[Federal Register Volume 63, Number 241 (Wednesday, December 16, 1998)]
[Proposed Rules]
[Pages 69232-69236]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-33280]


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FEDERAL TRADE COMMISSION

16 CFR Part 423


Trade Regulation Rule on Care Labeling of Textile Wearing Apparel 
and Certain Piece Goods

AGENCY: Federal Trade Commission.

ACTION: Announcement of public workshop-conference.

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SUMMARY: The Federal Trade Commission (``the Commission'') will hold a 
public workshop-conference in

[[Page 69233]]

connection with the notice of proposed rulemaking published May 8, 1998 
proposing amendments to its Trade Regulation Rule on Care Labeling of 
Textile Wearing Apparel and Certain Piece Goods, 16 CFR Part 423 (``the 
Care Labeling Rule'' or ``the Rule''). The workshop-conference will be 
for discussion of issues related to care labeling instructions for home 
laundering and professional wetcleaning of textile wearing apparel.

DATES: The public workshop-conference will take place on Friday, 
January 29, 1999, from 9:00 a.m. until 5:30 p.m. Members of the public 
who are interested in participating in the public workshop-conference 
must notify the Commission's staff in writing on or before January 14, 
1999.

ADDRESSES: Notification of interest in participating in the public 
workshop-conference should be submitted in writing on or before January 
14, 1999, to James G. Mills, Division of Enforcement, Rm. 4616, Federal 
Trade Commission, Washington, DC 20580. The public workshop-conference 
will take place in Room 432 of the Federal Trade Commission 
Headquarters Building, 600 Pennsylvania Avenue, NW, Washington, DC.

FOR FURTHER INFORMATION CONTACT: Constance M. Vecellio, (202) 326-2966, 
or James G. Mills, (202) 326-3035, Attorneys, Division of Enforcement, 
Federal Trade Commission, Washington, DC 20580.

SUPPLEMENTARY INFORMATION:

I. Background

A. The Care Labeling Rule

    The Care Labeling Rule was promulgated by the Commission on 
December 16, 1971, 36 FR 23883. In 1983, the Commission amended the 
Rule to clarify its requirements by identifying in greater detail the 
washing or dry cleaning information to be included on care labels. 48 
FR 22733 (1983). The Care Labeling Rule, as amended, requires 
manufacturers and importers of textile wearing apparel and certain 
piece goods to attach care labels to these items stating what regular 
care is needed for the ordinary use of the product. 16 CFR 423.6(a) and 
(b). The Rule also requires that the manufacturer or importer possess, 
prior to sale, a reasonable basis for the care instructions. 16 CFR 
423.6(c).

B. Procedural History

1. Regulatory Review of the Rule
    As part of its continuing review of its trade regulation rules to 
determine their current effectiveness and impact, the Commission 
published a Federal Register notice on June 15, 1994, seeking comment 
on the costs and benefits of the Rule, and related questions, such as 
what changes in the Rule would increase the Rule's benefits to 
purchasers and how those changes would affect the costs the Rule 
imposes on firms subject to its requirements. 59 FR 30733 (``the 1994 
Notice''). The comments in response to the 1994 Notice generally 
expressed continuing support for the Rule, stating that correct care 
instructions benefit consumers by extending the useful life of the 
garment, by helping the consumer maximize the appearance of the 
garment, and/or by allowing the consumer to take the ease and cost of 
care into consideration when making a purchase.
2. The ANPR
    Based on this review, the Commission determined to retain the Rule, 
but to seek additional comment on possible amendments to the Rule. To 
begin the process, the Commission published an Advance Notice of 
Proposed Rulemaking on December 28, 1995, 60 FR 67102 (``the ANPR''). 
In the ANPR, the Commission discussed and solicited comment on 
standards for water temperature, the desirability of a home washing 
instruction and a wet cleaning instruction for items for which such 
processes are appropriate, and the Rule's reasonable basis standard. 
The Commission received 64 comments in response to these issues.
3. The NPR
    Based on the comments responding to the ANPR, and on other 
evidence, the Commission published a Notice of Proposed Rulemaking in 
May 1998, 63 FR 25417 (May 8, 1998) (``the NPR''), in which the 
Commission proposed the following specific amendments to the Rule and 
sought comments thereon:
    1. An amendment to require that an item that can be safely cleaned 
by home washing be labeled with instructions for home washing;
    2. An amendment to establish a definition in the Rule for 
``professional wetcleaning'' and to permit manufacturers to label a 
garment that can be professionally wetcleaned with a ``professionally 
wetclean'' instruction;
    3. An amendment to clarify that manufacturers must establish a 
reasonable basis for care instructions for an item based on reliable 
evidence for each component of the item in conjunction with reliable 
evidence for the garment as a whole; and
    4. An amendment changing the definitions of ``cold,'' ``warm'' and 
``hot'' water to be consistent with those of the American Association 
of Textile Chemists and Colorists (``AATCC''), and adding a new term--
``very hot''--and corresponding definition consistent with AATCC's term 
and definition.

The NPR also included six specific questions to elicit information on 
the proposed amendments.
    In the NPR, the Commission made the following announcement:

    The Commission has determined, pursuant to 16 CFR 1.20, to 
follow the procedures set forth in this notice for this proceeding. 
The Commission has decided to employ a modified version of the 
rulemaking procedures specified in Section 1.13 of the Commission's 
Rules of Practice. The proceeding will have a single Notice of 
Proposed Rulemaking, and disputed issues will not be designated.
    The Commission will hold a public workshop-conference to discuss 
the issues raised by this NPR. Moreover, if comments in response to 
this NPR request hearings with cross-examination and rebuttal 
submissions, as specified in Section 18(c) of the Federal Trade 
Commission Act, 15 U.S.C. 57a(c), the Commission will also hold such 
hearings. After the public workshop, the Commission will publish a 
notice in the Federal Register stating whether hearings will be held 
in this matter, and, if so, the time and place of hearings and 
instructions for those desiring to present testimony or engage in 
cross-examination of witnesses.

63 FR 25425-26 (May 8, 1998).
    The Commission also stated in the NPR that it would announce the 
time and place of the workshop-conference after the comment period, 
which closed on July 27, 1998. Today's notice announces that the 
workshop-conference will take place on January 29, 1999, from 9:00 a.m. 
until 5:30 p.m. in room 432 of the Commission's Headquarters Building 
at 600 Pennsylvania Avenue, NW, Washington, DC.
    There were no requests for hearings in the 38 comments received in 
response to the NPR.\1\ Therefore, the Commission

[[Page 69234]]

will not hold public hearings in this matter. Six comments contained 
requests to participate in the workshop-conference.
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    \1\ The comments were from: five consumers; one consumer group; 
one academician; two textile fiber manufacturer associations; two 
apparel manufacturer associations; one apparel manufacturer; one 
apparel retailer; five professional cleaner associations; eight 
professional cleaners; one international association for textile 
care labeling; three laundry equipment manufacturers; two 
manufacturers of cleaning products; one environmental protection 
group; one non-profit research and technical assistance 
organization; one non-profit clearinghouse for information on 
emissions control; one home appliance manufacturer trade 
association; one home appliance repairman; and one foreign nation. 
The comments are on the public record and are available for public 
inspection in accordance with the Freedom of Information Act, 5 
U.S.C. 552, and the Commission's Rules of Practice, 16 CFR 4.11, at 
the Consumer Response Center, Public Reference Section, Room 130, 
Federal Trade Commission, 6th St. and Pennsylvania Avenue, NW, 
Washington, D.C. The comments also are available for inspection on 
the Commission's website at <www.ftc.gov/bcp/rulemaking/carelabel/
comments/comlist.htm>.
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II. Comments on the Issues in the NPR That Will Form the Basis of 
the Workshop-Conference

    As a result of its initial analysis of the comments responding to 
the NPR, the Commission has concluded that the comments addressing two 
of its proposals--to require a home washing instruction for home-
washable products and to permit a ``Professionally Wetclean'' 
instruction for items for which that care method would be appropriate--
express points of view that merit further discussion. The Commission 
will base its analysis of the other two proposals (relating to water 
temperature standards and the Rule's reasonable basis requirement) on 
the written comments in the record, and will include a discussion of 
these proposals in the Statement of Basis and Purpose that the 
Commission will publish along with any final amendments to the Rule. 
Those proposals will not be discussed at the workshop-conference.

A. The Home-Washing Instruction

    The 17 comments responding to the proposal to require washing 
instructions for items that could be home-laundered (with a 
``Dryclean'' instruction optional, if appropriate) expressed divergent 
views. Some supported the proposal as stated. Others favored requiring 
both drycleaning and home laundering instructions if both were 
appropriate. Still others opposed the proposal altogether, contending 
that it would necessitate additional testing by manufacturers in order 
to have a reasonable basis for both methods of care, instead of only 
one, and recommended that the Rule remain unchanged in this regard.
    Twelve comments addressed how consumers interpret a ``Dryclean'' 
instruction. Many said there was no empirical evidence on this point, 
but they believed that consumers think it means that an item so labeled 
cannot be washed at home. The Clorox Company (comment no. 22) submitted 
a random digit dial telephone interview survey of 1,000 nationally 
representative adult consumers conducted by an independent market 
research firm. Half the consumers interviewed in the survey had 
laundered items labeled ``Dryclean,'' and 60% of these respondents were 
generally satisfied with the results. The study showed that nearly 90% 
of consumers interviewed would prefer care labels to include washing 
instructions. This suggests that a significant percentage of garments 
that are labeled ``Dryclean'' may be home laundered; moreover, 
consumers expressed an overwhelming preference to be given such 
information. In addition, the survey suggests that consumers may not 
treat ``Dryclean'' and ``Dryclean Only'' instructions differently, 
although under the current Rule they have distinctly different 
meanings.\2\ This research, which was not available to the other 
commentors when they filed their comments, provides empirical evidence 
of consumers' views and their behavior when they make decisions on how 
to care for a garment labeled for drycleaning. Accordingly, the 
Commission requests that participants in the workshop-conference review 
this study and be prepared to discuss its findings. This research is 
now on the public record with the other comments.
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    \2\ The Rule currently requires either a washing instruction or 
a drycleaning instruction for items that can be safely subjected to 
both processes; it does not require both instructions. Thus, a 
manufacturer using a ``Dryclean'' instruction needs to be able to 
substantiate only that drycleaning is an acceptable method of care. 
In contrast, a manufacturer that uses a ``Dryclean Only'' 
instruction must be able to substantiate both that drycleaning 
refurbishes the garment without damage and that home washing would 
result in damage to the garment.
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B. The ``Professionally Wetclean'' Instruction

    The NPR proposed an amendment that would include a definition for 
wetcleaning and permit (but not require) a wetcleaning instruction 
together with the item's fiber content, a recommendation of at least 
one type of cleaning equipment (unless all types of commercially 
available professional cleaning equipment would be appropriate), and 
one other appropriate method of cleaning (or a warning that the item 
cannot be washed or drycleaned, if such is the case). The NPR also 
asked for information on the number of domestic businesses that provide 
professional wetcleaning to the public on a regular basis and the 
appropriateness of the proposed wetcleaning amendment.
    Twenty-five comments addressed the proposed wetcleaning instruction 
and/or responded to the question in the NPR relating to it. A few 
opposed the proposal, maintaining that the technology and availability 
of wetcleaning are not yet advanced enough to justify a wetcleaning 
instruction. Most favored some kind of wetcleaning instruction, but 
recommended varying circumstances under which the instruction should be 
allowed. Some comments favored the proposed requirement to include 
another appropriate care method with the wetcleaning instruction, while 
others thought the alternative (i.e., the non-wetcleaning instruction) 
should be permitted, but not required. Several favored requiring the 
professional wetcleaning instruction when the method would be 
appropriate, maintaining that, if the instruction were only permitted, 
not all manufacturers would use it, which would lead consumers to 
conclude erroneously that, when it was not used on a garment with a 
``Dryclean'' label, the garment could not be professionally wetcleaned. 
Several commentors addressed the proposal that the label specify a type 
of wetcleaning equipment. Of these, most thought this requirement would 
be unnecessary and too limiting, with some contending that it would 
appear to be an endorsement of certain kinds of laundering equipment.
    Of the six comments that addressed the proposal to include fiber 
content on care labels that show a ``Professionally Wetclean'' 
instruction, five favored the idea, with most suggesting that all care 
labels be required to include fiber content. These commentors 
maintained that the resulting extra label size requirement (to 
accommodate the fiber content information) should apply equally to 
labels with all types of instructions. To do otherwise, they contended, 
would create a disincentive for manufacturers to elect to include the 
``Professionally Wetclean'' instruction, which would necessitate the 
larger label.
    In the NPR, the Commission proposed the following definition for 
``professional wetcleaning'':

    (h) Professional wet cleaning means a system of cleaning by 
means of equipment consisting of a computer-controlled washer and 
dryer, wet cleaning software, and biodegradable chemicals 
specifically formulated to safely wet clean wool, silk, rayon, and 
other natural and man-made fibers. The washer uses a frequency-
controlled motor, which allows the computer to control precisely the 
degree of mechanical action imposed on the garments by the wet 
cleaning process. The computer also controls time, fluid levels, 
temperatures, extraction, chemical injection, drum rotation, and 
extraction parameters. The dryer incorporates a residual moisture 
(or humidity) control to prevent overdrying of delicate garments. 
The wet cleaning chemicals are formulated from constituent chemicals 
on the EPA's public inventory of approved chemicals pursuant to the 
Toxic Substances Control Act.


[[Page 69235]]


    Eleven comments addressed this proposed definition. A few favored 
the proposed definition, some agreeing with the text as it appeared in 
the NPR, and some suggesting minor modifications. Others rejected the 
proposed language outright with no further comment. Several comments 
maintained that the proposal was too narrow because it encompassed only 
the newest technology without including the more traditional knowledge 
and expertise of the individual cleaner relying on personal experience 
and using simpler equipment. Most of these comments offered their own, 
simpler definitions that incorporated their concerns; two of these 
agreed with a definition that was submitted by the Center for 
Neighborhood Technology:

    Wetcleaning is the cleaning of clothes in a commercial setting 
with a water-based system that utilizes specially formulated 
detergents, and precise control (either manual or computerized) over 
the mechanical action, water temperature and level, and carefully 
regulated drying. Wetcleaning spotting is done by using products 
designed for the process that can be safely discharged to sewer 
systems. Pressing of wetcleaned garments may be done either with 
conventional professional pressing equipment, or with tensioning 
finishing equipment and/or drying cabinets for greater productivity.

    There was little agreement among the 12 comments that addressed the 
question in the NPR as to the number of domestic cleaning 
establishments that provide wetcleaning services to the public. Several 
stated specific numbers, ranging from ``very few--around 100,'' to 200 
and up to 350. Some suggested that the number is low enough that 
permitting a wetcleaning instruction under any circumstances would be 
premature. Other comments pointed out that the number of establishments 
devoted exclusively to wetcleaning understates the actual availability 
of wetcleaning, because the service is often available from cleaners 
that also use other methods of refurbishing.

III. Specific Issues for Discussion at the Workshop-Conference

    The following issues will form the basis for discussion at the 
workshop-conference:
    1. a. Should the Rule be amended to require a washing instruction 
for all items that can safely be washed at home, even if drycleaning 
would be an appropriate alternative care method?
    b. Should a washing instruction be required if the item can be 
successfully refurbished by washing but its useful life would be 
extended by drycleaning?
    c. Can criteria be identified that would assist manufacturers in 
determining when a home-laundering instruction, although technically 
feasible, should not be used because it would result in a less than 
ideally refurbished garment?
    2. a. Should the Commission amend the Rule to permit, or to 
require, a ``Professionally Wetclean'' instruction?
    b. Should the requirement include the statement of a type of 
professional wetcleaning equipment?
    c. Should the inclusion of other appropriate care methods be 
mandatory or optional?
    d. How should the Rule define ``professional wetcleaning''?
    The Commission asks that all prospective participants identify 
which of these issues are of particular interest to them when they 
submit their written request to participate in accordance with the 
instruction in the ADDRESSES paragraph, above. Prospective participants 
who wish to address issues not appearing above must identify in their 
request the issues they wish to raise.

IV. Procedures Governing the Workshop-Conference

    The Commission's staff will conduct the workshop-conference to 
afford Commission staff and affected interests an opportunity to 
discuss the issues identified above and, in particular, to examine 
areas of significant controversy of divergent opinions. The workshop-
conference will be facilitated by a Commission staff member. Those who 
are interested in participating in the workshop-conference must notify 
the Commission's staff by January 14, 1999, as directed in the 
ADDRESSES heading, above. Prospective participants must include with 
their notification a copy of any statement that they intend to make at 
the beginning of the proceeding and must indicate which issues in 
particular are of interest to them. Affected interests may, if they 
wish, designate a specific party to represent their shared group 
interests in the workshop-conference. Prior to the workshop-conference, 
participants will be provided with a tentative agenda.
    While the workshop-conference will address primarily those issues 
identified in the discussion above, participants also will be afforded 
an opportunity to address such additional related issues as are raised 
during the proceeding. Commission staff will consider the views and 
suggestions made during the workshop-conference in conjunction with the 
written comments in formulating a final recommendation to the 
Commission concerning the NPR.
    If the number of parties who request to participate in the 
workshop-conference is so large that it would inhibit effective 
discussion, the Commission staff will select parties to participate 
from among those who ask. The selections will be made on the basis of 
the following criteria:
    1. The party must have submitted a written comment in response to 
the 1994 Notice, the ANPR, or the NPR;
    2. The party must have notified the Commission's staff of its 
interest and identified the issues it wishes to discuss by January 14, 
1999;
    3. The party's attendance would promote a balance of interests 
being represented at the workshop-conference;
    4. The party's participation would promote the consideration and 
discussion of the issues identified above;
    5. The party has expertise in areas affected by the Care Labeling 
Rule; and
    6. The party has been designated by one or more of the affected 
interests (who have filed written comments and timely requests to 
participate) as a party who shares group interests with the 
designator(s).
    If it is necessary to limit the number of participants, those not 
selected to participate, but who have submitted written comments and 
requests to participate in accordance with the instructions above, will 
be afforded an opportunity at the end of the conference to present 
their views during a limited time period. The time allotted for these 
statement will be determined on the basis of the time necessary for 
discussion of the issues by the selected parties, as well as by the 
number of persons who wish to make such statements. If any person 
cannot complete the presentation of his or her statement in the 
allotted time, that person will be allowed, within 72 hours thereafter, 
to file a written statement covering those relevant matters that he or 
she did not present orally. The discussion during the workshop-
conference will be transcribed and the transcription will be placed on 
the public record. After the conclusion of the workshop, the record 
will remain open for 30 days for additional or rebuttal comments.

V. Legal Authority

    This notice is being published pursuant to Section 18 of the 
Federal Trade Commission Act, 15 U.S.C. 57a et seq. (``FTC Act''), the 
provisions of Part 1, Subpart B of the Commission's Rules of Practice, 
16 CFR 1.7, and 5 U.S.C. 551 et seq. This authority permits the 
Commission to promulgate, modify, and repeal trade regulation rules 
that define with specificity acts or practices that are unfair or 
deceptive in or affecting

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commerce within the meaning of Section 5(a)(1) of the FTC Act, 15 
U.S.C. 45(a)(1).

VI. Communications by Outside Parties to Commissioners or Their 
Advisors

    Pursuant to Rule 1.18(c) of the Commission's Rules of Practice, 16 
CFR 1.18(c) (1997), communications with respect to the merits of this 
proceeding from any outside party to any Commissioner or Commissioner's 
advisor during the course of this rulemaking shall be subject to the 
following treatment. Written communications, including written 
communications from members of Congress, shall be forwarded promptly to 
the Secretary for placement on the public record. Oral communications, 
not including oral communications from members of Congress, are 
permitted only when such oral communications are transcribed verbatim 
or summarized, at the discretion of the Commissioner or Commissioner's 
advisor to whom such oral communications are made, and are promptly 
placed on the public record, together with any written communications 
and summaries of any oral communications relating to such oral 
communications. Oral communications from members of Congress shall be 
transcribed or summarized, at the discretion of the Commissioner or 
Commissioner's advisor to whom such oral communications are made, and 
promptly placed on the public record, together with any written 
communications and summaries of any oral communications relating to 
such oral communications.

List of Subjects in 16 CFR Part 423

    Care labeling of textile wearing apparel and certain piece goods, 
Trade practices.

    Authority: 15 U.S.C. 57a(d)(2)(B).

    By direction of the Commission.
Donald S. Clark,
Secretary.
[FR Doc. 98-33280 Filed 12-15-98; 8:45 am]
BILLING CODE 6750-01-P