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Submitted URL: http://trust.ul.com/MTE3LVpMUi0zOTkAAAGLybxErt3cDDw3fZbkGNVARekwVs2HkmbOaefwVm0WtZNASfEn19aobgp-xonqE-IKY0xHuJg=
Effective URL: https://www.federalregister.gov/documents/2023/05/04/2023-08997/safety-standard-for-clothing-storage-units?mkt_tok=MTE3LVpMUi0zO...
Submission: On May 18 via manual from US — Scanned from DE
Effective URL: https://www.federalregister.gov/documents/2023/05/04/2023-08997/safety-standard-for-clothing-storage-units?mkt_tok=MTE3LVpMUi0zO...
Submission: On May 18 via manual from US — Scanned from DE
Form analysis 7 forms found in the DOM
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</form>GET /document_issues/search
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SAFETY STANDARD FOR CLOTHING STORAGE UNITS
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DOCUMENT DETAILS
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Printed version: PDF Publication Date: 05/04/2023 Agency: Consumer Product
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2023, unless the Commission receives a significant adverse comment by June 5,
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date. Effective Date: 09/01/2023 Comments Close: 06/05/2023 Document Type: Rule
Document Citation: 88 FR 28403 Page: 28403-28408 (6 pages) CFR: 16 CFR 1261
Agency/Docket Number: Docket No. CPSC-2023-0015 Document Number: 2023-08997
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ENHANCED CONTENT
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Register document.
Safety Standard for Clothing Storage Units
CPSC-2023-0015
Supporting Documents:
1. Conflicting Furniture Standards Leave Companies in a Quandary
2. Trumka-Submission for the Record on Implementation of STURDY _ FINAL
ENHANCED CONTENT
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* AGENCY:
* ACTION:
* SUMMARY:
* DATES:
* ADDRESSES:
* FOR FURTHER INFORMATION CONTACT:
* SUPPLEMENTARY INFORMATION:
* I. Background and Statutory Authority
* II. Analysis of ASTM F2057–23
* A. Consultation With Stakeholders
* B. Staff Assessment of the Voluntary Standard
* C. Commission Determination
* III. Incorporation by Reference
* IV. Testing and Certification
* V. Direct Final Rule Process
* VI. Regulatory Flexibility Act
* VII. Paperwork Reduction Act
* VIII. Environmental Considerations
* IX. Preemption
* X. Effective Date
* XI. Congressional Review Act
* List of Subjects in 16 CFR Part 1261
* PART 1261—SAFETY STANDARD FOR CLOTHING STORAGE UNITS
* Footnotes
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Docket Title Document ID Comments Safety Standard for Clothing Storage
Units CPSC-2023-0015-0004 2
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Start Preamble Start Printed Page 28403
AGENCY:
Consumer Product Safety Commission.
ACTION:
Direct final rule.
SUMMARY:
In November 2022, the U.S. Consumer Product Safety Commission published a
consumer product safety standard for clothing storage units (CSUs) to protect
children from tip-over-related death or injury, with an effective date of May
24, 2023. In December 2022, the President signed into law the STURDY
legislation, which requires CPSC to either develop and promulgate a new consumer
product safety standard for CSUs that meets certain requirements specified in
STURDY or determine that a voluntary standard exists that meets STURDY's
requirements. If the Commission determines that a timely issued voluntary
standard satisfies STURDY's criteria, then STURDY requires the Commission to
promulgate a final consumer product safety standard that adopts the applicable
performance requirements of the voluntary standard, to supersede any existing
CSU rule. On April 19, 2023, the Commission determined that ASTM F2057–23,
Standard Safety Specification for Clothing Storage Units, is a voluntary
standard that meets the requirements of STURDY. In light of that determination,
this direct final rule adopts the requirements of ASTM F2057–23 as required by
STURDY. Because STURDY provides that adoption of the ASTM standard will
supersede CPSC's current rule, the current CSU rule, which was added in a final
rule published on November 25, 2022, is stayed and will not take effect.
DATES:
Effective date: The rule is effective September 1, 2023, unless the Commission
receives a significant adverse comment by June 5, 2023. If the Commission
receives such a comment, it will publish a document in the Federal Register ,
withdrawing this direct final rule before its effective date.
Incorporation by reference: The incorporation by reference of the publication
listed in this rule is approved by the Director of the Federal Register as of
September 1, 2023.
Stay and delay of effective date: The CSU rule promulgated as 16 CFR part 1261
in the final rule published at 87 FR 72598 on November 25, 2022, is stayed from
May 4, 2023, through September 1, 2023, and the effective date of amendatory
instruction 3 (adding 16 CFR part 1261) at 87 FR 72598 is delayed from May 24,
2023, to September 1, 2023.
ADDRESSES:
You can submit comments, identified by Docket No. CPSC–2023–0015, by any of the
following methods:
Electronic Submissions: Submit electronic comments to the Federal eRulemaking
Portal at: https://www.regulations.gov. Follow the instructions for submitting
comments. CPSC typically does not accept comments submitted by electronic mail
(email), except as described below. CPSC encourages you to submit electronic
comments by using the Federal eRulemaking Portal.
Mail/Hand Delivery/Courier/Confidential Written Submissions: Submit comments by
mail, hand delivery, or courier to: Office of the Secretary, Consumer Product
Safety Commission, 4330 East West Highway, Bethesda, MD 20814; telephone: (301)
504–7479. If you wish to submit confidential business information, trade secret
information, or other sensitive or protected information that you do not want to
be available to the public, you may submit such comments by mail, hand delivery,
or courier, or you may email them to: cpsc-os@cpsc.gov.
Instructions: All submissions must include the agency name and docket number.
CPSC may post all comments without change, including any personal identifiers,
contact information, or other personal information provided, to:
https://www.regulations.gov. Do not submit through this website: confidential
business information, trade secret information, or other sensitive or protected
information that you do not want to be available to the public. If you wish to
submit such information, please submit it according to the instructions for
mail/hand delivery/courier/confidential written submissions.
Docket: For access to the docket to read background documents or comments
received, go to: https://www.regulations.gov, and insert the docket number,
CPSC–2023–0015, into the “Search” box, and follow the prompts.
Start Further Info
FOR FURTHER INFORMATION CONTACT:
Will Cusey, Small Business Ombudsman, U.S. Consumer Product Safety Commission,
4330 East West Highway, Bethesda, MD 20814; telephone (301) 504–7945 or (888)
531–9070; email: sbo@cpsc.gov.
End Further Info End Preamble Start Supplemental Information
SUPPLEMENTARY INFORMATION:
I. BACKGROUND AND STATUTORY AUTHORITY
On November 25, 2022, the Commission published a consumer product safety
standard to protect children from tip-over-related death or injury from CSUs
(the current CSU rule), with an effective date of May 24, 2023. 87 FR 72598.
On December 29, 2022, President Biden signed STURDY into law. Public Law
117–328, 136 Stat. 4459, Div. BB, tit. II, sec. 201. STURDY provides that the
Commission must assess whether “a voluntary standard exists that meets” the
performance and warning requirements in the statute. STURDY sec. 201(d)(1).
Specifically, the standard must protect children from tip-over-related death or
injury with “tests that simulate the weight of children up to 60 pounds,” “tests
that simulate real-world use and account for impacts on clothing storage unit
stability that may result from placement on carpeted surfaces, drawers with
items in them, multiple open drawers, and dynamic force,” “testing of all
clothing storage units, including those 27 inches and above in height,” and
warnings. STURDY sec. 201(c)(2).
If the Commission determines that a voluntary standard exists that was published
not later than 60 days after STURDY's enactment, was developed by ASTM
International or another similar voluntary standards organization, and meets
STURDY's requirements for protecting children from tip-over-related death or
injury, then the Commission must, within 90 days of its determination,
“promulgate a final consumer product safety standard” that adopts the voluntary
standard's relevant performance requirements. STURDY sec. 201(d). Those
mandatory requirements “will supersede any other existing standard for clothing
storage units to protect children from tip-over related death or injury.” STURDY
sec. 201(d)(1).
If, however, no mandatory safety standard has been established for CSUs based on
a voluntary standard, then by December 29, 2023, the Commission must “promulgate
a final consumer product safety standard for clothing storage units to protect
children from tip-over-related death or injury.” STURDY secs. 201(c)(1) and
(c)(1)(B).
A consumer product safety standard promulgated under STURDY “shall be treated as
a consumer product safety rule promulgated under section 9 of the Consumer
Product Safety Act (15 U.S.C. 2058).” STURDY secs. 201(c)(4), (d)(1).[1]
Start Printed Page 28404
II. ANALYSIS OF ASTM F2057–23
On February 1, 2023, ASTM International approved a revised version of its
Standard Safety Specification for Clothing Storage Units, ASTM F2057–23.
A. CONSULTATION WITH STAKEHOLDERS
Over more than five years, CPSC staff has collaborated extensively and received
comments from manufacturers and retailers of CSUs, consumer groups, independent
product safety experts, and other stakeholders, both within the ASTM
standards-setting process and during CPSC's notice-and-comment rulemaking. This
consultation continued through the development and balloting of ASTM F2057–23
and after the adoption of STURDY, including a broadly attended set of meetings
hosted at CPSC's laboratory in January 2023.
Following ASTM's adoption of ASTM F2057–23, the Commission received
recommendations that it determine that ASTM F2057–23 meets the requirements of
STURDY. On February 7, 2023, Parents Against Tip-overs (PAT) and the American
Home Furnishings Alliance (AHFA) jointly sent a letter to the Commission, in
which they made a “request for prompt agency action to review and consider
F2057–23 as a mandatory product safety standard for clothing storage furniture.”
Attachment A to the Staff Briefing Package.[2] PAT and AHFA asserted that the
updated standard “meets the specific requirements of the Act” because:
* It includes performance tests that simulate “real-world” use of clothing
storage furniture;
* It includes performance tests that account for the impact of carpeted
flooring on CSU stability, as well as the impact of “loaded” drawers,
multiple open drawers, and the dynamic force of a child climbing or playing
on the unit; and,
* The performance tests simulate the weight of children up to 60 pounds and
apply to all clothing storage units 27 inches and above in height.
PAT and AHFA also cited both STURDY and ASTM F2057–23 as “the result of an
extraordinary collaborative effort between parents, industry, consumer advocates
and child safety experts,” that “achieved rare bipartisan backing in Congress.”
On February 20, 2023, PAT submitted a second letter to urge “acceptance of ASTM
F2057–23 as the final consumer product safety standard for CSUs, according to
the guidance provided under The STURDY Act.” Attachment B to the Staff Briefing
Package. PAT stated in that letter that “[t]he tip-over problem has gone
unresolved for far too long, and adopting the new ASTM standard is the solution
that will result in much more stable CSUs” than have historically been sold, and
thereby “save lives.” In addition, PAT reiterated its assertion that ASTM
F2057–23 was designed to and does meet the requirements of STURDY.
On March 3, 2023, Donald Mays, an independent product safety expert, sent the
Commission an assessment of the ASTM standard. Mr. Mays stated that he analyzed
the ASTM standard and the requirements of STURDY and concluded that the
Commission should “adopt ASTM F2057–23 and incorporate that standard by
reference in their rule.” Attachment C to the Staff Briefing Package. On March
6, 2023, Kids in Danger and Consumer Reports jointly sent a letter to the
Commission in which they similarly “urge[d] the Commission to promulgate a final
consumer product safety standard under the STURDY Act . . . that adopts [ASTM
F2057–23's] performance requirements as mandatory.” Attachment D to the Staff
Briefing Package. Also on March 6, 2023, the Home Furnishings Association (HFA),
which stated that it represents 1,550 members and more than 8,000 storefronts
across the country, wrote to the Commission urging adoption of ASTM F2057–23.
HFA stated, “We strongly believe that the revised ASTM 2057–2023 safety standard
for clothing storage units meets the criteria outlined in the STURDY Act and
must be adopted by the CPSC as the federal Safety Standard. It achieves
everyone's goals of protecting children.” Attachment E to the Staff Briefing
Package.
B. STAFF ASSESSMENT OF THE VOLUNTARY STANDARD
Staff assessed the voluntary standard in a Staff Briefing Package. Staff noted
that STURDY defines a clothing storage unit as “any free-standing furniture item
manufactured in the United States or imported for use in the United States that
is intended for the storage of clothing, typical of bedroom furniture.” STURDY
sec. 201(a). STURDY also provides, however, that CPSC “shall specify the types
of furniture items within the scope of subsection (a) as part of a standard
promulgated under [STURDY] based on tip-over data as reasonably necessary to
protect children up to 72 months of age.” STURDY sec. 201(b). For a standard to
satisfy the requirements of STURDY, all types of clothing storage units
specified by CPSC, “including those 27 inches and above in height,” must be
tested. STURDY sec. 201(c)(2)(C).
ASTM F2057–23 applies to “free-standing clothing storage units, including but
not limited to chests, chests of drawers, drawer chests, armoires,
[chifforobes], bureaus, door chests, and dressers, which are 27 in. (686 mm) or
greater in height, 30 lb (13.6 kg) or greater in mass, and contain 3.2 ft 3
(90.6 dm3 ) or greater of enclosed storage volume.” ASTM F2057–23 sec. 1.1. The
standard “does not cover shelving units, such as bookcases or entertainment
furniture, office furniture, dining room furniture, jewelry armoires, underbed
drawer storage units, occasional/accent furniture not intended for bedroom use,
laundry storage/sorting units, or built-in units intended to be permanently
attached to the building, nor does it cover `Clothing Storage Chests' as defined
in Consumer Safety Specification F2598.” ASTM F2057–23 sec. 1.2.
Although the ASTM voluntary standard does not include all CSUs as defined in
section 201(a) of STURDY, staff noted that STURDY contemplates that not all
“clothing storage units” would be subject to a mandatory standard and gives CPSC
the authority to limit “the types of furniture items” that are within the scope
of the rule based on tip-over data. STURDY sec. 201(b). Indeed, STURDY specifies
that covered CSUs are limited to those “intended for the storage of clothing,
typical of bedroom furniture,” which staff noted could further support a finding
that the ASTM standard's exclusion of types of furniture that are not
free-standing, not intended for clothing storage, and/or not bedroom Start
Printed Page 28405 furniture meets the requirements of STURDY. STURDY sec.
201(a).
The ASTM standard excludes units weighing less than 30 pounds empty. The
Commission has previously noted an absence of known incidents causing death or
serious injury for CSUs that weigh less than 30 pounds empty (see 87 FR 72628,
Table 1). Therefore, staff assessed that based on known tip-over data, the
Commission could find that testing units of less than 30 pounds is not
“reasonably necessary” to protect children from injury or death. STURDY sec.
201(b).
Similarly, staff noted that while there are data on nonfatal incidents
associated with tip-overs of CSU having a storage volume less than 3.2 cubic
feet, ASTM based this volume on the lowest known volume of a fatal
incident-involved CSU with a height of 27 inches or above. Staff therefore
concluded that the Commission could find that, based on tip-over data, testing
units having a storage volume less than 3.2 cubic feet is not “reasonably
necessary” to protect children from injury or death. STURDY sec. 201(b).
STURDY section 201(d)(2) establishes a checklist of requirements that a
voluntary standard must meet to become a mandatory standard. The first
requirement is that the standard “protects children up to 72 months of age from
tip-over-related death or injury.” STURDY sec. 201(d)(2)(A). Section 7.1 of the
ASTM standard states: “The test methods in this safety specification are
intended to simulate the reaction of a clothing storage unit on carpet, loaded
drawers, multiple open drawers, and a dynamic force from possible interaction of
a child up to 72 months.” Staff therefore assessed that the Commission could
conclude that the standard “protects children up to 72 months of age from
tip-over-related death or injury,” as further described below.
Section 201(d)(2)(B) of STURDY requires that a voluntary standard must meet
requirements described in subsection (c)(2). Subsection (c)(2) in turn requires:
* Tests that simulate the weight of children up to 60 pounds;
* Objective, repeatable, reproducible, and measurable tests, or series of
tests, that simulate real-world use and account for impacts on clothing
storage unit stability that may result from placement on carpeted surfaces,
drawers with items in them, multiple open drawers, and dynamic force;
* Testing of all clothing storage units as specified by the Commission,
including those 27 inches and above in height; and
* Warning requirements based on ASTM F2057–19, or its successor at the time of
STURDY's enactment, provided that the Commission may strengthen the warning
requirements of ASTM F2057–19 or its successor if reasonably necessary to
protect children from tip-over-related death or injury.
Staff assessed that the Commission could find that the ASTM standard includes
tests that simulate the weight of children up to 60 pounds. Staff noted that
STURDY appears to use 72 months and 60 pounds interchangeably; this, and the
structure of STURDY, suggest that Congress considered 60 pounds a representative
weight for a 72-month-old child. According to the 2000 Centers for Disease
Control Clinical Growth Charts, which ASTM members used as a reference for ASTM
F2057–23, 60 pounds is the approximate weight of a 95th percentile 72-month-old
child.
STURDY requires tests that simulate the weight of children up to 60 pounds, and
ASTM F2057–23 has a set of three stability tests to simulate the capability of a
child weighing up to 60 pounds interacting with a CSU. The first stability test,
Section 9.2.1 Simulated Clothing Load, loads drawers with simulated clothing
loads. The CSU must not tip over with all doors and extendible elements (movable
load-bearing storage components including, but not limited to, drawers and
pullout shelves) open. Staff assessed that it would be reasonable to conclude
that a child weighing up to 60 pounds would be able to open loaded drawers and
that the Commission could conclude that this is a test that simulates the weight
of children up to 60 pounds.
The second stability test, Section 9.2.2 Simulated Horizontal Dynamic Force,
applies a 10-pound horizontal force over a period of at least 5 seconds at a
“hand-hold” not to exceed a 56-inch height, and then holds the force for at
least 10 seconds. The Staff Briefing Package cites a study that found the elbow
pull strength of children 2 to 5 years old to be in the range of 6.14 to 26.0
pounds. Staff assessed that the Commission could conclude that this second
stability test simulates the pull force of children up to 60 pounds.
The third stability test, Section 9.2.3 Simulating a Reaction on Carpet with
Child Weight, uses 60 pounds of weight placed on the edge of an open drawer or
pull-out shelf, while the CSU is tilted forward using a 0.43 inch test block to
simulate placement on a carpeted surface, with all doors and extendible elements
open. Based on the requirements of STURDY, staff assessed that the Commission
could conclude that this is a test that simulates the static weight of children
up to 60 pounds.
STURDY also requires “objective, repeatable, reproducible, and measurable tests
or series of tests that simulate real-world use and account for impacts on
clothing storage unit stability that may result from placement on carpeted
surfaces, drawers with items in them, multiple open drawers, and dynamic force.”
STURDY sec. 201(c)(2)(B). Staff noted that the ASTM F2057–23 test methods
describe the steps to take, specifications for test apparatus, load, dimension,
and tolerances for dimensions and loads, all of which are consistent with
accepted practices. Because all of these test methods are specified in the ASTM
standard, staff assessed that the Commission could conclude that the tests in
ASTM F2057–23 are objective, repeatable, reproducible, and measurable.
Staff assessed that the ASTM stability tests utilize tests or a series of tests
that represent real-world conditions. For example, section 9.2.1 Simulated
Clothing Load tests the CSU with multiple open and loaded drawers on a flat
surface. Section 9.2.3 of ASTM 2057–23, described above, is a stability test
that simulates placement on a carpeted surface with open drawers. The use of a
0.43-inch thick test block (as specified in section 8.2.3) is consistent with
the carpet simulation in CPSC's final CSU rule. See 87 FR 72636. Staff assessed
that the Commission could, therefore, conclude that ASTM F2057–23 includes a
stability test that simulates interaction with a CSU on a carpeted surface,
which is a real-world condition.
Section 9.2.1 of the ASTM standard, Simulated Clothing Load, is a test conducted
on a hard, level, and flat test surface with extendible elements and doors open
and, if 50 percent or more of the storage volume is extended, the unit is to be
filled with a “simulated clothing load.” The fill weight in extendible elements
is calculated using a density of 8.5 pounds per cubic foot of volume, which is
the same density used by the Commission in its November 2022 rule. See87 FR
72610–11. All extendible elements are opened and must remain open for 30 seconds
without tip over. Based on this test, staff assessed that the Commission could
conclude that ASTM F2057–23 includes a test that simulates drawers with items in
them and multiple open drawers, which is another scenario reflecting real-world
use.
STURDY section 201(c)(2)(D) requires warnings based on ASTM F2057–19 (the
predecessor standard to ASTM F2057– Start Printed Page 28406 23). Many of the
warning requirements in section 10 of ASTM F2057–23, Marking and Labeling, are
substantively identical to those in the 2019 version. Product safety expert
Donald Mays has opined that the ASTM F2057–23 warning requirements differ from
the F2057–19 requirements by being “more specific,” adding requirements for
conspicuous placement, and warning against defeating drawer interlocks. Mays
Letter at 4. Therefore, staff assessed that the Commission could conclude that
ASTM F2057–23 meets the warning requirements of STURDY.
Lastly, under STURDY section 201(d)(2)(C) and (D), a voluntary standard must be
“developed by ASTM International” or another voluntary standards organization
that the Commission deems appropriate, and such standard must be published not
later than 60 days after STURDY's enactment, i.e., by February 27, 2023. STURDY
sec. 201(d)(2)(C) and (D). ASTM F2057–23, which ASTM International published on
February 6, 2023, satisfies these requirements.
C. COMMISSION DETERMINATION
Based on the Commission's assessment of ASTM F2057–23 and for the reasons stated
in the Staff Briefing Package, on April 19, 2023, the Commission determined that
ASTM F2057–23 meets the requirements of STURDY. Therefore, as required by
STURDY, this direct final rule adopts the requirements of that voluntary
standard as a consumer product safety standard. Because STURDY provides that
adoption of the voluntary standard “will supersede any other existing standard
for clothing storage units,” the current CSU rule would only be in effect for
about two months before being superseded by this new standard. Therefore, the
Commission finds good cause to stay the current CSU rule from May 4, 2023,
through September 1, 2023, so that it will not take effect.
The Commission's determination to adopt ASTM F2057–23 is based on the specific
provisions of that standard and the unique history of its adoption in
conjunction with the STURDY legislation. The Commission does not anticipate
approving through the standard-revision process of STURDY section 201(e) any
changes to ASTM F2057–23 that would reduce the level of protection for children
up to 72 months of age from tip-over-related death or injury. After December
2027, moreover, STURDY allows the Commission “to modify the requirements of [an
adopted voluntary] standard or to include additional provisions if the
Commission makes a determination that such modifications or additions are
reasonably necessary to protect children from tip-over-related death or injury.”
STURDY sec. 201(f)(1).
III. INCORPORATION BY REFERENCE
In accordance with regulations of the Office of the Federal Register (OFR), 1
CFR part 51, section II. of this preamble summarizes ASTM F2057–23. The standard
is reasonably available to interested parties in several ways. Until the direct
final rule takes effect, a read-only copy is available for viewing on ASTM's
website at: https://www.astm.org/ CPSC.htm. Once the rule takes effect, a
read-only copy of the standard will be available for viewing on the ASTM website
at: https://www.astm.org/ READINGLIBRARY. Additionally, interested parties can
purchase a copy of ASTM F2057–23 from ASTM International, 100 Barr Harbor Drive,
P.O. Box C700, West Conshohocken, PA 19428–2959 USA; phone: 610–832–9585;
www.astm.org. Interested parties also can schedule an appointment to inspect a
copy of the standard at CPSC's Office of the Secretary, U.S. Consumer Product
Safety Commission, 4330 East West Highway, Bethesda, MD 20814, telephone:
301–504–7479; email: cpsc-os@cpsc.gov.
IV. TESTING AND CERTIFICATION
Section 14(a) of the Consumer Product Safety Act (CPSA) includes requirements
for certifying that children's products and non-children's products comply with
applicable mandatory standards. 15 U.S.C. 2063(a). Section 14(a)(1) addresses
required certifications for non-children's products, and sections 14(a)(2) and
(a)(3) address certification requirements specific to children's products.
A “children's product” is a consumer product “designed or intended primarily for
children 12 years of age or younger.” Id. 2052(a)(2). The following factors are
relevant when determining whether a product is a children's product:
* Manufacturer statements about the intended use of the product, including a
label on the product if such statement is reasonable;
* Whether the product is represented in its packaging, display, promotion, or
advertising as appropriate for use by children 12 years of age or younger;
* Whether the product is commonly recognized by consumers as being intended for
use by a child 12 years of age or younger; and
• The Age Determination Guidelines issued by CPSC staff in September 2002,
available at https://www.cpsc.gov/ content/ 2002-Age-Determination-Guidelines,
and any successor to such guidelines.
Id. “For use by children 12 years and younger” generally means that children
will interact physically with the product based on reasonably foreseeable use.
16 CFR 1200.2(a)(2). Children's products may be decorated or embellished with a
children's theme, be sized for children, or be marketed to appeal primarily to
children. Id. § 1200.2(d)(1).
This rule requires CSUs that are not children's products to meet the
certification requirements under section 14(a)(1) of the CPSA and requires CSUs
that are children's products to meet the certification requirements under
section 14(a)(2) and (a)(3) of the CPSA. The Commission's requirements for
certificates of compliance are codified at 16 CFR part 1110. Section 14(a)(1) of
the CPSA requires every manufacturer (which includes importers) of a
non-children's product that is subject to a consumer product safety rule under
the CPSA or a similar rule, ban, standard, or regulation under any other law
enforced by the Commission to certify that the product complies with all
applicable CPSC-enforced requirements. 15 U.S.C. 2063(a)(1). Section 14(a)(2) of
the CPSA requires the manufacturer or private labeler of a children's product
that is subject to a children's product safety rule to certify that, based on a
third-party conformity assessment body's testing, the product complies with the
applicable children's product safety rule. Id. 2063(a)(2). Section 14(a) also
requires the Commission to publish a notice of requirements (NOR) for a
third-party conformity assessment body ( i.e., testing laboratory) to obtain
accreditation to assess conformity with a children's product safety rule. Id.
2063(a)(3)(A). Because some CSUs are children's products, the rule is a
children's product safety rule as applied to those products.
The Commission published a final rule, codified at 16 CFR part 1112,
Requirements Pertaining to Third Party Conformity Assessment Bodies, which
established requirements and criteria concerning testing laboratories. Part 1112
includes procedures for CPSC to accept a testing laboratory's accreditation and
lists the children's product safety rules for which CPSC has published NORs. The
stability standard for CSUs is on the list of children's product safety rules
for which CPSC has issued an NOR. 87 FR 72598 (Nov. 25, 2022); 16 CFR
1112.15(b)(54). Testing laboratories that apply for CPSC acceptance to test CSUs
that are children's products for compliance with the rule must meet the
requirements in Start Printed Page 28407 part 1112. When a laboratory meets the
requirements of a CPSC-accepted third party conformity assessment body, the
laboratory can apply to CPSC to include 16 CFR part 1261, Safety Standard for
Clothing Storage Units, in the laboratory's scope of accreditation listed on the
CPSC website at www.cpsc.gov/ labsearch.
The requirements of ASTM F2057–23 are sufficiently similar to the current CSU
rule that firms approved to test to the current rule can also test to ASTM
F2057–23. Therefore, the existing NOR will remain in place. CPSC-accepted third
party labs are expected to update the scope of their accreditations to reflect
the revised standard in the normal course of renewing their accreditations.
V. DIRECT FINAL RULE PROCESS
The Commission is issuing this rule as a direct final rule. Although the
Administrative Procedure Act (APA), 5 U.S.C. 551–559, generally requires
agencies to provide notice of a rule and an opportunity for interested parties
to comment on it, section 553 of the APA provides an exception when the agency
“for good cause finds” that notice and comment are “impracticable, unnecessary,
or contrary to the public interest.” Id. 553(b)(B).
The purpose of this direct final rule is to adopt the applicable performance
requirements of ASTM F2057–23. STURDY requires that once the Commission has
determined that ASTM F2057–23 “exists” and “meets the requirements” of STURDY
section 201(d)(2), it must adopt the applicable performance requirements of ASTM
F2037–23, which “shall be treated as a consumer product safety rule promulgated
under section 9 of the Consumer Product Safety Act.” STURDY sec. 201(d)(1).
Because the Commission made this determination on April 19, 2023, the adoption
of ASTM F2057–23 as a mandatory standard is required by law, and public comments
would not lead to substantive changes to the standard or to the effect of the
standard as a consumer product safety rule. Under these circumstances, notice
and comment are unnecessary.
In Recommendation 95–4, the Administrative Conference of the United States
(ACUS) endorses direct final rulemaking as an appropriate procedure to expedite
rules that are noncontroversial and that are not expected to generate
significant adverse comments. See60 FR 43108 (Aug. 18, 1995). ACUS recommends
that agencies use the direct final rule process when they act under the
“unnecessary” prong of the good cause exemption in 5 U.S.C. 553(b)(B).
Consistent with the ACUS recommendation, the Commission is publishing this rule
as a direct final rule, because CPSC does not expect any significant adverse
comments.
If the Commission receives a significant adverse comment, the Commission will
withdraw this direct final rule. In accordance with ACUS's recommendation, the
Commission considers a significant adverse comment to be “one where the
commenter explains why the rule would be inappropriate,” including an assertion
undermining “the rule's underlying premise or approach,” or a showing that the
rule “would be ineffective or unacceptable without change.” 60 FR 43108, 43111.
Depending on the comment and other circumstances, the Commission may then
incorporate the adverse comment into a subsequent direct final rule or publish a
notice of proposed rulemaking, providing an opportunity for public comment.
VI. REGULATORY FLEXIBILITY ACT
The Regulatory Flexibility Act (RFA; 5 U.S.C. 601–612) generally requires
agencies to review proposed and final rules for their potential economic impact
on small entities, including small businesses, and prepare regulatory
flexibility analyses. 5 U.S.C. 603, 604. The RFA applies to any rule that is
subject to notice and comment procedures under section 553 of the APA. Id. As
discussed in this preamble, the Commission has determined that notice and the
opportunity to comment are unnecessary for this rule. Therefore, the RFA does
not apply.
VII. PAPERWORK REDUCTION ACT
The current CSU rule includes requirements for marking, labeling, and
instructional literature that constitute a “collection of information,” as
defined in the Paperwork Reduction Act (PRA; 44 U.S.C. 3501–3521). This revised
mandatory standard contains similar warning and labeling requirements compared
to the current rule, but does not require a hang tag. Therefore, this rule does
not increase the burden of these requirements. The Commission took the steps
required by the PRA for information collections when it adopted 16 CFR part
1261, including obtaining approval and a control number. Because the warning and
labeling burden is similar and there is no increase in the information
collection burden but only a reduction, the revision does not affect the
information collection requirements or approval related to the standard.
VIII. ENVIRONMENTAL CONSIDERATIONS
The Commission's regulations provide for a categorical exclusion from any
requirement to prepare an environmental assessment or an environmental impact
statement where they “have little or no potential for affecting the human
environment.” 16 CFR 1021.5(c)(2). This rule falls within the categorical
exclusion, so no environmental assessment or environmental impact statement is
required.
IX. PREEMPTION
Section 26(a) of the CPSA provides that where a consumer product safety standard
is in effect and applies to a product, no state or political subdivision of a
state may either establish or continue in effect a requirement dealing with the
same risk of injury unless the state requirement is identical to the Federal
standard. 15 U.S.C. 2075(a). Section 26(c) of the CPSA also provides that states
or political subdivisions of states may apply to CPSC for an exemption from this
preemption under certain circumstances. STURDY deems a rule issued under that
Act to be a “consumer product safety standard.” Therefore, once this takes
effect, it will preempt in accordance with section 26(a) of the CPSA.
X. EFFECTIVE DATE
Under STURDY, this rule “shall take effect 120 days after the date of the
promulgation of the rule, or such a later date as the Commission determines
appropriate.” Manufacturers of CSUs have been aware of new stability
requirements since the current CSU rule was published in November 2022, and the
instant rule is based on a voluntary standard published in February 2023. The
Commission accordingly will make this rule effective 120 days after
promulgation. Unless the Commission receives a significant adverse comment
within 30 days of this direct final rule's publication, the rule will become
effective on September 1, 2023. As a consumer product safety standard under the
CPSA, this rule applies to CSUs manufactured after the effective date. 15 U.S.C.
2058(g)(1).
XI. CONGRESSIONAL REVIEW ACT
The Congressional Review Act (CRA; 5 U.S.C. 801–808) states that before a rule
may take effect, the agency issuing the rule must submit the rule, and certain
related information, to each House of Congress and the Comptroller General. 5
U.S.C. 801(a)(1). The CRA submission must indicate whether the rule is a “major
rule.” The CRA states Start Printed Page 28408 that the Office of Information
and Regulatory Affairs (OIRA) determines whether a rule qualifies as a “major
rule.”
Pursuant to the CRA, OIRA has determined that this rule is a “major rule” as
defined in 5 U.S.C. 804(2). To comply with the CRA, CPSC will submit the
required information to each House of Congress and the Comptroller General.
Start List of Subjects
LIST OF SUBJECTS IN 16 CFR PART 1261
* Consumer protection
* Imports
* Incorporation by reference
* Information
* Labeling
* Safety
End List of Subjects Start Amendment Part
The Commission revises 16 CFR part 1261 to read as follows:
End Amendment Part Start Part
PART 1261—SAFETY STANDARD FOR CLOTHING STORAGE UNITS
1261.1 Scope and purpose. 1261.2 Requirements for clothing storage units.
Start Authority
Authority: 15 U.S.C. 2058; Div. BB, tit. II, sec. 201, Pub. L. 117–328, 136
Stat. 4459.
End Authority
§ 1261.1
Scope and purpose.
(a) Scope and purpose. This part, a consumer product safety standard, prescribes
safety requirements for clothing storage units, as defined in paragraph (b) of
this section. The requirements in this part are intended to protect children up
to 72 months of age from tip-over-related death or injury.
(b) Application. Clothing storage unit means any free-standing furniture item
manufactured in the United States or imported for use in the United States that
is intended for the storage of clothing, typical of bedroom furniture. All
clothing storage units that are manufactured after September 1, 2023, are
subject to the requirements of this part.
§ 1261.2
Requirements for clothing storage units.
Each clothing storage unit that is subject to ASTM F2057–23, Standard Safety
Specification for Clothing Storage Units, approved on February 1, 2023, shall
comply with ASTM F2057–23. ASTM F2057–23 is incorporated by reference into this
section with the approval of the Director of the Federal Register under 5 U.S.C.
552 and 1 CFR part 51. This material is available for inspection at the U.S.
Consumer Product Safety Commission and at the National Archives and Records
Administration (NARA). Contact the U.S. Consumer Product Safety Commission at
the Office of the Secretary, U.S. Consumer Product Safety Commission, 4330 East
West Highway, Bethesda, MD 20814, telephone (301) 504–7479, email:
cpsc-os@cpsc.gov. For information on the availability of this material at NARA,
email fr.inspection@nara.gov, or go to www.archives.gov/ federal-register/ cfr/
ibr-locations.html. A free, read-only copy of the standard is available for
viewing on the ASTM website at https://www.astm.org/ READINGLIBRARY/ . You may
also obtain a copy from ASTM International, 100 Barr Harbor Drive, P.O. Box
C700, West Conshohocken, PA 19428–2959; phone: (610) 832–9585; www.astm.org.
End Part Start Signature
Alberta E. Mills,
Secretary, Consumer Product Safety Commission.
End Signature End Supplemental Information
FOOTNOTES
1. On April 19, 2023, the Commission voted (3–1) to publish this direct final
rule: https:// www.cpsc.gov/ s3fs-public/
Meeting-Minutes-Implementation-of-STURDY-201d-Determination-Regarding-ASTM-F2057-23-and-Draft-Direct-Final-Rule.pdf?
VersionId= rY0PyWa3BlDDKuarLMDyaZrvms9DKi9X. The Chair and Commissioners issued
the following statements: https://www.cpsc.gov/ About-CPSC/ Chairman/
Alexander-Hoehn-Saric/ Statement/
Statement-of-Chair-Alexander-Hoehn-Saric-on-the-Commission%E2%80%99s-Favorable-Determination-on-ASTM-F2057-23-and-Adoption-of-a-Final-Clothing-Storage-Unit-Stability-Rule-Under-STURDY;
https://www.cpsc.gov/ About-CPSC/ Commissioner/ Peter-A-Feldman/ Statement/
Statement-of-Commissioner-Peter-A-Feldman-on-Sturdy-Act-Determination;
https://www.cpsc.gov/ About-CPSC/ Commissioner/ Richard-Trumka/ Statement/
CPSC-Makes-Grave-Error-Increasing-Children%E2%80%99s-Risk-Of-Death-From-Furniture-Tip-Over-And-Creating-Legal-Peril-For-Agency;
and https://www.cpsc.gov/ About-CPSC/ Commissioner/ Mary-T-Boyle/ Statement/
Commissioner-Mary-T-Boyle-Statement-on-Mandatory-Safety-Standards-for-Clothing-Storage-Units.
Back to Citation
2. The Staff Briefing Package is available at https://www.cpsc.gov/
s3fs-public/ ImplementationofSTURDY_ 201dDeterminationRegardingASTMF2057_
23andDraftDirectFinalRule.pdf? VersionId= sg.kGfSKseJHE9WZ5Clnla_ JYKcSeH5Y.
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[FR Doc. 2023–08997 Filed 5–3–23; 8:45 am]
BILLING CODE 6355–01–P
PUBLISHED DOCUMENT
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