A heating, ventilation, and air conditioning (HVAC) system includes a fan with a variable fan capacity; a coil with a variable discharge air temperature; and a controller configured to control the variable fan capacity of the fan and the variable discharge air temperature of the coil. The controller is configured to vary the variable capacity of the fan to maintain a space temperature at a space temperature setpoint while maintaining the variable discharge air temperature of the coil at a low discharge air temperature limit. The controller is configured to vary the variable discharge air temperature between a high discharge air temperature limit and the low discharge air temperature limit to maintain the space temperature at the space temperature setpoint while maintaining the variable capacity of the fan at a low fan capacity setting.