Testimony prepared by David B. Goldstein and presented by Patricio
Silva, both of NRDC's air and energy program, before the
Subcommittee on Energy and Air Quality of the U.S. House of
Representatives Committee on Energy and Commerce.
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to Appliance Efficiency Index
Executive Summary
A. The purpose of a national energy policy should be to satisfy
growing demands for energy services at the least cost to the nation,
with the minimum levels of environmental damage and overall societal
risk. Energy efficiency will be a crucial part of such a
strategy.
B. Energy efficiency can help solve short-term problems with
electricity reliability and cost and with high natural gas
prices
H.R. 778 - tax incentives for energy efficient buildings and
equipment could induce short-lead-time improvements in efficiency of
air conditioners (almost 30% of peak power) and commercial lighting
systems (about 15% of peak).
C. Other policy opportunities:
- Accelerate adoption of energy efficiency standards for
appliances and equipment.
a. Oppose rollback of air conditioner efficiency
standards.
b. Increase budget for DOE to get back on
statutory schedule for adopting appliance efficiency
standards.
c. Establish standards for new products,
legislatively and by delegation to DOE.
- Upgrade energy efficiency standards for buildings.
- Adopt a 40 mpg fuel economy standard for automobiles.
- Adopt H.R. 1316 - provides tax incentives for super-efficient
refrigerators and clothes washers.
- Adopt H.R.1864 - tax incentives for energy efficiency
technologies in automobiles. .
- Enact a matching public benefit trust fund for state
expenditures on energy efficiency..
- Expand Energy Star program.
- Expand funding of energy efficiency research and
development.
1. Policy Framework
Good strategic planning -- whether for the national government or
for a private business -- requires that one first set a clear
mission statement and overarching goals, and then develop objectives
and policies that can implement the goals. One of the factors
preventing a thoughtful debate on the subject of energy strategy is
that we've jumped to the detailed steps before first discussing
goals.
What is the goal of a national energy policy? Much of the current
energy debate seems to be based on the overarching but unstated
premise that it is the goal of national policy to balance energy
supplies with projected energy demands. This was the view of many in
the 1970's, as well.
The problem with this approach is that it requires top-down,
central planning that stifles innovation: government is assumed to
be responsible for assuring adequate supplies and, if necessary,
doing something about demand. Since the 70's we have altered
American energy policy to rely more and more on markets. Building
supply to match demand is no longer a federal government function,
if it ever was.
So what should be the purpose of national energy policy? NRDC
submits that the purpose of a national energy policy should be to
develop mechanisms and market incentives that satisfy growing
demands for energy services and environmental protection at the
least cost to the nation. Energy services are those valuable things
that energy is used to produce, such as comfortable buildings, ways
of getting to and from places we want to go, providing lighting
systems and computers, and, in businesses, producing products that
we can sell.
Fundamentally, most people don't care much about global issues of
energy supply and demand. But they do care a lot about reliable
electric service and what they pay for utility bills and for
gasoline. And they also care about clean air and water, preserving
wild environments from industrialization, and protecting the planet
from the effects of accelerating global warming.
Energy services can be produced at a variety of different levels
of efficiency, and with a variety of choices of fuel. Some of the
choices are more environmentally damaging than others. As a matter
of policy, we should pick the cleaner choices. Some of these choices
are more expensive than others. As a matter of policy, we should get
the cheaper ones first. Some of the choices are riskier than others.
As a matter of national policy, we should balance risks and
construct a portfolio of choices that minimizes risk.
If we accept the goal of societal cost minimization -- which is
strikingly similar to the goals Congress chose when it established
DOE[1] -- then the next step should be to
produce an actual least-cost energy plan. This sounds like a
daunting activity, but in fact has been undertaken successfully, at
least for the electricity sector, for over 15 years. The Northwest
Power Planning Council, beginning in the mid-1980's, developed a
Northwest Power Plan which compared a range of choices on energy
efficiency with all of the available options that could be
identified on the supply side and ranked them in least-cost order.
In calculating costs, risk and environmental cleanliness were taken
into account. This was less difficult than might be imagined,
because in general the cheaper options also turned out to be cleaner
and lower risk. And all this was done in an open public process.
The results were good, in two respects. First, the Plan lessened
the degree of political controversy over energy and replaced it with
wide, if not total, consensus. Second, the region avoided some
really bad investments and moved into a position of leadership on
energy efficiency.
From analyses that have already been done at the state and
regional level, as well as at the federal level, it is already clear
that energy efficiency will be the cornerstone of a national
least-cost energy strategy.
Once the measures that we are trying to implement have been
identified, the next step is to look at markets and determine
whether policy interventions are feasible and what sorts of policy
actions would be most effective in achieving the objectives
identified in the least-cost plan.
Looking at markets is critical because energy and most energy
services are produced in markets. Many of these markets are global,
and simple-minded interventions in such markets don't always have
the desired effect.
Analysis of markets and policies for promoting least-cost energy
investments demonstrates that there are four generic types of
federal and state policies that are the most effective and the most
economical at achieving their objectives. They are:
- Efficiency standards for major users of energy, such as
buildings, appliances, equipment, and automobiles.
- Targeted incentives for more efficient technologies based on
performance. These incentives have been administered primarily by
utilities, although the state of Oregon has run a successful tax
incentive program as well.
- Education and outreach on energy efficiency, although
educational programs have worked best when performed in the
context of financial incentive programs.
- Research on energy efficiency technologies and systems. The
three policies noted above only work when there are economically
attractive options available. Federally funded research has led to
new opportunities for these other policies to work.
Within each of these four categories, there are significant roles
that can be undertaken by the federal government.
Federal policy should begin with the principle: "first do no
harm." Unfortunately, that has not been the direction of the last
few months. Despite some kind words for energy efficiency in the
Administration's "National Energy Policy," the actual substantive
policies proposed by the Administration have pushed the country even
farther off the path towards minimizing energy costs for consumers
or energy-related damage to the environment. The most egregious
examples so far are:
- The Department of Energy's proposal to roll back the final
rule for air conditioner standards published in the Federal
Register in January. NRDC, the Consumer Federation of America, and
three states believe that this action is illegal on procedural
grounds -- the rule being considered for weakening is a Final Rule
promulgated 7 years past the statutory deadline under a law that
prohibits rollbacks of Final Rules -- but it is also hard to
defend on policy grounds.
- The air conditioner rollback alone -- were it to succeed --
would cause the need to construct 43 new 300 megawatt power plants
by the year 2020 and would cost consumers billions of dollars. Had
the Department of Energy promulgated this standard on time rather
than 7 years late, the Western grid would be enjoying some 400-600
megawatts of peak power relief, half of which would have occurred
last year. That alone might have been enough to prevent rolling
blackouts.
- Proposed budget reductions in programs to develop and promote
appliance and building energy efficiency standards. The standards
efforts are among the most cost-effective investments of the
federal government for any purpose. Every dollar invested in
developing and enforcing energy efficiency standards for
appliances has yielded $200-1,000 in private sector benefits. Yet
these activities, representing a tiny fraction of the federal
budget, are proposed for drastic reductions. This proposal is all
the worse because it hinders DOE's ability to meet statutory
deadlines for standards.
- Proposed budget reductions for energy efficiency research and
development (R&D). The National Energy Plan notes the
importance of new technology for improving energy efficiency. But
new technology doesn't just happen. Someone needs to pay for it.
And, unfortunately, market failures make it uneconomical for the
private sector to do so. Government R&D on energy efficiency
should be increased, not cut back.
2. Why Energy Is Important in Summer 2001
For virtually all of the last three decades, energy has been an
important issue because of the impacts of energy cost on economic
growth and on the environment. Even before the recent jumps in
energy prices, our nation's energy bill exceeded half a trillion
dollars a year[2] -- or 6% of the gross domestic
product (GDP). This is much higher than in other industrialized
countries. So, in addition to harming household budgets and reducing
the bottom line of energy-consuming businesses, energy is a
competitive drag on the U.S. economy.
Throughout the last 30 years, energy has been a major threat to
the environment, accounting for the overwhelming bulk of air
pollution emissions, most U.S. greenhouse gas emissions, and
significant fraction of threats to wilderness lands and recreation
areas posed by energy development. Promoting energy efficiency is
perhaps the only approach that can both protect the environment and
promote economic development.
But in the last year, specific new challenges arose that are
impacting businesses and consumers: electrical reliability and high
costs of gas and heating oil.
Let's start with the problem of electric reliability. Not only in
California and the West, but in many other regions as well, we are
facing the risk of electrical blackouts and/or excessively high
electricity prices this summer and next. Regions confronting these
problems are trying to move forward aggressively both on energy
efficiency programs and on power plant construction. But the lead
times for most actions on the supply side are far too long to
provide a solution. And demand-side approaches attempted on a
state-by-state level are much less effective than coordinated
national activities.
There are few policy levers that can be pulled that will address
the problem of physical shortages. But that doesn't mean that there
is nothing that federal policy initiatives can do. To the contrary,
targeted incentives for those end-uses focused heavily on peak power
reduction can begin to make a difference as soon as next summer.
Here, H.R. 778 could be a critical piece of a national solution
to electric reliability problems. Air conditioners, for example,
represent about 30% of summertime peak electric loads . Air
conditioners that use a third less power can be purchased today, but
they are not produced in large enough quantities to make a
difference to peak load. If incentives are made available,
manufacturers could begin to mass-produce these products in a matter
of months, not years. Mass production and increased competition for
tax incentives will drive prices sharply lower, so the incentives
will be self-sustaining in the long-term. And with 5 million air
conditioners being sold every year, a sudden increase in energy
efficiency could have a significant effect in balancing electricity
supply and demand even after less than a year.
Another peak power efficiency measure with a very short lead time
is the installation of energy-efficient lighting systems -- either
new or retrofit -- in commercial buildings. Some 15% of electrical
peak power results from lighting in commercial buildings. Efficient
systems, such as those NRDC designed and installed in our own four
offices, can cut peak power demand by over two-thirds while
improving lighting quality. Lighting systems are designed and
installed with a lead time of months, so incentives for efficient
lightings as provided in H.R. 778 could begin to mitigate electric
reliability problems as soon as next summer.
The second major new problem is the skyrocketing cost of natural
gas, which caused heating bills throughout the country to increase
last winter. Improved energy efficiency can cut gas use for the
major uses -- heating and water heating -- by 30%-50%. Much of this
potential could be achieved in the short term, because water heaters
need replacement about every ten years, and are the second largest
user of natural gas in a typical household (and largest gas user in
households living in efficient homes or in warm areas). Water
heaters are covered by H.R. 778.
Clothes washers also turn over about every 15 years, and
efficient clothes washers save natural gas by reducing the amount of
hot water needed to get clothes clean and reducing the amount of
time they must spend in the dryer. H.R. 1316 can provide the
incentives to get large numbers of clothes washers out into the
marketplace in time to reduce pressure in natural gas prices by
winter 2002-3.
These types of quick-acting incentives help consumers in two
different ways: first, they provide new choices that are not
currently available in practice for families and businesses that
want to cut their own energy costs while obtaining tax relief.
Second, they help non-participants because reduced demand cuts
prices for everyone.
3. Specific Policy Recommendations
A. Energy Efficiency Standards for Appliances and
Equipment
The two most effective energy policies of the past 30 years have
been energy efficiency standards for appliances and equipment, and
the Corporate Average Fuel Economy (CAFE) standards for automobiles.
Appliance efficiency standards adopted to date will save the
nation's consumers some $200 billion while reducing electricity
consumption at the peak by a projected 12.6% in 2020. Even larger
savings can be achieved by standards that could be adopted in the
future by DOE or states. Congress has a key role to play in the
adoption of these standards. Specifically, the following actions can
produce immense economic as well as environmental benefits while
encouraging American competitiveness and promoting new technologies:
- Provide DOE with sufficient funding to get back on statutory
schedule for all appliances. The National Appliance Energy
Conservation Act (NAECA) of 1987 and its amendments of 1988, along
with EPAct, established a continuing non-discretionary schedule of
rulemakings on appliance and efficiency standards for DOE. Yet,
DOE has fallen years behind statutory schedule on virtually
all appliances. Much of this is due to an insufficient
budget.
Things are so stalled at DOE that it has conducted
Prioritization Proceedings for the last several years to determine
how to manage its failure to comply with the law. DOE looks at its
existing resources and decides how many of its non-discretionary
schedules it can meet, and where it could obtain the greatest bang
for the buck for the schedules it does meet. This is a ridiculous
way to conduct government policy. DOE should propose a budget that
allows it to get back on schedule and Congress should provide
sufficient funds and oversight to make sure that DOE is indeed on
schedule.
- Congress should establish legislative standards for a number
of appliances and direct DOE to set standards for others. There is
a long list of products, both used by business and by consumers,
for which standards are not currently in effect and where immense
potential for highly cost-effective savings exist. In many cases,
states such as California are well on the way to adopting such
standards. Congress could simply enact these same numbers
legislatively, as it did in the previous three pieces of appliance
efficiency legislation. For other products, additional
administrative inquiry is necessary, and Congress should authorize
such actions and set appropriate deadlines.
- Congress could allow greater state discretion in setting
appliance efficiency standards. States agreed to the previous
pieces of appliance efficiency legislation in return for a strong
national policy, in which DOE would set and update standards to
the maximum level of efficiency that is technologically feasible
and economically justified. This agreement is cold comfort to a
state if the DOE rulemakings fall years behind schedule and show
no sign, in many cases, of ever catching up. Congress could put a
sunset on preemption by allowing states the freedom to set
appliance efficiency standards if DOE falls more than three years
behind its mandated schedule. Indeed, one of the most effective
policies Congress could implement to address the California energy
crisis is to allow it to enforce its own air conditioner
efficiency standards by next summer.
- Congress should extend the mandatory rulemakings in the
appliance acts to require new standards to be considered every 5
or 7 or 10 years. When NAECA was first negotiated in 1986, it
required DOE to consider revising standards for most products
every 5 years, and for some products every 7 or 10 years ad
infinitum . When the legislation was reintroduced in 1987, the
number of rulemakings was limited, but there is no policy reason
for this limitation. Just as labor productivity is expected to
continue growing, even to grow at accelerated rates -- so should
we expect the efficiency of buildings and appliances to continue
to grow. DOE should continue to evaluate appliance efficiency
standards on a regular schedule as long as these evaluations keep
showing, as they have, the opportunity for large savings in energy
and money.
B. Energy Efficiency Standards for Buildings
- DOE should set tougher efficiency standards for federal
buildings and extend these rules to the private sector. Under
EPAct, states are required to adopt national model standards for
energy efficiency in commercial buildings and to consider the
adoption of national model standards for residential buildings.
Unfortunately, the models on which this legislation is based have
not been managed effectively by their non-governmental sponsors:
increasingly they fail to maximize cost-effective energy
efficiency. The reference ASHRAE standard for commercial buildings
has been revised only once since 1989, for an additional energy
savings of a paltry 5% or less. At the same time, typical
buildings in California often use 30% and 40% less energy than
this standard, and NRDC's own buildings have been designed to
operate at enhanced comfort and productivity levels for a third or
less of the energy of the national model. DOE should be required
to establish model standards that save at least 30% and these
should be adopted by states. Similar percentages could be mandated
for residential buildings at a net savings in money to
consumers.
- Almost a third of new housing construction is manufactured
houses. The efficiency of manufactured homes is regulated at the
national level, and the standards have not been changed in about
10 years, despite improvements in energy efficiency technologies
and reductions in their cost. Congress should require the
Department of Housing and Urban Development to revise its energy
efficiency standards for manufactured housing based on minimizing
lifetime owning and operating costs to the consumer, including
analysis of the efficiency savings from higher efficiency heating,
cooling, and water heating equipment.
C. Energy Efficiency Standards for Automobiles
- Congress should set higher fuel economy standards. America's
automobile efficiency standards, which contributed to improvements
in fuel economy throughout the rest of the world as well as here
in the U.S., were undoubtedly a major contributor to the low
energy prices that prevailed in the decade and a half following
their implementation. And the current stagnation in fuel economy
standards, which have remained essentially unchanged since 1985,
undoubtedly is a cause of OPEC's pricing power in today's
market.
Congress should raise fuel economy standards for
automobiles. Studies have shown that raising the CAFE standard to
40 mpg for cars and light trucks is feasible. Even though there is
a significant lead time for manufacturers to design and mass
produce new technologies for fuel efficiency, the lead time is
still faster than that for developing new oil resources.
Ultimately, if we are concerned about oil imports, the only
solution is to use less domestically: supply options are grossly
insufficient ever to allow a reduction in imports without
aggressive demand side action.
- Congress should set standards for replacement tires. It is a
little known fact that auto manufacturers use highly-efficient
tires to comply with current CAFE requirements, but comparable
tires are not available to the consumers as replacements. Congress
should require replacement tires to meet the same specifications
as those sold on new cars. This measure alone would save over 70%
more oil than is likely to be found if drilling were permitted in
the Arctic National Wildlife Refuge.
D. Targeted Incentives for Energy Efficiency
Economic incentives have proven to be an effective policy for
providing advances in energy efficiency technology and for making
markets begin to work at supplying energy efficiency. Most of the
effective incentives have been applied through the utility system;
numerous third-party studies of these programs have shown that they
typically have benefit/cost ratios of 2-1 or better.
Incentives have been even more effective at bringing major
technological advances into the marketplace and getting them widely
accepted. This is called market transformation. Market
transformation incentive programs tend to require longer lead-times
and more consistent availability of funding. This is what
manufacturers have asked for, and this is what has worked in the
modest number of examples where programs have been implemented. The
scope of such programs can be vastly expanded by adding programs
that operate through the tax system.
Specific policies that can accomplish this purpose are:
- Congress should pass tax incentives for energy efficiency.
Because tax incentives are in effect for a long time, it is
important that they be designed carefully and to maximize
competition on a level-playing field. NRDC urges your support for
specific proposals that have been well-vetted and meet these
criteria. These are all bipartisan proposals. They are:
a. Enact Cunningham/Markey Bill, H.R. 778. This bill
provides tax incentives for energy efficiency in buildings.
Buildings account for over a third of energy use and air
pollution, and almost half of total energy costs. This bill
provides performance-based and fuel neutral incentives for large
savings in energy -- typically 30%-50% -- and then phases out
after 6 years. It is one of the very few opportunities that the
federal government has to improve the peak power situation in
the West, and in other regions facing this problem, as soon as
2002.
b. Enact Nussle/Tanner Bill, H.R. 1316. This bill
provides tax incentives for super efficient clothes washers and
refrigerators, and was developed through a consensus process
between states, utilities, energy efficiency advocates, and the
appliance industry.
c. Enact Camp Bill H.R. 1864. This
bill was developed collaboratively between many of the nation's
automobile manufacturers and public interest organizations. It
provides tax incentives for a variety of advanced technologies
and alternative fuel vehicles, including hybrids and those that
run on fuel cells.
d. Provide tax incentives for energy
efficiency improvements in existing homes. In the few cases
where trained energy inspectors can look at energy performance
of homes, they will typically find the opportunity to save 30%
or even 50% of energy cost with an investment so low that the
interest payments on a loan to finance energy efficiency are
smaller than the monthly utility bill savings. Yet market
barriers prevent these retrofits from taking place in most
cases. NRDC has suggested a modest and medium-term tax incentive
for home retrofits that are certified by independent third
parties to save energy and money.
- Enact a matching public benefit trust fund that matches state
public benefit trust expenditures on energy efficiency. This is
similar to what was proposed in last year's S. 1369. Public
benefit trust expenditures help businesses, both large and small,
as well as consumers, improve energy efficiency. They can be
managed by their implementers for maximum effectiveness. This is a
program that has worked in the states where it has been tried, and
should be expanded to take advantage of a greater fraction of the
available opportunities.
- Education, outreach, and information provisions have been
other ways to promote energy efficiency. These methods work best
when they are conducted in parallel with economic incentive
programs. Thus, utilities that have developed energy information
centers have found them to have a measurable favorable impact on
the market in areas where the utilities were also offering
economic incentives for efficiency. The federal ENERGY STAR
labeling and information program has been effective at
establishing brand awareness for energy efficiency nationwide and
even more effective in areas where it is complemented by
utility-based incentives. Congress should provide increased
funding for the ENERGY STAR program. Parallel promotional efforts
are likely to be handled by funding made available through the
public benefits trust.
E. Research and Development
As noted by D. Allen Bromley, former President Bush's Science
Advisor from 1989-1993, "the major driver of our nation's economic
success is scientific innovation...the proposed [Administration's]
cuts to scientific research are self-defeating policy. Congress must
increase the federal investment in science. No science, no surplus.
It's that simple."
This observation applies even more strongly to energy efficiency,
where we already know that many types of innovation appear feasible
with additional research and that market barriers make it foolish
for private sector companies to invest in this R&D.
The chilling effect of market failures on energy efficiency
R&D is easy to understand. In today's market, most consumers
will overlook investments in energy efficiency that payback their
additional costs in as little as 2-3 years. Manufacturers know this
and generally do not offer efficiency options at all, or else only
offer those that payback exceedingly quickly. Thus, if there is a
potential new technology that could reduce energy cost dramatically,
but would payback in 3 years, manufacturers have no incentive at all
to perform the research and development. A smart manufacturer
quickly recognizes that even if the R&D is fully successful, and
the product performs equally well and saves energy with a 3-year
payback, it won't sell.
In order to meet the critical environmental goals of improving
air quality and mitigating global warming, our nation must invest
more money, not less, in federal research and development in energy
efficiency and renewable energy sources. These options offer the
best possibilities to meet environmental goals while promoting
economic development and reducing energy cost, rather than raising
costs and hurting the economy.
NRDC believes that compliance with the Kyoto Protocol goals would
actually enhance economic development, and that compliance can be
achieved largely through the types of policies discussed above.
Energy efficiency policy offers a golden opportunity for the United
States to promote national and global economic development while
meeting our environmental goals: particularly the goal of protecting
the global climate. Our research, and that of our colleague
organizations in the public interest sector, shows that the United
States can achieve compliance with the Kyoto Protocol through purely
domestic policy actions at a net gain to the economy, not a cost.
This solution comes about through the implementation of already
existing technologies for improving energy efficiency and harnessing
renewable energy resources.
Enhanced research and development would allow newer technologies
to further reduce compliance costs and expand environmental
benefits. Rather than cutting budgets for energy efficiency R&D,
Congress should increase them.
F. A National Least-Cost Energy Plan
This testimony began with a discussion of the role that a
National Energy Plan striving for achieving energy service needs at
the least cost could play in simultaneously promoting environmental
protection and economic development. Such a least-cost approach is
fully consistent with the legislative instructions DOE was given
when Congress established it. It is also a requirement of EPAct.
Despite the manifest reasons for developing a least-cost approach
to national energy planning, the Department of Energy, under both
Democratic and Republican Administrations, has failed to take a
least-cost approach. Congress should explicitly require that
subsequent national energy plans be based on an approach of
minimizing the cost of providing energy services for an expanding
economy. The Department has, through its national labs and other
resources, the ability to do this work. A national least-cost plan
will be the first step towards generating bipartisan and
multi-interest-group consensus on national energy policy.
Notes
1. The Department of Energy was established
by Congress, (42 USC § 7112) among other things, to:
- "Promote maximum energy conservation measures…
- Provide for a mechanism through which a coordinated national
energy policy can be formulated and implemented to deal with the
short-, mid- and long-term energy problems of the nation; and to
develop plans and programs for dealing with domestic energy
production and import [sic] shortages.
- Create and implement a comprehensive energy conservation
strategy that will receive the highest priority in the national
energy program.
- Place major emphasis on the development and commercial use
of solar, geothermal, recycling and other technologies utilizing
renewable energy resources.
- Promote the interests of consumers through the provision of
an adequate and reliable supply of energy at the lowest
reasonable cost.
- Assure incorporation of national environmental protection
goals in the formulation and implementation of energy programs,
and to advance the goals of restoring, protecting, and enhancing
environmental quality and ensuring public health and
safety."
2. Energy Information Administration's
"Energy Overview" data for 1997 show $567 billion spent nationwide
for energy, while GDP was about $8.5
billion.