CHAPTER 1. INTRODUCTION

TABLE OF CONTENTS

**1.1 PURPOSE**  **OF THE**  **DOCUMENT**

**................................................................................. 1­1** 

**1.2 OVERVIEW**  **OF ASHRAE**  **STANDARD 90.1**  **COMMERCIAL EQUIPMENT** 

**ENERGY CONSERVATION**  **STANDARDS**

**................................................................ 1­1** 

**1.3 OVERVIEW**  **OF THE**  **ENERGY CONSERVATION**  **STANDARDS AND**  **ASHRAE**

**STANDARD 90.1­2007**  **FOR COMMERCIAL**  **PACKAGED BOILERS** 

**..................... 1­2** 

**1.4 STRUCTURE**  **OF THE**  **DOCUMENT............................................................................ 1­3** 

**1­ i** CHAPTER 1. INTRODUCTION

1.1 PURPOSE OF THE DOCUMENT

**This technical**  **support document**  **(TSD) is**  **a stand­alone**  **report that**  **documents the** 

**technical analyses**  **and results**  **in support**  **of the**  **information presented**  **in the**  **final rule**  **notice for** 

**establishing amended**  **energy conservation**  **standards for**  **certain commercial**  **and industrial** 

**equipment covered**  **by the**  **American National**  **Standards Institute**  **(ANSI)/ American**  **Society of** 

**Heating, Refrigerating**  **and Air­Conditioning**  **Engineers (ASHRAE)**  **/Illuminating Engineering** 

**Society of**  **North America**  **(IESNA) Standard**  **90.1­2007** Energy Standard for Buildings Except

Low­Rise Residential Buildings **(ASHRAE Standard**  **90.1­2007), a**  **including commercial** 

**packaged boilers.** 

1.2 OVERVIEW OF ASHRAE STANDARD 90.1 COMMERCIAL EQUIPMENT

ENERGY CONSERVATION STANDARDS

**Title III**  **of the**  **Energy Policy**  **and Conservation**  **Act (EPCA),**  **Pub. L.**  **94­163, as** 

**amended, sets**  **forth a**  **variety of**  **provisions concerning**  **energy efficiency.**  **Part A­1**  **of Title**  **III**

**created the**  **energy conservation**  **program for**  **certain industrial**  **equipment. (42**  **U.S.C. 6311­6317)** 

**In general,**  **this program**  **addresses the**  **energy efficiency**  **of certain**  **types of**  **commercial and** 

**industrial equipment.**  **Part A­1**  **specifically includes**  **definitions (42**  **U.S.C. 6311),**  **energy**

**conservation standards**  **(42 U.S.C.**  **6313), test**  **procedures (42**  **U.S.C. 6314),**  **labeling provisions** 

**(42 U.S.C.**  **6315), and**  **the authority**  **to require**  **information and**  **reports from**  **manufacturers (42** 

**U.S.C. 6316).** 

**EPCA contains**  **mandatory energy**  **conservation standards**  **for commercial**  **heating, air** 

**conditioning, and**  **water­heating equipment.**  **(42 U.S.C.**  **6313(a)) Specifically,**  **the statute**  **sets**

**standards for**  **small, large,**  **and very**  **large commercial**  **package air­conditioning**  **and heating** 

**equipment, packaged**  **terminal air**  **conditioners (PTACs)**  **and packaged**  **terminal heat**  **pumps**

**(PTHPs), warm**  **air furnaces,**  **packaged boilers,**  **storage water**  **heaters, and**  **unfired hot**  **water**

**storage tanks.**  **Id. In**  **doing so,**  **EPCA established**  **Federal energy**  **conservation standards**  **that**

**generally correspond**  **to the**  **levels in**  **ASHRAE Standard**  **90.1, as**  **in effect**  **on October**  **24, 1992** 

**(i.e., ASHRAE**  **Standard 90.1­1989),**  **for each**  **type of**  **covered equipment**  **listed in**  **42 U.S.C.** 

**6313(a).**

**In acknowledgement**  **of technological**  **changes that**  **yield energy**  **efficiency benefits,** 

**Congress further**  **directed DOE**  **through EPCA**  **to consider**  **amending the**  **existing Federal**  **energy**

**conservation standard**  **for each**  **type of**  **equipment listed,**  **each time**  **ASHRAE Standard**  **90.1 is** 

**amended with**  **respect to**  **such equipment.**  **(42 U.S.C.**  **6313(a)(6)(A)) For**  **each type**  **of equipment,** 

**EPCA directs**  **that if**  **ASHRAE Standard**  **90.1 is**  **amended, DOE**  **must adopt**  **amended standards**  **at**

**the new**  **efficiency level**  **in ASHRAE**  **Standard 90.1,**  **unless clear**  **and convincing**  **evidence**

**supports a**  **determination that**  **adoption of**  **a more**  **stringent level**  **would produce**  **significant**

**additional energy**  **savings and**  **be technologically**  **feasible and**  **economically justified.**  **(42 U.S.C.** 

**a For**  **more information**  **see www.ashrae.org** 

**1­1 6313(a)(6)(A)(ii))**  **If DOE**  **decides to**  **adopt as**  **a national**  **standard the**  **efficiency levels**  **specified**

**in the**  **amended ASHRAE**  **Standard 90.1,**  **DOE must**  **establish such**  **standard not**  **later than**  **18**

**months after**  **publication of**  **the amended**  **industry standard.**  **(42 U.S.C.**  **6313(a)(6)(A)(ii)(I))**

**However, if**  **DOE determines**  **that a**  **more­stringent standard**  **is justified**  **under 42**  **U.S.C.**

**6313(a)(6)(A)(ii)(II), then**  **it must**  **establish such**  **more­stringent standard**  **not later**  **than 30** 

**months after**  **publication of**  **the amended**  **ASHRAE Standard**  **90.1. (42**  **U.S.C. 6313(a)(6)(B))** 

**DOE considers**  **stakeholder participation**  **to be**  **a very**  **important part**  **of the**  **process for** 

**setting energy**  **conservation standards.**  **DOE actively**  **encourages the**  **participation and**  **interaction**

**of all**  **stakeholders during**  **the comment**  **period in**  **each stage**  **of the**  **rulemaking. During**  **comment**

**periods, interactions**  **among stakeholders**  **provide a**  **balanced discussion**  **of the**  **information that**  **is**

**required for**  **the standards**  **rulemaking.**

1.3 OVERVIEW OF THE ENERGY CONSERVATION STANDARDS AND ASHRAE

STANDARD 90.1­2007 FOR COMMERCIAL PACKAGED BOILERS

**EPCA defines**  **a “packaged**  **boiler” as**  **“a boiler**  **that is**  **shipped complete**  **with heating** 

**equipment, mechanical**  **draft equipment,**  **and automatic**  **controls; usually**  **shipped in**  **one or**  **more**

**sections.” (42**  **U.S.C. 6311(11)(B))**  **In its**  **regulations, DOE**  **further refined**  **the “packaged**  **boiler”**

**definition to**  **exclude a**  **boiler that**  **is custom**  **designed and**  **field constructed.**  **10 CFR**  **431.102.**

**Additionally, if**  **the boiler**  **is shipped**  **in more**  **than one**  **section, the**  **sections may**  **be produced**  **by**

**more than**  **one manufacturer,**  **and may**  **be originated**  **or shipped**  **at different**  **times and**  **from more** 

**than one**  **location. Id.** 

**The current**  **Federal energy**  **conservation standards**  **separate commercial**  **packaged boilers** 

**only by**  **the type**  **of fuel**  **used by**  **the boiler,**  **creating two**  **equipment classes:**  **(1) gas­fired,**  **and (2)** 

**oil­fired. (42**  **U.S.C. 6313(a)(4)(C)­(D);**  **10 CFR**  **431.87) As**  **set forth**  **below, EPCA**  **specified**

**minimum Federal**  **standards for**  **commercial packaged**  **boilers manufactured**  **on or**  **after January** 

**1, 1994.**  **Id. The**  **minimum combustion**  **efficiency at**  **the maximum**  **rated capacity**  **of a**  **gas­fired**

**packaged boiler**  **with capacity**  **of 300,000**  **Btu/h (British**  **thermal units**  **per hour)**  **(300 kBtu/h)**  **or**

**more must**  **be 80**  **percent. (42**  **U.S.C. 6313(a)(4)(C);**  **10 CFR**  **431.87(a)) The**  **minimum**

**combustion efficiency**  **at the**  **maximum rated**  **capacity of**  **an oil­fired**  **packaged boiler**  **with**

**capacity of**  **300,000 Btu/h**  **or more**  **must be**  **83 percent.**  **(42 U.S.C.**  **6313 (a)(4)(D);**  **10 CFR** 

**431.87(b))**

**On January**  **9, 2008,**  **the ASHRAE**  **Board of**  **Directors gave**  **final approval**  **to ASHRAE** 

**Standard 90.1­2007,**  **which ASHRAE**  **officially released**  **on January**  **10, 2008.**  **ASHRAE**

**Standard 90.1­2007**  **addresses efficiency**  **levels for**  **several equipment**  **classes of**  **commercial**

**packaged boilers.**  **The amended**  **ASHRAE Standard**  **90.1 (ASHRAE**  **Standard 90.1­2007)** 

**revised the**  **efficiency levels**  **for commercial**  **packaged boilers**  **specified in**  **ASHRAE Standard** 

**90.1­2007. ASHRAE**  **Standard 90.1­2007**  **divides boilers**  **into 10**  **equipment classes**  **(in place**  **of**

**the two**  **specified in**  **EPCA), and**  **changes the**  **efficiency metric**  **from combustion**  **efficiency to** 

**thermal efficiency**  **for 8**  **of the**  **10 equipment**  **classes.**

**On July**  **16, 2008,**  **DOE published**  **a notice**  **of data**  **availability (July**  **2008 NODA)**  **and**

**request for**  **public comment**  **in the**  **Federal Register**  **as a**  **preliminary step**  **pursuant to**  **EPCA’s**

**1­2 requirements**  **for DOE**  **to consider**  **amended energy**  **conservation standards**  **for certain**  **types of** 

**commercial equipment**  **covered by**  **ASHRAE Standard**  **90.1. 73**  **FR 40770**  **(July 16,**  **2008).**

**Specifically, the**  **July 2008**  **NODA presented**  **for public**  **comment DOE’s**  **analysis of**  **the potential** 

**energy savings**  **estimates for**  **amended national**  **energy conservation**  **standards for**  **types of** 

**commercial equipment**  **based on:**  **(1) the**  **modified efficiency**  **levels contained**  **within ASHRAE** 

**Standard 90.1­2007;**  **and (2)**  **more­stringent efficiency**  **levels. Id.**  **at 40772.**  **DOE described**  **these**

**analyses and**  **preliminary conclusions**  **and sought**  **input from**  **interested parties,**  **including the** 

**submission of**  **data and**  **other relevant**  **information. Id.** 

**After receiving**  **public comments**  **from interested**  **parties on**  **the July**  **2008 NODA,**  **DOE**

**revised its**  **NODA analyses**  **for commercial**  **packaged boilers**  **and summarized**  **the assumptions** 

**and presented**  **the results**  **in a**  **notice of**  **proposed rulemaking**  **(NOPR) published**  **on March**  **20,**

**2009 (March**  **2009 NOPR).**  **74 FR**  **12000. DOE**  **detailed the**  **NOPR analyses**  **in the**  **accompanying**

**NOPR TSD.**  **DOE conducted**  **several new**  **analyses in**  **preparation for**  **the NOPR**  **for commercial** 

**packaged boilers.**  **DOE presented**  **all analyses**  **(both the**  **updated NODA**  **analyses, and**  **the new** 

**analyses performed**  **for the**  **NOPR) for**  **comment from**  **interested parties**  **at the**  **public meeting** 

**held on**  **April 7,**  **2009, and**  **during the**  **written comment**  **period.**

**In response**  **to the**  **comments received**  **regarding the**  **NOPR analyses,**  **DOE further**  **refined**

**the analyses**  **for the**  **final rule.**  **A list**  **of the**  **rulemaking analyses**  **performed in**  **preparation for**  **the**

**final rule**  **and the**  **corresponding chapter**  **number is**  **presented in**  **the next**  **section.**

1.4 STRUCTURE OF THE DOCUMENT

**This final**  **rule TSD**  **outlines the**  **analytical approaches**  **used in**  **this rulemaking.**  **The TSD** 

**consists of**  **eight chapters**  **and four**  **appendices.**

**Chapter 1**  **Introduction: provides**  **an overview**  **of the**  **appliance standards**  **program**

**and how**  **it applies**  **to the**  **ASHRAE equipment**  **rulemaking, and**  **outlines**

**the structure**  **of the**  **document.**

**Chapter 2**  **Market Assessment:**  **characterizes the**  **commercial packaged**  **boiler**

**market.**

**Chapter 3**  **Engineering Analysis:**  **discusses the**  **methods used**  **for developing**  **the**

**relationship incremental**  **contractor cost**  **and increased**  **efficiency for** 

**commercial packaged**  **boilers.**

**Chapter 4**  **Energy Use**  **Characterization: discusses**  **the process**  **used for**  **generating**

**energy use**  **estimates of**  **commercial packaged**  **boilers for**  **a variety**  **of**

**equipment classes,**  **climate locations,**  **and potential**  **amended standard** 

**levels.**

**Chapter 5**  **Life­Cycle Cost**  **and Payback**  **Period Analyses:**  **discusses the**  **economic**

**effects of**  **standards on**  **commercial customers**  **and users**  **of the**  **equipment**

**and compares**  **the LCC**  **and PBP**  **of equipment**  **with and**  **without higher** 

**energy conservation**  **standards.**

**1­3 Chapter**  **6 Shipments**  **Analysis: discusses**  **the methods**  **used for**  **forecasting**

**shipments with**  **and without**  **higher energy**  **conservation standards,** 

**including how**  **equipment purchase**  **decisions are**  **economically influenced** 

**and modeled**  **with econometric**  **equations.**

**Chapter 7**  **National Impact**  **Analysis: discusses**  **the methods**  **used for**  **forecasting**

**national energy**  **consumption and**  **national economic**  **impacts based**  **on**

**annual equipment**  **shipments and**  **estimates of**  **future equipment**  **efficiency**

**distributions in**  **the absence**  **and presence**  **of higher**  **energy conservation** 

**standards.**

**Chapter 8**  **Environmental Assessment:**  **discusses the**  **environmental effects**  **of**

**amended energy**  **conservation standards,**  **including the**  **impact on** 

**emissions of**  **three pollutants:**  **sulfur dioxide**  **(SO 2**  **), nitrogen**  **oxides (NO**  **X ),** 

**and carbon**  **dioxide (CO**  **2 ).** 

**App. 4­A**  **Annual Efficiency**  **Calculation for**  **Condensing Boilers:**  **provides**

**calculations used**  **to estimate**  **the seasonal**  **energy performance**  **of a** 

**condensing boiler**  **when applied**  **to a**  **typical existing**  **building.**

**App. 5­A**  **Detailed Life­Cycle**  **Cost Output:**  **shows the**  **detailed life­cycle**  **results**

**obtained from**  **running each**  **class of**  **commercial boiler**  **through the**  **LCC**

**analysis for**  **the AEO**  **2008 reference**  **case fuel**  **price scenario.** 

**App. 7­A**  **Detailed National**  **Energy Savings**  **and National**  **Impacts Analysis**  **Output:**

**contains detailed**  **output results**  **from the**  **national energy**  **savings and** 

**national economic**  **impact spreadsheet**  **model.**

**App. 7­B**  **Impacts of**  **Standards on**  **Natural Gas**  **Prices: summarizes**  **the estimated** 

**impacts of**  **amended commercial**  **packaged boiler**  **standards on**  **natural gas** 

**prices.**

**1­4**