History of the Weatherization Assistance Program

The U.S. Department of Energy's (DOE) Weatherization Assistance Program has matured in parallel with the nation's understanding of the profound effect energy has on our lives and economy.

Reduce Imported Oil

The Weatherization Assistance Program was created under Title IV of the Energy Conservation and Production Act of 1976, which was designed to cut heating bills and save imported oil. Although the 1973 oil crisis affected the pocketbooks of most Americans for years, its impact on low-income households was much more dramatic than on other groups. For some families, suddenly ballooning home heating bills threw them into debt and even into poverty.

This period of high energy prices during the 1970s was especially trying for senior citizens living on fixed incomes and Social Security. If the situation deteriorated to where the utilities and heating fuel were cut off, public officials—especially those in the Midwest and Northeast—became motivated to intervene to rescue these people from the cold.

In Maine, where nine of ten homes are heated with oil, state officials and community action agencies worked with homeowners and renters to seal door, window, and other leaks in the building envelope where costly heated air poured out and cold air entered. This activity naturally cut heating bills and saved oil. Soon the idea caught on and became a national program under the U.S. Department of Energy (DOE).

Technical Sophistication Increases over Time

At first, weatherization providers emphasized emergency and temporary measures, including caulking and weather-stripping of windows and doors, and low-cost measures such as covering windows with plastic sheets. As the providers gained experience and understanding of the cost-effectiveness of different energy efficiency measures, they gradually included more and different types of these measures into weatherization. To support this experience, DOE has regularly conducted evaluations that verify savings and cost effectiveness.

By the early 1980s, the emphasis had turned to more permanent and more cost-effective measures, such as installing storm windows and doors and insulating attics. In 1984, DOE began to allow states to fund energy efficiency improvements to existing space heating and water heating systems. In 1985, replacement of defective furnaces and boilers was approved.

In the 1990s, the trend toward more cost-effective measures continued with the development and widespread adoption of advanced home energy audits. This proved to be a key advance for weatherization service providers since it required every home to be comprehensively analyzed before work began in order to select the most cost-effective measures. This custom analysis of every home has become the hallmark of weatherization and ensures each client receives the most cost-effective treatment.

Weatherization professionals use this audit software as they assess the needs of the dwelling. The software helps them calculate where measures are required, and the best approach to take. Advanced audits are now used in 37 states.

By 1996, the Weatherization Program's performance had improved significantly because many of the recommendations of DOE-sponsored research were implemented. In spite of funding reductions, technical advances produced 80% higher energy savings per dwelling than had been achieved in 1989. Increases in energy savings were achieved through improved training, audit tools, and management practices, with little increase in cost.

Among DOE regulations implemented in 1994 were changes to permit the use of cooling efficiency measures such as air conditioner replacements, ventilation equipment, and screening and shading devices. In warm climates, where cooling costs may be higher than heating costs, cooling measures can now be installed. Changes also permitted work on heating systems and mechanical equipment. The requirement that 40% of Program funds be spent on materials was waived in states that adopt approved advanced audits, thus ensuring audit-driven cost-effectiveness tests of investments.

With increased flexibility, better methods for choosing weatherization measures, and advanced diagnostics—such as, for example, blower-door-directed air sealing—the Weatherization Assistance Program now installs more cost-effective improvements tailored to the needs of particular dwellings in their specific climates.

Weatherization Timeline

1973	Oil crisis creates fuel shortages
1976	Congress creates the Weatherization Assistance Program focusing on emergency and temporary measures
1980	Emphasis on more cost-effective and permanent measures
1984	Space and water heating improvements authorized
1985	Furnace and boiler replacements approved
1990	Development and implementation of advanced audits
1994	Cooling measures for warm climates included
2000	Advanced energy audits in use nationwide
2001	Five million homes served