Federal Register / Vol. 90, No. 10 / Thursday, January 16, 2025 / Rules and Regulations 4589 

1All references to EPCA in this document refer 

to the statute as amended through the Energy Act 

of 2020, Public Law 116–260 (Dec. 27, 2020), which 

reflect the last statutory amendments that impact 

Parts A and A–1 of EPCA. 

2For editorial reasons, upon codification in the 

U.S. Code, Part B was redesignated Part A. 

§ 245.1(c)(8)(iii)(F) of this chapter shall 

rest with the petitioner. 

* * * * * 

Christina E. McDonald, 

Associate General Counsel for Regulatory 

Affairs, U.S. Department of Homeland 

Security. 

[FR Doc. 2025–01031 Filed 1–15–25; 8:45 am] 

BILLING CODE 9111–97–P 

DEPARTMENT OF ENERGY 

10 CFR Part 430 

[EERE–2024–BT–TP–0010] 

RIN 1904–AB99 

Energy Conservation Program: Test 

Procedure for General Service Lamps 

AGENCY: Office of Energy Efficiency and 

Renewable Energy, Department of 

Energy. 

ACTION: Final rule. 

SUMMARY: The U.S. Department of 

Energy (‘‘DOE’’) is adopting 

clarifications to the test procedures for 

general service lamps (‘‘GSLs’’) located 

in appendix W, appendix BB and 

appendix DD. Specifically, DOE is 

clarifying instructions that GSLs must 

not be tested as colored lamps and that 

lamps with additional components that 

do not affect light output must be turned 

off during testing. The clarifications also 

specify that non-integrated lamps be 

tested with a fluorescent lamp ballast, 

high intensity discharge (‘‘HID’’) lamp 

ballast or external light-emitting diode 

(‘‘LED’’) driver selected based on 

compatibility lists and availability; and 

provide specifications regarding the 

starting method, ballast factor, and 

number of lamps. This rulemaking is 

limited in scope and is providing 

clarifications to the current test 

procedures that are required for 

certification of compliance with existing 

applicable GSL energy conservation 

standards. Further, this rulemaking does 

not satisfy the Energy Policy and 

Conservation Act (‘‘EPCA’’) requirement 

that, at least once every 7 years, DOE 

review the test procedures for GSLs. 

DATES: The effective date of this rule is 

February 18, 2025. The amendments 

will be mandatory for product testing 

starting July 15, 2025. The incorporation 

by reference of certain material listed in 

the rule was approved by the Director of 

the Federal Register as of November 21, 

2016. 

ADDRESSES: The docket, which includes 

Federal Register notices, comments, 

and other supporting documents/ 

materials, is available for review at 

www.regulations.gov. All documents in 

the docket are listed in the 

www.regulations.gov index. However, 

not all documents listed in the index 

may be publicly available, such as those 

containing information that is exempt 

from public disclosure. 

A link to the docket web page can be 

found at www.regulations.gov/docket/ 

EERE-2024-BT-TP-0010. The docket 

web page contains instructions on how 

to access all documents, including 

public comments, in the docket. 

For further information on how to 

review the docket contact the Appliance 

and Equipment Standards Program staff 

at (202) 287–1445 or by email: 

ApplianceStandardsQuestions@

ee.doe.gov. 

FOR FURTHER INFORMATION CONTACT: 

Dr. Jordan Wilkerson, U.S. 

Department of Energy, Office of Energy 

Efficiency and Renewable Energy, 

Building Technologies Office, EE–5B, 

1000 Independence Avenue SW, 

Washington, DC 20585–0121. 

Telephone: (202) 287–1445. Email: 

ApplianceStandardsQuestions@

ee.doe.gov. 

Ms. Kiana Daw, U.S. Department of 

Energy, Office of the General Counsel, 

GC–33, 1000 Independence Avenue SW, 

Washington, DC 20585–0121. 

Telephone: (202) 586–4798. Email: 

kiana.daw@hq.doe.gov. 

Table of Contents 

I. Authority and Background 

A. Authority 

B. Background 

II. Synopsis of the Final Rule 

III. Discussion 

A. Scope of Applicability 

B. Clarifications to Appendix W, Appendix 

BB, and Appendix DD 

1. Lamps With Multiple Modes 

2. Lamps With Non-Illumination 

Components 

3. Non-Integrated Lamps 

C. Test Procedure Costs 

D. Effective and Compliance Dates 

IV. Procedural Issues and Regulatory Review 

A. Review Under Executive Orders 12866, 

13563, and 14094 

B. Review Under the Regulatory Flexibility 

Act 

C. Review Under the Paperwork Reduction 

Act of 1995 

D. Review Under the National 

Environmental Policy Act of 1969 

E. Review Under Executive Order 13132 

F. Review Under Executive Order 12988 

G. Review Under the Unfunded Mandates 

Reform Act of 1995 

H. Review Under the Treasury and General 

Government Appropriations Act, 1999 

I. Review Under Executive Order 12630 

J. Review Under Treasury and General 

Government Appropriations Act, 2001 

K. Review Under Executive Order 13211 

L. Review Under Section 32 of the Federal 

Energy Administration Act of 1974 

M. Congressional Notification 

N. Description of Materials Incorporated by 

Reference 

V. Approval of the Office of the Secretary 

I. Authority and Background 

GSLs are included in the list of 

‘‘covered products’’ for which the DOE 

is authorized to establish and amend 

energy conservation standards and test 

procedures. (42 U.S.C. 6291(30)(BB); 42 

U.S.C. 6291(30)(DD); 42 U.S.C. 

6295(i)(6)) GSLs include but are not 

limited to general service incandescent 

lamps (‘‘GSILs’’), incandescent reflector 

lamps (‘‘IRLs’’), compact fluorescent 

lamps (‘‘CFLs’’), and integrated LED 

lamps. DOE’s test procedure for GSILs 

and IRLs are set forth at 10 CFR part 

430, subpart B, appendix R (‘‘appendix 

R’’). DOE’s test procedure for CFLs is set 

forth at 10 CFR part 430, subpart B, 

appendix W (‘‘appendix W’’). DOE’s test 

procedure for integrated LED lamps is 

set forth at 10 CFR part 430, subpart B, 

appendix BB (‘‘appendix BB’’). DOE’s 

test procedure for GSLs that are not 

GSILs, IRLs, CFLs, or integrated LED 

lamps is set forth at 10 CFR part 430, 

subpart B, appendix DD (‘‘appendix 

DD’’). The following sections discuss 

DOE’s authority to establish and amend 

test procedures for GSLs and relevant 

background information regarding 

DOE’s consideration of test procedures 

for this product. 

A. Authority 

The Energy Policy and Conservation 

Act, Public Law 94–163, as amended 

(‘‘EPCA’’),1 authorizes DOE to regulate 

the energy efficiency of a number of 

consumer products and certain 

industrial equipment. (42 U.S.C. 6291– 

6317, as codified) Title III, Part B of 

EPCA 2 established the Energy 

Conservation Program for Consumer 

Products Other Than Automobiles, 

which sets forth a variety of provisions 

designed to improve energy efficiency. 

These products include GSLs, the 

subject of this document. (42 U.S.C. 

6295(6)) 

The energy conservation program 

under EPCA consists essentially of four 

parts: (1) testing, (2) labeling, (3) Federal 

energy conservation standards, and (4) 

certification and enforcement 

procedures. Relevant provisions of 

EPCA specifically include definitions 

(42 U.S.C. 6291), test procedures (42 

U.S.C. 6293), labeling provisions (42 


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4590 Federal Register / Vol. 90, No. 10 / Thursday, January 16, 2025 / Rules and Regulations 

3 IEC 62301, Household electrical appliances— 

Measurement of standby power (Edition 2.0, 2011– 

01). 

4 IEC 62087, Audio, video and related 

equipment—Methods of measurement for power 

consumption (Edition 1.0, Parts 1–6: 2015, Part 7: 

2018). 

5See https://www.energy.gov/sites/default/files/ 

2022-04/GSL_EnforcementPolicy_4_25_22.pdf. 

6See https://www1.eere.energy.gov/buildings/ 

appliance_standards/pdfs/GSL_Cert_Guidance_

Final.pdf. 

U.S.C. 6294), energy conservation 

standards (42 U.S.C. 6295), and the 

authority to require information and 

reports from manufacturers (42 U.S.C. 

6296). 

The Federal testing requirements 

consist of test procedures that 

manufacturers of covered products must 

use as the basis for: (1) certifying to DOE 

that their products comply with the 

applicable energy conservation 

standards adopted under EPCA (42 

U.S.C. 6295(s)), and (2) making other 

representations about the efficiency of 

those products (42 U.S.C. 6293(c)). 

Similarly, DOE must use these test 

procedures to determine whether the 

products comply with any relevant 

standards promulgated under EPCA. (42 

U.S.C. 6295(s)) 

Federal energy efficiency 

requirements for covered products 

established under EPCA generally 

supersede State laws and regulations 

concerning energy conservation testing, 

labeling, and standards. (42 U.S.C. 6297) 

DOE may, however, grant waivers of 

Federal preemption for particular State 

laws or regulations, in accordance with 

the procedures and other provisions of 

EPCA. (42 U.S.C. 6297(d)) 

Under 42 U.S.C. 6293, EPCA sets forth 

the criteria and procedures DOE must 

follow when prescribing or amending 

test procedures for covered products. 

EPCA requires that any test procedures 

prescribed or amended under this 

section shall be reasonably designed to 

produce test results which measure 

energy efficiency, energy use or 

estimated annual operating cost of a 

covered product during a representative 

average use cycle (as determined by the 

Secretary) or period of use and shall not 

be unduly burdensome to conduct. (42 

U.S.C. 6293(b)(3)) 

EPCA also requires that, at least once 

every 7 years, DOE evaluate test 

procedures for each type of covered 

product, including GSLs, to determine 

whether amended test procedures 

would more accurately or fully comply 

with the requirements for the test 

procedures to not be unduly 

burdensome to conduct and be 

reasonably designed to produce test 

results that reflect energy efficiency, 

energy use, and estimated operating 

costs during a representative average 

use cycle or period of use. (42 U.S.C. 

6293(b)(1)(A)) 

If the Secretary determines, on her 

own behalf or in response to a petition 

by any interested person, that a test 

procedure should be prescribed or 

amended, the Secretary shall promptly 

publish in the Federal Register 

proposed test procedures and afford 

interested persons an opportunity to 

present oral and written data, views, 

and arguments with respect to such 

procedures. The comment period on a 

proposed rule to amend a test procedure 

shall be at least 60 days and may not 

exceed 270 days. In prescribing or 

amending a test procedure, the 

Secretary shall take into account such 

information as the Secretary determines 

relevant to such procedure, including 

technological developments relating to 

energy use or energy efficiency of the 

type (or class) of covered products 

involved. (42 U.S.C. 6293(b)(2)). If DOE 

determines that test procedure revisions 

are not appropriate, DOE must publish 

its determination not to amend the test 

procedures. 

In addition, EPCA requires that DOE 

amend its test procedures for all covered 

products to integrate measures of 

standby mode and off mode energy 

consumption into the overall energy 

efficiency, energy consumption, or other 

energy descriptor, unless the current 

test procedure already incorporates the 

standby mode and off mode energy 

consumption, or if such integration is 

technically infeasible. (42 U.S.C. 

6295(gg)(2)(A)(i)–(ii)) If an integrated 

test procedure is technically infeasible, 

DOE must prescribe separate standby 

mode and off mode energy use test 

procedures for the covered product, if a 

separate test is technically feasible. (42 

U.S.C. 6295(gg)(2)(A)(ii)) Any such 

amendment must consider the most 

current versions of the International 

Electrotechnical Commission (‘‘IEC’’) 

Standard 62301 3 and IEC Standard 

62087 4 as applicable. (42 U.S.C. 

6295(gg)(2)(A)) 

In this final rule, DOE is adopting 

clarifications to the test procedures for 

GSLs to address specific issues and to 

make minor clarifications to the current 

test procedures that are required for 

certification of compliance with 

applicable GSL energy conservation 

standards. Further, this final rule does 

not satisfy the EPCA requirement that, 

at least once every 7 years, DOE review 

the test procedures for GSLs. (42 U.S.C. 

6293(b)(1)(A)) 

B. Background 

DOE’s existing test procedures for 

GSLs appear at 10 CFR part 430, subpart 

B, appendix R for GSILs and IRLs, 

appendix W for CFLs, appendix BB for 

integrated LED lamps and appendix DD 

for all GSLs that are not GSILs, IRLs, 

CFLs, or integrated LED lamps. In this 

final rule, DOE is adopting clarifications 

to appendix W, appendix BB, and 

appendix DD. 

On July 1, 2016, DOE published a 

final rule adopting a test procedure for 

integrated LED lamps in appendix BB. 

81 FR 43404. On August 19, 2016, DOE 

published a final rule amending test 

procedures for medium base CFLs and 

adopting test procedures for new 

metrics for all CFLs including hybrid 

CFLs and CFLs with bases other than 

medium screw base in appendix W. 81 

FR 59386. On October 20, 2016, DOE 

published a final rule adopting new test 

procedures for GSLs that are not 

integrated LED lamps, CFLs, or GSILs in 

appendix DD. 81 FR 72493. 

On May 9, 2022, DOE published a 

final rule codifying the 45 lumens per 

watts (‘‘lm/W’’) backstop requirement 

for GSLs that Congress prescribed in 

amendments to EPCA. 87 FR 27439. 

DOE issued a phased-in enforcement 

policy for the 45 lm/W backstop 

requirement.5 On October 14, 2022, 

DOE issued a guidance document 6

stating that manufacturers and 

importers are not currently required to 

certify compliance to the 45 lm/W 

backstop requirement and that DOE may 

address the certification requirements 

for the backstop in a separate, future 

rulemaking. On October 9, 2024, DOE 

published a final rule stating because 

DOE has reached the full enforcement 

phase of the enforcement policy, 

manufacturers and importers must 

certify compliance to the backstop 

requirement for GSLs. 89 FR 81994, 

82052–82053. 

On January 11, 2023, DOE published 

a notice of proposed rulemaking 

(‘‘January 2023 NOPR’’) proposing 

amended energy conservation standards 

for GSLs. 88 FR 1638. On April 19, 

2024, DOE published a final rule 

adopting amended energy conservation 

standards for GSLs (‘‘April 2024 Final 

Rule’’). 89 FR 28856. Note, in the April 

2024 Final Rule, for certain lamps, DOE 

determined that because the market is 

rapidly developing it was unable to 

make a clear and accurate determination 

regarding the consumer utility, how 

various technology options would affect 

the efficiency, and maximum 

technologically feasible efficiency of 

these lamps, which prevented DOE from 

determining whether a specific standard 

for these lamps would be economically 

justified. Accordingly, the standards 


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7This comment was also submitted as comment 

No. 5 in the docket, https://www.regulations.gov/ 

document/EERE-2024-BT-TP-0010-0001. In this 

document, the comment is referenced as comment 

No. 6. 

8The parenthetical reference provides a reference 

for information located in the docket of DOE’s 

rulemaking to develop test procedures for insert 

product. (Docket No. EERE–2024–BT–TP–0010, 

which is maintained at: www.regulations.gov). The 

references are arranged as follows: (commenter 

name, comment docket ID number at page of that 

document). 

adopted in the April 2024 Final Rule do 

not apply to these lamps (see 10 CFR 

430.32(dd)(1)(iv)(C)). DOE did note that 

these lamps are still subject to the 45 

lm/W sales prohibition at 10 CFR 

430.32(dd). 89 FR 28856, 28886–28888. 

On November 25, 2024, DOE 

published a notice of proposed 

rulemaking (‘‘November 2024 NOPR’’) 

that proposed clarifications to the test 

procedures for GSLs to address specific 

issues and to make minor corrections to 

the current test procedures that are 

required for certification of compliance 

with applicable GSL energy 

conservation standards. 89 FR 92855. 

DOE received comments in response to 

the November 2024 NOPR from the 

interested parties listed in Table I.1. 

TABLE I.1—LIST OF COMMENTERS WITH WRITTEN SUBMISSIONS IN RESPONSE TO THE NOVEMBER 2024 NOPR 

Commenter(s) Reference in this 

final rule 

Comment No. 

in the docket Commenter type 

Bay Area Compliance Laboratories Corp. (‘‘BACLC’’) ............................... BACLC ........................... 2 Laboratory. 

Michael Ravnitzky ....................................................................................... Ravnitzky ....................... 3 Individual. 

Individual ..................................................................................................... Individual ........................ 4 Individual. 

Individual 7 ................................................................................................... Individual ........................ 6 Individual. 

Pacific Gas and Electric Company, San Diego Gas and Electric, and 

Southern California Edison; collectively, the California Investor-Owned 

Utilities (‘‘CA IOUs’’).

CA IOUs ......................... 7 Utility. 

Westinghouse Lighting ............................................................................... Westinghouse ................ 8 Manufacturer. 

Signify ......................................................................................................... Signify ............................ 9 Manufacturer. 

National Electrical Manufacturers Association (‘‘NEMA’’) .......................... NEMA ............................. 10 Industry Association. 

Appliance Standards Awareness Project (‘‘ASAP’’), Northwest Energy 

Efficiency Alliance (‘‘NEEA’’), National Consumer Law Center.

ASAP et al. .................... 11 Efficiency Organizations. 

A parenthetical reference at the end of 

a comment quotation or paraphrase 

provides the location of the item in the 

public record.8

II. Synopsis of the Final Rule 

In this final rule, DOE is adopting 

clarifications to appendix W, ‘‘Uniform 

Test Method for Measuring the Energy 

Consumption of Compact Fluorescent 

Lamps;’’ appendix BB, ‘‘Uniform Test 

Method for Measuring the Input Power, 

Lumen Output, Lamp Efficacy, 

Correlated Color Temperature (CCT), 

Color Rendering Index (CRI), Power 

Factor, Time to Failure, and Standby 

Mode Power of Integrated LightEmitting Diode (LED) Lamps;’’ and 

appendix DD, ‘‘Uniform Test Method for 

Measuring the Energy Consumption and 

Energy Efficiency of General Service 

Lamps That Are Not General Service 

Incandescent Lamps, Compact 

Fluorescent Lamps, or Integrated LED 

Lamps.’’ DOE is adopting clarifications 

to appendices W, BB and DD to specify: 

(1) lamps must not be tested as colored 

lamps; and (2) lamps with additional 

components that do not affect the light 

output of the lamp (e.g., camera, 

speaker) must be tested with as many 

components turned off as possible. 

Additionally, in this final rule, DOE is 

adopting clarifications to appendix DD 

as follows: (1) remove the instruction to 

operate non-integrated LED lamps at the 

manufacturer-declared input voltage 

and current; (2) specify that nonintegrated lamps be tested on a 

fluorescent lamp ballast, HID lamp 

ballast, or external LED driver, in an 

order of preference based on being on a 

manufacturer-provided compatibility 

list and/or commercially available; (3) 

specify the starting method and ballast 

factors for the fluorescent lamp ballasts 

used in testing; and (4) specify that 

fluorescent lamp ballasts, HID lamp 

ballasts, or external LED drivers used in 

testing operate the maximum number of 

lamps and instructions for calculating 

individual lamp values where more 

than one lamp is operated. 

DOE’s actions are summarized in 

Table II.1 compared to the current test 

procedure as well as the reason for the 

change. 

TABLE II1—SUMMARY OF CHANGES IN TEST PROCEDURE RELATIVE TO CURRENT TEST PROCEDURE

Current DOE test procedure Clarification to test procedure Attribution 

Does not include instruction to ensure lamps are not tested 

as a colored lamp.

Provides instructions that lamps must not be tested as 

colored lamps.

Response to industry 

comments. 

Does not include instructions to test lamps with additional 

components that do not affect the light output of the 

lamp (e.g., camera, speaker) with as many features 

turned off as possible.

Provides instructions to turn off as many components as 

possible during testing for lamps with additional components that do not affect the light output of the lamp 

(e.g., camera, speaker).

Response to industry 

comments. 

Includes instructions to test non-integrated LED lamps at 

the manufacturer-declared input voltage and current.

Removes instructions to test non-integrated LED lamps at 

the manufacturer-declared input voltage and current 

and instead specifies to test non-integrated lamps with 

a fluorescent lamp ballast, HID lamp ballast or external 

LED driver selected in order of preference based on 

compatibility list and availability.

Response to industry 

comments. 

Does not include instructions for starting method and ballast factor for a fluorescent lamp ballast used in testing 

non-integrated lamps.

Specifies that a fluorescent lamp ballast used in testing 

non-integrated lamps must have certain starting methods and ballast factors.

Response to industry 

comments. 


ddrumheller on DSK120RN23PROD with RULES1
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9See definition of ‘‘general service lamp’’ in 10 

CFR 430.2 for the specific exemptions from the 

definition. 

10Appliance Standards Guidance and Frequently 

Asked Questions (FAQs), available at 

www.energy.gov/eere/buildings/appliancestandards-guidance-and-frequently-askedquestions-faqs. 

TABLE II1—SUMMARY OF CHANGES IN TEST PROCEDURE RELATIVE TO CURRENT TEST PROCEDURE—Continued 

Current DOE test procedure Clarification to test procedure Attribution 

Does not include instructions for number of lamps for a fluorescent lamp ballast, HID lamp ballast used in testing 

non-integrated lamps.

Specifies that a fluorescent lamp ballast, HID lamp ballast 

used in testing non-integrated lamps must operate the 

maximum number of lamps and provides instructions 

for calculating individual lamp values where more than 

one lamp is operated.

Response to industry 

comments. 

Does not include certain test instructions for non-integrated 

lamps.

Adds language in appendix DD that provide relevant test 

setup instructions for testing non-integrated lamps that 

are designed and marketed to replace fluorescent 

lamps and HID lamps.

Response to industry 

comments. 

DOE has determined that the 

clarifications described in section III of 

this document and adopted in this 

document will not alter the measured 

efficiency of GSLs, or require retesting 

or recertification solely as a result of 

DOE’s adoption of the clarifications to 

the test procedures. Additionally, DOE 

has determined that the clarifications 

will not increase the cost of testing. 

Discussion of DOE’s actions are 

addressed in detail in section III of this 

document. 

The effective date for the amended 

test procedures adopted in this final 

rule is 30 days after publication of this 

document in the Federal Register. 

Representations of energy use or energy 

efficiency must be based on testing in 

accordance with the amended test 

procedures beginning 180 days after the 

publication of this final rule. 

III. Discussion 

In the following sections, DOE 

discusses certain clarifications to its test 

procedures for GSLs. For each 

clarification DOE provides relevant 

background information, explains why 

the clarification merits consideration, 

discusses relevant public comments, 

and its final approach. 

A. Scope of Applicability 

This rulemaking applies to GSLs. DOE 

defines a GSL as a lamp that has an 

ANSI base; is able to operate at a voltage 

of 12 volts or 24 volts, at or between 100 

to 130 volts, at or between 220 to 240 

volts, or of 277 volts for integrated 

lamps (as set out in this definition), or 

is able to operate at any voltage for nonintegrated lamps (as set out in this 

definition); has an initial lumen output 

of greater than or equal to 310 lumens 

(or 232 lumens for modified spectrum 

general service incandescent lamps) and 

less than or equal to 3,300 lumens; is 

not a light fixture; is not an LED 

downlight retrofit kit; and is used in 

general lighting applications. General 

service lamps include, but are not 

limited to, general service incandescent 

lamps, compact fluorescent lamps, 

general service light-emitting diode 

lamps, and general service organic light 

emitting diode lamps. 10 CFR 430.2. 

There are 26 lamp types exempt from 

the GSL definition.9

B. Clarifications to Appendix W, 

Appendix BB, and Appendix DD 

In this document, DOE is adopting 

clarifications to the existing test 

procedures for GSLs to ensure 

consistent testing to comply with the 45 

‘‘lm/W’’ backstop requirement for GSLs 

that Congress prescribed in amendments 

to EPCA. (42 U.S.C. 6295(i)(6)(A)(v)) 

DOE has determined these clarifications 

will further ensure consistency and 

repeatability in testing. To the extent 

that other GSLs may not be able to be 

tested in accordance with DOE’s test 

procedures, manufacturers may petition 

DOE for test procedure waivers in 

accordance with 10 CFR 430.27. 

DOE received general comments 

regarding the clarifications to the GSL 

test procedures proposed in the 

November 2024 NOPR. The CA IOUs 

stated their general support for DOE’s 

proposals and recommended certain 

amendments to the proposed changes, 

suggesting that if these cannot be 

included in this final rule, DOE 

collaborate with CA IOUs and other 

stakeholders to consider them for a 

future update. (CA IOUs, No. 7 at pp. 1, 

4) ASAP et al. supported DOE’s 

proposed clarifications in the November 

2024 NOPR and agreed with DOE’s 

tentative determination that these 

clarifications would not alter the 

measured efficacy of GSLs nor require 

retesting or recertification. (ASAP et al., 

No. 11 at p. 1) Additionally, one 

individual commenter, Michael 

Ravnitzky, stated support of DOE’s 

efforts to provide clarifications to the 

GSL test procedures in the November 

2024 NOPR. (Ravnitzky, No. 3 at p.1) 

One individual commented in 

opposition to the proposed clarifications 

to the GSL test procedures, stating they 

lead to unnecessary regulation of GSLs. 

(Individual, No. 4 at p. 1) Another 

individual stated concern regarding the 

complexity of the test procedures in 

particular for newer smart appliances 

and recommended DOE ensure test 

conditions better reflect real-world 

usage. They also stated that some of the 

proposed clarifications were vague, and 

DOE should provide clearer 

instructions, frequently answered 

questions (‘‘FAQs’’), and practical 

examples—possibly in the form of 

webinars and step-by-step guidance—to 

help manufacturers better understand 

the test procedures. (Individual, No. 6 at 

pp. 1, 1–2) 

In this final rule, DOE is adopting 

clarifications to existing GSL test 

procedures to ensure they provide the 

appropriate and necessary instructions 

for showing compliance to existing GSL 

energy conservation standards. 

Moreover, in this final rule, in response 

to comments received on the November 

2024 NOPR, DOE has adopted several 

amendments to the proposed 

clarifications to further improve clarity. 

Specific comments regarding 

amendments to the proposals in the 

November 2024 NOPR are discussed in 

the following sections. Additionally, 

DOE has a web page through which it 

provides guidance and answers 

Frequently Asked Questions (FAQs) on 

its appliance standards program.10

DOE also received comments on 

aspects of the GSL test procedures for 

which DOE did not propose 

clarifications in the November 2024 

NOPR. Signify and NEMA stated that 

DOE should replace the current industry 

reference for measuring standby mode, 


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11 International Electrotechnical Commission, IEC 

62301 Household electrical appliances— 

Measurement of standby power, (Edition 2.0, 2011– 

01). 

12American National Standards Institute, ANSI 

C137.63103 Lighting Systems—Non-Active Mode 

Power Measurement, Approved December 13, 2021. 

13 IEC 63103, Lighting Equipment—Non-Active 

Mode Power Measurement (Edition 1.0, 2020–07). 

14American National Standards Institute, ANSI 

C78.377—2017 American National Standard for 

Electric Lamps—Specifications for the Chromaticity 

of Solid-State Lighting Products, Approved 2017. 

IEC 62301 11 with ANSI C137.63103,12

which is a national adoption of IEC 

63103.13 (Signify, No. 9 at p. 6–7; 

NEMA, No. 10 at p. 2) Signify stated 

that this standard is similar to IEC 

62301 except it includes test setups 

specific to lighting products (e.g., LED 

lamps) and its adoption would increase 

repeatability, reduce lab-to-lab setup 

variability, and harmonize with 

international test methods. (Signify, No. 

9 at p. 6–7) NEMA stated that the 

currently referenced IEC 62301 is 

ineffective for use with lighting 

products and if DOE cannot replace it in 

this rule, it should do so in a future 

rulemaking. (NEMA, No. 10 at p. 2) 

This final rule is limited in scope to 

providing clarifications to the current 

GSL test procedures that are required for 

certification of compliance with existing 

GSL energy conservation standards. 

Standby mode power consumption of 

GSLs is not currently subject to stanards 

and therefore, is not within the scope of 

this rulemaking. 

Finally, Ravnitzky recommended 

adjustments to the language 

implementing the clarifications 

proposed in the November 2024 NOPR, 

stating those adjustments would 

enhance clarity without changing 

meaning. (Ravnitzky, No. 3 at pp. 2–7) 

DOE reviewed the recommendations 

and adopted certain suggestions that it 

determined improved clarity while 

maintaining the original meaning. For 

example, stating ‘‘select a ballast’’ 

instead of ‘‘choose a ballast;’’ stating 

‘‘test report must specify’’ instead of 

‘‘manufacturer must indicate in the test 

report;’’ stating ‘‘if the procedure in 

section 3.1.3.1 is not possible’’ instead 

of ‘‘if section 3.1.3.1 is not possible.’’ 

The following sections discuss in 

detail the clarifications proposed in the 

November 2024 NOPR, relevant public 

comments, and DOE’s final approach. 

1. Lamps With Multiple Modes 

Appendices W, BB, and DD specify 

instructions to test at maximum input 

power for all lamps, including those 

that may operate in multiple modes. 

Section 3.1.4 of appendix BB and 

section 3.5 of appendix DD specify to 

operate the lamp at the maximum input 

power; and if multiple modes occur at 

the same maximum input power (such 

as variable CCT or color rendering index 

(‘‘CRI’’)) select any of these modes and 

ensure all measurements are taken at the 

same selected mode. Section 3.1.4 of 

appendix W specifies to operate the 

lamp, including those that are dimmable 

or multi-level, at the labeled wattage, 

defined as the highest wattage marked 

on the lamp and/or lamp packaging. 

In the November 2024 NOPR, in 

section 3 of appendices W, BB, and DD, 

DOE proposed to specify to operate the 

lamp as not a colored lamp (as defined 

in 10 CFR 430.2) and if the lamp can 

operate at multiple CCTs to operate the 

lamp at 2700 K, or the closest available 

CCT greater than 2700 K. DOE also 

proposed to require manufacturers to 

indicate on the test report which CCT 

(numerical or on the graphical user 

interface) is selected for testing and 

include details such that another 

laboratory could operate the lamp at the 

same CCT. 89 FR 92855, 92859. 

ASAP et al. stated its support for 

DOE’s clarification that lamps not be 

tested as colored lamps, noting that it 

ensures color tunable lamps are not 

tested as colored lamps which are 

exempt from the GSL definition. (ASAP 

et al., No. 11 at p. 1) 

DOE also received several comments 

regarding DOE’s proposal to test at 2700 

K or the closest available CCT greater 

than 2700 K. ASAP et al. stated its 

support for the proposal. (ASAP et al., 

No. 11 at p. 1) The CA IOUs stated that 

the proposal does not account for color 

tunable GSLs that can achieve the same 

CCT through various combinations of 

LED outputs, resulting in varying levels 

of electricity consumption. The CA 

IOUs cited NEMA’s recommendation 

that in cases where the same 

chromaticity can be achieved with 

multiple primary settings, the 

manufacturer be the one to determine 

the test conditions and provide 

instruction for how to repeat the 

condition for the highest input power 

white light chromaticity as per ANSI 

C78.377.14 The CA IOUs stated that DOE 

did not adopt NEMA’s recommendation 

or offer alternative guidance for testing 

such GSLs and should provide further 

guidance in the final rule. (CA IOUs, 

No. 7 at p. 2) Ravnitzky stated they 

supported the proposal to test lamps at 

2700 K or the closest available CCT 

greater than 2700 K because it ensures 

test conditions that reflect typical 

consumer usage. However, Ravnitzky 

asked for clarification on what 

‘‘maximum input power’’ means for 

lamps with multiple modes. (Ravnitzky, 

No. 3 at p. 1) 

The current test procedures in 

sections 3.1.4 of appendix W, BB, and 

section 3.5 of appendix DD already 

specify that the lamp must be operated 

at maximum input power. In the 

November 2024 NOPR, DOE proposed 

to also clarify that the lamp must not be 

operated as a colored lamp and that if 

it could operate at multiple CCTs, it 

must be operated at 2700 K or the 

closest available CCT greater than 2700 

K. 89 FR 92855, 92859. These 

instructions mean the lamp is tested at 

the maximum input power at which the 

lamp is not operating as a colored lamp 

and operating at 2700 K or the closest 

available CCT greater than 2700 K, and 

thereby align with NEMA’s 

recommendation for testing color 

tunable lamps at the highest input 

power white light chromaticity. To 

further clarify this, in this final rule, 

DOE has slightly rephrased the 

proposed language for this instruction 

from ‘‘Operate the lamp at the 

maximum input power and not as a 

colored lamp’’ to ‘‘Ensure that the lamp 

is not operating as a colored lamp and 

operate the lamp at maximum input 

power.’’ 

Signify stated it supported DOE’s 

proposal to require that the lamp not be 

operated as a colored lamp (as defined 

in 10 CFR 430.2) but did not support 

using 2700 K as the only operating set 

point. Signify commented that tunable 

white lamps can always produce white 

light but at different CCTs and 

California Energy Commission (‘‘CEC’’) 

and ENERGY STAR require testing these 

lamps at maximum input power which 

typically occurs at CCTs as high as 4000 

K or as low as 2700 K. Signify stated 

that maximum input power has been the 

historical set point and renders realistic 

images with good color fidelity. Signify 

added stated that removing the 

proposed requirement to test at a 

specific CCT would avoid confusion 

rooted in different testing set points, 

enable comparison with existing 

databases and prevent test burden 

duplication. (Signify, No. 9 at p. 2–3) 

Similarly, BACLC stated that DOE’s 

proposal to test GSLs at 2700 K or the 

closest available CCT greater than 2700 

K does not align with ENERGY STAR 

Lamps V2.1 Final Specification, 

California’s Title 20 (Appliance 

Efficiency Proceedings), or California’s 

Title 24 (Building Standards Code) 

requirements to respectively, test at the 

most consumptive white light setting, 

typically testing at maximum power 

consumption, and at the least efficient 

CCT. (BACLC, No. 2 at p. 1) 

Westinghouse supported DOE’s 


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proposal to test at 2700 K or the closest 

available CCT greater than 2700 K, but 

stated it should be implemented for 

future testing. Westinghouse 

recommended that to prevent retest of 

thousands of lamps, for GSLs already on 

the market, DOE should allow prior test 

data used to certify the lamps to the 

ENERGY STAR specifications including 

lamps tested at higher than 2700 K. 

(Westinghouse, No. 8 at p. 1) NEMA 

also stated that for many years 

manufacturers have been testing 

according to ENERGY STAR 

specifications, including testing tunable 

and selectable CCT lamps at the most 

consumptive white light setting, often at 

nominal CCTs higher than 2700 K. 

NEMA stated that this test data was 

gathered voluntarily in accredited 

laboratories for provision to the Federal 

government and remains relevant for 

products on that market with 

unchanged designs. (NEMA, No. 10 at p. 

3) 

NEMA also stated that in its lighting 

product rulemakings, DOE should 

clearly distinguish between calculated 

and nominal CCT. NEMA stated that 

ANSI C78.377 assigns nominal CCTs 

(e.g., 2700 K, 3000K, 4000 K) to ranges 

of calculated CCTs defined with targets 

and tolerances (e.g., 2580 K–2870 K is 

nominal 2700 K). NEMA stated that this 

convention was created to simplify end 

user product selection and nominal 

values should not be used for 

compliance purposes. NEMA also stated 

that DOE should delineate between 

tunable CCT and selectable CCT lamps, 

explaining that tunable CCT lamps 

allow the user to tune the color 

appearance continuously by selecting 

any number of calculated CCTs within 

the design range while selectable CCT 

lamps allow for selection of limited, 

predetermined, stepped CCTs (e.g., 2700 

K, 3000 K). (NEMA, No. 10 at p. 3) 

In the November 2024 NOPR, DOE 

proposed to test GSLs that can operate 

at multiple CCTs at 2700 K because a 

colored lamp has a CCT less than 2500 

K or greater than 7000 K (see 10 CFR 

430.2 ‘‘colored lamp’’). Therefore, 

operating at 2700 K would ensure that 

the lamp is not operating as a colored 

lamp. Further, DOE noted that 2700 K 

is a common CCT for GSLs. 89 FR 

92855, 92859. DOE has reviewed the 

comments stating that because 

manufacturers have not been 

historically testing these GSLs at 2700 

K, the proposed clarification to test at a 

2700 K may result in having to retest 

lamps. To avoid retesting of lamps, in 

this final rule, DOE is not adopting the 

proposed clarification to test at 2700 K 

or the closest available CCT greater than 

2700 K for lamps that can operate at 

multiple CCTs. In this final rule, DOE is 

adopting the proposed clarification that 

the lamp cannot be tested as a colored 

lamp. DOE finds that the specification 

to not test as a colored lamp is sufficient 

to ensure that the lamp is not tested as 

a colored lamp, which is exempt from 

the GSL definition. DOE will consider 

adding the clarification of testing at a 

specific CCT, including NEMA’s 

suggested delineation of relevant terms, 

in a future rulemaking. 

In the November 2024 NOPR, DOE 

proposed to remove the instruction in 

section 3.1 of appendix DD to take 

measurements at full light output. DOE 

explained that section 3.5 in appendix 

DD already specifies to operate the lamp 

at the maximum input power which is 

equivalent to operating the lamp at full 

light output. 89 FR 92855, 92859. 

Signify, NEMA, and Westinghouse 

stated their support for DOE’s proposal 

to remove the test procedure instruction 

to take measurements at full light output 

in appendix DD. (Signify, No. 9 at p. 4; 

NEMA, No. 10 at p. 1; Westinghouse, 

No. 8 at p. 2) 

In this final rule, DOE is adopting the 

clarification to remove of the instruction 

to take measurements at full light output 

in appendix DD as proposed in the 

November 2024 NOPR. 

2. Lamps With Non-Illumination 

Components 

In the November 2024 NOPR, for 

lamps with a component(s) that offer a 

distinct functionality (e.g., a speaker, a 

camera, an air purifier, etc.) where the 

component is integrated into the lamp 

but does not affect the light output of 

the lamp (e.g., does not turn the light 

on/off, dim the light, change the color 

of the light, etc.) and is capable of 

operating in standby mode, in section 3 

of appendices W, BB, and DD, DOE 

proposed to specify to turn off as many 

of these components as possible during 

testing. DOE also proposed to require 

that the test report indicate which 

components were turned off and which, 

if any, components remained on. 89 FR 

92855, 92859–92860. 

Signify, NEMA, and ASAP et al. 

stated their support for DOE’s proposal 

to turn off all components that do not 

affect light output during testing. 

(Signify, No. 9 at p. 4; NEMA, No. 10 at 

p. 1; ASAP et al., No. 11 at p. 1) 

Ravnitzky stated that the proposal to 

turn off non-illumination components 

during testing ensures the measured 

efficacy is not inflated by features that 

do not produce light. (Ravnitzky, No. 3, 

p. 1) The CA IOUs stated that DOE’s 

proposed clarification states that only 

completely different functions operating 

in standby mode should be turned off, 

if possible, and does not address how to 

test a GSL that offers a different function 

but lacks a standby mode. For these 

GSLs, the CA IOUs asked that the test 

procedure clarify whether the electricity 

consumption associated with the 

different functionalities should be 

included with that for producing visible 

light when calculating energy efficiency. 

(CA IOUs, No. 7 at p. 3) The CA IOUs 

further stated that DOE’s proposed 

language ‘‘turn off as many of these 

components as possible’’ is unclear as to 

whether it is referring to only 

components that must be userswitchable independent of the lamp’s 

light output or also referring to 

components that are not user-switchable 

and should be mechanically or 

electrically turned off during testing. 

(CA IOUs, No. 7 at p. 3) 

As noted, the proposed clarification is 

for lamps with component(s) that offer 

a distinct functionality where the 

component is integrated into the lamp 

but does not affect the light output of 

the lamp and is capable of operating in 

standby mode. 89 FR 92855, 92859– 

92860. In standby mode, the energyusing product is connected to a main 

power source and offers one or more of 

the following user-oriented or protective 

functions: (1) to facilitate the activation 

or deactivation of other functions 

(including active mode) by remote 

switch (including remote control), 

internal sensor, or timer; or 

(2) continuous functions, including 

information or status displays 

(including clocks) or sensor-based 

functions. 10 CFR 430.2, 42 U.S.C. 

6295(gg)(1)(A)(iii). If a lamp has 

components that provide additional 

non-lighting functionality and that can 

be deactivated, it would be capable of 

operating in standby mode, consistent 

with the definition of standby mode. 

DOE understands that lamps with 

component(s) that offer distinct 

functionality that does not affect light 

output can be continuous functions, and 

therefore not meet the definition of 

standby mode, and it may not be 

possible to turn them off. In this case, 

the energy consumption of the 

component that offers that distinct 

functionality will have to be included in 

measured values during testing. 

Further, the proposed language to 

‘‘turn off as many of these components 

as possible’’ means without 

permanently altering the product. To 

clarify this meaning, in this final rule, 

DOE is adding language to clearly state 

to turn off components without 

permanently altering the product where 

permanently altering constitutes the 

cutting of wires, use of a soldering iron, 

or damage to or destruction of the lamp 


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15American National Standards Institute, 

Illuminating Engineering Society, Lighting Science: 

Nomenclature and Definitions for Illuminating 

Engineering, available at https://www.ies.org/ 

standards/definitions/. 

and does not constitute connecting or 

disconnecting wire nuts, fasteners or 

screws, or preserving the lamp as it was 

sold. If such components cannot be 

turned off without permanently altering 

the product, their energy consumption 

must be included in measurements. 

In summary, in this final rule, DOE is 

adopting the clarification regarding 

turning off components that do not 

affect light output during testing, as 

proposed in the November 2024 NOPR 

with the added clarification that this 

instruction must be carried out without 

permanently altering the product. To 

the extent that a lamp would not be able 

to be tested in accordance with these 

provisions, manufacturers may petition 

for a test procedure waiver in 

accordance with 10 CFR 430.27. 

3. Non-Integrated Lamps 

Section 3.4 of appendix DD provides 

instructions to operate a non-integrated 

lamp at the manufacturer-declared input 

voltage and current. In the November 

2024 NOPR, DOE proposed to remove 

the instruction in section 3.4 of 

appendix DD to operate non-integrated 

LED lamps at the manufacturer-declared 

input voltage and current and specify 

that the remaining instructions 

regarding rated voltages apply to 

integrated lamps. Additionally, DOE 

proposed to add a section to appendix 

DD that specifies that a non-integrated 

lamp be operated on a fluorescent lamp 

ballast or external driver that is selected 

based on manufacturer-provided 

compatibility list and availability, 

starting method, and ballast factor. 

Finally, DOE proposed to add 

instructions for testing with a 

fluorescent lamp ballast or external 

driver in terms of number of lamps 

used, and references to relevant 

industry standards. 89 FR 92855, 92860. 

The proposal and relevant public 

comments are discussed in the 

following sections. 

a. Selection of Fluorescent Lamp 

Ballast, HID Lamp Ballast or External 

LED Driver 

In the November 2024 NOPR, DOE 

proposed that the fluorescent lamp 

ballast or external driver selected for 

testing must be, in the following order 

of preference: (1) from the lamp’s 

publicly available manufacturerprovided compatibility list and 

commercially available; (2) 

commercially available and able to 

operate the lamp throughout the 

duration of the test; (3) previously 

procured and able to operate the lamp 

throughout the duration of the test. Only 

if the fluorescent lamp ballast and 

external driver cannot be selected from 

the previous preference should the next 

preference be availed. Additionally, 

DOE proposed that the manufacturer 

record the fluorescent lamp ballast or 

external driver manufacturer and model 

name/number used for testing in the test 

report. 89 FR 92855, 92860. 

DOE received general comments 

regarding this proposal. Ravnitzky 

supported DOE’s proposal to test nonintegrated lamps with a fluorescent 

lamp ballast or external driver selected 

from a compatibility list or based on 

availability, stating it would replicate 

real-world usage conditions. (Ravnitzky, 

No. 3, p. 1) ASAP et al. supported DOE’s 

proposed specifications for selecting 

fluorescent lamp ballast or external 

driver and, if applicable, the starting 

method and/or ballast factor; stating 

they improved repeatability and 

ensured representativeness. (ASAP et 

al., No. 11 at p. 2) Signify and NEMA 

stated they supported the order of 

preference of selection based on: (A) 

described in the lamp manufacturer 

compatibility list, (B) commercially 

available, (C) starting method as 

described in Table III.1 of the November 

2024 NOPR and (D) ballast factor as 

described in Table III.2 of the November 

2024 NOPR. (Signify, No. 9 at p. 4; 

NEMA, No. 10 at p. 2) 

DOE also received specific comments 

regarding (1) definitions and 

terminology, (2) the organization of the 

proposed clarifications, (3) use of 

previously procured ballasts or external 

drivers, (4) instructions on preheat start 

fluorescent lamp ballasts, and (5) 

starting methods and ballast factors. 

These are discussed in detail in the 

following sections. 

Definitions and Terms 

DOE received comments on 

definitions and terms used in the 

proposed clarifications for selecting 

ballasts or external drivers for testing 

non-integrated lamps. NEMA 

recommended that, consistent with 

ANSI/Illuminating Engineering Society 

(‘‘IES’’) LS–1–22,15 DOE employ the 

standardized term ‘‘LED driver’’ rather 

than ‘‘driver’’. (NEMA, No. 10 at p. 3) 

DOE agrees that aligning with industry 

terminology will be a helpful 

clarification. Therefore, in this final 

rule, DOE is adopting the proposed 

clarifications in appendix DD with the 

term ‘‘driver’’ replaced with ‘‘LED 

driver.’’ 

NEMA also recommended that DOE 

replace all instances of ‘‘fluorescent’’ 

with ‘‘fluorescent or HID,’’ given the 

inclusion of LED replacements for HID 

lamps in the proposed clarifications. 

(NEMA, No. 10 at p. 4) In the November 

2024 NOPR, it was DOE’s intent to 

ensure that its proposed clarifications 

address testing of all non-integrated 

lamps including those that operate on 

HID lamp ballasts. While DOE proposed 

clarifications stating that non-integrated 

lamps that operate on HID lamp ballasts 

must be tested according to ANSI 

C78.53 (see section III.B.3.b of this 

document), DOE did not appropriately 

reference HID lamp ballasts in the 

proposed clarifications for selecting the 

ballast in the November 2024 NOPR. 

Therefore, in this final rule, DOE is 

adopting the proposed clarifications in 

appendix DD with the inclusion of the 

term ‘‘HID lamp ballast’’. Note, that the 

specific ballast factors and starting 

methods proposed in the November 

2024 NOPR are applicable only to 

fluorescent lamp ballasts. 89 FR 92855, 

92860–92861. 

In the November 2024 NOPR, DOE 

proposed to define the term 

‘‘commercially available fluorescent 

lamp ballast or external driver’’ as one 

that can be purchased by an individual 

consumer at a readily accessible retailer 

(i.e., retailer with storefront or online 

purchasing). 89 FR 92855, 92860. 

Signify and NEMA stated it concurred 

with DOE’s definition of ‘‘commercially 

available’’ as meaning the lamp can be 

purchased by a consumer in a readily 

accessible retail storefront or online. 

(Signify, No. 9 at p. 4; NEMA, No. 10 at 

p. 2) Ravnitzky recommended that DOE 

define ‘‘commercially available 

fluorescent lamp ballast’’ as a ballast 

that can be purchased by an individual 

consumer at an accessible retailer, that 

has either a storefront or online 

purchasing platform, and include the 

term in a glossary. (Ravnitzky, No. 3 at 

p. 1) 

The proposed definition, which was 

included in the definitions section of 

appendix DD, aligns with Ravintzky’s 

suggested definition. As noted in 

previous paragraphs, in this final rule, 

DOE is adding the term HID lamp 

ballast and also replacing the term 

‘‘driver’’ with ‘‘LED driver’’. 

Accordingly, in this final rule, DOE is 

renaming the proposed term 

‘‘commercially available fluorescent 

lamp ballast or external driver’’ to 

‘‘commercially available fluorescent 

lamp ballast, high intensity discharge 

(‘‘HID’’) ballast, or external LED driver.’’ 

Ravnitzky recommended that DOE 

define ‘‘publicly available 

manufacturer-provided compatibility 

list’’ as lists made available by 

manufacturers on their official websites 


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or through publicly accessible 

documents which detail the ballasts or 

drivers that are compatible with specific 

lamp models. (Ravnitzky, No. 3 at p. 1) 

The term ‘‘publicly available 

manufacturer-provided compatibility 

list’’ is used throughout the proposed 

language in section 3.1.3 of appendix 

DD. 89 FR 92855, 92867. DOE agrees 

that defining this term will provide 

further clarification to the proposed 

instructions. DOE’s review of 

compatibility lists indicates that the 

information provided can range from a 

general statement that the lamp is 

compatible with electronic ballasts to 

specifying ballast or external LED driver 

models which are compatible with the 

lamp. Additionally, DOE’s intent in 

using the term ‘‘manufacturer-provided’’ 

is to ensure that the information is 

provided by the manufacturer either 

through the manufacturer’s website or 

publicly available documents. 

Therefore, in this final rule, DOE adopts 

language in appendix DD that defines 

‘‘publicly available manufacturerprovided compatibility list’’ as a list or 

statement made available by the 

manufacturer on the manufacturer’s 

official website or made available by the 

manufacturer through publicly available 

documents (e.g., product literature, 

catalogs, and packaging labels), that 

provides information on the ballasts or 

external LED drivers that are compatible 

with the lamp. 

Organization of Proposed Clarifications 

The CA IOUs stated that the proposed 

language in section 3.1.3 of appendix 

DD for selecting ballasts is challenging 

to understand and follow, including the 

tables of ballast factors and starting 

methods. The CA IOUs stated that the 

proposed section 3.1.3.2.1.1 provides 

instructions for selecting ballasts on a 

‘‘publicly available manufacturerprovided compatibility list’’ when based 

on the structure of the section, the 

instructions should be for selecting 

ballasts that are commercially available. 

(CA IOUs, No. 7 at p. 3) 

The proposed language in section 

3.1.3 of appendix DD is divided into 

three main subsections or scenarios that 

specify how the fluorescent lamp ballast 

or external driver must be selected and 

in the order of preference of: (1) on a 

publicly available manufacturerprovided compatibility list and 

commercially available (section 3.1.3.1); 

(2) commercially available and able to 

operate the lamp throughout the 

duration of the test (section 3.1.3.2); and 

(3) previously procured and able to 

operate the lamp throughout the 

duration of the test (section 3.1.3.3). 

Only if the fluorescent lamp ballast and 

external driver cannot be selected per 

the instructions of the previous 

subsection, is it necessary to move to 

next subsection. Within each of these 

subsections, DOE provides instructions 

for selecting the ballast factor and 

starting method. This presents a 

complete set of instructions for choosing 

the ballast or driver within each 

subsection. DOE has determined that 

this is the clearest presentation of the 

instructions allowing the user to step 

through the selection process, in the 

appropriate order of preference. 

DOE agrees with CA IOUs that the 

proposed language in section 3.1.3.2.1.1 

is incorrect. This is a subsection under 

3.1.3.2, which includes the provisions 

for cases in which the ballast or external 

driver is being selected from what is 

commercially available and can operate 

the lamp throughout the duration of the 

test. Therefore, it should not reference 

ballasts on the publicly available 

manufacturer-provided compatibility 

list, but rather commercially available 

ballasts. This is corrected in this final 

rule. 

The CA IOUs commented that DOE’s 

proposal to allow non-integrated GSLs 

to be tested using ‘‘previously procured 

ballasts or drivers’’ seems to endorse 

pairing of efficient tubular LED 

(‘‘TLED’’) GSLs with inefficient 

magnetic ballasts and DOE should 

remove this option. The CA IOUs stated 

that T12 fluorescent lamps and 

magnetic ballasts use twice the 

electricity to produce the same light 

output as a LED luminaire. The CA 

IOUs stated that the exemption for high 

CRI linear fluorescent lamps from 

energy conservation standards has kept 

T12 lamps as well as magnetic ballasts 

on the market, and while the national 

inventory of T12 lamps has dropped 

from 941 million in 2010 to 341 million 

in 2020, the amount of remaining stock 

is unclear. (CA IOUs, No. 7 at pp. 3–4) 

DOE’s proposed language requires 

that the ballast or external driver: be 

selected first from the lamp’s publicly 

available manufacturer-provided 

compatibility list and be commercially 

available; if that is not possible, then be 

commercially available and able to 

operate the lamp throughout the 

duration of the test; if neither of the 

previous options are possible, then be 

previously procured and able to operate 

the lamp throughout the duration of the 

test. Based on this order of selection, 

testing would be conducted with 

commercially available ballasts, first 

and foremost, whenever possible. 

Additionally, in a scenario where the 

lamp under test is only compatible with 

a ballast or external driver that is no 

longer commercially available, the 

option of using something that is 

previously procured minimizes issues of 

incompatibility. 

Preheat Start Fluorescent Lamp Ballasts 

DOE understands that because low 

frequency, preheat start fluorescent 

lamp ballasts are an older technology, 

they may not be commercially available. 

In the November 2024 NOPR, for lamps 

that operate only on such ballasts, and 

these ballasts are not available, DOE 

proposed to specify to operate the lamp 

on the manufacturer-declared voltage 

and current, and if this information is 

not provided, to operate the lamp in 

accordance with the applicable lamp 

voltage and current conditions specified 

in ANSI C78.901–2016. Finally, DOE 

proposed the manufacturer must 

indicate in the test report the voltage 

and current with which the lamp was 

operated. 89 FR 92855, 92860. 

Signify and NEMA stated it supported 

DOE’s proposal to use the lamp voltage 

and current specified by the 

manufacturer for preheat lamps meant 

to be used with magnetic ballasts when 

no commercial ballast is available. 

(Signify, No. 9 at p. 4; NEMA, No. 10 at 

p. 2) 

As noted, in the November 2024 

NOPR, DOE proposed to include the 

statement that if the manufacturerdeclared voltage and current is not 

provided, to operate the lamp in 

accordance with lamp voltage and 

current conditions in ANSI C78.901– 

2016. Upon further review, DOE has 

determined that this instruction is 

unnecessary as manufacturers would 

have the necessary voltage and current 

for a given lamp, which could include 

voltages and currents as specified in 

ANSI C78.901–2016. The test procedure 

directs manufacturers to indicate in the 

test report the voltage and current with 

which the lamp was operated. 

Therefore, this information would be 

available from the manufacturers and 

the additional direction to operate the 

lamp on the settings specified in ANSI 

C78.901 is not needed. Therefore, in this 

final rule, DOE is adopting the method 

for testing non-integrated lamps that 

operate only on low frequency, preheat 

start fluorescent lamp ballasts as 

proposed in the November 2024 NOPR, 

with the removal of the statement 

regarding use of ANSI C78.901. 

Starting Methods and Ballast Factors 

In the November 2024 NOPR, DOE 

proposed that for the ballasts identified 

based on availability (i.e., manufacturerprovided compatibility list, 

commercially available, previously 

procured), if all the ballasts have the 

same starting method, choose a ballast 


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Federal Register / Vol. 90, No. 10 / Thursday, January 16, 2025 / Rules and Regulations 4597 

16 Illuminating Engineering Society, Approved 

Method: Optical and Electrical Measurements of 

Solid-State Lighting Products. 

with that starting method. If there is 

more than one starting method among 

them, choose a ballast with a starting 

method based on lamp type as specified 

in Table III.1. If the starting method in 

Table III.1 is not included among 

fluorescent lamp ballasts under 

consideration, then select any starting 

method. 89 FR 92855, 92860. 

TABLE III.1—STARTING METHOD BY

LAMP TYPE

Lamp type Starting method 

T8 medium bipin ........... Instant Start. 

T8 recessed double 

contact.

Instant Start. 

T5 miniature bipin ......... Programmed Start. 

T12 single pin, slimline Instant Start. 

T12 medium bipin ......... Rapid Start. 

T12 recessed double 

contact.

Rapid Start. 

All other lamp types ...... Any. 

Signify and NEMA commented DOE 

should add a clarification that if 

fluorescent lamp ballasts under 

consideration do not employ any of the 

starting methods in the proposed table, 

then select any starting method utilized 

by a ballast on the compatibility list. 

Signify stated this would prevent 

potential compatibility risks. (Signify, 

No. 9 at p. 4–5; NEMA, No. 10 at p. 2) 

DOE agrees this suggestion would help 

ensure testing is not conducted with a 

ballast or driver that is not compatible. 

Therefore, in this final rule, in the 

scenario where the ballast or driver is 

being selected from the lamp’s publicly 

available manufacturer-provided 

compatibility list, DOE is revising the 

instruction that ‘‘if starting method in 

Table III.1 is not included among 

fluorescent lamp ballasts under 

consideration, then select any starting 

method’’ and changing it to ‘‘select any 

starting method on the lamp’s publicly 

available manufacturer-provided 

compatibility list.’’ Aside from this 

change, in this final rule, DOE is 

adopting the clarifications for selecting 

starting method as proposed in the 

November 2024 NOPR. 

In the November 2024 NOPR, DOE 

proposed that for the set of ballasts that 

have been identified based on 

availability and starting method, if the 

ballasts have more than one ballast 

factor available, choose a ballast with a 

ballast factor based on lamp type as 

specified in Table III.2. If the ballast 

factor in Table III.2 is not included 

among ballasts under consideration, 

select a ballast with a ballast factor 

closest to the one listed in Table III.2. 

89 FR 92855, 92860–92861. 

TABLE III.2—BALLAST FACTOR BY

LAMP TYPE

Lamp type Ballast factor 

T8 medium bipin ........... 0.88. 

T8 recessed double 

contact.

1.05. 

T5 miniature bipin ......... 1. 

T12 single pin, slimline Any. 

T12 medium bipin ......... Any. 

T12 recessed double 

contact.

Any. 

All other lamp types ...... Any. 

Signify and NEMA stated their 

support of DOE’s proposal for selection 

of the fluorescent lamp ballast factor 

used in testing. (Signify, No. 9 at p. 5; 

NEMA, No. 10 at p. 2) In this final rule, 

DOE is adopting the clarifications for 

selecting the ballast factor as proposed 

in the November 2024 NOPR. 

b. Testing With Ballast or External LED 

Driver 

DOE understands that a ballast or 

external LED driver can operate more 

than one lamp at a time. Therefore, in 

the November 2024 NOPR, DOE 

proposed to specify that the fluorescent 

lamp ballast or external drivers be 

loaded with the maximum number of 

lamps when measuring the initial lumen 

output, initial input power, input 

voltage, and input current, and these 

measured values be divided by the 

maximum number of lamps. 89 FR 

92855, 92861. 

In response, the CA IOUs stated that 

placing multiple 4-foot TLED lamps in 

an integrating sphere to measure lumen 

output, if even physically possible, 

would result in some lumens emitted by 

one lamp to be absorbed by the other 

lamps, making the measurement 

inaccurate. The CA IOUs stated that 

DOE does not allow for the use of 

goniophotometer, an alternative method 

to testing light output, nor does it 

suggest alternative instrumentation for 

these situations. (CA IOUs, No. 7 at p. 

4) Further, the CA IOUs stated that not 

all measured values may be 

appropriately divided by the number of 

lamps (e.g., input voltage). The CA IOUs 

also recommended that DOE reference a 

standard like ANSI/IES LM–79.16 (CA 

IOUs, No. 7 at p. 4) 

Signify, Westinghouse, and NEMA 

stated they supported testing the lamp 

with a ballast that is fully loaded (i.e., 

with the maximum number of lamps) 

but recommended DOE clarify that only 

one lamp at a time be tested in the 

integrating sphere. Signify and NEMA 

stated that testing multiple lamps in the 

integrating sphere could lead to optical 

interference skewing lumen output 

measurements. (Signify, No. 9 at p. 5– 

6; NEMA, No. 10 at p. 2; Westinghouse, 

No. 8 at p. 2) 

Signify, Westinghouse, and NEMA 

also provided alternative instructions 

for testing multiple non-integrated 

lamps in an integrating sphere. Signify 

recommended DOE provide clarification 

that only one lamp be placed in the 

sphere, its light output, voltage, current, 

and power be recorded, and the lamp 

efficacy be the average efficacy of all the 

lamps measured. NEMA recommended 

testing one lamp at a time in the sphere 

while operating others outside of the 

sphere and the averaged light output 

reported as the certified value to DOE. 

Westinghouse supported NEMA’s 

recommendation and also specified to 

divide values of each lamp by the 

number of lamps operated by the 

ballast. (Signify, No. 9 at p. 5–6; NEMA, 

No. 10 at p. 2; Westinghouse, No. 8 at 

p. 2) 

DOE agrees that that there could be 

potential issues with initial lumen 

output measurements when testing 

multiple non-integrated lamps in the 

integrating sphere. DOE reviewed the 

alternative instructions suggested by 

commentators for conducting such 

testing and found these to provide 

similar instructions—to test one lamp at 

a time and take an average of measured 

values. Considering these 

recommendations, in this final rule, 

DOE is adding language to clarify that 

when testing multiple lamps, one lamp 

at a time be tested in the integrating 

sphere while operating the other lamps 

outside of the sphere; and the initial 

lumen output, initial input power, input 

voltage, and input current be measured 

for each lamp. Additionally, in this final 

rule, DOE is removing the proposed 

instruction to divide measured values 

by the maximum number of lamps. 

Instead, in sections 3.3.2 and 3.3.3 

which provide instructions on 

calculating lamp efficacy and power 

factor, respectively, DOE is adding 

language stating that if multiple lamps 

are tested, the initial lamp efficacy and 

power factor will be determined as the 

average of the values of each lamp. 

Regarding CA IOUs’ suggestion to 

reference ANSI/IES LM–79, DOE notes 

that this standard is already referenced 

in section 3.6 of appendix DD for 

measuring the initial lumen output, 

input power, input voltage, and input 

current of non-integrated LED lamps. 

In summary, DOE is adopting the 

proposed clarification regarding testing 

with the ballast or external LED driver 

loaded with the maximum number of 


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4598 Federal Register / Vol. 90, No. 10 / Thursday, January 16, 2025 / Rules and Regulations 

17 DLC, ‘‘Testing and Reporting Requirements for 

Linear Replacement Lamps under Technical 

Requirements V5.1’’, July 1, 2020, available at 

https://designlights.org/wp-content/uploads/2023/ 

06/DLC_Testing-Reporting-Requirements_LinearReplacement-Lamps_V5-1_20230616.pdf. 

lamps as proposed in the November 

2024 NOPR with the modifications that 

ensure that one lamp at time is tested in 

the integrating sphere. 

Additionally, in the November 2024 

NOPR, DOE proposed to incorporate by 

reference the applicable industry 

standard, ANSI C78.53–2023, in 

appendix DD and reference it as follows: 

(1) for a non-integrated lamp marketed 

to replace a fluorescent lamp and 

operate on the existing fluorescent lamp 

ballast, testing should be conducted in 

accordance with the setup provisions in 

sections 5.6.3 (Thermal) and 5.6.4 

(Electrical Characteristics) of ANSI 

C78.53–2023; and (2) for a nonintegrated lamp marketed to replace a 

HID lamp and operate on the existing 

HID lamp ballast, testing should be 

conducted in accordance with the setup 

provisions in sections 5.7.2.1 (Thermal), 

5.7.3 (Electrical Characteristics), and 

5.7.5 (Compatibility Criteria) of ANSI 

C78.53–2023 sections. 89 FR 92855, 

92861. 

Signify, NEMA, and Westinghouse 

stated their support for DOE’s proposal 

to incorporate by reference, ANSI 

C78.53–2023 for appendix DD. (Signify, 

No. 9 at p. 6; NEMA, No. 10 at p. 2; 

Westinghouse, No. 8 at p. 2) 

Upon further review, DOE determined 

that ANSI C78.53–2023 includes 

instructions that would not be relevant 

to a non-integrated lamp being tested 

under the DOE test procedure. For 

example, instructions referencing delamping (i.e., disabling or removing 

lamps) are not relevant as DOE is 

requiring testing be conducted with the 

ballast loaded with the maximum 

number of lamps (see section III.B.3.b of 

this document).). Therefore, in this final 

rule, DOE is not adopting the proposal 

to incorporate by reference ANSI 

C78.53–2023 in appendix DD and is 

instead adding language in appendix DD 

that provides only the relevant setup 

instructions applicable for testing nonintegrated lamps from ANSI C78.53– 

2023. DOE has determined that this 

approach would improve clarity of the 

test procedure requirements proposed in 

the November 2024 NOPR. 

Additionally, in this final rule, DOE is 

revising the proposed language ‘‘for a 

non-integrated lamp marketed to replace 

a fluorescent/HID lamp and operate on 

the existing fluorescent lamp/HID 

ballast’’ to state ‘‘designed and 

marketed’’ instead of ‘‘marketed’’. 

Because ‘‘designed and marketed’’ is a 

term defined by DOE and specific to 

lighting products, it will provide further 

clarity to the instruction (see 10 CFR 

430.2 ‘‘designed and marketed’’). 

C. Test Procedure Costs 

EPCA requires that test procedures 

amended by DOE not be unduly 

burdensome to conduct. (42 U.S.C. 

6293(b)(3)) The following section 

discusses DOE’s evaluation of estimated 

costs associated with the clarifications 

in this final rule, including relevant 

public comments. 

NEMA and Westinghouse stated their 

overall support for the proposed 

clarifications but, referencing ENERGY 

STAR testing, noting that manufacturers 

should not be required to retest lamps 

already on the market that have been 

tested and certified prior to market 

introduction. (NEMA, No. 10 at p. 2; 

Westinghouse, No. 8 at p. 2) In this final 

rule, DOE is not adopting the 

clarification to test at 2700 K or the 

closest available CCT greater than 2700 

K, which will allow manufacturers to 

use previous test data submitted to 

entities such as ENERGY STAR (see 

section III.B.1 for complete discussion). 

DOE is adopting two updates to 

appendices W, BB, and DD that provide 

clarification for testing lamps by 

specifying: (1) not to test the lamp as a 

colored lamp; and (2) to turn off 

components that do not affect light 

output. These clarifications only 

provide further clarification and more 

complete information regarding how to 

appropriately test certain lamps. 

Therefore, DOE has determined that the 

clarifications would not impact the 

representations of GSL energy efficiency 

based on the determination 

manufacturers would be able to rely on 

data generated under the current test 

procedure. As such, retesting of GSLs 

would not be required solely as a result 

of DOE’s adoption of the clarifications 

to the test procedure. 

Finally, in this final rule, DOE is 

adopting updates to appendix DD to 

remove the instruction to operate nonintegrated LED lamps at the 

manufacturer-declared input voltage 

and current and instead specify that 

non-integrated lamps be operated on a 

fluorescent lamp ballast, HID lamp 

ballast or external LED driver. Based on 

comments from manufacturers, the 

instruction reflects how these lamps are 

currently being tested by manufacturers 

(see III.B.3 of this document). 

Additionally, the DesignLights 

Consortium (‘‘DLC’’) administers a 

voluntary certification program for high 

performing lighting products and lists 

almost 6,000 non-integrated lamps as 

qualified products. DLC testing 

requirements for non-linear integrated 

lamps,17 which manufacturers must use 

to qualify their products, also require 

testing on a fluorescent lamp ballast or 

external LED driver. DOE has 

determined that manufacturers would 

be able to rely on data already generated 

for such lamps. As such, DOE has 

determined that the clarifications would 

not impact the representations of GSL 

energy efficiency. 

In summary, DOE does not expect that 

the clarifications outlined in the 

November 2024 NOPR, and that are 

being adopted in this final rule, will 

result in increased costs or burden to 

manufacturers. 

D. Effective and Compliance Dates 

The effective date for the adopted test 

procedure amendment will be 30 days 

after publication of this final rule in the 

Federal Register. EPCA prescribes that 

all representations of energy efficiency 

and energy use, including those made 

on marketing materials and product 

labels, must be made in accordance with 

an amended test procedure, beginning 

180 days after publication of the final 

rule in the Federal Register. (42 U.S.C. 

6293(c)(2)) EPCA provides an allowance 

for individual manufacturers to petition 

DOE for an extension of the 180-day 

period if the manufacturer may 

experience undue hardship in meeting 

the deadline. (42 U.S.C. 6293(c)(3)) To 

receive such an extension, petitions 

must be filed with DOE no later than 60 

days before the end of the 180-day 

period and must detail how the 

manufacturer will experience undue 

hardship. (Id.) 

IV. Procedural Issues and Regulatory 

Review 

A. Review Under Executive Orders 

12866, 13563, and 14094 

Executive Order (‘‘E.O.’’) 12866, 

‘‘Regulatory Planning and Review,’’ as 

supplemented and reaffirmed by E.O. 

13563, ‘‘Improving Regulation and 

Regulatory Review,’’ 76 FR 3821 (Jan. 

21, 2011) and amended by E.O. 14094, 

‘‘Modernizing Regulatory Review,’’ 88 

FR 21879 (April 11, 2023), requires 

agencies, to the extent permitted by law, 

to: (1) propose or adopt a regulation 

only upon a reasoned determination 

that its benefits justify its costs 

(recognizing that some benefits and 

costs are difficult to quantify); (2) tailor 

regulations to impose the least burden 

on society, consistent with obtaining 

regulatory objectives, taking into 

account, among other things, and to the 

extent practicable, the costs of 


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18U.S. Department of Energy Compliance 

Certification Database, available at: 

www.regulations.doe.gov/certification-data/ 

products.html. 

cumulative regulations; (3) select, in 

choosing among alternative regulatory 

approaches, those approaches that 

maximize net benefits (including 

potential economic, environmental, 

public health and safety, and other 

advantages; distributive impacts; and 

equity); (4) to the extent feasible, specify 

performance objectives, rather than 

specifying the behavior or manner of 

compliance that regulated entities must 

adopt; and (5) identify and assess 

available alternatives to direct 

regulation, including providing 

economic incentives to encourage the 

desired behavior, such as user fees or 

marketable permits, or providing 

information upon which choices can be 

made by the public. DOE emphasizes as 

well that E.O. 13563 requires agencies to 

use the best available techniques to 

quantify anticipated present and future 

benefits and costs as accurately as 

possible. In its guidance, the Office of 

Information and Regulatory Affairs 

(‘‘OIRA’’) in the Office of Management 

and Budget (‘‘OMB’’) has emphasized 

that such techniques may include 

identifying changing future compliance 

costs that might result from 

technological innovation or anticipated 

behavioral changes. For the reasons 

stated in the preamble, this final 

regulatory action is consistent with 

these principles. 

Section 6(a) of E.O. 12866 also 

requires agencies to submit ‘‘significant 

regulatory actions’’ to OIRA for review. 

OIRA has determined that this final 

regulatory action does not constitute a 

‘‘significant regulatory action’’ under 

section 3(f) of E.O. 12866. Accordingly, 

this action was not submitted to OIRA 

for review under E.O. 12866. 

B. Review Under the Regulatory 

Flexibility Act 

The Regulatory Flexibility Act (5 

U.S.C. 601 et seq.) requires preparation 

of a final regulatory flexibility analysis 

(‘‘FRFA’’) for any final rule where the 

agency was first required by law to 

publish a proposed rule for public 

comment, unless the agency certifies 

that the rule, if promulgated, will not 

have a significant economic impact on 

a substantial number of small entities. 

As required by Executive Order 13272, 

‘‘Proper Consideration of Small Entities 

in Agency Rulemaking,’’ 67 FR 53461 

(August 16, 2002), DOE published 

procedures and policies on February 19, 

2003 to ensure that the potential 

impacts of its rules on small entities are 

properly considered during the DOE 

rulemaking process. 68 FR 7990. DOE 

has made its procedures and policies 

available on the Office of the General 

Counsel’s website: www.energy.gov/gc/ 

office-general-counsel. DOE reviewed 

this final rule under the provisions of 

the Regulatory Flexibility Act and the 

procedures and policies published on 

February 19, 2003. 

DOE has conducted a focused inquiry 

into small business manufacturers of the 

GSLs covered by this rulemaking. For 

this test procedure, DOE referenced the 

small business list created for the April 

2024 Final Rule. In that final rule, DOE 

identified potential small manufacturers 

based on Small Business Administration 

guidelines categorizing businesses 

operating under North American 

Industry Classification System code 

335139, ‘‘electric lamp bulb and other 

lighting equipment manufacturing’’, 

with under 1,250 employees (including 

parent and affiliate companies) as a 

small business. The size standards are 

codified at 13 CFR part 121. DOE 

accessed the Compliance Certification 

Database 18 to create a list of companies 

that import or otherwise manufacture 

the GSLs covered by this final rule. 

Using information from D&B Hoovers, 

DOE screened out companies that have 

more than 1,250 employees, are 

completely foreign owned and operated, 

or do not manufacture GSLs in the 

United States—ultimately identifying 

261 small domestic businesses that 

assemble GSLs. 

None of the identified small 

businesses are expected to incur costs 

because of the clarifications adopted in 

this rule. The clarifications to GSL test 

procedures being adopted in this final 

rule only provide further clarification 

regarding how to appropriately test 

certain lamps with additional 

functionality. These clarifications 

would not result in additional test costs, 

nor would they require retesting for any 

manufacturers. DOE is also adopting 

clarifications regarding testing nonintegrated GSLs which reflect how these 

lamps are currently being tested by 

manufacturers and therefore, would also 

not result in additional test costs nor 

require retesting by any 

manufacturers—including small 

manufacturers. 

An individual stated that the 

proposed changes could create 

significant financial challenges for small 

businesses, especially those without the 

resources (e.g., specialized equipment, 

trained personnel, and a controlled 

testing environment) to conduct the 

required testing. The individual 

recommended that DOE consider 

simplifying the testing requirements or 

offering financial support through 

grants, loans, or extended deadlines for 

small manufacturers. (Individual, No. 6 

at p. 1) 

DOE notes that the test procedure 

amendments established in this final 

rule are not estimated to increase 

manufacturer testing costs and are 

intended as clarifications for 

manufacturers, corresponding to how 

those manufacturers have been testing 

covered products. 

Therefore, DOE concludes that the 

cost effects accruing from the final rule 

would not have a ‘‘significant economic 

impact on a substantial number of small 

entities,’’ and that the preparation of a 

FRFA is not warranted. DOE has 

submitted a certification and supporting 

statement of factual basis to the Chief 

Counsel for Advocacy of the Small 

Business Administration for review 

under 5 U.S.C. 605(b). 

C. Review Under the Paperwork 

Reduction Act of 1995 

Manufacturers of GSLs must certify to 

DOE that their products comply with 

any applicable energy conservation 

standards. To certify compliance, 

manufacturers must first obtain test data 

for their products according to the DOE 

test procedures, including any 

amendments adopted for those test 

procedures. DOE has established 

regulations for the certification and 

recordkeeping requirements for all 

covered consumer products and 

commercial equipment, including GSLs. 

(See generally 10 CFR part 429.) The 

collection-of-information requirement 

for the certification and recordkeeping 

is subject to review and approval by 

OMB under the Paperwork Reduction 

Act (‘‘PRA’’). This requirement has been 

approved by OMB under OMB control 

number 1910–1400. Public reporting 

burden for the certification is estimated 

to average 35 hours per response, 

including the time for reviewing 

instructions, searching existing data 

sources, gathering and maintaining the 

data needed, and completing and 

reviewing the collection of information. 

DOE is not amending the certification 

or reporting requirements for GSLs in 

this final rule. 

Notwithstanding any other provision 

of the law, no person is required to 

respond to, nor shall any person be 

subject to a penalty for failure to comply 

with, a collection of information subject 

to the requirements of the PRA, unless 

that collection of information displays a 

currently valid OMB Control Number. 


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4600 Federal Register / Vol. 90, No. 10 / Thursday, January 16, 2025 / Rules and Regulations 

D. Review Under the National 

Environmental Policy Act of 1969 

In this final rule, DOE establishes test 

procedure amendments that it expects 

will be used to develop and implement 

future energy conservation standards for 

GSLs. DOE has determined that this rule 

falls into a class of actions that are 

categorically excluded from review 

under the National Environmental 

Policy Act of 1969 (42 U.S.C. 4321 et 

seq.) and DOE’s implementing 

regulations at 10 CFR part 1021. 

Specifically, DOE has determined that 

adopting test procedures for measuring 

energy efficiency of consumer products 

and industrial equipment is consistent 

with activities identified in 10 CFR part 

1021, appendix A to subpart D, A5 and 

A6. Accordingly, neither an 

environmental assessment nor an 

environmental impact statement is 

required. 

E. Review Under Executive Order 13132 

Executive Order 13132, ‘‘Federalism,’’ 

64 FR 43255 (August 4, 1999), imposes 

certain requirements on agencies 

formulating and implementing policies 

or regulations that preempt State law or 

that have federalism implications. The 

Executive order requires agencies to 

examine the constitutional and statutory 

authority supporting any action that 

would limit the policymaking discretion 

of the States and to carefully assess the 

necessity for such actions. The 

Executive order also requires agencies to 

have an accountable process to ensure 

meaningful and timely input by State 

and local officials in the development of 

regulatory policies that have federalism 

implications. On March 14, 2000, DOE 

published a statement of policy 

describing the intergovernmental 

consultation process it will follow in the 

development of such regulations. 65 FR 

13735. DOE examined this final rule 

and determined that it will not have a 

substantial direct effect on the States, on 

the relationship between the national 

government and the States, or on the 

distribution of power and 

responsibilities among the various 

levels of government. EPCA governs and 

prescribes Federal preemption of State 

regulations as to energy conservation for 

the products that are the subject of this 

final rule. States can petition DOE for 

exemption from such preemption to the 

extent, and based on criteria, set forth in 

EPCA. (42 U.S.C. 6297(d)) No further 

action is required by Executive Order 

13132. 

F. Review Under Executive Order 12988 

Regarding the review of existing 

regulations and the promulgation of 

new regulations, section 3(a) of 

Executive Order 12988, ‘‘Civil Justice 

Reform,’’ 61 FR 4729 (February 7, 1996), 

imposes on Federal agencies the general 

duty to adhere to the following 

requirements: (1) eliminate drafting 

errors and ambiguity, (2) write 

regulations to minimize litigation, (3) 

provide a clear legal standard for 

affected conduct rather than a general 

standard, and (4) promote simplification 

and burden reduction. Section 3(b) of 

Executive Order 12988 specifically 

requires that Executive agencies make 

every reasonable effort to ensure that the 

regulation: (1) clearly specifies the 

preemptive effect, if any; (2) clearly 

specifies any effect on existing Federal 

law or regulation; (3) provides a clear 

legal standard for affected conduct 

while promoting simplification and 

burden reduction; (4) specifies the 

retroactive effect, if any; (5) adequately 

defines key terms; and (6) addresses 

other important issues affecting clarity 

and general draftsmanship under any 

guidelines issued by the Attorney 

General. Section 3(c) of Executive Order 

12988 requires Executive agencies to 

review regulations in light of applicable 

standards in sections 3(a) and 3(b) to 

determine whether they are met or it is 

unreasonable to meet one or more of 

them. DOE has completed the required 

review and determined that, to the 

extent permitted by law, this final rule 

meets the relevant standards of 

Executive Order 12988. 

G. Review Under the Unfunded 

Mandates Reform Act of 1995 

Title II of the Unfunded Mandates 

Reform Act of 1995 (‘‘UMRA’’) requires 

each Federal agency to assess the effects 

of Federal regulatory actions on State, 

local, and Tribal governments and the 

private sector. Public Law 104–4, sec. 

201 (codified at 2 U.S.C. 1531). For a 

regulatory action resulting in a rule that 

may cause the expenditure by State, 

local, and Tribal governments, in the 

aggregate, or by the private sector of 

$100 million or more in any one year 

(adjusted annually for inflation), section 

202 of UMRA requires a Federal agency 

to publish a written statement that 

estimates the resulting costs, benefits, 

and other effects on the national 

economy. (2 U.S.C. 1532(a)–(b)) The 

UMRA also requires a Federal agency to 

develop an effective process to permit 

timely input by elected officers of State, 

local, and Tribal governments on a 

proposed ‘‘significant intergovernmental 

mandate,’’ and requires an agency plan 

for giving notice and opportunity for 

timely input to potentially affected 

small governments before establishing 

any requirements that might 

significantly or uniquely affect small 

governments. On March 18, 1997, DOE 

published a statement of policy on its 

process for intergovernmental 

consultation under UMRA. 62 FR 

12820; also available at 

www.energy.gov/gc/office-generalcounsel. DOE examined this final rule 

according to UMRA and its statement of 

policy and determined that the rule 

contains neither an intergovernmental 

mandate, nor a mandate that may result 

in the expenditure of $100 million or 

more in any year, so these requirements 

do not apply. 

H. Review Under the Treasury and 

General Government Appropriations 

Act, 1999 

Section 654 of the Treasury and 

General Government Appropriations 

Act, 1999 (Pub. L. 105–277) requires 

Federal agencies to issue a Family 

Policymaking Assessment for any 

proposed rule or policy that may affect 

family well-being. When developing a 

Family Policymaking Assessment, 

agencies must assess whether: (1) the 

action strengthens or erodes the stability 

or safety of the family and, particularly, 

the marital commitment; (2) the action 

strengthens or erodes the authority and 

rights of parents in the education, 

nurture, and supervision of their 

children; (3) the action helps the family 

perform its functions, or substitutes 

governmental activity for the function; 

(4) the action increases or decreases 

disposable income or poverty of families 

and children; (5) the benefits of the 

action justify the financial impact on the 

family; (6) the action may be carried out 

by State or local government or by the 

family; and whether (7) the action 

establishes an implicit or explicit policy 

concerning the relationship between the 

behavior and personal responsibility of 

youth, and the norms of society. In 

evaluating the above factors, DOE has 

concluded that it is not necessary to 

prepare a Family Policymaking 

Assessment as none of the above factors 

are implicated. Further, this 

determination would not have any 

financial impact on families nor any 

impact on the autonomy or integrity of 

the family as an institution. 

I. Review Under Executive Order 12630 

DOE has determined, under Executive 

Order 12630, ‘‘Governmental Actions 

and Interference with Constitutionally 

Protected Property Rights’’ 53 FR 8859 

(March 18, 1988), that this regulation 

will not result in any takings that might 

require compensation under the Fifth 

Amendment to the U.S. Constitution. 


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Federal Register / Vol. 90, No. 10 / Thursday, January 16, 2025 / Rules and Regulations 4601 

19 Illuminating Engineering Society, IES 

Approved Method for the Electrical and 

Photometric Measurement of Fluorescent Lamps, 

Approved January 31, 2009. 

20 Illuminating Engineering Society, IES 

Approved Method: Photometry of Reflector Type 

Lamps, Approved February 4, 2013. 

21 Illuminating Engineering Society, IES 

Approved Method: Electrical and Photometric 

Measurement of General Service Incandescent 

Filament Lamps, Approved August 8, 2015. 

22 Illuminating Engineering Society, IES LM–79– 

08 Approved Method: Electrical and Photometric 

Measurements of Solid-State Lighting Products, 

Approved December 31, 2007. 

J. Review Under Treasury and General 

Government Appropriations Act, 2001 

Section 515 of the Treasury and 

General Government Appropriations 

Act, 2001 (44 U.S.C. 3516 note) provides 

for agencies to review most 

disseminations of information to the 

public under guidelines established by 

each agency pursuant to general 

guidelines issued by OMB. OMB’s 

guidelines were published at 67 FR 

8452 (Feb. 22, 2002), and DOE’s 

guidelines were published at 67 FR 

62446 (Oct. 7, 2002). Pursuant to OMB 

Memorandum M–19–15, Improving 

Implementation of the Information 

Quality Act (April 24, 2019), DOE 

published updated guidelines which are 

available at www.energy.gov/sites/prod/ 

files/2019/12/f70/DOE%20Final

%20Updated%20IQA%20Guidelines

%20Dec%202019.pdf. DOE has 

reviewed this final rule under the OMB 

and DOE guidelines and has concluded 

that it is consistent with applicable 

policies in those guidelines. 

K. Review Under Executive Order 13211 

Executive Order 13211, ‘‘Actions 

Concerning Regulations That 

Significantly Affect Energy Supply, 

Distribution, or Use,’’ 66 FR 28355 (May 

22, 2001), requires Federal agencies to 

prepare and submit to OMB, a 

Statement of Energy Effects for any 

significant energy action. A ‘‘significant 

energy action’’ is defined as any action 

by an agency that promulgates or is 

expected to lead to promulgation of a 

final rule, and that: (1) is a significant 

regulatory action under Executive Order 

12866, or any successor order, and is 

likely to have a significant adverse effect 

on the supply, distribution, or use of 

energy; or (2) is designated by the 

Administrator of OIRA as a significant 

energy action. For any significant energy 

action, the agency must give a detailed 

statement of any adverse effects on 

energy supply, distribution, or use if the 

regulation is implemented, and of 

reasonable alternatives to the action and 

their expected benefits on energy 

supply, distribution, and use. 

This regulatory action is not a 

significant regulatory action under 

Executive Order 12866. Moreover, it 

would not have a significant adverse 

effect on the supply, distribution, or use 

of energy, nor has it been designated as 

a significant energy action by the 

Administrator of OIRA. Therefore, it is 

not a significant energy action, and, 

accordingly, DOE has not prepared a 

Statement of Energy Effects. 

L. Review Under Section 32 of the 

Federal Energy Administration Act of 

1974 

Under section 301 of the Department 

of Energy Organization Act (Pub. L. 95– 

91; 42 U.S.C. 7101), DOE must comply 

with section 32 of the Federal Energy 

Administration Act of 1974, as amended 

by the Federal Energy Administration 

Authorization Act of 1977. (15 U.S.C. 

788; ‘‘FEAA’’) Section 32 essentially 

provides in relevant part that, where a 

proposed rule authorizes or requires use 

of commercial standards, the notice of 

proposed rulemaking must inform the 

public of the use and background of 

such standards. In addition, section 

32(c) requires DOE to consult with the 

Attorney General and the Chairman of 

the Federal Trade Commission (‘‘FTC’’) 

concerning the impact of the 

commercial or industry standards on 

competition. 

The modifications to the test 

procedures for general service lamps 

adopted in this final rule do not 

incorporate any new commercial 

standards or test procedures that are not 

already incorporated by reference at 10 

CFR 430.3 and therefore DOE has not reassessed such standards as part of this 

final rule. 

M. Congressional Notification 

As required by 5 U.S.C. 801, DOE will 

report to Congress on the promulgation 

of this rule before its effective date. The 

report will state that it has been 

determined that the rule is not a ‘‘major 

rule’’ as defined by 5 U.S.C. 804(2). 

N. Description of Materials Incorporated 

by Reference 

The following standards were 

previously approved for incorporation 

by reference in the regulatory sections 

where they appear, and no changes are 

made: IEC 62031–DD, IES LM–9–09– 

DD,19 IES LM–20–13,20 IES LM–45– 

15,21 and IES LM–79–08–DD.22

V. Approval of the Office of the 

Secretary 

The Secretary of Energy has approved 

publication of this final rule. 

List of Subjects in 10 CFR Part 430 

Administrative practice and 

procedure, Confidential business 

information, Energy conservation, 

Household appliances, Imports, 

Incorporation by reference, 

Intergovernmental relations, Small 

businesses. 

Signing Authority 

This document of the Department of 

Energy was signed on January 10, 2025, 

by Jeffrey Marootian, Principal Deputy 

Assistant Secretary for Energy Efficiency 

and Renewable Energy, pursuant to 

delegated authority from the Secretary 

of Energy. That document with the 

original signature and date is 

maintained by DOE. For administrative 

purposes only, and in compliance with 

requirements of the Office of the Federal 

Register, the undersigned DOE Federal 

Register Liaison Officer has been 

authorized to sign and submit the 

document in electronic format for 

publication, as an official document of 

the Department of Energy. This 

administrative process in no way alters 

the legal effect of this document upon 

publication in the Federal Register. 

Signed in Washington, DC, on January 10, 

2025. 

Treena V. Garrett, 

Federal Register Liaison Officer, U.S. 

Department of Energy. 

For the reasons stated in the 

preamble, DOE amends part 430 of 

Chapter II of Title 10, Code of Federal 

Regulations as set forth below: 

PART 430—ENERGY CONSERVATION 

PROGRAM FOR CONSUMER 

PRODUCTS 

■ 1. The authority citation for part 430 

continues to read as follows: 

Authority: 42 U.S.C. 6291–6309; 28 U.S.C. 

2461 note. 

■ 2. Amend appendix W to subpart B 

by: 

■ a. Revising the note at the beginning 

of the appendix; 

■ a. Redesignating sections 3.1.5 

through 3.1.7 as sections 3.1.6 through 

3.1.8; and 

■ b. Adding new section 3.1.5 and 

section 3.1.9. 

The additions read as follows: 

Appendix W to Subpart B of Part 430— 

Uniform Test Method for Measuring the 

Energy Consumption of Compact 

Fluorescent Lamps 

Note 1 to appendix W to subpart B: On and 

after July 15, 2025, any representations made 

with respect to the energy efficiency of 

compact fluorescent lamps must be made in 

accordance with the results of testing 


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pursuant to this appendix W. Manufacturers 

conducting tests of compact fluorescent 

lamps prior to July 15, 2025, must conduct 

such tests in accordance with either this 

appendix or the procedures in appendix W 

as it appeared in the Code of Federal 

Regulations on January 1, 2023. Any 

representations made with respect to the 

energy efficiency of compact fluorescent 

lamps must be in accordance with whichever 

version is selected. 

* * * * * 

3. * * * 

3.1. * * * 

3.1.5. If the lamp can operate in multiple 

modes at the labeled wattage, operate the 

lamp as not a colored lamp (as defined in 10 

CFR 430.2). If multiple modes occur at the 

same labeled wattage (such as variable CCT 

or CRI), select any of these modes for testing; 

however, all measurements must be taken at 

the same selected mode. The test report must 

specify which mode was selected for testing 

and include details such that another 

laboratory can replicate the test at the same 

mode. 

* * * * * 

3.1.9. For a CFL that has one or more 

component(s) that offer a completely 

different functionality (e.g., a speaker, a 

camera, an air purifier, etc.) where the 

component is integrated into the lamp but 

does not affect the light output of the lamp 

(e.g., does not turn the light on/off, dim the 

light, change the color of the light, etc.) and 

is capable of operating in standby mode, turn 

off as many of these components as possible 

during testing, without permanently altering 

the product. Permanently altering the 

product constitutes the cutting of wires, use 

of a soldering iron, or damage to or 

destruction of the lamp and does not 

constitute connecting or disconnecting wire 

nuts, fasteners or screws, or preserving the 

lamp as it was sold. If such components 

cannot be turned off without permanently 

altering the product, their energy 

consumption must be included in 

measurements. The test report must specify 

which components were turned off and any 

features that remained on. 

* * * * * 

■ 3. Amend appendix BB to subpart B 

by: 

■ a. Revising the note at the beginning 

of the appendix; 

■ b. Revising section 3.1.4; and 

■ c. Adding section 3.1.5. 

The revisions and addition read as 

follows: 

Appendix BB to Subpart B of Part 430— 

Uniform Test Method for Measuring the 

Input Power, Lumen Output, Lamp 

Efficacy, Correlated Color Temperature 

(CCT), Color Rendering Index (CRI), 

Power Factor, Time to Failure, and 

Standby Mode Power of Integrated 

Light-Emitting Diode (LED) Lamps 

Note 1 to appendix BB to subpart B: On 

and after July 15, 2025, any representations 

made with respect to the energy efficiency of 

integrated LED lamps must be made in 

accordance with the results of testing 

pursuant to this appendix BB. Manufacturers 

conducting tests of integrated LED lamps 

prior to July 15, 2025, must conduct such 

tests in accordance with either this appendix 

or the previous version of appendix BB as it 

appeared in the Code of Federal Regulations 

on January 1, 2023. Any representations 

made with respect to the energy efficiency of 

integrated LED lamps must be in accordance 

with whichever version is selected. 

* * * * * 

3. * * * 

3.1. * * * 

3.1.4. Ensure that the lamp is not operating 

as a colored lamp (as defined in 10 CFR 

430.2) and operate the lamp at maximum 

input power. If multiple modes occur at the 

same maximum input power (such as 

variable CCT or CRI), select any of these 

modes for testing; however, all measurements 

must be taken at the same selected mode. The 

test report must specify which mode was 

selected for testing and include details such 

that another laboratory can replicate the test 

at the same mode. 

3.1.5. For a lamp that has one or more 

component(s) that offer a completely 

different functionality (e.g., a speaker, a 

camera, an air purifier, etc.) where the 

component is integrated into the lamp but 

does not affect the light output of the lamp 

(e.g., does not turn the light on/off, dim the 

light, change the color of the light, etc.) and 

is capable of operating in standby mode, turn 

off as many of these components as possible 

during testing, without permanently altering 

the product. Permanently altering the 

product constitutes the cutting of wires, use 

of a soldering iron, or damage to or 

destruction of the lamp and does not 

constitute connecting or disconnecting wire 

nuts, fasteners or screws, or preserving the 

lamp as it was sold. If such components 

cannot be turned off without permanently 

altering the product, their energy 

consumption must be included in 

measurements. The test report must specify 

which components were turned off and any 

features that remained on. 

* * * * * 

■ 4. Revise appendix DD to subpart B to 

read as follows: 

Appendix DD to Subpart B of Part 

430—Uniform Test Method for 

Measuring the Energy Consumption 

and Energy Efficiency of General 

Service Lamps That Are Not General 

Service Incandescent Lamps, Compact 

Fluorescent Lamps, or Integrated LED 

Lamps 

Note 1 to appendix DD to subpart B: On 

and after July 15, 2025, any representations 

made with respect to the energy efficiency of 

general service lamps that are not general 

service incandescent lamps, compact 

fluorescent lamps, or integrated LED lamps 

must be made in accordance with the results 

of testing pursuant to this appendix DD. 

Manufacturers conducting tests of such 

general service lamps prior to July 15, 2025, 

must conduct such tests in accordance with 

either this appendix or the version of 

appendix DD as it appeared in the Code of 

Federal Regulations on January 1, 2023. Any 

representations made with respect to the 

energy efficiency of such general service 

lamp must be in accordance with whichever 

version is selected. 1. Scope: This appendix 

DD specifies the test methods required to 

measure the initial lumen output, input 

power, lamp efficacy, power factor, and 

standby mode energy consumption of general 

service lamps that are not general service 

incandescent lamps, compact fluorescent 

lamps, or integrated LED lamps. 

2. Definitions: 

Commercially available fluorescent lamp 

ballast, high intensity discharge (‘‘HID’’) 

ballast, or external LED driver means one that 

can be purchased by an individual consumer 

at a readily accessible retailer (i.e., retailer 

with storefront or online purchasing). 

Measured initial input power means the 

input power to the lamp, measured after the 

lamp is stabilized and seasoned (if 

applicable), and expressed in watts (W). 

Measured initial lumen output means the 

lumen output of the lamp, measured after the 

lamp is stabilized and seasoned (if 

applicable), and expressed in lumens (lm). 

Power factor means the measured initial 

input power (watts) divided by the product 

of the input voltage (volts) and the input 

current (amps) measured at the same time as 

the initial input power. 

Publicly available manufacturer-provided 

compatibility list means a list or statement 

made available by the manufacturer on the 

manufacturer’s official website or made 

available by the manufacturer through 

publicly available documents (e.g., product 

literature, catalogs, and packaging labels), 

that provides information on ballasts or 

external LED drivers that are compatible with 

the lamp. 

3. Active Mode Test Procedures 

3.1. Test Conditions and Setup 

3.1.1. For single base OLED and nonintegrated LED lamps, position a lamp in 

either the base-up and base-down orientation 

throughout testing. Test an equal number of 

lamps in the sample in the base-up and basedown orientations, except that, if the 

manufacturer restricts the orientation, test all 

of the units in the sample in the 

manufacturer-specified orientation. For 

double base OLED and non-integrated LED 

lamps, test all units in the horizontal 

orientation except that, if the manufacturer 

restricts the orientation, test all of the units 

in the sample in the manufacturer-specified 

orientation. 

3.1.2. For integrated lamps, operate the 

lamp at the rated voltage throughout testing. 

For lamps with multiple rated voltages 

including 120 volts, operate the lamp at 120 

volts. If a lamp is not rated for 120 volts, 

operate the lamp at the highest rated input 

voltage. 

3.1.3. For non-integrated lamps, operate 

the lamp on a fluorescent lamp ballast, HID 

lamp ballast, or external LED driver in order 

of the following preference: 

3.1.3.1. Select a commercially available 

fluorescent lamp ballast, HID lamp ballast, or 

external LED driver from the lamp’s publicly 

available manufacturer-provided 

compatibility list. The test report must 


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specify the manufacturer and model name/ 

number of the fluorescent lamp ballast, HID 

lamp ballast, or external LED driver used in 

the test. 

3.1.3.1.1. If all ballasts on the publicly 

available manufacturer-provided 

compatibility list use the same starting 

method, then select a ballast with that 

starting method to test the lamp. 

3.1.3.1.1.1. If ballasts on the publicly 

available manufacturer-provided 

compatibility list are available with multiple 

ballast factors, then select a ballast with a 

ballast factor based on lamp type specified in 

Table 3.1. If the ballast factor in the table is 

not available among ballasts on the publicly 

available manufacturer-provided 

compatibility list, select a ballast with a 

ballast factor closest to the one listed in the 

table: 

TABLE 3.1—BALLAST FACTOR BY LAMP

TYPE

Lamp type Ballast factor 

T8 medium bipin ........... 0.88. 

T8 recessed double 

contact.

1.05. 

T5 miniature bipin ......... 1. 

T12 single pin, slimline Any. 

T12 medium bipin ......... Any. 

T12 recessed double 

contact.

Any. 

All other lamp types ...... Any. 

3.1.3.1.2. If ballasts on the publicly 

available manufacturer-provided 

compatibility list are available with multiple 

starting methods, then select a ballast with a 

starting method based on lamp type specified 

in Table 3.2. If the starting method in the 

table is not available among ballasts on the 

publicly available manufacturer-provided 

compatibility list, select any starting method 

on the publicly available manufacturerprovided compatibility list: 

TABLE 3.2—STARTING METHOD BY

LAMP TYPE

Lamp type Starting method 

T8 medium bipin ........... Instant Start. 

T8 recessed double 

contact.

Instant Start. 

T5 miniature bipin ......... Programmed Start. 

T12 single pin, slimline Instant Start. 

T12 medium bipin ......... Rapid Start. 

T12 recessed double 

contact.

Rapid Start. 

All other lamp types ...... Any. 

3.1.3.1.2.1. If ballasts on the publicly 

available manufacturer-provided 

compatibility list are available with multiple 

ballast factors, then select a ballast with a 

ballast factor based on lamp type specified in 

Table 3.3. If the ballast factor in the table is 

not available among ballasts on the publicly 

available manufacturer-provided 

compatibility list, select a ballast with a 

ballast factor closest to the one listed in the 

table: 

TABLE 3.3—BALLAST FACTOR BY LAMP

TYPE

Lamp type Ballast factor 

T8 medium bipin ........... 0.88. 

T8 recessed double 

contact.

1.05. 

T5 miniature bipin ......... 1. 

T12 single pin, slimline Any. 

T12 medium bipin ......... Any. 

T12 recessed double 

contact.

Any. 

All other lamp types ...... Any. 

3.1.3.2. If the procedure in section 3.1.3.1 

is not possible, select any commercially 

available fluorescent lamp ballast, HID lamp 

ballast, or external LED driver that can 

operate the lamp throughout the duration of 

the test. The test report must specify the 

manufacturer and model name/number of the 

fluorescent lamp ballast, HID lamp ballast, or 

external LED driver used in the test. 

3.1.3.2.1. If all commercially available 

ballasts use the same starting method, then 

select a ballast with that starting method to 

test the lamp. 

3.1.3.2.1.1. If commercially available 

ballasts are available with multiple ballast 

factors, then select a ballast with a ballast 

factor based on lamp type specified in Table 

3.4. If the ballast factor in the table is not 

available among commercially available 

ballasts, select a ballast with a ballast factor 

closest to the one listed in the table: 

TABLE 3.4—BALLAST FACTOR BY LAMP

TYPE

Lamp type Ballast factor 

T8 medium bipin ........... 0.88. 

T8 recessed double 

contact.

1.05. 

T5 miniature bipin ......... 1. 

T12 single pin, slimline Any. 

T12 medium bipin ......... Any. 

T12 recessed double 

contact.

Any. 

All other lamp types ...... Any. 

3.1.3.2.2. If commercially available ballasts 

are available with multiple starting methods, 

then select a ballast with a starting method 

based on lamp type specified in Table 3.5. If 

the starting method in the table is not 

available among commercially available 

ballasts, select any starting method: 

TABLE 3.5—STARTING METHOD BY

LAMP TYPE

Lamp type Starting method 

T8 medium bipin ........... Instant Start. 

T8 recessed double 

contact.

Instant Start. 

T5 miniature bipin ......... Programmed Start. 

T12 single pin, slimline Instant Start. 

T12 medium bipin ......... Rapid Start. 

T12 recessed double 

contact.

Rapid Start. 

All other lamp types ...... Any. 

3.1.3.2.2.1. If commercially available 

ballasts are available with multiple ballast 

factors, then select a ballast with a ballast 

factor based on lamp type specified in Table 

3.6. If the ballast factor in the table is not 

available among commercially available 

ballasts, select a ballast with a ballast factor 

closest to the one listed in the table: 

TABLE 3.6—BALLAST FACTOR BY LAMP

TYPE

Lamp type Ballast factor 

T8 medium bipin ........... 0.88. 

T8 recessed double 

contact.

1.05. 

T5 miniature bipin ......... 1. 

T12 single pin, slimline Any. 

T12 medium bipin ......... Any. 

T12 recessed double 

contact.

Any. 

All other lamp types ...... Any. 

3.1.3.3. If the procedures in sections 3.1.3.1 

and 3.1.3.2 are not possible, use any 

previously procured fluorescent lamp ballast, 

HID lamp ballast, or external LED driver that 

can operate the lamp throughout the duration 

of the test. The test report must specify the 

manufacturer and model name/number of the 

fluorescent lamp ballast, HID lamp ballast, or 

external LED driver used in the test. 

3.1.3.3.1. If all previously procured ballasts 

use the same starting method, then select a 

ballast with that starting method to test the 

lamp. 

3.1.3.3.1.1. If previously procured ballasts 

are available with multiple ballast factors, 

then select a ballast with a ballast factor 

based on lamp type specified in Table 3.7. If 

the ballast factor in the table is not available 

among the previously procured ballasts, 

select a ballast with a ballast factor closest to 

the one listed in the table: 

TABLE 3.7—BALLAST FACTOR BY LAMP

TYPE

Lamp type Ballast factor 

T8 medium bipin ........... 0.88. 

T8 recessed double 

contact.

1.05. 

T5 miniature bipin ......... 1. 

T12 single pin, slimline Any. 

T12 medium bipin ......... Any. 

T12 recessed double 

contact.

Any. 

All other lamp types ...... Any. 

3.1.3.3.2. If previously procured ballasts 

are available with multiple starting methods, 

then select a ballast with a starting method 

based on lamp type specified in Table 3.8. If 

the starting method in the table is not 

available among the previously procured 

ballasts, select any starting method: 

TABLE 3.8—STARTING METHOD BY

LAMP TYPE

Lamp type Starting method 

T8 medium bipin ........... Instant Start. 


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TABLE 3.8—STARTING METHOD BY

LAMP TYPE—Continued 

Lamp type Starting method 

T8 recessed double 

contact.

Instant Start. 

T5 miniature bipin ......... Programmed Start. 

T12 single pin, slimline Instant Start. 

T12 medium bipin ......... Rapid Start. 

T12 recessed double 

contact.

Rapid Start. 

All other lamp types ...... Any. 

3.1.3.3.2.1. If previously procured ballasts 

are available with multiple ballast factors, 

then select a ballast with a ballast factor 

based on lamp type specified in Table 3.9. If 

the ballast factor in the table is not available 

among the previously procured ballasts, 

select a ballast with a ballast factor closest to 

the one listed in the table: 

TABLE 3.9—BALLAST FACTOR BY LAMP

TYPE

Lamp type Ballast factor 

T8 medium bipin ........... 0.88. 

T8 recessed double 

contact.

1.05. 

T5 miniature bipin ......... 1. 

T12 single pin, slimline Any. 

T12 medium bipin ......... Any. 

T12 recessed double 

contact.

Any. 

All other lamp types ...... Any. 

3.1.3.4. If the procedures in sections 

3.1.3.1, 3.1.3.2 and 3.1.3.3 are not possible 

and the lamp only operates on a low 

frequency, preheat start fluorescent lamp 

ballast, operate the lamp on the 

manufacturer-declared voltage and current. 

The test report must specify the voltage and 

current with which the lamp was operated. 

3.1.4. Operate the fluorescent lamp ballast, 

HID lamp ballast, or external LED driver 

loaded with the maximum number of lamps. 

Test one lamp at a time in the integrating 

sphere, while operating the other lamps 

outside of the sphere. Measure the initial 

lumen output, initial input power, input 

voltage, and input current for each lamp 

according to section 3.2.1. 

3.1.5. For a non-integrated lamp designed 

and marketed to replace a fluorescent lamp 

and operate on the existing fluorescent lamp 

ballast, conduct testing in accordance with 

the following setup provisions: 

3.1.5.1. Thermal conditions: A compatible 

combination of ballast and LED replacement 

lamp designed for direct replacement of 

linear fluorescent lamp sources must not 

result in the overheating of components. LED 

replacement lamps that are compatible with 

a given ballast must not cause the ballast to 

operate at a higher temperature or power 

than the fluorescent ballast ratings. The 

temperature measured at the Tc point must 

not exceed the rating of the ballast. For 

magnetic ballasts and electronic ballasts with 

no Tc point identified, the ballast enclosure 

must not exceed 90 degrees Celsius. 

3.1.5.2 Electrical conditions: LED 

replacement lamps must be measured with 

the ballast in the circuit, consistent with 

rated LED replacement lamp values on a 

given ballast condition (ballast type/ballast 

factor/lamp loading). Compatibility is based 

on the rated values specified by the LED 

lamp manufacturer. The lamp current must 

be equal to or less than the target lamp 

current. (The target lamp is the fluorescent 

lamp the replacement lamp is intended to 

replace.) The measured input power to the 

ballast must not exceed the rating of the 

ballast by more than 10%. 

3.1.6. For a non-integrated lamp designed 

and marketed to replace an HID lamp and 

operate on the existing HID lamp ballast, 

conduct testing in accordance with the 

following setup provisions: 

3.1.6.1. Thermal conditions: The LED 

replacement lamp must not exceed its 

maximum operational temperature rating as 

specified by the LED lamp manufacturer. 

3.1.6.2. Electrical conditions: LED 

replacement lamps must be measured with 

the ballast in the circuit, consistent with 

rated LED replacement lamp values on a 

given ballast condition (ballast type/ballast 

factor/lamp loading). Compatibility is based 

on the rated values specified by the LED 

replacement lamp manufacturer. The LED 

replacement lamp voltage must be in a range 

of +/¥15 percent of the nominal HID lamp 

voltage. The lamp current must be equal to 

or less than the target lamp current. (The 

target lamp is the HID lamp the device is 

intended to replace.) The measured input 

power to the ballast must not exceed the 

rating of the ballast by more than 10%. 

3.1.6.3. Ballast conditions: For magnetic 

ballasts: (1) the ballast capacitor voltage for 

magnetic ballasts must not exceed the 

capacitor rating and (2) the ballast must not 

exceed the temperature described in its 

ballast temperature code. For electronic 

ballasts, the temperature at the Tc point must 

be equal or less than described on the ballast 

label. 

3.1.7. Ensure that the lamp is not operating 

as a colored lamp (as defined in 10 CFR 

430.2) and operate the lamp at maximum 

input power. If multiple modes occur at the 

same maximum input power (such as 

variable CCT or CRI), select any of these 

modes for testing; however, all measurements 

must be taken at the same selected mode. The 

test report must specify which mode was 

selected for testing and include details such 

that another laboratory can replicate the test 

at the same mode. 

3.1.8. For a lamp that has one or more 

component(s) that offer a completely 

different functionality (e.g., a speaker, a 

camera, an air purifier, etc.) where the 

component is integrated into the lamp but 

does not affect the light output of the lamp 

(e.g., does not turn the light on/off, dim the 

light, change the color of the light, etc.) and 

is capable of operating in standby mode, turn 

off as many of these components as possible 

during testing, without permanently altering 

the product. Permanently altering the 

product constitutes the cutting of wires, use 

of a soldering iron, or damage to or 

destruction of the lamp and does not 

constitute connecting or disconnecting wire 

nuts, fasteners or screws, or preserving the 

lamp as it was sold. If such components 

cannot be turned off without permanently 

altering the product, their energy 

consumption must be included in 

measurements. The test report must specify 

which components were turned off and any 

features that remained on. 

3.2. Test Method, Measurements, and 

Calculations 

3.2.1. To measure initial lumen output, 

input power, input voltage, and input current 

use the test procedures in the table in this 

section. Do not use a goniophotometer. 

TABLE 3.10—REFERENCES TO INDUSTRY STANDARD TEST PROCEDURES

Lamp type Referenced test procedure 

Compact fluorescent lamps ...................................................................... Appendix W to subpart B of 10 CFR part 430. 

General service incandescent lamps ....................................................... Appendix R to subpart B of 10 CFR part 430. 

Integrated LED lamps ............................................................................... Appendix BB to subpart B of 10 CFR part 430. 

Non-integrated LED lamps ....................................................................... IES LM–79–08–DD, sections 1.3 (except 1.3f), 2.0, 3.0, 5.0, 7.0, 8.0, 

9.1 and 9.2.* 

OLED lamps ............................................................................................. IES LM–79–08–DD, sections 1.3 (except 1.3f), 2.0, 3.0, 5.0, 7.0, 8.0, 

9.1 and 9.2.* 

Other fluorescent lamps ........................................................................... IES LM–9–09–DD, sections 46, and section 7.5.* 

Other incandescent lamps that are not reflector lamps ........................... IES LM–45–15, sections 4–6, and section 7.1.* 

Other incandescent lamps that are reflector lamps ................................. IES LM–20–13, sections 4–6, and section 8.* 

* Incorporated by reference, see § 430.3. 

3.2.2. Determine initial lamp efficacy by 

dividing the measured initial lumen output 

(lumens) by the measured initial input power 

(watts). Per section 3.1.4, if multiple lamps 

were operated on the same ballast or external 

LED driver, determine the initial lamp 


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Federal Register / Vol. 90, No. 10 / Thursday, January 16, 2025 / Rules and Regulations 4605 

efficacy by calculating the initial lamp 

efficacy for each lamp and calculating the 

average. 

3.2.3. Determine power factor by dividing 

the measured initial input power (watts) by 

the product of the measured input voltage 

(volts) and measured input current (amps). 

Per section 3.1.4, if multiple lamps were 

operated on the same ballast or external LED 

driver, determine the power factor by 

calculating the power factor for each lamp 

and calculating the average. 

3.3. Standby Mode Test Procedure 

3.3.1. Measure standby mode power only 

for lamps that are capable of standby mode 

operation. 

3.3.2. The test conditions and setup 

described in section 3.1 of this appendix 

apply to this section. 

3.3.3. Connect the lamp to the 

manufacturer-specified wireless control 

network (if applicable) and configure the 

lamp in standby mode by sending a signal to 

the lamp instructing it to have zero light 

output. Lamp must remain connected to the 

network throughout testing. 

3.3.4. Operate the lamp at the rated voltage 

throughout testing. For lamps with multiple 

rated voltages including 120 volts, operate 

the lamp at 120 volts. If a lamp is not rated 

for 120 volts, operate the lamp at the highest 

rated input voltage. 

3.3.5. Stabilize the lamp prior to 

measurement as specified in section 5 of IEC 

62301–DD (incorporated by reference; see 

§ 430.3). 

3.3.6. Measure the standby mode power in 

watts as specified in section 5 of IEC 62301– 

DD (incorporated by reference; see § 430.3). 

[FR Doc. 2025–00821 Filed 1–15–25; 8:45 am] 

BILLING CODE 6450–01–P 

DEPARTMENT OF ENERGY 

10 CFR Part 430 

[EERE–2022–BT–STD–0025] 

RIN 1904–AF36 

Energy Conservation Program: Energy 

Conservation Standards for Portable 

Electric Spas 

AGENCY: Office of Energy Efficiency and 

Renewable Energy, Department of 

Energy. 

ACTION: Notice of data availability. 

SUMMARY: The U.S. Department of 

Energy (‘‘DOE’’) is publishing this 

notice of data availability (‘‘NODA’’) 

regarding certain data and analytical 

results being made available related to 

DOE’s evaluation of potential energy 

conservation standards for portable 

electric spas (‘‘PESs’’). 

DATES: Written comments and 

information will be accepted on or 

before, February 18, 2025. 

ADDRESSES: Interested persons are 

encouraged to submit comments using 

the Federal eRulemaking Portal at 

www.regulations.gov, under docket 

number EERE–2022–BT–STD–0025. 

Follow the instructions for submitting 

comments. Alternatively, interested 

persons may submit comments, 

identified by docket number EERE– 

2022–BT–STD–0025, by any of the 

following methods: 

Email: 

PortableElecSpas2022STD0025@

ee.doe.gov. Include the docket number 

EERE–2022–BT–STD–0025 in the 

subject line of the message. 

Postal Mail: Appliance and 

Equipment Standards Program, U.S. 

Department of Energy, Building 

Technologies Office, Mailstop EE–5B, 

1000 Independence Avenue SW, 

Washington, DC 20585–0121. 

Telephone: (202) 287–1445. If possible, 

please submit all items on a compact 

disc (‘‘CD’’), in which case it is not 

necessary to include printed copies. 

Hand Delivery/Courier: Appliance 

and Equipment Standards Program, U.S. 

Department of Energy, Building 

Technologies Office, 950 L’Enfant Plaza 

SW, 6th Floor, Washington, DC 20024. 

Telephone: (202) 287–1445. If possible, 

please submit all items on a CD, in 

which case it is not necessary to include 

printed copies. 

No telefacsimiles (‘‘faxes’’) will be 

accepted. For detailed instructions on 

submitting comments and additional 

information on this process, see section 

IV of this document. 

Docket: The docket for this activity, 

which includes Federal Register 

notices, comments, and other 

supporting documents/materials, 

including the data and analytical results 

being released with this notice, is 

available for review at 

www.regulations.gov. The data and 

analytical results being made available 

with this NODA is available on the 

docket and consist of: (1) a report titled 

NODA Support Document, and (2) 

accompanying spreadsheet-based 

analytical tools respectively 

corresponding to the Life-Cycle Cost 

and Payback Period Analysis, the 

National Impact Analysis, and the 

Manufacturer Impact Analysis. All 

documents in the docket are listed in 

the www.regulations.gov index. 

However, some documents listed in the 

index, such as those containing 

information that is exempt from public 

disclosure, may not be publicly 

available. The docket web page can be 

found at www.regulations.gov/docket/ 

EERE-2022-BT-STD-0025. The docket 

web page contains instructions on how 

to access all documents, including 

public comments, in the docket. 

FOR FURTHER INFORMATION CONTACT: 

Dr. Carl Shapiro, U.S. Department of 

Energy, Office of Energy Efficiency and 

Renewable Energy, Building 

Technologies Office, EE–5B, 1000 

Independence Avenue SW, Washington, 

DC 20585–0121. Telephone: (202) 287– 

5649. Email: 

ApplianceStandardsQuestions@

ee.doe.gov. 

Ms. Kristin Koernig, U.S. Department 

of Energy, Office of the General Counsel, 

GC–33, 1000 Independence Avenue SW, 

Washington, DC 20585–0121. 

Telephone: (202) 586–4798. Email: 

Kristin.koernig@hq.doe.gov. 

For further information on how to 

submit a comment, review other public 

comments and the docket, or participate 

in the public meeting, contact the 

Appliance and Equipment Standards 

Program staff at (202) 287–1445 or by 

email: ApplianceStandardsQuestions@

ee.doe.gov. 

SUPPLEMENTARY INFORMATION: 

EPCA authorizes DOE to regulate the 

energy efficiency of a number of 

consumer products and certain 

industrial equipment. (42 U.S.C. 6291– 

6317) Title III, Part B of EPCA 

established the Energy Conservation 

Program for Consumer Products Other 

Than Automobiles, which sets forth a 

variety of provisions designed to 

improve energy efficiency for certain 

consumer products, referred to generally 

as ‘‘covered products.’’ In addition to 

specifying a list of consumer products 

that are covered products, EPCA 

contains provisions that enable the 

Secretary of Energy to classify 

additional types of consumer products 

as covered products. (42 U.S.C. 6292(b)). 

On September 2, 2022, in a final 

determination published in the Federal 

Register (‘‘September 2022 NOFD’’), 

DOE determined that PESs meet the 

criteria for classification as a covered 

product pursuant to EPCA and 

classified PESs as a covered product. 87 

FR 54123. In the September 2022 NOFD, 

DOE established a definition of 

‘‘portable electric spa,’’ which was ‘‘a 

factory-built electric spa or hot tub, 

supplied with equipment for heating 

and circulating water at the time of sale 

or sold separately for subsequent 

attachment.’’ Id. at 87 FR 54125; see also 

10 CFR 430.2. 

Following this determination of 

coverage, DOE published a test 

procedure (‘‘TP’’) final rule for PESs in 

the Federal Register on June 13, 2023 

(‘‘June 2023 TP Final Rule’’). 88 FR 

38600. In the June 2023 TP Final Rule, 

DOE incorporated by reference an 

industry test method published by the 


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