AB 213: Energy efficiency: light emitting diode (LED) lighting products.
- Session Year: 2015-2016
- House: Assembly
- Latest Version Date: 2015-04-06
Existing law requires the State Energy Resources Conservation and Development Commission to prescribe energy efficiency standards, including standards applicable to lighting products.
This bill would prohibit the commission from adopting a color rendering index (CRI) value greater than the CRI value set forth in the United State Environmental Protection Agency Energy Star program, as of January 1, 2015, as a part of energy efficiency standards for lighting products, unless the commission makes certain findings.
Existing law requires the State Energy Resources Conservation and Development Commission to prescribe energy efficiency standards, including standards applicable to lighting products.
This bill would prohibit the commission from adopting a color rendering index (CRI) value greater than the CRI value set forth in the United State Environmental Protection Agency Energy Star program, as of January 1, 2015, as a part of energy efficiency standards for lighting products, unless the commission makes certain findings.
(a)The Legislature finds and declares both of the following:
(1)Historically, the energy efficiency standards prescribed by the State Energy Resources Conservation and Development Commission pursuant to Section 25402 of the Public Resources Code have reduced energy consumption, saved consumers money, and promoted adoption of advanced technology. The commissions efforts have led the nation in energy conservation.
(2)However, the commissions recent and pending regulatory actions pertaining to light emitting diode (LED) lighting products will have the opposite effect by imposing restrictions on those lighting products that will needlessly raise the price of lamps, reduce energy savings, and retard the adoption of advanced technology products by consumers.
(b)It is the intent of the Legislature to do both of the following:
(1)Reaffirm its support for progressive energy efficiency standards, including those applicable to lighting products, but not if those standards make LED lighting products too expensive, sacrifice energy savings, and discourage purchase and adoption by consumers.
(2)Adjust modestly standards applicable to LED light products to save consumers money, promote energy savings, reduce electricity bills, and encourage the adoption of LED lighting products by consumers.
SEC. 2.Section 25402.12 is added to the Public Resources Code, to read:25402.12.(a)For purposes of this section, the following terms mean the following:
(1)Energy Star program means the United States Environmental Protection Agency Energy Star program.
(2)LED lighting products has the same meaning as LED light engine, LED light engine with integrated heat sink, or LED luminaries as defined in subdivision (n) of Section 1602 of Title 20 of the California Code of Regulations.
(b)The commission shall not adopt a color rendering index (CRI) value greater than the CRI value set forth in the Energy Star program, as of January 1, 2015, as a part of energy efficiency standards for LED lighting products, unless the commission makes all of the following findings:
(1)Peer reviewed studies Studies demonstrate that a CRI value greater than that required by the Energy Star program will increase the rate of consumer adoption and produce greater sales of LED lighting products.
(2)Peer reviewed studies Studies demonstrate that energy efficiency gains from consumer adoption of LED lighting products using a CRI value greater than that required by the Energy Star program will exceed the energy efficiency gains that would result from consumer adoption of LED lighting products meeting the standards set forth in the Energy Star program.
(3)Peer reviewed studies Studies demonstrate that consumers are willing to pay an increased purchase price for LED lighting products with a CRI value greater than that required by the Energy Star program. The commission shall determine how much more a higher CRI LED lighting product will cost a typical California homeowner as compared to a comparable LED lighting product meeting the standards set forth in the Energy Star program.
(4)Peer reviewed studies Studies demonstrate that consumers are willing to pay higher electricity bills to use lower efficiency LED lighting products with a CRI value greater than that required by the Energy Star program. The commission shall determine the average increase in electricity costs for a typical California homeowner that would result from the use of a higher CRI LED lighting product as compared to a comparable LED lighting product meeting the standards set forth in the Energy Star Program.
(c)Subdivision (b) shall apply to all of the following:
(1)Voluntary performance specifications for LED lighting products, including those used by the commission or other public agencies in rebate programs.
(2)Standards prescribed pursuant to subdivision (c) of Section 25402 for LED lighting products.
(3)Standards prescribed pursuant to subdivision (a) or (b) of Section 25402 for LED lighting products.
(a)The Legislature finds and declares both of the following:
(1)Historically, the energy efficiency standards prescribed by the State Energy Resources Conservation and Development Commission pursuant to Section 25402 of the Public Resources Code have reduced energy consumption, saved consumers money, and promoted adoption of advanced technology. The commissions efforts have led the nation in energy conservation.
(2)However, the commissions recent and pending regulatory actions pertaining to light emitting diode (LED) lighting products will have the opposite effect by imposing restrictions on those lighting products that will needlessly raise the price of lamps, reduce energy savings, and retard the adoption of advanced technology products by consumers.
(b)It is the intent of the Legislature to do both of the following:
(1)Reaffirm its support for progressive energy efficiency standards, including those applicable to lighting products, but not if those standards make LED lighting products too expensive, sacrifice energy savings, and discourage purchase and adoption by consumers.
(2)Adjust modestly standards applicable to LED light products to save consumers money, promote energy savings, reduce electricity bills, and encourage the adoption of LED lighting products by consumers.
SEC. 2.Section 25402.12 is added to the Public Resources Code, to read:25402.12.(a)For purposes of this section, the following terms mean the following:
(1)Energy Star program means the United States Environmental Protection Agency Energy Star program.
(2)LED lighting products has the same meaning as LED light engine, LED light engine with integrated heat sink, or LED luminaries as defined in subdivision (n) of Section 1602 of Title 20 of the California Code of Regulations.
(b)The commission shall not adopt a color rendering index (CRI) value greater than the CRI value set forth in the Energy Star program, as of January 1, 2015, as a part of energy efficiency standards for LED lighting products, unless the commission makes all of the following findings:
(1)Peer reviewed studies demonstrate that a CRI value greater than that required by the Energy Star program will increase the rate of consumer adoption and produce greater sales of LED lighting products.
(2)Peer reviewed studies demonstrate that energy efficiency gains from consumer adoption of LED lighting products using a CRI value greater than that required by the Energy Star program will exceed the energy efficiency gains that would result from consumer adoption of LED lighting products meeting the standards set forth in the Energy Star program.
(3)Peer reviewed studies demonstrate that consumers are willing to pay an increased purchase price for LED lighting products with a CRI value greater than that required by the Energy Star program. The commission shall determine how much more a higher CRI LED lighting product will cost a typical California homeowner as compared to a comparable LED lighting product meeting the standards set forth in the Energy Star program.
(4)Peer reviewed studies demonstrate that consumers are willing to pay higher electricity bills to use lower efficiency LED lighting products with a CRI value greater than that required by the Energy Star program. The commission shall determine the average increase in electricity costs for a typical California homeowner that would result from the use of a higher CRI LED lighting product as compared to a comparable LED lighting product meeting the standards set forth in the Energy Star Program.
(c)Subdivision (b) shall apply to all of the following:
(1)Voluntary performance specifications for LED lighting products, including those used by the commission or other public agencies in rebate programs.
(2)Standards prescribed pursuant to subdivision (c) of Section 25402 for LED lighting products.
(3)Standards prescribed pursuant to subdivision (a) or (b) of Section 25402 for LED lighting products.
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Date
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Status
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|---|---|
| Feb 2, 2015 | Read first time. To print. |
| Feb 3, 2015 | From printer. May be heard in committee March 5. |
| Feb 17, 2015 | Referred to Coms. on U. & C. and NAT. RES. |
| Mar 23, 2015 | In committee: Hearing postponed by committee. |
| Apr 6, 2015 | From committee chair, with author's amendments: Amend, and re-refer to Com. on U. & C. Read second time and amended. |
| Apr 7, 2015 | Re-referred to Com. on U. & C. |
| Apr 13, 2015 | In committee: Set, first hearing. Failed passage. |
| May 12, 2015 | From committee: Without further action pursuant to Joint Rule 62(a). |
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Date
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Description
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Location
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Votes
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|---|---|---|---|---|
| Apr 13, 2015 | Do pass and be re-referred to the Committee on [Natural Resources] | Assembly Standing Committee on Utilities and Commerce |
Failed |
This list shows positions taken on this bill by organizations on the date displayed, which is linked to the original source.
Positions by individuals are not included.
AB 213
Page 4
Date of Hearing: April 13, 2015
ASSEMBLY COMMITTEE ON UTILITIES AND COMMERCE
Anthony Rendon, Chair
AB 213
Ridley-Thomas – As Amended April 6, 2015
SUBJECT: Energy efficiency: light emitting diode (LED) lighting products
SUMMARY: This bill prohibits the California Energy Commission (CEC) from adopting a color rendering index (CRI) value greater than the CRI value set forth in the United States Environmental Protection Agency (US EPA) ENERGY STAR program as a part of energy efficiency standards for lighting products, unless the commission makes certain findings. Specifically, this bill:
Establishes a definition for LED products.
Prohibits the CEC from adopting a CRI value greater than the CRI index established in the US EPA's ENERGY STAR program unless studies demonstrate all of the following:
A CRI value greater than that required by the ENERGY STAR program will increase the rate of consumer adoption and produce greater sales of LED lighting products.
Energy efficiency gains from consumer adoption of LED lighting products using a CRI value greater than that required by the ENERGY STAR program will exceed the energy efficiency gains that would result from consumer adoption of LED lighting products meeting the standards set forth in the ENERGY STAR program.
Consumers are willing to pay an increased purchase price for LED lighting products with a CRI value greater than that required by the ENERGY STAR program.
Consumers are willing to pay higher electricity bills to use lower efficiency LED lighting products with a CRI value greater than that required by the ENERGY STAR program.
Specifies that the prohibition on adopting a higher CRI value applies to voluntary agreements, the CEC appliance efficiency standards, and the CEC building efficiency standards.
EXISTING LAW:
Requires the CEC to continuously carry out studies, technical assessments, research projects, and data collection directed to reducing wasteful, inefficient, unnecessary, or uneconomic uses of energy, including improved appliance efficiency. (Public Resources Code 25401)
Requires the CEC to adopt cost-effective energy and water efficiency standards for appliances. (Public Resources Code 25402)
Prohibits the sale of new appliances that do not meet the energy and water efficiency standards adopted by the CEC. (Public Resources Code 25402(c)(2))
FISCAL EFFECT: Unknown.
COMMENTS:
Author's Comment. California has long been a leader in energy efficiency regulations, setting Title 20 standards for various appliances years before the federal government. The state’s Title 24 energy efficiency building regulations specify requirements relating to lighting, insulation, windows, heating, ventilation, and air conditioning (HVAC) systems, and other construction details designed to reduce energy consumption and lower energy bills for consumers.
Many peer-reviewed studies have found that cost is the greatest barrier to LED adoption and mandates for higher CRI lamps will further retard consumer use of the technology. The average CRI 80 LED costs $10, whereas the average CRI 90 LED costs $20.
Numerous programs administered by the state and local governments and electric utilities in California, and elsewhere, offer consumers incentives or rebates to purchase LED bulbs and lighting devices.
CRI 90 LEDs are as much as 42 percent less efficient than CRI 80 lamps because more energy is required to maintain the same light output. The result is consumers pay more over the lamp’s lifetime than they would if they used a CRI 80 lamp.
Amendments made to AB 213. The author amended the bill that was originally heard in this Committee. The amended bill eliminates the restriction that would have tied the LED standard to the January 2015 Energy Star standards. The author also eliminated the requirement that studies specified in this bill be peer reviewed.
What's a CRI? Different light bulbs emit different colors of light. Lighting color ranges from cool to warm tones, and this is called color temperature. Color temperature is not an indicator of lamp heat. CRI is a measure of how accurately an artificial light source displays colors. CRI is determined by comparing the appearance of a colored object under an artificial light source to its appearance under incandescent light. The higher the CRI, the better the artificial light source is at rendering colors accurately. An incandescent bulb is the reference light source and, as such, has a CRI of 100. High (above 80) CRI is preferred in the home. ENERGY STAR requires that qualified fixtures have lamps with CRI above 80.
What is ENERGYSTAR? ENERGY STAR is a US EPA voluntary program that has several elements, one of which is a voluntary certification of products that meet specified energy performance standards. Manufacturers who voluntarily meet the requirements can offer those products with an ENERGY STAR label. In order to earn the label, ENERGY STAR products must be third-party certified based on testing in EPA-recognized laboratories. In addition to up-front testing, a percentage of all ENERGY STAR products are subject to "off–the–shelf" verification testing each year. The goal of this testing is to ensure that changes or variations in the manufacturing process do not undermine a product's qualification with ENERGY STAR requirements.
The EPA periodically updates the requirements for certifying products for ENERGY STAR label.
Not all LEDs are alike. According to the ENERGY STAR website,1 "after less than a year of use, a poorly designed LED product can flicker, shift in color, look dim, offer uneven light, or continue to use power when turned off, among other problems.” They caution that bad design can lead to a wide range of problems, some immediately observable and some not, and that some poorly designed products come with exaggerated claims while failing to deliver on the quality specifications.
In 2012, the California Public Utilities Commission (PUC) adopted a decision2 that directed investor owned utilities to only propose rebates for general service screw base LED products that are consistent with quality standards developed by the CEC.
CEC Voluntary Standard. In 2012 the CEC adopted a voluntary LED standard requiring a CRI of 90 or above. At that time Philips (a major lighting manufacturer) commented that a higher CRI could lead to increased cost and worsening color consistency. They also pointed out that their market studies are showing that customers prefer the product with the lower (80) CRI and expressed concern that a 90 CRI requirement would result in a lower customer adoption rate. Rebuttal to these arguments were offered by a Professor Lorne Whitehead, who also served on the Board of the International Commission on Illumination (CIE), who argued that Philips was wrong in these assertions and that higher CRI will lead to less color distortion and save energy.
CEC Proposed Mandatory Regulation. In September 2014, the CEC issued a staff proposal to establish mandatory regulations of LED bulbs in three ways: the efficiency, the CRI, and Color Correlated Temperature (Color Correlated Temperature is a measure of a light's "warmth"). Staff's proposal allows for tradeoffs between one another, and proposed implementation is in two tiers, with more stringent requirements in Tier 2. Each tier is composed of a minimum compliance equation and bounding conditions on how low efficiency and CRI can be. The staff proposes Tier I standards to take effect January 1, 2017 and Tier II standards to take effect January 1, 2019. The staff proposal documents the potential energy savings, cost of manufacturing, and net benefits to California customers.
According to the CEC, CRI "is an imperfect color metric, mainly because of potential inaccuracies with red colors. The voluntary LED quality specification adds a requirement for performance with red colors. The lighting world has been working for years on alternative color metrics but has not yet reached consensus on an improvement to CRI. The front-runner alternative is Color Quality Scale (CQS), developed by the National Institute of Standards and Technology (NIST). When an improved color metric is agreed to by the lighting industry, CEC would analyze and consider it for recognition and incorporation." Importantly, the CEC points out that a NIST study found that "CQS provides scores consistent with the CRI for most recent phosphor type LED products and traditional discharge lamps.” The CEC regulatory process allows stakeholders to make comments on regulatory proposals and offer suggestions on changes to the proposed regulations.
Can you get a rebate for an LED bulb that uses more electricity than a similar LED bulb? The PUC explains that the IOU rebates offered for various LED bulbs are not necessarily based solely on energy consumption (wattage). The rebates may be based on a variety of factors, for example, ensuring rebates are available for a range of different products with different CRI indices because some customers may make their product choice on something other than price. This is to help ensure that customer satisfaction with the product will lead to greater market adoption.
Double referred. AB 213 is double referred to Natural Resources.
REGISTERED SUPPORT / OPPOSITION:
Support
Los Angeles County Economic Development Corporation
Phillips Lighting
Opposition
None on file
Analysis Prepared by: Sue Kateley / U. & C. / (916) 319-2083
AB 213
Page 4
Date of Hearing: March 23, 2015
ASSEMBLY COMMITTEE ON UTILITIES AND COMMERCE
Anthony Rendon, Chair
AB 213
(Ridley-Thomas) – As Introduced February 2, 2015
SUBJECT: Energy efficiency: light emitting diode (LED) lighting products
SUMMARY: This bill prohibits the California Energy Commission (CEC) from adopting a color rendering index (CRI) value greater than the CRI value set forth in the United States Environmental Protection Agency (US EPA) ENERGY STAR program, as of January 1, 2015, as a part of energy efficiency standards for lighting products, unless the commission makes certain findings. Specifically, this bill:
Establishes a definition for Light Emitting Diode (LED) products.
Prohibits the CEC from adopting a CRI value greater than the CRI index established in the US EPA's ENERGY STAR Program unless peer reviewed studies demonstrate all of the following:
A CRI value greater than that required by the ENERGY STAR program will increase the rate of consumer adoption and produce greater sales of LED lighting products.
Energy efficiency gains from consumer adoption of LED lighting products using a CRI value greater than that required by the ENERGY STAR program will exceed the energy efficiency gains that would result from consumer adoption of LED lighting products meeting the standards set forth in the ENERGY STAR program.
Consumers are willing to pay an increased purchase price for LED lighting products with a CRI value greater than that required by the ENERGY STAR program.
Consumers are willing to pay higher electricity bills to use lower efficiency LED lighting products with a CRI value greater than that required by the ENERGY STAR program.
Specifies that the prohibition on adopting a higher CRI value applies to voluntary agreements, the CEC appliance efficiency standards, and the CEC building efficiency standards.
EXISTING LAW:
Requires the CEC to continuously carry out studies, technical assessments, research projects, and data collection directed to reducing wasteful, inefficient, unnecessary, or uneconomic uses of energy, including improved appliance efficiency. (Public Resources Code 25401)
Requires the CEC to adopt cost-effective energy and water efficiency standards for appliances. (Public Resources Code 25402)
Prohibits the sale of new appliances that do not meet the energy and water efficiency standards adopted by the CEC. (Public Resources Code 25402(c)(2))
FISCAL EFFECT: Unknown
COMMENTS:
Author's Comment. California has long been a leader in energy efficiency regulations, setting Title 20 standards for various appliances years before the federal government. The state’s Title 24 energy efficiency building regulations specify requirements relating to lighting, insulation, windows, heating, ventilation, and air conditioning (HVAC) systems, and other construction details designed to reduce energy consumption and lower energy bills for consumers.
Many peer-reviewed studies have found that cost is the greatest barrier to LED adoption and mandates for higher CRI lamps will further retard consumer use of the technology. The average CRI 80 LED costs $10, whereas the average CRI 90 LED costs $20.
Numerous programs administered by the state and local governments and electric utilities in California, and elsewhere, offer consumers incentives or rebates to purchase LED bulbs and lighting devices.
CRI 90 LEDs are as much as 42 percent less efficient than CRI 80 lamps because more energy is required to maintain the same light output. The result is consumers pay more over the lamp’s lifetime than they would if they used a CRI 80 lamp.
What's a CRI? Different light bulbs emit different colors of light. Lighting color ranges from cool to warm tones, and this is called color temperature. Color temperature is not an indicator of lamp heat. Color rendering index (CRI) is a measure of how accurately an artificial light source displays colors. CRI is determined by comparing the appearance of a colored object under an artificial light source to its appearance under incandescent light. The higher the CRI, the better the artificial light source is at rendering colors accurately. An incandescent bulb is the reference light source and, as such, has a CRI of 100. High (above 80) CRI is preferred in the home. ENERGY STAR requires that qualified fixtures have lamps with CRI above 80.
What is ENERGYSTAR? ENERGY STAR is a U.S. Environmental Protection Agency (EPA) voluntary program that has several elements, one of which is a voluntary certification of products that meet specified energy performance standards. Manufacturers who voluntarily meet the requirements can offer those products with an ENERGY STAR label. In order to earn the label, ENERGY STAR products must be third-party certified based on testing in EPA-recognized laboratories. In addition to up-front testing, a percentage of all ENERGY STAR products are subject to "off–the–shelf" verification testing each year. The goal of this testing is to ensure that changes or variations in the manufacturing process do not undermine a product's qualification with ENERGY STAR requirements.
The EPA periodically updates the requirements for certifying products for ENERGY STAR label.
Not all LEDs are alike. According to the ENERGY STAR website,1 "after less than a year of use, a poorly designed LED product can flicker, shift in color, look dim, offer uneven light, or continue to use power when turned off, among other problems. They caution that bad design can lead to a wide range of problems, some immediately observable and some not and that some poorly designed products come with exaggerated claims while failing to deliver on the quality specifications.
In 2012, the California Public Utilities Commission (PUC) adopted a decision2 that directed IOUs to only propose rebates for general service screw base LED products that are consistent with quality standards developed by the CEC.
CEC Voluntary Standard. In 2012 the CEC adopted a voluntary LED standard requiring a CRI of 90 or above. At that time Philips (a major lighting manufacturer) commented that a higher CRI could lead to increased cost and worsening color consistency. They also pointed out that their market studies are showing that customers prefer the product with the lower (80) CRI and expressed concern that a 90 CRI requirement would result in a lower customer adoption rate. Rebuttal to these arguments were offered by a Professor Lorne Whitehead, who also served on the Board of the International Commission on Illumination (CIE), who argued that Philips was wrong in these assertions and that higher CRI will lead to less color distortion and save energy.
CEC Proposed Mandatory Regulation. In September 2014, the CEC issued a staff proposal to establish mandatory regulations of LED bulbs in three ways: the efficiency, the CRI, and Color Correlated Temperature (Color Correlated Temperature is a measure of a light's "warmth"). Staff's proposal allows for tradeoffs between one another, and proposed implementation is in two tiers, with more stringent requirements in Tier 2. Each tier is composed of a minimum compliance equation and bounding conditions on how low efficiency and CRI can be. The staff proposes Tier I standards to take effect January 1, 2017 and Tier II standards to take effect January 1, 2019. The staff proposal documents the potential energy savings, cost of manufacturing, and net benefits to California customers.
The CEC regulatory process allows stakeholders to make comments on regulatory proposals and offer suggestions on changes to the proposed regulations.
Can you get a rebate for an LED bulb that uses more electricity than a similar LED bulb? The PUC explains that the IOU rebates offered for various LED bulbs are not necessarily based solely on energy consumption (wattage). The rebates may be based on a variety of factors, for example, ensuring rebates are available for a range of different products with different CRI indices because some customers may make their product choice on something other than price. This is to help ensure that customer satisfaction with the product will lead to greater market adoption.
Support/Opposition
Supporters assert the ENERGY STAR rated products are not only adequate but that CRI 80 is preferred by the vast majority of customers, especially if the red content of a CRI 90 lamp is too high. They state that a high CRI limits the ability of manufacturers to innovate and develop new products that increase customer preference for LED lamps with improved vividness. This will further slow the adoption rate in California compared to other markets.
Opponents state that this bill could limit the CEC's ability to adopt forward thinking energy savings standards in the future and could have a chilling effect on innovation. Other opponents point out that this bill would solve a problem that does not yet exist, focuses on only a single metric related to lighting performance, and ties California to a 2015 ENERGY STAR standard, even though ENERGY STAR rating requirements are updated every two years.
Double Referred. This bill is double referred to the Assembly Committee on Natural Resources.
REGISTERED SUPPORT / OPPOSITION:
Support
American Federation of State, County and Municipal Employees (AFSCME)
General Electric
Osram Sylvania
Philips Lighting
Opposition
Natural Resources Defense Council (NRDC)
Pacific Gas and Electric (PG&E)
Sierra Club California
Analysis Prepared by: Sue Kateley / U. & C. / (916) 319-2083
Bill Author
Bill Co-Author(s):