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2010 Orientation for State WAP Directors and Staff
Jean Diggs, Michael Peterson, Eric Bell, Greg Reamy, and Holly Ravesloot
History of WAP, Philosophy, and Program Management Overview
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Nation’s core program for delivering energy efficiency services to low-income homes
Operates in every state, District of Columbia, among Native American tribes, and U.S. Territories
Services delivered to single-family, multi-family, and mobile homes
What is Weatherization?
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“To reduce energy costs for low-income families, particularly for the elderly, people with disabilities, and children, while ensuring their health and safety.”
Program Mission
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Department of EnergyHeadquarters and
Project Management Center
50 State Energy Offices, The District of Columbia,
Native American Tribal Organizations, and U.S. Territories
Low-income Americans
Over 900 Local Agencies
The Team Approach
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Grantee: State, U.S. Territory, or Certain Native America Tribes
Subgrantee: Community Action Agency, Community Action Partnership, Local Action Agency, or Local Unit of Government
T&TA: Training and Technical Assistance
HQ’s T&TA & State T&TA
Appendix A
Program Year/Fiscal Year
440.3 Definitions
ARRA or Recovery Act Funds
Frequently Used Terms
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DOE HQ – U.S. Department of Energy, Headquarters PMC GFO/NETL – Project Management Center Golden Field
Office/National Energy Technology Laboratory ARRA or “Recovery Act” Funds – The American Recovery &
Reinvestment Act of 2009 Program Regulations/Rules/Guidance OMB – Office of Management & Budget IG – Inspector General HHS – U.S. Department of Health & Human Services LIHEAP – Low-Income Home Energy Assistance Program HUD – U.S. Department of Housing & Urban Development DOL – U.S. Department of Labor
Frequently Used Acronyms
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Increase energy efficiency of dwelling units owned or occupied by low-income persons
Reduce total residential energy expenditures
Improve the health and safety of low-income persons, especially the elderly, persons with disabilities, and families with children
10CFR 440, 10CFR 600, DOE Program Notices, other policy documents
Statutory Purpose
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38 million American families are eligible for assistance
Approximately 15 million “good candidate” homes need weatherization
Through 2008 approximately 20% had received weatherization services
The Need For Services
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Over 90% have annual incomes less than $15,000. Of these, two-thirds have less than $8,000
More than 13% have annual incomes less than $2,000 per year
17% of annual income is spent on energy vs. 4% by other households
The average energy expenditure is $1,871 per year (2008)
40% occupied by an elderly person with special needs or a person with disabilities
Characteristics of Households
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First Generation (1975 to 1979)– Response to oil embargo in early 1970’s– Started in Maine– Originally administered by CSA– Used volunteer labor– Installed only low-cost measures– Little or no reporting and accountability
WAP History
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Second Generation (1979 to 1986)– Used volunteer labor under CETA– Installed temporary measures (plastic storm windows, caulk,
door stripping, attic insulation)– Little or no diagnostics– Project Retro-tech as audit tool– Addressed building envelope with heating priority
WAP History (cont.)
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Third Generation (1987 to 1996)– Used professional labor– Addressed both building envelope and mechanical heating
systems– Some diagnostics used– Computerization of audits and other operations– State and national evaluations– Structured training and technical assistance
WAP History (cont.)
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Fourth Generation (1996 to present)– Highly trained crews– Permanent, cost effective measures (audit test)– Rental and health and safety plans– Advanced diagnostic tools in use– Addresses all climates – cooling and heating – Leverage activities at several levels– Coordination with housing programs– Comprehensive national evaluation
WAP History (cont.)
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Where Does the Money Come From? Congressional Appropriations (Energy and Water
Appropriations Subcommittees in the House and Senate) 2009 Allocation & Supplemental - $450 Million 2009 Stimulus - $5 Billion 2010 Allocation - $200 Million
States Transfer Funds from Low-Income Home Energy Assistance Program
Other Sources like Utilities, Landlords, State Appropriations, and Private Grants
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Low-Income Population
Climatic Conditions
Residential Energy Expenditures by Low-Income Households in each State
Revised Formula Impacts States at $233+M
Allocation Formula to States
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Program Eligibility: 200% of poverty, or if the State elects, they may use the LIHEAP criteria or 60% of State median income.
Defining Income: Issued annually by DOE. Consist of Poverty Income Guidelines (PIGS) plus a definition of income (inclusion/exclusion)
HUD/DOE MOU on Public-Assisted Housing eligibility determinations – Final Rule Issued January 25, 2010
Defining Eligibility
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Elderly
Persons with disabilities
Families with children
Households with high energy burden
Households with high residential energy use
Determining Priority Service
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Prepare State Plan in Compliance with 10CFR 440, 10CFR 600, DOE Program Notices, and other State and DOE policy documents
Solicit Input and Comments from Network
Conduct Public Hearing on Plan Contents
Submit State Plan and additional information to DOE based on Funding Opportunity Announcement Requirements
What Does the Grantee Do with the Money?
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Allocation of Funds to Local Agencies Number of homes to be weatherized Audit Techniques and Quality Control Inspection Process Array of Allowable Services Health and Safety Plan Training and Technical Assistance Plan Known Major Purchases of Vehicles and Equipment Monitoring and Evaluation of Local Agencies Other Rules for Operation
What’s in the State Plan?
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States MAY use part of DOE grant to leverage
State must develop a plan
Goal is a “dollar for dollar” return or better
States may use up to 15% of DOE grant
The larger the portion, the more detail required
Reviewed on case-by-case basis
Leveraging
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10CFR Part 440.17
State may use “council or commission”
Must be addressed at hearing on annual plan
PAC’s have “preference” over state councils or commissions
Can be a valuable asset in contributing to and reviewing state plan
Policy Advisory Council
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Limited to 10% (440.18(d))
5% for the State
At least 5% to local agencies
Local agencies with grants at or below $350K (new DOE funds only) may receive up to an additional 5% with State approval
Administrative Costs
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10CFR Part 440.18(d)(e)(2)
Date moved from 1985 to 1994 (PY)
Homes weatherized prior to 1994 did not use advanced audits
Re-Weatherization
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Annual State Plan requires rental plan
Multi-family buildings require 66% eligibility to qualify entire structure
Certain large multi-family buildings can reduce eligibility from 66% to 50%
Must be: large, leveraged resources, have significant energy saving potential
DOE encourages discussion of the rental plan as a part of public hearing
HUD/DOE MOU – Public Law January 25, 2010
Rental Properties
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DOE Weatherization can be a player
State lead agency on disaster relief should develop plan
DOE role must be limited
Disaster Relief
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States may now use DOE funds States need to ensure only weatherization-eligible homes
are served in crisis DOE will waive certain eligibility criteria Those served in crisis must be added to list of those to
receive regular weatherization States need to include/amend State plan Public hearing required Four basic triggers determines a crisis No per unit cost restriction by DOE
Energy Crisis Relief
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American Recovery and Reinvestment Act of 2009 Allocated $5 billion
Raised the income eligibility level from 150% to 200% of the federally established poverty level
Raised the assistance level per dwelling unit from $2,500 to $6,500
Moved the reweatherization date from September 30, 1993 to September 30, 1994
ARRA Impact on Weatherization
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Increased Training and Technical from 10% to up to 20% maximum
Hundreds of thousands of additional homes projected to be weatherized annually
Increased number of eligible homes by raising income level to 200%
Expected level of production for the three-year period for ARRA funding is approximately 600,000 units
ARRA Impact on Weatherization
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DOE to delegate primary compliance to the States All grants must have labor standards language State and local units of government staff are exempt BUT not their contractors Applies to local agency direct hires and contractors Revised Wage Determinations Commercial Rates Grant period – 1, 2, or 3 year Alert service at www.wdpl.gov Oversight & compliance WPN 09-9, 10-4, 10-7
Davis-Bacon & ARRA
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Customer applies for services Energy audit conducted; technicians identify energy-
related problems & Health & Safety issues List of cost-effective measures developed Energy efficiency measures installed Client education Post-work inspection
How Does the Program Work?
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Must meet income eligibility guidelines
May receive priority
Elderly, disabled, family with children, household with high energy burden or high energy usage
Renters eligible, must get approval from property owner
When demand is high, customer may be added to waiting list
Customer Application
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Client education is a critical component
Prolongs life of measures/equipment
Conducted before and after measures are installed
Instructions on equipment operation and maintenance
Tips on energy-saving activities Information on carbon monoxide
and other hazards
Client Education
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Uses audit software, priority list, or other method to estimate potential energy savings
Diagnostic tools used to identify energy problems Identifies energy-related health and safety measures needed
(e.g., carbon monoxide) Ensures that all materials installed, except those to eliminate
health and safety hazards, pass a cost-effectiveness test Mandated by the DOE on each home States may develop their own audit or use the DOE approved
NEAT audit
Energy Audit
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Energy audits Air infiltration reduction using
blower doors Attic and floor insulation Dense-pack wall insulation Duct sealing Domestic hot water system
improvements
Furnace service Furnace replacements New refrigerators Duct system balance and
sealing Energy efficient lighting
retrofits (CFL) Incidental repairs And more………..
Types of WAP Services
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May need tune-up or basic repairs
Can replace hazardous or inoperable furnaces– Due to funding limitations,
leveraged resources often used to replace heating systems
– Un-vented space heaters pose large health and safety threat
Heating System
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Technicians can tune-up or repair cooling systems
Ducts may require sealing and/or balancing
May add fans, ventilation for health and safety
Cooling System
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Blower door test quantifies air leakage & identifies sites
Panel with fan is placed in a doorway to de-pressurize home
Exaggerates leakage so it can be measured and sealed
Air Sealing
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Illustrates heat loss
Guides air sealing and insulation
Helps to educate clients
Quality control for insulation and other measures
Infrared Camera
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Duct system may need sealing and/or balancing
Duct tape should NOT be used – Apply Mastic
Ducts in unconditioned spaces should also be insulated
Duct Sealing
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Leaky ducts can increase costs by 10-30%
While blower door runs, pressure pan placed over air register
Pressure Pan
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Manometer measures pressure created by air leaking into ductwork
Results help locate large leaks Registers near leaks have
higher readings
Duct blower can also be used for more accurate readings and to balance systems
Manometer
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Blown insulation most effective– Holes discreetly cut in walls or ceiling– Insulation is blown into space through a tube
Insulation
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Reduces air infiltration and heat loss– Dense-pack insulation often installed before air sealing,
since it reduces leaks so effectively
Insulation
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Converting incandescent lighting to fluorescent
Replacing refrigerators
Replacing or insulating water heaters
Reducing hot water use
Reducing appliance usage through client education
Electric Base Load Measures
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Compact fluorescent lighting (CFL)– Harps and other hardware– Screw-in vs. pin base
Hard-wired fixtures– Savings may be more permanent– Some state or local codes require
licensed electrician to wire fixtures
Lighting
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Refrigerators Must meter at least 10% of units
replaced 2-hour minimum metering Association of Home Appliance
Manufacturers (AHAM) or alternative databases can provide energy use of existing refrigerators
Units not in database that are metered count toward 10% requirement
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Efficient water heater, low-flow shower heads, and faucet aerators can cut use dramatically
WH tank and pipe insulation, low-flow shower heads, and faucet aerators are allowed as general heat waste
Timers on water heater can also be cost-effective
Replacements allowable
Water Heater
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Primary goal of WAP is “energy efficiency” States may expend funds for the installation of materials to
abate energy-related health and safety hazards Separate line item and not part of the average cost per home
limitation First Rule – “Do no harm” Conduct weatherization in a lead-safe manner Check for carbon monoxide, gas leaks,
moisture/mold, electrical hazards Wear protective clothing, equipment Always ensure customer safety
Health and Safety
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Workers must conduct activities in a safe manner – Lead-Safe Weatherization (LSW) detailed in WPN 02-6, 08-6, and 09-6
Workers must avoid contaminating homes with lead-based paint dust and debris
Workers must use materials, tools and equipment to avoid exposing the customers, themselves, and their families to this hazard
Workers are to assume the presence of lead-based paint in homes built before 1978
WAP funds may not be used to abate, stabilize, or control the lead hazard
EPA’s Lead Renovation, Repair, and Painting Rule / Certified Renovator (CFR 40, Part 745) is in FULL EFFECT April 22, 2010
Lead Paint
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Workers must perform services to avoid mold contamination
WAP funds can not be used to remove mold and other related biological substances
If necessary, services may be delayed until the existing mold problem can be eliminated
Customer must be notified upon discovery of mold condition
Mold and Moisture
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One of the most common health and safety concerns
Caused by incomplete combustion in household appliances
Gas appliances that exceed acceptable levels for CO must be addressed
All homes should have a carbon monoxide detector installed in areas containing a gas appliance
All customers should receive information about CO
Carbon Monoxide
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Many housing problems beyond the scope of WAP
Walking away does not mean that assistance will never be available
Work is postponed until the problems can be resolved
Walk Away Standards
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Every home must receive a quality control inspection for workmanship and appropriateness
Blower door tests are conducted to ensure proper air sealing– Identifies any remaining air leaks – Indicates need for ventilation
Insulation and other measures checked for quality and completeness
Post-Work Inspection
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We have a great story to tell to anyone and everyone who will listen
Before ARRA, many policymakers may have never heard of the WAP – now, they need to hear “the rest of the story”
If they’re not aware of the work being done, they won’t fight to keep the program intact
Public InformationThe Power of Telling Your Story
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Organize a Public Information Campaign
Reach out to policymakers and the press
Tell the story about high energy prices and high energy burden
Place success stories about families and individuals
Keep educating your partners and potential partners
Public Information
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October 30th is Weatherization Day– Many states celebrate– Use outreach tools to get best coverage for least effort
Policymakers respond to “Days” – Allows them meaningful time with the community– Allows them to get to the next issue
Weatherization Day
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Average annual energy savings = $350 per home Returns $1.67 in energy-related benefits per $1 invested Returns $2.73 in non-energy benefits per $1 invested Avoids 1.79 tons of carbon dioxide emissions for every home
weatherized Creates 52 jobs for every $1 million of funding Over 6.4 million households weatherized Average reduction in natural gas use – 32%
WAP Results
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Improves health and safety - reducing carbon monoxide emissions and eliminating fire hazards
Lessens the excessive financial burden of families most in need – reducing the difficult choice between food and fuel
Helps revitalize neighborhoods and communities across the country
Used as catalyst to attract investments from utilities, other federal agencies, state governments, and private sources
Outcomes: Quality of Life
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Reduces the export of local energy dollars and keeps more money in the community
Decreases electricity generation and resulting pollution; thus improving local air quality reducing adverse health effects
Avoids residential and power-plant emissions of carbon dioxide, a leading greenhouse gas
Weatherization Impact
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“…My children remember waking up cold. Today they are comfortable, cozy, and warm…Thanks to the Weatherization Program you have
made a difference in our lives…you probably saved our lives.” Recipient of Weatherization services in Pennsylvania
Personal Results
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For FamiliesFor CommunitiesFor the Nation
Weatherization Works
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Weatherization Assistance Program Website:https://www.eere.energy.gov/weatherization/
PMC Website:https://www.eere-pmc.energy.gov/
WAPTAC Website:http://www.waptac.org
Weatherization Plus Website:http://www.weatherizationplus.org
Oak Ridge National Lab Website:http://weatherization.ornl.gov
Websites