The following is a draft U.S. Department of Energy interpretative rule, which sets out the 

Department’s views on the definition of “showerhead” in 10 CFR § 430.2. This draft 

interpretative rule represents the Department’s interpretation of its existing regulations and is 

exempt from the notice and comment requirements of the Administrative Procedure Act. See 5 

U.S.C. § 553(b)(A). Nevertheless, given that the Department has not previously expressed its 

views on this definition, we are interested in receiving feedback from the public on the 

interpretation set forth below. Therefore, the Department is accepting comments and suggestions 

from the public until June 6. Comments and suggestions should be provided in WordPerfect, 

Microsoft Word, PDF, or text file format by sending an email to 

Showerhead_Guidance_Comments@hq.doe.gov. At the end of the comment period, this draft 

interpretative rule may be adopted, revised or withdrawn. 

DEFINITION OF “SHOWERHEAD” 

Last Day for Comments: June 6, 2010 

The Energy Policy and Conservation Act of 1975, as amended, (EPCA) sets the 

maximum water use allowed for any showerhead manufactured after January 1, 1994, at 2.5 

gallons per minute (gpm) when measured at a flowing water pressure of 80 pounds per square 

inch (psi). 42 U.S.C. 6295(j)(1); accord 10 CFR 430.32(p). EPCA broadly defines a 

showerhead as “any showerhead (including a handheld showerhead), except a safety shower 

showerhead.” 42 U.S.C. 6291(31)(D); accord 10 CFR 430.2. 

While most people have a general conception of what a showerhead is (see generally, the 

definition of “showerhead” on Merriam-Webster.com: “a fixture for directing the spray of water 

in a bathroom shower”), the design of showerheads has diversified into a myriad of products 

being marketed under names such as waterfalls, shower towers, rainheads and shower systems. 

The Department has become aware of uncertainty in how the EPCA definition and standard 

applies to such products. Therefore, the Department issues this guidance to make clear to all 
 

                                                          

                                   

stakeholders its interpretation of the definition of “showerhead” with respect to EPCA’s 

maximum water use requirement. 

EPCA specified that the test procedures applicable to showerheads are those set forth 

under the American Society of Mechanical Engineers standard ASME/ANSI A112.18.1M. 

42 U.S.C. 6293(b)(7). DOE adopted ASME/ANSI Standard A112.18.1M-1996 (Standard), 

which was the most current version of the standard at the time the final rule was adopted. See 

63 FR 13308; 10 CFR part 430, subpart B, appendix S. The test procedures require that a 

showerhead’s water use be measured with all standard accessories attached and all adjustable 

flow settings set at maximum. See Standard sections 4 (“accessory” includes “hand held shower 

assemblies”); 6.5.1(a) (“For testing [of] maximum flow rates . . . standard accessories shall be 

included.”); 6.5.1(b) (“All fittings shall be tested at the maximum flow setting, if adjustable 

. . . .”). “[W]ater use” is “the quantity of water flowing through a showerhead, faucet, water 

closet, or urinal at point of use, determined in accordance with test procedures under section 

6293 of this title.” 42 U.S.C. 6291(31)(A); accord 10 CFR 430.2. 

The Department interprets EPCA, its implementing regulations, and its test procedures to 

mean that a showerhead is any plumbing fitting1

 that is designed to direct water onto a bather. 

The Department believes Congress intended to include all manner of showerheads when it set the 

maximum water use allowed under EPCA. Neither the definitions nor the test procedures cited 

above treat a showerhead differently based upon the shape, size, placement, or number of sprays 

or openings that it may have. In addition, the test procedure referenced in the statute and 

incorporated by reference in the Code of Federal Regulations contemplates that the regulated 

showerhead fitting may have additional “accessory” water outlets and specifies that all standard 

accessories must be attached and set at maximum flow during testing. Therefore, the 

1 The Standard defines a fitting as a “device designed to control and/or guide the flow of water.”
Department concludes that a showerhead may incorporate one or more sprays, nozzles or 

openings. All components that are supplied standard together and function from one inlet (i.e., 

after the mixing valve) form a single showerhead for purposes of the maximum water use 

standards under 42 U.S.C. 6295(j)(1). 

Accordingly, the Department will find a showerhead to be noncompliant with EPCA’s 

maximum water use standard if the showerhead’s standard components, operating in their 

maximum design flow configuration, taken together use in excess of 2.5 gpm when flowing at 80 

psi, even if each component individually does not exceed 2.5 gpm. This approach furthers the 

goal of EPCA to “conserve water by improving the water efficiency” of showerheads. 42 U.S.C. 

6201(8). The contrary approach would effectively abrogate EPCA by permitting showerheads to 

use water in excess of 2.5 gpm at 80 psi. Going forward, the Department will exercise discretion 

in applying its enforcement authority to account for manufacturers' production decisions that 

may have been based on a misunderstanding of the definition of the term ‘showerhead.’