leaning, 

large holes, loose surface materials, severe buckling, missing parts or other serious 

damage. 

2. The finished surfaces shall not have excessive detrimental or unsightly irregularities or 

cracking. 

3. The finish surfaces shall be waterproof and hard surfaced in areas of rooms or spaces 

subject to direct moisture contact, such as bath and shower areas. Kitchen and baths shall 

be painted or papered to provide a washable finish surface. 
67

4. Existing interior and exterior finish surfaces containing any lead content shall be removed 

and replaced or covered with a lead-free material utilizing an approved lead-hazard 

reduction activity which uses safe work practices and clearance as required by Title X of the 

1992 Housing and Community Development Act (24 CFR Part 35). 

Doors and Openings: Interior doors and openings shall conform to the following requirements: 

1. Doors and openings shall be six (6) feet, eight (8) inches minimum in height with minimum 

widths as shown in Table 1: 

TABLE 1 - MINIMUM DOOR WIDTHS

Room or Space Minimum Door Width

Habitable or occupiable rooms 2 ft. 6 in.

Bathrooms, water closet compartments, storage closets (over 4 sq. 

ft. in area) 2 ft. 0 in.

Exit access or service stairs 2 ft. 0 in.

Exit doors 3 ft. 0 in.

Handicap unit doors 2 ft. 8 in. free opening

2. At least one (1) scuttle or access hatch to attic or crawl spaces shall be provided in a 

convenient location and shall have a minimum opening of eighteen by twenty-two (18 x 22) 

inches, except where permanent access is provided. 

Stairways: All interior and exterior stairways must not present a danger of tripping and falling 

and shall conform to the requirements of the building code. 

Chimneys: Chimneys, flues and vents shall be structurally safe, durable, smoke tight and 

capable of withstanding the action of the flue gases; or shall be restored to such a condition. 

Extending Chimneys: Tops of chimneys and flues shall be extended sufficiently so as to provide 

proper draw venting characteristics (draft) as required by the Florida Building Code or other 

applicable code or ordinance for new construction. 

ELECTRICAL, MECHANICAL AND PLUMBING SYSTEMS

General: 

Existing Systems: Existing electrical, heating, mechanical, ventilation, air conditioning, 

plumbing, or any systems that do not provide the services for which they were originally 

intended, or that are potential fire or health hazards, shall be replaced, altered or repaired, so as 

to make them safe and serviceable. 

Electrical Systems: 

Habitable rooms, occupiable rooms, utility spaces and common spaces, normally requiring 

electrical service shall be provided with a system of wiring, wiring devices, fixtures and 

equipment to safely supply electrical energy for proper illumination and other electrical 

equipment. Number of electrical sources (outlets) shall be in accordance with the Florida 

Building Code. 
68

The electrical system shall be connected to the source of electrical power, in accordance with 

the electrical code of the locality. 

Existing Wiring and Equipment: Existing wiring which conformed to the code in effect at the time 

of installation and which has been maintained in good condition which is not being altered or 

extended, and is being used in a safe manner, may continue in use. 

Existing electrical systems which are of inadequate capacity shall be replaced with a new 

system or shall be supplemented with new wiring and equipment as necessary to meet the 

requirements of the Florida Building Code as well as local codes. 

New Electrical Systems: New electrical systems, equipment, fittings and devices shall be 

installed in accordance with the Florida Building Code as well as the local electrical code. 

Heating: 

Heating facilities which are properly installed with automatic temperature control, connected and 

maintained shall be provided for each dwelling unit and for the common spaces and utility 

spaces of the building to assure interior comfort by providing a minimum inside temperature as 

required by the applicable Florida Building Code as well as local code or ordinance and must be 

in proper working condition. When feasible, locate all atmospheric combustion furnaces in 

unconditioned space. Caution: Refer to the Combustion Safety section if a gas furnace exists or 

is planned.

Existing Systems: Existing non-conforming systems components or devices may continue in 

use if there is evidence of satisfactory performance, safety, and adequate capacity. 

New Systems: New heating systems and equipment shall be designed and installed in 

accordance with the requirements of the applicable section of the Florida Building Code as well 

as local code or ordinance. No atmospheric combustion furnaces to be installed in conditioned 

space.

Room (Space) Heaters: Space heaters shall conform to the requirements of the building code, 

or other applicable section of the Florida Building Code as well as or local code or ordinance for 

new installations. Space heaters may not be un-vented room heaters that burn gas, oil or 

kerosene. 

Miscellaneous: Portions of heating system not specifically mentioned in this section shall be 

deemed to meet the intent and requirements of this code if constructed and installed in 

accordance with the applicable section of the Florida Building Code as well as local code or 

ordinance. 

Mechanical Ventilation and Air Conditioning: 

Existing Systems: Existing systems and mechanical ventilation may continue in use if of 

adequate capacity, or they may be supplemented or replaced with a new system as required to 

meet the applicable section of the Florida Building Code as well as local codes and must be in 

proper working condition. Specify that, where feasible, a duct board plenum is retrofitted into 

platform returns, louvered doors on air handler closets are replaced with a correctly sized 

central return grille mounted in the wall (if adjacent to a living space) or in a solid door, and air 

handler stands are replaced with a ducted return plenum.
69

New Systems: New mechanical ventilation and air-conditioning equipment and systems shall be 

designed and installed in accordance with the requirements of the mechanical code or other 

applicable section of the Florida Building Code as well as local code or ordinance. Specify 

ENERGY STAR® (min. SEER 14.5) qualified air conditioner with heat pump. Ensure a ducted 

return.

Existing Duct Work: Ensure duct work is strapped to trusses to achieve clearance over 

anticipated ceiling insulation with hangar supports no more than 5 feet apart. Ideal location is 

midway between roof deck and top of insulation.

New Duct Work: Ensure duct work is strapped to trusses to achieve clearance over anticipated 

ceiling insulation with hanger supports no more than 5 feet apart. Ideal location is midway 

between roof deck and top insulation. Ensure duct sizes specified on design are installed and

that flex duct collars are fully insulated. Specify joints and edges in supply ducts, return plenum, 

and connections to air handler to all be sealed, preferably with mesh and mastic. Ensure ducts 

insulated to R-Value ≥ 6 or higher.

All Systems: HVAC Duct System Air Tightness Test: A post-test is required to verify that duct 

leakage to unconditioned space does not exceed 6 cubic feet per minute per 100 ft2 of 

conditioned space at test pressure of negative 25 pascals (Qn,out = 0.06, commonly referred to 

as “6%”). If measured leakage exceeds 6% (Qn,out ≥ 0.06), leakage points to be identified and 

sealed to reduce measured leakage to 6% threshold or below. Include testing, and retesting as 

necessary, in the mechanical contractor scope of work.

Testing is required to ensure pressure difference between main body of the house and each 

bedroom of ≤2.5 pascals when air handler is operating at maximum capacity and with all interior 

doors closed. If in excess of 2.5 pascals, passive air pathways must be provided from

pressurized bedroom to main body of home via “jump ducts” of “high-low” passive returns to 

achieve balanced return air. For size guidelines reference to Florida Mechanical Code section 

601.4.

Plumbing Systems: 

Plumbing facilities which are properly installed, connected and maintained shall be provided or 

each dwelling unit, and as necessary for the common or utility spaces of the building, to provide 

satisfactory: 

1. Hot and cold water supply and distribution; 

2. Sanitary drainage; 

3. Venting of sanitary drainage system; and 

4. Operation of fixtures. 

Water Heating Facilities: Every dwelling unit shall have water heating facilities which are 

properly installed and maintained in a safe and good working condition and are capable of 

heating water to such a temperature as to permit an adequate amount of water to be drawn at 

every required kitchen sink, lavatory sink, bathtub and shower. All water heaters shall be fitted 

with a pressure relief valve with a drain line to the exterior of the unit. When feasible, locate all 

atmospheric combustion furnaces in unconditioned space. Caution: Refer to the Combustion 

Safety section if a gas water heater exists or is planned. For electric fuel specify standard tank 

type with EF ≥ 0.92 or tank with integrated heat pump water heater and a COP ≥ 2.0. For gas 
70

fuel specify tankless with EF ≥ 0.80. Consider insulating hot water pipes and insulating tanks 

with R-5 or greater.

Existing Plumbing Systems: Existing plumbing systems, or portions thereof, including sewers, to 

remain in use shall operate free of fouling and clogging, and shall not have cross connections 

which may permit contamination of the water supply or backsiphonage between fixtures. 

New Plumbing Systems: New plumbing systems or alterations and additions to plumbing 

systems shall be installed in accordance with requirements of the applicable section of the 

Florida Building Code as well as local plumbing code. 

SITE AND NEIGHBORHOOD

The site and neighborhood may not be subject to serious adverse environmental conditions, 

natural or manmade, such as dangerous walks or steps; instability; flooding, poor drainage, 

septic tank back-ups or sewage hazards; mudslides; abnormal air pollution, smoke or dust; 

excessive noise, vibration or vehicular traffic; excessive accumulations of trash; vermin or 

rodent infestation or fire hazards. 

SANITARY CONDITIONS

The dwelling unit and its equipment must be free of vermin and rodent infestation. 

INSPECTIONS

The City may make periodic inspections and written reports during construction to ensure that 

work is being done according to plans and specifications. 

The City will require that the contractor document his conformance with federal requirements 

including the payment or prevailing wages under the Davis Bacon Act and equal employment 

objectives and requirements, where applicable. 

ENERGY EFFICIENCY STANDARDS

Thermal Insulation Requirements: 

Where accessible, the following minimum R-values are to be used (Table 2): 

TABLE 2 - MINIMUM R-Values

R-Value

Common Walls – Frame 

Common to two separate conditioned tenancies R-13

Common Walls – Masonry 

Common to two separate conditioned tenancies R-3 Both Sides

Frame Walls – 2 x 4 R-13

Frame Walls – 2 x 6 R-19

Frame Walls – Concrete or Masonry Exterior and Adjacent R-5

Attic/Ceiling/Roof (Conventional wood frame) R-38

Knee Walls (Vertical Attic Surfaces) R-13

Floors over unconditioned spaces R-5

Interior Attic Hatches R-19
71

Insulation shall be designed and installed to achieve RENSET Grade I installation quality as well 

as local code or ordinance.

Air Filtration Requirements: 

1. All exterior joints, cracks or openings in the building envelope that are sources of air leakage 

shall be caulked, gasketed, weatherstripped or otherwise sealed. Common air infiltration 

points must be properly addressed and include:

a. Windows – caulk edges of window/frame/trim on both interior and exterior

b. Doors – replace weather-stripping if missing or degraded

c. Lighting fixtures and ceiling fans (drywall gap behind cover/trim)

d. Kitchen exhaust fan chase (at ceiling)

e. Switches and outlets –if replacing covers, seal boxes or drywall

f. Plumbing penetrations through interior and exterior walls (e.g. under sinks)

g. Plumbing access panels – secure tightly and/or weather-strip

h. Attic hatch or stair – weather-strip

i. Interior AHU closet – seal all edges and seams of walls, ceiling, and ducts

j. Soffits over cabinets or housing lighting – add air barrier above rough framing,

seal all edges and seams

k. Holes in drywall

l. Frame floor penetrations for plumbing and electrical

2. Ventilation of the ceiling/roof area shall be in ratios in accordance with the Florida Building 

Code as well as local building codes. 

3. A blower door test is required to assess whole house air tightness and identify leakage 

points (see list below). Target test result is 6 or less air changes per hour at the teat 

pressure of 50 pascals (ACH50 ≤ 6.0). If test result exceeds target of ACH50 ≤ 6.0, check 

and repair the common leakage points identified in number 1 (particularly important if there 

are atmospheric combustion water heaters or furnaces in the home). If gas appliances exist, 

refer to the Combustion Safety section for post-retrofit verification of safe air pressure 

conditions prior to blower door test.

Doors, Windows and Glass: 

1. Exterior doors shall be weather-stripped at jambs, head, and sill where the door is in contact 

with the threshold. 

2. Exterior doors, other than glass doors, shall be solid core wood, wood panel, painted metal 

doors or insulated doors. Hollow core doors shall not be used. Exterior doors may have 

glass sections.

3. When window replacement is required, all replaced windows shall meet the Florida Building 

Code for hurricane. Install ENERGY STAR® labeled windows with U-value ≤ 0.6 and SHGC 

≤ 0.27. Ensure proper flashing installation. If installing house wrap, follow manufacturer 

instructions for cutting and wrapping at window openings. Replace any rotted materials. Air 

seal between window frame and rough opening. Caulk between edges of window frame and 

exterior finish.

4. When window replacement is not required, edges of window frame and exterior finish shall 

be caulked. Ensure proper head flashing (above top of window) with wood siding, install if 

necessary. Check for and replace any rotted materials around window (e.g. studs, 
72

sheathing.) For untinted windows consider specifying window tint to achieve SHGC ≤ 0.5 

and visible transmittance ≥ 0.5.

5. Protection of windows shall be in compliance with the Florida Building Code.

6. Replacement garage doors shall meet the wind and impact resistance standards of the 

Florida Building Code.

ENERGY EFFICIENT AND ENVIRONMENTALLY-FRIENDLY GREEN ELEMENTS

To the extent feasible, the following additional energy efficient and environmentally-friendly 

Green elements will be incorporated into the design of each rehabilitation project.

Renewable Energy:

1. Passive Solar: Orient the building to make the greatest use of passive solar heating and 

cooling.

2. Photovoltaic-ready: Site, design, engineer and wire the development to accommodate 

installation of photovoltaic panels in the future.

Sustainable Site Design:

1. Transportation Choices: Locate projects within a one-quarter mile of at least two, or one-half 

mile of at least four community and retail facilities.

2. Connections to Surrounding Neighborhoods: Provide three separate connections from the 

development to sidewalks or pathways in surrounding neighborhoods.

3. Protecting Environmental Resources: Do not locate the project within 100 feet of wetlands; 

1,000 feet of a critical habitat; or on steep slopes, prime farmland or park land.

4. Erosion and Sediment Control: Implement EPA‘s Best Management Practices for erosion 

and sedimentation control during construction.

5. Sustainable Landscaping: Select native trees and plants that are appropriate to the site‘s 

soils and microclimate.

6. Energy Efficient Landscaping: Locate trees and plants to provide shading in the summer 

and allow for heat gain in the winter.

Water Conservation:

1. Efficient Irrigation: Install low volume, non-spray irrigation system (such as drip irrigation, 

bubblers, or soaker hose).

2. High Efficiency Toilets: Install HETs to reduce waste removal. One type of HET is the dualflush toilet, which allows users to choose between a short flush and a longer flush.

3. Low-Flow Showerheads and Faucets: Install flow limiters or use faucets and showerheads 

with built in flow limiters.
73

Energy Efficient Materials:

1. Durable Materials: Use materials that last longer than conventional counterparts such as 

stone, brick or concrete.

2. Resource Efficient Materials: Use layouts and advanced building techniques that reduce the 

amount of homebuilding material required.

3. Heat Absorbing Materials: Use materials that retain solar heat in winter and remain cool in 

summer.

4. Solar-reflective Paving: Use light-colored/high-albedo materials with a minimum Solar 

Reflective index of 0.6 over at least 30 percent of the site‘s hardscaped areas.

5. Local Source Materials: Use materials from local sources that are close to the job site.

6. Green Roofing: Use ENERGY STAR®-compliant and high-emissive roofing. If asphalt 

shingle, specify light or white colored finish, Solar Reflectance ≥ 0.25.

7. Solar-reflective Walls: If painting, specify light or white color when possible.

Energy Saving Features:

1. Energy Saving Light Fixtures: Specify compact fluorescent lamps (CFLs) and T8 linear 

fluorescent lamps with electronic ballasts as a replacement for incandescent lamps and T12 

lamps with magnetic ballasts. When possible, specify hard-wired CFLs for any new and 

replacement light fixtures, otherwise install screw in CFLs. Select ENERGY STAR® rated 

ceiling fans. Any recessed cans should be insulation contact air-tight (ICAT) compact 

fluorescent models. Specify LED exit signs to replace fluorescent and incandescent exit 

signs in all feasible applications. This measure reduces electricity use, maintenance costs, 

greenhouse gas emissions and air pollution.

2. ENERGY STAR® Appliance Replacement: Specify ENERGY STAR® refrigerators, 

dishwashers, and clothes washers as part of any appliance replacement. Additionally, select 

refrigerator models that are listed on the American Council for an Energy Efficient Economy 

(ACEEE) website at www.aceee.org.

Healthy Homes:

1. Green Label Certified Floor Covering: Do not install carpets in basements, entryways, 

laundry rooms, bathrooms or kitchens; if using carpet, use the Carpet and Rug Institute‘s 

Green Label certified carpet and pad.

2. Healthy Flooring Materials Alternatives: Use non-vinyl, non-carpet floor coverings in all 

rooms.

3. Sealing Joints: Seal all wall, floor and joint penetrations to prevent pest entry; provide rodent 

and corrosion proof screens (e.g., copper or stainless steel mesh) for large openings.

4. Moisture Management: If crawl space, ground cover for vented areas shall be repaired or 

installed, lapping joints 6”, and continuing up stem wall 2’. Moisture loading at walls and 

foundation to be removed (e.g. irrigation system, roof runoff, soil contact).

5. Termite-Resistant Materials: Use termite-resistant materials in areas known to be infested.
74

6. Can Lights: All recessed lighting fixtures including “can” lights and fluorescent tube fixtures 

should be boxed in to prevent insulation contact or replaced with units rated for insulation 

contact and air tightness (ICAT) prior to adding ceiling insulation.

7. Bathroom Ventilation: To the extent physically and financially feasible, all bathrooms should 

have an exhaust fan that is vented to the outdoors with a minimum flow rate of 50 CFM and 

have controls that exhaust moisture automatically. Control strategies include: 

• Timer connected to the light switch that runs for a pre-set time after being turned on 

(independent of being turned off).

• Continuously running ventilation fan.

• Humidistat sensor that automatically runs when moisture is present.

• All fans should be ENERGY STAR® qualified. See www.energystar.gov for product lists.

8. Tub and Shower Enclosures Moisture Prevention: Use one-piece fiberglass or similar 

enclosure or, if using any form of grouted material, use backing materials such as cement 

board, fiber cement board, fiber-glass reinforced board or cement plaster.

9. Kitchen Ventilation: To the extent physically and financially feasible, all kitchens should have 

an exhaust fan that is vented to the outdoors with a minimum flow rate of 100 CFM.

10. Vent clothes dryer to the outdoors.

11. Green Maintenance Guide: Provide a guide for homeowners and renters that explains the 

intent, benefits, use and maintenance of Green building features, and encourages additional 

Green activities such as recycling, gardening and use of healthy cleaning materials.

12. Resident Orientation: Provide a walk-through and orientation to the homeowner or new 

tenants.
75

Appendix C: City of Fort Myers Renovation Standards

Reprinted here with permission of the City of Fort Myers, Office of Sustainability, Fort Myers, 

Florida.

EXHIBIT B

MANDATORY IMPROVEMENTS

Contractor Specifications/Cost Estimate Sheet

Owners Name

Address

Fort Myers, FL 

Contractors Name: _______________________________

Date Proposal Received: ______________ Proposal Due Date: ________________

MATERIALS & PRODUCTS TO BE USED ON THIS JOB SHALL BE 

MANUFACTURED IN THE U.S.A. WE ALSO RECOMMEND THE USE OF 

LOCAL AREA VENDORS. CUT SHEETS MUST BE SAVED AND PROVIDED TO 

THE PROJECT MANAGER.

INFORMATION

All work to be done shall be in compliance with the 2010 Florida Building

Code Residential Construction standard and all applicable codes in the jurisdiction. 

Contractor is responsible for obtaining all the required permits. Failure to comply 

with all applicable laws may incur in fines or legal action at the contractor’s 

responsibility.

The housing programs aim to provide a good quality end product with an efficient, safe 

and healthy environment. The program also aims to certify the homes as green homes 

therefore the contractor is responsible for ensuring that all materials used for the 

rehabilitation are in line with green building standards based on previous training and 

specifications. Any inquiries regarding the materials during construction must be 

discussed with the project manager for approval.

A. All mechanical equipment, plumbing fixtures, electrical fixtures, gas appliances, 

electrical appliance, salvageable and unsalvageable debris replaced by the contractor, 

shall be removed by the contractor unless otherwise specified. A construction debris 
76

management plan shall be provided and approved at the Pre-Construction meeting to 

minimize waste going to land fields and promote recycling practices. All debris within 

City of Fort Myers limits shall be removed by the City of Fort Myers Solid Waste 

Division; dumpster services shall be contracted through them in compliance with section 

70-31 and 70-33 of the City of Fort Myers municipal code and Florida Statutes.

B. Where equipment, material, or articles are referred to in the specifications as "or equal", 

"equal to", "approved alternate", "the equivalent", etc. to any particular standard, the 

Housing & Real Estate Division staff shall decide the question of equality prior to 

installation. No exposed urea formaldehyde particle board shall be used for this project.

C. Work areas on interior of house shall be "broom-clean" at end of each work day. At the 

end of the project and prior to Notice of Completion, contractor shall remove all 

rehabilitation waste material, excess materials, and restore original site topography & 

professionally detail dwelling ready for permanent occupancy.

D. The written dimensions on the plans are presumed to be correct, but before signing 

contracts, the Contractor shall be required to check and is responsible for the accuracy of 

all dimensions required to perform work. All improvements on plans and/or in the 

specifications are considered part of the contract and are to be completed per same and all 

pertinent codes and ordinances apply. If any errors or omissions are discovered, the 

Housing & Real Estate staff shall be so advised in writing and will make the proper 

corrections.

E. An energy audit will be conducted during construction and testing at completion of work. 

Proper corrections shall be made after the analysis as directed by Housing and Real 

Estate Division staff. If corrections are part of the original scope of work it is 

responsibility of the contractor to make the required changes, if corrections are not part of 

the original scope of work a change order is necessary before continuation of work. The 

duct work will be tested to ensure minimal duct leakage to unconditioned space. Test will 

also measure whole house air tightness to ensure that there is minimum infiltration from 

unconditioned spaces or the exterior. The target test result is 6 or less air changes per 

hour at the test pressure of 50 pascals (ACH50 less than 6.0).

Failure to pass the test may incur in additional cost at the contractor’s expense to retest 

the house. 

F. Bonding requirements may apply on jobs where the valuation on the scope of work 

exceeds the following threshold: $100,000, the following bond requirements must be 

met:

• Bid bond: Must be included in the proposal package (5% of bid amount).

• Performance bond: Must be provided after the selection is done and prior to the 

contract being issued (100% of contract price).

• Payment bond: Must be provided after the selection is done and prior to the 

contract being issued (100% of contract price).

G. Control sediment runoff (silt fences) shall be in place at time of construction.
77

H. Scope of work

PROVIDE ALL LABOR AND MATERIALS TO COMPLETE IN A 

WORKMANLIKE MANNER THE FOLLOWING:

1. DEMOLITION

a.) Interior & Exterior Demolition: Removal /demolition and disposal of all debris shall be in 

accordance with local, state and federal requirements for permanent disposal.

Remove all wall & ceiling framing, sheetrock, floor covering, windows, doors, trim, equipment, 

cabinets, plumbing and plumbing fixtures, electrical components, mechanical equipment 

(including duct work), debris and household items from structure. 

Remove the roof in its entirety including, trusses, sheathing, shingles, soffit and fascia.

Around the exterior of the house, remove all additions not part of the original block construction, 

all out buildings/ storage sheds and perimeter concrete slabs (driveway to apron & walkway 

included)..

$_________________

2. DRIVE & WALK WAY 

a. Pour In Place Concrete: Pour a new drive way from apron to house with new walkway to 

front entry. Concrete shall be no less than 2500 PSI at 28 days, 4" thick with 6/6 10/10-wire 

mesh reinforcing or fiber mesh. Concrete shall be poured over compacted and treated soil free of 

foreign material. When pouring for a habitable area a barrier of 6 mill visqueen is required.

Visqueen and wire shall have a 6" overlap. New concrete shall be floated and troweled to a 

smooth finish if for interior work and broom finished if exterior work. Walkways shall have 

controlled joints every 4' with a depth of not less than 1/4 pad thickness. All work will be 

completed in a workmanlike manner and shall be in compliance with the 2010 Florida Building 

Code Standards.

$_________________

3. BUILDING

a. Wall Framing: All exterior walls shall be a minimum 2 x 4 studs 16" o.c. Framing lumber 

shall be stud grade Douglas Fir or Spruce. Lumber in contact with concrete shall be pressure 

treated and a minimum of R-13 insulation shall be provided. Walls to be plumb and erected in a 

workmanlike manner. (i.e. header size in relation to width of opening, etc.) Insulation shall be 

installed per manufacturer’s instructions without compression or gaps, fully filling the stud bay. 

Window and door locations shall be per drawing. Window and door openings shall be flashed 

per manufacturer instructions. Wall(s) must comply with the 2010 Florida Building Code 

Standards.

Note: All the components and finishes of a single family home with added 1 car garage required 

by code shall be provided by the contractor. These specifications, drawings and current required 

codes will identify a number of specific items required to fulfill the intent of this project. Interior 
78

of the house and fixtures shall accommodate for individuals with disabilities including but not 

limited to door lever handles and grab bars reinforcement backing in most accessible bathroom.

Rehabilitated house shall consist of 3 bed rooms, 2 baths, living, dining room and garage; 

laundry area and hot water heater to be located at rear of new garage. Living space is limited to 

the square footage of the existing building; accommodations shall be made to locate the AHU in 

conditioned space, and design should provide for compact plumbing areas. The house egress 

door openings and window egress openings shall be maintained as required per code. Top plates 

shall be sealed at contact with drywall from interior/exterior walls of the house.

All penetrations through the slab such as piping or conduit shall be sealed around its perimeter 

with an elastomeric or vulcum type sealer. 

$_________________

4. GYPSUM WALLBOARD

Gypsum Wallboard: Install new sheet rock to all newly (framed walls and all furred walls) 

throughout dwelling. All new sheetrock and green board will be finished with a (skip trowel 

application). All joints and internal angles will be finished using tape joint system. Galvanized or 

plastic corner beads shall be applied to all external corners. All sheet rock will be per code thick 

by 4' X 8', 10' or 12' lengths with tapered edge. Use water resistant sheet rock (green board) on 

all work in tub surround and wet wall in baths and wet wall in kitchen. All holes in drywall must 

be sealed. Whole house air tightness testing will be conducted to ensure that there is minimum 

infiltration from unconditioned spaces to the exterior. The target test result is 6 or less air 

changes per hour at the test pressure if negative 50 pascals (ACH50 no greater than 6.0) All work 

will be completed in a workmanlike manner and shall be in compliance with the 2010 Florida 

Building Code Standards.

$_________________ 

5. ROOFING

a. Hip Roof system: (6 in 12 roof slope) with engineered trusses, and large overhangs as 

permitted by the 2010 Florida Building Code. Include sheathing, and self-adhesive polyethylene, 

rubberized asphalt underlayment, felt and asphalt shingles per code. Preformed aluminum, 

flashing, drip edge, ridge vent, and vent pipe boots. Provide new one ply 30# felt, 240 lb., 30 

year, dimensional, class A fungus resistant fiberglass shingles and pre-painted aluminum drip 

edge. Shingles shall be (Owens Corning, Elk, G.A.F. or equal). Color shall be approved by 

Owner but must have a Solar Reflectance Index (SRI) greater than 0.25. (Light colors only, 

provide samples before proceeding). Owner will be furnished with the standard manufacturer’s 

warranty and a minimum one year contractors warranty on labor upon completion. 

$_________________

b. Gutters/ Fascia and Soffit: Install pre-finished seamless aluminum storm gutter on front 

fascia ( ) LF and on rear fascia ( ) LF. Gutters will be completed with properly located 

downspouts for water run off discharging at least 30” away from the structure. Color will be of 
79

owner’s choice from readily available stock. Gutters and downspouts shall be caulked at all 

joints where a connection is made. No seams shall be allowed over entry to structure. All work 

will be completed in a workmanlike manner and shall be in compliance with the 2010 Florida 

Building Code Standards.

Install aluminum fascia and (aluminum) ribbed or V-groove continuous vented soffit on entire 

overhang. Color shall match gutters Soffit shall be at 90 degrees to wall and not attached to 

rafter tails and be spaced a maximum 24" O.C. All work to be completed in a workmanlike 

manner and shall be in compliance with the 2010 Florida Building Code Standards.

$________________

6. DOORS

a. Exterior Entry Door(s): Install ( ) new exterior insulated steel pre-hung door (s) in ( ) 

exterior entry to ( ) respectively of structure. Door (s) will be a six panel style (with/without) 

window panels having a threshold as an integral part of the frame (Jeld-Wen, Perma Tru or 

equal). New door(s) size, swing and location shall be as per (existing/drawing). Prior to 

installation of new exterior door(s), all deteriorated lumber pertaining to the sills, heads, jambs, 

casings, brick molding and frames shall be removed and new lumber shall be provided to meet 

local codes. Caulk and paint wood frames of new doors within 5 working days. Contractor shall 

repair any area affected by this door installation to match the surrounding finish. Allow for all 

new hardware, locking hinges and safety chain if outswing style, viewer if non-windowed style, 

matching keyed alike lock set(s) and dead bolt lock (s) (Weiser quality or equal). Exterior 

door(s) on completion will be weather-tight, in good working order and be installed in a 

workmanlike manner. NOTE: Doors shall comply with 2010 Florida Building Code 

Standards for wind loads

b. Interior Entry Door(s): Install new entry door(s) as shown on drawing. New door(s) shall be 

colonial style with wood stiles and rails, pre-hung and hollow core. Doors will open as per 

drawing, be hung plumb and be in good working order. Provide and install all new brass plated 

hardware and passage latches (privacy lock sets for all bath(s) and bedroom(s). Provide and 

install brass plated, base mounted spring doorstops for all entry doors. All work will be 

completed in a workmanlike manner. Paint for doors shall be low VOC. 

c. Interior Closet Door(s): Install new closet door as shown on drawing. New door(s) will be 

(bi-fold) style. Doors will be hung plumb and be in good working order. Provide all new 

hardware. All work will be completed in a workmanlike manner. Paint for doors shall be low 

VOC.

d. Garage Door: Install a new 9’x 7’ roll up garage door. Garage door shall be a raised panel 

style equal to or better in quality than a Raynor Charleston Classic. Garage doors shall be in 

compliance with the 2010 Florida Building Code Standards. Note: See drawing.

$________________
80

e. Garage Door Opener: Provide and install electrical garage door opener. Garage door opener 

shall be installed, with all necessary wiring, one remote control and wall mounted control. Patch 

and repair all affected areas to match surrounding surfaces. All work will be completed in a 

workmanlike manner and meet manufacturer’s specifications.

$________________

f. Exterior Entry Door(s) retrofit (if doors are not being replaced): Replace all weather 

stripping in exterior doors. Fasten any loose frames, caulk between edges of door frame and 

exterior finish, and ensure proper head flashing (above top of door).

$_________________

7. WINDOWS

a. Windows: Install all windows (window openings) located throughout the house. Egress 

windows shall have a minimum clear open area of 5.7 sq. ft. All replaced windows will be 

aluminum or vinyl style windows white color. All bath window replacement, if existing shall 

have obscure glass. If window sill height in tub surround is less than 60" off finish standing 

surface, window shall receive tempered glass. Prior to installation of new windows in existing 

openings, all grooves, offsets and projections on the sides, heads, jambs and sills shall be 

finished flush and new window shall be sized to accommodate existing opening. Ensure proper 

flashing installation, seal all air gaps between window frame and rough opening, caulk between 

edges of window frame and exterior finish, replace any rotted materials around the window.

New windows shall be certified with weather-strips, nylon bushings, locking hardware, and 

fiberglass screen. New windows shall be installed in the prepared opening to manufacturer's 

specifications. Frames must be caulked and made weather tight, operate easily and glass cleaned.

Contractor shall repair any area affected by the installation of window to match the surrounding 

finish. All work will be completed in a workmanlike manner. 

Windows shall meet the ENERGY STAR® window criteria requiring a U-factor of 0.60 or lower

and a SHGC of 0.27 or lower a cut sheet must be provided. Windows shall be from Florida 

manufacturers.

All windows shall have screens installed as needed to allow for passive ventilation. 

For resources visit http://www.energystar.gov/index.cfm?c=revisions.windows_spec

NOTE: New windows shall comply with 2010 Florida Building Code.

$_________________

a.a. Window retrofit (if windows are not being replaced): Lubricate all windows throughout 

unit and repair to function properly. Remove all damaged or deteriorated weather-strips, 

bushings, hardware, locks, etc., and replace with new. Fasten any loose frames, caulk between 

edges of window frame and exterior finish, and ensure proper head flashing (above top of 

window). Paint touch up on any scratched frames. Repair all window surroundings to match 

existing as needed. Check and replace any rotted materials around window.

Replace any damaged or missing window screens. Windows frames when repaired shall be in 

weather tight, clean and in like new condition. 
81

Install energy efficient window film 3M, Prestige, Solar Gard or equal quality to all windows. 

Film shall meet the ENERGY STAR® criteria requiring a SHGC of 0.50 or lower and visible 

transmittance of 0.50 or greater; a cut sheet must be provided to the Housing and Real Estate 

Division. Installation is to be completed in a workmanlike manner. 

$_________________

a.b. Impact Resistant Windows: Install all windows (window openings) located throughout the 

house. Egress windows shall have a minimum clear open area of 5.7 sq. ft. All replaced windows 

will be aluminum or vinyl style windows white color and be impact resistant as required by code 

with approved NOA by Miami-Dade County. All bath window replacement, if existing shall 

have obscure glass. If window sill height in tub surround is less than 60" off finish standing 

surface, window shall receive tempered glass. Prior to installation of new windows in existing 

openings, all grooves, offsets and projections on the sides, heads, jambs and sills shall be 

finished flush and new window shall be sized to accommodate existing opening. Ensure proper 

flashing installation, seal all air gaps between window frame and rough opening, caulk between 

edges of window frame and exterior finish, replace any rotted materials around the window.

New windows shall be certified with weather-strips, nylon bushings, locking hardware, and 

fiberglass screen. New windows shall be installed in the prepared opening to manufacturer's 

specifications. Frames must be caulked and made weather tight, operate easily and glass cleaned.

Contractor shall repair any area affected by the installation of window to match the surrounding 

finish. All work will be completed in a workmanlike manner. 

Windows shall meet the ENERGY STAR® criteria requiring a U-factor of 0.60 or lower and a 

SHGC of 0.27 or lower a cut sheet must be provided. Windows shall be from Florida 

manufacturers.

All windows shall have screens installed as needed to allow for passive ventilation. 

For resources visit http://www.energystar.gov/index.cfm?c=revisions.windows_spec

NOTE: New windows shall comply with 2010 Florida Building Code.

$_________________

b. Storm Panels: Provide and install storm panels to all exterior windows and sliding glass door 

opening in building. Panels shall be installed as per manufacturer’s recommendations. Panels 

shall be 24 gauge galvanized steel panels or equivalent and approved for the Miami-Dade 

County (impact resistant coverings shall be labeled as required by the 2010 Florida Building 

Code.) Panels shall be sized and secured by manufactures hardware as required per code. An 

area of the garage shall be set for storage of the storm panels in a secure way. All work shall be 

completed in a workmanlike manner and in compliance with the 2010 Florida Building Code 

Standards.

$_________________

8. PLUMBING

a. Install a New Water, Drain, Waste, Vent System and Fixtures per 2010 Florida Building 

Code. 
82

To including 2 exterior hose bibs.

A new 2 way clean out shall be installed (in front area of the house) and brought up to grade. 

Back flow preventer as required per code.

All hot water pipes to be insulated, use reinforced hoses for supply lines and quarter turn or 

push-pull valves. Seal all penetrations through interior and exterior walls (from water service, 

under sinks, at access panels, etc.)

ALL fixtures shall be Water Sense certified, cut sheets must be provided.

Fixtures to include:

1-Fiberglass tub shower unit in Main Bath & 1-fiberglass walk in shower unit (5’ wide) in 

Master Bath. 

Tub/ Shower Faucets: (All bath rooms) Install approved LOW FLOW (less than 1.6 gpm) 

shower heads and faucets “water sense”. Faucets shall be (metal) lever handled with anti-scald 

Moen or equal quality.

Lavatory Faucets (All bathrooms): Install approved LOW FLOW (less than 1.6 gallon per 

minute) “water sense”. Moen (or equal) metal single lever lavatory faucet complete with pop up, 

brass angle stops and risers. 

Toilets (all bathrooms): Install “water sense” toilets of UNAR Map (maximum performance) 

rating of 350 GPF or greater. Installed toilet maximum flow rate shall be of a maximum 1.28 

gallons/flush.

Kitchen Faucet: Install an approved metal faucet with aerators for 1.5 gpm Moen or equal quality 

single handle chrome faucet with spray spout (spout or sprayer must have at least a 9-inch hose).

Electric Water Heater (garage): Install a new most energy efficient (EF > 0.92) 40 gallon (regular 

or low boy) glass lined, quick recovery. Heater shall be equipped with a high limit safety cut off, 

pan, and pressure relief valve piped to the outside, all hot water pipes to be insulated. HWH is to 

be located outside conditioned space. Heater shall be 220 volts, double with all state and local 

codes and be completed in a workmanlike manner. Water heater must be wrapped with R-5 

blanket. Note: If water service is not available at property site, contractor shall be 

responsible for activating water service for construction including all related costs.

Installation shall comply with 2007 Florida Plumbing Code.

$_________________

a.a. Retrofit for existing houses:

Ensure that a proper inspection of the plumbing system is performed by a license plumber prior 

to start any work. Install a Back flow preventer as required per code.

All accessible hot water pipes to be insulated, replace hoses as required and use reinforced hoses 

for supply lines and quarter turn or push-pull valves. 
83

ALL fixtures shall be Water Sense certified, cut sheets must be provided.

Tub/ Shower Faucets: (All bath rooms) Install approved LOW FLOW (less than 1.6 gpm) 

shower heads and faucets “water sense”. Faucets shall be (metal) lever handled with anti-scald 

Moen or equal quality.

Lavatory Faucets (All bathrooms): Install approved LOW FLOW (less than 1.6 gallon per 

minute) “water sense”. Moen (or equal) metal single lever lavatory faucet complete with pop up, 

brass angle stops and risers. 

Toilets (all bathrooms): Install “water sense” toilets of UNAR Map (maximum performance) 

rating of 350 GPF or greater. Installed toilet maximum flow rate shall be of a maximum 1.28 

gallons/flush.

Kitchen Faucet: Install an approved metal faucet with aerators for 1.5 gpm Moen or equal quality 

single handle chrome faucet with spray spout (spout or sprayer must have at least a 9-inch hose).

$_________________

Electric Water Heater (garage): Install a new most energy efficient (EF > 0.92) 40 gallon (regular 

or low boy) glass lined, quick recovery. Heater shall be equipped with a high limit safety cut off, 

pan, and pressure relief valve piped to the outside, all hot water pipes to be insulated. HWH is to 

be located outside conditioned space. Heater shall be 220 volts, double with all state and local 

codes and be completed in a workmanlike manner. Water heater must be wrapped with R-5 

blanket. Note: If water service is not available at property site, contractor shall be responsible for 

activating water service for construction including all related costs. Installation shall comply 

with 2010 Florida Plumbing Code.

$_________________

Alternate spec for Hot Water Heater

Heat Pump Water Heater (garage): Install a new ENERGY STAR® 50 gallon heat pump 

water heater (COP>=2.0) where there is a minimum of 1,000 cubic feet of air. Heater shall be 

equipped with a high limit safety cut off, pan, pressure relief valve and condensate line piped to 

the outside. Heater shall be 220 volts, double with manufacturer instructions for clearances, all 

state and local codes and be completed in a workmanlike manner. Installation shall comply with 

2010 Florida Plumbing Code.

A cut sheet must be provided.

$_________________

9. ELECTRICAL

a. New Service and Distribution: Install a new 200 amp 120/240 V single phase electrical 

service. Service shall include: weatherproof panel box if exteriorly located 200 amp main 

disconnect and all necessary circuit breakers. New service shall have a separate 220 V circuit for 

water heater, electric range, clothes dryer, combination in wall heat-air unit Central HVAC with 

disconnect for air handler and condensing unit. All 220 V. receptacles will be amped per mfg. 

specifications circuits complete with proper ground. All additional newly wired receptacles will 

be a minimum 15 amp circuit with ground. Direct wire smoke/CO detectors located centrally to 
84

all bedrooms and at garage entrance will be required. GFI will be required in bath/kitchen 

receptacles servicing countertop surface and one centrally located exterior receptacle if existing. 

ARC-Fault Receptacle Outlets shall be required in all bedrooms in new construction. 

The following listed items shall also be included: 

3 wired phone outlets

1 cable outlet in living room and 1 in each bedroom

2 Exterior electrical outlets

Exterior lights on both sides of garage door area and two at rear of house (with motion sensor 

included). 

Exterior light in front of house (with motion sensor included). 

Bathroom fixtures ENERGY STAR® with Max 100w output for the entire fixture

Bathroom fans: ENERGY STAR® low sone (CFM 50) with timers, occupancy sensor or 

humidistat with required ducting to the outside and electrical circuit. 

Light/ fan combo in bed rooms, living/dining room. Install new ENERGY STAR® combination 

light/fan in all bedrooms, living room & dining room with electrical wiring and light switch at 

entry. Compact Fluorescent Light bulbs are to be installed with fixture. / The alternative will be 

to use the ENERGY STAR® Advanced Lighting Package. This is a comprehensive package that 

includes ceiling fans, indoor lighting, and outdoor lighting. Also includes ventilating fans.

Any penetrations from exterior walls or unconditioned areas (i.e., attic, walls at receptacles, 

fixtures at ceilings, ducts at ceiling or wall, electrical panel service entrance, etc) must be air 

sealed and gaskets must be used to seal all receptacles and switches. Seal air gaps between 

electric boxes and walls. Recessed lighting fixtures including can lights and fluorescent fixtures 

(as applicable) should be boxed in to prevent insulation contact or be replaced with units rated 

for insulation contact and air tightness (ICAT).

All lighting fixtures to have Compact Fluorescent Lights installed (CFL).

Cut sheets for all the fixtures must be provided. 

Note: If electricity is not available at property site, contractor shall supply approved 

electrical temporary power pole for construction including all related costs. All electrical 

work shall comply with the 2008 National Electric Code and be completed in a 

workmanlike manner.

$_________________

a.a. Retrofit for existing houses: Ensure that a proper inspection of the electrical system is 

performed by a licensed electrician prior to starting any work. Ensure that the service is of 200 

amp 120/240 V single phase electrical service, if not a service shall be installed to those 

requirements. Service shall include: weatherproof panel box if exterior located 200 amp main 

disconnect and all necessary circuit breakers. Service shall have a separate 220 V circuit for 

water heater, electric range, clothes dryer, combination in wall heat-air unit Central HVAC with 

disconnect for air handler and condensing unit. All 220 V. receptacles will be amped per mfg. 

specifications circuits complete with proper ground. All additional newly wired receptacles will 
85

be a minimum 15 amp circuit with ground. Direct wire smoke/CO detectors located centrally to 

all bedrooms and at garage entrance will be required. GFI will be required in bath/kitchen 

receptacles servicing countertop surface and one centrally located exterior receptacle if existing. 

ARC-Fault Receptacle Outlets shall be required in all bedrooms in new construction. 

The following listed items shall also be included: 

• 3 wired phone outlets

• 1 cable outlet in living room and 1 in each bedroom

• 2 Exterior electrical outlets

Exterior lights on both sides of garage door area and two at rear of house (with motion sensor 

included). 

Exterior light in front of house (with motion sensor included). 

Bathroom fixtures ENERGY STAR® with Max 100w output for the entire fixture

Bathroom fans: ENERGY STAR® low sone (CFM 50) with timers, occupancy sensor or 

humidistat with required ducting to the outside and electrical circuit. 

Light/ fan combo in bed rooms, living/dining room. Install new ENERGY STAR® combination 

light/fan in all bedrooms, living room & dining room with electrical wiring and light switch at 

entry. Compact Fluorescent Light bulbs are to be installed with fixture. / The alternative will be 

to use the ENERGY STAR® Advanced Lighting Package. This is a comprehensive package that 

includes ceiling fans, indoor lighting, and outdoor lighting. Also includes ventilating fans.

Any penetrations from exterior walls or unconditioned areas (i.e., attic, walls at receptacles, 

fixtures at ceilings, ducts at ceiling or wall, electrical panel service entrance, etc) must be air 

sealed and gaskets must be used to seal all receptacles and switches. Seal air gaps between 

electric boxes and walls. Recessed lighting fixtures including can lights and fluorescent fixtures 

(as applicable) should be boxed in to prevent insulation contact or be replaced with units rated 

for insulation contact and air tightness (ICAT).

All lighting fixtures to have Compact Fluorescent Lights installed (CFL).

Cut sheets for all the fixtures must be provided. 

Note: If electricity is not available at property site, contractor shall supply approved 

electrical temporary power pole for construction including all related costs. All electrical 

work shall comply with the 2008 National Electric Code and be completed in a 

workmanlike manner.

$_________________

10. MECHANICAL

a. Central Heat and Cooling System: Provide and install a new ENERGY STAR® central 

cooling and heating system. The installation shall include equipment with a minimum efficiency 
86

of 15.0 SEER, R-410A refrigerant and electric heat strip. Equipment sizing shall be according to 

ACCA manual J. System will be complete with all electrical connections, piping and duct work. 

Ventilation shall be provided to all living areas including den. Return air ducts shall be provided 

to all bedrooms for balanced air return. The new heating and cooling systems will be a complete 

system with all necessary components to function according to code and manufactures 

specifications. No exposed interior duct work.

The air handler is to be located in the conditioned space. The interior of the air handler closet 

shall be sealed, taped and mudded drywall finish on all walls and ceiling and provide a 

continuous air barrier. The closet shall have an access door to allow for replacement, repair and 

maintenance. The air handler shall be installed with ready access to filter. If there is an existing 

interior closet for the AHU, replace louvered doors with a correctly sized central return grille 

mounted in the wall with a solid access door above. AHU platform must be extended to meet the 

wall and completely separate return plenum from space above. Existing closets containing air 

handlers supported by stands (instead of wood frame platforms), will be handled on a case by 

case basis. 

The return air duct and register shall be sized according to approved methods. The condensing 

unit pad to be furnished by the G.C. or the H.V.A.C. contractor if none is present. The new 

complete system will be installed to all manufactures specifications with warranty submitted to 

the Housing & Real Estate Division, in addition, the mechanical contractor must provide 

documentation certifying that the system has been tested and is operating as it was designed. All 

work shall be completed in a workman like manner.

The system shall include an ENERGY STAR® programmable thermostat and include all 

equipment sizing and energy calculations as required per code. All documentation must be 

provided at permit application. 

Install all new duct work (return and supply), joints to be sealed properly with mesh mastic 

compound. Duct work shall be leak free, insulated with a minimum of R-6 insulation as required 

per code with a vapor barrier. For flex duct work, ensure outer insulation sleeve fully covers 

connection collars to prevent condensation. All ducts to be properly stapled, taped and sealed 

according to manufactures installation instructions. Ducts shall be supported above insulation 

with approved hanger supports in accordance with manufactures installation instructions and 

code requirements. Register boxes shall be sealed between drywall and boot. 

Clean and seal all register boxes and other duct openings until all work is completed in the 

interior of the house. Remove and clean all grills and paint if necessary. Include a quality filter 

when work is completed. 

LEAK FREE means that all ductwork must be properly sealed with mastic and 

performance test of duct work must verify that duct leakage to unconditioned space does 

not exceed 6 cubic feet per minute per 100ft2 of conditioned space at test pressure of 

negative 25 pascals (commonly referred to as 6%). If performance is over 6% air leakage, 

contractor is responsible for addressing the issue and this may include the responsibility to 

pay the energy rater to retest the house. 
87

$_________________

11. INSULATION

Note: Mechanical, electrical and plumbing rough-in must be completed prior to ceiling 

insulation.

a. Above Ceiling: Use blown insulation RESNET grade I, R-38 value and ensure that it is 

properly labeled at attic access, (existing homes) if insulation is missing or in poor condition add 

insulation to achieve RESNET R-38 grade I throughout. Attic access door must be insulated with 

rigid foam or batt insulation to R-19 and weather-strip at edges.

Where attic or other unconditioned space (such as floor cavities) extends over porches, provide 

insulation damn and an air barrier to prevent insulation spillage onto porch ceiling and air 

infiltration into attic or floor cavity. On knee walls ensure RESNET grade I installation to R-13 

or greater insulation.

Suggested insulation materials are cotton, expanded polystyrene (EPS), formaldehyde-free 

fiberglass, water spray foam, or Greenguard certified insulation.

$_________________

12. CABINETS & COUNTER TOPS

a. Kitchen Cabinets: Install new kitchen wall mount cabinets and base cabinets with new good 

quality pre-finished cabinets (containing NO exposed Urea Formaldehyde), clad with mica on all 

interior and exterior areas of all doors, sides, base and shelves with built in area for new dish 

washer.

New cabinets shall be mid-range quality and price (American Woodmart, Brandum, Merillat or 

equal). Color, finish and style of new kitchen cabinets to be chosen by Owner from appropriate 

selection supplied by contractor (solid color or woodgrain). All door and drawer pulls selected 

shall be selected by owner and shall be from readily available stock and be included in the 

cabinet installation costs. All base cabinets shall be installed plumb, level and scribed to fit floors 

and walls. Seal all joints in an approved manner. Wall cabinets will be hung with proper 

clearance between base cabinets and ceiling and be plumb and level. All work will be completed 

in a workmanlike manner and meet manufacturer’s specifications. Cut sheets must be provided.

b. Kitchen Countertops: Install mica laminated countertops over new base cabinets. Top should 

be 25" in width with a 4" back splash or mica "curve-a-top" style. Countertops shall be fastened 

down per manufacturer’s specifications. Owner shall be consulted as to color of countertops 

from appropriate selection supplied by contractor (Wilsonart Series 60 or similar). All work 

will be completed in a workmanlike manner and be to manufacturer’s specifications.

c. Lavatory Base Cabinet: Install new good quality lavatory base cabinet (containing NO Urea 

Formaldehyde), properly sized to lavatory (American Woodmart, Brandum, Merillat or equal). 

New cabinet shall be clad with mica on all sides, shelves, base and doors. Owner shall select 
88

type, style and color from readily available stock. Unit will be installed in a workmanlike manner 

and be level and plumb.

d. Lavatory Sink/ Counter Comb: Install new cabinet lavatory sink /counter combination. 

Cabinet lavatory shall be cultured marble (color white). Installation will comply with standard 

plumbing code and be completed in a workmanlike manner. 

$_________________ 

13. PAINTING

a. Exterior Elastomeric Paint: Patch and repair exterior walls as required skip trowel wall 

surfaces, prime and paint with color selected by owner and approved by the Housing & Real 

Estate Division, paint reflectivity shall be over 50. Prepare surface and apply elastomeric paint as 

per manufacturer’s specifications to all exterior surfaces of dwelling. Any obstruction shall be 

pulled away from the house to allow painting of entire surface to a minimum of 6” below grade. 

The filling and patching of all holes and cracks is to be done as per manufacturer’s requirements. 

Caulking of all trim and window/door shall be part of the surface preparation prior to application 

of paint. 

Base color shall be approved by the Housing and real estate Division. Exterior doors, columns 

and trim are to be painted white. Remove all nails or strange objects from the surfaces and repair 

surface. All raw wood and siding (if applicable) will be primed prior to the application of paint. 

All sides and edges of exterior door(s) shall be primed within 3 days of installation. Entire 

exterior of the building must be pressure washed prior to application of paint, cleaning of the 

exterior for preparation of paint must include cleaning of soffit. On completion, entire exterior of 

structure shall be free and clear of dirt, all chipping, peeling, and checkered paint. Paint shall be 

Sherwin Williams, Loxon XP, ICI Decra-Flex 300, Valspar Duramax Ext, Behr masonry, or 

equal quality. All work will be completed in a workmanlike manner.

$_________________

b. Interior Low VOC paint: Prepare surface and apply paint as per manufacturer’s 

specifications to all painted interior surfaces of unit to include doors, frames and baseboards. The 

filling, patching and repairing of all holes, cracks and the caulking of all trim shall be a part of 

surface preparation, all wall paper shall be removed as well as decorative trim and wainscoat in 

the kitchen area and wall texture shall match all existing. Garage wood shelving system must be 

removed to paint the area wall. Paint will be either an interior latex flat (preferred), semi-gloss or 

satin high hiding interior wall paint. In bath, kitchen and all trim (Semi-gloss or gloss latex 

enamel) shall be used. Interior doors will be painted with (latex semi-gloss or gloss paint/stained 

and sealed). Base paint shall be approved by Housing & Real Estate Division and color white

baseboards, trim and doors.

Paint will be (Sherwin Williams, Flex Bon 14-1 series, Glidden 5300 series, Best or equal 

quality). Painted raw wood will be primed prior to application of paint. Walls will be clean and 

free of any damaged, peeling, chipping or checkered paint. Prepare the surface to include 

cleaning must be done before painting application. All work will be completed in a workmanlike 

manner. 
89

Use only low VOC or No VOC (Volatile Organic Compound) paint throughout the interior of 

the house and follow the above specifications for color, preparation and application.

For resources go to http://www.greenseal.org/findaproduct/paints_coatings.cfm

$_________________

14. FLOORING

a. Ceramic Floor Tile: Install ceramic floor tile throughout the house. Installed tile shall be 

nominal 12" x 12" with a minimum thickness of 1/4". Tile shall be (Color Tile quality or equal).

Color and pattern selection shall be owner’s choice within manufacturer’s availability (light 

colors as beige preferred). Installation adhesive and other application material shall be those as 

recommended specifically by the manufacturer. All work will be completed in a workmanlike 

manner.

c. Base Boards: Install 3 1⁄4 colonial base board throughout; and paint color white use low 

VOC paint.

$_________________

d. Steam Clean: Clean/steam clean floors and grout and repair grout as seal as needed 

throughout the house (not including bedrooms). Pressure wash ground at exterior areas and 

garage.

$_________________

15. APPLIANCES

a. Range/Oven and Hood Vent: Install a new -ENERGY-EFFICIENT- (CFM≥=100) 30” four 

burner electric range/oven with clock and timer and self-cleaning feature. Install a 30” electrical 

range hood with light and two speed fan (Sears Kenmore or equal quality). Vent must be ducted 

to exterior and properly sealed.

b. Refrigerator: Install brand new refrigerator of 21 cu ft ENERGY STAR® (Maytag, LG 

brand or equal). Model shall have top-mounted freezer and be color white.

c. Dishwasher: Install a brand new ENERGY STAR® dishwasher compact size model (Maytag, 

LG brand or equal) color white.

$_________________

16. MISCELLANEOUS

a. Wire shelving: Install wire shelving in all closets and pantry.

b. Window treatments: Install vertical window treatments (blinds w/ no lead components in its 

manufacturing) to all windows in living areas with slat width of 3.5 –inch minimum. (Color 

shall be white, egg shell or beige, owner to select) If vertical treatments are not available for 
90

the window sizes, horizontal treatments may be installed with prior approval by the Housing 

and Real Estate Division.

c. Mail box/ house numbers & door bell

$_________________

d. A/C cage: Install an A/C condensing unit enclosure cage made of heavy duty galvanized steel. 

Cage shall be properly anchored to a/c pad and shall have removable panel(s) for service access 

including a security lock. Housing and Real Estate Division must approve the cage and lock type 

prior to installation. 

$_________________

17. LANDSCAPING

a. Site shall be graded and sloped to drain away from the foundation as necessary without 

impacting any adjacent properties as necessary. Remove any existing plantings that are closer 

than 30 inches from the house and any dead shrubs around the house. Trim existing trees (if any) 

in the property to stay away from the structure.

The proposal for this item is of $2,000.00 which should include Bahia grass and plants to be 

determined by Housing & Real Estate Staff. New landscape should be planted 30 inches away 

from the building foundation. Location of plants will be determined by Housing & Real Estate 

Staff. Additional landscape resources can be found at www.sjr.state.fl.us/ . Or at the Guide to 

Environmentally Landscaping: Florida Yards and Neighborhoods Handbook. All landscape must 

be Florida friendly, native or adapted with low watering needs. Contractor is responsible for 

providing temporary irrigation to new plantings until they are established, ensure that temp 

irrigation does not spray the exterior of the house. Contact Diana Giraldo at (239)321-7926 for 

additional information regarding this item. 

$____2,000_______

18. ASBESTOS

a. Asbestos Survey: A limited Asbestos Survey for renovation purposes was conducted on 

____________. The Asbestos Analysis of this report indicates Asbestos Containing Materials 

_______. Adequate protection for employees from airborne asbestos fibers must be maintained 

in the workplace.

This project is subject to the Florida Department of Environmental Protection (FDEP) and the 

National Emission Standards for Hazardous Air Pollutants (NESHAP). Please refer to the 

attached limited Asbestos Survey for required asbestos removal. 

$________________

19. TERMITE INSPECTION

a. A licensed termite inspector has inspected the existing property for termite infestation and 

damage. Please refer to attached termite report dated ______________ and complete 

recommendations.

$________________
91

20. MOLD INSPECTION

a. A licensed mold inspection was conducted on this site on ____________. The mold report 

indicates the presence of mold WAS/WAS NOT found at this property (please refer to inspection 

report). Complete recommendations as provided on the report.

$________________

21. CHINESE DRYWALL INSPECTION 

A visual Chinese drywall inspection was performed on _________ (please refer to attached 

report). The Inspection report indicates NO/YES Chinese drywall was present. 

$_________________

22. PERMITS, FEES, ENG, ETC 

a. Permits: Obtain all necessary permits, fees and all necessary documents (Concurrency 

Requirements, etc.) from Federal, State and Local governmental agencies prior to 

commencement of any work. Furnish copies of permits to City prior to commencement of any 

work. Permits will cover all work to be completed under schedule of work.

$_________________

WORK EXPECTED TO BE COMPLETED IN _______ DAYS.

Exhibit “A” Total $_____________ (if 

applicable)

Exhibit “B” Total $_____________

Proposal Total $___________

___________________________ ______________

Authorized Contractor Signature Date
92

NOTE: All materials used, to be of standard grade or better according to current building codes, 

unless otherwise indicated. Contractor will be responsible for all of the physical measurements 

(e.g. sewer laterals, distances, etc.) that have to be taken or found to perform the work.

Under no circumstances shall the contractor furnish or apply any paint materials containing a 

lead base, lead dryer, or lead tinting colors. Contractor to be responsible for clean up after 

rehabilitation jobs.

For homeowner occupied projects

I, the undersigned, have had the above listed Contract Specifications explained to me and fully 

understand said specifications. I agree that these specifications constitute all of the work to be 

done on the property and authorize The City of Fort Myers personnel to incorporate these 

specifications into a Contract Bid Package.

___________________________________ ________________

Owner Date

___________________________________ ________________

Owner Date
DOE/GO-102013-4316 ▪ December 2013

Printed with a renewable-source ink on paper containing at 

least 50% wastepaper, including 10% post-consumer waste.