[Federal Register Volume 82, Number 21 (Thursday, February 2, 2017)]
[Proposed Rules]
[Pages 9012-9034]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-02014]


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 Proposed Rules
                                                 Federal Register
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 This section of the FEDERAL REGISTER contains notices to the public of 
 the proposed issuance of rules and regulations. The purpose of these 
 notices is to give interested persons an opportunity to participate in 
 the rule making prior to the adoption of the final rules.
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  Federal Register / Vol. 82, No. 21 / Thursday, February 2, 2017 / 
Proposed Rules  

[[Page 9012]]



CONSUMER PRODUCT SAFETY COMMISSION

16 CFR Parts 1500 and 1507

[Docket No. CPSC-2006-0034]


Amendments to Fireworks Regulations

AGENCY: Consumer Product Safety Commission.

ACTION: Notice of proposed rulemaking.

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SUMMARY: The Consumer Product Safety Commission (Commission or CPSC) 
proposes to amend its regulations regarding fireworks devices under the 
Federal Hazardous Substances Act. The proposed amendments are based on 
the Commission's review of its existing fireworks regulations, the 
current fireworks market, changes in technology, existing fireworks 
standards, and safety issues associated with fireworks devices. The 
proposed amendments would create new requirements and modify or clarify 
existing requirements. Some of the proposed revisions would align with 
existing fireworks standards or codify the Commission's existing 
testing practices. The Commission believes that the proposed 
requirements would improve consumer safety by codifying limits, test 
procedures, and requirements that would reduce the risk of injury to 
consumers and clarifying existing requirements to promote compliance.

DATES: Submit comments by April 18, 2017.

ADDRESSES: Comments, identified by Docket No. CPSC-2006-0034, may be 
submitted electronically or in writing:
    Electronic Submissions: The Commission encourages you to submit 
electronic comments by using the Federal eRulemaking Portal. You may 
submit electronic comments to the Federal eRulemaking Portal at: http://www.regulations.gov, by following the instructions for submitting 
comments. The Commission does not accept comments submitted by 
electronic mail (email), except through www.regulations.gov.
    Written Submissions: Submit written comments by mail, hand 
delivery, or courier to: Office of the Secretary, Consumer Product 
Safety Commission, Room 820, 4330 East-West Highway, Bethesda, MD 
20814; telephone (301) 504-7923.
    Instructions: All submissions must include the agency name and 
docket number for this proposed rulemaking. All comments may be posted 
to http://www.regulations.gov without change, including any personal 
identifiers, contact information, or other personal information. Do not 
submit 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 submit such information, the Commission 
recommends that you do so by mail, hand delivery, or courier.
    Docket: To read background documents or comments regarding this 
proposed rulemaking, go to: http://www.regulations.gov, insert docket 
number CPSC-2006-0034 in the ``Search'' box, and follow the prompts.

FOR FURTHER INFORMATION CONTACT: Rodney Valliere, Project Manager, 
Directorate for Laboratory Sciences, U.S. Consumer Product Safety 
Commission, 5 Research Place, Rockville, MD 20850; telephone: 301-987-
2526; email: [email protected].

SUPPLEMENTARY INFORMATION:

I. Background

    The Federal Hazardous Substances Act (FHSA; 15 U.S.C. 1261-1278) 
authorizes the CPSC to regulate hazardous substances, which include 
fireworks devices. 15 U.S.C. 1262. The Commission assumed 
responsibility for administering the FHSA on May 14, 1973. Id. at 
2079(a). Previously, the U.S. Department of Health, Education, and 
Welfare exercised this authority and the U.S. Food and Drug 
Administration (FDA), an agency within that department, issued 
regulations governing fireworks and other hazardous substances. When 
the Commission assumed responsibility, it adopted the existing FDA 
regulations, transferring them from 21 CFR part 191 to 16 CFR part 
1500. 38 FR 27012 (Sept. 27, 1973). These regulations included 
requirements limiting the pyrotechnic composition of fireworks devices 
``intended to produce audible effects'' to two grains; carving out an 
exception to that regulatory limit for wildlife management purposes; 
and exempting certain packaged fireworks assortments from full labeling 
requirements for hazardous substances under the FHSA.
    Since assuming responsibility for the FHSA, the Commission has 
added provisions to the fireworks regulations, which are now in 16 CFR 
parts 1500 and 1507. These additions include labeling requirements; 
prohibitions of certain chemicals; performance requirements for 
specific devices and features; bans (except for wildlife management 
purposes) on firecrackers that contain more than 50 milligrams (mg) 
(0.772 grains) of pyrotechnic composition, specific devices, and 
devices that do not comply with part 1507; bans on reloadable tube 
aerial shell devices with shells larger than 1.75 inches in outer 
diameter; requirements for a stability test for large multiple-tube 
fireworks devices; and an increase in the longest permissible time for 
a fuse to burn to 9 seconds. 61 FR 67197 (Dec. 20, 1996); 61 FR 13084 
(Mar. 26, 1996); 56 FR 37831 (Aug. 9, 1991); 49 FR 50374 (Dec. 28, 
1984); 41 FR 22931 (June 8, 1976).
    The Commission has also taken steps to review the fireworks 
regulations, generally, in more recent years. CPSC issued an advance 
notice of proposed rulemaking (ANPR) in 2006 to explore alternatives 
for addressing fireworks-related injuries. 71 FR 39249 (July 12, 2006). 
In 2015 and 2016, the Commission reviewed all of its fireworks 
regulations to identify revisions or clarifications that would make 
them more effective at protecting the public, reflect the current 
market and technology, reduce burdens, and coordinate with other 
federal and industry standards. This notice of proposed rulemaking 
(NPR) is the result of that assessment.
    In addition, on September 6, 2016, the Commission issued a proposed 
interpretive rule regarding the method of determining whether a 
fireworks device is ``intended to product audible effects,'' for 
purposes of 16 CFR 1500.17(a)(3). 81 FR 61146 (Sept. 6, 2016). The 
Commission requested comments regarding its proposed interpretation, 
and Commission staff considered those comments in developing the 
proposed regulatory

[[Page 9013]]

change to 1500.17(a)(3), described in this NPR.

II. Statutory Authority, Procedure, and Other Legal Considerations

    Under the FHSA, the Commission may classify a ``hazardous 
substance'' as a ``banned hazardous substance'' if the substance is 
intended or packaged in a form suitable for household use or is 
intended to be used by children and the Commission finds that, 
notwithstanding cautionary labeling required under the FHSA, the degree 
or nature of the hazard associated with the substance is such that 
public health and safety can only be adequately served by keeping the 
substance out of interstate commerce. 15 U.S.C. 1261(q)(1). As part of 
this authority, the Commission may also create design and performance 
standards for products that qualify as ``hazardous substances,'' 
effectively banning products that do not conform to those standards. 
Forester v. Consumer Product Safety Comm'n, 559 F.2d 774, 783 (D.C. 
Cir. 1977).
    Fireworks are ``hazardous substances,'' as that term is defined in 
the FHSA. 15 U.S.C. 1261(f). Therefore, to ban fireworks devices or 
create design or performance requirements for fireworks devices, the 
Commission must follow the requirements for rulemaking outlined in the 
FHSA. Under the FHSA, the Commission must make four substantive 
findings to ban fireworks devices or create design or performance 
requirements. The first of these four findings is described in the 
previous paragraph and involves the adequacy of cautionary labeling to 
protect the public from the degree or nature of the hazard. This 
finding need not be included in the regulatory text. There are three 
additional findings that the Commission must make under the FHSA. These 
three findings are described in detail in the following paragraphs, and 
the Commission must include them in the regulations. 15 U.S.C. 
1262(i)(2).
    First, the Commission must find that when the entities that would 
be subject to the regulation have adopted a voluntary standard that 
relates to the risk of injury that the regulation seeks to address, 
either compliance with the voluntary standard is not likely to 
adequately reduce that risk, or there is not likely to be substantial 
compliance with the voluntary standard. 15 U.S.C. 1262(i)(2)(A). For 
the first prong of this finding, whether compliance with a voluntary 
standard is likely to adequately reduce a risk of injury depends on 
whether the risk will be reduced to such an extent that there would no 
longer be an unreasonable risk of injury. See H.R. Rep. No. 208, 97th 
Cong., 1st Sess. 875 (1981) (discussing the identical provision in the 
Consumer Product Safety Act (15 U.S.C. 2051-2089)). As for the second 
prong, several factors are relevant to the Commission's assessment of 
compliance with a voluntary standard, including the magnitude and speed 
of compliance, the severity of potential injuries, the frequency of 
injuries and deaths, and the vulnerability of the population at risk. 
See H.R. Rep. No. 208, 97th Cong., 1st Sess. 875 (1981) (discussing the 
identical provision in the Consumer Product Safety Act); see also 64 FR 
71888 (Dec. 22, 1999) (finding that 90% compliance with a voluntary 
standard for bunk beds was not ``substantial''); 16 CFR part 1213, 
Appendix.
    Second, the Commission must find that the benefits expected from 
the regulation bear a reasonable relationship to its costs. 15 U.S.C. 
1262(i)(2)(B). The benefits of a regulation include the extent to which 
the regulation would reduce the likelihood and severity of injury that 
may result from the product. The costs include increases to the price 
of the product and decreases to the availability or usefulness of the 
product. H.R. Rep. No. 208, 97th Cong., 1st Sess. 875 (1981) (citing 
Southland Mower Co. v. Consumer Product Safety Comm'n, 619 F.2d 499 
(5th Cir. 1980)).
    Third, the Commission must find that the regulation imposes the 
least burdensome requirement that adequately reduces the risk of injury 
that the regulation aims to address. 15 U.S.C. 1262(i)(2)(C). To 
evaluate this, the Commission must compare the relative compliance 
costs of alternatives it considered during the rulemaking process. H.R. 
Rep. No. 208, 97th Cong., 1st Sess. 875 (1981).
    These findings are required only for regulatory changes or 
additions that would ban a hazardous substance. This includes an 
express ban, as well as a design, performance, or other requirement 
that has the effect of banning a device that is not already banned. For 
amendments that merely clarify or ease existing requirements, these 
findings are not necessary because the rulemaking would not classify a 
substance or device as banned. See, e.g., 15 U.S.C. 1261(q)(1)(B), 
1262(h), 1262(i)(2) (discussing requirements to create a regulation 
classifying a substance as a ``banned hazardous substance''). 
Nevertheless, such changes or additions must conform to the 
Administrative Procedure Act (5 U.S.C. 551-562) requirements for 
rulemaking, which apply to all of the changes proposed in this NPR. The 
Administrative Procedure Act requires the Commission to provide 
interested parties with notice of a proposed rule and an opportunity to 
comment on it. 5 U.S.C. 553(b), (c).
    In addition to the statutory requirements in the FHSA and 
Administrative Procedure Act that apply to rulemakings, several federal 
directives are relevant to this NPR. Specifically, a number of 
Executive Orders (E.O.s) set out rulemaking priorities, including 
promoting compliance by creating simple and clear regulations and 
eliminating requirements that are ineffective or outdated. These E.O.s 
also emphasize the goals of facilitating economic growth, by minimizing 
burdens, harmonizing with voluntary or international standards, and 
promoting innovation. See E.O. 13609, Promoting International 
Regulatory Cooperation, 77 FR 26413 (May 4, 2012); E.O. 13563, 
Improving Regulation and Regulatory Review, 76 FR 3821 (Jan. 18, 2011); 
E.O. 12866, Regulatory Planning and Review, 58 FR 51735 (Oct. 4, 1993); 
see also E.O. 13579, Regulation and Independent Regulatory Agencies, 76 
FR 41587 (July 11, 2011). Similarly, the Office of Management and 
Budget's OMB Circular A-119 (OMB Circular A-119) directs agencies, 
including independent commissions, to use voluntary consensus 
standards, rather than develop new standards, whenever appropriate. OMB 
Circular A-119, Federal Participation in the Development and Use of 
Voluntary Consensus Standards and in Conformity Assessment Activities 
(1998), revised on January 27, 2016. The goal of OMB Circular A-119 is 
for the federal government to benefit from the expertise and innovation 
of the private sector, eliminate costs associated with agency 
development of new standards, reduce the costs of industry compliance, 
and to support the priorities outlined in E.O.s 13609, 13563, and 
12866. As an independent agency, CPSC is not required to comply with 
E.O.s; however, E.O. 13579 urges independent agencies to pursue the 
objectives expressed in E.O. 13563, and as a general matter, the 
Commission strives to support the principles expressed in these E.O.s 
to construct streamlined and effective regulations. The requirements 
and revisions proposed in this NPR are intended to align with these 
directives by clarifying requirements, updating requirements to reflect 
current technology and products, and harmonizing with a recognized 
industry standard and other federal requirements.

[[Page 9014]]

III. Other Existing Fireworks Standards

    There are three international or voluntary standards regarding 
fireworks:
     The American Pyrotechnics Association Standard 87-1: 
Standard for Construction and Approval for Transportation of Fireworks, 
Novelties, and Theatrical Pyrotechnics (APA Standard 87-1);
     The American Fireworks Standards Laboratory's voluntary 
standards for consumer fireworks (AFSL Standard); and
     The European Standard EN 15947-1 to 15947-5: Pyrotechnic 
Articles--Fireworks, Categories 1, 2, and 3 (European Standard).
    The American Pyrotechnics Association (APA) is a fireworks trade 
group made up of various fireworks industry members, including 
manufacturers, importers, and distributors. According to the group's 
Web site, its members represent approximately 85 percent of the 
domestic fireworks industry. APA Standard 87-1, last issued in 2001, 
provides definitions and requirements for various types of fireworks 
including consumer fireworks, novelties, theatrical pyrotechnics, and 
display fireworks.
    The American Fireworks Standards Laboratory (AFSL) is an 
independent, nonprofit corporation that develops voluntary standards 
for consumer fireworks and serves as a third party laboratory, offering 
testing and certification for compliance with its standards. According 
to AFSL's Web site, its members represent 85 to 90 percent of domestic 
fireworks importers. The AFSL standard, last updated in 2009, includes 
safety and quality standards for various types of fireworks devices, 
including design, performance, labeling, and shipping.
    The European Standard was developed through the consensus of 
numerous European national standard bodies, as facilitated by the 
European Committee for Standardization, and reflects European 
legislation. This standard includes definitions, fireworks categories, 
labeling requirements, test methods, and construction and performance 
requirements.
    Additionally, the U.S. Department of Transportation (DOT) has 
regulations relevant to consumer fireworks. DOT has jurisdiction over 
the transportation in commerce of hazardous materials, including 
consumer fireworks. 49 U.S.C. 5101-5128. Under this authority, DOT has 
specific regulatory requirements for fireworks and incorporates by 
reference APA Standard 87-1 into its regulations, insofar as it is 
relevant to transportation safety. 49 CFR 171.7; see also, 49 CFR 
173.59, 173.64, 173.65.
    The APA has continued to review APA Standard 87-1 and is working to 
issue an updated version of the standard, which DOT subsequently may 
incorporate by reference into its regulations, supplanting the 2001 
version. The Commission is proposing to incorporate by reference 
portions of APA Standard 87-1 into 16 CFR parts 1500 and 1507, or 
otherwise align with provisions in that standard. If the APA updates 
APA Standard 87-1 before the Commission adopts a final rule, the 
Commission may adopt provisions consistent with or from the 2001 
version of the standard, as proposed in this NPR, or may adopt or 
incorporate by reference provisions of the updated standard that are 
consistent with the requirements proposed in this NPR.

IV. Proposed Requirements

    The Commission proposes several additions and modifications to the 
fireworks regulations to clarify existing requirements and to improve 
consumer safety. These proposed requirements fall into three 
categories--new hazardous substance bans, changes to ease the burdens 
associated with existing requirements, and clarifications. As 
discussed, the statutory requirements for these categories differ. To 
ban a hazardous substance that is not prohibited under the existing 
regulations, the Commission must make the findings required by the 
FHSA. To ease or clarify existing requirements, the Commission need not 
make these findings, but must comply with Administrative Procedure Act 
rulemaking requirements. The sections below describe the three 
categories of proposed requirements.

A. New Hazardous Substances Bans

    The following proposed requirements would effectively ban hazardous 
substances that are not currently banned under CPSC's fireworks 
regulations by adopting mandatory test methods, limiting device 
content, prohibiting particular chemicals, and adding performance 
requirements.
1. Adopt a Quantifiable Method of Identifying Devices That Are Limited 
to Two Grains of Pyrotechnic Composition (16 CFR 1500.17(a)(3))
a. Current Regulatory Requirement and Rationale
    Section 1500.17(a)(3) states: ``fireworks devices intended to 
produce audible effects'' are banned hazardous substances if the 
audible effect is produced by a charge of more than 2 grains of 
pyrotechnic composition. There are essentially two parts to this 
requirement--first, identifying whether a fireworks device is 
``intended to produce audible effects,'' and second, if so, measuring 
the pyrotechnic composition to determine if it exceeds 2 grains.
    As the rulemaking that adopted this provision explained, the misuse 
of devices ``whose audible effect is produced by a charge of more than 
2 grains of pyrotechnic composition . . . [had] been the cause of most 
of the firework deaths and serious injuries'' and the goal of the 
regulation was to prohibit ``dangerously explosive fireworks.'' 38 FR 
4666 (Feb. 20, 1973); 35 FR 7415 (May 13, 1970); see also, 34 FR 260 
(Jan. 8, 1969). Similarly, the Commission considered the safety need 
for limiting the pyrotechnic content in certain fireworks devices when 
it adopted the 50 mg limit for firecrackers in 1977. In the 
deliberations leading up to that limit, the Commission explained that 
incident and injury data showed a correlation between the degree of 
injury and the explosive power of the device involved in the injury. 
Most cases that resulted in death or severe injuries involved devices 
with ``large powder accumulations.'' 41 FR 9512, 9517 (Mar. 4, 1976). 
Thus, the purpose of 1500.17(a)(3) is to address injuries resulting 
from increased explosive power; the reference to ``audible'' effects 
was a method of identifying these devices through the type of sound the 
devices make and not an indication of any safety purpose relating to 
the loudness of devices or hearing injuries.
    This regulatory history and more recent fireworks incident data 
demonstrate the importance of industry compliance with 1500.17(a)(3) 
for protecting consumers. As the 2015 Fireworks Annual Report 
(Fireworks Annual Report; CPSC Directorate for Epidemiology, Division 
of Hazard Analysis, Fireworks-Related Deaths and Emergency Department-
Treated Injuries During 2015, June 2016, available at: http://www.cpsc.gov//Global/Research-and-Statistics/Injury-Statistics/Fuel-Lighters-and-Fireworks/Fireworks_Report_2015FINALCLEARED.pdf) 
demonstrates, the injuries that can result from devices that are 
subject to the 2-grain limit can be severe and can result in death. 
Overall, nine of the 11 deaths that related to fireworks in 2015, 
involved devices that are commonly subject to the 2-grain limit; and 
over the course of 1 month in 2015, an estimated 1,200 injuries (based 
on a nationwide probability sample) involved devices commonly subject 
to the 2-grain limit. Of these estimated 1,200 injuries, 100 involved 
children under the age of 4

[[Page 9015]]

years. These incidents included deaths resulting from mortar tubes held 
by consumers; burns requiring a 1-month hospitalization after a 
reloadable aerial shell landed in a bystander's lap; and various other 
injuries affecting all regions of the body.
    To identify devices that had a greater explosive power, and 
therefore, needed a limit to protect consumer safety, the FDA and the 
Commission opted to apply the 2-grain limit to ``devices intended to 
produce audible effects.'' At the time the limit was adopted, the focus 
on ``devices intended to produce audible effects'' was a useful way of 
identifying devices that had a greater explosive or energetic force. 
However, the fireworks industry has reported, and Commission testing 
indicates, that fireworks devices on the market today contain metallic 
fuel when they are ``intended to produce an audible effect.'' These 
metallic fuels create an explosive that is more energetic per volume 
than an explosive without metallic fuel.
b. Current CPSC Test Method and Alternative Test Methods
    The regulations do not specify a method for identifying whether a 
device is ``intended to produce audible effects,'' and therefore, 
subject to the 2-grain limit. However, the CPSC Consumer Fireworks 
Testing Manual (CPSC Testing Manual; CPSC Directorate for Laboratory 
Sciences, Division of Chemistry, Consumer Fireworks Testing Manual, 4th 
ed. (Aug. 17, 2006), available at: https://www.cpsc.gov/PageFiles/121068/testfireworks.pdf), specifies how Commission staff identifies 
these devices during field testing. In accordance with the CPSC Testing 
Manual, staff listens for a ``loud report'' when the device functions, 
which indicates it is ``intended to produce an audible effect.'' See 
section (IV)(C)(11)(e) of CPSC Testing Manual, p. 29. This involves 
staff listening for a sound and assessing whether that sound has the 
qualities characteristic of an intentional effect. It is not the noise 
level that is determinative; rather, staff listens for a crisp 
sharpness that is related to the pressure pulse associated with the 
ignition of flash powder. If staff hears this ``loud report,'' then 
they weigh the pyrotechnic material in the break charge (which causes 
the audible effect) to determine whether it exceeds the 2-grain limit. 
The CPSC Testing Manual does not carry the force of law; rather, it 
describes one option for identifying devices that are subject to the 2-
grain limit. However, other options may also be valid. The Commission 
believes that specifying an appropriate identification method in the 
regulations would provide for transparency and consistency in testing, 
which facilitates compliance and consumer safety.
    To accomplish this, Commission staff has considered the makeup and 
design of fireworks devices on the market today and reviewed 
alternative methods of identifying devices that are subject to the 2-
grain limit. Based on these assessments, the Commission proposes to set 
forth, in the regulations, a method for identifying devices that are 
subject to the 2-grain limit and replace the phrase ``intended to 
produce audible effects'' to reflect that method.
    Fireworks devices have evolved since CPSC adopted 1500.17(a)(3) in 
1973, and now use different types of powders, which impact the sounds 
devices produce. The fireworks industry has moved away from using black 
powder in break charges, and instead, often uses hybrid powders. In 
addition, fireworks devices generally are made by hand, resulting in 
variability in devices from the same manufacturer and lot. Different 
samples of the same device may not produce the same audible effects. 
Depending on the shell construction, packing density, and amount of 
powder, hybrid powders may produce audible effects intentionally or 
incidentally to disperse visual effects. Significant training and 
experience are necessary to distinguish between sounds that are an 
intentional effect of a fireworks device and sounds that are merely a 
byproduct of other effects or functions of a fireworks device. CPSC 
staff has substantial training and experience to make this distinction, 
but the Commission believes that a simpler and more quantitative test 
would be preferable and would facilitate consistent and accurate 
industry testing.
    To identify a method that reflects the current design of fireworks 
devices, reduces the variability in judgments of whether a device is 
``intended to produce audible effects,'' and is simple and repeatable 
enough for regulated entities to follow easily and consistently, the 
Commission has reviewed other existing methods of identifying devices 
subject to the 2-grain limit. The European Standard does not include 
any equivalent limit to 1500.17(a)(3), and many of the devices listed 
in the European Standard are not comparable to those sold in the United 
States. As such, the European Standard does not offer an alternative 
method that the Commission could adopt. The AFSL Standard limits the 
explosive composition of various devices ``intended to produce 
reports'' to 2 grains of pyrotechnic composition (``reports'' is a 
synonym for ``audible effects''). The AFSL Standard also limits break 
charges to containing only black powder, an equivalent nonmetallic 
fuel, or fuel that is empirically demonstrated to perform similarly to 
black powder. Thus, while the AFSL Standard provides similar limits to 
APA Standard 87-1, described below, it is less quantifiably precise 
because it provides flexibility for empirical analysis to permit 
various fuel types.
    APA Standard 87-1, section 2.5, provides the same 2-grain (130 mg) 
limit as 1500.17(a)(3) on the pyrotechnic content of fireworks devices 
``intended to produce audible effects,'' but also includes a 
definition, or method of identifying whether a device is ``intended to 
produce audible effects.'' If a fireworks device includes a burst 
charge that contains a metallic powder less than 100 mesh in particle 
size, then the device is ``intended to produce audible effects.'' 
Section 2.5 elaborates, stating the inverse of this test method and 
providing examples. This is a straightforward and objectively 
measurable method of determining whether a device is subject to the 2-
grain limit; under this method, testers need only examine and measure 
the contents of the burst charge. This definition is consistent with 
1500.17(a)(3), which lists devices that traditionally include metallic 
fuel as examples of devices ``intended to produce audible effects,'' 
such as devices that generally use flash powder, which is a mixture of 
an oxidizer (typically potassium perchlorate) and a metallic fuel 
(typically aluminum). This method is also consistent with the intended 
purpose of the regulation to protect consumers from the greater 
energetic power of certain devices and the associated safety risks.
    Commission staff has conducted preliminary testing to examine the 
relationship between metallic content in break charges and the energy 
or explosive power of the fireworks device. As an example, staff 
examined the effect of adding aluminum, a metallic powder, to fireworks 
devices. As the Division of Chemistry (Chemistry) memorandum in the 
briefing package for this NPR explains, a quadratic analysis reveals 
that a 1 percent addition of aluminum increases the energy of a device 
by 3 percent, and that as aluminum content increases, the amount of 
explosive power increases, up to 25 percent aluminum content, at which 
point the explosive power begins to diminish. This demonstrates the 
consistency between limiting metallic content in break charges and the 
intended safety purpose of 1500.17(a)(3)--namely, to

[[Page 9016]]

limit the explosive power of devices, in order to reduce injuries 
associated with more explosive devices. Additionally, adding aluminum 
or other metallic content to an energetic material may increase 
sensitivity to impact, spark, and friction, which may present 
additional safety hazards.
c. Proposed Regulatory Requirement
    Accordingly, the Commission proposes to adopt a method for 
identifying devices that are subject to the 2-grain limit that is 
consistent with the method in APA Standard 87-1. However, unlike APA 
Standard 87-1, the Commission proposes to state the criteria directly 
in the regulation, without referencing ``devices intended to produce 
audible effects''; in addition, the Commission proposes to state only 
the general criteria for identifying these devices (i.e., metallic fuel 
greater than 100 mesh in particle size), without the additional details 
in APA Standard 87-1. Although at the time it was adopted, the phrase 
``intended to produce audible effects'' was a useful way to identify 
devices with greater explosive power and a correspondingly greater risk 
of injury, because of the current design and composition of fireworks 
devices, it is clearer and more direct to refer simply to their 
content.
    To assess the CPSC Testing Manual method and the APA Standard 87-1 
method, Commission staff randomly tested fireworks samples collected 
from the Office of Compliance from fiscal years 2014, 2015, and 2016. 
Using the CPSC Testing Manual method, staff found that 17 percent of 
the samples were ``intended to produce audible effects'' and exceeded 
the 2-grain limit. In contrast, while using the APA Standard 87-1 
method, staff found that 84 percent of the samples were ``intended to 
produce audible effects'' and exceeded the 2-grain limit. Although the 
sample size is too small to be conclusive, these results show a notable 
difference between the number of devices that qualify as ``intended to 
produce audible effects'' using the CPSC Testing Manual method and the 
APA Standard 87-1 method. This may be because the APA Standard 87-1 
method relies on precise and quantifiable measurements, rather than 
experienced observation, leaving less room for interpretation.
    The Commission does not propose to modify the overall requirement 
in 1500.17(a)(3); rather the Commission proposes to specify the 
composition that identifies a device as subject to the 2-grain limit 
and otherwise retain the 2-grain limit. For consistency, the Commission 
also proposes to replace references to ``audible effects'' throughout 
the regulations. Because the regulations currently do not require any 
particular method of identifying which devices are subject to the 2-
grain limit, requiring the use of a specific method creates a new 
requirement. Additionally, consistent with the comparative test data, 
the proposed method likely would identify more devices as subject to 
the 2-grain limit than the current CPSC Testing Manual method. 
Therefore, the practical effect of adopting the proposed method of 
identifying whether a device is ``intended to produce audible effects'' 
is that the Commission would ban more devices than it currently 
considers banned.
    It is important to note that the proposed revision to 
1500.17(a)(3), which focuses on the metallic content of the device, 
would reduce the scope of fireworks devices that are subject to the 2-
grain limit because the proposed revision does not limit the content of 
devices containing black powder only. However, the Commission believes 
that reducing the scope will not decrease the level of protection that 
the regulation provides because the Commission is not aware of any 
devices on the market that fall within the scope of the current 
regulation, but outside the scope of the proposed regulation. Under the 
current method CPSC staff uses, devices that produce a ``loud report'' 
are limited to 2 grains of pyrotechnic composition; this limit applies 
whether the device contains metallic fuel or only black powder. Under 
the proposed regulation, only devices that contain metallic fuel less 
than 100 mesh in particle size are limited to 2 grains of pyrotechnic 
composition. Therefore, the proposed provision does not limit the 
content of devices that contain only black powder. However, Commission 
staff's extensive experience observing and testing fireworks devices 
indicates that there are no devices currently on the market that 
contain only black powder and produce a ``loud report,'' subjecting 
them to the 2-grain limit. Consequently, like the proposed regulation, 
the current method, in effect, does not limit the pyrotechnic 
composition of devices that contain only black powder. Nevertheless, to 
address this difference, and because a device containing large amounts 
of only black powder could potentially pose a safety hazard to 
consumers, the Commission is proposing limits to the pyrotechnic weight 
in various aerial and ground devices. These limits are discussed in 
Section IV.A.2., below.
    In addition, the Commission is considering limiting metallic 
powders with larger particle sizes in break charges or reports, 
possibly by limiting the permissible size and/or the permissible 
percentage of such metal powders.
d. FHSA Findings
i. Finding 1: Public Health and Safety
    In previous rulemakings supporting the 2-grain limit in 
1500.17(a)(3), the Commission has found that the degree and nature of 
the hazard associated with the devices subject to that limit are such 
that public health and safety necessitate the Commission banning 
devices that exceed that limit. The proposed method of identifying 
these devices supports and furthers that necessary ban by providing a 
quantifiable and reliable method of identifying these particularly 
explosive devices. As the Fireworks Annual Report indicates, serious 
injuries and deaths still occur that are associated with devices 
commonly subject to this limit, including injuries to young children. 
In addition, as staff's testing indicates, the current test method 
identifies fewer devices as being subject to the 2-grain limit than the 
APA Standard 87-1 method. Therefore, the Commission believes that the 
proposed method is necessary to protect consumer safety because a more 
straightforward, quantifiable, and repeatable test method that does not 
require extensive training and experience will more-consistently 
identify devices that need to be limited to 2 grains of pyrotechnic 
composition. Consequently, this method will be more effective in 
keeping such devices off the market.
ii. Finding 2: Voluntary Standards
    The Commission evaluated compliance with the 2-grain limit 
provision in APA Standard 87-1. The Commission believes that the test 
method is effective since it is a consistent and reliable method for 
identifying more explosive devices, such that the Commission is 
proposing to adopt the same method. However, the Commission does not 
believe that there is likely to be substantial compliance with that 
provision of APA Standard 87-1. The Commission's preliminary testing of 
samples collected from the Office of Compliance revealed that 84 
percent (54 of 64) of devices analyzed using the APA Standard 87-1 
method met that standard's definition of devices ``intended to produce 
audible effects'' and exceeded the 2-grain limit, in violation of the 
standard. Moreover, the severity of the potential injuries shown in 
CPSC's incident data (including severe burns and death) and the

[[Page 9017]]

vulnerability of the population at risk (including young children, as 
indicated in the Fireworks Annual Report) indicate the need for a high 
level of compliance. As discussed above, these factors are relevant to 
assessing whether there is likely to be ``substantial compliance'' with 
a voluntary standard. Therefore, the Commission believes that there is 
not likely to be substantial compliance with the voluntary standard, so 
a regulatory requirement is necessary.
iii. Finding 3: Costs and Benefits
    The Commission believes that the benefits of the proposed 
requirement bear a reasonable relationship to its costs. The benefits 
include reducing the likelihood and severity of injury by providing a 
simpler and more consistent means of identifying devices that have 
comparatively high explosive powers. As the Directorate for Economic 
Analysis (EC) memorandum in the briefing package for this NPR 
indicates, the costs of this requirement are likely to be low. Based on 
CPSC testing of fireworks samples, there may be a low level of 
compliance with the comparable provision in APA Standard 87-1; however, 
the costs associated with changes that would bring noncompliant devices 
into compliance are likely to be low. Any entities that do not already 
comply with the provision in APA Standard 87-1 would need to replace 
metallic powders with nonmetallic powder, or reduce the amount of 
metallic powders in their devices. Because manufacturers already use 
both types of powders in devices, and the costs of the two types are 
comparable, the costs are likely to be low.
iv. Finding 4: Alternatives
    The Commission believes that the proposed requirement is the least 
burdensome option that meets the safety goal of this provision. The 
Commission examined several test methods, including the method in the 
CPSC Testing Manual, a method based on explosive force, APA Standard 
87-1, the AFSL Standard, and the European Standard. The method in the 
CPSC Testing Manual requires highly experienced and trained testers to 
distinguish devices by listening to them; this requires highly-
specialized testers, and as the testing data suggests, this leads to 
comparatively fewer devices being identified as subject to the 2-grain 
limit. The AFSL Standard is more stringent than APA Standard 87-1, 
limiting break charges to black powder; but it is also less precise, 
allowing for equivalent nonmetallic fuel or fuel that is empirically 
shown to be like black powder. This less-defined standard creates a 
burden for testing various powders or strictly limits devices to black 
powder. The European Standard limits pyrotechnic composition 
differently for various devices, but these devices do not all correlate 
with devices available on the U.S. market. Consequently, the method the 
Commission proposes in this NPR is the least burdensome alternative 
because it provides a simple, precise, and quantifiable method of 
identifying devices that are subject to the 2-grain limit, minimizing 
the training needed, and eliminating the need to test the 
characteristics of various powders.
e. Enforcement Discretion for Minimal Contamination
    The proposed requirement would ban devices that contain any amount 
of metallic powder less than 100 mesh in particle size in the burst 
charge, when the burst charge is produced by more than 2 grains of 
pyrotechnic content. However, the Commission recognizes that it may be 
difficult to ensure that there is no such metallic powder present due 
to potential contamination from visual effects or environmental 
contamination, and it may be difficult to consistently identify the 
presence of metallic powder because of detection limitations and 
variation. Consequently, the Commission will allow for minimal 
contamination of up to, but not exceeding, 1.00 percent of metallic 
powder in burst charges that are subject to 1500.17(a)(3).
    The Commission believes that the presence of a metal, such as 
aluminum, in trace amounts would not pose an increased safety risk to 
consumers because a scarce amount of contaminant would not 
significantly add to the energy of the explosive. As the Chemistry 
memorandum in the briefing package for this NPR explains, staff's 
preliminary testing revealed that metallic content used in visual 
effects may inadvertently contaminate break charge content at very low 
levels. Staff found that when contamination occurred, the contamination 
level in the break charge was generally less than 1 percent. In 
addition, different detection instruments can vary in the particle 
sizes and metallic content levels they detect. Staff evaluated the 
detection levels of Inductively Coupled Plasma-Optical Emission 
Spectroscopy (ICP-OES) and X-Ray Fluorescence (XRF) and found that they 
produced largely similar results but can identify metallic content at 
slightly different levels. Commission staff believes that both ICP-OES 
and XRF are viable instruments for assessing compliance with proposed 
1500.17(a)(3).
    To account for these variables, the Commission will exercise 
enforcement discretion to allow up to, but not exceeding, 1.00 percent 
contamination of metallic powder in a burst charge. The Commission 
believes that 1.00 percent is an appropriate level for two reasons. 
First, 1.00 percent would allow for unintentional contamination at the 
levels Commission staff has seen are common in fireworks devices. As 
the Chemistry memorandum explains, staff's preliminary testing reveals 
that when metallic content present in visual effects inadvertently 
contaminates a break charge, it is generally at levels below 0.4 
percent; a 1.00 percent allowance should adequately allow for 
inadvertent contamination. Second, the increase in explosive force from 
1.00 percent metallic fuel contamination is minimal, and the Commission 
believes that it does not present a notable increase in the safety risk 
to the public. As staff's preliminary testing indicates, a 1.00 percent 
increase in metallic content increases the energy of a device by 3 
percent (using aluminum as an example), and further increases in 
metallic content correspondingly increase the explosive power of the 
device up to 25 percent, at which point the explosive power begins to 
diminish. Thus, contamination up to 1.00 percent likely does not 
notably increase the risk to consumers.
2. Limit Chemical Composition and Pyrotechnic Weight (16 CFR 
1500.17(a))
a. Rationale for Limiting Chemical Composition and Pyrotechnic Weight 
and Relevant Provisions in Voluntary Standards
    As discussed, the amount of pyrotechnic material in a fireworks 
device directly relates to the energetic power of the device, and 
greater energetic power presents increased safety risks to consumers. 
To mitigate this risk, 1500.17(a)(3) limits the pyrotechnic material in 
fireworks devices that are ``intended to produce audible effects.'' 
However, this risk also exists for devices that do not fall within that 
category. To address this, each of the voluntary and international 
standards on fireworks also limits the chemical composition and 
pyrotechnic weight of various devices. The specific limits vary with 
the type of device. For certain devices, the pyrotechnic weight limits 
address the proportion of break charge relative to the chemical 
composition or effects. This protects the public because a large 
proportion of break charge relative to effects may

[[Page 9018]]

disperse the effects further and injure bystanders or ignite nearby 
property.
    Currently, CPSC's fireworks regulations do not include such limits, 
except for certain devices, such as party poppers and firecrackers. The 
Commission proposes to adopt such limits to reduce the safety risks 
associated with higher levels of particular chemical compositions and 
ratios of pyrotechnic weight in specific devices.
    Each of the voluntary and international standards limits different 
devices (some of which overlap), and some of the limits differ. These 
limits are in section 3.1.1 and 3.1.3 (ground devices) and 3.1.2 
(aerial devices) of APA Standard 87-1; in sections 2-1.8, 2-2, 2-3, and 
2-4 of the AFSL Standard; and in Table 1 in part 5 of the European 
Standard. The APA Standard 87-1 limits specify a maximum chemical 
composition for components, lift charges, and devices, and a maximum 
ratio of burst charge to total weight of chemical composition. The AFSL 
Standard does the same, but with some different limits and with 
allowances for alternate lesser ratios and different device designs. 
The European Standard lists 30 different devices with corresponding net 
explosive content limits. However, the devices listed in the European 
Standard do not fully correspond with devices available in the U.S. 
market.
b. Proposed Regulatory Requirements
    The Commission proposes to incorporate by reference the limits in 
APA Standard 87-1 for mine and shell devices, aerial shell kits 
(reloadable tube), cylindrical fountains, cone fountains, illuminating 
torches, wheels, and chasers, with one modification. The categories of 
devices listed in APA Standard 87-1 are similar to the device 
delineations in the regulations with which regulated entities are 
already familiar. They also largely comply with APA Standard 87-1 for 
transportation purposes, and the Commission believes these limits 
provide for consumer safety by limiting the explosive power of devices.
    The Commission proposes to modify the provisions in APA Standard 
87-1, which it proposes to incorporate by reference into the 
regulation, by including an additional provision that limits the 
explosive force of certain aerial devices. For mine and shell devices 
and aerial shell kits (reloadable tube), the Commission proposes to 
specify, in addition to the provisions in APA Standard 87-1, that the 
lift charge of each shell is limited to black powder (potassium 
nitrate, sulfur, and charcoal) or similar pyrotechnic composition 
without metallic fuel. This aligns with the safety rationale regarding 
metallic fuel discussed above--namely, that metallic fuels can make an 
explosive more energetic per volume than devices that do not contain 
metallic powder; so limiting the lift charge of certain aerial devices 
to contain only black powder (i.e., nonmetallic fuel), would limit the 
explosive power of those devices.
    Although the provisions that the Commission proposes align with APA 
Standard 87-1's limits on chemical composition and pyrotechnic weights 
for aerial and ground devices, they differ from the voluntary standard 
in three ways. First, the Commission's proposed requirement does not 
include details about specific devices (e.g., descriptions) that it 
believes are unnecessary for these limits. Second, the Commission's 
proposed requirement includes additional information that clarifies the 
scope of the limits. The Commission believes that these differences are 
necessary to establish a clear requirement. Third, the Commission 
proposes to adopt limits for only some ground devices, excluding some 
of the ground devices listed in APA Standard 87-1, including ground 
spinners, flitter sparklers, toy smoke devices, and sparklers. The 
Commission is omitting these devices because, based on incident and 
injury data, the Commission does not believe these devices pose 
significant safety hazards to consumers to necessitate limits on their 
compositions.
    As discussed, the proposed revision to 1500.17(a)(3), which focuses 
on the metallic content of devices, would reduce the scope of fireworks 
devices that are subject to the 2-grain limit. Specifically, under the 
current regulation and CPSC staff's current test method, the 2-grain 
limit applies to any device that produces a ``loud report,'' whether it 
contains metallic fuel or only black powder; under the proposed 
requirement, the 2-grain limit would apply only to devices that contain 
metallic fuel and not devices that contain only black powder. The 
proposed pyrotechnic weight limits for aerial devices fills the gap 
created by this change, by limiting the explosive force of devices 
regardless of whether they contain metallic fuel or only black powder. 
To provide comparable limits for ground devices, the Commission also 
proposes to adopt the pyrotechnic weight limits for ground devices that 
are in APA Standard 87-1. Limits for ground devices will also 
compensate for the reduced scope that the proposed 1500.17(a)(3) 
creates, by preventing ground devices from containing large amounts of 
black powder. The Commission believes that these limits are necessary 
to protect the public because devices containing a large amount of 
black powder can pose a safety hazard; therefore, it is necessary to 
limit the power of devices that contain only black powder, as well as 
devices containing metallic powder.
    The proposed limits on chemical composition and pyrotechnic weight 
would create new limits on fireworks devices that do not currently 
exist in the regulations, thereby creating a new ban of hazardous 
substances that currently are not prohibited.
c. FHSA Findings
i. Finding 1: Public Health and Safety
    Fireworks devices with greater explosive content may contribute to 
more severe injuries and deaths than devices with less explosive power 
and labeling required by section 2(p)(1) of the FHSA is not adequate to 
protect the public health and safety. See 15 U.S.C. 1261(p)(1). 
Therefore, for the same reasons supporting the 2-grain limit in 
1500.17(a)(3), the Commission believes that chemical composition and 
pyrotechnic weight, including content ratios, need to be limited in 
devices that are not subject to 1500.17(a)(3) to protect the public 
from the safety risks of devices with high explosive content and those 
containing only black powder.
ii. Finding 2: Voluntary Standards
    With respect to the first prong of this finding, the Commission 
believes that compliance with the voluntary standard is likely to 
reduce the risk of injury, because the limits in the voluntary standard 
effectively reduce the explosive power of devices, which is why the 
Commission proposes to incorporate by reference the limits in the 
voluntary standard. As for the second prong of the finding, however, 
the Commission believes that there is not likely to be substantial 
compliance with the voluntary standard. Commission staff randomly 
tested fiscal year 2014 and 2015 fireworks samples collected by the 
Office of Compliance to evaluate compliance with the various limits in 
APA Standard 87-1. Staff analyzed 42 devices in total (12 reloadable 
aerial shell devices and 30 multiple-tube mine and shell devices). 
Although the sample size of this testing is insufficient to draw 
definitive conclusions, the results, nevertheless, are informative. Two 
(17%) of the 12 reloadable aerial shell devices and 8 (27%) of the 30 
multiple-tube mine and shell devices staff tested exceeded the

[[Page 9019]]

permissible break charge-to-effect ratio specified in APA Standard 87-
1. None of either type of device exceeded the maximum lift charge 
provided in APA Standard 87-1. Additionally, none of the reloadable 
aerial shell devices exceeded the total pyrotechnic composition limits 
in APA Standard 87-1, while 6 (20%) of the multiple-tube mine and shell 
devices exceeded those limits. The Commission does not have information 
regarding industry compliance with the limits on ground devices set 
forth in APA Standard 87-1, and requests such information and relevant 
data.
    As the preliminary testing staff conducted showed, between 15 
percent and 30 percent of tested devices did not comply with some 
portion of APA Standard 87-1's limits on chemical composition and 
pyrotechnic weight. Moreover, the potential severity of injuries and 
death associated with devices with greater explosive power, described 
in the previous section, indicate the need for particularly high 
compliance levels.
iii. Finding 3: Costs and Benefits
    The Commission believes that the benefits and costs of the proposed 
requirement bear a reasonable relationship because the minimal costs 
associated with limiting the content of fireworks devices are 
reasonable in light of the benefits to consumer safety. Benefits 
include reducing the presence of more-energetic devices on the market, 
which pose an increased safety risk to consumers. Anticipated costs 
include implementing quality control measures to ensure devices do not 
contain more than the proscribed limits; these quality control measures 
may include acquiring smaller measuring devices, which is likely low in 
cost. The proposed requirements are not expected to eliminate any 
products from the market because devices that are noncompliant could 
function as well if they complied with the proposed limits, and the 
Commission does not expect that manufacturers will have to redesign 
their products.
iv. Finding 4: Alternatives
    Given the minimal burden this requirement would create, the 
Commission believes that the proposed limits on chemical composition 
and pyrotechnic weight are the least burdensome way to achieve the 
safety purpose of the proposed requirement. In comparison to the AFSL 
and European Standards, the categories of devices listed in APA 
Standard 87-1 are similar to the device delineations in the regulations 
with which regulated entities are already familiar. They also largely 
comply with APA Standard 87-1 for transportation purposes because DOT 
incorporates that standard by reference into its regulations. The only 
substantial difference between APA Standard 87-1 and the proposed 
requirement is that the proposed requirement does not include all of 
the ground devices that APA Standard 87-1 lists. This is because the 
Commission does not have data indicating that those ground devices pose 
significant safety hazards to consumers. As such, the Commission does 
not believe that limits for those devices are necessary, and there 
would not be adequate support to justify the FHSA findings.
3. Add Hexachlorobenzene and Lead Tetroxide and Other Lead Compounds to 
the List of Prohibited Chemicals (16 CFR 1507.2)
a. Proposed Requirements and Rationale
    The Commission proposes to add hexachlorobenzene (HCB) and lead 
tetroxide and other lead compounds to the list of prohibited chemicals 
in 1507.2. Various studies indicate that fireworks devices contain HCB 
and lead tetroxide or other lead compounds. Specifically, studies have 
found HCB in 25 percent to 53 percent of fireworks samples, depending 
on the study and in concentrations up to 4.4 percent. See Fireworks NPR 
Briefing Package, Health Sciences Memorandum (Tab A of NPR Briefing 
Package), for further discussion of these studies. Testing by AFSL and 
CPSC has found lead compounds in 9 percent to 38 percent of fireworks 
samples, depending on the study, and in concentrations greater than 
0.25 percent.
    HCB and lead tetroxide and other lead compounds can be released 
into the environment when fireworks containing them explode; and 
although the Commission has not conducted an exposure analysis, the 
public can absorb both chemicals into their bodies through inhalation 
or surface contact. Moreover, both of these chemicals are likely 
carcinogenic and are toxic to humans. HCB is associated with numerous 
serious health effects, including developmental and reproductive 
toxicity, liver toxicity, and cancer, and can be passed to offspring. 
Absorption of lead compounds also can have serious impacts on 
neurological, reproductive, renal, cardiovascular, gastrointestinal, 
and hematological functions, particularly in children, and can be 
passed to offspring. The Commission proposes to prohibit fireworks 
devices from containing these chemicals. This proposed provision covers 
only health effects relating to non-carcinogenic liver effects and 
developmental effects including anatomical variations or delayed 
development (but not including malformations) associated with HCB and 
hematological, gastrointestinal, cardiovascular, renal, and 
neurological toxicity associated with lead tetroxide and other lead 
compounds.
    The FHSA authorizes the Commission to declare a substance or 
mixture of substances to be a hazardous substance within the scope of 
the FHSA, if it finds that the substance meets one of the categories 
described in section 2(f)(1)(A) of the statute. 15 U.S.C. 1262(a)(1). 
Section 2(f)(1)(A) of the FHSA lists various characteristics that 
qualify a substance as a ``hazardous substance.'' Id. at 1261(f)(1)(A). 
One of these characteristics is that the substance is ``toxic,'' which 
the FHSA defines as a substance ``which has the capacity to produce 
personal injury or illness to man through ingestion, inhalation, or 
absorption through any body surface.'' Id. at 1261(f)(1)(A), 1261(g). 
In addition to meeting the definition of ``toxic,'' the Commission must 
also determine that the substance ``may cause substantial personal 
injury or substantial illness during or as a proximate result of any 
customary or reasonably foreseeable handling or use'' in order to be a 
``hazardous substance'' under the FHSA. Id. at 1261(f)(1).
    As described in the Health Sciences memorandum in Tab A of the 
briefing package for this NPR, Commission staff believes that fireworks 
devices containing HCB or lead tetroxide or other lead compounds 
present toxicological hazards that can be absorbed into the human body; 
these substances have been demonstrated to be harmful to human health; 
and fireworks devices have been found to contain these chemicals. 
Therefore, the Commission believes that there is support to find that 
fireworks devices containing HCB or lead tetroxide or other lead 
compounds are ``toxic'' within the definition in the FHSA and may cause 
substantial illness as a result of reasonably foreseeable handling, 
use, or contact with such devices.
    All three voluntary and international standards regarding fireworks 
include some prohibition of lead compounds, HCB, or both. Although the 
three standards are similar, each addresses limits on HCB and lead 
compounds differently. Table 1 outlines the relevant requirements in 
each of the three standards, as well as the current CPSC regulations.

[[Page 9020]]



                         Table 1--Limits on HCB and Lead Compounds in Fireworks Devices
----------------------------------------------------------------------------------------------------------------
                                                       HCB                             Lead compounds
----------------------------------------------------------------------------------------------------------------
Current Sec.   1507.2................  Not listed........................  No limit.
APA Standard 87-1 \1\................  Not listed........................  Prohibited at concentrations of 0.25%
                                                                            by weight or more.
AFSL Standard \2\....................  Prohibited at concentrations above  Prohibited.
                                        0.01% by weight.
European Standard \3\................  Prohibited........................  Prohibited.
----------------------------------------------------------------------------------------------------------------
\1\ Section 3.7.
\2\ Appendix A, Table I, para. (e), (f).
\3\ EN 15947-5, pt 1.

    As discussed in Section IV.B.1., below, the Commission also 
proposes to allow for trace contamination with these and other 
prohibited chemicals, consistent with the voluntary standards. Section 
IV.B.1. discusses the various trace contamination limits the Commission 
is considering for these chemicals and other prohibited chemicals in 
further detail. Nevertheless, the Commission believes that there is a 
need, generally, to prohibit HCB and lead tetroxide and other lead 
compounds.
    The proposed requirement would constitute a new hazardous substance 
ban under the FHSA because it would ban chemicals that are not 
currently prohibited in CPSC's fireworks regulations.
b. FHSA Findings
i. Finding 1: Public Health and Safety
    The Commission believes that HCB and lead tetroxide and other lead 
compounds in fireworks present a serious hazard to consumers, 
justifying prohibiting these chemicals. As the Health Sciences 
memorandum in the briefing package for this NPR discusses, testing 
indicates that HCB and lead are present in some fireworks devices and 
bystanders can absorb these chemicals from the environment when they 
are released from fireworks. Moreover, both chemicals are associated 
with severe health problems.
ii. Finding 2: Voluntary Standards
    As for the first prong of this finding, the Commission believes 
that compliance with the voluntary standard would adequately reduce the 
risk of injury because the voluntary standard limits the explosive 
power of devices, which is why the Commission proposes to incorporate 
these limits by reference into the regulations. With respect to the 
second prong of this finding, the Commission believes that there is not 
likely to be substantial compliance with the voluntary standards. As 
the data shows, studies have found devices containing HCB or lead 
compounds and at levels above the limits permitted in the voluntary 
standards, indicating a lack of compliance. Because of the serious 
health effects associated with HCB and lead compounds, these two 
chemicals pose a particularly serious risk to consumers, necessitating 
a particularly high level of compliance.
iii. Finding 3: Costs and Benefits
    The Commission believes that the benefits of the recommended 
requirement bear a reasonable relationship to its costs. The benefits 
would include reducing consumer exposure to two chemicals that pose 
serious health effects. Comparatively, the costs are likely low because 
HCB and lead compounds are not necessary components of fireworks, they 
are not commonly used, and the effects they create can be replicated 
with other safer and less-costly materials.
iv. Finding 4: Alternatives
    The Commission believes that the recommended requirement is the 
least burdensome means of achieving the safety purpose. Prohibiting 
these two chemicals in unsafe levels is necessary to protect consumer 
safety; any alternative may not accomplish this purpose.
4. Adopt a Test Method To Evaluate Side Ignition (16 CFR 1507.3)
a. Proposed Requirement and Rationale
    Section 1507.3(a)(1) requires fireworks devices that use a fuse 
(with the exception of certain smaller fireworks devices) to use a fuse 
that is treated or coated to ``reduce the possibility of side 
ignition.'' Section 1500.17(a)(9) bans any fireworks device that does 
not comply with applicable requirements of part 1507 (except as 
specified in 1500.17(a)(9)), thereby making devices that do not meet 
the fuse requirements in 1507.3 ``banned hazardous substances.'' The 
regulation does not detail how to evaluate compliance with 
1507.3(a)(1), nor does it specify what qualifies as ``reduc[ing] the 
possibility of side ignition.'' The CPSC Testing Manual, APA Standard 
87-1, and the AFSL Standard provide additional details about this 
requirement. The CPSC Testing Manual provides a test for evaluating 
fuse side-ignition resistance. The testing involves holding a lit 
cigarette against the side of the fuse and measuring how long the fuse 
resists ignition. The CPSC Testing Manual directs testers to measure 
whether side ignition occurs within 5 seconds; and CPSC currently 
considers a device to have failed the fuse side-ignition resistance 
requirement in 1507.3(a)(1) if the fuse ignites within 3 seconds. APA 
Standard 87-1 and the AFSL Standard provide similar restrictions to 
1507.3(a)(1) and similar test methods to the CPSC Testing Manual, each 
requiring the fuse not to ignite within 3 seconds.
    Between 2005 and 2015, the Commission found 28 violations of 
1507.3(a)(1). In addition, Commission staff assessed 211 fireworks 
device samples for side ignition in fiscal year 2015. Staff found that 
1 sample (0.5%) ignited in less than 3 seconds; 12 samples (5.7%) 
ignited in 3 to 5 seconds; and 198 (93.8%) did not ignite within 5 
seconds.
    The potential for injury when a fireworks device inadvertently 
ignites is serious and could severely injure or kill a person 
attempting to light the fireworks device or harm bystanders. If a 
device lights quickly without the user deliberately lighting it, the 
user could be holding the device or be close to it when it explodes. 
Although incident and injury reports listed in the Fireworks Annual 
Report do not specifically reference side ignition of fireworks devices 
(which may be difficult to identify), the report does include numerous 
incidents in which users or bystanders died or sustained serious 
injuries when a fireworks device exploded while the user was holding it 
or when the device was lit too close to bystanders or to other 
fireworks or explosives. Injuries resulting from these incidents 
included severe burns, bone fractures, and lacerations.
    Because of the potential severity of injuries that can result if a 
device inadvertently ignites, the Commission proposes to adopt the test 
method for evaluating fuse side ignition described in the CPSC Testing 
Manual as part of

[[Page 9021]]

the regulations and to specify that fuses must resist side ignition for 
at least 3 seconds. Because this test method is part of the CPSC 
Testing Manual, it is not a requirement, but rather, is simply one 
method available for assessing compliance with 1507.3(a)(1). A clear 
and consistent understanding of the side ignition resistance 
requirement may improve safety because industry members would evaluate 
the side ignition resistance of fuses uniformly, allowing them to 
consistently and reliably identify fuses that risk side ignition, 
thereby posing a safety risk to consumers. Moreover, specifying that 
devices must resist side ignition for 3 seconds provides a clear 
threshold for determining the safety of the device.
    As explained, the proposed requirement, in effect, would create a 
new hazardous substance ban, triggering the findings required under the 
FHSA because it would require all manufacturers to test their devices 
and use that evaluation method, which may be different or more 
stringent than the method they currently use.
b. FHSA Findings
i. Finding 1: Public Health and Safety
    The Commission believes that the degree and nature of the hazards 
associated with side ignition are such that the public health and 
safety necessitate banning devices that exceed the proposed side 
ignition resistance limit. Inadvertent side ignition presents a serious 
safety hazard to consumers who may be near the device when it 
functions. Although incident data does not specifically capture side-
ignition incidents, the Fireworks Annual Report references deaths and 
serious injuries that resulted when a fireworks device fired too close 
to a user or bystander or when a user was holding it, which are among 
the circumstances likely to occur when a device inadvertently lights by 
side ignition. A quantifiable test for all regulated entities to follow 
would improve consumer safety by promoting consistent assessment of 
devices to screen for unsafe devices entering the market.
ii. Finding 2: Voluntary Standards
    In considering the first prong of this finding, the Commission 
believes that compliance with the voluntary standard would likely 
adequately reduce the risk of injury because it specifies a test for 
evaluating side ignition and specifies a reasonable time in which fuses 
should resist side ignition, which is why the Commission proposes to 
adopt a comparable test method and limit. But with respect to the 
second prong of this finding, the Commission believes that there is not 
likely to be substantial compliance with the APA Standard 87-1 test 
method and 3-second threshold. Although CPSC's preliminary testing 
indicates that a high percentage of devices satisfy the APA Standard 
87-1 fuse side-ignition resistance provisions, given the severity of 
the potential injuries that can result when a fireworks devices 
inadvertently lights, the Commission believes that a particularly high 
level of compliance is necessary to adequately reduce this risk. As 
discussed above, the severity of potential injuries is a factor the 
Commission considers relevant in assessing the level of compliance 
necessary to constitute ``substantial compliance'' with a voluntary 
standard. See H.R. Rep. No. 208, 97th Cong., 1st Sess. 875 (1981). 
Moreover, the test method that the Commission proposes includes 
additional details that APA Standard 87-1 does not, making the proposed 
test method clearer, which facilitates compliance and uniformity of 
testing and results.
iii. Finding 3: Costs and Benefits
    Third, the Commission believes that the benefits of the proposed 
requirement bear a reasonable relationship to its costs. Anticipated 
costs include developing a testing program to evaluate product 
compliance in order to issue certificates of compliance, modifying 
devices to resist side ignition for a longer period, and potentially 
removing a small proportion of devices from the market. The Commission 
does not expect the costs associated with these options to be high, 
particularly because testing costs can be allocated across all devices 
with fuses. Benefits include the reduced risk of injury to consumers, 
including a reduced risk of serious injuries associated with devices 
firing close to users.
iv. Finding 4: Alternatives
    Fourth, the Commission believes that the proposed requirement is 
the least burdensome way to achieve the targeted safety purpose. The 
proposed test method and 3-second threshold are consistent with the 
voluntary standards and the CPSC Testing Manual and would facilitate 
compliance and consumer safety.
5. Require Bases To Remain Attached to Devices (16 CFR 1507.4)
a. Proposed Requirement and Rationale
    Section 1507.4 provides a minimum base-to-height ratio for 
fireworks devices that aims to reduce the likelihood of devices tipping 
over. The ratio test is intended to prevent devices from tipping over, 
but it is a static test that does not evaluate whether a device will 
tip over when firing. When firing, a device may tip over if there is no 
base, or if the base is not securely attached. If a device tips over 
when firing, it presents a serious safety hazard because it could fire 
in the direction of bystanders or nearby property, or users may return 
to a lit device to correct the tip over. Although the Fireworks Annual 
Report does not specifically track incidents or injuries that involve 
detached bases, the report does indicate that during a 1-month period 
in 2015, 6 percent of incidents involved devices tipping over, and 13 
percent of incidents involved errant flight paths (including devices 
firing at bystanders rather than directly upwards), which resulted in 
severe burns. Although these incidents are not attributable to base 
detachments, specifically, incidents involving devices tipping over or 
having errant flight paths are the types of incidents that can occur 
when a base detaches from a device.
    Commission staff has observed that several devices on the market do 
not have bases, or they have bases that became detached before or 
during use. Although staff does not systematically check for base 
attachment issues because that currently is not a requirement, staff 
nevertheless, may record these issues in notes on test reports during 
routine testing. Because staff does not systematically check and record 
base attachment issues, the reports that do reflect such issues 
represent the minimum number of base attachment issues that staff has 
witnessed. Between fiscal year 1999 and 2016, staff reports indicate 
that 88 devices had no base, or the base detached before or during 
operation; 32 devices tipped over during testing; and 76 devices had 
compromised tube integrity. More than half of the base separations that 
staff observed were between fiscal years 2010 and 2016. This could 
suggest a decline in quality control, although there are other possible 
explanations as well. In some of these cases, staff noted that the base 
was detached or broken when received; in others, the base detached 
during handling; and in others, the base detached or cracked when the 
device fired. Staff has identified 111 samples (2.4%) out of 4,554 
devices that have, or could have bases and that contained notes 
indicating that bases were either missing or functioned improperly 
during operation. This indicates that there are a large number of 
devices on the market that potentially pose a safety hazard if a device 
tips over.

[[Page 9022]]

    Because of the safety risk associated with devices tipping over, 
the role base attachment can play in tip-over incidents, staff's 
observations of devices that rely on bases to operate properly, and 
staff's observation of devices on the market that do not have bases 
that are attached securely, the Commission proposes to require bases to 
remain attached to devices during storage, handling, and normal 
operation.
    This proposed requirement is similar to provisions in the AFSL 
Standard and APA Standard 87-1 that require bases to remain attached to 
devices during transportation, handling, and normal operation. However, 
because Commission staff has observed devices that arrive with no base 
or a detached or broken base, the Commission proposes to extend this 
requirement to storage as well. Because DOT has jurisdiction over 
transportation safety, the Commission's proposed provision does not 
address transportation.
    This proposal would create a new hazardous substance ban because it 
would add a requirement to 1507.4 that would require bases to remain 
attached during storage, handling, and normal operation. As noted, any 
fireworks device that does not comply with part 1507 constitutes a 
banned hazardous substance under 1500.17(a)(9).
b. FHSA Findings
i. Finding 1: Public Health and Safety
    The Commission believes that the degree and nature of the hazard 
associated with bases detaching and devices tipping over when firing 
are such that the public health and safety necessitates the Commission 
banning devices that do not have bases that are attached securely. 
Commission testing has found numerous devices that do not have bases 
that are attached securely and have tipped over during firing. 
Moreover, the proportion of these devices has increased in recent 
years. If a device tips over when firing, it can result in serious 
injuries. Although the incident reports do not address base detachments 
specifically, tip overs and other incidents can result when a base 
detaches and have resulted in serious burns to users and bystanders.
ii. Finding 2: Voluntary Standards
    The Commission also believes that the voluntary standard provisions 
regarding base detachment are not adequate. For one, the voluntary 
standards include requirements relevant to transportation, which falls 
within DOT's purview. In addition, the Commission believes that the 
voluntary standards are not likely to adequately reduce the safety risk 
associated with base detachments because they do not address detachment 
that occurs during storage. Commission staff has observed fireworks 
devices with bases that were missing, broken, or detached before staff 
handled and operated them. As such, staff concluded that it is 
necessary to require attachment during storage. Finally, the Commission 
believes that there is not substantial compliance with the voluntary 
standards. In recent years, Commission staff has observed devices with 
missing, broken, or detached bases. This suggests that there is not 
substantial compliance with the voluntary standards. The presence of 
devices on the market that do not comply with the voluntary standards 
and the serious injuries that can result when such noncompliant devices 
tip over during firing, support the Commission's finding that there is 
not sufficient compliance with the voluntary standards.
iii. Finding 3: Costs and Benefits
    The Commission believes that the costs associated with the proposed 
requirement are reasonable, relative to the safety benefits. These 
costs include affixing bases to devices; designing them as a single 
piece; and incurring the time, materials, and shipping costs associated 
with those modifications. Although the Commission cannot estimate the 
safety benefits of improving the stability of devices, the general 
occurrence of tip-over incidents, and the potentially serious injuries 
that can result, supports the need for safety measures that would 
reduce them.
iv. Finding 4: Alternatives
    The Commission believes that the proposed requirement is the least 
burdensome way to achieve the safety goal. The proposed requirement is 
performance-based, rather than prescriptive, allowing manufacturers 
numerous ways to comply. The proposal also is consistent with 
requirements in the voluntary standards.
6. Prohibit Devices From Projecting Fragments When Functioning
a. Proposed Requirement and Rationale
    Incident data reported to the Commission for 2005 to 2015 indicate 
that some incidents may have involved fireworks that projected 
fragments when they fired, injuring bystanders. Although it was not 
clear in all of these incidents whether the fragments were part of a 
consumer fireworks device or debris in the surrounding area, the 
resulting injuries demonstrate the risk to consumers. The reported 
incidents included debris in a bystander's eye; third-degree burns on a 
bystander's foot; a metal shard lodged in a bystander's ankle when the 
device fired sideways; and first-degree burns and a corneal abrasion 
from a piece of metal in a bystander's eye. As these incidents 
demonstrate, fragments of hard materials from a firing fireworks device 
can cause serious injuries. Moreover, during routine compliance 
testing, Commission staff has observed hard plastic, metal, or other 
fragments expelled when fireworks devices function.
    To address this safety hazard, the Commission proposes to prohibit 
fireworks devices from projecting sharp debris when functioning. 
Section 3.7.2 of APA Standard 87-1 prohibits fireworks devices from 
propelling sharp fragments of specific materials when set off. The AFSL 
Standard includes a similar, more general requirement, prohibiting 
devices from projecting flaming or glowing pieces (section 2-1.11). The 
Commission proposes to incorporate by reference the APA Standard 87-1 
provision because it provides a more detailed requirement, listing 
specific types of materials that a fireworks device may not project, 
including metal, glass, and brittle plastic. However, the Commission 
requests comments on whether this provision should be limited to 
certain sizes or amounts of these fragments, rather than a strict 
general ban, because devices may include these materials as necessary 
components.
    Because the regulations do not currently prohibit devices that 
project sharp fragments, this would be a new ban, subject to the FHSA 
findings.
b. FHSA Findings
i. Finding 1: Public Health and Safety
    The Commission believes that this ban is necessary to adequately 
protect the public from the risk of serious injury that can result when 
fireworks devices project sharp fragments. Commission staff has 
observed devices project fragments when firing and incident data 
demonstrates the occurrence and severity of these incidents.
ii. Finding 2: Voluntary Standards
    The Commission believes that APA Standard 87-1 would adequately 
reduce the risk of injury associated with projected fragments because 
it prohibits devices from projecting fragments that can injure 
bystanders, which is why the Commission proposes to incorporate by 
reference this provision of the voluntary standard. But the Commission 
does not believe that there is likely to be substantial compliance with 
that

[[Page 9023]]

standard, given the severity of potential injuries. As discussed above, 
the severity of potential injuries is a factor the Commission considers 
relevant in assessing the level of compliance necessary to constitute 
``substantial compliance'' with a voluntary standard. See H.R. Rep. No. 
208, 97th Cong., 1st Sess. 875 (1981). Although there are only eight 
reported incidents, the reported injuries demonstrate the potential 
severity of injuries that projected fragments can cause, including 
first-degree burns and eye injuries. Accordingly, the level of 
compliance must be particularly high.
iii. Finding 3: Costs and Benefits
    The Commission believes that the benefits of the proposed 
requirement bear a reasonable relationship to the costs. The benefits 
include increased consumer safety. The costs include possibly 
redesigning devices to eliminate parts that may be dispersed or 
expelled as fragments or potentially implementing greater quality 
control to ensure that such parts are not dispersed or expelled as 
fragments. Commission staff does not have sufficient information to 
determine the expected costs of these modifications, but anecdotal 
evidence indicates that less than 10 percent of the market does not 
comply with the proposed requirement.
iv. Finding 4: Alternatives
    The Commission believes that the proposed requirement is the least 
burdensome way to achieve the safety goal. The AFSL Standard and APA 
Standard 87-1 provide similar alternatives, and the proposed 
requirement is a performance-based standard that prohibits devices that 
project fragments and does not otherwise limit the design of devices.

B. Easing Existing Regulatory Requirements

    The following proposed provision would not create any new 
requirements or ban any hazardous substances. Rather, the proposed 
provision would ease the existing regulatory requirements applicable to 
fireworks devices.
1. Allow Trace Amounts of Prohibited Chemicals (16 CFR 1507.2)
    Section 1507.2 prohibits the presence of certain chemicals in 
fireworks devices. This requirement has existed in CPSC's regulations 
since 1976. 41 FR 9512 (Mar. 4, 1976); 41 FR 22931 (June 8, 1976). 
However, technology has advanced significantly since CPSC adopted this 
provision, and now testing can identify previously undetectable trace 
amounts of a chemical. This precision can make it difficult and 
burdensome to demonstrate the absence of prohibited chemicals in any 
amount because instruments often can quantify the presence of a 
chemical at parts per billion or parts per trillion, but not zero. 
Instruments and analyses that can test for the presence of chemicals at 
infinitesimal levels are costly and often require significant sample 
preparation, while simpler and less costly test methods (e.g., X-Ray 
Fluorescence spectroscopy) are available to identify the presence of 
chemicals.
    Given the nature of the chemicals prohibited in fireworks devices 
and the manner in which these chemicals appear in fireworks devices in 
trace amounts, the Commission believes that their presence is not 
intentional. In large enough amounts, these chemicals are unstable or 
pose health or environmental risks, so manufacturers would not 
deliberately add them to devices. Rather, when they are present, it is 
likely the result of their inadvertent presence in the environment 
during production. The Commission believes that trace amounts of these 
chemicals do not present a risk to consumers because such minimal 
levels would not affect the rate of reaction and consequent explosive 
power.
    To reflect current technological capabilities, the relative 
difficulty and cost of identifying and eliminating all trace amounts of 
prohibited chemicals, the unintentional nature of trace contamination, 
and the negligible safety implications of trace contamination, the 
Commission proposes to allow trace amounts of the chemicals prohibited 
in 1507.2 to be present in fireworks devices.
    Existing standards and Commission testing and research provide some 
options for selecting an appropriate trace allowance limit. APA 
Standard 87-1 and the AFSL Standard both allow for small amounts of 
prohibited chemicals as impurities. APA Standard 87-1, section 3.7.1, 
allows for trace amounts of all prohibited chemicals, if the trace 
amount is less than 0.25 percent by weight. The AFSL Standard, Appendix 
A, Table 1, allows for trace contamination of HCB at the limit of 0.01 
percent by weight, but does not include a general allowance for all 
prohibited chemicals. There are also limits on lead content in other 
consumer products. The Consumer Product Safety Improvement Act (CPSIA; 
Pub. L. 110-314, 122 Stat. 3016) limits the lead content of most 
children's products to 0.01 percent by weight and limits lead compounds 
in consumer surface-coating materials to 0.009 percent by weight.
    Additionally, Commission staff conducted preliminary testing to 
identify prohibited chemicals in fireworks devices. Examining samples 
collected from the Office of Compliance from fiscal years 2014 and 
2015, staff found that 90 percent of the samples (29 of 32) contained 
titanium with 100-mesh particle size or smaller, in violation of 
1507.2(j), and 38 percent of the samples (12 of 32) contained lead, 
which the Commission proposes to prohibit in this NPR. However, 
applying a trace contamination allowance of 0.25 percent by weight 
(consistent with APA Standard 87-1), only 9 percent (3 of 32) exceeded 
this limit for titanium with 100-mesh particle size or smaller and only 
3 percent (1 of 32) exceeded this limit for lead compounds. Applying an 
even lower contamination allowance of 0.05 percent by weight, only a 
few samples (between 9 percent and 16 percent) exceeded this threshold 
for titanium with 100-mesh particle size or smaller, and none of the 
samples exceeded this limit for lead compounds. As discussed, various 
studies have found HCB in fireworks devices in ranges less than and 
greater than 0.01 percent, 0.05 percent, and 0.25 percent by weight.
    Based on this information, there are several options that the 
Commission may adopt as a general allowance for all prohibited 
chemicals or as trace allowances for particular chemicals, such as HCB 
and lead tetroxide and other lead compounds. These options include:
     Allowing trace amounts:
    [cir] Less than 0.25 percent by weight (consistent with the general 
limit in APA Standard 87-1);
    [cir] less than 0.01 percent by weight (consistent with CPSIA lead 
limits);
    [cir] less than 0.05 percent by weight (since CPSC's initial 
testing indicates that most devices comply with this level);
    [cir] less than 0.01 percent by weight (consistent with the most 
stringent allowance in the voluntary standards); or
    [cir] less than 0.009 percent by weight (consistent with the CPSIA 
limit on lead compounds in certain consumer materials); or
     adopting no allowance for certain chemicals.
    The Commission does not have exposure data regarding the relative 
safety of the various trace contamination levels identified.
    With the exception of HCB, the Commission proposes to allow for 
trace amounts up to 0.25 percent of each of

[[Page 9024]]

the prohibited chemicals listed in 1507.2, including lead tetroxide and 
other lead compounds, which the Commission proposes to add to 1507.2 in 
this NPR. This contamination level is consistent with the level 
provided in APA Standard 87-1. The Commission proposes to allow for 
trace amounts of 0.01 percent for HCB. This contamination level is 
consistent with the level provided in the AFSL Standard.
    The Commission also may opt to adopt trace contamination allowances 
in the regulations, in compliance guidance, or in the CPSC Testing 
Manual. Incorporating trace allowance limits into compliance guidance 
or the CPSC Testing Manual would maintain the strict prohibition in the 
regulations but give the Commission flexibility in enforcing violations 
of the prohibited chemicals ban. Including these allowances in 
compliance guidance or the CPSC Testing Manual would not create or 
modify the current requirement in 1507.2, but would serve only as an 
option available for Commission flexibility.

C. Clarifications of Existing Regulations

    The following proposed requirements would not create any new 
requirements or ban any hazardous substances; rather they would 
facilitate regulated entities' understanding of the existing or 
proposed regulations by providing definitions and eliminating 
inconsistencies. Because these proposed requirements would not create 
new hazardous substance bans, they do not require the Commission to 
make the FHSA findings.
1. Define ``Burst Charge'' (16 CFR 1500.3)
    The proposed modifications to 16 CFR 1500.17(a)(3) regarding the 
method of identifying devices that are limited to 2 grains of 
pyrotechnic composition (discussed in Section IV.A.1.) focus on the 
content of the ``burst charge'' of the device. Additionally, ``burst 
charge'' appears in the proposed chemical composition and pyrotechnic 
weight limits (discussed in Section IV.A.2.). Consequently, the meaning 
of the term ``burst charge'' is central to these proposed requirements, 
and regulated entities need a clear understanding of the term to comply 
with the proposed requirements. Therefore, the Commission proposes to 
define ``burst charge.''
    The proposed requirements in which the term ``burst charge'' would 
appear are consistent with provisions in APA Standard 87-1. APA 
Standard 87-1 defines ``burst charge'' in section 2.5, describing its 
function and the effects it produces--namely, that it is a chemical 
composition that breaks open an aerial device--and identifying 
``expelling charge'' and ``break charge'' as common synonyms for 
``burst charge.'' The Commission believes that this definition 
accurately describes the term ``burst charge.'' For that reason, and to 
align with the industry standard, the Commission proposes to 
incorporate by reference the definition of ``burst charge'' as it 
appears in the first two sentences of APA Standard 87-1, section 2.5.
2. Define ``Chemical Composition'' (16 CFR 1500.3)
    The term ``chemical composition'' is central to the proposed 
chemical composition and pyrotechnic weight limits (described in 
Section IV.A.2.). The Commission proposes to define ``chemical 
composition'' so that regulated entities have a clear and precise 
understanding of this term to comply with the proposed limits.
    The chemical composition limits that the Commission proposes are 
similar to those in APA Standard 87-1. APA Standard 87-1 defines 
``chemical composition'' in section 2.6, describing it as pyrotechnic 
and explosive compositions and detailing its components. The Commission 
believes that this definition accurately describes ``chemical 
composition.'' For this reason, and to align with the industry 
standard, the Commission proposes to incorporate by reference the 
definition of ``chemical composition'' as set forth in APA Standard 87-
1, section 2.6.
    In addition, the Commission proposes to specify that ``chemical 
composition'' consists of lift charge, burst charge, and visible and 
audible effect materials. This additional information is not in APA 
Standard 87-1, but the Commission believes it clarifies information, 
which facilitates industry compliance with the proposed chemical 
composition and pyrotechnic weight limits.
3. Define ``Explosive Composition'' (16 CFR 1500.3 and 1507.1)
    The proposed definition of ``chemical composition'' includes the 
term ``explosive composition.'' In addition, the proposed definition of 
``firecrackers,'' discussed below, also includes this term. To 
facilitate clear and consistent industry understanding of this term, 
the Commission proposes to define ``explosive composition.''
    APA Standard 87-1 defines ``explosive composition'' in section 
2.6.1, describing the function and effect. The Commission believes that 
this definition accurately describes the term. For this reason, and for 
consistency with this recognized standard, the Commission proposes to 
incorporate by reference APA Standard 87-1, section 2.6.1.
4. Define ``Lift Charge'' (16 CFR 1500.3)
    The chemical composition limits that the Commission proposes 
(described in Section IV.A.2., above) include limits on the chemical 
composition of ``lift charges.'' The Commission proposes to define the 
term ``lift charge'' so that regulated entities have a clear and 
consistent understanding of the components to which these limits apply.
    The chemical composition limits that the Commission proposes are 
similar to those in APA Standard 87-1. Standard APA Standard 87-1 also 
defines ``lift charge'' in section 2.10, describing its function 
(lifting or propelling a device into the air) and composition. The 
Commission believes that this definition accurately describes this 
term. For this reason, and for consistency with the comparable 
requirements in APA Standard 87-1, the Commission proposes to 
incorporate by reference section 2.10 of APA Standard 87-1.
    However, the APA Standard 87-1 definition of ``lift charge'' refers 
only to mine or shell devices, not all fireworks devices. As an 
alternative to the APA Standard 87-1 definition, the Commission 
believes that it may be appropriate to define ``lift charge'' in a 
manner that applies to all fireworks devices. The Commission requests 
comments on this alternative.
5. Define ``Pyrotechnic Composition'' (16 CFR 1500.3 and 1507.1)
    The term ``pyrotechnic composition'' appears in several existing 
CPSC fireworks regulations, as well as in several of the requirements 
proposed in this NPR. Specifically, the term appears in the proposed 
definitions of ``burst charge'' and ``chemical composition''; the 
proposed chemical composition and pyrotechnic weight limits (described 
in Section IV.A.2., above); and 16 CFR 1507.3, 1507.5, 1507.9, and 
1507.11 (in reference to fuse requirements, pyrotechnic leakage, toy 
smoke and flitter devices, and party poppers, respectively). The 
Commission proposes to define ``pyrotechnic composition'' so that the 
regulated industry has a clear and uniform understanding of this term 
and the related requirements. Such an understanding facilitates proper 
testing and regulatory compliance, which, in turn, promotes consumer 
safety.
    Section 2.6.2 of APA Standard 87-1 defines ``pyrotechnic 
composition,'' describing how it functions and the

[[Page 9025]]

effects it produces. The Commission believes that this definition 
accurately describes ``pyrotechnic composition.'' For that reason, and 
for consistency with the industry standard, the Commission proposes to 
incorporate by reference APA Standard 87-1, section 2.6.2.
6. Clarify Requirements for ``Aerial Bombs'' (16 CFR 1500.3, 
1500.17(a)(3) and 1500.17(a)(8))
    The term ``aerial bomb'' appears twice in CPSC's fireworks 
regulations--in 16 CFR 1500.17(a)(3) and in 1500.17(a)(8). Section 
1500.17(a)(3) bans fireworks devices intended to produce audible 
effects if the audible effect is produced by more than 2 grains of 
pyrotechnic composition. This section lists examples of devices that 
are ``intended to produce audible effects,'' including ``aerial 
bombs.'' As a result, 1500.17(a)(3) bans aerial bombs only if they 
contain more than 2 grains of pyrotechnic composition. In contrast, 
1500.17(a)(8) bans various devices, listing each one, including 
``aerial bombs.'' This provision does not limit the ban to devices 
containing more than 2 grains of pyrotechnic composition; rather, it 
bans all of the listed devices outright, including ``aerial bombs.'' As 
such, 1500.17(a)(3) and 1500.17(a)(8) are inconsistent.
    To eliminate this inconsistency, the Commission proposes to remove 
``aerial bombs'' from 1500.17(a)(3) and retain it, as written, in 
1500.17(a)(8). The Commission believes that it is appropriate to ban 
aerial bombs entirely because they present a serious risk of injury to 
consumers. The proposed removal of ``aerial bombs'' from 1500.17(a)(3) 
would not create any new requirements or ban any new hazardous 
substances. Rather, the Commission would merely be maintaining one of 
the two existing provisions.
    In addition, the Commission proposes to define ``aerial bombs'' to 
provide regulated entities with clarity about which devices are banned. 
None of the existing voluntary or international standards define 
``aerial bombs.'' The Commission proposes to define ``aerial bomb'' as 
``a tube device that fires an explosive charge into the air without 
added visual effect.''
7. Define ``Firecrackers'' (16 CFR 1500.3 and 1507.1) and Rephrase 
References to Firecrackers (16 CFR 1500.17(a)(3), 1500.17(a)(8), 
1500.83(a)(27)(i), and 1500.85(a)(2))
    The Commission proposes two revisions to clarify the regulations 
regarding firecrackers. First, the Commission proposes to define 
``firecrackers.'' The term ``firecrackers'' appears in 1500.17, 
1500.85, and 1507.1. The Commission believes that a definition of 
``firecrackers'' would provide a clear understanding of what these 
devices include, and thereby, facilitate compliance with requirements 
that apply to them.
    Both APA Standard 87-1 (section 3.1.3.1) and the AFSL Standard 
(section 1-1.7) define ``firecrackers'' in largely the same way, 
describing the materials and effects of a firecracker and specifying 
limits that apply to firecrackers. The Commission believes that both 
definitions are clear and accurate, but proposes to incorporate by 
reference the APA Standard 87-1 definition for consistency with other 
proposed requirements that would incorporate that standard by reference 
and to reduce industry burdens by requiring compliance with one 
voluntary standard, rather than two.
    Second, the Commission proposes to revise the references to 
firecrackers in the regulations so that they are consistent and more 
straightforward. CPSC's regulations refer to ``firecrackers,'' 
``firecrackers designed to produce audible effects,'' and ``devices 
designed to produce audible effects.'' See 1500.17(a)(3), 
1500.17(a)(8), 1500.83(a)(27)(i), and 1500.85(a)(2). As the proposed 
definition of ``firecrackers'' indicates, these devices create a noise 
(or audible effect) when they function. This noise is an intentional 
effect that firecrackers are designed to produce. Therefore, ``designed 
to produce audible effects'' is an unnecessary qualifier for 
``firecrackers.'' To make the regulations clearer and less cumbersome, 
the Commission proposes to replace the references to devices ``designed 
to produce audible effects'' in 1500.17(a)(3), 1500.17(a)(8), 
1500.83(a)(27)(i), and 1500.85(a)(2) with appropriate descriptions of 
the term that are not redundant. This revision may also minimize 
confusion with the similar phrase ``intended to produce audible 
effects'' in 1500.17(a)(3), which refers to a different category of 
devices.
8. Move the Exemption for Firecrackers From the Scope Section of Part 
1507 to the Individual Sections of Part 1507 That Are Relevant to 
Firecrackers (16 CFR 1507.1, 1507.2, and 1507.3)
    Section 1507.1 establishes the scope of part 1507, stating that any 
fireworks devices, other than firecrackers, that are not otherwise 
banned, are subject to the requirements in part 1507. Only two sections 
within part 1507--1507.2 and 1507.3--could apply to firecrackers. In a 
previous rulemaking, the Commission concluded that 1507.2 should not 
apply to firecrackers because 1507.2 prohibits chlorates, which are 
common and adequately safe in firecrackers containing flash powder. 41 
FR 9,520 (Mar. 4, 1976). Similarly, the Commission decided that 
firecrackers need not be subject to the fuse requirements in 1507.3 
because the type of fuses those requirements aim to address--namely, 
those that create a safety hazard--are not used in firecrackers. Id. 
The remaining sections of part 1507 are specific to particular devices 
(none of which are firecrackers) or particular features that 
firecrackers do not have and, therefore, are not relevant or applicable 
to firecrackers. Consequently, there is no need to exempt firecrackers 
from the scope of those provisions.
    In order to streamline the regulations, the Commission proposes to 
remove the exemption for firecrackers from 1507.1 and, instead, place 
it in the only two sections to which the exemption is relevant--1507.2 
and 1507.3. This does not alter the substantive requirements or the 
scope of the exemption in this part. Rather, it simply lists the 
exemption where it is actually applicable, rather than applying it 
unnecessarily broadly to the entire part.
9. Make Editorial Correction to Language Regarding Fuse Attachment (16 
CFR 1507.3)
    Section 1507.3(b) requires fuses to remain securely attached to 
fireworks devices. To evaluate whether a fuse is securely attached to 
the device, the regulation requires the fuse to support the lesser of: 
(1) The weight of the fireworks device plus 8 ounces, or (2) double the 
weight of the device, without separating from the device. However, in 
describing the two alternate weight options, the regulation states: 
``whether is less,'' rather than, ``whichever is less.'' Although the 
meaning of the regulation is apparent, the Commission proposes to 
correct this typographical error.
10. Define ``Base'' (16 CFR 1507.4)
    Section 1507.4 specifies requirements relevant to bases of 
fireworks devices and, as described in Section IV.A.5., above, the 
Commission proposes additional requirements regarding bases in this 
NPR. To facilitate a clear understanding of the features subject to 
those requirements, the Commission also proposes to define the term 
``base.''
    APA Standard 87-1 does not define ``base,'' but section 1-2.1 of 
the AFSL Standard does, describing it as a platform from which a 
fireworks device functions and to which tubes are

[[Page 9026]]

attached. The Commission proposed to adopt a definition that is 
consistent with the AFSL Standard, but includes more detail to provide 
greater precision and clarity.
11. Define ``Burnout'' and ``Blowout'' (16 CFR 1507.6)
    Section 1507.6 requires the pyrotechnic chamber in fireworks 
devices to be constructed ``to allow functioning in a normal manner 
without burnout or blowout.'' The Commission proposes to adopt 
definitions for ``burnout'' and ``blowout'' in order to provide a clear 
and consistent understanding of the existing requirement.
    APA Standard 87-1 defines ``blowout'' in section 2.3 and 
``burnout'' in section 2.4, describing the observable effects of these 
phenomena. The Commission believes that these definitions accurately 
capture the meaning of these terms and reflect the understanding of the 
fireworks industry. Therefore, the Commission proposes to incorporate 
by reference APA Standard 87-1, sections 2.3 and 2.4.

V. Incorporation by Reference

    This NPR proposes to incorporate by reference several provisions of 
APA Standard 87-1. The Office of the Federal Register sets out specific 
procedural and content requirements to incorporate a material by 
reference in 1 CFR part 51. Under these regulations, an NPR must 
summarize the material it proposes to incorporate by reference and 
discuss how that material is available to interested parties. 1 CFR 
51.3(a), 51.5(a). In accordance with this requirement, Sections III. 
and IV. of this preamble summarize the provisions of APA Standard 87-1 
that the Commission proposes to incorporate by reference. Additionally, 
by permission of APA, interested parties may view the standard as a 
read-only document during the comment period of this NPR at: http://www.americanpyro.com/. Interested parties may also purchase a copy of 
APA Standard 87-1 from American Pyrotechnics Association, 7910 Woodmont 
Ave., Ste. 1220, Bethesda, MD 20814; http://www.americanpyro.com/. 
Interested parties may also inspect copies of the standard at CPSC's 
Office of the Secretary, U.S. Consumer Product Safety Commission, Room 
820, 4330 East-West Highway, Bethesda, MD 20814, telephone 301-504-
7923.

VI. Paperwork Reduction Act

    The proposed requirements do not include any provisions that would 
constitute a collection of information under the Paperwork Reduction 
Act of 1995 (PRA; 44 U.S.C. 3501-3521). The proposed requirements do 
not request or require any parties to create or maintain records or 
disclose or report information to the Commission, any government body, 
the public, or third parties. Therefore, the requirements of the PRA do 
not apply to this NPR.

VII. Regulatory Flexibility Act

A. Introduction

    The Regulatory Flexibility Act (RFA; 5 U.S.C. 601-612) requires 
agencies to consider the impact of proposed rules on small entities, 
including small businesses. Section 603 of the RFA requires the 
Commission to prepare an initial regulatory flexibility analysis (IRFA) 
and make it available to the public for comment when the NPR is 
published. The IRFA must describe the impact of the proposed rule on 
small entities and identify significant alternatives that accomplish 
the statutory objectives and minimize any significant economic impact 
of the proposed rule on small entities. Specifically, the IRFA must 
discuss:
     The reasons the agency is considering the action;
     the objectives of and legal basis for the proposed rule;
     the small entities that would be subject to the proposed 
rule and an estimate of the number of small entities that would be 
impacted;
     the reporting, recordkeeping, and other requirements of 
the proposed rule, including the classes of small entities subject to 
it and the skills necessary to prepare the reports or records; and
     the relevant federal rules that may duplicate, overlap, or 
conflict with the proposed rule. 5 U.S.C. 603.
    In addition, the IRFA must describe any significant alternatives to 
the proposed rule that accomplish the stated objectives of applicable 
statutes and minimize any significant economic impact on small 
entities. Id. This section summarizes the IRFA for this proposed rule. 
The complete IRFA is available in the briefing package for this NPR, 
available at https://www.cpsc.gov/Newsroom/FOIA/ReportList?field_nfr_type_value=commission. To summarize, the 
Commission does not have enough information to determine whether all of 
the provisions in the proposed rule would not have a significant 
economic impact on a substantial number of small entities. The 
Commission does not expect the costs of compliance with several of the 
provisions to pose a significant impact to a substantial number of 
small entities; however, the Commission does not have enough 
information to estimate the costs of compliance with the provisions 
regarding base attachment and fragments, with precision. To further 
inform its decision and analysis, the Commission requests comments on 
the costs of complying with the provisions regarding base attachment 
and fragments.

B. Reasons the Agency Is Considering the Action

    The Commission is considering the proposed rule to update its 
existing fireworks regulations to reflect the current fireworks market, 
changes in technology, existing fireworks standards, and safety issues 
associated with fireworks devices in order to reduce the risk of injury 
that fireworks devices present to consumers and align with other 
voluntary and federal standards.

C. Objectives of and Legal Basis for the Proposed Rule

    The objective of the proposed rule is to update CPSC's fireworks 
regulations to reflect the current fireworks market, changes in 
technology, existing fireworks standards, and safety issues associated 
with fireworks devices in order to reduce the risk of injury that 
fireworks devices present to consumers.
    The legal authority for the proposed rule is the FHSA, which 
authorizes the Commission to adopt regulations regarding hazardous 
substances and regulatory provisions necessary to enforce those 
requirements.

D. Small Entities Subject to the Proposed Rule

    The U.S. Small Business Administration (SBA) size guidelines define 
manufacturers categorized under North American Industry Classification 
System (NAICS) codes that apply to fireworks manufacturers as ``small'' 
if they have fewer than 500 employees. The SBA defines importers as 
``small'' if they have fewer than 100 employees (wholesalers) or less 
than $7.5 million in sales (retailers). AFSL, which conducts testing 
and certification for a substantial portion of the fireworks industry, 
maintains a public list of U.S. importers and Chinese manufacturers 
that participate in its programs. Its list includes 165 importers, of 
which 121 are small, six are large, and the remaining 38 are of unknown 
size (but likely are small). AFSL asserts that its members represent 85 
percent to 90 percent of U.S. importers, indicating a total market size 
of 183 to 194 importers. Although some U.S. firms continue to 
manufacture fireworks, the vast majority of the market is imported.

[[Page 9027]]

E. Requirements of the Proposed Rule and the Potential Impact on Small 
Entities

    The proposed rule includes three categories of requirements. First, 
the proposed rule adds definitions for various terms that appear in the 
regulations or in requirements proposed in this NPR and clarifies 
existing requirements. The proposed definitions are based on the common 
understanding of these terms within the fireworks industry, and are 
consistent with the voluntary standards; as such, they do not create 
any new requirements or impose any burdens on the fireworks industry. 
Similarly, the clarifications would not change the regulations and 
would not create any additional burdens.
    Second, the proposed rule includes provisions to reduce burdens on 
the fireworks industry by allowing trace amounts of prohibited 
chemicals. The burdens related to this proposed requirement are 
discussed below.
    Third, the proposed rule includes new hazardous substances bans. 
The burdens related to these requirements are discussed in further 
detail below. To summarize, the following proposed requirements may 
impact small entities:
     Banning fireworks devices with break charges containing 
metallic powder less than 100 mesh in particle size when the break 
charge is produced by more than 2 grains of pyrotechnic composition;
     limiting total pyrotechnic weight and chemical composition 
by firework type;
     prohibiting HCB and lead tetroxide and other lead 
compounds in fireworks devices;
     requiring the testing of fuses for side ignition;
     requiring bases remain attached to devices during storage, 
handling, and use; and
     banning fireworks from expelling fragments when 
functioning.
    Typically, fireworks are manufactured overseas and imported into 
the United States. For this reason, most of the potential impact of 
this proposed rule would fall on small domestic importers, rather than 
small domestic manufacturers. Because the proposed rule includes 
changes intended to align Federal regulations with voluntary standards, 
many foreign manufacturers already comply with the proposed 
regulations. Consequently, for many importers, finding a new supplier 
may be a low-cost option to comply with the proposed rule.
1. Allow for Trace Contamination of Prohibited Chemicals
    The proposed rule would amend 1507.2 to allow for trace amounts of 
prohibited chemicals in fireworks. The Commission proposes various 
contamination levels that align with the voluntary standards, 
compliance rates, and other federal standards. Because of advancements 
in technology, testers can now identify chemicals in such low levels 
that they do not pose safety hazards to consumers. Between fiscal years 
2000 and 2015, CPSC found 41 violations of 1507.2. Of these violations, 
four came from samples that contained prohibited chemicals in 
concentrations below the proposed allowance limit of 0.25 percent. The 
total lot value of those four lots was $7,109, which represents the 
theoretical reduction in burden for the fireworks industry. In 
addition, the proposed requirement may reduce burdens by no longer 
requiring manufacturers to ensure the absolute absence of prohibited 
chemicals. Therefore, this requirement should not have a significant 
economic impact on a substantial number of firms.
2. Ban Fireworks Containing Metallic Powder Less Than 100 Mesh in 
Particle Size With Greater Than Two Grains of Pyrotechnic Material
    The proposed rule would adopt a new method of identifying devices 
that are subject to the two-grain limit, replacing the identifier 
``devices intended to produce audible effects'' with a description of 
the content of the devices. CPSC's preliminary testing revealed that 
more than 85 percent of samples do not comply with the proposed 
standard. Although the sample size of this testing was too small to 
generalize these findings, it suggests that a significant number of 
firms may not comply with the proposed requirement. This indicates that 
fireworks manufacturers may incur some costs to comply with the 
proposed regulation.
    To comply with the proposed requirement, the Commission expects 
fireworks producers to replace metallic and hybrid powders with black 
powder formulations. The cost of switching from metallic and hybrid 
powders to black powder should not create a significant impact for 
firms that have to change formulations. Commission staff examined 
retail prices of aluminum, other popular powders, and black powder kits 
and found that aluminum ranges from $18.35 per pound to $38.67 per 
pound and black powder kits sell for approximately $5.20 per pound. 
Therefore, a firework producer switching from 2 grains of aluminum 
powder purchased for $18.35 per pound to 15 g of black powder purchased 
for $5.20 per pound would incur a material cost increase of $0.17 per 
shell. As these mine or shell devices typically sell for $4 to $5 per 
shell, the difference in fuel costs could represent up to 4 percent of 
retail revenues. However, because fireworks manufacturers are unlikely 
to pay retail prices for fuels and the applicable devices represent 
only a portion of a fireworks manufacturer's product line, the impact 
of this proposed provision on the total revenue of any manufacturer or 
importer is likely to be less than one percent and may not be to be 
significant for the affected small firms.
3. Limit the Total Pyrotechnic Weight and Chemical Composition of 
Fireworks Devices
    The proposed rule limits the total amount of pyrotechnic material 
and the chemical composition in various fireworks devices. These 
provisions align with the limits in APA Standard 87-1. The limits in 
APA Standard 87-1 are high enough to allow sufficient explosive force 
for a fireworks device to function, even accounting for switching from 
flash powder and hybrid formulations to exclusively black powder. 
CPSC's initial testing found several devices that do not comply with 
the proposed limits for aerial devices. To comply with the proposed 
requirements, non-compliant producers would likely implement quality 
control measures to ensure devices comply with the specified limits. 
Given that many fireworks devices are made by hand, a quality control 
system could consist of a one-time transition to smaller measuring 
devices for filling fireworks with pyrotechnic material. Thus, this 
proposed requirement is not likely to produce a significant impact on 
affected small firms. The Commission does not have information about 
the level of compliance with the proposed limits for ground devices.
4. Ban HCB and Lead Tetroxide and Other Lead Compounds in Fireworks 
Devices
    The proposed rule would ban HCB and lead tetroxide and other lead 
compounds, either entirely or in concentrations above a certain 
threshold for trace contamination. Although both chemicals were once 
prominent in fireworks formulations, they have since largely fallen out 
of use. The voluntary and international standards ban both chemicals, 
in some combination, and testing indicates that there is a fairly high 
level of compliance with these

[[Page 9028]]

bans. Although studies indicate that there are fireworks devices that 
contain HCB or lead tetroxide and other lead compounds, those devices 
do not represent a large portion of the devices on the market. Thus, 
although the availability of such devices poses a substantial risk to 
consumers, if exposed to those chemicals, the devices make up a small 
enough portion of the market that banning those chemicals likely would 
not create significant costs.
    While lead was traditionally used to create ``crackle'' effects, 
bismuth trioxide has largely replaced it to achieve that effect because 
it is less expensive and more effective. HCB was prevalent in fireworks 
as a color enhancer, but since some standards have banned HCB, 
fireworks manufacturers have reduced its use. Because of the industry's 
limited use of these chemicals, the Commission expects that the 
proposed requirement would pose minimal burden to industry.
5. Require Testing for Side Ignition of Fuses
    The proposed rule would amend 1507.2 to include a test for side 
ignition of fuses. The test is currently specified in the CPSC Testing 
Manual. The test requires placing the lit end of a cigarette against 
the side of a fuse and observing how much time elapses before it 
ignites. Under the proposed requirement, a device fails if it ignites 
within 3 seconds.
    CPSC testing indicates that 99.5 percent of fireworks pass the 
proposed test for side ignition. The remaining 0.5 percent of fireworks 
may fail the test because they have not been treated to prevent side 
ignition or have not been sufficiently treated or coated to prevent 
side ignition within 3 seconds. By not defining a metric for reducing 
the possibility of side ignition, the current regulations leave open 
the question of whether those fuses that have been treated, but treated 
insufficiently to pass CPSC's test method, meet the standard in the 
regulation.
    The proposed test method would require fireworks manufacturers and 
importers to conduct the test to issue a certificate of compliance with 
their products. The Commission does not know how many fireworks are 
currently tested for side ignition of fuses. However, a reasonable 
testing program associated with this requirement is unlikely to create 
a significant economic impact on fireworks producers. Conceivably, a 
producer could test the treatment or coating on a sample of fuses, 
conclude the treatment or coating is effective, and use the same test 
results for all fireworks that use the same type of fuse. Thus, a 
producer could amortize the costs of fuse testing across all fireworks 
sold with fuses.
6. Require Bases To Remain Attached During Storage, Handling, and 
Operation
    The proposed rule requires bases to remain attached to fireworks 
during storage, handling, and operation. The Commission expects this 
requirement to have a minimal impact on manufacturers. CPSC does not 
test for base attachment when testing samples of fireworks, but on 
occasions where bases are detached, staff may note this in the testing 
report. In fireworks tested between Fiscal Year 1999 and the present, 
out of 4,554 relevant samples, 111 samples (2.4%) contained notes that 
bases were either missing or functioned improperly during operation.
    For devices that do not meet the proposed requirement, the 
Commission expects firms to adapt their designs so that the device and 
base are one piece or to secure the base to the device with an 
adhesive. The potential costs of complying with the proposed regulation 
include additional time to affix the base to the fireworks device 
(seconds per device), materials for affixing the base, and potential 
shipping costs associated with the higher volume per device when the 
base is attached. Additionally, some quality control efforts may be 
needed to ensure that bases are attached correctly so as not to detach 
during storage, handling, or operation. Because only a small portion of 
products do not meet the proposed requirement, and the activities 
necessary to comply with it are low in cost, the Commission does not 
expect this provision to have a significant economic impact on a 
substantial number of small firms.
7. Ban Fireworks That Disperse Fragments
    The proposed rule bans fireworks that disperse fragments when 
operating. This ban is also in APA Standard 87-1 and the AFSL Standard. 
CPSC staff has observed fragments falling from detonated fireworks 
during testing and incident data from 2005 through 2015 reveals eight 
potential incidents associated with fragments in fireworks. CPSC 
believes the fragments expelled from fireworks are typically due to 
manufacturers' intentional use of metal, glass, or brittle plastic 
parts. These components are not part of the effects associated with the 
device, but may play a role in the functioning of the device. To comply 
with the proposed rule, fireworks producers would have to redesign 
their products to not use these components or would have to implement 
quality control measures to ensure the device does not project these 
components when firing. CPSC has little information about the costs of 
these changes.

F. Other Relevant Federal Rules

    DOT incorporates by reference APA Standard 87-1 into its 
regulations, which apply to fireworks when transported in commerce. 
Because all fireworks sold to consumers are, at some point, transported 
in commerce, all consumer fireworks fall under the jurisdiction of DOT 
and are subject to the requirements of APA Standard 87-1. However, 
DOT's enforcement program is limited to its jurisdiction over the 
transportation of hazardous materials in commerce and provisions 
relevant to safety during such transportation.
    In estimating the burdens to manufacturers imposed by the proposed 
rule, the Commission relied on estimates of current compliance with APA 
Standard 87-1 because it is incorporated by reference into DOT's 
regulations. The provisions of this proposed rule aim to eliminate 
conflict between DOT regulations and CPSC regulations for fireworks, 
where it exists.

G. Alternatives

    The Commission considered alternatives to the proposed requirements 
that impose new bans on the fireworks industry, in the interests of 
reducing the compliance burden.
1. Alternatives to Banning Fireworks Containing Metallic Powder Less 
Than 100 Mesh in Particle Size With Greater Than Two Grains of 
Pyrotechnic Material
    Rather than adopt the proposed method of identifying devices that 
are limited to two grains of pyrotechnic content, the Commission could 
take no action. This alternative would be less burdensome than the 
proposed requirement, as compliance with the current regulation is 
higher than with the proposed requirement. However, the Commission 
believes that the proposed provision provides additional clarity and 
consistency and more-regularly identifies the more-explosive devices, 
thereby furthering compliance with an important safety provision. 
Additionally, the Commission believes that the cost of meeting the 
proposed requirement is low.
    An additional alternative is to eliminate the 2-grain limit in 
more-powerful fireworks devices. However, without this limit, fireworks 
devices could be manufactured with greater

[[Page 9029]]

explosive power, presenting serious safety risks for consumers.
2. Alternatives to Limiting the Total Pyrotechnic Weight and Chemical 
Composition of Fireworks Devices
    The Commission considered taking no action to limit the total 
pyrotechnic weight and chemical composition of certain fireworks 
devices. However, for those regulated entities that already comply with 
the limits in APA Standard 87-1 limits, the proposed rule would create 
only a minimal burden. Moreover, the proposed rule aims to limit the 
explosive power of fireworks devices to reduce the potential for 
injuries to users, and CPSC believes there is some benefit in aligning 
its requirements with the voluntary standards.
3. Alternatives to Banning HCB and Lead Tetroxide and Other Lead 
Compounds in Fireworks Devices
    The Commission considered taking no action to add HCB and lead 
tetroxide and other lead compounds to the list of prohibited chemicals 
in 1507.2. However, that alternative likely would not reduce the burden 
of the proposed requirement substantially because many regulated 
entities already exclude these chemicals from their devices. The 
Commission also considered only prohibiting either HCB or lead 
tetroxide or other lead compounds, as well as various allowance levels 
for trace contamination. When considering the trace contamination 
allowance that the Commission proposes in this NPR, the burden of the 
proposed requirement is particularly low and aligns with the voluntary 
standards, and is justified given the highly hazardous nature of these 
chemicals.
4. Alternatives To Requiring Testing for Side Ignition of Fuses
    The Commission considered taking no action to require specific 
testing of fuses. However, this alternative would not significantly 
reduce the burden of the proposed requirement on firms because CPSC 
already uses the proposed test for compliance testing. Additionally, 
the burden of testing fuses is minimal when amortized across all 
fireworks sold with fuses.
5. Alternatives to Requiring Bases To Remain Attached During Storage, 
Handling, and Operation
    The Commission considered taking no action concerning base 
attachment. However, the proposed requirement is intended to address a 
specific hazard. Therefore, the Commission believes that the potential 
benefit of the proposed requirement outweighs the potential costs, 
which are unlikely to be significant for a substantial number of firms.
6. Alternatives to Banning Fireworks That Disperse Fragments
    The Commission considered taking no action to ban fireworks that 
project fragments when firing. However, given the potential for severe 
injury, the Commission believes that taking no action does not 
sufficiently protect consumer safety.

VIII. Preemption

    Section 18 of the FHSA provides that no state or political 
subdivision of a state may establish or continue in effect a cautionary 
labeling requirement or a requirement for a hazardous substance that is 
designed to protect against the same risk of illness or injury unless 
the requirement is identical to the FHSA requirement or the requirement 
the Commission adopts under the FHSA. 15 U.S.C. 1261n(b)(1); Section 
231 of the CPSIA. However, a state or political subdivision of a state 
may establish or continue in effect a requirement applicable to a 
hazardous substance for the state or political subdivision's own use 
that is designed to protect against a risk of illness or injury 
associated with fireworks devices if it provides a higher degree of 
protection from that risk than the requirement in effect under the 
Commission's regulations. 15 U.S.C. 1261n(b)(2) and 1261n(b)(4). This 
allowance does not extend to labeling requirements. In addition, a 
state or political subdivision may apply for exemption from preemption 
in the circumstances specified in section 18(b)(3) of the FHSA.
    Consequently, if the Commission adopts a final rule regarding 
fireworks under the FHSA, that rule would preempt non-identical state 
or local requirements if the state or local provisions specify 
requirements that deal with the same risk of injury CPSC's regulations 
aim to address. However, because the FHSA applies to requirements the 
Commission may impose on fireworks devices and labeling, a final rule 
would not prevent states and political subdivisions of a state from 
regulating the sale of fireworks.

IX. Effective Date

    The Administrative Procedure Act requires the effective date of a 
rule to be at least 30 days after publication of the final rule. 5 
U.S.C. 553(d). To support the Commission's goals to update the 
fireworks regulations to reflect the current market and technology, 
provide clarity and consistency, and promote consumer safety, the 
Commission proposes that the updated fireworks regulations take effect 
30 days after a final rule is published in the Federal Register. The 
Commission believes that this effective date is reasonable because many 
of the proposed requirements align with existing standards, the 
Commission expects the costs associated with the proposed requirements 
to be low, and CPSC's regulatory review briefing package, published on 
the Commission's Web site on December 30, 2015, provided advance notice 
of the potential for these requirements.
    The Commission requests comments on the proposed effective date.

X. Environmental Considerations

    Rules that have ``little or no potential for affecting the human 
environment'' fall within a ``categorical exclusion'' under the 
National Environmental Policy Act (NEPA; 42 U.S.C. 4231-4370h) and the 
regulations implementing NEPA (40 CFR parts 1500-1508) and do not 
normally require an environmental assessment (EA) or environmental 
impact statement (EIS). As the Commission's regulations state, CPSC 
actions generally do not produce significant environmental effects and, 
therefore, generally do not require an EIS. 16 CFR 1021.5(a). The 
regulations further specify that rules or safety standards that provide 
design or performance requirements fall within the categorical 
exclusion from NEPA because they have little or no potential effect on 
the human environment. 16 CFR 1021.5(c)(1). Consequently, such rules do 
not require an EA or an EIS.
    Because the proposed rule would create design and performance 
requirements for fireworks devices, the proposed rule falls within the 
categorical exclusion and no EA or EIS is required. Moreover, although 
the proposed requirements may render some fireworks non-compliant and 
therefore, require their disposal, the Commission believes that this 
impact would be minimal, particularly in light of existing standards 
and the time provided before the final rule would take effect. See 16 
CFR 1021.5(b)(2). Therefore, the Commission believes that the proposed 
rule has ``little or no potential for affecting the human environment'' 
and does not require an EA or EIS.

XI. Request for Comments

    The Commission requests comments on all aspects of this proposed 
rule, specifically regarding:

[[Page 9030]]

     The method of identifying devices that are subject to the 
2-grain limit, including:
    [cir] The need and usefulness of including a method of identifying 
in the regulations which devices are subject to the 2 grain limit;
    [cir] the usefulness, effectiveness, costs, and benefits of the 
proposed method of identifying these devices, including supporting 
data;
    [cir] the level of compliance with the comparable requirement in 
APA Standard 87-1;
    [cir] whether there are devices that contain only black powder that 
should be limited to 2 grains of pyrotechnic composition because of the 
safety hazard they pose to consumers; and
    [cir] whether the Commission should limit larger particle sizes of 
metallic powder in break charges or reports, relevant data and 
justifications for doing so, and the appropriate method and limit;
     the implications of the Commission electing, at times, to 
use its enforcement discretion to permit up to 1.00 percent 
contamination of metallic content in break charges, including:
    [cir] The safety implications of such an allowance;
    [cir] the impact of such an allowance on the costs and burdens of 
testing and analysis, relative to compliance with the absolute ban in 
the regulation;
    [cir] a reasonable allowance level that still provides for consumer 
safety, along with supporting data; and
    [cir] the implications of adopting the allowance in the 
regulations, as opposed to exercising it as enforcement discretion;
     the proposed limits to chemical composition and 
pyrotechnic weight of fireworks devices, including:
    [cir] The benefits and costs associated with the proposed 
requirement;
    [cir] the level of compliance with the requirements in APA Standard 
87-1 with which the proposed requirements align;
    [cir] whether the specific limits proposed are appropriate in light 
of consumer safety and fireworks devices currently on the market; and
    [cir] the safety hazards that the ground devices that would be 
subject to the proposed requirement pose to consumers and any relevant 
incident or injury data;
     prohibiting HCB and lead tetroxide and other lead 
compounds from fireworks devices, including:
    [cir] The benefits and costs associated with banning these 
chemicals;
    [cir] the level of compliance with the limits for these chemicals 
in the AFSL Standard and APA Standard 87-1;
    [cir] the presence of HCB in fireworks devices in the U.S. market 
and the corresponding frequency and levels;
    [cir] the presence of lead tetroxide or other lead compounds in 
fireworks devices in the U.S. market and the corresponding frequency 
and levels; and
    [cir] and exposure data regarding the impact of these chemicals in 
fireworks devices;
     resistance to side ignition, including:
    [cir] Information and data about incidents involving side ignition;
    [cir] whether a test method for evaluating side ignition would 
improve consumer safety; and
    [cir] the level of compliance with the requirement in APA Standard 
87-1;
     bases detaching from fireworks devices, including:
    [cir] Whether base detachment is involved in devices tipping over, 
incidents, injuries, or deaths and applicable data;
    [cir] the relative benefits and costs associated with the 
recommended requirement; and
    [cir] the level of compliance with the similar requirements in APA 
Standard 87-1 and the AFSL Standard;
     the proposed ban of fireworks devices that project 
fragments when functioning, including:
    [cir] Data regarding the types and frequency of incidents and 
injuries associated with fragments projected from fireworks devices;
    [cir] the types of materials fireworks devices project as fragments 
that present a safety risk to the public (e.g., metal, hard plastic, 
glass, wood);
    [cir] whether the Commission should specify a size or amount limit 
for projected fragments and, if so, the appropriate size or amount and 
corresponding rationale;
    [cir] the relative benefits and costs associated with the proposed 
requirement; and
    [cir] the level of compliance with section 3.7.2 of APA Standard 
87-1;
     a trace contamination allowance for prohibited chemicals, 
including:
    [cir] Whether allowing trace amounts of prohibited chemicals 
adequately protects consumers from the risks associated with these 
chemicals;
    [cir] which chemicals the Commission should provide trace 
allowances for;
    [cir] what level of trace contamination should be permitted in 
light of consumer safety and inadvertent contamination;
    [cir] the relative costs of complying with an absolute ban of 
prohibited chemicals and trace contamination allowances;
    [cir] the alternatives of adopting trace contamination allowances 
in the regulations, in compliance guidance, or in the CPSC Testing 
Manual; and
    [cir] exposure data regarding the impact of trace contamination on 
consumer safety;
     the usefulness and content of the proposed definitions 
for:
    [cir] Burst charge;
    [cir] chemical composition;
    [cir] explosive composition;
    [cir] lift charge;
    [cir] pyrotechnic composition;
    [cir] firecrackers;
    [cir] bases;
    [cir] burnout; and
    [cir] blowout;
     aerial bombs, including:
    [cir] The proposed definition of aerial bombs; and
    [cir] incident and injury data regarding aerial bombs;
     the estimated costs and benefits associated with each of 
the proposed requirements; and
     the estimated costs to small entities for each of the 
proposed requirements.
    During the comment period, APA Standard 87-1 is available for 
review. Please see Section V. of this NPR for instructions on viewing 
it.
    Please submit comments in accordance with the instructions in the 
ADDRESSES section at the beginning of this NPR.

List of Subjects

16 CFR Part 1500

    Consumer protection, Hazardous materials, Hazardous substances, 
Imports, Incorporation by reference, Infants and children, Labeling, 
Law enforcement, and Toys.

16 CFR Part 1507

    Consumer protection, Explosives, Fireworks, and Incorporation by 
reference.

    For the reasons discussed in the preamble, the Commission proposes 
to amend Title 16 of the Code of Federal Regulations as follows:

PART 1500--HAZARDOUS SUBSTANCES AND ARTICLES: ADMINISTRATION AND 
ENFORCEMENT REGULATIONS

0
1. The authority citation for part 1500 continues to read as follows:

    Authority:  15 U.S.C. 1261-1278, 122 Stat. 3016; the Consumer 
Product Safety Improvement Act of 2008, Pub. L. 110-314, 104, 122 
Stat. 3016 (August 14, 2008).

0
2. Amend Sec.  1500.3 by:
0
a. Revising paragraph (a)(2);
0
b. Adding paragraph (a)(3) through (9) and paragraph (d) to read as 
follows:


Sec.  1500.3  Definitions.

    (a) * * *

[[Page 9031]]

    (2) Aerial bomb means a tube device that fires an explosive charge 
into the air without added visual effect.
    (3) Burst charge, also known as expelling charge or break charge, 
is as defined in section 2.5 of APA Standard 87-1 (incorporated by 
reference, see paragraph (d) of this section).
    (4) Chemical composition, includes lift charge, burst charge, and 
visible/audible effect materials and is as defined in section 2.6 of 
APA Standard 87-1 (incorporated by reference, see paragraph (d) of this 
section).
    (5) Commission means the Consumer Product Safety Commission 
established May 14, 1973, pursuant to provisions of the Consumer 
Product Safety Act (Pub. L. 92-573, 86 Stat. 1207-33 (15 U.S.C. 2051-
81)).
    (6) Explosive composition, is as defined in section 2.6.1 of APA 
Standard 87-1 (incorporated by reference, see paragraph (d) of this 
section).
    (7) Firecracker, is as defined in section 3.1.3.1 of APA Standard 
87-1 (incorporated by reference, see paragraph (d) of this section).
    (8) Lift charge, is as defined in section 2.10 of APA Standard 87-1 
(incorporated by reference, see paragraph (d) of this section).
    (9) Pyrotechnic composition, is as defined in section 2.6.2 of APA 
Standard 87-1 (incorporated by reference, see paragraph (d) of this 
section).
* * * * *
    (d) Certain portions, identified in this section, of APA Standard 
87-1, Standard for Construction and Approval for Transportation of 
Fireworks, Novelties, and Theatrical Pyrotechnics, December 1, 2001 
(APA Standard 87-1) are incorporated by reference into this section 
with the approval of the Director of the Federal Register under 5 
U.S.C. 552(a) and 1 CFR part 51 (IBR approved for paragraph (a)). You 
may obtain a copy of the approved material from American Pyrotechnics 
Association, 7910 Woodmont Avenue, Suite 1220, Bethesda, MD 20814; 
telephone 301-907-8181; http://www.americanpyro.com/. You may inspect a 
copy of the approved material at the U.S. Consumer Product Safety 
Commission, Office of the Secretary, 4330 East-West Highway, Room 820, 
Bethesda, MD 20814; telephone 301-504-7923; or at the National Archives 
and Records Administration (NARA). For information on the availability 
of this material at NARA, call 202-741-6030 or go to http://www.archives.gov/federal_register/code_of_federalregulations/ibr_locations.html.
0
3. Amend Sec.  1500.17 by revising paragraphs (a)(3) and (8) and add 
paragraph (a)(14) to read as follows:


Sec.  1500.17  Banned Hazardous Substances.

    (a) * * *
    (3)(i) Fireworks devices that contain a burst charge containing 
metallic powder less than 100 mesh in particle size (including but not 
limited to cherry bombs, M-80 salutes, silver salutes, and kits and 
components intended to produce such fireworks) if the burst charge is 
produced by a charge of more than 2 grains (~130 mg) of pyrotechnic 
composition; except that this provision shall not apply to such 
fireworks devices if all of the following conditions are met:
* * * * *
    (ii) Findings.
    (A) General. In order to issue a rule under section 2(q)(1) of the 
Federal Hazardous Substances Act (FHSA), 15 U.S.C. 1261(q)(1), 
classifying a substance or article as a banned hazardous substance, the 
FHSA requires the Commission to make certain findings and to include 
these findings in the regulation. These findings are discussed below.
    (B) Voluntary standards. The Commission believes that it is 
unlikely that there will be substantial compliance with APA Standard 
87-1, Standard for Construction and Approval for Transportation of 
Fireworks, Novelties, and Theatrical Pyrotechnics, December 1, 2001 
edition, based on the Commission's preliminary testing indicating that 
there is a high proportion of devices that do not comply with the 
comparable requirements in APA Standard 87-1 and the injury data 
showing the severe injuries and deaths that have resulted from devices 
that do not comply with this provision and vulnerability of the 
population at risk.
    (C) Relationship of benefits to costs. The benefits expected from 
the rule, including increased public safety, bear a reasonable 
relationship to its costs, including minimal costs associated with 
modifying the contents of fireworks devices or limiting the pyrotechnic 
composition of devices to 2 grains.
    (D) Least-burdensome requirement. The Commission considered less 
burdensome alternative methods of identifying devices that are subject 
to a two-grain limit on pyrotechnic composition, but concluded that 
none of these alternatives would adequately reduce the risk of injury.
* * * * *
    (8) Firecrackers, if the explosive composition is produced by more 
than 50 mg (.772 grains) of pyrotechnic composition, (not including 
firecrackers included as components of a rocket), aerial bombs, and 
devices that may be confused with candy or other foods, such as 
``dragon eggs,'' and ``cracker balls'' (also known as ``ball-type 
caps''), and including kits and components intended to produce such 
fireworks except such devices which meet all of the following 
conditions:
* * * * *
    (14)(i) Fireworks devices that do not conform to the following 
chemical composition and pyrotechnic weight limits:
    (A) Sky Rockets, Bottle Rockets, Missile-Type Rockets, Helicopters 
(Aerial Spinners), and Roman Candles. Each of these devices shall not 
contain more than 20 grams of chemical composition.
    (B) Mine and Shell Devices. Devices shall conform to section 
3.1.2.5 of APA Standard 87-1, Standard for Construction and Approval 
for Transportation of Fireworks, Novelties, and Theatrical 
Pyrotechnics, December 1, 2001 version, which is incorporated by 
reference herein, except that:
    (1) The lift charge of each shell is limited to black powder 
(potassium nitrate, sulfur, and charcoal) or similar pyrotechnic 
composition without metallic fuel.
    (2) Reserved
    (C) Aerial Shells with Reloadable Tubes. Devices shall conform to 
section 3.1.2.6 of APA Standard 87-1, Standard for Construction and 
Approval for Transportation of Fireworks, Novelties, and Theatrical 
Pyrotechnics, December 1, 2001 version, which is incorporated by 
reference herein, except that the lift charge of each shell is limited 
to black powder (potassium nitrate, sulfur, and charcoal) or similar 
pyrotechnic composition without metallic fuel.
    (D) Cylindrical Fountains. Devices shall conform to section 3.1.1.1 
of APA Standard 87-1, Standard for Construction and Approval for 
Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 version, which is incorporated by reference herein.
    (E) Cone Fountains. Devices shall conform to section 3.1.1.2 of APA 
Standard 87-1, Standard for Construction and Approval for 
Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 version, which is incorporated by reference herein.
    (F) Illuminating Torches. Devices shall conform to section 3.1.1.3 
of APA Standard 87-1, Standard for Construction and Approval for

[[Page 9032]]

Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 version, which is incorporated by reference herein.
    (G) Wheels. Devices shall conform to section 3.1.1.4 of APA 
Standard 87-1, Standard for Construction and Approval for 
Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 version, which is incorporated by reference herein.
    (H) Chasers. Devices shall conform to section 3.1.3.2 of APA 
Standard 87-1, Standard for Construction and Approval for 
Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 version, which is incorporated by reference herein.
    (ii) Incorporation by reference. Certain portions, identified in 
this section, of APA Standard 87-1, Standard for Construction and 
Approval for Transportation of Fireworks, Novelties, and Theatrical 
Pyrotechnics, December 1, 2001 (APA Standard 87-1) are incorporated by 
reference into this section with the approval of the Director of the 
Federal Register under 5 U.S.C. 552(a) and 1 CFR part 51 (IBR approved 
for paragraph (a)(14)). You may obtain a copy of the approved material 
from American Pyrotechnics Association, 7910 Woodmont Avenue, Suite 
1220, Bethesda, MD 20814; telephone 301-907-8181; http://www.americanpyro.com/. You may inspect a copy of the approved material 
at the U.S. Consumer Product Safety Commission, Office of the 
Secretary, 4330 East-West Highway, Room 820, Bethesda, MD 20814; 
telephone 301-504-7923; or at the National Archives and Records 
Administration (NARA). For information on the availability of this 
material at NARA, call 202-741-6030 or go to http://www.archives.gov/federal_register/code_of_federalregulations/ibr_locations.html.
    (iii) Findings.
    (A) General. In order to issue a rule under section 2(q)(1) of the 
Federal Hazardous Substances Act (FHSA), 15 U.S.C. 1261(q)(1), 
classifying a substance or article as a banned hazardous substance, the 
FHSA requires the Commission to make certain findings and to include 
these findings in the regulation. These findings are discussed below.
    (B) Voluntary standards. The Commission believes that it is 
unlikely that there will be substantial compliance with APA Standard 
87-1, Standard for Construction and Approval for Transportation of 
Fireworks, Novelties, and Theatrical Pyrotechnics, December 1, 2001 
edition, based on the Commission's preliminary testing indicating that 
a high proportion of devices does not comply with the device limits in 
APA Standard 87-1 and the injury data showing the severe injuries and 
deaths that can result from devices with particularly high pyrotechnic 
or chemical compositions.
    (C) Relationship of benefits to costs. The benefits expected from 
the rule, including increased public safety, bear a reasonable 
relationship to its costs, including minimal costs associated with 
modifying or reducing the pyrotechnic or chemical composition of 
fireworks devices.
    (D) Least-burdensome requirement. The Commission considered less 
burdensome alternative methods of limiting the pyrotechnic or chemical 
composition of fireworks devices, but concluded that none of these 
alternatives would adequately reduce the risk of injury.
* * * * *
0
4. Revise Sec.  1500.83 paragraph (a)(27)(i) to read as follows:


Sec.  1500.83  Exemptions for small packages, minor hazards, and 
special circumstances.

    (a) * * *
    (27) * * *
    (i) The package contains only fireworks devices suitable for use by 
the public and designed primarily to produce visible effects by 
combustion, except that small devices with an explosive composition 
that includes metallic fuel less than 100 mesh in particle size may 
also be included if the burst charge or explosive composition is 
produced by not more than 2 grains of pyrotechnic composition;
* * * * *
0
5. Revise Sec.  1500.85 paragraph (a)(2) to read as follows:


Sec.  1500.85  Exemptions from classification as banned hazardous 
substances.

    (a) * * *
    (2) Firecrackers, if the explosive composition is produced by no 
more than 50 milligrams (.772 grains) of pyrotechnic composition. (See 
also Sec.  1500.14(b)(7); Sec.  1500.17(a) (3), (8) and (9); and part 
1507).
* * * * *

PART 1507--FIREWORKS DEVICES

0
6. The authority citation for part 1507 continues to read as follows:

    Authority:  15 U.S.C. 1261-1262, 2079(d); 21 U.S.C. 371(e).

0
7. Amend Sec.  1507.1 by:
0
a. Revising the section heading,
0
 b. Renumbering and revising the introductory paragraph, and
0
c. Adding paragraph (b) to read as follows:


Sec.  1507.1  Scope and definitions.

    (a) Scope. This part 1507 prescribes requirements for those 
fireworks devices not otherwise banned under the act. Any fireworks 
device that fails to conform to applicable requirements is a banned 
hazardous substance and is prohibited from the channels of interstate 
commerce. Any fireworks device not otherwise banned under the act shall 
not be a banned hazardous substance by virtue of the fact that there 
are no applicable requirements prescribed herein.
    (b) Definitions. As used in this part:
    (1) Explosive composition is as defined in section 2.6.1 of APA 
Standard 87-1 (incorporated by reference, see Sec.  1507.14).
    (2) Firecracker is as defined in section 3.1.3.1 of APA Standard 
87-1 (incorporated by reference, see Sec.  1507.14).
    (3) Pyrotechnic composition is as defined in section 2.6.2 of APA 
Standard 87-1 (incorporated by reference, see Sec.  1507.14).
0
8 .Revise Sec.  1507.2 to read as follows:


Sec.  1507.2  Prohibited chemicals.

    (a) Fireworks devices, other than firecrackers, shall not contain 
any of the following chemicals:
    (1) Arsenic sulfide, arsenates, or arsenites, except in trace 
amounts less than 0.25% by weight.
    (2) Boron, except in trace amounts less than 0.25% by weight.
    (3) Chlorates, except in trace amounts less than 0.25% by weight 
and:
    (i) In colored smoke mixtures in which an equal or greater amount 
of sodium bicarbonate is included.
    (ii) In caps and party poppers.
    (iii) In those small items (such as ground spinners) wherein the 
total powder content does not exceed 4 grams of which not greater than 
15 percent (or 600 milligrams) is potassium, sodium, or barium 
chlorate.
    (4) Gallates or gallic acid, except in trace amounts less than 
0.25% by weight.
    (5) Hexachlorobenzene, except in trace amounts less than 0.01% by 
weight.
    (6) Lead tetroxide and other lead compounds, except in trace 
amounts less than 0.25% by weight.
    (7) Magnesium, except in trace amounts less than 0.25% by weight 
(magnesium/aluminum alloys, called magnalium, are permitted).
    (8) Mercury salts, except in trace amounts less than 0.25% by 
weight.
    (9) Phosphorus (red or white), except in trace amounts less than 
0.25% by weight. Except that red phosphorus is permissible in caps and 
party poppers.

[[Page 9033]]

    (10) Picrates or picric acid, except in trace amounts less than 
0.25% by weight.
    (11) Thiocyanates, except in trace amounts less than 0.25% by 
weight.
    (12) Titanium, except in particle size greater than 100-mesh or in 
trace amounts less than 0.25% by weight.
    (13) Zirconium, except in trace amounts less than 0.25% by weight.
    (b) Findings.
    (1) General. In order to issue a rule under section 2(q)(1) of the 
Federal Hazardous Substances Act (FHSA), 15 U.S.C. 1261(q)(1), 
classifying a substance or article as a banned hazardous substance, the 
FHSA requires the Commission to make certain findings and to include 
these findings in the regulation. These findings, with respect to 
hexachlorobenzene and lead tetroxide and other lead compounds, are 
discussed below.
    (2) Voluntary standards. The Commission believes that it is 
unlikely that there will be substantial compliance with the provision 
prohibiting lead tetroxide and other lead compounds in APA Standard 87-
1, Standard for Construction and Approval for Transportation of 
Fireworks, Novelties, and Theatrical Pyrotechnics, December 1, 2001 
edition, because testing indicates that there are devices on the market 
that do not comply with this provision in APA Standard 87-1, the public 
can absorb the chemical when it is released into the environment 
through fireworks devices, and the health risks associated with the 
chemical are severe. The Commission believes that it is unlikely that 
there will be substantial compliance with the provision prohibiting 
hexachlorobenzene and lead tetroxide and other lead compounds in the 
American Fireworks Standards Laboratory's voluntary standard for 
consumer fireworks because testing indicates that there are devices on 
the market that do not comply with this provision in the standard, the 
public can absorb these chemicals when they are released into the 
environment through fireworks devices, and the health risks associated 
with these chemicals are severe.
    (3) Relationship of benefits to costs. The benefits expected from 
the rule, including increased public safety, bear a reasonable 
relationship to its costs, including minimal costs associated with 
modifying the chemical content of fireworks devices.
    (4) Least-burdensome requirement. The Commission considered less 
burdensome alternatives to the rule, but concluded that none of these 
alternatives would adequately reduce the risk of injury.
0
9. Amend Sec.  1507.3 by renumbering and revising paragraph (a) and 
(b), adding paragraph (c), to read as follows:


Sec.  1507.3  Fuses.

    (a) Fireworks devices, other than firecrackers, that require a fuse 
shall use a fuse that has been treated or coated in such manner as to 
reduce the possibility of side ignition.
    (1) The following test must be conducted to evaluate whether a fuse 
has been treated or coated in such manner as to reduce the possibility 
of side ignition:
    (i) Cut the fuse at the point where the fuse enters the fireworks 
device. If the fuse is wrapped in paper, plastic, or taped to the 
device, remove the fuse with the paper, plastic, and/or tape intact; 
and
    (ii) Place the glowing tip of a lit standard NIST (SRM 1196) 
cigarette directly on the side of the fuse (or the paper, plastic, or 
tape attached to the fuse) and time, in seconds, how long it takes for 
the fuse to ignite.
    (2) The fuse must not ignite within 3 seconds.
    (3) The following devices are exempted from Sec.  1507.3(a)(1) and 
(2):
    (i) Devices such as ground spinners that require a restricted 
orifice for proper thrust and contain less than 6 grams of pyrotechnic 
composition.
    (ii) Devices with fuses that protrude less than \1/2\ inch from the 
device, because the end of the fuse may ignite during testing.
    (4) Findings.
    (i) General. In order to issue a rule under section 2(q)(1) of the 
Federal Hazardous Substances Act (FHSA), 15 U.S.C. 1261(q)(1), 
classifying a substance or article as a banned hazardous substance, the 
FHSA requires the Commission to make certain findings and to include 
these findings in the regulation. These findings are discussed below.
    (ii) Voluntary standards. The Commission believes that there is not 
likely to be substantial compliance with the side ignition test method 
in APA Standard 87-1, Standard for Construction and Approval for 
Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 edition, because the severity of injuries that can 
result from side ignition of fuses are such that a particularly high 
level of compliance is necessary.
    (iii) Relationship of benefits to costs. The benefits expected from 
the rule, including increased public safety, bear a reasonable 
relationship to its costs, including minimal costs associated with 
treating fuses to resist side ignition and testing fuses for compliance 
with the requirement.
    (iv) Least-burdensome requirement. The Commission considered less 
burdensome alternatives to the rule, but concluded that none of these 
alternatives would adequately reduce the risk of injury. The rule is 
consistent with voluntary standards and the Commission's current 
testing and enforcement practices.
    (b) Fireworks devices, other than firecrackers, that require a fuse 
shall use a fuse that will burn at least 3 seconds but not more than 9 
seconds before ignition of the device.
    (c) For fireworks devices, other than firecrackers, that require a 
fuse, the fuse shall be securely attached so that it will support 
either the weight of the fireworks device plus 8 ounces of dead weight 
or double the weight of the device, whichever is less, without 
separation from the fireworks device.
0
10. Revise Sec.  1507.4 to number the paragraphs and to add paragraphs 
(a)(2) and (b) to read as follows:


Sec.  1507.4  Bases.

    (a) The base of fireworks devices that are operated in a standing 
upright position shall:
    (1) Have the minimum horizontal dimensions or the diameter of the 
base equal to at least one-third of the height of the device including 
any base or cap affixed thereto; and
    (2)(i) Remain securely attached to the device during handling, 
storage, and normal operation.
    (ii) Findings.
    (A) General. In order to issue a rule under section 2(q)(1) of the 
Federal Hazardous Substances Act (FHSA), 15 U.S.C. 1261(q)(1), 
classifying a substance or article as a banned hazardous substance, the 
FHSA requires the Commission to make certain findings and to include 
these findings in the regulation. These findings are discussed below.
    (B) Voluntary standards. The Commission believes that compliance 
with APA Standard 87-1, Standard for Construction and Approval for 
Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 edition or the American Fireworks Standards 
Laboratory's voluntary standard for consumer fireworks is not likely to 
adequately reduce the risk of injury and that it is unlikely that there 
will be substantial compliance with either of these two voluntary 
standards, based on the Commission's preliminary testing indicating 
that there is a high

[[Page 9034]]

proportion of devices that have no bases or that have bases that detach 
from the device during handling, storage, or use and the injury data 
showing the severe injuries that can result when devices tip over or 
have unexpected flight paths, both of which can result from detached 
bases.
    (C) Relationship of benefits to costs. The benefits expected from 
the rule, including increased public safety, bear a reasonable 
relationship to its costs, including minimal costs associated with 
affixing bases to devices and increased shipping costs.
    (D) Least-burdensome requirement. The Commission considered less 
burdensome alternatives to the rule, but concluded that none of these 
alternatives would adequately reduce the risk of injury.
    (b) For purposes of this section, the base means the bottom-most 
part or foundation attached to one or more tubes of a fireworks device 
that serves as a flat, stabilizing surface from which the device may 
function.
0
11. Revise Sec.  1507.6 to read as follows:


Sec.  1507.6  Burnout and blowout.

    (a) The pyrotechnic chamber in fireworks devices shall be 
constructed in a manner to allow functioning in a normal manner without 
burnout or blowout.
    (b) As used in this section, the terms blowout and burnout are as 
defined in sections 2.3 and 2.4, respectively, of APA Standard 87-1 
(incorporated by reference, see Sec.  1507.14).
0
12. Add Sec.  1507.13 to read as follows:


Sec.  1507.13  Fragments.

    (a) Fireworks devices must function in accordance with section 
3.7.2 of APA Standard 87-1 (incorporated by reference, see Sec.  
1507.14).
    (b) Findings.
    (1) General. In order to issue a rule under section 2(q)(1) of the 
Federal Hazardous Substances Act (FHSA), 15 U.S.C. 1261(q)(1), 
classifying a substance or article as a banned hazardous substance, the 
FHSA requires the Commission to make certain findings and to include 
these findings in the regulation. These findings are discussed below.
    (2) Voluntary standards. The Commission believes it is unlikely 
that there will be substantial compliance with the provisions in APA 
Standard 87-1, Standard for Construction and Approval for 
Transportation of Fireworks, Novelties, and Theatrical Pyrotechnics, 
December 1, 2001 edition or the American Fireworks Standards 
Laboratory's voluntary standard for consumer fireworks that prohibit 
devices from projecting sharp fragments, based on the Commission's 
preliminary testing indicating that there are devices on the market 
that project sharp fragments when functioning and injury data showing 
the severe injuries that can result when projected fragments strike 
bystanders.
    (3) Relationship of benefits to costs. The benefits expected from 
the rule, including increased public safety, bear a reasonable 
relationship to its costs, including minimal costs associated 
redesigning fireworks devices.
    (4) Least-burdensome requirement. The Commission considered less 
burdensome alternatives to the rule, but concluded that none of these 
alternatives would adequately reduce the risk of injury.
0
13. Add Sec.  1507.14 to read as follows:


Sec.  1507.14  Incorporation by reference.

    Certain portions, identified in this part, of APA Standard 87-1, 
Standard for Construction and Approval for Transportation of Fireworks, 
Novelties, and Theatrical Pyrotechnics, December 1, 2001 (APA Standard 
87-1) are incorporated by reference into this part with the approval of 
the Director of the Federal Register under 5 U.S.C. 552(a) and 1 CFR 
part 51 (IBR approved for Sec. Sec.  1507.1, 1507.6, and 1507.13). You 
may obtain a copy of the approved material from American Pyrotechnics 
Association, 7910 Woodmont Avenue, Suite 1220, Bethesda, MD 20814; 
telephone 301-907-8181; http://www.americanpyro.com/. You may inspect a 
copy of the approved material at the U.S. Consumer Product Safety 
Commission, Office of the Secretary, 4330 East-West Highway, Room 820, 
Bethesda, MD 20814; telephone 301-504-7923; or at the National Archives 
and Records Administration (NARA). For information on the availability 
of this material at NARA, call 202-741-6030 or go to http://www.archives.gov/federal_register/code_of_federalregulations/ibr_locations.html.

    Dated: January 26, 2017.
Todd A. Stevenson,
Secretary, Consumer Product Safety Commission.
[FR Doc. 2017-02014 Filed 2-1-17; 8:45 am]
 BILLING CODE 6355-01-P