29576 Federal Register / Vol. 87, No. 93 / Friday, May 13, 2022 / Proposed Rules 

DEPARTMENT OF ENERGY 

10 CFR Part 430 

[EERE–2020–BT–TP–0041] 

RIN 1904–AE15 

Energy Conservation Program: Test 

Procedure for Consumer Furnace Fans 

AGENCY: Office of Energy Efficiency and 

Renewable Energy, Department of 

Energy. 

ACTION: Notice of proposed rulemaking 

and request for comment. 

SUMMARY: The U.S. Department of 

Energy (‘‘DOE’’) proposes to amend the 

test procedure for consumer furnace 

fans to: Clarify the scope of 

applicability; incorporate by reference 

the most recent version of industry test 

methods; establish a test method for 

furnace fans incapable of operating at 

the required external static pressure; 

clarify testing of certain products, 

including furnace fans with modulating 

controls, furnace fans and modular 

blowers tested with electric heat kits, 

certain two-stage furnaces that operate 

at reduced input only for a preset period 

of time, dual-fuel furnaces, and certain 

oil-fired furnaces; and make updates to 

improve test procedure repeatability 

and reproducibility. DOE is seeking 

comment from interested parties on the 

proposals. 

DATES: DOE will accept comments, data, 

and information regarding this proposal 

no later than July 12, 2022. See section 

V, ‘‘Public Participation,’’ for details. 

DOE will hold a webinar on Thursday, 

May 19, 2022, from 1:00 p.m. to 3:00 

p.m. See section V, ‘‘Public 

Participation,’’ for webinar registration 

information, participant instructions, 

and information about the capabilities 

available to webinar participants. 

ADDRESSES: Interested persons are 

encouraged to submit comments using 

the Federal eRulemaking Portal at 

www.regulations.gov. Follow the 

instructions for submitting comments. 

Alternatively, interested persons may 

submit comments, identified by docket 

number EERE–2020–BT–TP–0041, by 

any of the following methods: 

1. Federal eRulemaking Portal: 

www.regulations.gov. Follow the 

instructions for submitting comments. 

2. Email: to FurnFans2020TP0041@

ee.doe.gov. Include docket number 

EERE–2020–BT–TP–0041 in the subject 

line of the message. 

No telefacsimiles (‘‘faxes’’) will be 

accepted. For detailed instructions on 

submitting comments and additional 

information on this process, see section 

V of this document. 

Although DOE has routinely accepted 

public comment submissions through a 

variety of mechanisms, including postal 

mail and hand delivery/courier, the 

Department has found it necessary to 

make temporary modifications to the 

comment submission process in light of 

the ongoing coronavirus 2019 (‘‘COVID– 

19’’) pandemic. DOE is currently 

suspending receipt of public comments 

via postal mail and hand delivery/ 

courier. If a commenter finds that this 

change poses an undue hardship, please 

contact Appliance Standards Program 

staff at (202) 586–1445 to discuss the 

need for alternative arrangements. Once 

the COVID–19 pandemic health 

emergency is resolved, DOE anticipates 

resuming all of its regular options for 

public comment submission, including 

postal mail and hand delivery/courier. 

Docket: The docket, which includes 

Federal Register notices, public meeting 

attendee lists and transcripts (if a public 

meeting is held), 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, 

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/EERE2020-BT-TP-0041. The docket web page 

contains instructions on how to access 

all documents, including public 

comments, in the docket. See section V 

for information on how to submit 

comments through 

www.regulations.gov. 

FOR FURTHER INFORMATION CONTACT: 

Ms. Catherine Rivest, U.S. Department 

of Energy, Office of Energy Efficiency 

and Renewable Energy, Building 

Technologies Office, EE–2J, 1000 

Independence Avenue SW, Washington, 

DC 20585–0121. Telephone: (202) 586– 

7335. Email 

ApplianceStandardsQuestions@

ee.doe.gov. 

Mr. Pete Cochran, U.S. Department of 

Energy, Office of the General Counsel, 

GC–33, 1000 Independence Avenue SW, 

Washington, DC 20585–0121. 

Telephone: (202) 586–9496. Email: 

Peter.Cochran@hq.doe.gov. 

For further information on how to 

submit a comment, review other public 

comments and the docket, or participate 

in a public meeting (if one is held), 

contact the Appliance and Equipment 

Standards Program staff at (202) 287– 

1445 or by email: 

ApplianceStandardsQuestions@

ee.doe.gov. 

SUPPLEMENTARY INFORMATION: DOE 

maintains a previously approved 

incorporation by reference (ASHRAE 

41.1–1986 (Reapproved (‘‘RA’’) 2006)), 

and proposes to incorporate by 

reference the following industry 

standards into 10 CFR part 430: 

ANSI/AMCA 210–07, ANSI/ASHRAE 

51–07 (‘‘AMCA 210–2007’’), Laboratory 

Methods of Testing Fans for Certified 

Aerodynamic Performance Rating, 

approved 2007. 

ANSI/ASHRAE Standard 37–2009 

(RA 2019) (including Errata Sheets 

issued October 3, 2016 and April 25, 

2019) (‘‘ASHRAE 37–2009 (RA 2019)’’), 

Methods of Testing for Rating 

Electrically Driven Unitary AirConditioning and Heat Pump 

Equipment, approved 2019. 

ANSI/ASHRAE Standard 41.2–1987 

(RA 92), (‘‘ASHRAE 41.2–1987 (RA 

1992)’’), Standard Methods for 

Laboratory Airflow Measurement, 

approved 1992. 

ANSI/ASHRAE 103–2017 (‘‘ASHRAE 

103–2017’’), Method of Testing for 

Annual Fuel Utilization Efficiency of 

Residential Central Furnaces and 

Boilers, approved 2017. 

Copies of AMCA 210–2007 can be 

obtained from Air Movement and 

Control Association International, Inc. 

(AMCA), 30 West University Drive, 

Arlington Heights, IL 60004, (847) 394– 

0150, or by going to http://

www.amca.org/store/item.aspx?

ItemId=81. 

Copies of ANSI/ASHRAE 37–2009 

(RA 2019), ASHRAE 41.2–1987 (RA 

1992), and ASHRAE 103–2017, can be 

obtained from the American Society of 

Heating, Refrigerating and AirConditioning Engineers, Inc., 

Publication Sales, 1791 Tullie Circle 

NE, Atlanta, GA 30329, 800–527–4723 

or (404) 636–8400, or go to 

www.ashrae.org. 

For a further discussion of these 

standards, see section IV.M. of this 

document. 

Table of Contents 

I. Authority and Background 

A. Authority 

B. Background 

C. Deviation From Appendix A 

II. Synopsis of the Notice of Proposed 

Rulemaking 

III. Discussion 

A. Scope and Definitions 

1. CACs, HPs, and SDHVs 

2. Dual-Fuel Heating Products 

B. Updates to Industry Standards 

C. Furnace Fans That Operate at Low 

External Static Pressures 

D. Test Procedure Repeatability and 

Reproducibility 

1. Ambient Conditions 

a. Temperature 


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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. 

b. Humidity 

2. Airflow Determination 

3. Location of External Static Pressure 

Measurements 

4. Language Updates 

a. Definitions 

b. External Static Pressure 

c. Power Measurements 

d. Other Language Clarifications 

E. Nomenclature and Equations 

F. Thermocouple Accuracy 

G. Burner Selection 

H. Reporting Requirements 

I. Test Procedure Costs and Harmonization 

1. Test Procedure Costs and Impact 

a. Airflow Determination 

b. Additional Amendments 

2. Harmonization With Industry Standards 

J. Compliance Date and Waivers 

IV. Procedural Issues and Regulatory Review 

A. Review Under Executive Order 12866 

and 13563 

B. Review Under the Regulatory Flexibility 

Act 

1. Description of Reasons Why Action Is 

Being Considered 

2. Objectives of, and Legal Basis for, Rule 

3. Description and Estimate of Small 

Entities Regulated 

4. Description and Estimate of Compliance 

Requirements 

5. Identification of Duplication, Overlap, 

and Conflict With Other Rules and 

Regulations 

6. A Description of Significant Alternatives 

to the Rule 

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. Description of Materials Incorporated 

by Reference 

V. Public Participation 

A. Participation in the Webinar 

B. Procedure for Submitting Prepared 

General Statements for Distribution 

C. Conduct of the Webinar 

D. Submission of Comments 

E. Issues on Which DOE Seeks Comment 

VI. Approval of the Office of the Secretary 

I. Authority and Background 

The Energy Policy and Conservation 

Act, as amended (‘‘EPCA’’), 1 authorizes 

DOE to establish and amend energy 

conservation standards and test 

procedures for consumer furnace fans. 

(42 U.S.C. 6295(f)(4)(D)) DOE’s energy 

conservation standards and test 

procedures for consumer furnace fans 

are currently prescribed at title 10 of the 

Code of Federal Regulations (‘‘CFR’’), 

part 430 section 32(y); and 10 CFR part 

430 subpart B appendix AA, Uniform 

Test Method for Measuring the Energy 

Consumption of Furnace Fans 

(‘‘appendix AA’’), respectively. The 

following sections discuss DOE’s 

authority to establish test procedures for 

consumer furnace fans and relevant 

background information regarding 

DOE’s consideration of test procedures 

for this product. 

A. Authority 

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 B2 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. These 

products include consumer furnace 

fans, the subject of this document. (42 

U.S.C. 6295(f)(4)(D)) 

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 

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 pursuant to EPCA (42 

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

representations about the efficiency of 

those consumer products (42 U.S.C. 

6293(c)). Similarly, DOE must use these 

test procedures to determine whether 

the products comply with 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 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 or period of use and 

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 consumer furnace 

fans, 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. (42 U.S.C. 6295(gg)(2)(A)) 

Standby mode and off mode energy 

consumption must be incorporated into 

the overall energy efficiency, energy 

consumption, or other energy descriptor 

for each covered product unless the 


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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). 5 DOE defines the term ‘‘modular blower’’ in 

section 2.9 of appendix AA as a product which only 

uses single-phase electric current, and which: (a) Is 

designed to be the principal air circulation source 

for the living space of a residence; (b) Is not 

contained within the same cabinet as a furnace or 

central air conditioner; and (c) Is designed to be 

paired with HVAC products that have a heat input 

rate of less than 225,000 Btu per hour and cooling 

capacity less than 65,000 Btu per hour. 

6The parenthetical reference provides a reference 

for information located in the docket of DOE’s 

rulemaking to develop test procedures for consumer 

furnace fans. (Docket No. EERE–2020–BT–STD– 

0041, which is maintained at www.regulations.gov). 

The references are arranged as follows: (commenter 

name, comment docket ID number, page of that 

document). 

current test procedures already account 

for and incorporate standby and off 

mode energy consumption or such 

integration is technically infeasible. If 

an integrated test procedure is 

technically infeasible, DOE must 

prescribe a separate standby mode and 

off mode energy use test procedure for 

the covered product, if 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)) 

DOE is publishing this NOPR in 

satisfaction of the 7-year review 

requirement specified in EPCA. (42 

U.S.C. 6293(b)(1)(A)) 

B. Background 

As discussed, DOE’s existing test 

procedures for consumer furnace fans 

appear at appendix AA. Appendix AA 

provides procedures and calculations to 

determine the fan energy rating (‘‘FER’’), 

expressed as watts per 1,000 cubic feet 

per minute of airflow (‘‘W/1000 cfm’’). 

DOE established the test procedure for 

consumer furnace fans at appendix AA 

in a final rule published on January 3, 

2014 (‘‘January 2014 Final Rule’’). 79 FR 

499. The test procedure is applicable to 

furnace fans used by weatherized and 

non-weatherized gas furnaces, oil 

furnaces, electric furnaces, and modular 

blowers.5 Section 1, appendix AA. For 

each of these categories, the test 

procedure covers both mobile home and 

non-mobile home models. The test 

procedure is not applicable to nonducted products, such as whole-house 

ventilation systems without ductwork, 

central air-conditioning (‘‘CAC’’) 

condensing unit fans, room fans, and 

furnace draft inducer fans, since a 

‘‘furnace fan’’ is defined as ‘‘an 

electrically-powered device used in a 

consumer product for the purpose of 

circulating air through ductwork.’’ 10 

CFR 430.2. 

As established in the January 2014 

Final Rule, appendix AA incorporates 

by reference the definitions, test setup 

and equipment, and procedures for 

measuring steady-state combustion 

efficiency from the 2007 version of 

American National Standards Institute 

(‘‘ANSI’’)/American Society of Heating, 

Refrigerating and Air Conditioning 

Engineers (‘‘ASHRAE’’) Standard 103, 

Method of Testing for Annual Fuel 

Utilization Efficiency of Residential 

Central Furnaces and Boilers 

(‘‘ASHRAE 103–2007’’). In addition to 

these provisions, appendix AA includes 

provisions for apparatuses and 

procedures for measuring temperature 

rise, external static pressure (‘‘ESP’’), 

and furnace fan electrical input power. 

Appendix AA also incorporates by 

reference provisions for measuring 

temperature and ESP from ANSI/ 

ASHRAE 37–2009, Methods of Testing 

for Rating Electrically Driven Unitary 

Air-Conditioning and Heat Pump 

Equipment (‘‘ASHRAE 37–2009’’) 

including its reference in Section 5.1 to 

ASHRAE 41.1–1986 (RA 2006), 

Standard Method for Temperature 

Measurement. 

In the January 2014 Final Rule, DOE 

determined that there is no need to 

address standby and off mode energy 

use in the test procedure for consumer 

furnace fans, as the standby mode and 

off mode energy use associated with 

furnace fans is measured by test 

procedures for the products in which 

furnace fans are used (i.e., consumer 

furnaces and consumer central air 

conditioners and heat pumps). 79 FR 

499, 504. 

On July 7, 2021, DOE published in the 

Federal Register a request for 

information (‘‘July 2021 RFI’’) seeking 

comments on the existing DOE test 

procedure for consumer furnace fans to 

determine whether amendments are 

warranted for the test procedure for 

consumer furnace fans. 86 FR 35660. 

More specifically, DOE requested 

comments, information, and data about 

a number of issues, mainly concerning: 

Test settings (including selection of 

airflow control settings and ESP 

requirement for airflow settings other 

than the maximum setting); 

incorporation by reference of the most 

recent industry test method; 

clarifications for testing of certain 

products, including furnace fans with 

modulating controls, furnace fans and 

modular blowers tested with electric 

heat kits, certain two-stage furnaces that 

operate at reduced input only for a 

preset period of time, dual-fuel 

furnaces, and certain oil-fired furnaces; 

and issues related to test procedure 

repeatability and reproducibility. Id. 

DOE received comments in response 

to the July 2021 RFI from the interested 

parties listed in Table I.1. 

TABLE I.1—LIST OF COMMENTERS WITH WRITTEN SUBMISSIONS IN RESPONSE TO THE JULY 2021 RFI 

Commenter(s) Reference in this 

NOPR Commenter type 

Carrier Corporation .................................................................................................. Carrier .................... Manufacturer. 

Air Conditioning, Heating & Refrigeration Institute ................................................. AHRI ...................... Trade Association. 

Pacific Gas and Electric Company, Southern California Edison, San Diego Gas 

& Electric Company; collectively, the California Investor-Owned Utilities.

CA IOUs ................ Utilities. 

Northwest Energy Efficiency Alliance ..................................................................... NEEA ..................... Efficiency Organization. 

A parenthetical reference at the end of 

a comment quotation or paraphrase 

provides the location of the item in the 

public record.6

C. Deviation From Appendix A 

In accordance with section 3(a) of 10 

CFR part 430, subpart C, appendix A 

(‘‘appendix A’’), DOE notes that it is 

deviating from the provision in 

appendix A regarding the pre-NOPR 

process for test procedure rulemakings. 

Section 8(b) of appendix A states if DOE 

determines that it is appropriate to 

continue the test procedure rulemaking 

after the early assessment process, it 


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7Use of appendix M1 is required on or after 

January 1, 2023, for any representations, including 

compliance certifications, made with respect to the 

energy use, power, or efficiency of CACs and CAC 

heat pumps. 

8 42 U.S.C. 6295(f)(4)(D) specifies the following: 

Notwithstanding any other provision of this 

chapter, if the requirements of subsection (o) are 

met, not later than December 31, 2013, the Secretary 

shall consider and prescribe energy conservation 

standards or energy use standards for electricity 

used for purposes of circulating air through duct 

work. 

will provide further opportunities for 

early public input through Federal 

Register documents, including notices 

of data availability and/or requests for 

information. DOE is opting to deviate 

from this provision due to the 

substantial feedback and information 

supplied by commenters in response to 

the July 2021 RFI. As discussed 

previously, DOE requested comment on 

a number of specific topics in the July 

2021 RFI, and comments received in 

response to the July 2021 RFI informed 

the proposals included in this NOPR, as 

addressed in the following sections. 

II. Synopsis of the Notice of Proposed 

Rulemaking 

In this NOPR, DOE proposes to 

update appendix AA of 10 CFR part 

430, Uniform Test Method for 

Measuring the Energy Consumption of 

Furnace Fans as follows: 

(1) Specify testing instructions for 

furnace fans incapable of operating at 

the required ESP. 

(2) Incorporate by reference the most 

recent versions of industry standards, 

ASHRAE 103–2017 and ASHRAE 37– 

2009 (RA 2019), in 10 CFR 430.3. 

(3) Define dual-fuel furnace fans and 

exclude them from the scope of 

appendix AA. 

(4) Change the term ‘‘default airflowcontrol settings’’ to ‘‘specified airflowcontrol settings’’. 

(5) Add provisions to directly 

measure airflow. 

(6) Revise the ambient temperature 

conditions allowed during testing to 

between 65 degreees Fahrenheit (‘‘°F’’) 

and 85 °F for all units (both condensing 

and non-condensing). 

(7) Assign an allowable range of 

relative humidity during testing to be 

between 20 percent and 80 percent. 

DOE’s proposed actions are 

summarized in Table II.1 compared to 

the current test procedure as well as the 

reason for the proposed change. 

TABLE II.1—SUMMARY OF CHANGES IN PROPOSED TEST PROCEDURE RELATIVE TO CURRENT TEST PROCEDURE

Current DOE test procedure Proposed test procedure Attribution 

Does not specify instructions for testing furnace 

fans that are incapable of operating at the specified ESP.

Specifies testing instructions for furnace fans incapable of operating at the specified ESP.Response to granted waiver from the 

test procedure. 

Incorporates by reference ASHRAE 103–2007 and 

ASHRAE 37–2009.

Incorporates by reference ASHRAE 103–2017 and 

ASHRAE 37–2009 (RA 2019).

Incorporate the most recent industry 

test procedure. 

Does not address dual-fuel furnace fans ................. Defines dual-fuel furnace fans in appendix AA and 

explicitly excludes them from the scope of the 

test method.

Clarify scope of coverage of the test 

procedure. 

Defines ‘‘default airflow-control settings’’ ................. Defines ‘‘specified airflow-control settings’’ to differentiate the settings used in testing from the 

as-shipped settings.

Clarifying selection of airflow control 

settings during testing. 

Calculates airflow using ESP and temperature rise 

measurements.

Requires measuring airflow directly ........................ Improve repeatability and reproducibility of test results. 

Ambient temperature must remain between 65 °F 

and 100 °F for non-condensing furnaces and between 65 °F and 85 °F for condensing furnaces.

Ambient temperature must remain between 65 °F 

and 85 °F for all furnaces.

Improve repeatability and reproducibility of test results. 

Does not specify an allowable range of relative humidity.Requires ambient relative humidity to be maintained between 20% and 80% for all furnaces.Improve repeatability and reproducibility of test results. 

DOE has tentatively determined that 

the proposed amendments described in 

section III of this NOPR would not alter 

the measured efficiency of consumer 

furnace fans, or require retesting or 

recertification solely as a result of DOE’s 

adoption of the proposed amendments 

to the test procedures, if made final. 

Discussion of DOE’s proposed actions 

are addressed in detail in section III of 

this NOPR. 

III. Discussion 

A. Scope and Definitions 

As discussed, a ‘‘furnace fan’’ is ‘‘an 

electrically-powered device used in a 

consumer product for the purpose of 

circulating air through ductwork.’’ 10 

CFR 430.2. As stated, DOE’s test 

procedure is applicable to furnace fans 

used in weatherized and nonweatherized gas furnaces, oil furnaces, 

electric furnaces, and modular blowers. 

Section 1, appendix AA. The test 

procedure is not applicable to nonducted products, such as whole-house 

ventilation systems without ductwork, 

CAC condensing unit fans, room fans, 

and furnace draft inducer fans, since a 

‘‘furnace fan’’ is defined as ‘‘an 

electrically-powered device used in a 

consumer product for the purpose of 

circulating air through ductwork.’’ 10 

CFR 430.2. 

In the July 2021 RFI, DOE sought 

comment on whether any changes are 

warranted to the scope of applicable 

products currently covered by the test 

procedure in appendix AA and if so, 

how the scope should be revised. 86 FR 

35660, 35662. 

1. CACs, HPs, and SDHVs 

In response to DOE’s questions about 

the scope of products covered by 

appendix AA, AHRI recommended that 

the exclusion of fans in CACs, heat 

pumps (‘‘HPs’’), small-duct highvelocity (‘‘SDHV’’) modular blowers, 

SDHV electric furnaces, and ductless 

products from the test procedure at 

appendix AA be maintained. AHRI 

commented that the fan efficiency for 

CAC and HP products is adequately 

addressed through DOE’s test procedure 

at appendix M1.7 (AHRI, No. 5 at p. 2) 

NEEA suggested that the language of 

42 U.S.C. 6295(f)(4)(D),8 as discussed by 

DOE in the January 2014 Final Rule, 

could support the inclusion of furnace 

fans distributing air through ductwork 

for CACs, air source HPs, and hydronic 

systems, and encouraged DOE to specify 

that these are within the scope of the 

test procedures in appendix AA. NEEA 

commented that the explicit inclusion 

of CAC and air source HP units within 

the test procedure could result in 

significant energy savings. (NEEA, No. 3 

at p. 4) 


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Carrier commented that the FER 

requirement for single packaged air 

conditioners with gas heat is no longer 

needed because the fan efficiency will 

be adequately measured when these 

products transition to the appendix M1 

test procedure on January 1, 2023. 

Carrier commented that should DOE 

choose not to remove single packaged 

air conditioners from the scope, the test 

procedure should be updated to account 

for units with two stages of cooling 

operation and to credit these units for 

the lower fan power during low-stage 

cooling operation. (Carrier, No. 2 at pp. 

1–2) 

AHRI commented that modular 

blowers without supplementary heating 

sources are currently included in the 

scope of the furnace fan test procedure, 

but suggested that DOE should exempt 

these products from the scope of the test 

procedure. AHRI stated that fans that 

are connected to duct work but that are 

unable to be tested as shipped (e.g., 

without an electric heat resistance kit) 

should be excluded from the regulation 

and not be considered furnace fans. 

(AHRI, No. 5 at p. 3) 

DOE is directed by EPCA to ‘‘consider 

and prescribe energy conservation 

standards or energy use standards for 

electricity used for purposes of 

circulating air through ductwork.’’ (42 

U.S.C. 6295(f)(4)(D)) As DOE described 

in the January 2014 Final Rule, such 

language could be interpreted as 

encompassing electrically-powered 

devices used in any residential heating, 

ventilation, and air-conditioning 

(‘‘HVAC’’) product to circulate air 

through duct work, not just furnaces. 79 

FR 499, 504. However, DOE established 

test procedures only for those fans that 

are used in residential furnaces and 

modular blowers. DOE did not address 

fans in other types of HVAC products 

(such as CACs, HPs, and SDHV modular 

blowers) in that rule. Id. 

Regarding the suggestion by AHRI to 

exclude modular blowers from the 

scope of the test procedure, DOE notes 

that modular blower fans are included 

within the scope of appendix AA and 

are subject to standards prescribed at 10 

CFR 430.32(y). DOE must maintain the 

test method for modular blowers to 

assure that such products meet the 

required minimum level of energy 

efficiency specified in the standard. (42 

U.S.C. 6295(r)) DOE has not received 

any waiver requests regarding modular 

blowers and is not aware of any 

modular blowers that are not designed 

to be paired with supplementary heating 

sources. However, to the extent that a 

specific basic model of modular blower 

is unable to be tested according to the 

prescribed test procedure in appendix 

AA, DOE provides the test procedure 

waiver process at 10 CFR 430.27. 

In response to Carrier’s suggestion to 

remove single packaged air conditioners 

from the scope of appendix AA, DOE 

notes the ‘‘anti-backsliding’’ provision 

of EPCA prevents the Secretary from 

prescribing any amended standard that 

either increases the maximum allowable 

energy use or decreases the minimum 

required energy efficiency of a covered 

product. (42 U.S.C. 6295(o)(1)) DOE 

would be unable to separate the furnace 

fan’s energy consumption from that of 

other system components that affect 

SEER2 and HSPF2 ratings, and thus 

could not ensure that the energy 

consumption of covered furnace fans in 

such a product could not decrease 

under this metric. Therefore, DOE is not 

proposing to remove single packaged air 

conditioners from the scope of appendix 

AA. 

In response to Carrier’s suggestion to 

credit units with two stages of cooling 

operation to account for the lower fan 

power during low-stage cooling 

operation, DOE lacks adequate data to 

evaluate this proposal at this time. 

Issue 1: DOE requests information and 

data regarding the electrical energy 

consumption of multi-stage furnace fans 

during low-stage cooling operation, 

specifically in relation to single-stage 

furnace fans in cooling mode. 

Furthermore, DOE is not proposing to 

include fans used in other types of 

HVAC products, such as CACs, HPs, 

and SDHV modular blowers within the 

scope of appendix AA at this time. 

Similar to single packaged air 

conditioners, DOE tentatively agrees 

with commenters that the electrical 

energy consumption of furnace fans 

used in the aforementioned types of 

HVAC products will be accounted for by 

the seasonal energy efficiency ratio 2 

(‘‘SEER2’’) and heating seasonal 

performance factor 2 (‘‘HSPF2’’) metrics 

measured by appendix M1. Although 

the applicable statutory provision 

(specifically, 42 U.S.C. 6295(f)(4)(D) 

directs DOE to ‘‘consider and prescribe 

energy conservation standards or energy 

use standards for electricity used for 

purposes of circulating air through duct 

work’’), could be interpreted as 

encompassing electrically-powered 

devices used in any residential HVAC 

product to circulate air through duct 

work, DOE has tentatively concluded 

that it is not necessary to expand the 

scope of coverage of appendix AA at 

this time. 

2. Dual-Fuel Heating Products 

Some consumer heating products 

include an electric heat pump and gas 

burner and are often referred to as dualfuel or hybrid heating units. These 

products are designed to provide space 

heating with the heat pump and/or gas 

burner, depending on the operating 

conditions (e.g., outdoor air temperature 

and heating demand). The annual 

operating characteristics of a dual-fuel 

product may differ significantly from a 

typical furnace, because the inclusion of 

a heat pump may change the operating 

time necessary to meet the heating load 

demand when compared with a gas 

burner alone, resulting in changes to the 

operating hours of the furnace fan. 

Therefore, the estimated national annual 

operating values provided in Table IV.2 

of appendix AA may not be 

representative of an average use cycle 

for furnaces installed in dual-fuel 

applications. In addition, the current 

DOE test procedure does not specify 

provisions to set up or operate furnace 

fans for dual-fuel heating units. 

In the July 2021 RFI, DOE requested 

comment on the typical operating 

characteristics of dual-fuel systems and 

whether and how the user has control 

over which heating source is used in a 

dual-fuel system. 86 FR 35660, 35666. 

In response, AHRI commented that a 

dual-fuel-enabled thermostat determines 

if the heat pump or gas burner provides 

heat, and that the two cannot work at 

the same time. (AHRI, No. 5 at p. 10) 

AHRI stated that lower ambient 

temperatures will make the thermostat 

switch from the heat pump to the gas 

burner, but some controls can allow the 

consumer to lock out one or the other 

method of heating at a specified outdoor 

ambient temperature. (Id. at pp. 10–11) 

AHRI also described more complicated 

settings that the installer or consumer 

may implement, such as setting the 

thermostat to identify when a set point 

cannot be maintained and triggering the 

furnace (specifically, DOE understands 

the reference to ‘‘furnace’’ in this 

instance refers only to the burner 

portion of the dual-fuel furnace), 

choosing an outdoor temperature above 

which the furnace should not operate, 

and choosing an outdoor air 

temperature at which only the furnace 

will operate. (Id. at p. 11) 

NEEA commented that dual-fuel 

HVAC system operating conditions 

should be included in testing 

procedures because of the expected 

increase in their prevalence in the 

market due to trends in electrification of 

space heating. (NEEA, No. 3 at pp. 4– 

6) NEEA encouraged DOE to investigate 

common balance points and other 

factors that might influence the 

temperature at which the heat source is 

changed in dual-fuel HVAC systems and 

encouraged DOE to contact researchers 

from Bonneville Power Administration 


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9See: www.regulations.gov/document?D=EERE2019-BT-WAV-0004-0001. 

for information on their recently 

completed study pertaining to air source 

HPs. (Id. at p. 5) 

Carrier urged for the removal of FER 

requirements for packaged dual-fuel 

units. Carrier stated that the electrical 

efficiency of the indoor blower in these 

units is accounted for in the DOE test 

procedure for heat pumps at appendix 

M, which Carrier asserted measures the 

primary mode of operation of such 

units. Carrier stated that requiring the 

indoor blower to meet the FER 

requirements is an additional regulatory 

requirement that adds rulemaking, 

certification, and enforcement effort to 

DOE and the regulated community with 

no additional benefit to consumers. 

(Carrier, No. 2 at p. 1) 

Dual-fuel units are subject to the 

separate applicable standards for both 

heat pumps (i.e., in terms of seasonal 

energy efficiency ratio (‘‘SEER’’) and 

heating seasonal performance factor 

(‘‘HSPF’’) or SEER2 and HSPF2) and 

furnaces (i.e., in terms of AFUE). As 

discussed in this section, DOE 

tentatively concludes that the fan energy 

use of these products is already 

accounted for by the SEER and HSPF 

metrics measured by appendix M (i.e., 

the currently applicable test procedure 

for these products) and will continue to 

be captured in the SEER2 and HSPF2 

metrics when use of appendix M1 is 

required. The SEER2 and HSPF2 metrics 

measure the fan energy in its cooling 

and heating modes, respectively, 

covering the two major functions of 

furnace fans. Dual-fuel models were not 

subject to appendix AA prior to this 

notice and, therefore, were not part of 

the previous standards analysis. 

Consequently, DOE proposes to define 

dual-fuel units as a consumer product 

that includes both a heat pump and a 

burner in a single cabinet and to 

explicitly exclude them from the scope 

of appendix AA. 

Issue 2: DOE requests comment on its 

proposed definition for dual-fuel units. 

DOE further requests comment on its 

proposal to explicitly exclude these 

units from the scope of appendix AA. 

B. Updates to Industry Standards 

As discussed previously, the current 

DOE test procedure for furnace fans 

incorporates by reference ASHRAE 103– 

2007. ASHRAE 103–2007 provides test 

procedures for determining the annual 

fuel utilization efficiency (‘‘AFUE’’) of 

residential furnaces and boilers. DOE’s 

test procedure for furnace fans in 

appendix AA adopts certain sections of 

ASHRAE 103–2007 applicable to testing 

furnace fans, including requirements for 

instrumentation and test apparatus 

setup and test methodology. 

In July 2017, ASHRAE published an 

update to ASHRAE 103, i.e., ASHRAE 

103–2017. The 2017 version made 

several editorial changes to the 2007 

version, including use of mandatory 

language and use of the International 

System of units, in addition to other 

revisions such as an extension of the 

minimum length of the inlet duct from 

12 inches to 18 inches. In the July 2021 

RFI, DOE requested comment on 

whether to update the referenced 

version of ASHRAE 103 to the 2017 

version. 86 FR 35660, 35665. 

In response, AHRI commented that it 

agrees with DOE’s description of 

updates in the 2017 version and 

suggested that the changes would only 

minimally impact FER. (AHRI, No. 5 at 

pp. 8, 9) Specifically, AHRI stated that 

increasing the minimum inlet duct 

length from 12 inches to 18 inches will 

not significantly impact the 

performance rating. (Id. at p. 9.) Further, 

AHRI commented that it does not object 

to the use of the 2017 version in the 

DOE test procedure. (Id. at pp. 8, 9) 

DOE has tentatively determined that 

updating the DOE test procedure to 

reference the 2017 version of ASHRAE 

103–2017 would not significantly 

impact the FER ratings as compared to 

the current test procedure. As noted, 

one substantive change between the 

versions of ASHRAE 103 is the length 

of the inlet duct. DOE does not expect 

the increase in length from 12 to 18 

inches to impact the measured FER 

because the external static pressure and 

airflow will not change with this 

alteration, which is consistent with the 

comments from AHRI. Given that 

ASHRAE 103–2017 is the most recent 

version of the industry standard, and 

given DOE’s tentative determination 

that its use as a reference standard 

would not significantly impact FER 

ratings or require retesting, DOE 

proposes to incorporate by reference 

ASHRAE 103–2017 in its test procedure 

for furnace fans. This proposed change, 

if adopted, would ensure that the test 

procedure references the most up-todate language and stays consistent with 

the latest industry testing practices. 

The current DOE test procedure for 

furnace fans also incorporates by 

reference ASHRAE 37–2009. ASHRAE 

37–2009 provides methods of testing for 

unitary air conditioning and heat pump 

equipment. DOE’s test procedure for 

furnace fans at appendix AA adopts 

certain Sections of ASHRAE 37–2009 

regarding specifications for the required 

temperature measuring instruments and 

the ESP apparatus. Since the 

publication of the January 2014 Final 

Rule, two addenda for ASHRAE 37– 

2009 were published on October 3, 2016 

and April 25, 2019 (‘‘ASHRAE 37–2009 

(RA 2019)’’). These addenda include 

errata that corrected the total heating 

capacity equations for the outdoor 

liquid coil method in section 7.6.5.1 of 

the test standard and corrected the 

coefficient used to calculate the specific 

heat of air in sections 7.3.3.1, 7.3.3.2, 

and 7.7.4.1 of the test standard. In 

reviewing these changes, DOE has 

tentatively concluded that they would 

not significantly impact FER ratings or 

require retesting, as these changes were 

made to sections not used in appendix 

AA. Thus, DOE proposes to incorporate 

by reference ASHRAE 37–2009 (RA 

2019) and update all references of 

ASHRAE 37–2009 to ASHRAE 37–2009 

(RA 2019). 

Finally, DOE currently incorporates 

by reference ASHRAE 41.1–1986 (RA 

2006). ASHRAE 41.1–1986 (RA 2006) is 

referenced in Section 5.1 of ASHRAE 

37–2009. ASHRAE 41.1–1986 (RA 2006) 

provides practices for temperature 

measurements for heating, refrigerating, 

and air-conditioning equipment. Despite 

the most recent version of ASHRAE 41.1 

being ASHRAE 41.1–2020, the proposed 

version of ASHRAE 37 to be 

incorporated by reference (ASHRAE 37– 

2009 (RA 2019)) references ASHRAE 

41.1–1986 (RA 2006). Thus, DOE 

proposes to maintain by reference 

ASHRAE 41.1–1986 (RA 2006). 

Issue 3: DOE requests comment on its 

proposal to incorporate by reference 

ASHRAE 103–2017, ASHRAE 37–2009 

(RA 2019), and maintain by reference 

ASHRAE 41.1–1986 (RA 2006). 

C. Furnace Fans That Operate at Low 

External Static Pressures 

On February 20, 2019, DOE received 

a petition for waiver and an application 

for interim waiver from ECR 

International, Inc. (‘‘ECR’’) for certain 

basic models of furnace fans that ECR 

described as belt-driven, single-speed 

furnace fans designed for heating-only 

applications in oil-fired warm air 

furnaces.9 ECR asserted that the furnace 

fan basic models specified in the 

petition have design characteristics that 

prevent testing of the basic model 

according to the test procedure 

prescribed in appendix AA. 

Specifically, ECR claimed that the 

specified products are not designed to 

operate within the range of ESP required 

in appendix AA and that testing such 

furnace fans at the required ESP reduces 

airflow and increases temperature rise 

to the point where the units shut off 

during testing due to high temperature 

limits, making it impossible to reach 


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10See: www.regulations.gov/document/EERE2019-BT-WAV-0004-0015. 

steady state for testing at the required 

conditions. On March 9, 2021, DOE 

published a Decision and Order (‘‘2021 

Decision and Order’’) granting ECR a 

test procedure waiver specifying an 

alternate test procedure that must be 

used to test and rate the specified basic 

models.10 86 FR 13530, 13534–13535. 

Specifically, the 2021 Decision and 

Order specified adjustments to the ESP 

test conditions specified in section 

8.6.1.2 of appendix AA. Basic models 

subject to the 2021 Decision and Order 

must be tested at the specified ESP. Id. 

The alternate test procedure in the 2021 

Decision and Order further specifies 

that if the unit under test shuts down 

prior to completion of the test, the ESP 

range is incrementally reduced by 0.05 

inches of water column (‘‘′′ w.c.’’), and 

the test is to be re-run. Id. This process 

is repeated until a range is reached at 

which the test can be conducted to its 

conclusion, with a minimum allowable 

ESP range of 0.30–0.35′′ w.c., which 

corresponds to the first range at which 

shut-off could be avoided in the ECR 

data. Id. at 86 FR 13532 and 13534– 

13535. 

In the July 2021 RFI, DOE requested 

feedback on whether the approach in 

the test procedure waiver would be 

appropriate for testing all basic models 

of furnace fans designed for heatingonly applications. 86 FR 35660, 35667. 

In response, AHRI commented that it 

is not opposed to the test procedure 

waiver approach being applied to all 

basic models of furnace fans designed 

for heating-only applications. (AHRI, 

No. 5 at p. 12) In contrast, the CA IOUs 

asserted that the alternate test procedure 

specified in the Decision and Order—by 

requiring testing at the highest ESP (and 

accordingly the highest discharge 

temperature) that does not trip the 

furnace’s thermal safety limits—is likely 

to produce temperature rises that would 

exceed the manufacturer recommended 

maximum temperature rise specified in 

installation instructions. (CA IOUs, No. 

4 at pp. 1–2) The CA IOUs additionally 

presented an analysis of the relationship 

between ESP and fan power 

consumption, from which the CA IOUs 

asserted that for a forward-curved fan 

operating at a given speed, FER 

improves (decreases) as ESP increases. 

(Id. at pp. 2–3) The CA IOUs asserted 

based on this analysis that testing at the 

highest ESP that the unit can 

accommodate before thermal cutoff may 

result in an artificially low (i.e., more 

favorable) FER rating, and therefore the 

methodology provided in the 2021 

Decision and Order may not accomplish 

the goal of increasing the 

representativeness of heating-only 

furnace fan ratings. (Id.) The CA IOUs 

recommended using a lower ESP to test 

heating-only furnaces and additionally 

providing a method to correct for how 

the fan would perform at the current 

ESP. The CA IOUs stated that this 

would ensure that heating-only units are 

not unfairly advantaged and would 

avoid DOE having to conduct a separate 

analysis of heating-only units in energy 

conservation standards rulemakings. (Id. 

at p. 3) The CA IOUs also commented 

that, should a separate test procedure be 

established for heating-only products, 

then the procedure should be designed 

such that it is analogous to that in 

appendix AA to produce an FER rating 

appropriately representative of heatingonly furnace fan energy use in the field 

and should include an ESP value that 

reasonably represents values that 

heating-only equipment encounter in 

the field. (Id. at pp. 1, 4) Further, the CA 

IOUs recommended required labeling 

for ‘‘heating-only’’ units to explicitly 

indicate that they are not to be installed 

with air-conditioning cooling coils or air 

conditioners. (Id. at p. 4) 

NEEA stated that the approach in the 

waiver granted to ECR is inappropriate 

for representative furnace fan testing 

and recommended that DOE use a 

consistent test procedure for all 

products, including heating-only 

applications. (NEEA, No. 3 at pp. 1–3) 

NEEA asserted that the basic models 

subject to the waiver are intended for 

use with cooling, and that the waiver 

allows separate testing procedures for 

less efficient furnace fans that may 

overstate real-world efficiency. (Id. at p. 

2) NEEA referenced concerns that the 

CA IOUs had previously expressed to 

DOE regarding the end use applications 

for the basic models subject to the 

waiver. (Id.) NEEA cited DOE’s decision 

in the January 2014 Final Rule not to 

create separate testing procedures for 

heating-only installation types and 

asserted that DOE’s justification was 

that doing so would create multiple 

conditions for testing the same 

equipment and lead to nonrepresentative energy use information. 

(Id.) NEEA further raised concerns that 

since energy consumption is a function 

of ESP, the waiver approach may 

produce lower (i.e., more favorable) FER 

values that are not comparable to other 

furnace fans also used for cooling 

applications, and that this approach 

could create an unfair advantage for 

heating-only products. (Id.) NEEA 

asserted that the test conditions 

specified under the waiver are not 

representative of field conditions for 

these units if the oil furnace is 

eventually paired with an air 

conditioner. (Id.) To support its 

position, NEEA presented an analysis of 

FER ratings from DOE’s Compliance 

Certification Database, which indicated 

that the majority of oil furnace fans have 

an FER greater than 450 W/1000 cfm; 

whereas, among the basic models 

subject to the waiver, the highest FER is 

443 and the average value is 409. NEEA 

noted that while these lower FER values 

are achievable by other furnace fans not 

subject to the waiver, the FER ratings of 

the basic models subject to the waiver 

are not comparable since they are tested 

at different ESP conditions. (Id. at p. 3) 

In summary, NEEA recommended that 

DOE not establish separate testing 

provisions for heating-only furnace fans. 

(Id. at p. 1–3) 

As discussed in section I.A of this 

document, DOE is required by EPCA to 

ensure that its test procedures are 

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 or period of use and not be 

unduly burdensome to conduct. (42 

U.S.C. 6293(b)(3)) In the notices leading 

up to the January 2014 Final Rule, DOE 

considered creating a ‘‘heating-only’’ 

product designation for products that 

would have different reference system 

ESP installation considerations than 

other products. However, as discussed 

in an SNOPR published on April 2, 

2013 (‘‘April 2013 SNOPR’’), DOE did 

not create a heating-only product 

designation because it was not aware of 

any heating-only products at the time 

other than hydronic air handlers, but 

those were outside the scope of 

applicability of the test procedure. 78 

FR 19606, 19619. 

As indicated by the waiver request 

submitted by ECR, certain furnace fans 

may not be able to operate at the ESP 

conditions specified by the current DOE 

test procedure (i.e., cannot be tested at 

the currently required conditions). For 

such furnace fans, the current test 

procedure is unable to produce test 

results which measure energy efficiency 

during a representative average use 

cycle or period of use. Therefore, DOE 

is proposing to amend the test 

procedure in order to ensure that such 

furnace fans will be able to complete a 

valid test under conditions 

corresponding to representative average 

use. Specifically, DOE is proposing to 

add provisions to require that all 

furnace fans be initially tested at the 

applicable ESP range specified in Table 

1 of appendix AA. If the unit under test 

is unable to complete the testing (i.e., 


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the unit shuts down), the ESP range 

would be incrementally reduced by 

0.05′′ w.c. (e.g., for units designed to be 

paired with an evaporator coil but 

without one installed, first from 0.65′′– 

0.70′′ to 0.60′′–0.65′′ w.c.). This process 

would be repeated until an ESP range is 

reached at which the test can be 

conducted to its conclusion. 

DOE found in the January 2014 Final 

Rule that generally the ESP values in 

appendix AA are representative of 

national average ductwork system 

characteristics. 79 FR 499, 502. DOE 

now recognizes that certain furnace fans 

are designed for operation at ESP 

conditions lower than those specified in 

the test procedure and that such units 

are incapable of operating at the 

specified ESP conditions. DOE has 

tentatively determined that requiring all 

furnace fans to begin tests at the ESP 

levels specified in Table 1 and allowing 

furnace fans that are unable to complete 

tests at those ESPs to test at their 

maximum possible ESP, would provide 

results representative of the average use 

of that unit under test. A method of 

testing in which products are subject to 

ESP values at which they are incapable 

of operating would yield results that are 

unrepresentative of their typical 

performance when installed. The 

proposed modifications will address 

products designed for all operating ESPs 

to be tested according to the same 

proposed test procedure. 

Furnaces that cannot operate at the 

ESP conditions outlined in Table 1 of 

appendix AA will be tested according to 

the highest achievable ESP for the unit. 

DOE notes that, as suggested by the CA 

IOUs, testing these furnace fans at the 

highest achievable ESP could result in 

lower-than-usual airflows, which in 

turn could lead to higher temperature 

rises than expected for that unit. 

However, the proposed test method 

ensures that all units would be tested at 

or as close as possible to the ESP levels 

that represent the national average 

ductwork system, and therefore the 

operation mode closest to this 

representative scenario. 

Additionally, as noted in the 2021 

Decision and Order, DOE is not aware 

of any conversion equation that has 

been validated to accurately predict the 

change in FER as ESP varies at a given 

fan setting. Validating an equation for 

extrapolating to FER at an ESP that is 

higher than that at which the unit can 

operate may be difficult or even not 

possible (as the unit cannot operate at 

that point). 86 FR 13530, 13533. As a 

result of these considerations regarding 

the accuracy and representativeness of 

an adjustment factor, DOE is not 

proposing an adjustment factor to the 

test procedure for furnace fans that are 

unable to complete testing at the ESPs 

specified in Table 1 of this document. 

DOE has also tentatively concluded 

the proposed test procedure 

amendment, if adopted, would not 

create an advantage for furnace fans 

incapable of operating at the applicable 

ESP values specified in Table 1 of 

appendix AA. Because a ‘‘low-ESP’’ 

furnace fan would be unable to operate 

at the ESP values specified by Table 1, 

such a unit would not be manufactured 

for the same application as furnace fans 

that are able to operate at the ESP values 

specified by Table 1 of this document. 

Furthermore, because DOE has not 

received any applications for waiver 

besides the waiver submitted by ECR in 

2020, and these provisions would result 

in the same test conditions for the 

furnace fans that were subject to ECR’s 

waiver, DOE believes these proposed 

provisions would not affect the ratings 

or require the retesting of any fans 

currently on the market. Therefore, DOE 

tentatively determines that this change 

would allow all products, including 

those subject to ECR’s waiver, to be able 

to use appendix AA as written, while 

having no impact on test burden. 

DOE is not proposing labeling 

requirements for furnace fans that test at 

ESPs other than those in Table 1. 

Manufacturers of those fans would 

already be incentivized to specify in 

their product literature that such models 

are not suitable for use in systems with 

higher ESPs. Otherwise, it would be 

expected that there would be issues 

with consumer satisfaction if a furnace 

fan were installed in an environment in 

which it was incapable of operating. As 

previously noted, DOE is currently only 

aware of one manufacturer (ECR) that 

produces furnace fans that are incapable 

of operating at the ESPs currently in 

Table 1 of appendix A because DOE has 

not received any applications for waiver 

from any other manufacturers, which 

indicates that all other furnace fans 

currently available on the market are 

able to complete a valid test according 

to the test procedure currently 

prescribed in appendix AA. The current 

product literature from ECR specifies 

the intended applications and operating 

conditions of the furnace fans which are 

not intended for operation at higher 

ESPs. 

This proposed amendment is 

consistent with the test procedure 

waiver provision at 10 CFR 430.27(l) 

that provides that, as soon as practicable 

after the granting of any waiver, DOE 

will publish in the Federal Register a 

NOPR to amend its regulations so as to 

eliminate any need for the continuation 

of such waiver. 10 CFR 430.27(l). As 

soon thereafter as practicable, DOE will 

publish in the Federal Register a final 

rule to that effect. Id. With regard to 

whether separate product classes may 

be warranted for ‘‘low-ESP’’ furnace 

fans, DOE would undertake such 

consideration in a separate furnace fans 

standards rulemaking. See 86 FR 66465, 

66467–66468. 

Issue 4: DOE requests comment on the 

proposed test instructions for furnace 

fans unable to complete testing at the 

ESP values currently specified in 

appendix AA. 

D. Test Procedure Repeatability and 

Reproducibility 

In the July 2021 RFI, DOE requested 

comment on whether stakeholders have 

encountered difficulty obtaining 

repeatable and reproducible FER results 

using appendix AA, and sought 

information on whether fluctuations in 

ESP and ambient conditions (within the 

boundaries allowed by appendix AA) 

impact FER ratings. 86 FR 35660, 35666. 

Additionally, to further understand the 

repeatability and reproducibility of the 

FER test procedure, DOE had 

confidential interviews conducted with 

several furnace fan manufacturers. The 

manufacturers similarly responded that 

there is generally a high level of 

uncertainty in FER results. Based on the 

collected feedback, DOE understands 

that there are several key areas of 

possible improvement to the current 

furnace fan test procedure that could 

improve repeatability and 

reproducibility including limiting the 

allowable range of ambient conditions, 

updating the method of airflow 

determination, and making 

clarifications to the current test 

procedure language. 

In response to DOE’s questions in the 

July 2021 RFI, AHRI stated that it had 

conducted an assessment to identify 

causes of variability in FER. (AHRI, No. 

5 at p. 12) AHRI found that FER results 

are affected by natural gas input rate 

and relative humidity, which it said is 

problematic because testing is not 

conducted in a controlled environment. 

(Id.) AHRI stated that its assessment 

indicates that there is an 11-percent 

error in FER due solely to the tolerances 

of the inputs to the FER equation. (Id.) 

DOE agrees with AHRI’s comment 

that the natural gas input rate could 

impact FER, but notes that DOE 

previously considered tightening the 

tolerance on firing rate (from ±2 percent) 

in its test procedure for the residential 

furnaces and boilers. In a NOPR 

published on March 11, 2015, DOE 

determined that it could not change the 

tolerance on firing rate without 

increasing manufacturer burden because 


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29584 Federal Register / Vol. 87, No. 93 / Friday, May 13, 2022 / Proposed Rules 

11See, for example: 

(1) U.S. Consumer Product Safety Commission. 

The Inside Story: A Guide to Indoor Air Quality. 

Available at: www.cpsc.gov/safety-education/safetyguides/home/inside-story-guide-indoor-air-quality. 

Last accessed February 1, 2022; or 

(2) U.S. Environmental Production Agency. 

Dehumidifier Basics. www.energystar.gov/products/ 

appliances/dehumidifiers/dehumidifier_basics

#:∼:text=Relative%20Humidity%20(RH)

%20and%20Humidistats&text=The%20optimum

%20RH%20level%20for,RH%20to%20prevent

%20window%20condensation. Last accessed 

February 2, 2022. 

of variations in gas valve performance. 

80 FR 12875, 12886–12887. ASHRAE 

103–2017, which is referenced in the 

current furnace fan test procedure, also 

includes a requirement that the burner 

input rate be within ±2 percent of the 

hourly British thermal unit (‘‘Btu’’) 

nameplate input rating. Because DOE is 

not aware of any data suggesting it 

would now be possible to tighten this 

tolerance, DOE is not proposing to 

change the tolerance on fuel input rating 

at this time. 

Issue 5: DOE requests comment on its 

tentative decision not to tighten the 

tolerance on fuel input ratings beyond 

what is required in ASHRAE 103–2017. 

1. Ambient Conditions 

DOE also acknowledges that FER 

results can be affected by several other 

inputs, including the measurement 

accuracy of measured variables feeding 

into the FER calculation as well as 

allowable variation in these variables. 

Specifically, through communications 

with manufacturers and comments 

received in response to the July 2021 

RFI, DOE understands that the FER 

results are also affected by ambient air 

temperature and humidity. As discussed 

in more detail in the following 

subsections, DOE is proposing 

additional restrictions on these test 

conditions. 

a. Temperature 

To help improve the repeatability and 

reproducibility of test results, DOE 

proposes to tighten the range of 

allowable ambient conditions during 

testing. The current range of ambient 

temperature is prescribed in section 7 of 

appendix AA, which references Section 

8.5.2 of ASHRAE 103–2007. Section 

8.5.2 of ASHRAE 103–2007 specifies 

that the ambient temperature must be 

maintained between 65 °F and 100 °F for 

non-condensing furnaces or between 

65 °F and 85 °F for condensing furnaces. 

DOE proposes to modify the ambient 

temperature range such that for all tests 

and all furnaces (i.e., both condensing 

and non-condensing), ambient air 

temperature must be maintained 

between 65 °F and 85 °F. Based on an 

analysis of the impact of ambient 

temperature on the test result and 

feedback received during 

communications with manufacturers, 

DOE tentatively concludes that the 

tightening of ambient temperature 

ranges will reduce FER variability. DOE 

reasons that furnace fan manufacturers 

produce both non-condensing and 

condensing furnace products and, 

therefore, manufacturers and third-party 

testing laboratories already have the 

capability to maintain the test room at 

a temperature between 65 °F and 85 °F 

to be able to test condensing furnaces. 

Further, DOE expects that most testing 

is conducted in at least semiconditioned spaces and are unlikely to 

experience temperatures above 85 °F 

even if the outdoor conditions 

occasionally exceed that threshold. 

Because manufacturers and third-party 

test laboratories likely already have the 

capability to test furnaces while 

maintaining ambient air temperatures 

between 65 °F and 85 °F, DOE 

tentatively determines that this change 

would improve reproducibility by 

limiting extreme temperatures during 

testing, while having no impact on test 

burden. Additionally, this change 

would maintain the representativeness 

of the test procedure because it would 

ensure that air temperature in the test 

room is in line with the temperatures 

that furnace fans are likely to experience 

in residential applications. 

Issue 6: DOE requests comment on its 

proposal to modify the allowable 

ambient temperature range in appendix 

AA such that for all tests and all 

furnaces (i.e., both condensing and noncondensing), ambient air temperature 

must be maintained between 65 °F and 

85 °F. DOE also requests comment 

regarding any potential burden 

associated with the change in allowable 

ambient temperature. Additionally, DOE 

requests data of the typical ambient 

temperatures of testing facilities 

throughout the year as well as any data 

on the relationship between ambient 

temperature and FER. 

b. Humidity 

As noted previously, AHRI 

commented that relative humidity 

(‘‘RH’’) can impact FER ratings. (AHRI, 

No. 5 at p. 12) Currently, there is no 

humidity requirement currently 

applicable to DOE’s test procedure for 

furnace fans. However, there is a 

humidity tolerance in the test procedure 

applicable to consumer furnaces and 

boilers. Specifically, ASHRAE Standard 

103–1993, which is referenced in the 

DOE test procedure for consumer 

furnaces and boilers, specifies that the 

relative humidity of the air in the test 

room at no time exceed 80 percent when 

measuring the condensate of condensing 

furnaces and boilers (see Sections 9.2 

and 9.8.1 of ASHRAE 103–1993). 

DOE proposes to specify the RH 

conditions for all tests of FER and all 

furnaces (i.e., both condensing and noncondensing) to require that ambient air 

RH must be maintained at or below 80 

percent. DOE reasons that most furnace 

fan manufacturers produce both noncondensing and condensing furnace 

products and, therefore, DOE expects 

that most manufacturers and third-party 

testing laboratories already have the 

capability to maintain the test room at 

an RH below 80 percent to be able to 

measure condensate for condensing 

furnaces. Because manufacturers and 

third-party test laboratories likely 

already have the capability to maintain 

the test room RH below 80 percent, DOE 

tentatively determines that this change 

would improve reproducibility by 

limiting extreme humidity conditions 

during testing, while having no impact 

on test burden. 

DOE is also proposing to specify a 

limit on the lower range of allowable RH 

values during testing, specifically to 

require that for all tests and all furnaces, 

ambient air RH must be maintained at 

or above 20 percent. Similar to its 

proposal to add a maximum RH, DOE 

expects that imposing a minimum limit 

on the allowable RH values during 

testing would improve reproducibility 

but have no impact on test burdens 

because it is very unlikely that any test 

laboratories would be unable to meet a 

requirement excluding only the driest 

conditions. 

The optimal RH values in conditioned 

living space are typically considered to 

range from 30 percent to 50 percent.11

Therefore, imposing a requirement on 

RH during testing to maintain the RH of 

the room air between 20 percent and 80 

percent will improve the 

representativeness of the FER test 

method compared to allowing RH to 

range from 0 percent to 100 percent, as 

the proposed range is closer to the 

optimal RH range for residences. 

However, the proposed range is not so 

tight that it would be expected to add 

burden for manufacturers. 

Issue 7: DOE requests comment on its 

proposal to require maintaining the 

room air RH between 20 percent and 80 

percent during FER testing, and on its 

tentative determination that this 

proposal would decrease variability 

between tests. DOE also requests 

comment on its tentative determination 

that the requirement of room air RH to 

be maintained between 20 percent and 

80 percent would not add burden for 

manufacturers or test laboratories. DOE 


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12A ‘‘code tester’’ is an instrument used to 

measure airflow. Such instruments determine 

airflow by measuring the pressure drop across one 

or more nozzles as air passes between two 

chambers. 

13See: www.regulations.gov/comment/EERE2010-BT-TP-0010-0037. 

14See: https://www.amca.org/assets/resources/ 

public/pdf/Education%20Modules/AMCA%20210- 

16.pdf. (Last accessed April 7, 2022.) 

requests comment on whether a tighter 

range for RH during testing (for 

example, 30 percent to 50 percent RH, 

which could further improve 

representativeness and further increase 

repeatability beyond the proposed 

range) would be possible to maintain 

without being unduly burdensome. DOE 

seeks data on ambient RH values at test 

facilities throughout the year and any 

data on the relationship between RH 

and FER variability. 

2. Airflow Determination 

In the January 2014 Final Rule, DOE 

adopted in appendix AA a method of 

calculating airflow based on 

temperature rise. Specifically, the 

equation for airflow in airflow control 

setting ‘‘i’’ (‘‘Qi’’) compares the input 

heat energy to the heat picked up by the 

air based on temperature rise and the 

specific conditions of the inlet air (see 

section 10.1 of appendix AA). 79 FR 

499, 508–510. 

In response to the April 2013 SNOPR, 

Goodman recommended that DOE 

consider allowing an alternate method 

of directly measuring airflow using a 

code tester 12 and ASHRAE 37 

ductwork.13 79 FR 499, 509. In response 

to this comment, DOE stated in the 

January 2014 Final Rule that a test setup 

that includes a code tester is not typical 

when testing a furnace, and that DOE 

tried to harmonize, where possible, the 

test set up for furnaces and furnace fans. 

Additionally, DOE stated that an 

alternative test method using a code 

tester and ASHRAE 37 ductwork could 

provide similar results as the test 

procedure established in the January 

2014 Final Rule, but that the test 

procedure would differ significantly. 

Thus, DOE concluded at the time that 

adding a code tester to the furnace fan 

test procedure would add substantial 

burden. Id. 

As previously noted, in response to 

the July 2021 RFI, AHRI commented 

that it had conducted an uncertainty 

analysis and found that there is an 11- 

percent error in FER due solely to the 

tolerances of the inputs to the FER 

equation. (AHRI, No. 5 at p. 12) 

Additionally, AHRI commented that it 

had commissioned an assessment of the 

FER metric, including the variability 

therein. (Id.) AHRI stated that this report 

showed that the natural gas input rate 

and relative humidity affect FER ratings 

and stated that this finding was also 

supported by reports from AHRI 

members. AHRI asserted that these 

sources of variability are problematic 

because testing is not conducted in a 

controlled environment. (Id.) 

After considering these comments and 

given DOE’s understanding based on 

discussions with manufacturers that 

some of the challenges associated with 

repeatability may stem from the current 

method of calculating airflow indirectly 

based on measurements of other 

parameters, DOE has reconsidered the 

previous suggestion to allow airflow to 

be measured directly. 

Each parameter involved in the 

calculation of the airflow at the 

maximum airflow-control setting 

(‘‘Qmax’’) and FER has its own inherent 

variability. Measuring airflow directly 

would avoid the dependence on 

measured temperature rise (which is the 

difference between the measured outlet 

and inlet air temperatures), fuel input 

rate, and fan power consumption (and 

avoid the uncertainty associated with 

each of these measurements), which 

could therefore reduce the overall 

variation inherent to the final FER 

value. Using the allowable accuracies 

specified in Sections 5.3 and 6.1.2 of 

ASHRAE 37–2009 (RA 2019), DOE 

understands that an airflow-measuring 

device would have an accuracy of about 

2–3 percent. This 2–3-percent range is 

significantly smaller than the percentage 

variation in airflow as calculated based 

on measurements of other test 

conditions that each have a degree of 

variability. 

DOE acknowledges that requiring the 

use of an airflow-measuring device for 

furnace fans could introduce a one-time 

cost for manufacturers that either do not 

utilize such devices for their current 

testing programs (presumably of other 

products) or do not have enough of such 

devices available to test furnace fans in 

addition to other HVAC products that 

use airflow-measuring devices. The 

estimated cost of an airflow-measuring 

device is up to $50,000. DOE discusses 

test procedure costs and impacts further 

in section III.I.1 of this document. 

Having considered the potential 

benefits and burdens associated with 

measuring airflow directly using an 

airflow-measuring device, DOE has 

tentatively determined that the benefits 

would outweigh the burdens, and that 

requiring directly measuring airflow 

would not be unduly burdensome. DOE 

therefore proposes to require that 

airflow be measured directly during 

each test. Specifically, DOE is proposing 

that this measurement be done using the 

procedures and methods for measuring 

airflow specified in ASHRAE 37–2009 

(RA 2019), similar to how it is done for 

central air conditioners and heat pumps. 

As part of this proposal, DOE proposes 

to incorporate by reference Figure 12 of 

ANSI/Air Movement and Control 

Association International, Inc. 

(‘‘AMCA’’) 210–07, ANSI/ASHRAE 51– 

07 (‘‘AMCA 210–2007’’), Laboratory 

Methods of Testing Fans for Certified 

Aerodynamic Performance Rating and 

Figure 14 of ANSI/ASHRAE Standard 

41.2–1987 (RA 92), (‘‘ASHRAE 41.2– 

1987 (RA 1992)’’), Standard Methods for 

Laboratory Airflow Measurement. 

However, DOE is also aware of several 

other additional methods of directly 

measuring the airflow, such as methods 

outlined in AMCA 210 (e.g., the pitot 

traverse method),14 duct-mounted 

airflow measurement devices, and 

anemometers. DOE has tentatively 

determined that the proposed approach 

to measure airflow as specified by 

ASHRAE 37–2009 offers the most 

accurate and repeatable option for direct 

measurement of airflow and is not 

unduly burdensome but seeks comment 

on the proposed approach as well as any 

potential alternative approaches. 

Specifically, DOE requests comment on 

alternative methods of direct airflow 

measurement, including on the level of 

measurement accuracy associated with 

each approach and any associated test 

burden. 

Issue 8: DOE requests comment on its 

tentative conclusion that measuring 

airflow directly would be more accurate 

and result in less variability than the 

current method of calculating airflow 

based on temperature rise. Additionally, 

DOE requests comment on its estimated 

cost for an apparatus to measure airflow 

directly using the procedures and 

methods for measuring airflow specified 

in ASHRAE 37–2009 (RA 2019) (up to 

$50,000). DOE also requests comment 

on whether test laboratories would need 

to purchase additional equipment for 

testing, if DOE adopts this proposal to 

measure airflow directly, or if test 

laboratories generally already have this 

equipment available. 

Issue 9: DOE requests comment on 

whether it is necessary to reference 

AMCA 210–2007 and ASHRAE 41.2– 

1987 (RA 1992) in the test procedure 

instructions for constructing an airflow 

measuring apparatus. 

Issue 10: DOE requests comment on 

alternative methods of direct airflow 

measurement, other than using the 

procedures and methods for measuring 

airflow specified in ASHRAE 37–2009 

(RA 2019). For these alternatives, DOE 

requests comment on the expected 


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15For furnace fans where the maximum airflow 

control setting is a heating setting, the maximum 

airflow control setting test and the default heating 

airflow control setting test would be identical, such 

that only two tests are required: Maximum airflow 

(which is the same as the default heating setting) 

and constant circulation. 

measurement accuracy, the cost of 

associated instrumentation, and 

appropriate associated setup and 

operation procedures. 

3. Location of External Static Pressure 

Measurements 

Currently, section 6.4 of appendix AA 

specifies that for all test configurations, 

external static pressure taps shall be 

placed 18 inches from the outlet. 

Additionally, although section 6.4 of 

appendix AA references Section 6.4 of 

ASHRAE 37–2009 for a description of 

the apparatus for measuring external 

static pressure, section 6.4 of appendix 

AA includes explicit instructions to not 

follow the specifications in Section 6.4 

of ASHRAE 37–2009 regarding the 

minimum length of the ducting and 

minimum distance between the external 

static pressure taps and product inlet 

and outlet. The external static pressure 

measurement location in Section 6.4 of 

ASHRAE 37–2009 varies depending on 

the dimensions of the duct outlet. DOE 

adopted the requirement to measure 

external static pressure at 18 inches 

from the outlet in the January 2014 

Final Rule in response to comments 

from manufacturers concerning 

practical constraints of the test setup. 79 

FR 500, 511. Specifically, DOE 

previously determined that a fixed 

dimension requirement of measuring 

external static pressure 18 inches from 

the outlet (as opposed to the 

requirements in ASHRAE 37–2009, 

which depend on the dimensions of the 

outlet duct) would allow larger products 

to be tested in existing furnace testing 

facilities and would improve 

consistency with the test setup for 

consumer furnace testing. Id. However, 

in light of the concerns about the 

repeatability of the current furnace fan 

test procedure, DOE is reconsidering the 

appropriate location for measuring 

external static pressure. ASHRAE 37– 

2009 was developed through a 

consensus process and would generally 

be expected to represent the current best 

practices for measuring external static 

pressure. DOE is concerned that 

measuring at a fixed location of 18 

inches from the outlet could lead to a 

less accurate and less repeatable 

measurement than the approach 

provided in ASHRAE 37–2009 because 

the airflow profile may not be fully 

developed. Therefore, although DOE is 

not proposing a change to the 

measurement location in this NOPR, 

DOE is seeking more information to 

determine whether a change would 

improve the repeatability of the FER 

test. If DOE determines that changing 

the location of the pressure taps could 

improve repeatability, DOE may do so 

in a future final rule. 

Issue 11: DOE requests comment on 

whether requiring that the external 

static pressure be measured at the 

location specified in Section 6.4 of 

ASHRAE 37–2009, as opposed to 

specifying that external static pressure 

taps always be placed 18 inches from 

the outlet, could improve test 

repeatability. DOE also requests 

comment on whether manufacturer 

facilities and other test laboratories 

would be able to accommodate the 

added duct length during testing. 

Further, if test facilities would not be 

able to accommodate the added duct 

length during testing, DOE requests 

comment on whether a different length 

requirement could improve test 

repeatability while not preventing any 

existing test facilities from completing a 

valid test for furnace fans. 

4. Language Updates 

In the July 2021 RFI, DOE sought 

comment on whether any definitions in 

the test procedure require revision and 

if so, how the definitions should be 

revised. 86 FR 35660, 35662. DOE 

received a number of comments in 

response suggesting revisions to the 

language in appendix AA that could 

reduce confusion about the test 

procedure. 

a. Definitions 

For furnace fans used in furnaces or 

modular blowers with single-stage 

heating, the three airflow-control 

settings required to be tested are: The 

maximum setting, the default constantcirculation setting, and the default 

setting when operated using the 

maximum heat input rate.15 For furnace 

fans used in furnaces or modular 

blowers with multi-stage heating or 

modulating heating, the airflow-control 

settings to be tested are: The maximum 

setting; the default constant-circulation 

setting; and the default setting when 

operated using the reduced heat input 

rate. See sections 8.6.1, 8.6.2 and 8.6.3 

of appendix AA. For both single-stage 

and two-stage or modulating units, if a 

default constant-circulation setting is 

not specified, the lowest airflow-control 

setting is used to represent constant 

circulation for testing. See section 8.6.2, 

appendix AA. 

In addition, if the manufacturer 

specifies multiple heating airflowcontrol settings, the highest heating 

airflow-control setting specified for the 

given function (i.e., at the maximum or 

reduced input, as applicable) is used. 

See section 8.6.3, appendix AA. 

Inquiries sent to DOE since the 

publication of the January 2014 Final 

Rule indicate that there are differing 

interpretations regarding the 

appropriate airflow-control settings for 

testing, with some manufacturers 

interpreting the DOE test procedure as 

requiring testing only the ‘‘as-shipped’’ 

airflow-control settings. However, the 

definition for ‘‘default airflow-control 

setting’’ specifically states that ‘‘[i]n 

instances where a manufacturer 

specifies multiple airflow-control 

settings for a given function to account 

for varying installation scenarios, the 

highest airflow-control setting specified 

for the given function shall be used for 

the procedures specified in this 

appendix.’’ Section 2.6, appendix AA. 

Further, the default airflow-control 

settings are defined as airflow-control 

settings specified for installed-use by 

the manufacturer. That section in turn 

clarifies that the ‘‘manufacturer 

specifications for installed use’’ are 

those specifications provided for typical 

consumer installations in the product 

literature shipped with the product in 

which the furnace fan is installed. 

The ‘‘default airflow-control setting’’ 

should not be conflated with the asshipped airflow-control settings. For 

example, a furnace may be shipped with 

the low-speed airflow-control setting 

configured for the heating function (i.e., 

the as-shipped airflow-control setting), 

but the installation manual shipped 

with the furnace fan specifies the 

medium speed airflow-control setting 

for the heating function for certain 

installations, which is the highest 

airflow-control setting specified for the 

heating function. In this scenario, the 

DOE definition for ‘‘default airflowcontrol setting’’ requires the medium 

airflow-control setting to be used during 

the heating-mode test, rather than the 

as-shipped setting (i.e., the low setting) 

because there are multiple airflowcontrol settings for the heating function, 

and the medium setting is the highest 

setting specified. 

Additionally, inquiries sent to DOE 

indicate that some manufacturers may 

be interpreting the test procedure to 

require testing according to installation 

instructions printed on the control 

board. However, DOE notes that the 

same control board may be used across 

multiple products to reduce 

manufacturing complexity and costs, 

and as a result, instructions provided on 

a control board may not be applicable to 

every unit in which a control board is 


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used and could contradict the 

specifications in product literature. For 

this reason, DOE specifies in the 

definition of default airflow-control 

setting that the manufacturer 

specifications for installed-use are those 

specifications provided for typical 

consumer installations in the product 

literature shipped with the product in 

which the furnace fan is installed. 

Section 2.6, appendix AA. 

In the July 2021 RFI, DOE requested 

comment on whether further instruction 

was necessary for determining the 

appropriate airflow controls used for 

testing. 86 FR 35660, 35663. 

AHRI recommended that DOE change 

the term ‘‘default airflow-control 

settings,’’ which AHRI stated implies asshipped settings or factory settings, to 

‘‘specified airflow-control settings’’ or 

‘‘multiple airflow-control settings’’ to 

ensure the correct settings are used for 

testing. (AHRI, No. 5 at pp. 3–4) AHRI 

also commented that there is a conflict 

between the directions in section 8.6.2 

and section 2.6 of appendix AA, with 

section 8.6.2 directing the testing 

laboratory to use the lowest available 

airflow-control setting if none is 

provided, and section 2.6 specifying to 

use the highest. (Id. at pp. 4–5) AHRI 

recommended providing a flow chart to 

outline the hierarchy of instructions to 

guide the selection of airflow-control 

settings for each mode. (Id. at p. 4) 

To provide further clarity regarding 

the correct airflow control setting to be 

used for each test, DOE proposes to 

change the defined term at section 2.6 

in appendix AA from ‘‘default airflowcontrol settings’’ to ‘‘specified airflowcontrol settings.’’ This revised definition 

would avoid potential misinterpretation 

of the term ‘‘default,’’ which is not 

intended to limit testing to the asshipped airflow-control settings. 

Additionally, DOE agrees with AHRI’s 

comment that the conflicting direction 

from sections 8.6.2 and 2.6 of appendix 

AA could cause confusion when 

selecting airflow-control settings for 

testing. The intended hierarchy of these 

sections is for the airflow control setting 

to be selected according to section 2.6, 

unless section 8.6.2 applies, in which 

case section 8.6.2 should be used to 

select airflow control settings. To clarify 

this hierarchy, in addition to changing 

the term ‘‘default airflow-control 

settings’’ to ‘‘specified airflow-control 

settings,’’ DOE proposes to add the 

phrase ‘‘unless otherwise specified 

within the test procedure’’ to the end 

the definition of ‘‘specified airflowcontrol settings.’’ 

These proposed changes would clarify 

the appropriate airflow control settings 

to use for testing. Because these changes 

are meant to improve clarity but not 

change the current test methodology, 

DOE does not expect that these 

proposals would cause any changes to 

current testing or ratings. Additionally, 

DOE expects that these proposals will 

alleviate confusion about the 

appropriate airflow control settings to 

use for testing, and therefore DOE does 

not also propose to add a flowchart into 

appendix AA to further clarify which 

airflow control settings are appropriate. 

Issue 12: DOE seeks comment on its 

proposal to change the term ‘‘default 

airflow-control settings’’ to ‘‘specified 

airflow-control settings’’ and to add the 

phrase ‘‘unless otherwise specified 

within the test procedure’’ to the end of 

the revised term’s definition. 

Additionally, the CA IOUs 

recommended that DOE further 

investigate the effect of control features 

on fan performance to ensure that fan 

energy use in the test procedure is 

representative of use in the field for all 

available furnace capabilities, including 

for modulating furnaces with very low 

heating outputs. The commenter stated 

that modulating controls increase both 

the frequency of fan speed variation and 

the number of hours spent in heating 

mode at reduced speeds. (CA IOUs, No. 

4 at p. 4) 

In a NOPR published in the Federal 

Register on May 15, 2012 (‘‘the May 

2012 NOPR’’), DOE tentatively 

concluded that a metric based on 

measurements in multiple airflowcontrol settings would be appropriate to 

account for furnace fan energy 

consumption across its entire operating 

range. 77 FR 28673, 28687. DOE 

recognized that furnace fans are used 

not just for circulating air through duct 

work during heating operation, but also 

for circulating air during cooling and 

constant-circulation operation. Id. DOE 

also stated that it understands that 

higher airflow-control settings are 

factory set for cooling operation, and 

that the electrical energy consumption 

of a furnace fan is generally higher 

while performing the cooling function. 

Id. Additionally, DOE compared ratings 

that use measurements in two, three, 

and five airflow-control settings and 

found that a metric that uses 

measurements in three of the available 

airflow-control settings appropriately 

captures the efficiency advantages of 

using more-efficient technologies while 

minimizing burden on manufacturers. 

Id. In the absence of data or examples 

indicating otherwise for modulating 

units, DOE tentatively concludes that 

including maximum airflow, cooling, 

and constant circulation tests fully 

encompass the fan control features and 

are therefore representative of field use. 

Accordingly, DOE is not proposing any 

changes to how modulating units are 

tested under appendix AA. 

Additionally, in the July 2021 RFI, 

DOE requested comment on the 

appropriate hierarchy to follow in the 

event of conflicting airflow-control 

settings in the manufacturer’s product 

literature. 86 FR 35660, 35663. In 

response, AHRI recommended DOE 

clarify that the order of priority should 

be the AHRI Database followed by the 

manufacturer’s installation guide. 

Additionally, AHRI stated that operating 

furnaces intended for high-static 

pressure applications at the highest 

airflow-control setting may lead to 

excessive airflow that will result in the 

furnace operating outside the 

nameplate-specified temperature rise 

range. AHRI stated that furnace safety 

certification requires furnace airflow 

settings in heating mode to be limited 

by the labeled rise range and 

recommended that heating mode airflow 

control settings should be limited by the 

requirements of the labeled rise range. 

(AHRI, No. 5 at p. 5) 

As discussed previously, DOE 

tentatively concludes that with the 

proposed changes to the airflow-control 

settings definitions, the instructions for 

selecting the appropriate airflow-control 

setting for testing are sufficiently clear. 

Regarding AHRI’s concern that certain 

furnaces may operate with excessive 

airflow that would cause the furnace to 

operate outside the nameplate-specified 

rise range, DOE notes that the test 

method requires testing of the maximum 

heating airflow mode as specified by the 

manufacturer. DOE expects that if a fan 

setting is identified for heating mode 

operation that the fan would be capable 

operating in that mode at the ESP 

specified in appendix AA (which is 

representative of a typical ESP that 

would be encountered in the field) and 

at the specified temperature rise range. 

Issue 13: DOE requests further 

comment on this issue of whether it is 

necessary to specify that the maximum 

heating airflow-control setting used 

during testing be one that also allows for 

operation within the manufacturerspecified temperature rise range during 

testing. DOE is also interested in 

information regarding how often furnace 

fans operate outside of the 

manufacturer-specified temperature rise 

range during FER testing under the 

current requirements. 

In response to DOE’s question about 

whether any definitions in the furnace 

fan test procedure require revision, 

AHRI commented that the phrase 

‘‘manufacturer specifications . . . in 

product literature . . . shipped with 

products’’ should be clarified to include 


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values used in testing that may be 

located on the label, printed literature, 

or online. AHRI stated that 

manufacturers understand the FER test 

procedure is intended to limit furnace 

fan operation to within the 

manufacturer’s intended range of use, 

which it interprets as the manufacturerspecified temperature rise range, static 

pressure range for the given operation 

mode, and airflow range for the function 

being evaluated. AHRI further 

commented that it understands these 

limits may be provided on the label, in 

printed literature, or through a web 

address provided with the product. 

(AHRI, No. 5 at pp. 3–4) 

Currently, DOE refers to 

‘‘manufacturer specifications for 

installed-use’’ in sections 2.2 and 2.6 of 

appendix AA. DOE agrees with AHRI 

that the current instructions could 

benefit from additional clarity. As 

discussed in section III.E.3.a of this 

document, DOE is proposing to replace 

the definition of ‘‘default airflow 

settings’’ with ‘‘manufacturer-specified 

airflow settings.’’ DOE is also creating a 

new definition of dual fuel units, as 

discuss in section III.A.2 of this 

document. 

b. External Static Pressure 

Sections 8.6.2 and 8.6.3 of appendix 

AA provide the test requirements for 

taking measurements in airflow-control 

settings other than the maximum 

airflow-control setting. Both sections 

state that their respective required 

operating settings be maintained until 

steady-state conditions are attained as 

specified in sections 8.3, 8.4, and 8.5 of 

appendix AA. Regarding ESP, sections 

8.3, 8.4, and 8.5 state that stabilization 

is ‘‘indicated by an external static 

pressure within the range shown in 

Table 1.’’ The ESP values in Table 1, as 

indicated by the table’s title, apply only 

to the maximum airflow-control setting 

(section 8.6.1), and therefore are not 

applicable to sections 8.6.2 and 8.6.3 of 

appendix AA. In an accompanying 

statement immediately below Table 1, 

appendix AA directs that ‘‘once the 

specified ESP has been achieved, the 

same outlet duct restrictions shall be 

used for the remainder of the furnace 

fan test.’’ As such, the test procedure 

specifies the ESP conditions in terms of 

the ductwork geometry when testing at 

airflow-control settings other than the 

maximum airflow-control setting. 

In the July 2021 RFI, DOE requested 

comment on how manufacturers are 

currently implementing sections 8.6.2 

and 8.6.3 of appendix AA with respect 

to ESP. DOE requested further comment 

regarding whether additional direction 

is needed as to the ESP requirement 

provided in the statement 

accompanying Table 1, including 

whether additional criteria are 

necessary to limit variability in ESP 

readings for steady-state operation 

during the tests for airflow-control 

settings other than the maximum 

airflow setting, and if so, what that 

direction should be. 86 FR 35660, 

35664. 

AHRI asserted that to implement 

sections 8.6.2 and 8.6.3 of appendix AA 

with respect to ESP, manufacturers first 

set the supply duct restrictions, then 

adjust the ESP according to section 

8.6.1.1 or section 8.6.1.2, then record 

the electrical power. AHRI stated that 

the airflow control setting is next 

adjusted according to section 8.6.2, 

without adjusting the ESP, and then 

electrical power is recorded again. AHRI 

stated the airflow control setting is then 

adjusted according to section 8.6.3, 

again without adjusting the ESP unless 

the temperature rise is not within the 

rise range, in which case the ESP is 

adjusted until the temperature rise is 

within the rise range. (AHRI, No. 5 at p. 

7) 

AHRI also commented that the 

asterisk located in the ESP table column 

heading for Table 1 was intended to 

precede a clarifying comment, but this 

asterisk was left out and should be 

reintroduced and linked to the 

statement reading ‘‘once the specified 

ESP has been achieved, the same outlet 

duct restrictions shall be used for the 

remainder of the furnace fan test’’ that 

follows Table 1 of appendix AA. (AHRI, 

No. 5 at p. 7) 

Based on AHRI’s description of how 

testing is typically performed, DOE 

tentatively concludes that the current 

test procedure generally provides 

sufficient instruction (i.e., the test is 

being performed as intended). DOE 

agrees that the asterisk was omitted in 

appendix AA, and proposes to add an 

asterisk prior to the statement ‘‘once the 

specified ESP has been achieved, the 

same outlet duct restrictions shall be 

used for the remainder of the furnace 

fan test’’ in section 8.6.1.2 of appendix 

AA to link this statement to the ESP 

column of Table 1. This proposed 

change would clarify the appropriate 

duct restrictions for testing and not 

make any substantive changes. 

c. Power Measurements 

Sections 8.6.1.1, 8.6.1.2, 8.6.2, and 

8.6.3 of appendix AA require the 

following parameters to be measured 

once steady-state operation is achieved: 

The furnace fan electrical input power, 

fuel or electric resistance heat kit input 

energy, external static pressure, steadystate efficiency, outlet air temperature, 

and/or temperature rise. DOE believes 

that some test facilities take a single 

reading for each of these parameters 

after achieving the steady state criteria. 

In DOE testing where these parameters 

were measured in one second intervals 

throughout the steady-state period, data 

showed that the values fluctuate 

sometimes significantly between 

readings, even while steady-state 

conditions are maintained. These 

fluctuations could contribute to 

repeatability issues in FER testing if a 

value from a single point in time is used 

for each test due to the potential for 

significant differences from one reading 

to the next. In particular, DOE has seen 

that the standard deviation of furnace 

fan power measurements over a 30 

minute period (at steady state operation) 

can be up to 16 percent of the average, 

although for most units the standard 

deviation is less than 1 percent of the 

average power consumption. Therefore, 

DOE is considering whether further 

clarifications are necessary for appendix 

AA to clarify how manufacturers should 

take power measurements. Specifically, 

DOE believes that increasing the 

number of discrete measurements taken 

(i.e., increasing the sample size) and 

averaging them to determine each 

furnace fan power consumption 

measurement may yield a result that is 

more representative and repeatable than 

using single point measurements of the 

furnace fan power. For example, DOE 

could require that power measurements 

should be based on the average value 

over a one-minute interval beginning 

immediately after steady-state operation 

has been achieved, during which the 

power is measured at least once per 

second. Alternatively, DOE could 

require furnace fan power 

measurements to be based on the 

average of measurements taken over the 

entire steady-state period at certain 

specified intervals (e.g., every minute or 

every 5 minutes). If DOE determines 

that adding instructions to appendix AA 

to clarify how to measure furnace fan 

power consumption could improve the 

repeatability of FER tests, DOE may do 

so in the final rule. 

Issue 14: DOE requests data and 

information on the methods and 

granularity with which test facilities 

currently measure the aforementioned 

variables, particularly furnace fan power 

(EMax, ECirc, and EHeat). DOE also 

requests comment on the intervals at 

which test facilities are currently 

capable of recording these 

measurements with their current 

instrumentation. Finally, DOE also 

requests information on whether there 

are variables besides the fan power 


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consumption variables for which there 

are significant fluctuations in 

measurements that DOE should also 

consider requiring be determined as an 

average of multiple measurements. 

Issue 15: DOE requests comment on 

the number of samples that should be 

taken and the length of time over which 

data should be collected in order for a 

representative average to be achieved. 

DOE also requests comment on the 

associated costs, if any, to upgrade 

measurement instruments or software to 

be able to collect furnace fan power 

consumption measurements at 

frequencies of once per second, once per 

minute, once per 5 minutes, and/or 

other recommended sampling 

frequencies. 

d. Other Language Clarifications 

The title of section 8.3 of appendix 

AA is Steady-State Conditions for Gas 

and Oil Furnaces, the title of section 8.4 

is Steady-State Conditions for Electric 

Furnaces and Modular Blowers, and the 

title of section 8.5 of appendix AA is 

Steady-State Conditions for Cold Flow 

Tests. The former two sections (8.3 and 

8.4) describe the steady-state conditions 

for ‘‘hot flow’’ tests where the burner or 

heating element is on, while the latter 

section (8.5) describes the steady-state 

conditions for ‘‘cold flow’’ tests when 

the burner or heating element is off. To 

provide better consistency between the 

section titles and to provide clarity for 

the intended use of sections 8.3 and 8.4 

of appendix AA, DOE proposes to 

amend the section titles to include the 

terminology ‘‘for Hot Flow Tests’’ in the 

titles. 

Section 10.1 of appendix AA specifies 

that in calculating FER, the furnace fan 

electrical consumption in the maximum 

airflow-control setting (Emax) is 

multiplied by the cooling hours (CH). 

However, if the maximum airflowcontrol setting is a not a cooling setting 

(e.g., if it is only a heating setting), Emax

would not necessarily be measured 

during operation in a cooling airflowcontrol setting. Therefore, DOE proposes 

to change the description of the 

operating mode hours to be ‘‘maximum 

airflow hours’’ and to designate it with 

the variable ‘‘MH’’ in the nomenclature 

and associated equations. DOE 

tentatively concludes that this proposed 

change would provide consistency with 

the description of the operational mode 

and Emax measurement and avoid the 

implication that the maximum airflowcontrol setting will always be a cooling 

mode. 

E. Nomenclature and Equations 

In response to the July 2021 RFI, 

AHRI submitted several comments 

regarding the nomenclature and 

equations in appendix AA. In the 

current test procedure for furnace fans, 

the equation for FER includes a 

dependence on the term Qmax, which 

represents the airflow at the maximum 

airflow-control setting. For products for 

which the maximum airflow-control 

setting is the specified heat setting, Qmax

will equal the airflow measured at the 

heating mode control setting (‘‘Qheat’’). 

Otherwise, a separate equation in 

section 10.1 of appendix AA is used to 

adjust Qheat to determine the expected 

Qmax. Qheat is first determined using the 

equation for Qi (the airflow in airflowcontrol setting i), when i indicates 

heating mode. 

AHRI stated that the use of subscript 

‘‘i’’ is confusing. Specifically, AHRI 

stated that the subscript ‘‘i’’ has two 

different meanings within the equation 

for Qmax: The airflow control setting, 

and the heat input setting. AHRI 

recommended that the subscript ‘‘k’’ be 

used to indicate the heat setting, thereby 

creating measured input at heat setting 

k (QIN,k), steady-state efficiency at heat 

input setting k (EffySS,k), and furnace fan 

electrical consumption at heat setting k 

(Ek). Further, AHRI recommended 

replacing Qi with Qheat.k as opposed to 

implying that Qheat is equal to Qi. (AHRI, 

No. 5 at p. 4) 

DOE agrees that the current use of 

subscripts could lead to confusion. 

However, as discussed in section III.D.2 

of this document, DOE is proposing to 

measure airflow directly. As a result, the 

equations to calculate airflow would no 

longer be needed if this proposal were 

adopted. However, if DOE does not 

ultimately adopt its proposal to measure 

airflow directly, it would consider using 

the subscripts ‘‘i’’ and ‘‘k’’ to distinguish 

between airflow control settings and 

heat input settings. 

Additionally, AHRI submitted a 

revised equation for Qmax. Specifically, 

AHRI submitted a derivation of the Qmax

equation based on the fan laws from the 

2016 ASHRAE Handbook suggesting 

that the average outlet air temperatures 

in the heating and maximum airflow 

modes (THeat, Out and TMax,Out, 

respectively) of the adjustment factor for 

Qheat should be inverted. (AHRI, No. 5 

at pp. 4, 24–26) In response to AHRI’s 

suggestion that the Qmax calculation 

should be corrected, DOE notes that the 

derivation of the Qmax equation was 

discussed in the April 2013 SNOPR. 78 

FR 19606, 19614–19616. Further, DOE 

notes that the fan laws are not an 

appropriate starting point for AHRI’s 

derivation of the Qmax equation. 

Residential furnaces are almost 

exclusively designed such that air is not 

heated until after it has passed through 

the furnace fan (i.e., the furnace fan 

pushes rather than pulls air through the 

heat exchanger) so the inlet air, which 

is what is experienced by the fan, will 

remain at approximately the same 

(ambient) conditions throughout the 

course of the test, independent of the 

furnace fan’s operating mode. As a 

result, the air temperature and density 

experienced by the fan will not change 

when testing a furnace fan in different 

operating modes. In contrast, DOE’s 

derivation was based on differences in 

the temperatures of the air passing 

through the outlet ductwork but is not 

derived from the fan laws. 

In addition, AHRI recommended 

several clarifications for the calculation 

of the airflow equation to determine Qi. 

AHRI’s suggestions included defining 

the previously undefined variables in 

the Qi equation. Specifically, it 

suggested a definition for jacket loss 

(‘‘LJ’’), using the definition and default 

value of 1 percent based on the January 

2014 Final Rule. (AHRI, No. 5 at p. 17) 

Next, AHRI suggested a definition for 

the steady-state efficiency in airflow 

setting i (‘‘Effyss,’’) to incorporate 

comments from the January 2014 Final 

Rule. (Id.) AHRI also suggested adding 

a specific definition for the electrical 

energy to the furnace fan motor in the 

airflow control setting i (‘‘Ei’’) for clarity. 

(Id. at p. 18) Further, AHRI commented 

that several constants in the Qi equation 

should be explicitly defined and/or 

corrected. It recommended defining 60 

as the conversion factor from hours to 

minutes (‘‘min/h’’), 0.24 as the 

approximate specific heat capacity of 

dry air, and 0.444 as the approximate 

specific heat capacity of saturated water 

vapor. AHRI stated that each of these 

definitions would provide additional 

clarity when calculating Qi. (Id.) AHRI 

also recommended revising the 

included factor for converting watts to 

Btu per hour (‘‘(Btu/h)/W’’) from 3,413 

to 3.413 to correct the misplaced the 

decimal point. (Id.) AHRI noted that 

DOE currently uses the variable ‘‘W’’ to 

represent both relative humidity in 

section 8.6.1 of appendix AA and 

humidity ratio in section 9 of appendix 

AA. AHRI recommends clarifying that 

humidity ratio is denoted using the 

variable ‘‘W,’’ while the relative 

humidity is represented by the variable 

‘‘j’’ to align with the ASHRAE 

handbook. (Id.) Finally, AHRI suggested 

changing the definition of the specific 

volume of air (vair,i), which is currently 

defined in the test procedure as the 

‘‘specific volume of dry air’’ in units of 

lb/ft3, to the ‘‘specific volume of moist 

air mixture in the airflow-control setting 

i’’ in units of ft3/lbda. (Id. at p. 19) Id. 


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Were DOE to adopt in a final rule its 

proposal to measure airflow directly 

rather than to calculate airflow (as 

discussed in section III.D.2 of this 

document), the terms reference system 

descriptor (‘‘kref’’), air throughput 

temperature rise in setting i (‘‘DTi’’), 

inlet air temperature at time of the 

electrical power measurement in 

airflow-control setting i (‘‘Ti,In’’), Effyss, 

LJ, the airflow variable (‘‘Qi’’), and a 

specific volume of dry air (‘‘vair’’) would 

no longer be used and as a result, their 

definitions would be removed from the 

test procedure in appendix AA. The 

humidity ratio, W, and average outlet air 

temperature at time of the electrical 

power measurements in airflow-control 

setting i (‘‘Ti,out’’) would remain in 

appendix AA even though they would 

not be used directly in any calculations 

because they would be necessary for 

measurement of airflow. Should, 

however, DOE determine to maintain 

the indirect calculation of airflow based 

on measurement of temperature rise, as 

required by the current test procedure, 

DOE would consider adopting several of 

the nomenclature revisions 

recommended by AHRI, including those 

for variables EffySS, vair, LJ, Qi, 60, 0.24, 

and 0.44. In addition, the variables for 

DTi, Ti,In, Ti,Out were not mentioned by 

AHRI but would be updated for 

consistency with the clarifications of the 

indices. The nomenclature definition for 

variable QIN,i is relevant regardless of 

whether DOE ultimately adopts its 

proposal to directly measure airflow; 

therefore, DOE proposes to revise it 

within the test procedure for furnace 

fans at appendix AA as discussed in the 

paragraphs below. 

In reviewing the suggested changes, 

DOE agrees with AHRI’s recommended 

definitions for steady-state efficiency in 

airflow-control setting i (Effyss,i), jacket 

loss (LJ), clarification of the meaning of 

the indices for airflow(Qi), humidity 

ratio (W), conversion from hours to 

minutes, the approximate specific heat 

capacity of dry air in Btu per pound per 

°F (‘‘Btu/lb-°F’’), the approximate 

specific heat capacity of saturated water 

vapor in Btu/lb-°F, and the correction of 

the units for the specific volume of air 

(vair) in the nomenclature from lb/ft3 to 

ft3/lb. All other variables that would 

include the modified indices would also 

be updated in the nomenclature section 

of appendix AA including DTi,k, Ti,k, In, 

Ti,k, Out, and QIN,k. Should DOE not 

adopt the proposal to measure airflow 

directly, DOE tentatively concludes that 

providing a specific definition for each 

of these variables and constants would 

allow for increased clarity when 

calculating airflow. Therefore, should 

DOE not adopt the proposal to measure 

airflow directly, DOE would propose to 

include the following new definitions in 

section 9 of appendix AA: 

• 60 = conversion factor from hours to 

minutes, (min/h) 

• 0.24 = approximate specific heat 

capacity of dry, (Btu/lb-°F) 

• 0.44 = approximate specific heat 

capacity of saturated water vapor, 

(Btu/lb-°F) 

• Effyss,i = Steady-State Efficiency in 

airflow-control setting i. For gas and 

oil furnaces, Effyss,i as specified in 

Sections 11.2.7 (Non-Condensing and 

Non modulating), 11.3.7.3 

(Condensing and Non modulating), 

11.4.8.8 (Non-Condensing and 

Modulating), or 11.5 (Condensing and 

Modulating) of ASHRAE 103–2017, in 

%. For electric furnaces or modular 

blowers, Effyss,i equals 100, in %. 

• LJ = jacket loss as determined as 

specified in Section 8.6 of ASHRAE 

103–2017 or a default value of 1% if 

the jacket loss test is not performed, 

in % 

• Ti,k, In = inlet air temperature at time 

of the electrical power measurement, 

in °F, in airflow-control setting i and 

heat setting k, where i can be ‘‘Circ’’ 

to represent constant-circulation (or 

minimum airflow) mode, ‘‘Heat’’ to 

represent heating mode, or ‘‘Max’’ to 

represent maximum airflow (typically 

designated for cooling) mode. If i = 

Heat, k can be ‘‘H’’ to represent the 

high heat setting or ‘‘R’’ to represent 

the reduced heat setting. If i = Max or 

Circ, k is not needed. 

• Ti,k, Out = average outlet air 

temperature as measured by the outlet 

thermocouple grid at time of the 

electrical power measurement, in °F, 

in airflow-control setting i and heat 

setting k, where i can be ‘‘Circ’’ to 

represent constant-circulation (or 

minimum airflow) mode, ‘‘Heat’’ to 

represent heating mode, or ‘‘Max’’ to 

represent maximum airflow (typically 

designated for cooling) mode. If i = 

Heat, k can be ‘‘H’’ to represent the 

high heat setting or ‘‘R’’ to represent 

the reduced heat setting. If i = Max or 

Circ, k is not needed. 

• DTi,k = Ti,k, Out minus Ti,k, In, which is 

the air throughput temperature rise in 

setting i and heat setting k, in °F 

• Qi,k = airflow in airflow-control 

setting i and heat setting k, in cubic 

feet per minute (CFM) 

• QIN,k = measured fuel energy input 

rate, in Btu/h, at specified operating 

conditions k based on the fuel’s high 

heating value (HHV) determined as 

required in Section 8.2.1.3 or 8.2.2.3 

of ASHRAE 103–2017, where k can be 

‘‘H’’ for the maximum heat setting or 

‘‘R’’ for the reduced heat setting. 

• vair = specific volume of dry air at 

specified operating conditions per the 

equations in the psychrometric 

chapter in 2001 ASHRAE Handbook— 

Fundamentals in ft3/lb 

DOE also agrees with AHRI’s 

comment regarding the conversion 

factor from watts to Btu/h. Currently, 

the conversion factor multiplies watts 

by 3,413, and therefore converts the 

value to thousand Btu per hour per watt 

(‘‘(kBtu/h)/W’’). However, the measured 

fuel energy input rate, QIN,k, is 

expressed in Btu/h. Therefore, to stay 

consistent throughout the equation, the 

appropriate conversion factor is 3.413, 

which would convert watts to Btu/h. 

Although DOE is proposing to directly 

measure the maximum airflow for 

determining Qmax which obviates the 

need for the Qi equation used to 

calculate Qmax, if DOE were to 

ultimately not adopt that proposal, DOE 

would propose the following equation 

for airflow in airflow-control setting i 

and heat setting k in section 10.1 of 

appendix AA: 

Finally, DOE agrees that there should 

be different variables assigned to 

represent relative humidity and the 

humidity ratio. To provide clarity 

regarding these variables, DOE proposes 

to redesignate the variable for relative 

humidity from ‘‘W’’ to ‘‘j.’’ 

Issue 16: DOE requests comment on 

its proposals to add definitions to 

certain variables and constants in the 

airflow equation and change the 

conversion factor from (kBtu/h)/W to 

(Btu/h)/W in the event that DOE were to 


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16For AHRI’s comment see: www.regulations.gov/ 

comment/EERE-2010-BT-TP-0010-0016. 

17ANSI/ASTM E230/E230M–17, Standard 

Specification For Temperature-Electromotive Force 

(Emf) Tables For Standardized Thermocouples. 

Available at: webstore.ansi.org/standards/astm/ 

astme230e230m17. 

decide not to adopt the proposal to 

directly measure airflow in the final 

rule. DOE seeks further comment 

regarding its proposal to redesignate the 

variable for relative humidity from ‘‘W’’ 

to ‘‘j.’’ 

AHRI further commented that the 

hours used in the equation to calculate 

FER are assigned arbitrarily that do not 

represent the performance in either the 

north or the south. (AHRI, No. 5 at p. 

12) DOE notes that these hours were 

estimated to be the national average for 

each function, and therefore represent 

the mean usage across the country, as 

opposed to the performance in any 

particular part of the country. DOE 

originally proposed these hours in the 

May 2012 NOPR. 77 FR 28673, 28683. 

AHRI responded in a comment to the 

May 2012 NOPR that DOE should 

calculate FER using the annual 

operating hours that DOE proposed.16

78 FR 19606, 19613. Therefore, DOE 

does not propose any deviation from the 

operating hours as outlined in Table 

IV.2 of appendix AA. 

F. Thermocouple Accuracy 

Section 5.1 of appendix AA, which 

references Section 5.1 of ASHRAE 37– 

2009, requires that temperature 

measuring instruments must be accurate 

to within 0.75 °F. Section 6 of appendix 

AA references Section 7 of ASHRAE 

103–2007 for the test apparatus setup. 

Section 7.6 of ASHRAE 103–2007 

includes instructions to take 

temperature measurements with 

thermocouple grids constructed of 

either 5, 9, or 17 thermocouples, 

depending on the stack diameter. The 

measurement accuracy of a 

thermocouple grid depends on the type 

and number of thermocouples used, as 

well as the magnitude of the air 

temperature being measured. 

In the July 2021 RFI, DOE requested 

information regarding the number and 

types of thermocouples, or other 

temperature measurement devices, that 

laboratories use to measure the stack 

temperatures of oil-fired furnaces. DOE 

also sought feedback on whether the 

stack temperatures of gas-fired furnaces 

are likely to exceed 450 °F, and the 

accuracy of instruments used to test 

furnaces (gas- or oil-fired) with stack 

temperatures exceeding 450 °F. 86 FR 

35660, 35665. 

AHRI commented that stack 

temperatures of gas furnaces probably 

would not exceed 450 °F and 

recommended using five thermocouples 

in the stack to measure temperature. 

(AHRI, No. 5 at p. 10) AHRI commented 

that required thermocouple accuracy 

should be adjusted because 

thermocouples are only accurate to 1–2 

degrees Celsius (‘‘°C’’) depending on the 

class of the product, while ASHRAE 37 

(and by extension the DOE test method 

at appendix AA) require measurement 

devices to be accurate within ±0.75 °F. 

(Id.) AHRI recommended reviewing and 

updating the measurement tolerances to 

address this issue. (Id.) DOE did not 

receive any further comments on these 

topics. 

As discussed in the July 2021 RFI, 

using the types of thermocouples 

commonly used in test facilities 

(including ‘‘T-type’’ and ‘‘K-type’’), DOE 

determined that the measurement 

accuracy required in appendix AA 

(0.75 °F) is achievable with a minimum 

of five thermocouples at temperatures 

up to approximately 450 °F. 89 FR 

35660, 35665. This measurement 

accuracy requirement was calculated 

using the thermocouple characteristics 

found in Table 1 of ANSI/ASTM E230/ 

E230M–17 17 and assuming that the 

overall measurement accuracy is equal 

to the measurement tolerance of 

individual thermocouples of that type 

divided by the square root of the 

number of thermocouples. Assuming 

that the stack temperatures of gas 

furnaces would not likely exceed 450 °F 

as indicated by AHRI, DOE tentatively 

concludes that current instrumentation 

is adequate to measure the stack 

temperature of furnaces on the market 

and does not propose any changes to 

accuracy of temperature measuring 

instruments in appendix AA. 

G. Burner Selection 

In the July 2021 RFI, DOE requested 

comment on the potential impact (if 

any) of burner selection on furnace fan 

performance. DOE also requested 

comment on the potential approaches 

for specifying burner(s) for testing. 86 

FR 35660, 35666. In response, AHRI 

asked for clarification regarding DOE’s 

question, and indicated that it was 

unable to provide meaningful comment. 

(AHRI, No. 5 at p. 11) 

DOE notes that there are oil-fired 

furnaces that are shipped without a 

burner, but for which the manufacturer 

instead provides several burner options 

in the accompanying product literature. 

These burners may have different 

steady-state heating efficiencies and/or 

different airflow resistance 

characteristics, that could result in 

differences in furnace fan operation and 

efficiency. Therefore, if different burner 

options are used in tests for a given oil 

furnace and if burner selection impacts 

FER, test repeatability issues could 

arise. 

Because DOE did not receive any 

additional information about burner 

selection, DOE is not proposing to add 

any requirements related to burner 

selection into appendix AA at this time. 

H. Reporting Requirements 

NEEA and the CA IOUs encouraged 

DOE to require mandatory reporting of 

fan performance results for maximum/ 

cooling, heating, and air circulation 

individually. (NEEA, No. 3 at p. 6; CA 

IOUs, No. 4 at p. 4) The CA IOUs 

suggested that this method of reporting 

would allow consumers and utility 

incentive program designers to better 

understand fan performance in each 

mode, which they assert is particularly 

important in regions where operation 

time in each mode differs from the FER 

weighting factors. (CA IOUs, No. 4 at p. 

4) Similarly, NEEA commented that 

reporting the specific energy 

consumption values in each mode 

would provide information for planners 

for the adoption of efficient fan 

equipment suitable for their region. 

(NEEA, No. 3, at pp. 6–7) NEEA asserted 

that this additional reporting is 

reasonable, considering manufacturers 

already test for each consumption value 

separately. (Id. at p. 7) 

Manufacturers, including importers, 

must use product-specific certification 

templates to certify compliance to DOE. 

For consumer furnace fans, the 

certification template reflects the 

general certification requirements 

specified at 10 CFR 429.12 and the 

product-specific requirements specified 

at 10 CFR 429.58. DOE is not proposing 

to amend the product-specific 

certification requirements for these 

products. Were DOE to finalize the 

proposals as amended, DOE would 

consider as part of a separate 

rulemaking whether amendments to the 

certification requirements and reporting 

for furnace fans would be warranted. 

I. Test Procedure Costs and 

Harmonization 

1. Test Procedure Costs and Impact 

In this NOPR, DOE proposes to amend 

the existing test procedure for consumer 

furnace fans by specifying a test method 

for furnace fans that operate at low 

ESPs, incorporating by reference the 

most recent industry test procedures, 

clarifying the scope of the definition of 

‘‘furnace fans,’’ directly measuring 

airflow, tightening ambient conditions, 

and clarifying language for airflowVerDate Sep<11>2014 20:31 May 12, 2022 Jkt 256001 PO 00000 Frm 00017 Fmt 4701 Sfmt 4702 E:\FR\FM\13MYP3.SGM 13MYP3

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control settings. DOE has tentatively 

determined that only the proposed 

amendment requiring directly 

measuring air flow would impact testing 

costs as discussed in the following 

paragraphs. 

a. Airflow Determination 

DOE proposes to require that airflow 

be measured directly in appendix AA in 

accordance with procedures specified in 

ASHRAE 37–2009 (RA 2019). This 

would impose additional cost if a 

manufacturer or test laboratory does not 

already have an airflow-measuring 

device for testing other HVAC 

equipment, or if they would need to 

purchase one to specifically dedicate to 

testing furnace fans. DOE estimates a 

purchase price of approximately 

$50,000 for an airflow-measuring device 

that meets the requirements of ASHRAE 

37–2009 (RA 2019). DOE recognizes that 

laboratories may have multiple test rigs, 

and that each test rig could require its 

own additional equipment. As an 

example, for a laboratory with two 

furnace fan test rigs, the cost associated 

with new test equipment resulting from 

this proposed requirement would be 

$100,000. However, DOE expects that 

not all manufacturers and test 

laboratories would need to purchase 

new equipment, since direct airflow 

measurement is performed for testing of 

other HVAC equipment and the 

necessary equipment could also be used 

for furnace fan testing, depending on the 

testing capacity at that site. As such, 

DOE is unable to estimate the total 

expected cost to industry that would be 

incurred as a result of this proposal. 

Further, this proposed change is 

intended to increase the accuracy of 

FER ratings and consistency of test 

results but would not be expected to 

change the actual performance of any 

units. Additionally, DOE is not 

proposing to require units that are 

currently certified to retest according to 

the updated test procedure. 

Issue 17: DOE requests comment, 

specifically from manufacturers and 

third-party test laboratories, on whether 

costs would be incurred as a result of 

the proposals in this NOPR to require 

measuring airflow directly; and if so, the 

total incurred cost expected for each test 

facility. 

DOE has initially determined that the 

proposed amendments would not 

impact the representations of consumer 

furnace fan energy efficiency. Based on 

the initial determination, manufacturers 

would be able to rely on data generated 

under the current test procedure should 

the proposed amendments be finalized. 

As such, retesting of consumer furnace 

fans would not be required solely as a 

result of DOE’s adoption of the 

proposed amendments to the test 

procedure. 

Issue 18: DOE requests comment on 

the impact and associated costs of the 

proposed amendments. 

b. Additional Amendments 

DOE does not anticipate that the 

remainder of the amendments proposed 

in this NOPR would impact test costs. 

In response to petition for waiver and 

an application for interim waiver for 

heating-only furnace fans, DOE granted 

a waiver requiring use of an alternate 

test procedure that specifies alternate 

ESP test conditions for furnace fans that 

operate at low ESPs. Any such furnace 

fan models currently on the market have 

already been granted a test procedure 

waiver from DOE, which specifies use of 

the alternate test procedure. As such, 

DOE’s proposal to incorporate a similar 

methodology as the waiver methodology 

into the test procedure for furnace fans 

that operate at low ESPs will not result 

in any additional costs for 

manufacturers. 

DOE’s proposal to incorporate by 

reference the most recent versions of 

ASHRAE 103, ASHRAE 37, and 

maintain by reference ASHRAE 41.1– 

1986 (RA 2006), would update 

references to the most recent versions of 

ASHRAE 103 and ASHRAE 37. As 

discussed previously, DOE’s review of 

these standards indicates that reference 

to the latest versions of them would not 

impact FER ratings and would not 

require that manufacturers recertify 

their units. Therefore, manufacturers 

would not incur any additional costs. 

DOE’s proposal to define and 

explicitly exclude dual-fuel furnace fans 

from the scope of appendix AA would 

make clear that such products are not 

subject to testing under appendix AA, 

and would not impose any additional 

burden. 

DOE’s proposal to tighten ambient 

conditions would limit the permissible 

ambient temperature range to between 

65 °F and 85 °F and the ambient 

humidity range to between 20 percent 

and 80 percent for both condensing and 

non-condensing furnaces. As discussed, 

appendix AA currently already limits 

ambient temperatures to between 65 °F 

and 85 °F, as well as humidity to below 

80 percent for condensing furnaces, and 

DOE understands that testing 

laboratories are generally able to meet 

these criteria in their testing laboratories 

without the use of a specialized test 

chamber. Additionally, DOE tentatively 

concludes that it is unlikely that test 

laboratories would be unable to meet a 

minimum requirement of 20 percent, 

because that limit would exclude only 

the driest conditions. Therefore, DOE 

expects that test laboratories would not 

incur additional cost in applying these 

same temperature tolerances to testing 

of non-condensing furnaces as well. 

Similar to the proposal to directly 

measure the airflow in section III.J.1.a of 

this document, the ambient condition 

requirements proposed in this NOPR are 

intended to increase the accuracy of 

FER ratings and the consistency of test 

results but should not change the actual 

performance of any units. Additionally, 

DOE is not proposing to require units 

that are currently certified to retest 

according to the updated test procedure. 

DOE’s remaining proposals to clarify 

nomenclature and fix typographic errors 

would not result in any changes to the 

test conduct and therefore would not 

affect the cost of testing. 

DOE has tentatively determined that 

manufacturers would be able to rely on 

data generated under the current test 

procedure, should any of these 

additional proposed amendments be 

finalized. 

2. Harmonization With Industry 

Standards 

DOE’s established practice is to adopt 

relevant industry standards as DOE test 

procedures unless such methodology 

would be unduly burdensome to 

conduct or would not produce test 

results that reflect the energy efficiency, 

energy use, water use (as specified in 

EPCA) or estimated operating costs of 

that product during a representative 

average use cycle or period of use. 

Section 8(c) of appendix A of 10 CFR 

part 430 subpart C. In cases where the 

industry standard does not meet EPCA 

statutory criteria for test procedures, 

DOE will make modifications through 

the rulemaking process to these 

standards as the DOE test procedure. 

The test procedure for consumer 

furnace fans at appendix AA 

incorporates by reference ASHRAE 103– 

2017, ASHRAE 37–2009, and ASHRAE 

41.1–1986 (RA 2006), which provide 

test conditions, testing equipment, and 

methods for measuring the energy use of 

furnace fans. 

In the July 2021 RFI, DOE sought 

comment on the availability of 

consensus-based test procedures for 

measuring the energy use of furnace 

fans that could be adopted without 

modification and more accurately or 

fully comply with the requirement that 

the test procedure produces results that 

measure energy use during a 

representative average use cycle for the 

product, and not be unduly burdensome 

to conduct. 86 FR 35660, 35665. 

In response, AHRI commented that 

the industry test standard Canadian 


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18The ‘‘anti-backsliding’’ provision prevents the 

Secretary from prescribing any amended standard 

that either increases the maximum allowable energy 

use or decreases the minimum required energy 

efficiency of a covered product. (42 U.S.C. 

6295(o)(1)) 

Standards Organization (‘‘CSA’’) 

Standard C823:11 (R2021) ‘‘Performance 

of air handlers in residential space 

conditioning systems’’ specifies 

requirements for measuring both the air 

delivery and the electrical energy 

consumption of air handlers in 

residential space conditioning systems 

over a range of static pressures and 

speed control settings. (AHRI, No. 5 at 

p. 9) AHRI stated that while 

performance ratings can be developed 

for each of the air handler operating 

controls settings, manufacturers find 

this procedure to be unduly 

burdensome for regulatory purposes, 

where multiple test samples are 

required to establish ratings. (Id.) Upon 

review of the standard, DOE tentatively 

concludes that harmonizing DOE’s test 

method with this test procedure could 

impose unnecessary burden on the 

testing facility and does not propose to 

reference or incorporate this procedure 

in its test procedure for consumer 

furnace fans. 

AHRI also commented that it is 

beginning work on an industry rating 

procedure, AHRI 630 Performance 

Rating of Annual Fuel Utilization 

Efficiency 2 (AFUE2) for Residential 

Furnaces, the purpose of which is to 

establish for residential furnaces the 

following: Definitions; test 

requirements; rating requirements; 

minimum data requirements for 

published ratings; marking and 

nameplate data; and conformance 

conditions. (AHRI, No. 5 at p. 9) The 

scope is limited to products that are 

either a gas-fired or oil-fired central 

furnace, use single-phase electric 

current, and have a heat input rates of 

less than 225,000 Btu/h. (Id.) AHRI 

further stated that this standard will 

combine the three metrics used to rate 

residential furnaces—AFUE, as 

determined by DOE’s test procedures for 

furnaces at appendix N; standby mode 

electrical consumption, as determined 

by appendix N; and the electric 

efficiency of furnace fans, as determined 

by appendix AA—into a single 

performance rating, ‘‘AFUE2.’’ AHRI 

asserted that AFUE2 will reduce 

consumer confusion and increase the 

opportunity for innovation through a 

streamlined performance rating. (Id.) 

On October 12, 2018, DOE received a 

petition from AHRI (‘‘AHRI Petition’’) 

asking DOE to initiate notice-andcomment rulemaking to develop a new 

test procedure for residential furnaces 

and furnace fans which would replace 

the two currently required performance 

metrics for furnaces (i.e., AFUE and 

PW,SB/PW,OFF) and the one performance 

metric for furnace fans (i.e., FER) with 

a single new metric (i.e., AFUE2). On 

November 14, 2018, DOE published a 

Notice of Petition for Rulemaking 

announcing the receipt of the AHRI 

Petition and inviting interested parties 

to submit comments. 83 FR 56746. After 

considering the AFUE2 metric and 

comments from interested parties, DOE 

published a final denial of petition for 

rulemaking on September 21, 2021. 86 

FR 52422. In denying the petition, DOE 

determined that a combined test 

procedure and energy conservation 

standard for consumer furnaces and 

furnace fans would enable an increase 

in the maximum allowable energy use 

and/or minimum required efficiency of 

furnaces and furnace fans, which is 

impermissible under the ‘‘antibacksliding’’ provision EPCA.18 86 FR 

52422, 52423. DOE also determined that 

a unified metric for consumer furnaces 

and furnace fans (using the proposed 

combined metric AFUE2) would be 

contrary to DOE’s prior determination 

that it is technologically infeasible to 

integrate active mode and standby or off 

mode energy use for furnaces. Id. DOE 

maintains its conclusions presented in 

the denial of the AHRI petition and for 

these reasons, did not further consider 

the AFUE2 test method. 

The industry standards that DOE 

proposes to incorporate by reference via 

amendments described in this proposed 

rule are discussed in further detail in 

section IV.M of this document. 

Issue 19: DOE requests comment on 

the benefits and burdens of the 

proposed updates and additions to 

industry standards referenced in the test 

procedure for consumer furnace fans. 

J. Compliance Date and Waivers 

EPCA prescribes that, if DOE amends 

a test procedure, all representations of 

energy efficiency and energy use, 

including those made on marketing 

materials and product labels, must be 

made in accordance with that amended 

test procedure, beginning 180 days after 

publication of such a test procedure 

final rule in the Federal Register. (42 

U.S.C. 6293(c)(2)). 

If DOE were to publish an amended 

test procedure, 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.) 

Upon the compliance date of test 

procedure provisions of an amended 

test procedure, should DOE issue a such 

an amendment, any waivers that had 

been previously issued and are in effect 

that pertain to issues addressed by such 

provisions are terminated. 10 CFR 

430.27(h)(3). Recipients of any such 

waivers would be required to test the 

products subject to the waiver according 

to the amended test procedure as of the 

compliance date of the amended test 

procedure. The amendments proposed 

in this document pertain to issues 

addressed by waivers granted to ECR 

International, Inc. (Case number 2019– 

001). 86 FR 13530. 

IV. Procedural Issues and Regulatory 

Review 

A. Review Under Executive Order 12866 

and 13563 

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), 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 

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 


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19 DOE’s Compliance Certification Database, 

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

accessed February 2, 2022). 

20California Energy Commission’s Modernized 

Appliance Efficiency Database System, 

cacertappliances.energy.ca.gov/Pages/Search/ 

AdvancedSearch.aspx (last accessed February 2, 

2022). 

21 DOE relied on written comments submitted by 

AHRI in response to the consumer furnace fan 

energy conservation standards RFI published in the 

Federal Register on November 23, 2021. 86 FR 

66465. (AHRI, No. 11, p. 7). 

22Panjiva: S&P Global. Available at: panjiva.com/ 

import-export/United-States (Last access February 

25, 2022). 

23The Dun & Bradstreet Hoovers subscription 

login is accessible online at app.dnbhoovers.com/ 

(last accessed February 25, 2022). 

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 proposed 

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 proposed 

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 an initial regulatory flexibility 

analysis (‘‘IRFA’’) for any rule that by 

law must be proposed 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 

(Aug. 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: energy.gov/gc/officegeneral-counsel. 

1. Description of Reasons Why Action Is 

Being Considered 

DOE is proposing to amend the 

existing DOE test procedures for 

consumer furnace fans. EPCA requires 

that, at least once every 7 years, DOE 

evaluate test procedures for each type of 

covered product, including consumer 

furnace fans, 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)) 

DOE is proposing amendments to the 

test procedures for consumer furnace 

fans in satisfaction of its statutory 

obligations under EPCA. 

2. Objectives of, and Legal Basis for, 

Rule 

DOE is required to review existing 

DOE test procedures for all covered 

products every 7 years to determine if 

an amended test procedure would more 

accurately or fully comply with the 

requirement that a test procedure be 

reasonably designed to measure energy 

efficiency during a representative 

average use cycle and not be unduly 

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

6293(b)(1)(A)) 

3. Description and Estimate of Small 

Entities Regulated 

For manufacturers of consumer 

furnace fans, the U.S. Small Business 

Administration (‘‘SBA’’) has set a size 

threshold, which defines those entities 

classified as ‘‘small businesses’’ for the 

purposes of the statute. DOE used the 

SBA’s small business size standards to 

determine whether any small entities 

would be subject to the requirements of 

the rule. (See 13 CFR part 121.) The size 

standards are listed by North American 

Industry Classification System 

(‘‘NAICS’’) code and industry 

description and are available at 

www.sba.gov/document/support--tablesize-standards. Manufacturing of 

consumer furnace fans is classified 

under NAICS 333415, ‘‘AirConditioning and Warm Air Heating 

Equipment and Commercial and 

Industrial Refrigeration Equipment 

Manufacturing.’’ The SBA sets a 

threshold of 1,250 employees or fewer 

for an entity to be considered as a small 

business for this category. 

DOE reviewed this proposed rule 

under the provisions of the Regulatory 

Flexibility Act and the procedures and 

policies published on February 19, 

2003. 68 FR 7990. 

DOE conducted a market survey using 

available public information to identify 

manufacturers of the products covered 

by this rulemaking. DOE’s research 

involved its Compliance Certification 

Database (‘‘CCD’’),19 California Energy 

Commission’s Modernized Appliance 

Efficiency Database System 

(‘‘MAEDbS’’),20 individual company 

websites, and consumer furnace fan 

energy conservation standards 

rulemakings 21 to create a list of 

companies that manufacture or sell 

consumer furnace fans in the United 

States. DOE then consulted other 

publicly available data, such as 

manufacturer specifications and product 

literature, U.S. import and export data 

(e.g., Panjiva 22) and basic model 

numbers, to identify original equipment 

manufacturers (‘‘OEMs’’) of the products 

covered by this proposed rulemaking. 

DOE further relied on public sources 

and subscription-based market research 

tools (e.g., Dun & Bradstreet reports 23) 

to determine company location, 

headcount, and annual revenue. DOE 

screened out companies that do not 

offer products covered by this proposed 

rulemaking, do not meet the SBA’s 

definition of a ‘‘small business,’’ or are 

foreign-owned and operated. 

DOE initially identified 25 OEMs 

offering consumer furnace fans for the 

domestic market. Of the 25 OEMs 

identified, DOE estimates that eight 

companies qualify as small businesses 

and are not foreign-owned and operated. 

4. Description and Estimate of 

Compliance Requirements 

In this NOPR, DOE proposes to amend 

the existing test procedure for consumer 

furnace fans by (1) specifying testing 

instructions for furnace fans incapable 

of operating at the required external 

static pressure (‘‘ESP’’); (2) 

incorporating by reference the most 

recent versions of industry standards, 

ASHRAE 103–2017 and ASHRAE 37– 

2009 (RA 2019), in 10 CFR 430.3; (3) 

defining dual-fuel furnace fans and 

excluding them from the scope of 

appendix AA; (4) changing the term 

‘‘default airflow-control settings’’ to 

‘‘specified airflow-control settings’’; (5) 

adding provisions to directly measure 

airflow; (6) revising the ambient 

temperature condition allowed during 

testing; and (7) assigning an allowable 

range of relative humidity during 

testing. 

DOE has tentatively determined that 

only the proposed amendment requiring 

directly measuring air flow would 

impact testing costs. This amendment 

would impose additional testing costs if 

a manufacturer or test laboratory does 

not already have an airflow-measuring 

device for testing other HVAC 

equipment, or if they would need to 

purchase one to specifically dedicate to 

testing furnace fans. DOE estimates a 


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24 DOE relied on information from Dun & 

Bradstreet to estimate the annual revenues of the 

eight small businesses identified. The Dun & 

Bradstreet subscription login is accessible at: 

app.dnbhoovers.com/ (Last accessed February 25, 

2022). 

25See: https://www.amca.org/assets/resources/ 

public/pdf/Education%20Modules/AMCA%20210- 

16.pdf. (Last accessed 4/7/2022.) 

purchase price of approximately 

$50,000 for an airflow-measuring device 

that meets the requirements of ASHRAE 

37–2009 (RA 2019). DOE estimates that 

domestic small businesses would incur 

this one-time cost associated with the 

proposed change to measure airflow 

directly, if they do not already have the 

necessary apparatus to directly measure 

airflow. This cost is not re-occurring, 

and DOE does not expect that any of the 

proposed changes would increase the 

cost of performing testing on an ongoing 

basis. Furthermore, DOE is not 

proposing to require units that are 

currently certified to retest according to 

the updated test procedure. 

DOE identified eight small, domestic 

OEMs that manufacture the products 

covered by this rulemaking. DOE does 

not have a method for determining 

which manufacturers have an existing 

airflow-measuring device that meets the 

requirements of ASHRAE 37–2009 (RA 

2019). For the cost analysis, DOE 

assumed all small manufacturers 

identified would purchase the 

additional equipment. DOE estimates 

that the annual revenue of these small 

companies range from $4.8 million to 

$187.4 million, with an average annual 

revenue of $61.8 million.24 Using the 

$50,000 one-time cost estimate, DOE 

expects that the additional costs 

associated with this NOPR would 

account for one percent or less of annual 

revenue for each small business. 

Issue 20: DOE requests comment on 

the number of small consumer furnace 

fan manufacturers. DOE also seeks 

comment on DOE’s estimates of 

potential costs these small 

manufacturers may incur. 

5. Identification of Duplication, 

Overlap, and Conflict With Other Rules 

and Regulations 

DOE is not aware of any rules or 

regulations that duplicate, overlap, or 

conflict with the rule being considered 

in this action. 

6. A Description of Significant 

Alternatives to the Rule 

DOE considered alternative test 

methods and modifications to the test 

procedure for consumer furnace fans, 

and the Department has initially 

determined that there are no better 

alternatives than the modifications and 

test procedures proposed in this Notice, 

in terms of both meeting the agency’s 

objectives and reducing burden. 

Specifically, DOE is aware of and did 

consider several other methods of 

directly measuring the airflow, such as 

methods outlined in AMCA 210 (e.g., 

the pitot traverse method),25 ductmounted airflow measurement devices, 

and anemometers. However, DOE has 

tentatively determined that the 

proposed approach to measure airflow 

as specified by ASHRAE 37–2009 offers 

the most accurate and repeatable option 

for direct measurement of airflow and is 

not unduly burdensome. 

DOE is requesting comment on 

methods of direct airflow measurement 

that would be appropriate alternatives 

to the proposal in this document, 

including requesting comment on the 

expected measurement accuracy and the 

cost of associated instrumentation. 

DOE also examined relevant industry 

test standards, and the Department 

incorporated these standards in the 

proposed test procedures whenever 

appropriate. Specifically, this NOPR 

incorporates by reference the most 

recent versions of industry standards, 

ASHRAE 103–2017 and ASHRAE 37– 

2009 (RA 2019), in 10 CFR 430.3. 

Additionally, manufacturers subject 

to DOE’s energy efficiency standards 

may apply to DOE’s Office of Hearings 

and Appeals for exception relief under 

certain circumstances. Manufacturers 

should refer to 10 CFR part 430, subpart 

E, and 10 CFR part 1003 for additional 

details. 

C. Review Under the Paperwork 

Reduction Act of 1995 

Manufacturers of furnace fans 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 consumer furnace fans. (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 proposing to amend the 

certification or reporting requirements 

for furnace fans in this NOPR. Instead, 

DOE may consider proposals to amend 

the certification requirements and 

reporting for furnace fans under a 

separate rulemaking regarding appliance 

and equipment certification. DOE will 

address changes to OMB Control 

Number 1910–1400 at that time, as 

necessary. 

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. 

D. Review Under the National 

Environmental Policy Act of 1969 

In this NOPR, DOE proposes test 

procedure amendments that it expects 

will be used to develop and implement 

future energy conservation standards for 

consumer furnace fans. DOE has 

determined that this proposed 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 (Aug. 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 


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describing the intergovernmental 

consultation process it will follow in the 

development of such regulations. 65 FR 

13735. DOE has examined this proposed 

rule and has determined that it would 

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 

proposed 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 (Feb. 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, the proposed 

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 

proposed regulatory action likely to 

result 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 

energy.gov/gc/office-general-counsel. 

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 rule 

that may affect family well-being. This 

proposed rule would not have any 

impact on the autonomy or integrity of 

the family as an institution. 

Accordingly, DOE has concluded that it 

is not necessary to prepare a Family 

Policymaking Assessment. 

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 proposed 

regulation would not result in any 

takings that might require compensation 

under the Fifth Amendment to the U.S. 

Constitution. 

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%20

Updated%20IQA%20Guidelines

%20Dec%202019.pdf. DOE has 

reviewed this proposed 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 

proposed significant energy action. A 

‘‘significant energy action’’ is defined as 

any action by an agency that 

promulgated 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 (2) is likely to have a 

significant adverse effect on the supply, 

distribution, or use of energy; or (3) is 

designated by the Administrator of 

OIRA as a significant energy action. For 

any proposed significant energy action, 

the agency must give a detailed 

statement of any adverse effects on 

energy supply, distribution, or use 

should the proposal be implemented, 

and of reasonable alternatives to the 

action and their expected benefits on 

energy supply, distribution, and use. 

The proposed regulatory action to 

amend the test procedure for measuring 

the energy efficiency of consumer 

furnace fans 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. 


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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 proposed modifications to the 

test procedure for consumer furnace 

fans would incorporate testing methods 

contained in certain sections of the 

following commercial standards: 

ASHRAE 103–2017, ASHRAE 37–2009 

(RA 2019), and ASHRAE 41.1–1986 (RA 

2006). DOE has evaluated these 

standards and is unable to conclude 

whether they fully comply with the 

requirements of section 32(b) of the 

FEAA (i.e., whether it was developed in 

a manner that fully provides for public 

participation, comment, and review.) 

DOE will consult with both the Attorney 

General and the Chairman of the FTC 

concerning the impact of these test 

procedures on competition, prior to 

prescribing a final rule. 

M. Description of Materials 

Incorporated by Reference 

In this NOPR, DOE proposes to 

incorporate by reference the following 

test standards: 

(1) The test standard published by 

ANSI/ASHRAE, titled Method of 

Testing for Annual Fuel Utilization 

Efficiency of Residential Central 

Furnaces and Boilers, ASHRAE 103– 

2017. ASHRAE 103–2017 is an industryaccepted test procedure for measuring 

the performance of consumer furnaces 

and boilers. Copies of ASHRAE 103– 

2017 may be purchased from ANSI at 

1899 L Street NW, 11th Floor, 

Washington, DC 20036, or by going to 

webstore.ansi.org/standards/ashrae/ 

ansiashrae1032017. 

(2) The test standard published by 

ASHRAE, titled Methods of Testing for 

Rating Electrically Driven Unitary AirConditioning and Heat Pump 

Equipment, ANSI/ASHRAE Standard 

37–2009 (RA 2019). ANSI/ASHRAE 

Standard 37–2009 (R 2109) is an 

industry-accepted test procedure that 

provides a method of test for many 

categories of air conditioning and 

heating equipment. ANSI/ASHRAE 

Standard 37–2009 (RA 2019) is available 

on ANSI’s website at webstore.ansi.org/ 

RecordDetail.aspx?sku=ANSI%2

FASHRAE+Standard+37-2009. 

(3) The test standard published by 

AMCA, titled Laboratory Methods of 

Testing Fans for Certified Aerodynamic 

Performance Rating, ANSI/AMCA 210– 

07. ANSI/AMCA 210–07 is an industryaccepted standard that prescribes 

methods of testing fans and other air 

moving devices. ANSI/AMCA 210–07 is 

available on ANSI’s website at 

webstore.ansi.org/standards/amca/ 

ansiamca21007. 

(4) The test standard published by 

ASHRAE, titled Standard Methods for 

Laboratory Airflow Measurement, 

ASHRAE 41.2–1987 (RA 1992). 

ASHRAE 41.2–1987 (RA 1992) is an 

industry-accepted standard that 

prescribes pressure measurement for the 

calculation of airflow under laboratory 

conditions. ASHRAE 41.2–1987 (RA 

1992) is available on ANSI’s website at 

webstore.ansi.org/standards/ashrae/ 

ansiashrae411987ra92. 

The Director of the Federal Register 

previously approved ASHRAE 41.1– 

1986 (RA 2006) for incorporation by 

reference in the locations in which it 

appears in this proposed rule’s 

regulatory text for 10 CFR part 430. 

V. Public Participation 

A. Participation in the Webinar 

The time and date of the webinar 

meeting are listed in the DATES section 

at the beginning of this document. 

Webinar registration information, 

participant instructions, and 

information about the capabilities 

available to webinar participants will be 

published on DOE’s website: 

www.energy.gov/eere/buildings/publicmeetings-and-comment-deadlines. 

Participants are responsible for ensuring 

their systems are compatible with the 

webinar software. 

B. Procedure for Submitting Prepared 

General Statements for Distribution 

Any person who has an interest in the 

topics addressed in this proposed rule, 

or who is representative of a group or 

class of persons that has an interest in 

these issues, may request an 

opportunity to make an oral 

presentation at the webinar. Such 

persons may submit to 

ApplianceStandardsQuestions@

ee.doe.gov. Persons who wish to speak 

should include with their request a 

computer file in WordPerfect, Microsoft 

Word, PDF, or text (ASCII) file format 

that briefly describes the nature of their 

interest in this rulemaking and the 

topics they wish to discuss. Such 

persons should also provide a daytime 

telephone number where they can be 

reached. 

DOE requests persons selected to 

make an oral presentation to submit an 

advance copy of their statements at least 

two weeks before the webinar. At its 

discretion, DOE may permit persons 

who cannot supply an advance copy of 

their statement to participate, if those 

persons have made advance alternative 

arrangements with the Building 

Technologies Office. As necessary, 

requests to give an oral presentation 

should ask for such alternative 

arrangements. 

C. Conduct of the Webinar 

DOE will designate a DOE official to 

preside at the webinar and may also use 

a professional facilitator to aid 

discussion. The meeting will not be a 

judicial or evidentiary-type public 

hearing, but DOE will conduct it in 

accordance with section 336 of EPCA 

(42 U.S.C. 6306). A court reporter will 

be present to record the proceedings and 

prepare a transcript. DOE reserves the 

right to schedule the order of 

presentations and to establish the 

procedures governing the conduct of the 

webinar. There shall not be discussion 

of proprietary information, costs or 

prices, market share, or other 

commercial matters regulated by U.S. 

anti-trust laws. After the webinar and 

until the end of the comment period, 

interested parties may submit further 

comments on the proceedings and any 

aspect of the proposed rulemaking. 

The webinar will be conducted in an 

informal, conference style. DOE will 

present a general overview of the topics 

addressed in this proposed rulemaking, 

allow time for prepared general 

statements by participants, and 

encourage all interested parties to share 

their views on issues affecting this 

rulemaking. Each participant will be 

allowed to make a general statement 

(within time limits determined by DOE), 

before the discussion of specific topics. 

DOE will permit, as time permits, other 

participants to comment briefly on any 

general statements. 

At the end of all prepared statements 

on a topic, DOE will permit participants 

to clarify their statements briefly. 

Participants should be prepared to 

answer questions by DOE and by other 

participants concerning these issues. 

DOE representatives may also ask 

questions of participants concerning 

other matters relevant to this proposed 

rulemaking. The official conducting the 

webinar will accept additional 

comments or questions from those 

attending, as time permits. The 

presiding official will announce any 

further procedural rules or modification 

of the above procedures that may be 

needed for the proper conduct of the 

webinar. 

A transcript of the webinar will be 

included in the docket, which can be 


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26 DOE has historically provided a 75-day 

comment period for test procedure NOPRs pursuant 

to the North American Free Trade Agreement, U.S.- 

Canada-Mexico (‘‘NAFTA’’), Dec. 17, 1992, 32 

I.L.M. 289 (1993); the North American Free Trade 

Agreement Implementation Act, Public Law 103– 

182, 107 Stat. 2057 (1993) (codified as amended at 

10 U.S.C.A. 2576) (1993) (‘‘NAFTA Implementation 

Act’’); and Executive Order 12889, ‘‘Implementation 

of the North American Free Trade Agreement,’’ 58 

FR 69681 (Dec. 30, 1993). However, on July 1, 2020, 

the Agreement between the United States of 

America, the United Mexican States, and the United 

Canadian States (‘‘USMCA’’), Nov. 30, 2018, 134 

Stat. 11 (i.e., the successor to NAFTA), went into 

effect, and Congress’s action in replacing NAFTA 

through the USMCA Implementation Act, 19 U.S.C. 

4501 et seq. (2020), implies the repeal of E.O. 12889 

and its 75-day comment period requirement for 

technical regulations. Thus, the controlling laws are 

EPCA and the USMCA Implementation Act. 

Consistent with EPCA’s public comment period 

requirements for consumer products, the USMCA 

only requires a minimum comment period of 60 

days. Consequently, DOE now provides a 60-day 

public comment period for test procedure NOPRs. 

viewed as described in the Docket 

section at the beginning of this 

document. In addition, any person may 

buy a copy of the transcript from the 

transcribing reporter. 

D. Submission of Comments 

DOE will accept comments, data, and 

information regarding this proposed 

rule no later than the date provided in 

the DATES section at the beginning of 

this proposed rule.26 Interested parties 

may submit comments using any of the 

methods described in the ADDRESSES

section at the beginning of this 

document. 

Submitting comments via 

www.regulations.gov. The 

www.regulations.gov web page will 

require you to provide your name and 

contact information. Your contact 

information will be viewable to DOE 

Building Technologies staff only. Your 

contact information will not be publicly 

viewable except for your first and last 

names, organization name (if any), and 

submitter representative name (if any). 

If your comment is not processed 

properly because of technical 

difficulties, DOE will use this 

information to contact you. If DOE 

cannot read your comment due to 

technical difficulties and cannot contact 

you for clarification, DOE may not be 

able to consider your comment. 

However, your contact information 

will be publicly viewable if you include 

it in the comment or in any documents 

attached to your comment. Any 

information that you do not want to be 

publicly viewable should not be 

included in your comment, nor in any 

document attached to your comment. 

Persons viewing comments will see only 

first and last names, organization 

names, correspondence containing 

comments, and any documents 

submitted with the comments. 

Do not submit to www.regulations.gov 

information for which disclosure is 

restricted by statute, such as trade 

secrets and commercial or financial 

information (hereinafter referred to as 

Confidential Business Information 

(‘‘CBI’’)). Comments submitted through 

www.regulations.gov cannot be claimed 

as CBI. Comments received through the 

website will waive any CBI claims for 

the information submitted. For 

information on submitting CBI, see the 

Confidential Business Information 

section. 

DOE processes submissions made 

through www.regulations.gov before 

posting. Normally, comments will be 

posted within a few days of being 

submitted. However, if large volumes of 

comments are being processed 

simultaneously, your comment may not 

be viewable for up to several weeks. 

Please keep the comment tracking 

number that www.regulations.gov 

provides after you have successfully 

uploaded your comment. 

Submitting comments via email. 

Comments and documents submitted 

via email also will be posted to 

www.regulations.gov. If you do not want 

your personal contact information to be 

publicly viewable, do not include it in 

your comment or any accompanying 

documents. Instead, provide your 

contact information on a cover letter. 

Include your first and last names, email 

address, telephone number, and 

optional mailing address. The cover 

letter will not be publicly viewable as 

long as it does not include any 

comments. 

Include contact information each time 

you submit comments, data, documents, 

and other information to DOE. No faxes 

will be accepted. 

Comments, data, and other 

information submitted to DOE 

electronically should be provided in 

PDF (preferred), Microsoft Word or 

Excel, WordPerfect, or text (ASCII) file 

format. Provide documents that are not 

secured, written in English and free of 

any defects or viruses. Documents 

should not contain special characters or 

any form of encryption and, if possible, 

they should carry the electronic 

signature of the author. 

Campaign form letters. Please submit 

campaign form letters by the originating 

organization in batches of between 50 to 

500 form letters per PDF or as one form 

letter with a list of supporters’ names 

compiled into one or more PDFs. This 

reduces comment processing and 

posting time. 

Confidential Business Information. 

Pursuant to 10 CFR 1004.11, any person 

submitting information that he or she 

believes to be confidential and exempt 

by law from public disclosure should 

submit via email two well-marked 

copies: One copy of the document 

marked confidential including all the 

information believed to be confidential, 

and one copy of the document marked 

non-confidential with the information 

believed to be confidential deleted. DOE 

will make its own determination about 

the confidential status of the 

information and treat it according to its 

determination. 

It is DOE’s policy that all comments 

may be included in the public docket, 

without change and as received, 

including any personal information 

provided in the comments (except 

information deemed to be exempt from 

public disclosure). 

E. Issues on Which DOE Seeks Comment 

Although DOE welcomes comments 

on any aspect of this proposal, DOE is 

particularly interested in receiving 

comments and views of interested 

parties concerning the following issues: 

Issue 1: DOE requests information and 

data regarding the electrical energy 

consumption of multi-stage furnace fans 

during low-stage cooling operation, 

specifically in relation to single-stage 

furnace fans in cooling mode. 

Issue 2: DOE requests comment on its 

proposed definition for dual-fuel units. 

DOE further requests comment on its 

proposal to explicitly exclude these 

units from the scope of appendix AA. 

Issue 3: DOE requests comment on its 

proposal to incorporate by reference 

ASHRAE 103–2017, ASHRAE 37–2009 

(RA 2019), and maintain by reference 

ASHRAE 41.1–1986 (RA 2006). 

Issue 4: DOE requests comment on the 

proposed test instructions for furnace 

fans unable to complete testing at the 

ESP values currently specified in 

appendix AA. 

Issue 5: DOE requests comment on its 

tentative decision not to tighten the 

tolerance on fuel input ratings beyond 

what is required in ASHRAE 103–2017. 

Issue 6: DOE requests comment on its 

proposal to modify the allowable 

ambient temperature range in appendix 

AA such that for all tests and all 

furnaces (i.e., both condensing and noncondensing), ambient air temperature 

must be maintained between 65 °F and 

85 °F. DOE also requests comment 

regarding any potential burden 

associated with the change in allowable 

ambient temperature. Additionally, DOE 

requests data of the typical ambient 

temperatures of testing facilities 

throughout the year as well as any data 

on the relationship between ambient 

temperature and FER. 


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Issue 7: DOE requests comment on its 

proposal to require maintaining the 

room air RH between 20 percent and 80 

percent during FER testing, and on its 

tentative determination that this 

proposal would decrease variability 

between tests. DOE also requests 

comment on its tentative determination 

that the requirement of room air RH to 

be maintained between 20 percent and 

80 percent would not add burden for 

manufacturers or test laboratories. DOE 

requests comment on whether a tighter 

range for RH during testing (for 

example, 30 percent to 50 percent RH, 

which could further improve 

representativeness and further increase 

repeatability beyond the proposed 

range) would be possible to maintain 

without being unduly burdensome. DOE 

seeks data on ambient RH values at test 

facilities throughout the year and any 

data on the relationship between RH 

and FER variability. 

Issue 8: DOE requests comment on its 

tentative conclusion that measuring 

airflow directly would be more accurate 

and result in less variability than the 

current method of calculating airflow 

based on temperature rise. Additionally, 

DOE requests comment on its estimated 

cost for an apparatus to measure airflow 

directly (up to $50,000). DOE also 

requests comment on whether test 

laboratories would need to purchase 

additional equipment for testing, if DOE 

adopts this proposal to measure4 

airflow directly, or if test laboratories 

generally already have this equipment 

available. 

Issue 9: DOE requests comment on 

whether it is necessary to reference 

AMCA 210–2007 and ASHRAE 41.2– 

1987 (RA 1992) in the test procedure 

instructions for constructing an airflow 

measuring apparatus. 

Issue 10: DOE requests comment on 

alternative methods of direct airflow 

measurement, other than using the 

procedures and methods for measuring 

airflow specified in ASHRAE 37–2009 

(RA 2019). For these alternatives, DOE 

requests comment on the expected 

measurement accuracy, the cost of 

associated instrumentation, and 

appropriate associated setup and 

operation procedures. 

Issue 11: DOE requests comment on 

whether requiring that the external 

static pressure be measured at the 

location specified in Section 6.4 of 

ASHRAE 37–2009, as opposed to 

specifying that external static pressure 

taps always be placed 18 inches from 

the outlet, could improve test 

repeatability. DOE also requests 

comment on whether manufacturer 

facilities and other test laboratories 

would be able to accommodate the 

added duct length during testing. 

Further, if test facilities would not be 

able to accommodate the added duct 

length during testing, DOE requests 

comment on whether a different length 

requirement could improve test 

repeatability while not preventing any 

existing test facilities from completing a 

valid test for furnace fans. 

Issue 12: DOE seeks comment on its 

proposal to change the term ‘‘default 

airflow-control settings’’ to ‘‘specified 

airflow-control settings’’ and to add the 

phrase ‘‘unless otherwise specified 

within the test procedure’’ to the end of 

the revised term’s definition. 

Issue 13: DOE requests further 

comment on this issue of whether it is 

necessary to specify that the maximum 

heating airflow-control setting used 

during testing be one that also allows for 

operation within the manufacturerspecified temperature rise range during 

testing. DOE is also interested in 

information regarding how often furnace 

fans operate outside of the 

manufacturer-specified temperature rise 

range during FER testing under the 

current requirements. 

Issue 14: DOE requests data and 

information on the methods and 

granularity with which test facilities 

currently measure the aforementioned 

variables, particularly furnace fan power 

(EMax, ECirc, and EHeat). DOE also requests 

comment on the intervals at which test 

facilities are currently capable of 

recording these measurements with 

their current instrumentation. Finally, 

DOE also requests information on 

whether there are variables besides the 

fan power consumption variables for 

which there are significant fluctuations 

in measurements that DOE should also 

consider requiring be determined as an 

average of multiple measurements. 

Issue 15: DOE requests comment on 

the number of samples that should be 

taken and the length of time over which 

data should be collected in order for a 

representative average to be achieved. 

DOE also requests comment on the 

associated costs, if any, to upgrade 

measurement instruments or software to 

be able to collect furnace fan power 

consumption measurements at 

frequencies of once per second, once per 

minute, once per 5 minutes, and/or 

other recommended sampling 

frequencies. 

Issue 16: DOE requests comment on 

its proposals to add definitions to 

certain variables and constants in the 

airflow equation and change the 

conversion factor from (kBtu/h)/W to 

(Btu/h)/W in the event that DOE were to 

decide not to adopt the proposal to 

directly measure airflow in the final 

rule. DOE seeks further comment 

regarding its proposal to redesignate the 

variable for relative humidity from ‘‘W’’ 

to ‘‘j.’’ 

Issue 17: DOE requests comment, 

specifically from manufacturers and 

third-party test laboratories, on whether 

costs would be incurred as a result of 

the proposals in this NOPR to require 

measuring airflow directly; and if so, the 

total incurred cost expected for each test 

facility. 

Issue 18: DOE requests comment on 

the impact and associated costs of the 

proposed amendments. 

Issue 19: DOE requests comment on 

the benefits and burdens of the 

proposed updates and additions to 

industry standards referenced in the test 

procedure for consumer furnace fans. 

Issue 20: DOE requests comment on 

the number of small consumer furnace 

fan manufacturers. DOE also seeks 

comment on DOE’s estimates of 

potential costs these small 

manufacturers may incur. 

VI. Approval of the Office of the 

Secretary 

The Secretary of Energy has approved 

publication of this notice of proposed 

rulemaking and request for comment. 

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 May 2, 2022, by 

Kelly J. Speakes-Backman, 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 May 3, 2022. 

Treena V. Garrett, 

Federal Register Liaison Officer, U.S. 

Department of Energy. 

For the reasons stated in the 

preamble, DOE is proposing to amend 


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29600 Federal Register / Vol. 87, No. 93 / Friday, May 13, 2022 / Proposed Rules 

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. Section 430.3 is amended by: 

■ a. Redesignating paragraphs (b)(3) and 

(4) as paragraphs (b)(4) and (5); 

■ b. Adding new paragraph (b)(3); 

■ c. Redesignating paragraphs (g)(17) 

and (18) as (g)(19) and (20) and 

paragraphs (g)(5) through (16) as 

paragraphs (g)(6) through (17), 

respectively; 

■ d. Adding new paragraph (g)(5); 

■ e. In newly redesignated paragraph 

(g)(6), removing the text ‘‘(Reaffirmed 

2006)’’ and adding, in its place, the text 

‘‘(Reaffirmed 2006) (‘‘ASHRAE 41.1– 

1986 (RA 2006)’’)’’; 

■ f. In newly redesignated paragraph 

(g)(9), removing the text ‘‘appendix F’’ 

and adding in its place, the text 

‘‘appendices F and AA’’; 

■ g. In newly redesignated paragraph 

(g)(17), removing the text ‘‘appendices O 

and AA’’ and adding in its place, the 

text ‘‘appendix O’’; and 

■ h. Adding new paragraph (g)(18). 

The revisions and additions read as 

follows: 

§ 430.3 Materials incorporated by 

reference. 

* * * * * 

(b) * * * 

(3) ANSI/AMCA 210–07, ANSI/ 

ASHRAE 51–07 (‘‘AMCA 210–2007’’), 

Laboratory Methods of Testing Fans for 

Certified Aerodynamic Performance 

Rating, ANSI-approved August 17, 2007, 

IBR approved for appendix AA to 

subpart B. 

* * * * * 

(g) * * * 

(5) ANSI/ASHRAE Standard 37–2009 

(RA 2019), (‘‘ASHRAE 37–2009 (RA 

2019)’’), Methods of Testing for Rating 

Electrically Driven Unitary AirConditioning and Heat Pump 

Equipment (including Errata Sheets 

issued October 3, 2016 and April 25, 

2019, ANSI-approved June 21; 2019, IBR 

approved for appendix AA to subpart B. 

* * * * * 

(18) ANSI/ASHRAE Standard 103– 

2017, (‘‘ASHRAE 103–2017’’), Method 

of Testing for Annual Fuel Utilization 

Efficiency of Residential Central 

Furnaces and Boilers; ANSI-approved 

July 3, 2017, IBR approved for 

appendices AA to subpart B. 

* * * * * 

■ 3. Appendix AA to subpart B of part 

430 is revised to read as follows: 

Appendix AA to Subpart B of Part 

430—Uniform Test Method for 

Measuring the Energy Consumption of 

Furnace Fans 

0. Incorporation by Reference 

DOE incorporated by reference in § 430.3, 

the entire standard for ASHRAE 103–2017, 

ASHRAE 37–2009 (RA 2019), ASHRAE 41.1– 

1986 (RA 2006), AMCA 210–07, and 

ASHRAE 41.2–1987 (RA 1992). In cases 

where there is a conflict, the language of the 

test procedure in this appendix takes 

precedence over the incorporated standards. 

Only enumerated provisions of AMCA 210– 

07 and ASHRAE 41.2–1987 (RA 1992) are 

applicable to this appendix, as follows: 

0.1 AMCA 210–07 

(i) Figure 12—Outlet Chamber Setup— 

Multiple Nozzles in Chamber 

0.2 ASHRAE 41.2–1987 (RA 1992) 

(i) Section 5.2—Test Ducts, Section 5.2.2— 

Mixers, 5.2.2.1—Performance of Mixers 

(excluding Figures 11 and 12 and Table 1); 

(ii) Figure 14—Outlet Chamber Setup for 

Multiple Nozzles in Chamber 

1. Scope. This appendix covers the test 

requirements used to measure the energy 

consumption of fans used in weatherized and 

non-weatherized gas furnaces, oil furnaces, 

electric furnaces, and modular blowers. This 

appendix does not apply to furnace fans used 

in dual-fuel units. 

2. Definitions. Definitions include the 

definitions as specified in Section 3 of 

ASHRAE 103–2017 and the following 

additional definitions, some of which 

supersede definitions found in ASHRAE 

103–2017: 

2.1. Active mode means the condition in 

which the product in which the furnace fan 

is integrated is connected to a power source 

and circulating air through ductwork. 

2.2. Airflow-control settings are 

programmed or wired control system 

configurations that control a fan to achieve 

discrete, differing ranges of airflow—often 

designated for performing a specific function 

(e.g., cooling, heating, or constant 

circulation)—without manual adjustment 

other than interaction with a user-operable 

control such as a thermostat that meets the 

manufacturer specifications for installed-use. 

For the purposes of this appendix, 

manufacturer specifications for installed-use 

shall be found in the product literature 

shipped with the unit. 

2.3. Dual-fuel unit means a consumer 

product that includes both a heat pump and 

a burner in a single cabinet. 

2.4. External static pressure (ESP) means 

the difference between static pressures 

measured in the outlet duct and return air 

opening (or return air duct when used for 

testing) of the product in which the furnace 

fan is integrated. 

2.5. Furnace fan means an electricallypowered device used in a consumer product 

for the purpose of circulating air through 

ductwork. 

2.6. Modular blower means a product 

which only uses single-phase electric 

current, and which: 

(a) Is designed to be the principal air 

circulation source for the living space of a 

residence; 

(b) Is not contained within the same 

cabinet as a furnace or central air 

conditioner; and 

(c) Is designed to be paired with HVAC 

products that have a heat input rate of less 

than 225,000 Btu per hour and cooling 

capacity less than 65,000 Btu per hour. 

2.7. Off mode means the condition in 

which the product in which the furnace fan 

is integrated either is not connected to the 

power source or is connected to the power 

source but not energized. 

2.8. Seasonal off switch means a switch on 

the product in which the furnace fan is 

integrated that, when activated, results in a 

measurable change in energy consumption 

between the standby and off modes. 

2.9. Specified airflow-control settings are 

the airflow-control settings specified for 

installed-use by the manufacturer. For the 

purposes of this appendix, manufacturer 

specifications for installed-use are those 

specifications provided for typical consumer 

installations in the product literature shipped 

with the product in which the furnace fan is 

installed. In instances where a manufacturer 

specifies multiple airflow-control settings for 

a given function to account for varying 

installation scenarios, the highest airflowcontrol setting specified for the given 

function shall be used for the procedures 

specified in this appendix, unless otherwise 

specified within this test procedure. 

2.10. Standby mode means the condition in 

which the product in which the furnace fan 

is integrated is connected to the power 

source and energized, but the furnace fan is 

not circulating air. 

2.11. Thermal stack damper means a type 

of stack damper that opens only during the 

direct conversion of thermal energy of the 

stack gases. 

3. Classifications. Classifications are as 

specified in Section 4 of ASHRAE 103–2017. 

4. Requirements. Requirements are as 

specified in Section 5 of ASHRAE 103–2017. 

In addition, Fan Energy Rating (FER) of 

furnace fans shall be determined using test 

data and estimated national average 

operating hours pursuant to section 10.1 of 

this appendix. 

5. Instruments. Instruments must be as 

specified in section 6, not including Section 

6.2, of ASHRAE 103–2017; and as specified 

in section 5.1 and 5.2 of this appendix. 

5.1. Temperature. Temperature measuring 

instruments shall meet the provisions 

specified in Section 5.1 of ASHRAE 37–2009 

(RA 2019), including the references to 

ASHRAE 41.1–1986 (RA 2006), and shall be 

accurate to within 0.75 degrees Fahrenheit 

(within 0.4 degrees Celsius). 

5.1.1. Outlet Air Temperature 

Thermocouple Grid. Outlet air temperature 

shall be measured as described in Section 

8.2.1.5.5 of ASHRAE 103–2017 and 

illustrated in Figure 2 of ASHRAE 103–2017. 

Thermocouples shall be placed downstream 


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of pressure taps used for external static 

pressure measurement. 

5.2. Humidity. Air humidity shall be 

measured with a relative humidity sensor 

that is accurate to within 5% relative 

humidity. Air humidity shall be measured as 

close as possible to the inlet of the product 

in which the furnace fan is installed. 

6. Apparatus. The apparatus used in 

conjunction with the furnace during the 

testing shall be as specified in Section 7 of 

ASHRAE 103–2017 except for section 7.1, the 

second paragraph of sections 7.2.2.2, 7.2.2.5, 

and 7.7, and as specified in sections 6.1, 6.2, 

6.3, 6.4, 6.5, 6.6, and 6.7 of this appendix. 

6.1. General. The product in which the 

furnace fan is integrated shall be installed in 

the test room in accordance with the product 

manufacturer’s written instructions that are 

shipped with the product unless required 

otherwise by a specific provision of this 

appendix. The apparatus described in this 

section is used in conjunction with the 

product in which the furnace fan is 

integrated. Each piece of the apparatus shall 

conform to material and construction 

specifications and the reference standard 

cited. Test rooms containing equipment shall 

have suitable facilities for providing the 

utilities necessary for performance of the test 

and be able to maintain conditions within the 

limits specified. 

6.2. Downflow furnaces. Install the internal 

section of vent pipe the same size as the flue 

collar for connecting the flue collar to the top 

of the unit, if not supplied by the 

manufacturer. Do not insulate the internal 

vent pipe during steady-state test described 

in Section 9.1 of ASHRAE 103–2017. Do not 

insulate the internal vent pipe before the 

cool-down and heat-up tests described in 

Sections 9.5 and 9.6, respectively, of 

ASHRAE 103–2017. If the vent pipe is 

surrounded by a metal jacket, do not insulate 

the metal jacket. Install a 5-ft test stack of the 

same cross sectional area or perimeter as the 

vent pipe above the top of the furnace. Tape 

or seal around the junction connecting the 

vent pipe and the 5-ft test stack. Insulate the 

5-ft test stack with insulation having a 

minimum R-value of 7 and an outer layer of 

aluminum foil. (See Figure 3–E of ASHRAE 

103–2017.) 

6.3. Modular Blowers. A modular blower 

shall be equipped with the electric heat 

resistance kit that is likely to have the largest 

volume of retail sales with that particular 

basic model of modular blower. 

6.4. Ducts and Plenums. Ducts and 

plenums shall be built to the geometrical 

specifications in Section 7 of ASHRAE 103– 

2017 and section 6.7 of this appendix. An 

apparatus for measuring external static 

pressure shall be integrated in the plenum 

and test duct as specified in Sections 6.4 of 

ASHRAE 37–2009 (RA 2019), excluding 

specifications regarding the minimum length 

of the ducting and minimum distance 

between the external static pressure taps and 

product inlet and outlet, and Section 6.5 of 

ASHRAE 37–2009 (RA 2019). External static 

pressure measuring instruments shall be 

placed between the furnace openings and any 

restrictions or elbows in the test plenums or 

ducts. For all test configurations, external 

static pressure taps shall be placed 18 inches 

from the outlet. 

6.4.1. For tests conducted using a return air 

duct. Additional external static pressure taps 

shall be placed 12 inches from the product 

inlet. Pressure shall be directly measured as 

a differential pressure as depicted in Figure 

8 of ASHRAE 37–2009 (RA 2019) rather than 

determined by separately measuring inlet 

and outlet static pressure and subtracting the 

results. 

6.4.2. For tests conducted without a return 

air duct. External static pressure shall be 

directly measured as the differential pressure 

between the outlet duct static pressure and 

the ambient static pressure as depicted in 

Figure 7a of ASHRAE 37–2009 (RA 2019). 

6.5. Air Filters. Air filters shall be removed. 

6.6. Electrical Measurement. Only 

electrical input power to the furnace fan (and 

electric resistance heat kit for electric 

furnaces and modular blowers) shall be 

measured for the purposes of this appendix. 

Electrical input power to the furnace fan and 

electric resistance hate kit shall be submetered separately. Electrical input power to 

all other electricity-consuming components 

of the product in which the furnace fan is 

integrated shall not be included in the 

electrical input power measurements used in 

the FER calculation. If the procedures of this 

appendix are being conducted at the same 

time as another test that requires metering of 

components other than the furnace fan and 

electric resistance heat kit, the electrical 

input power to the furnace fan and electric 

resistance heat kit shall be sub-metered 

separately from one another and separately 

from other electrical input power 

measurements. 

6.7. Airflow Measuring Apparatus. 

6.7.1. Fabricate and operate an airflow 

measuring apparatus as specified in Sections 

6.2 and 6.3 of ASHRAE 37–2009 (RA 2019). 

Place the static pressure taps and position the 

diffusion baffle (settling means) relative to 

the chamber inlet as indicated in Figure 12 

of AMCA 210–07 and/or Figure 14 of 

ASHRAE 41.2–1987 (RA 1992). When 

measuring the static pressure difference 

across nozzles and/or velocity pressure at 

nozzle throats using electronic pressure 

transducers and a data acquisition system, if 

high frequency fluctuations cause 

measurement variations to exceed the test 

tolerance limits specified in Section 9.2 and 

Table 2 of ASHRAE 37–2009 (RA 2019), 

dampen the measurement system such that 

the time constant associated with response to 

a step change in measurement (time for the 

response to change 63% of the way from the 

initial output to the final output) is no longer 

than five seconds. 

6.7.2. Connect the airflow measuring 

apparatus to the outlet duct of the unit at a 

distance of at least 0.5 × (A × B) 1⁄2 (where 

A and B are the duct dimensions) 

downstream of the outlet pressure taps 

(specified in section 6.4 of this appendix). 

7. Test Conditions. The testing conditions 

shall be as specified in Section 8, not 

including Sections 8.5.2 and 8.6.1.1 of 

ASHRAE 103–2017; and as specified in 

sections 7.1 and 7.2 of this appendix. 

7.1. Ambient Temperature and Humidity 

Conditions. During the time required to 

perform all tests, maintain the room 

temperature within ±5 °F (2.8 °C) of the air 

temperature value measured at the end of the 

steady-state performance test (TRA). For 

condensing furnaces and boilers, maintain 

the relative humidity within ±5% of the 

relative humidity measured at the end of the 

steady-state performance test. During all 

tests, the room temperature shall not fall 

below 65 °F (18.3 °C) or exceed 85 °F (29.4 

°C) and the relative humidity shall not fall 

below 20% or exceed 80%. 

7.2. Measurement of Jacket Surface 

Temperature (optional). The jacket of the 

furnace or boiler shall be subdivided into 6- 

inch squares when practical, and otherwise 

into 36-square-inch regions comprising 4 in. 

x 9 in. or 3 in. x 12 in. sections, and the 

surface temperature at the center of each 

square or section shall be determined with a 

surface thermocouple. The 36-square-inch 

areas shall be recorded in groups where the 

temperature differential of the 36-square-inch 

area is less than 10 °F for temperature up to 

100 °F above room temperature and less than 

20 °F for temperature more than 100 °F above 

room temperature. For forced air central 

furnaces, the circulating air blower 

compartment is considered as part of the 

duct system and no surface temperature 

measurement of the blower compartment 

needs to be recorded for the purpose of this 

test. For downflow furnaces, measure all 

cabinet surface temperatures of the heat 

exchanger and combustion section, including 

the bottom around the outlet duct, and the 

burner door, using the 36 square-inch 

thermocouple grid. The cabinet surface 

temperatures around the blower section do 

not need to be measured (see Figure 3–E of 

ASHRAE 103–2017.) 

8. Test Procedure. Testing and 

measurements shall be as specified in 

Section 9 of ASHRAE 103–2017 except for 

Sections 9.1.2.1, 9.3, 9.5.1.1, 9.5.1.2.1, 

9.5.1.2.2, 9.5.2.1, and Section 9.7.1; and as 

specified in sections 8.1 through 8.6 of this 

appendix. 

8.1. Direct Measurement of Off-Cycle 

Losses Testing Method. [Reserved] 

8.2. Measurement of Electrical Standby 

and Off Mode Power. [Reserved] 

8.3. Steady-State Conditions for Hot Flow 

Tests for Gas and Oil Furnaces. Steady-state 

conditions are indicated by an external static 

pressure within the range shown in Table 1 

of this appendix and a temperature variation 

in three successive readings, taken 15 

minutes apart, of not more than any of the 

following: 

(a) 3 °F in the stack gas temperature for 

furnaces equipped with draft diverters; 

(b) 5 °F in the stack gas temperature for 

furnaces equipped with either draft hoods, 

direct exhaust, or direct vent systems; and 

(c) 1 °F in the flue gas temperature for 

condensing furnaces. 

8.4. Steady-state Conditions for Hot Flow 

Tests for Electric Furnaces and Modular 

Blowers. Steady-state conditions are 

indicated by an external static pressure 

within the range shown in Table 1 of this 

appendix and a temperature variation of not 

more than 5 °F in the outlet air temperature 

in four successive temperature readings taken 

15 minutes apart. 

8.5. Steady-State Conditions for Cold Flow 

Tests. For tests during which the burner or 


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electric heating elements are turned off (i.e., 

cold flow tests), steady-state conditions are 

indicated by an external static pressure 

within the range shown in Table 1 of this 

appendix and a variation in the difference 

between outlet temperature and ambient 

temperature of not more than 3 °F in three 

successive temperature readings taken 15 

minutes apart. 

8.6. Fan Energy Rating (FER) Test. 

8.6.1. Initial FER test conditions and 

maximum airflow-control setting 

measurements. Measure the relative 

humidity (j) and dry bulb temperature (Tdb) 

of the test room. 

8.6.1.1. Furnace fans for which the 

maximum airflow-control setting is not a 

specified heating airflow-control setting. The 

main burner or electric heating elements 

shall be turned off. Adjust the external static 

pressure to within the range shown in table 

1 of this appendix. Maintain these settings 

until steady-state conditions are attained as 

specified in section 8.3, 8.4, and 8.5 of this 

appendix. Measure furnace fan electrical 

input power (EMax), and airflow (QMax). 

8.6.1.2. Furnace fans for which the 

maximum airflow-control setting is a 

specified heating airflow-control setting. 

Adjust the main burner or electric heating 

element controls to the default heat setting 

designated for the maximum airflow-control 

setting. Burner adjustments shall be made as 

specified by Section 8.4.1 of ASHRAE 103– 

2017. Adjust the furnace fan controls to the 

maximum airflow-control setting. Adjust the 

external static to within the range shown in 

table 1 of this appendix. Maintain these 

settings until steady-state conditions are 

attained as specified in section 8.3, 8.4, and 

8.5 of this appendix and the temperature rise 

(DTMax) is at least 18 °F. Measure furnace fan 

electrical input power (EMax) and airflow 

(QMax). 

TABLE 1—REQUIRED MINIMUM EXTERNAL STATIC PRESSURE IN THE MAXIMUM AIRFLOW-CONTROL SETTING BY

INSTALLATION TYPE

Installation type ESP (in. wc.) * 

Units with an internal, factory-installed evaporator coil ....................................................................................................... 0.50–0.55 

Units designed to be paired with an evaporator coil, but without one installed ................................................................. 0.65–0.70 

Mobile home ........................................................................................................................................................................ 0.30–0.35 

* Once the specified ESP has been achieved, the same outlet duct restrictions shall be used for the remainder of the furnace fan test. If the 

unit under test is unable to complete the testing (i.e., the unit shuts down before completing a test), reduce the target ESP range by 0.05′′ w.c. 

and restart the test. Repeat this process until the test can be completed. 

8.6.2. Constant circulation airflow-control 

setting measurements. The main burner or 

electric heating elements shall be turned off. 

The furnace fan controls shall be adjusted to 

the specified constant circulation airflowcontrol setting. If the manufacturer does not 

specify a constant circulation airflow-control 

setting in the installation and operations 

manual supplied with the unit, the lowest 

airflow-control setting shall be used. 

Maintain these settings until steady-state 

conditions are attained as specified in 

sections 8.3, 8.4, and 8.5 of this appendix. 

8.6.3. Heating airflow-control setting 

measurements. For single-stage gas and oil 

furnaces, the burner shall be fired at the 

maximum heat input rate. For single-stage 

electric furnaces, the electric heating 

elements shall be energized at the maximum 

heat input rate. For multi-stage and 

modulating furnaces the reduced heat input 

rate settings shall be used. Burner 

adjustments shall be made as specified by 

Section 8.4.1 of ASHRAE 103–2017. After the 

burner is activated and adjusted or the 

electric heating elements are energized, the 

furnace fan controls shall be adjusted to 

operate the fan in the default heat airflowcontrol setting. In instances where a 

manufacturer specifies multiple airflowcontrol settings for a given function to 

account for varying installation scenarios, the 

highest airflow-control setting specified for 

the given function shall be used. High heat 

and reduced heat shall be considered 

different functions for multi-stage heating 

units. Maintain these settings until steadystate conditions are attained as specified in 

section 8.3, 8.4, and 8.5 of this appendix and 

the temperature rise (DTHeat) is at least 18 °F. 

Measure furnace fan electrical input power 

(EHeat), airflow (QHeat), external static pressure 

(ESPHeat), steady-state efficiency for this 

setting (EffySS) as specified in Sections 11.2 

and 11.3 of ASHRAE 103–2017, outlet air 

temperature (THeat, Out) and temperature rise 

(DTHeat). 

9. Nomenclature. Nomenclature shall 

include the nomenclature specified in 

Section 10 of ASHRAE 103–2017 and the 

following additional variables: 

CCH = annual furnace fan constantcirculation hours 

ECirc = furnace fan electrical consumption at 

the specified constant-circulation airflowcontrol setting (or minimum airflowcontrol setting operating point if a default 

constant-circulation airflow-control setting 

is not specified), in watts 

EHeat = furnace fan electrical consumption in 

the specified heat airflow-control setting 

for single-stage heating products or the 

specified low-heat setting for multi-stage 

heating products, in watts 

EMax = furnace fan electrical consumption in 

the maximum airflow-control setting, in 

watts 

FER = fan energy rating, in watts/1000 cfm 

HH = annual furnace fan heating operating 

hours 

HCR = heating capacity ratio (nameplate 

reduced heat input capacity divided by 

nameplate maximum input heat capacity) 

MH = annual furnace fan maximum airflow 

hours 

QIN,,k = nameplate fuel energy input rate, in 

Btu/h, at specified operating conditions k, 

where k can be ‘‘H’’ for the maximum heat 

setting or ‘‘R’’ for the reduced heat setting. 

QMax = airflow at the maximum airflowcontrol setting, in cfm 

10. Calculation of derived results from test 

measurements for a single unit. Calculations 

shall be as specified in Section 11 of 

ASHRAE 103–2017, except for appendices B 

and C; and as specified in sections 10.1 

through 10.10 and Figure 1 of this appendix. 

10.1. Fan Energy Rating (FER) 

The estimated national average operating 

hours presented in table 2 to this appendix 

shall be used to calculate FER. 


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(MH X EMax) + (HH X EHeatl + (CCH X Ecirc) FER= ---------------x 1000 

(CH+ 830 + CCH) X QMax 
Federal Register / Vol. 87, No. 93 / Friday, May 13, 2022 / Proposed Rules 29603 

TABLE 2—ESTIMATED NATIONAL AVERAGE OPERATING HOUR VALUES FOR CALCULATING FER 

Operating mode Variable Single-stage 

(hours) 

Multi-stage or 

modulating 

(hours) 

Heating ........................................................................................................................................ HH .................. 830 830/HCR 

Maximum Airflow ......................................................................................................................... MH ................. 640 640 

Constant Circulation .................................................................................................................... CCH ............... 400 400 

Where: 

[FR Doc. 2022–09808 Filed 5–12–22; 8:45 am] 

BILLING CODE 6450–01–P 


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QIN,R (nameplate) HCR= -~--~ 

QIN,H (nameplate)