[Federal Register Volume 75, Number 53 (Friday, March 19, 2010)]
[Rules and Regulations]
[Pages 13217-13223]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2010-6045]
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Rules and Regulations
Federal Register
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Federal Register / Vol. 75, No. 53 / Friday, March 19, 2010 / Rules
and Regulations
[[Page 13217]]
DEPARTMENT OF ENERGY
10 CFR Part 430
[Docket No. EE-RM-03-630]
RIN 1904-AB52
Energy Conservation Program for Consumer Products: Classifying
Products as Covered Products
AGENCY: Office of Energy Efficiency and Renewable Energy, Department of
Energy.
ACTION: Final rule.
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SUMMARY: Under the Energy Policy and Conservation Act (EPCA), the U.S.
Department of Energy (DOE) promulgates a rule to define the term
``household'' and related terms. These definitions provide a basis for
DOE to determine whether the household energy use of products not
currently covered by EPCA meets the levels required for DOE to classify
a product as a ``covered product'' under EPCA; such a classification
would mean that DOE potentially could establish energy conservation
requirements for the covered product. With the ``household'' definition
in place, the Secretary may exercise statutory authority to classify as
covered products additional qualifying consumer products beyond the
products already specified in EPCA, and set test procedures and
efficiency standards for them.
DATES: This rule is effective April 19, 2010.
FOR FURTHER INFORMATION CONTACT: Linda Graves, Esq., Project Manager,
Coverage of Consumer Products, Docket No. EE-RM-03-630, U.S. Department
of Energy, Office of Energy Efficiency and Renewable Energy, Building
Technologies Program, EE-2J/Forrestal Building, 1000 Independence
Avenue, SW., Washington, DC 20585-0121, (202) 586-1851, e-mail:
[email protected], or Francine Pinto, Esq., U.S. Department of
Energy, Office of General Counsel, GC-72/Forrestal Building, 1000
Independence Avenue, SW., Washington, DC 20585-0121, (202) 586-9507, e-
mail: [email protected].
SUPPLEMENTARY INFORMATION:
I. Introduction
A. Authority
B. Background
C. Summary of the Final Rule
II. Discussion
A. The Definitions
B. Extent of Reliance on Definitions Used in DOE's Residential
Energy Consumption Survey
C. Conclusion
III. Public Participation
A. Determination Not To Hold Public Meeting
B. Public Comment Response
IV. Procedural Requirements
A. Review Under Executive Order 12866
B. Review Under the Regulatory Flexibility Act
C. Review Under the Paperwork Reduction Act of 1995
D. Review Under the National Environmental Policy Act of 1969
E. Review Under Executive Order 13132
F. Review Under Executive Order 12988
G. Review Under the Unfunded Mandates Reform Act of 1995
H. Review Under the Treasury and General Government
Appropriations Act, 1999
I. Review Under Executive Order 12630
J. Review Under the Treasury and General Government
Appropriations Act, 2001
K. Review Under Executive Order 13211
L. Congressional Notification
V. Approval of the Office of the Secretary
I. Introduction
A. Authority
Part A of Title III of EPCA sets forth a variety of provisions that
provide for the ``Energy Conservation Program for Consumer Products
Other than Automobiles.'' (42 U.S.C. 6291-6309) The program consists
essentially of four parts: Mandatory testing, labeling, energy
conservation standards, and certification and enforcement procedures.
DOE implements all parts of the program except for the labeling
provisions, which are implemented by the Federal Trade Commission
(FTC).
EPCA lists specific types of consumer products that are subject to
this program, referring to them as ``covered products,'' and authorizes
DOE to add other consumer products to the program as covered products.
(42 U.S.C. 6292(a) and (b)) DOE may add any type of consumer product
if: (1) ``Classifying products of such type as covered products is
necessary or appropriate to carry out the purposes'' of EPCA, and (2)
the annual per household energy use of such products in the households
that use them is likely to average more than 100 kilowatt-hours. (42
U.S.C. 6292(b)) For purposes of section 6292(b), ``[t]he term
`household' shall be defined under rules of the Secretary [of
Energy].'' (42 U.S.C. 6292(b)(2)(C)) This notice promulgates a rule
that amends Title 10 of the Code of Federal Regulations (10 CFR) 430.2
to define ``household,'' as well as four related terms, three of which
are used in defining ``household.''
DOE may prescribe test procedures for any product it classifies as
a ``covered product.'' (42 U.S.C. 6293(b)(1)(B)) If DOE prescribes such
test procedures, the FTC may also prescribe a labeling rule under EPCA
for the product if it determines that labeling will assist purchasers
in making purchasing decisions and is economically and technically
feasible. (42 U.S.C. 6294(a)(3)) Finally, DOE may prescribe energy
conservation standards for a type of consumer product it classifies as
covered if the product meets certain additional criteria, such as
``average per household energy use within the United States'' in excess
of 150 kilowatt-hours, and ``aggregate household energy use'' in excess
of 4.2 billion kilowatt-hours, for any prior 12-month period. (42
U.S.C. 6295(l)(1))
With the household definition promulgated in this final rule, the
Secretary may henceforth exercise statutory authority (1) to identify
as covered products additional qualifying consumer products beyond the
products already specified in EPCA, and then potentially (2) to set
test procedures and efficiency standards for the newly covered consumer
products.
B. Background
Prior to 2006, DOE annually prepared an analysis of pending and
prospective rulemakings under its energy conservation program for
consumer products and its companion program for commercial and
industrial equipment under Parts A and A-1 of Title III of EPCA. DOE
used this analysis to develop priorities and propose schedules for all
rulemakings under these programs. In its priority-setting activities
beginning in fiscal year 2003, DOE discussed possible expansion of
[[Page 13218]]
the programs to include additional consumer products and commercial and
industrial equipment. However, with the passage of the Energy Policy
Act of 2005 (EPACT 2005), Public Law 109-58, several additional
products that DOE had been considering for coverage (e.g., ceiling fans
and torchieres) became covered products with prescribed standards. The
Energy Independence and Security Act of 2007 (EISA 2007), Public Law
110-140, prescribed standards for several consumer products and types
of commercial and industrial equipment, and amended the schedule for
DOE to update several standards.
Since the passage of EPACT 2005 and EISA 2007, as well as issuance
of the Consent Decree for the consolidated cases of New York v. Bodman,
No. 05 Civ. 7807 (S.D.N.Y. filed Sept. 7, 2005) and Natural Resources
Defense Council v. Bodman, No. 05 Civ. 7808 (S.D.N.Y. filed Sept. 7,
2005), DOE has re-assessed its rulemaking procedures and scheduling
decisions. DOE held a public meeting November 15, 2005, followed by a
30-day public comment period, to obtain public input. After considering
the public comments, DOE released a five-year plan that described how
DOE would address the appliance standards rulemaking backlog and meet
all of the statutory requirements established in EPCA, as amended, and
EPACT 2005. The plan is contained in the report to Congress, which was
released January 31, 2006. DOE has updated that plan in response to
EISA 2007 and the Consent Decree, and an updated version of the plan is
posted on the DOE Web page at: http://www1.eere.energy.gov/buildings/appliance_standards/schedule_setting.html. The plan focuses on how
DOE will complete rulemakings currently in process, catch up on a
backlog of overdue rulemakings, and meet all rulemaking requirements
contained in EPACT 2005 and EISA 2007 on time. The plan also addresses
rulemaking deadlines set by the Consent Decree. In a memorandum for the
Secretary of Energy, dated February 5, 2009 (74 FR 6537, Feb. 9, 2009),
the President requested that DOE expeditiously finalize the rulemakings
required by EPACT 2005, EISA 2007, and the Consent Decree. Given recent
progress on expeditiously finalizing rulemakings, DOE now contemplates
expanding the program to cover additional consumer products or
commercial equipment. DOE is proceeding with this final rule to fill in
a gap in DOE regulations so the Secretary can exercise statutory
authority (as scheduling, priorities, and available resources permit)
to expand standards coverage to appropriate products. Particularly, as
energy efficient technologies advance in the future, the Secretary may
exercise DOE's authority to consider whether any other products should
be classified as covered products.
As indicated above, a significant element of the required
assessment for each of these products is whether its annual ``per-
household'' energy use is likely to exceed 100 kilowatt-hours. DOE can
classify a product as covered only if it determines that the product
meets this criterion. To address the criterion, DOE needed to define
the term ``household.'' DOE may now apply the definition to any future
evaluations of whether DOE can classify other consumer products as
covered products. In addition, DOE may use the definition as a basis
for determining whether a product meets the per-household and
aggregate-household energy-use criteria for setting energy conservation
standards for a product DOE classifies as covered. (42 U.S.C. 6295(l))
C. Summary of Final Rule
The final rule defines ``household'' and three related terms. Taken
together, these definitions in essence provide that a household is an
individual or group that lives together in a housing unit that they
occupy separately from any other group or individual. The content of
these definitions is consistent with the legislative history of EPCA
and with dictionary definitions of ``household,'' and is essentially
the same as the relevant definitions that the DOE Energy Information
Administration (EIA) uses as a basis for its periodic Residential
Energy Consumption Surveys (RECS) of household energy use, which is
discussed in more detail below in section II., C. The final rule also
defines the term ``energy use of a type of consumer product which is
used by households,'' which is virtually identical to a term used in
section 322(b)(2)(A) of EPCA, 42 U.S.C. 6292(b)(2)(A), so as to make
clear the locations at which household energy consumption can occur and
that visitors to a household can contribute to such consumption.
II. Discussion
A. The Definitions
As discussed above, DOE is authorized to add products to its
program under EPCA, if the product is likely to exceed ``annual per-
household energy use'' of 100 kilowatt-hours pursuant to DOE's
definition of ``household.'' (42 U.S.C. 6292(a) and (b))
DOE is hereby providing a definition of ``household,'' and of the
related terms ``housing unit,'' ``separate living quarters,'' and
``group quarters.'' The definitions of these related terms serve to
clarify the meaning of ``household.'' ``Housing unit'' is defined
because the term is used in the definition of ``household,'' and
``separate living quarters'' and ``group quarters'' are defined because
they are used in the definition of ``housing unit.''
The core of the final rule is the definition of ``household'' as an
individual or group that resides in a particular housing unit. This
conforms to the general dictionary definition of the term. The final
rule, in turn, defines ``housing unit'' as ``a house, an apartment, a
group of rooms, or a single room occupied as separate living quarters,
but [that] does not include group quarters.'' ``Separate living
quarters'' is defined as a place where people live in a separate space
from others and to which they have access without going through the
living space of others, and ``group quarters'' is defined as living
quarters occupied by an institutional group of 10 or more unrelated
persons. DOE has incorporated the substance of the RECS definitions of
these last two terms to assure that ``household'' refers to a group
that consumes energy as a unit. See the 2001 RECS report at http://www.eia.doe.gov/emeu/recs/glossary.html. The cut off of 10 or more
unrelated people would serve to distinguish a group that acts as a unit
from one that does not.
Under these definitions, DOE intends to use a broad range of data,
including data generated by the RECS, in determining whether products
qualify for coverage and the development of standards under EPCA. In
gathering information as to the household energy use of any particular
product, DOE will use the best available data for that product. When
RECS data covers a product, its use will be possible because the
substance of the proposed definitions is consistent with and quite
similar to the corresponding EIA definitions. See the 2001 RECS report
at http://www.eia.doe.gov/emeu/recs/glossary.html. Moreover, DOE will
generally prefer to use the RECS data because generally it is the most
comprehensive and best available source of information on residential
energy consumption. The RECS, however, will likely not cover many of
the products DOE is investigating. By not adhering to all of the
details of the definitions used in the RECS, the definitions
promulgated by this final
[[Page 13219]]
rule allow DOE sufficient flexibility to use other sources of
information.
Finally, EPCA defines ``average annual per-household energy use''
for a type of product as being the ``estimated aggregate annual energy
use * * * of consumer products of such type which are used by
households in the United States, divided by the number of such
households which use [them].'' (42 U.S.C. 6292(b)(2)) DOE is hereby
defining ``energy use of a type of consumer product which is used by
households'' as meaning energy use by the product both within the
interior space of housing units occupied by households, as well as on
contiguous property used primarily by the household occupying the
housing unit. Thus, for example, where a product consumes energy in a
housing unit's backyard or outdoor pool or accessory building(s) or
structures, such energy use would be included in determining per-
household or aggregate-household energy use. This definition also makes
clear that household energy use includes all energy consumption, both
by members of each household and their visitors, at all housing units
occupied by each household.
B. Extent of Reliance on Definitions Used in DOE's Residential Energy
Consumption Survey
Since 1978, EIA has periodically gathered information about energy
consumption in the residential sector by conducting a RECS, and in
2004, EIA posted data on its Web site on the results of its 2001 RECS
at http://www.eia.doe.gov/emeu/recs/contents.html. (2001 RECS Report).
The RECS provides information on the use of energy in residential
housing units in the United States. This information includes: the
physical characteristics of the housing units surveyed; the appliances
in those units, including space heating and cooling equipment;
demographic characteristics of the households; the types of fuels used;
and other information that relates to energy use.
``Household'' energy consumption behavior is the focus of the RECS.
This behavior is a primary driver behind purchases and consumption of
energy in the residential setting. The RECS collects information
focused on the household, and the RECS report provides data on energy
consumption and expenditures per household.
The definitions promulgated in this final rule contain the same
concepts as the RECS definitions (see the 2001 RECS report at http://www.eia.doe.gov/emeu/recs/glossary.html), and this is appropriate for
several reasons. First, as a general matter, the RECS definitions
appear to be reasonable and logical constructions of the term
``household.'' In content, they are very similar to definitions for
household and related terms in the Census Bureau's housing survey,
e.g., Current Housing Reports, U.S. Census Bureau, Pub. No. H150/07,
American Housing Survey for the United States: 2007 at Appendix A, A-9-
A-11 (2008) (2008 Housing Survey Report). Second, the RECS uses
``household'' and related terms for purposes very similar to those for
which DOE would use the definitions promulgated in this final rule.
These definitions provide a basis on which DOE could estimate the
household energy use of particular products. The RECS uses the terms
for gathering and presenting precisely this type of information,
although it also collects information as to household energy use
generally. Finally, DOE has used RECS data in its rulemakings
concerning energy conservation standards, and intends to use this data
whenever possible to determine whether it can classify as covered, and
adopt standards for, consumer products not listed as covered in EPCA.
For example, DOE used RECS data in rulemakings concerning efficiency
standards for residential central air conditioners and heat pumps, and
for residential water heaters. 65 FR 59589, 59595, 59600 (October 5,
2000); 66 FR 4474, 4477, 4478 (January 17, 2001).
As indicated above, today's final rule incorporates from the RECS
definitions the concept that a group of 10 or more unrelated people,
even if living in a dwelling that would otherwise be a single housing
unit, would not be a ``household'' for purposes of determining per-
household energy consumption. From 1984 to 2005, the Census Bureau's
housing survey used a similar approach: It did not treat as a household
a group that occupies living quarters inhabited by nine or more
unrelated persons. 2008 Housing Survey Report, App. C at C-7. Although
DOE might possibly have used a different numerical cut off than the
RECS uses, or a more subjective approach to describe groups that occupy
a dwelling and act as a unit, DOE determined that the approach in the
RECS is reasonable and wants to be able to rely on the RECS data to the
greatest extent possible to evaluate household energy consumption for
products it seeks to cover. DOE emphasizes that it is promulgating this
classification only for purposes of evaluating household energy
consumption under EPCA. The final rule's definition of ``household'' is
not intended in any way to address or make a judgment on the
desirability of households of any particular size or composition.
Although definitions promulgated in this final rule are essentially
the same in substance as the definitions the RECS uses for
``household'' and related terms, the final rule language is much less
detailed, and differs from the language of the RECS definitions in a
number of respects. The RECS definitions contain language specifically
geared to EIA's purposes that is unnecessary for this rulemaking.
Regarding the level of detail, most significant is that the RECS
definition of ``household'' identifies various specific categories of
people who would or would not be considered household members, whereas
this final rule does not identify such categories. The RECS gathers
information as to the characteristics of the households it surveys, but
DOE will not use the final rule's definitions as a basis for obtaining
such information. Therefore, the RECS definition needs to delineate who
is and is not within a household with much greater precision than the
final rule's definition.
In addition, the definitions in this final rule contain many
technical and editorial changes to the RECS definitions. For example,
the RECS definition of ``household'' refers to a person's residence
``at the time of the first field contact'' and to comparison of the
numbers of households and of occupied housing units ``in the RECS.''
2001 RECS report at http://www.eia.doe.gov/emeu/recs/glossary.html.
Such language does not belong in the final rule's definition of
household, which would be used to provide a metric for assessing the
energy use of a product.
Furthermore, because EIA did not develop the RECS definitions for
inclusion in regulations, they are not in the form, and sometimes lack
the precision, needed in a regulation. For example, consecutive
sentences of the RECS definition of ``household'' describe members of
the household as persons who have their ``usual or permanent place of
residence'' in the same housing unit, who ``live in the housing unit,''
and who ``usually live in the household.'' 2001 RECS report at http://www.eia.doe.gov/emeu/recs/glossary.html. These different descriptions
create the potential for misinterpretation, and use of the word
``household'' within the definition of that term makes the definition
circular. In the definitions promulgated in this final rule, DOE has
converted the EIA definitions into language suitable for use as a
regulation, adhering to the
[[Page 13220]]
concepts in these definitions while attempting to reduce the potential
for misinterpretation, vagueness, and conflicts, as well as unnecessary
wording.
Finally, the final rule's definition of ``energy use of a type of
consumer product which is used by households'' reflects how EIA
conducts the RECS and uses its definitions of household and related
terms, although in one significant respect it departs from the RECS
approach. First, the RECS concerns all energy consumption at the
housing unit where the household is located, i.e., consumption both by
members of a household and by visitors. 2001 RECS report at http://www.eia.doe.gov/emeu/recs/recs2001/questionaire.pdf. The language of
the RECS definitions of household and related terms, however, does not
clearly provide that household energy consumption includes consumption
by non-members of the household. DOE is defining ``energy use of a type
of consumer product which is used by households'' so as to clearly
include such energy consumption.
Second, the RECS often addresses energy consumption on the grounds
and in buildings belonging to the housing unit in which the household
members reside, although its definition of ``housing unit'' does not
explicitly include such areas. For example, the 2001 RECS addressed
swimming pool heaters, well water pumps, and outdoor gas lighting (2001
RECS report at table HC5-4a), and previous surveys have addressed
products such as electric lawn mowers. The final rule's definition of
``energy use of a type of consumer product which is used by
households'' provides in essence that energy consumption on the grounds
of housing units occupied by the household, and in structures on those
grounds, is part of household energy consumption.
Third, the RECS concerns energy consumption only at housing units
that households occupy as primary residences. 2001 RECS report at
http://www.eia.doe.gov/emeu/recs/recs2001/append_a.html and http://www.eia.doe.gov/emeu/recs/recs2001/questionaire.pdf. Thus, the RECS
report does not include information as to household energy use in
secondary residences. EIA uses this approach for several reasons.
First, the amount of energy consumed in secondary residences, although
not negligible, is not large. Second, by covering a narrower universe--
primary residences rather than all residences occupied by households--
the sample of households from which the RECS gathers information will
provide stronger support for the conclusions reached in the RECS as to
household energy use. And third, this approach parallels the Census
Bureau's historical definition of ``household'' and its approach to
gathering information in its housing survey. EPCA's criteria for
determining whether a consumer product qualifies for coverage and the
adoption of standards, however, do not limit per-household or aggregate
household energy use to energy use in the primary residences of
households. (42 U.S.C. 6292(b) and 6295(l)) Furthermore, DOE sees no
reason to adopt such a limitation in evaluating products for coverage
and standards. Therefore, the definitions in this final rule provide in
effect that household energy use by a product includes all energy that
households consume in using that product, at all housing units they
occupy, regardless of whether the housing units are primary residences.
This permits DOE to use data as to household energy consumption that
includes both primary and secondary residences, if such data is
available. When such data is not available, DOE intends to use data
that includes only primary residences, such as the RECS data. Energy
consumption at primary residences will always be at least a constituent
element of total household energy use for consumer products, since for
all or virtually all such products it appears to represent the most
significant portion of household energy use. Thus, for products for
which the available data includes energy use only at primary
residences, such as the RECS data, DOE's use of such data as a basis
for determining whether the product qualifies for coverage and the
adoption of standards would provide an accurate but conservative
estimate of per-household and aggregate household energy use under
EPCA.
C. Conclusion
In sum, DOE has adopted definitions of ``household'' and related
terms, which it would use to determine whether products not currently
covered under EPCA meet the EPCA criteria for classification as
``covered products.'' DOE would also use these definitions to determine
whether, once a product has been so classified, it meets the additional
per-household and aggregate household energy use criteria for setting
energy conservation standards under EPCA for a product DOE classifies
as covered. EPCA directs DOE to define ``household,'' and DOE believes
the definitions promulgated in this final rule are reasonable and
consistent with data DOE intends to use in making its determinations on
household energy consumption.
III. Public Participation
A. Determination Not To Hold Public Meeting
Under 42 U.S.C. 7191(c)(1), the Secretary may determine that ``no
substantial issue of fact or law exists and that such rule * * * is
unlikely to have a substantial impact on the Nation's economy or large
numbers of individuals or businesses,'' and that ``such proposed rule *
* * or order may be promulgated in accordance with section 553 of title
5.'' Section 553(c) of title 5 permits the agency to ``give interested
persons an opportunity to participate in the rule making through
submission of written data, views, or arguments with or without
opportunity for oral presentation.'' DOE determined that a 45-day
public comment period for written comments was sufficient and that a
public meeting for oral presentation was unnecessary for this
rulemaking. Since this rulemaking did not raise any issues of fact or
law and merely provided a definition necessary for the Secretary to
carry out authority already held by the Secretary under EPCA, this
rulemaking was unlikely to have a substantial impact on the Nation's
economy or large numbers of individuals or businesses.
B. Public Comment Response
No comments were received during the public comment period that
ended June 19, 2006. One comment was received from the Peoples Republic
of China (China) after the close of the comment period. China
recommended that the definition take into account the possibility that
certain households may have non-residential energy uses, which should
be excluded from consideration. Even if China's comment had been
received during the comment period, DOE believes that the statutory
provisions that direct DOE to consider the average annual per-household
energy use of consumer products ensure that only residential energy
uses will be considered. China also made suggestions regarding certain
regulatory issues that are beyond the scope of this rulemaking.
DOE anticipated that this rulemaking would be non-controversial.
This was confirmed, as evidenced by the receipt of only one public
comment. Therefore, DOE is adopting the rule verbatim as originally
proposed in the notice of proposed rulemaking and opportunity for
public comment which was published in the Federal Register on May 4,
2006. (71 FR 26275)
[[Page 13221]]
IV. Procedural Requirements
A. Review Under Executive Order 12866
The Office of Information and Regulatory Affairs of the Office of
Management and Budget (OMB) determined that today's regulatory action
is not a ``significant regulatory action'' under Executive Order 12866,
``Regulatory Planning and Review,'' 58 FR 51735 (October 4, 1993).
Accordingly, this action was not subject to review under the Executive
Order.
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 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 (August 16, 2002), DOE published
procedures and policies on February 19, 2003, to ensure that the
potential impacts of its draft rules on small entities are properly
considered during the rulemaking process (68 FR 7990). DOE has made
them available on the Office of General Counsel's Web site: http://www.gc.doe.gov.
DOE reviewed this rule under the provisions of the Regulatory
Flexibility Act and the procedures and policies published on February
19, 2003. This final rule neither classifies any product as covered
under EPCA, nor includes any requirement for any product. Thus, the
final rule does not have any economic impact on any business or entity.
On the basis of the foregoing, DOE certifies that the final rule does
not impose a significant economic impact on a substantial number of
small entities. Accordingly, DOE did not prepare a regulatory
flexibility analysis for this rulemaking. DOE transmitted the
certification and supporting statement of factual basis to the Chief
Counsel for Advocacy of the Small Business Administration for review
pursuant to 5 U.S.C. 605(b).
C. Review Under the Paperwork Reduction Act of 1995
This rule was reviewed under the Paperwork Reduction Act. (44
U.S.C. 3501 et seq.) This rule concerns an element of the criteria DOE
must use to determine whether it can regulate and adopt energy
conservation standards for consumer products not already covered under
EPCA. It does not require any additional reports or recordkeeping.
Accordingly, this action is not subject to review under the Paperwork
Reduction Act.
D. Review Under the National Environmental Policy Act of 1969
In this rulemaking, DOE adopted definitions that provide a basis
for DOE to determine whether products not currently covered by EPCA
meet the requirements for DOE to classify a product as a ``covered
product'' under EPCA, and to establish energy conservation requirements
for the product. The definitions will not affect the quality or
distribution of energy and, therefore, will not result in any
environmental impacts. DOE, therefore, determined that this rule falls
into a class of actions that are categorically excluded from review
under the National Environmental Policy Act of 1969 (42 U.S.C. 4321 et
seq.) and DOE's implementing regulations at 10 CFR part 1021. More
specifically, today's rule is covered by the Categorical Exclusion in
paragraph A5 to subpart D, 10 CFR part 1021 (rulemaking that amends an
existing rule without changing the environmental effect of the rule
being amended). Accordingly, neither an environmental assessment nor an
environmental impact statement was required.
E. Review Under Executive Order 13132
Executive Order 13132, ``Federalism,'' 64 FR 43255 (August 4, 1999)
imposes certain requirements on agencies formulating and implementing
policies or regulations that preempt State law or that have federalism
implications. The Executive Order 13132 requires agencies to examine
the constitutional and statutory authority supporting any action that
would limit the policymaking discretion of the States and assess the
necessity for such actions. The Executive Order also requires agencies
to have an accountable process to ensure meaningful and timely input by
State and local officials in the development of regulatory policies
that have federalism implications. On March 14, 2000, DOE published a
statement of policy describing the intergovernmental consultation
process it will follow in the development of such regulations (65 FR
13735).
The final rule published today supplies an element of the criteria
DOE must use to determine whether it can regulate and adopt energy
conservation standards for consumer products not already covered under
EPCA. This final rule will not directly affect state or local
governments. However, it might ultimately have an indirect impact on
such governments because the rule could affect which products DOE
covers and adopts standards for, under EPCA. If DOE ultimately decides
to extend the coverage of its energy efficiency program to additional
consumer products, the future application of coverage criteria could
pre-empt state and local requirements for those newly covered products.
Such impacts would not be the result of this final rule but would be
the result of later notice-and-comment rulemakings. Thus today's rule,
by itself, does not pre-empt any state or local action.
For these reasons, DOE determined that this final rule does not
preempt State law and does 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. Therefore, no further action is required
by Executive Order 13132.
F. Review Under Executive Order 12988
With respect to the review of existing regulations and the
promulgation of new regulations, section 3(a) of Executive Order 12988,
``Civil Justice Reform,'' 61 FR 4729 (February 7, 1996), imposes on
Federal agencies the general duty to adhere to the following
requirements: (1) Eliminate drafting errors and ambiguity; (2) write
regulations to minimize litigation; and (3) provide a clear legal
standard for affected conduct rather than a general standard and
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 section 3(a) and section 3(b) to determine whether they
are met or it is unreasonable to meet one or more of them. DOE has
completed the required review and determined that, to the extent
permitted by law, this final rule meets the relevant standards of
Executive Order 12988.
[[Page 13222]]
G. Review Under Unfunded Mandates Reform Act of 1995
Title II of the Unfunded Mandates Reform Act of 1995 (Pub. L. 104-
4) (UMRA) requires each Federal agency to assess the effects of Federal
regulatory actions on State, local, and tribal governments and the
private sector. With respect to a proposed regulatory action that may
result in the expenditure by State, local and tribal governments, in
the aggregate, or by the private sector of $100 million or more
(adjusted annually for inflation), section 202 of UMRA requires a
Federal agency to publish estimates of the resulting costs, benefits,
and other effects on the national economy. (2 U.S.C. 1532(a), (b)) 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 http://www.gc.doe.gov).
This final rule will not directly affect any State, local or tribal
government, or the private sector. It might ultimately have an indirect
effect on State or local governments, and the private sector, since it
could affect which products DOE covers and adopts standards for under
EPCA. DOE's coverage and adoption of standards for products could pre-
empt state and local requirements for those products, and would affect
companies that manufacture and sell them. Such impacts will not result
from promulgation of this final rule, however, and the rule imposes no
mandates of any kind.
For these reasons, we have determined that this final rule does not
provide for any Federal mandate that may result in estimated costs of
$100 million or more. Therefore, a cost benefit analysis was not
required under the UMRA.
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. Today's final rule does not have any impact on the autonomy
or the integrity of the family as an institution. Accordingly, DOE
concluded that it was not necessary to prepare a Family Policymaking
Assessment.
I. Review Under Executive Order 12630
DOE determined under Executive Order 12630, ``Governmental Actions
and Interference with Constitutionally Protected Property Rights,'' 53
FR 8859 (March 18, 1988), that this regulation would not result in any
takings which might require compensation under the Fifth Amendment to
the United States Constitution.
J. Review Under the Treasury and General Government Appropriations Act,
2001
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 under general guidelines issued by OMB. The OMB guidelines were
published in 67 FR 8452 (February 22, 2002), and the DOE guidelines
were published in 67 FR 62446 (October 7, 2002). DOE reviewed this
final rule under the OMB and DOE guidelines, and 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 the
Office of Information and Regulatory Affairs (OIRA), Office of
Management and Budget, a Statement of Energy Effects for any proposed
significant energy action. A ``significant energy action'' is defined
as any action by an agency that promulgates or is expected to lead to
promulgation of a final rule, and that: (1) Is a significant regulatory
action under Executive Order 12866, or any successor order; and (2) is
likely to have a significant adverse effect on the supply,
distribution, or use of energy; or (3) is designated by the
Administration 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.
Today's final rule 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.
Therefore, it is not a significant energy action, and DOE has not
prepared a Statement of Energy Effects.
L. Congressional Notification
As required by 5 U.S.C. 801, DOE will report to Congress on the
promulgation of today's rule prior to its effective date. The report
will state that it has been determined that the rule is not a ``major
rule'' as defined by 5 U.S.C. 804(2).
V. Approval of the Office of the Secretary
The Secretary of Energy has approved publication of today's rule.
List of Subjects in 10 CFR Part 430
Administrative practice and procedure, Energy conservation,
Household appliances.
Issued in Washington, DC, on January 22, 2010.
Cathy Zoi,
Assistant Secretary, Energy Efficiency and Renewable Energy.
0
For the reasons set forth in the preamble, Part 430 of Chapter II of
Title 10, Code of Federal Regulations, is amended as set forth below.
PART 430--ENERGY CONSERVATION PROGRAM FOR CONSUMER PRODUCTS
0
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.
0
2. Section 430.2 is amended by adding definitions for ``energy use of a
type of consumer product which is used by households,'' and
``household,'' in alphabetical order to read as follows:
Sec. 430.2 Definitions.
* * * * *
Energy use of a type of consumer product which is used by
households means the energy consumed by such product within housing
units occupied by households (such as energy for space heating and
cooling, water heating, the operation of appliances, or other
activities of the households), and includes energy consumed on any
property that is contiguous with a housing unit and that is used
primarily by the household occupying the housing unit (such as energy
for exterior lights or heating a pool).
* * * * *
Household means an entity consisting of either an individual, a
family, or a
[[Page 13223]]
group of unrelated individuals, who reside in a particular housing
unit. For the purpose of this definition:
(1) Group quarters means living quarters that are occupied by an
institutional group of 10 or more unrelated persons, such as a nursing
home, military barracks, halfway house, college dormitory, fraternity
or sorority house, convent, shelter, jail or correctional institution.
(2) Housing unit means a house, an apartment, a group of rooms, or
a single room occupied as separate living quarters, but does not
include group quarters.
(3) Separate living quarters means living quarters:
(i) To which the occupants have access either:
(A) Directly from outside of the building, or
(B) Through a common hall that is accessible to other living
quarters and that does not go through someone else's living quarters,
and
(ii) Occupied by one or more persons who live and eat separately
from occupant(s) of other living quarters, if any, in the same
building.
* * * * *
[FR Doc. 2010-6045 Filed 3-18-10; 8:45 am]
BILLING CODE 6450-01-P