California Energy Commission DOCKETED 12-AAER-2C TN 71765 Toilets & Urinals WaterJUL 29 2013 Efficiency Codes and Standards Enhancement (CASE) Initiative For PY 2013: Title 20 Standards Development Analysis of Standards Proposal for Toilets & Urinals Water Efficiency Docket #12-AAER-2C CASE Report July 29, 2013 Prepared for: PACIFIC GAS & ELECTRIC SOUTHERN CALIFORNIA SAN DIEGO GAS AND SOUTHERN CALIFORNIA COMPANY EDISON ELECTRIC GAS COMPANY Prepared by: Heidi Hauenstein, ENERGY SOLUTIONS NATURAL RESOURCES Tracy Quinn and Ed Osann, NATURAL RESOURCES DEFENSE COUNCIL DEFENSE COUNCIL This report was prepared by the California Statewide Utility Codes and Standards Program and funded by the California utility customers under the auspices of the California Public Utilities Commission. Copyright 2013 Pacific Gas and Electric Company, Southern California Edison, Southern California Gas, San Diego Gas & Electric. All rights reserved, except that this document may be used, copied, and distributed without modification. Neither PG&E, SCE, SoCalGas, SDG&E, nor any of its employees makes any warranty, express of implied; or assumes any legal liability or responsibility for the accuracy, completeness or usefulness of any data, information, method, product, policy or process disclosed in this document; or represents that its use will not infringe any privately-owned rights including, but not limited to, patents, trademarks or copyrights. Acknowledgements The CASE Team would like to thank Gary Klein (Affiliated International Management, LLC), John Koeller (Koeller & Company), and Michael Read (Oak Lodge Sanitary District) for their contributions in the development of this standards proposal. Table of Contents 1 EXECUTIVE SUMMARY ..................................................................................................... 1 2 BACKGROUND .................................................................................................................. 3 2.1 Regulatory Background ............................................................................................ 3 2.1.1 Federal Regulatory Background .......................................................................................... 3 2.1.2 California Regulatory Background ...................................................................................... 3 2.2 Importance of Water Efficiency in California .................................................................. 4 2.3 Embedded Energy in California’s Potable Water .............................................................. 5 3 PRODUCT DESCRIPTION .................................................................................................. 6 3.1 Toilets ................................................................................................................. 6 3.1.1 Tank-type Toilets .......................................................................................................... 7 3.1.2 Valve-type (Flushometer Valve) Toilets ................................................................................. 9 3.1.3 Dual-Flush Toilets ......................................................................................................... 9 3.2 Urinals ............................................................................................................... 10 3.3 Flushing Devices (Valves) ........................................................................................ 11 3.3.1 Dual-Flush Valves ........................................................................................................ 12 3.3.2 Automatic Flushing Devices and Phantom Flushes .................................................................. 12 4 MANUFACTURING AND MARKET CHANNEL OVERVIEW ............................................ 13 5 ENERGY USAGE ............................................................................................................... 13 5.1 Test Methods ....................................................................................................... 13 5.1.1 Current Test Methods .................................................................................................... 13 5.1.2 Proposed Test Methods ................................................................................................... 16 5.2 Water and Energy Use per Unit for Non-Qualifying Products ........................................... 16 5.2.1 Residential Toilets ....................................................................................................... 17 5.2.2 Commercial Toilets ....................................................................................................... 18 5.2.3 Urinals ..................................................................................................................... 18 5.3 Efficiency Measures ............................................................................................... 18 5.4 Water & Energy Use per Unit for Qualifying Products .................................................... 18 5.4.1 Residential Toilets ....................................................................................................... 19 5.4.2 Commercial Toilets ....................................................................................................... 19 5.4.3 Urinals ..................................................................................................................... 19 6 MARKET SATURATION & SALES .................................................................................... 20 6.1 Current Market Situation ........................................................................................ 20 6.1.1 Total Stock and Shipments ............................................................................................. 20 6.1.2 Market Share of High Efficiency Options ............................................................................ 22 6.2 Future Market Adoption of High Efficiency Options ....................................................... 25 7 SAVINGS POTENTIAL ...................................................................................................... 27 7.1 Statewide California Energy Savings ........................................................................... 27 7.2 Other Benefits and Penalties .................................................................................... 29 7.1 State or Local Government Costs and Savings ............................................................... 29 8 ECONOMIC ANALYSIS .................................................................................................... 29 8.1 Incremental Cost .................................................................................................. 29 8.2 Design Life .......................................................................................................... 32 8.3 Lifecycle Cost / Net Benefit .................................................................................... 32 9 ACCEPTANCE ISSUES ....................................................................................................... 33 9.1 Infrastructure Issues ............................................................................................... 33 9.1.1 Potential Barriers and Compliance Issues ............................................................................. 33 9.1.2 Voluntary Programs ...................................................................................................... 37 9.2 Existing Standards and Standards under Development ..................................................... 38 9.2.1 Federal Appliance Standards ........................................................................................... 38 9.2.2 California Standards .................................................................................................... 38 9.2.3 Local Standards ........................................................................................................... 39 9.2.4 Other Standards .......................................................................................................... 40 9.3 Stakeholder Positions ............................................................................................. 40 10 ENVIRONMENTAL IMPACTS .......................................................................................... 41 10.1 Hazardous Materials .............................................................................................. 41 10.2 Air Quality .......................................................................................................... 41 10.3 Greenhouse Gases ................................................................................................. 41 11 RECOMMENDATIONS ..................................................................................................... 42 11.1 Recommended Standards Proposal ............................................................................. 42 11.2 Proposed Changes to the Title 20 Code Language .......................................................... 43 11.3 Implementation Plan .............................................................................................. 48 12 REFERENCES .................................................................................................................... 49 APPENDIX A: EMBEDDED ENERGY IN WATER ................................................................... A-1 APPENDIX B: COST ANALYSIS ASSUMPTIONS ...................................................................