[Federal Register Volume 71, Number 133 (Wednesday, July 12, 2006)]
[Proposed Rules]
[Pages 39249-39251]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E6-10881]


-----------------------------------------------------------------------

CONSUMER PRODUCT SAFETY COMMISSION

16 CFR Parts 1500 and 1507


Amendment to Fireworks Safety Standards; Advance Notice of 
Proposed Rulemaking; Request for Comments and Information

AGENCY: Consumer Product Safety Commission.

ACTION: Advance notice of proposed rulemaking.

-----------------------------------------------------------------------

SUMMARY: The Commission is considering whether there may be a need to 
update and strengthen its regulation of fireworks devices. This advance 
notice of proposed rulemaking (``ANPR'') initiates a rulemaking 
proceeding under the Federal Hazardous Substances Act (``FHSA''). The 
Commission is soliciting written comments concerning the risks of 
injury associated with fireworks that do not comply with the current 
fireworks device regulations, the regulatory options discussed in this 
notice, other possible ways to address these risks, and the economic 
impacts of the various regulatory alternatives. The Commission also 
invites interested persons to submit an existing standard, or a 
statement of intent to modify or develop a voluntary standard, to 
address the risk of injury described in this notice.\1\
---------------------------------------------------------------------------

    \1\ Commissioner Thomas H. Moore filed a statement which is 
available from the Office of the Secretary or on the Commission's 
Web site at http://www.cpsc.gov.

DATES: Written comments and submissions in response to this notice must 
---------------------------------------------------------------------------
be received by September 11, 2006.

ADDRESSES: Comments should be e-mailed to [email protected]. Comments 
should be captioned ``FIREWORKS ANPR.'' Comments may also be mailed, 
preferably in five copies, to the Office of the Secretary, Consumer 
Product Safety Commission, Room 502, 4330 East-West Highway, Bethesda, 
Maryland 20814, or delivered to the same address (telephone (301) 504-
0800). Comments also may be filed by facsimile to (301)504-0127.

FOR FURTHER INFORMATION CONTACT: Barbara E. Parisi, Office of General 
Counsel, Consumer Product Safety Commission, 4330 East-West Highway, 
Bethesda, Maryland 20814; telephone (301) 504-7879 or e-mail: 
[email protected].

SUPPLEMENTARY INFORMATION:

A. Background

    On May 14, 1973, the Consumer Product Safety Commission, pursuant 
to section 30(a) of the Consumer Product Safety Act (CPSA) (15 U.S.C. 
2079(a)), assumed responsibility for and administration of the FHSA. On 
September 27, 1973 (38 FR 27012), the Commission transferred existing 
fireworks regulations under the FHSA from 21 CFR parts 191 and 191d to 
16 CFR parts 1500 and 1507.
    In addition to these mandatory CPSC regulations, the American 
Fireworks Standards Laboratory (AFSL) has developed voluntary standards 
pertaining to fireworks. The AFSL standards incorporate both CPSC and 
Department of Transportation regulations as well as a number of 
standards developed by AFSL that are in addition to Federal 
requirements. AFSL is an independent, non-profit corporation that was 
established in 1989 by members of the fireworks industry. It is 
administered by a 12-member Board of Directors representing companies 
that manufacture or import fireworks into the United States. Currently, 
AFSL has approximately 140 U.S. importer members in its program. AFSL 
tests fireworks in China for its members prior to exportation to the 
United States. Other testing organizations offer similar services in 
China, generally following the AFSL standards or close variation.

B. The Product

    A firecracker is a device consisting of an explosive pyrotechnic 
composition in a fused container with the primary function of producing 
an audible effect. The term ``fireworks devices'' includes firecrackers 
and other devices using a pyrotechnic composition which when ignited 
produce visual and sometimes audible effects. Fireworks devices include 
consumer fireworks, which are regulated by the CPSC, and professional/
display fireworks, which fall under the jurisdiction of the Bureau of 
Alcohol, Tobacco, Firearms and Explosives. Consumer fireworks generally 
fall into the following twelve device classifications: (1) Combination 
items; (2) Comets, Mines and Shells; (3) Firecrackers; (4) Fountains; 
(5) Ground Spinners and Chasers; (6) Specialty Items; (7) Party, Trick 
and Toy Smoke

[[Page 39250]]

Devices; (8) Reloadable Tube Aerial Shells; (9) Roman Candles; (10)Sky 
Rockets, Missiles, and Helicopters; (11) Hand-held Sparkling Devices; 
and (12) Wheels.
    According to a June 27th 2005 press release from the U.S. Census 
Bureau, the value of fireworks imported from China into the United 
States in 2004 was $164.2 million. This represented the bulk of all 
U.S. firework imports ($172.5 million). By comparison, U.S. exports of 
fireworks came to just $14.3 million.
    The CPSC staff regularly samples fireworks imports and tests these 
samples to determine compliance with the regulations set forth in 16 
CFR Part 1507. While the overall percentage rate of compliance of 
tested fireworks remained relatively steady in the years 2002 through 
2004 (71%, 73%, and 72%), the compliance rate dropped to just 59% of 
the fireworks tested in 2005. Fireworks that had been certified to the 
AFSL voluntary standard enjoyed a significantly higher percentage of 
compliance with CPSC standards, i.e., 83% compliance in 2005.

C. The Risk of Injury

    In the past few years, there has been an increase in the estimated 
number of injuries due to fireworks devices. In the Commission's 2005 
Fireworks Annual Report, fireworks devices were involved in an 
estimated 10,800 injuries requiring treatment in U.S. hospital 
emergency departments, as compared to 9,600 in 2004, 9,300 in 2003, and 
8,000 in 2002. According to that report, the Commission had reports of 
four deaths associated with fireworks during 2005. During 2004, the 
Commission received reports of eight deaths associated with fireworks. 
During a one month special study between June 18, 2005 and July 18, 
2005, an estimated 6,500 fireworks related injuries were treated in 
U.S. hospital emergency departments \2\ (compared with 6,600 injuries 
in the 2004 special study and 6,800 injuries during the 2003 special 
study period).
---------------------------------------------------------------------------

    \2\ 95 percent confidence interval 4,900--8,100.
---------------------------------------------------------------------------

    The results of the one-month special study conducted in 2005 by 
CPSC staff showed that: injuries to children were a major component of 
total fireworks-related injuries with children under 15 accounting for 
45 percent of the estimated injuries; children and young adults under 
20 had 55 percent of the estimated injuries; there were an estimated 
100 injuries at public fireworks displays; the parts of the body most 
often injured were hands (estimated 2,000 injuries), eyes (1,600 
injuries) and the head, face and ear (1,300 injuries); and more than 
half of the injuries involved burns. Burns were the most common injury 
to all parts of the body except the eyes, where contusions, 
lacerations, and foreign bodies in the eye occurred more frequently.

D. Relevant Statutory Provisions

    This advance notice of proposed rulemaking initiates a rulemaking 
proceeding under the FHSA. Section 3 of the FHSA specifies the 
procedure the Commission follows to issue a mandatory consumer product 
safety standard. The Commission commences the rulemaking by issuing an 
ANPR, which must identify the product and the risk of injury, summarize 
regulatory alternatives, and invite comments or suggested standards 
from the public. 15 U.S.C. 1262(f). After considering any comments 
submitted in response to the ANPR, the Commission will decide whether 
to issue a proposed rule and a preliminary regulatory analysis in 
accordance with section 3(h) of the FHSA.
    If a proposed rule is issued, the Commission would then consider 
the comments received in response to the proposed rule in deciding 
whether to issue a final rule and a final regulatory analysis. 15 
U.S.C. 1262(i).
    Additionally, Section 10 of the FHSA provides the Commission with 
authority to ``promulgate regulations for the efficient enforcement of 
[the FHSA].'' One option the Commission has under this provision is to 
issue a rule requiring mandatory certification to the fireworks device 
regulations of the FHSA.

E. Existing Standards

    The Commission regulates fireworks devices under the Federal 
Hazardous Substances Act (``FHSA''). 15 U.S.C. 1261-1278. Under its 
current regulations, the Commission has declared certain fireworks 
devices to be ``banned hazardous substances.'' 16 CFR Parts 
1500.17(a)(3), (8), (9), (11) and (12). Other fireworks devices must 
meet specific requirements to avoid being classified as banned 
hazardous substances. 16 CFR Part 1507. Commission regulations also 
prescribe specific warnings required on various legal fireworks 
devices, 16 CFR 1500.14(b)(7), and designate the size and location of 
these warnings. 16 CFR 1500.121.
    The American Fireworks Standards Laboratory (AFSL) developed 
performance and labeling standards for twelve categories of consumer 
fireworks devices. These twelve categories are: (1) Combination items; 
(2) comets, mines, and shells; (3) firecrackers; (4) fountains; (5) 
ground spinners and chasers; (6) specialty items; (7) party, trick, and 
toy smoke devices; (8) reloadable tube aerial shells; (9) roman 
candles; (10) sky rockets, missiles, and helicopters; (11) hand-held 
sparkling devices; and (12) wheels. According to AFSL, the standards 
were developed by a Standards Committee representing various segments 
of the fireworks industry, Federal and state regulatory authorities, 
consumers, and technical experts. The AFSL standards incorporate both 
CPSC and Department of Transportation mandatory regulations as well as 
a number of standards developed by AFSL that are in addition to Federal 
requirements.
    The Department of Transportation incorporates by reference the 
American Pyrotechnics Association Standard 87-1 (``Standard'') as part 
of its regulations. The Standard applies to fireworks devices, 
pyrotechnic articles, and novelties for entertainment purposes, and is 
designed to enable manufacturers, importers and distributors of 
fireworks and novelties to provide their customers with products that 
can be transported and used safely and without unreasonable risk.

F. Regulatory and Non-Regulatory Alternatives To Address the Risks of 
Injury

    One or more of the following alternatives could be used to reduce 
the identified risks associated with fireworks devices.
    1. Mandatory Certification. The Commission could issue a rule 
requiring mandatory certification to the fireworks device regulations 
of the FHSA. This would encourage manufacturers to conduct testing or 
make use of independent testing laboratories as a basis for 
certification.
    2. Mandatory Standard. The Commission could issue a rule specifying 
certain additional requirements fireworks devices must meet. The 
Commission is required to invite any person to submit to the Commission 
an existing standard or a portion of a standard as a proposed 
regulation under section 2(q)(1) or section 3(e) of the Federal 
Hazardous Substances Act. (15 U.S.C. 1262(f)(5)). If the Commission 
determines that any standard submitted to it in response to this 
invitation if promulgated (in whole, in part, or in combination with 
any other standard submitted to the Commission) as a regulation under 
the FHSA would eliminate or adequately reduce the risk of injury, the 
Commission may publish the standard, in whole, in part, or in such 
combination and with nonmaterial

[[Page 39251]]

modifications, as a proposed regulation. (15 U.S.C. 1262(g)(1)).
    3. Reliance on Voluntary Standard. The Commission is required to 
consider voluntary standards in its mandatory rulemaking. Specifically, 
the Commission is required to invite any person to submit to the 
Commission a statement of intention to modify or develop a voluntary 
standard to address a risk of injury together with a description of a 
plan to modify or develop the standard. (15 U.S.C. 1262(f)(6)). If the 
Commission determines that compliance with a standard submitted to it 
in response to this invitation is likely to result in the elimination 
or adequate reduction of the risk of injury identified in the notice, 
and it is likely that there will be substantial compliance with such 
standard, then the Commission must terminate the proceeding to 
promulgate a regulation and publish a notice in the Federal Register 
which includes the determination of the Commission and notifies the 
public that the Commission will rely on the voluntary standard to 
eliminate or reduce the risk of injury. Before relying upon any 
voluntary standard, the Commission must afford interested parties a 
reasonable opportunity to submit written comments regarding such 
standard. The Commission must consider such comments in making any 
determination regarding reliance on the involved voluntary standard.
    4. Corrective Actions Under Section 15 of the FHSA. The Commission 
has authority under section 15 of the FHSA, 15 U.S.C. 1274, to pursue 
corrective actions on a case-by-case basis if the Commission determines 
that a product constitutes a banned hazardous substance.

G. Request for Information and Comments

    In accordance with section 3(f) of the FHSA, the Commission 
solicits:
    1. Written comments with respect to the risk of injury identified 
by the Commission.
    2. Written comments regarding the regulatory alternatives being 
considered and other possible alternatives for addressing the risk.
    3. Any existing standard or portion of a standard which could be 
issued as a proposed regulation.
    4. A statement of intention to modify or develop a voluntary 
standard to address the risk of injury discussed in this notice, along 
with a description of a plan (including a schedule) to do so.
    In addition, the Commission is interested in receiving information 
about the testing that is conducted on fireworks before they are 
distributed, the costs associated with testing, and the impact that 
testing has on both compliance with the CPSC mandatory fireworks device 
regulations and on injuries.
    Comments should be e-mailed to [email protected]. and should be 
captioned ``FIREWORKS ANPR.'' Comments may also be mailed, preferably 
in five copies, to the Office of the Secretary, Consumer Product Safety 
Commission, Room 502, 4330 East-West Highway, Bethesda, MD 20814, or 
delivered to the same address (telephone (301) 504-0800). Comments also 
may be filed by telefacsimile to (301) 504-0127. All comments and 
submissions should be received no later than September 11, 2006.

    Dated: July 5, 2006.
Todd A. Stevenson,
Secretary, Consumer Product Safety Commission.
[FR Doc. E6-10881 Filed 7-11-06; 8:45 am]
BILLING CODE 6355-01-P