[Federal Register Volume 87, Number 227 (Monday, November 28, 2022)]
[Rules and Regulations]
[Pages 72873-72887]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-25040]


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CONSUMER PRODUCT SAFETY COMMISSION

16 CFR Part 1120

[CPSC Docket No. CPSC-2021-0038]


Substantial Product Hazard List: Window Covering Cords

AGENCY: Consumer Product Safety Commission

ACTION: Final rule.

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SUMMARY: To address the risk of strangulation to young children 
associated with certain window covering cords, the Consumer Product 
Safety Commission (CPSC) is issuing this final rule to deem that one or 
more of the following readily observable characteristics of window 
coverings present a substantial product hazard (SPH) under the Consumer 
Product Safety Act (CPSA): the presence of hazardous operating cords on 
stock window coverings, the presence of hazardous inner cords on stock 
and custom window coverings, or the absence of a manufacturer label on 
stock and custom window coverings. The rule amends regulations which 
list products that the Commission has determined present an SPH.

DATES: The rule is effective December 28, 2022. The incorporation by 
reference of the publication listed in this rule is approved by the 
Director of the Federal Register as of December 28, 2022.

FOR FURTHER INFORMATION CONTACT: Jennifer Colten, Compliance Officer, 
Office of Compliance and Field Operations, Consumer Product Safety 
Commission, 4330 East West Highway; telephone: 301-504-8165; 
[email protected].

SUPPLEMENTARY INFORMATION: 

I. Introduction

A. Overview of the Final Rule

    The purpose of the final rule is to address the risk of 
strangulation to children 8 years old and younger associated with 
hazardous cords on window coverings.\1\ On January 7, 2022 CPSC 
published a proposed rule pursuant to section 15(j) of the CPSA, 15 
U.S.C. 2064(j), to amend the substantial product hazard list in 16 CFR 
part 1120 (part 1120) to deem the presence of hazardous window covering 
cords on stock and custom window coverings, which have been adequately 
addressed by the voluntary standard for window coverings, ANSI/WCMA 
A100.1--2018, American National Standard for Safety of Corded Window 
Covering Products (ANSI/WCMA-2018), as an SPH, as defined in section 
15(a)(2) of the CPSA. 87 FR 891. The Commission received five comments 
in support of the rule and is now finalizing the rule as proposed.
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    \1\ On November 2, 2022, the Commission voted 4-0 to publish 
this final rule, and each Commissioner issued a statement in 
connection with their vote.
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    The final rule is based on information and analysis contained in 
(1) CPSC staff's September 29, 2021, Staff Briefing Package: Notice of 
Proposed Rulemaking for Corded Window Coverings (Staff's NPR Briefing 
Package),\2\ and (2) CPSC staff's September 28, 2022, Staff Briefing 
Package: Final Rule for Corded Window Coverings (Staff's Final Rule 
Briefing Package).\3\
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    \2\ Staff's NPR Briefing Package is available at: https://www.cpsc.gov/s3fs-public/NPRs-Add-Window-Covering-Cords-to-Substantial-Product-Hazard-List-Establish-Safety-Standard-for-Operating-Cords-on-Custom-Window-Coverings-updated-10-29-2021.pdf?VersionId=HIM05bK3WDLRZrlNGogQLknhFvhtx3PD.
    \3\ Staff's Final Rule Briefing Package is available at: https://www.cpsc.gov/s3fs-public/Final-Rules-to-1-Add-Window-Covering-Cords-to-the-Substantial-Product-Hazard-List-and-2-Establish-a-Safety-Standard-for-Operating-Cords-on-Custom-Window-Coverings.pdf?VersionId=nDxz9G5hfDy5k.SnXkqgGKLiDsMK4hpe.
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    As proposed, in the final rule the Commission deems three readily 
observable characteristics of stock window coverings an SPH:
    (1) presence of hazardous operating cords;
    (2) presence of hazardous inner cords; and
    (3) absence of a required manufacturer label.
    Additionally, the Commission deems two readily observable 
characteristics of custom window coverings an SPH:
    (1) presence of hazardous inner cords; and
    (2) absence of a required manufacturer label.
    The Commission is addressing the presence of hazardous operating 
cords on custom window coverings under a separate, concurrent 
rulemaking pursuant to sections 7 and 9 of the CPSA, because the ANSI/
WCMA-2018 standard does not adequately address this hazard. See CPSC 
Docket No. CPSC-2013-0028.
    As detailed in this final rule the Commission determines that:
     the following are readily observable characteristics of 
window coverings: (a) the presence of hazardous operating cords 
(accessible operating cords longer than 8 inches in any use position) 
on stock window coverings; (b) the presence of hazardous inner cords 
(accessible inner cords that create a loop large enough to insert a 
child's head) on stock and custom window coverings; and (c) the absence 
of a required manufacturer label on stock and custom window coverings;
     the identified readily observable characteristics are 
adequately addressed by a voluntary standard, sections 4.3.1, 4.5, 5.3, 
6.3, 6.7, and Appendices C and D of ANSI/WCMA-2018;
     window coverings that conform to sections 4.3.1, 4.5, 5.3, 
6.3, 6.7, and Appendices C and D of ANSI/WCMA-2018 regarding the 
identified characteristics have been effective in reducing the risk of 
injury from strangulation associated with operating cords on stock 
window coverings, and inner cords on stock and custom window coverings. 
Additionally, the required manufacturer label effectively distinguishes 
between stock and custom window coverings, and expedites timely and 
effective recalls, by requiring identification of the manufacturer name 
and manufacture date on the product; and
     stock and custom window coverings manufactured or imported 
for sale in the United States substantially comply with the specified 
characteristics in sections 4.3.1, 4.5, 5.3, 6.3, 6.7, and Appendices C 
and D of ANSI/WCMA-2018.

[[Page 72874]]

B. Background and Statutory Authority

    Section 15(j) of the CPSA authorizes the Commission to specify, by 
rule, for any consumer product or class of consumer products, 
characteristics whose existence or absence are deemed a substantial 
product hazard under section 15(a)(2) of the CPSA. 15 U.S.C. 2064(j). 
Section 15(a)(2) of the CPSA defines a ``substantial product hazard,'' 
in relevant part, as a product defect which (because of the pattern of 
defect, the number of defective products distributed in commerce, the 
severity of the risk, or otherwise) creates a substantial risk of 
injury to the public. For the Commission to issue a rule under section 
15(j) of the CPSA, the characteristics involved must be ``readily 
observable'' and must have been addressed by a voluntary standard. 
Moreover, the voluntary standard must be effective in reducing the risk 
of injury associated with the consumer products; and there must be 
substantial compliance with the voluntary standard. Id.
    As explained in more detail in section II.A of this preamble, the 
``readily observable'' characteristics of window covering cords include 
visual observation for the presence of operating and inner cords, and a 
manufacturer label; and when cords are present, simple manipulations 
and observation of the window covering to assess cord accessibility by 
children, and to measure the length of accessible cords to determine 
whether they present a strangulation hazard.

C. Product Description

    Window coverings include shades, blinds, curtains, and draperies, 
among other products. Both blinds and shades may have inner cords that 
distribute forces to cause a motion, such as raising, lowering, or 
rotating the window covering to achieve a consumer's desired level of 
light control. Manufacturers use inner cords on window coverings to 
open and close blinds and shades, using a variety of mechanisms, 
including traditional operating cords, motors, or direct-lift of the 
bottom rail of the product, to manipulate inner cords. Curtains and 
draperies do not contain inner cords, but consumers can operate 
curtains and drapes using a continuous loop operating cord or a wand.
    A cord or loop used by consumers to manipulate a window covering is 
called an ``operating cord'' and may be in the form of a single cord, 
multiple cords, or continuous loops. ``Cordless'' window coverings are 
products designed to function without an operating cord, but they may 
contain inner cords. Figures 1 through 6 explain window covering 
terminology and show examples of different types of window coverings.
[GRAPHIC] [TIFF OMITTED] TR28NO22.000


[[Page 72875]]


[GRAPHIC] [TIFF OMITTED] TR28NO22.001

    Figure 1 shows a horizontal blind containing inner cords, operating 
cords, and tilt cords. Figure 2 shows a roll-up shade containing 
lifting loops and operating cords. Figure 3 shows a cellular shade with 
inner cords between two layers of fabric and operating cords. Figure 4 
shows a vertical blind with a looped operating cord to traverse the

[[Page 72876]]

blind and a looped bead chain to tilt the vanes. Figure 5 shows a Roman 
shade with inner cords that run on the back side of the shade and 
operating cords. Figure 6 is a horizontal blind that is marketed as 
``cordless'' because it has no operating cords, but it still contains 
inner cords.
    This final rule relies on the definitions of window coverings and 
their features as set forth in the ANSI/WCMA-2018 standard, which 
requires ``stock'' and ``custom'' window coverings to meet different 
sets of requirements. The final rule defines a ``stock window 
covering'' using the definition of ``Stock Blinds, Shades, and 
Shadings'' in section 3, definition 5.02 of ANSI/WCMA-2018, describing 
them as a product that is completely or substantially fabricated prior 
to being distributed in commerce and as a specific stock-keeping unit 
(SKU). Even when the seller, manufacturer, or distributor modifies a 
pre-assembled product, by adjusting to size, attaching the top rail or 
bottom rail, or tying cords to secure the bottom rail, the product is 
still considered ``stock'' as defined in the voluntary standard. 
Moreover, under the voluntary standard, online sales of a window 
covering, or the size of the order, such as multifamily housing orders, 
do not make the product a non-stock product. ANSI/WCMA-2018 provides 
these examples to clarify that, as long as the product is 
``substantially fabricated'' prior to distribution in commerce, 
subsequent changes to the product do not change its categorization from 
``stock'' to ``custom.'' The final rule defines a ``custom window 
covering'' the same as the definition of ``Custom Blinds, Shades, and 
Shadings'' in section 3, definition 5.01 of the ANSI/WCMA-2018 
standard, which is any window covering that is not classified as a 
stock window covering.

D. Hazards Associated With Window Covering Cords

    Window coverings can pose strangulation hazards to children when 
they have cords that are accessible and long enough to wrap around a 
child's neck. Figures 7, 8, and 9, below, depict the strangulation 
hazard for different window covering cord types.

[[Page 72877]]

[GRAPHIC] [TIFF OMITTED] TR28NO22.002

    As reviewed in the NPR, children can strangle from mechanical 
compression of the neck when they place a window covering cord around 
their neck. 87 FR at 894-96. Strangulation can lead to serious injuries 
with permanent debilitating outcomes or death. If sustained lateral 
pressure occurs at a level resulting in vascular occlusion, 
strangulation can occur when a child's head or neck becomes entangled 
in any position, even in situations where the body is fully or 
partially supported.
    Strangulation is a form of asphyxia that can be partial (hypoxia), 
when there is an inadequate oxygen supply to the lungs, or total, when 
there is complete impairment of oxygen transport to tissues. A 
reduction in the delivery of oxygen to tissues can result in permanent, 
irreversible damage. Experimental studies show that only 2 kg (4.4 
lbs.) of pressure on the neck may occlude the jugular vein (Brouardel, 
1897); and 3-5 kg (7-11 lbs.) may occlude the common carotid arteries 
(Brouardel, 1897 and Polson, 1973). Minimal compression of any of these 
vessels can lead to unconsciousness within 15 seconds and death in 2 to 
3 minutes (Digeronimo and Mayes, 1994; Hoff, 1978; lserson, 1984; 
Polson, 1973).
    The vagus nerve is also located in the neck near the jugular vein 
and carotid artery. The vagus nerve is responsible for maintaining a 
constant heart rate. Compression of the vagus nerve can result in 
cardiac arrest due to mechanical stimulation of the carotid sinus-vagal 
reflex. In addition, the functioning of the carotid sinuses may

[[Page 72878]]

be affected by compression of the blood vessels. Stimulation of the 
sinuses can result in a decrease in heart rate, myocardial 
contractility, cardiac output, and systemic arterial pressure in the 
absence of airway blockage.
    Strangulation proceeding along one or more of these pathways can 
progress rapidly to anoxia, associated cardiac arrest, and death. As 
seen in the CPSC data (Wanna-Nakamura, 2014), and in the published 
literature, neurological damage may range from amnesia to a long-term 
vegetative state. Continued deterioration of the nervous system can 
lead to death (Howell and Gully, 1996; Medalia et al., 1991).
    Because a loop acts as a noose when a child's neck is inserted, and 
death can occur within 2-3 minutes of a child losing footing, CPSC 
concludes that head insertion into a preexisting loop poses a higher 
risk of injury than when a cord that does not contain a pre-existing 
loop is wrapped around a child's neck; although both scenarios have 
been demonstrated to be hazardous and have led to fatal outcomes, 
according to CPSC data.
    Based on the data, the Commission also concludes that reliance on 
parental supervision and warning labels are inadequate to address the 
risk of injury associated with window covering cords. A user research 
study found that caregivers lacked awareness regarding the potential 
for window covering cord entanglement, lacked awareness of the speed 
and mechanism of the strangulation injury; stated difficulty using and 
installing safety devices for window coverings, among the primary 
reasons for not using them; and caregivers were unable to recognize the 
purpose of the safety devices provided with window coverings (Levi et 
al., 2016).\4\ According to Godfrey et al. (1983), consumers are less 
likely to look for and read safety information about the products that 
they frequently use and are familiar with. Consumers are very likely to 
be familiar with window coverings because they almost certainly have 
window coverings in their homes and probably use them daily. Therefore, 
even well-designed warning labels will have limited effectiveness in 
communicating the hazard on this type of product.
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    \4\ https://cpsc.gov/s3fs-public/Window%20Coverings%20Safety%20Devices%20Contractor%20Reports.pdf.
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    Based on the foregoing, the Commission finds that warning labels 
are unlikely to effectively reduce the strangulation risk from 
hazardous cords on window coverings, because consumers are not likely 
to read and follow warning labels on window covering products, and 
strangulation deaths among children occur quickly and silently, such 
that parental supervision is insufficient to address the incidents. 
Indeed, staff observed that most of the incident window covering units 
had the permanent warning label required by the ANSI/WCMA standard, 
applicable at the time of manufacture, affixed to the product. Even 
well-designed warning labels will have limited effectiveness in 
communicating the hazard on this type of product, because consumers are 
less likely to heed warnings for familiar products that they commonly 
interact with without incident.
    In contrast, stock window covering requirements in the ANSI/WCMA 
standard adequately address the strangulation hazard, by not allowing 
hazardous cords on the product, by design, and do not rely on consumer 
action to address the risk. Accordingly, the Commission concludes that 
the risk of injury associated with window coverings must be addressed 
through performance requirements for window covering cords.
    As discussed in section II of this preamble, ANSI/WCMA-2018 
contains performance requirements that, when products conform, 
adequately and effectively address the risk of strangulation associated 
with operating cords on stock products, and inner cords on both stock 
and custom products.

E. Risk of Injury

    The Commission's 2015 advance notice of proposed rulemaking (ANPR) 
on Window Coverings presented incident data covering the period from 
1996 through 2012. 80 FR 2327, 2332 (Jan. 16, 2015). Since then, WCMA 
published the revised voluntary standard for window coverings, ANSI/
WCMA-2018. For products that comply, the standard has removed from the 
market hazardous operating/pull cords and inner cords for stock window 
coverings, and removed hazardous inner cords for custom window 
coverings.
    To study the effectiveness and any lack of compliance with the 
voluntary standard associated with window covering cords, for the NPR, 
CPSC staff reviewed the data related to these products from 2009 
through 2020.\5\ Since extracting data for the NPR, CPSC received 15 
additional incidents. Tab A of Staff's Final Rule Briefing Package 
details this new incident data. For the final rule, we describe 
incidents received from 2009 through 2021. The following analysis 
distinguishes between stock and custom window coverings, whenever 
feasible.
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    \5\ CPSC's incident search focused on fatal and near-miss 
strangulations suffered by young children due to window covering 
cords. Whenever feasible, staff selected the time frame to be 2009 
through 2021. CPSC staff searched three databases for identification 
of window covering cord incidents: the Consumer Product Safety Risk 
Management System (CPSRMS), the National Electronic Injury 
Surveillance System (NEISS), and the Multiple Cause of Deaths data 
file (further information can be found at https://wonder.cdc.gov/mcd-icd10.html). The first two sources are CPSC-maintained 
databases. The Multiple Cause of Deaths data file is available from 
the National Center for Health Statistics (NCHS).
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1. Incident Data From CPSC Databases

    Based on newspaper clippings, consumer complaints, death 
certificates purchased from states, medical examiners' reports, reports 
from hospital emergency department-treated injuries, and in-depth 
investigation reports, CPSC staff found a total of 209 reported fatal 
and near-miss strangulations on window covering cords that occurred 
among children 8 years old and younger from January 2009 through 
December 2021. These 209 incidents do not necessarily include all 
window covering cord-related strangulation incidents that occurred 
during that period. However, these 209 incidents do provide a minimum 
number for such incidents during that time frame.
    Table 1a provides the breakdown of the incidents by year. Totals 
include new incidents received after the NPR data analysis and are 
noted in parentheticals below. Because reporting is ongoing and the 
number of incidents may grow, and because these reports are anecdotal 
and reporting is incomplete, CPSC strongly discourages drawing any 
inferences based on the year-to-year increases or decreases shown in 
the reported data.

[[Page 72879]]



  Table 1a--Reported Fatal and Near-Miss Strangulation Incidents Involving Window Covering Cords Among Children
                                        Eight Years and Younger 2009-2021
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                                                                         Number of reported incidents
                                                             ---------------------------------------------------
                        Incident year                                               Fatal           Near-miss
                                                                   Total       strangulations    strangulations
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2009........................................................              48                14                34
2010........................................................              31                11                20
2011........................................................              10                 6                 4
2012........................................................              17                 8                 9
2013........................................................               9                 2                 7
2014........................................................              17                12                 5
2015........................................................               9                 7                 2
2016........................................................              17                13                 4
2017........................................................          10 (1)                 5             5 (1)
2018........................................................               8                 4                 4
2019........................................................              11                 4                 7
2020 *......................................................          13 (5)             8 (5)                 5
2021 *......................................................           9 (9)             6 (6)             3 (3)
                                                             ---------------------------------------------------
    Total...................................................        209 (15)          100 (11)           109 (4)
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Source: CPSC epidemiological databases CPSRMS and NEISS. Data in () indicate the number of new incidents
  received since the NPR data analysis.
Note: * indicates data collection is ongoing.

Among the 15 newly reported incidents, staff identified 11 fatalities 
(73 percent) and 4 non-hospitalized injuries (27 percent). The non-
hospitalized injuries resulted in lacerations and abrasions.
    Table 1b expands on Table 1a to display the distribution of the 
annual incidents by severity of incidents and type of window coverings 
involved. CPSC staff identified 50 of 209 incident window coverings (24 
percent) to be stock products, and 36 of the 209 (17 percent) window 
coverings as custom products. CPSC staff could not identify the window 
covering type in the remaining 123 of the 209 (59 percent) incidents; 
65 of the 123 (53 percent) incidents involving an uncategorized window 
covering resulted in a fatality.

  Table 1b--Reported Fatal and Near-Miss Strangulation Incidents Involving Stock/Custom/Unknown Types of Window
                         Covering Cords Among Children Eight Years and Younger 2009-2021
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                                                        Reported incidents by window covering type
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             Incident year                  Stock (fatal/      Custom (fatal/      Unknown (fatal/
                                              nonfatal)           nonfatal)           nonfatal)          All
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2009...................................           20 (4/16)           7 (\2/5\)           21 (8/13)           48
2010...................................          10 (\3/7\)           7 (\2/5\)          14 (\6/8\)           31
2011...................................           2 (\1/1\)           4 (\3/1\)           4 (\2/2\)           10
2012...................................           1 (\1/0\)           5 (\1/4\)          11 (\6/5\)           17
2013...................................           2 (\1/1\)           3 (\1/2\)           4 (\0/4\)            9
2014...................................           3 (\2/1\)           2 (\1/1\)          12 (\9/3\)           17
2015...................................           4 (\4/0\)           1 (\1/0\)           4 (\2/2\)            9
2016...................................           5 (\3/2\)           4 (\3/1\)           8 (\7/1\)           17
2017...................................           2 (\1/1\)           1 (\0/1\)           7 (\4/3\)           10
2018...................................  ..................           1 (\0/1\)           7 (\4/3\)            8
2019...................................            1(\0/1\)  ..................          10 (\4/6\)           11
2020 *.................................  ..................           1 (\1/0\)          12 (\7/5\)           13
2021 *.................................  ..................  ..................           9 (\6/3\)            9
                                        ------------------------------------------------------------------------
    Total..............................          50 (20/30)          36 (15/21)         123 (65/58)          209
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Source: CPSC epidemiological databases CPSRMS and NEISS.
Note: * indicates data collection is ongoing.

    One hundred of the 209 incidents (48 percent) reported a fatality. 
Among the nonfatal incidents, 16 involved hospitalizations (8 percent). 
The long-term outcomes of these 16 injuries varied from a scar around 
the neck, to quadriplegia, to permanent brain damage. One additional 
child was treated and transferred to another hospital; the final 
outcome of this patient is unknown. In addition, 79 incidents (38 
percent) involved less-severe injuries, some requiring medical 
treatment, but not hospitalization. In the remaining 14 incidents (7 
percent), a child became entangled in a window covering cord, but was 
able to disentangle from the cord and escape injury. For the NPR, among 
the incidents with gender information available, 66 percent of the 
children were males, and 34 percent were females. One incident did not 
report the child's gender. For the 15 new incidents staff found a 
similar trend regarding gender; 62 percent of the victims were male and 
38 percent were females.
    Table 1c provides a breakdown of the incidents by window covering 
type. Among the 11 newly reported deaths

[[Page 72880]]

since the NPR data analysis, staff definitively identified the cord 
type in 6 deaths. Three deaths (27 percent) involved a pull cord, two 
deaths (18 percent) involved a continuous loop, and one death (9 
percent) involved inner cord(s); staff had insufficient information to 
determine the cord type involved for the remaining five fatal 
incidents.

    Table 1c--Distribution of Reported Incidents by Types of Window Coverings and Associated Cords 2009-2021
                        [Numbers in parentheses indicate new reports received since NPR]
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                                                                       Cord type
                                      --------------------------------------------------------------------------
         Window covering type            Pull    Continuous   Inner    Lifting     Tilt
                                         cord       loop       cord      loop      cord     Unknown      Total
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Horizontal...........................   68 (3)            2    4 (1)          0        5           10     89 (4)
Vertical.............................        0       12 (1)        0          0        0            0     12 (1)
Drapery..............................        0        4 (1)        0          0        0            0      4 (1)
Roman................................        2            2       19          0        0            1         24
Other *..............................        2            5        0          0        0            0          7
Roll-Up..............................        1            0        0          4        0            1          6
Roller...............................        0            9        0          0        0            0          9
Unknown..............................        1            1        0          0        0       56 (9)     58 (9)
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    Total............................   74 (3)       35 (2)   23 (1)          4        5       68 (9)   209 (15)
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Source: CPSC epidemiological databases CPSRMS and NEISS.
Other *: This category includes cellular and pleated shades.
Subtotal [dagger]: This row shows the incidents that are relevant to the Section 7&9 rule.

2. Incident Data From National Estimates
(a) Estimates of Window Covering Cord-Related Strangulation Deaths 
Using National Center for Health Statistics Data
    The National Center for Health Statistics (NCHS) compiles all death 
certificates filed in the United States into multiple-cause mortality 
data files. The mortality data files contain demographic information on 
the deceased, as well as codes to classify the underlying cause of 
death, and up to 20 contributing conditions. The NCHS compiles the data 
in accordance with the World Health Organization (WHO) instructions, 
which request member nations to classify causes of death by the current 
Manual of the International Statistical Classification of Diseases, 
Injuries, and Causes of Death. Death classifications use the tenth 
revision of the International Classification of Diseases (ICD), 
implemented in 1999. For the NPR, 2019 was the latest available year 
for NCHS data; since then, data for 2020 have become available.
    Using the ICD10 code value of W76 (Other accidental hanging and 
strangulation), the code most likely to capture strangulation 
fatalities among children under 5 (based on empirical evidence from 
death certificates maintained in CPSC databases), CPSC staff derived 
fatality estimates for 2009 through 2020, presented in Figure 10 below. 
An unknown proportion of strangulation deaths is likely coded under 
ICD10=W75 (Accidental suffocation and strangulation in bed) as well as 
ICD10=W83 (Other specified threats to breathing), which staff cannot 
separate out from the non-strangulation deaths because of the 
unavailability of any narrative description in these data. Hence, 
CPSC's estimates of strangulation deaths are minimums.
    A 2002 CPSC report by Marcy et al. \6\ concluded that 35 percent of 
all strangulation fatalities among children less than 5 years old were 
associated with window covering cords. Assuming that the same 
proportion applied for the entire 12-year period 2009-2020, Figure 10 
below presents the national estimates for all strangulation fatalities 
as well as strangulations involving window covering cords among 
children under 5.
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    \6\ N. Marcy, G. Rutherford. ``Strangulations Involving Children 
Under 5 Years Old.'' U.S. Consumer Product Safety Commission, 
December 2002.

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[[Page 72881]]

[GRAPHIC] [TIFF OMITTED] TR28NO22.003

    Based on the 2002 study, staff estimates the annual average number 
of deaths at 8.1 (or 9, if rounded up to the nearest integer).\7\ We 
note that this estimate is consistent with CPSC's actual incident data 
over a 12-year period. For example, at the time of this final rule 
analysis, the incidents over the 12-year period 2009-2020 report an 
average of 7.8 (or 8, if rounded up to the nearest integer) annual 
deaths involving window covering cords among children under 8.
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    \7\ We received a comment critical of CPSC's use of this 2002 
study. At this point in time, we are unaware of other data sources 
that would provide information regarding a more current national 
trend in window covering cord-related strangulations and the 
commenter did not provide an alternate data source.
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F. Applicable Voluntary Standard--ANSI/WCMA-2018

    WCMA updated the 2018 version the standard in May 2018, to include 
missing balloted revisions. The standard went into effect on December 
15, 2018. Since CPSC staff submitted the NPR Staff Briefing Package in 
October 2021, WCMA held multiple meetings with the intent of revising 
the ANSI/WCMA voluntary standard, balloting a revised version on July 
15, 2022.\8\ The balloted standard is not in effect and does not modify 
the provisions in the 2018 standard relevant to this rulemaking. 
Accordingly, the final rule to amend part 1120 is based on ANSI/WCMA-
2018.
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    \8\ CPSC staff participated in all meetings, and meeting logs 
have been placed on the rulemaking docket for custom window 
coverings (Docket No. CPSC-2013-0028).
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    The 2018 voluntary standard segments the window covering market 
between ``stock'' and ``custom'' window coverings, as defined in 
section 3 of the standard, definitions 5.02 and 5.01. Per section 4.3.1 
of the standard, stock window coverings are required to have:
    (1) no operating cords (4.3.1.1),
    (2) inaccessible operating cords (4.3.1.3), or
    (3) short operating cords (equal to or less than 8 inches) 
(4.3.1.2).
    As reviewed in section II of this preamble, the Commission finds 
that the requirements for operating cords on stock window coverings in 
ANSI/WCMA-2018 adequately address the risk of strangulation to 
children, by removing operating cords, ensuring that they are 
inaccessible to children, or by making them too short to wrap around a 
child's neck. Staff's review of the incident data found that if stock 
window coverings had complied with the requirements in sections 4.3.1 
of ANSI/WCMA-2018 at the time of the incident, all operating cord 
incidents would have been prevented. See Tabs G and I of Staff's NPR 
Briefing Package; Briefing Memorandum of Staff's Final Rule Briefing 
Package (at page 36). However, as shown in Table 2, ANSI/WCMA-2018 does 
not adequately address the risk of injury associated with custom window 
coverings, because custom products can still be sold to consumers with 
hazardous operating cords longer than 8 inches, if manufacturers give 
consumers the option to custom order the products (sections 4.3.2.4 
through 4.3.2.7 of ANSI/WCMA-2018).\9\ A hazardous operating cord is 
one that a child can access, and that is long enough for a child to 
either wrap around their neck (longer than 8 inches), or to insert 
their head into a pre-formed loop.
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    \9\ Although custom window coverings manufacturers can choose to 
meet the operating cord requirements for stock window coverings 
(sections 4.3.2.1 through 4.3.2.3), the standard does not require 
them to do so. Instead, the standard allows firms to continue 
manufacturing and selling custom window coverings that contain 
hazardous operating cords (sections 4.3.2.4 through 4.3.2.7). 
Because the ANSI/WCMA-2018 standard does not adequately address the 
risk of injury from operating cords on custom products, this final 
rule does not include them in the scope of the rule under section 
15(j) of the CPSA. The Commission is addressing operating cords on 
custom window coverings in a separate rulemaking under sections 7 
and 9 of the CPSA; CPSC Docket No. CPSC-2013-0028.
---------------------------------------------------------------------------

    The Commission also finds that section 4.5 of ANSI/WCMA adequately 
addresses the strangulation risk associated with inner cords on both 
stock and custom window coverings. ANSI/WCMA-2018 requires that if 
inner cords are present on the product, the inner cords must be (1) 
inaccessible, or (2) if cords are accessible, the loop created when 
pulling the cord (with a maximum force of 5 pounds) cannot allow a head 
probe to be inserted using a 10-pound force. Section II of this 
preamble provides an analysis of the inner cord strangulation hazard on 
stock and custom window coverings. Section 4.5 of the ANSI/WCMA-2018 
standard adequately addresses the risk of injury associated with inner 
cords on stock

[[Page 72882]]

and custom window coverings because, similar to operating cords on 
stock products, inner cords must be not present, or must be 
inaccessible, or, if inner cords are accessible, the cords must be too 
short to create a loop large enough for a child to insert his or her 
head. Staff's review of the incident data found that if stock and 
custom window coverings had been in compliance with section 4.5 of 
ANSI/WCMA-2018, all inner cord incidents would have been prevented on a 
window covering that is unbroken and intact. Id.
    Table 2 explains the requirements in in ANSI/WCMA-2018 for 
operating cords, inner cords, and the manufacturer label, on stock and 
custom window coverings. In the final rule, the Commission deems 
failure to follow the provisions in requirements 1 through 5 an SPH, 
while the Commission addresses the inadequate provisions in 
requirements 6 through 8 in the final rule for operating cords on 
custom window coverings under CPSC Docket No. CPSC-2013-0028.

                      Table 2--Requirements for Stock and Custom Products in ANSI/WCMA-2018
----------------------------------------------------------------------------------------------------------------
 Performance requirements in ANSI/   Assessment of the performance
          WCMA A100.1-2018                    requirement               Stock products        Custom products
----------------------------------------------------------------------------------------------------------------
1. No operating cords OR...........  Adequate.....................  Required to have one   Allowed/Not Required.
                                                                     or more of these
                                                                     options.
2. Short cord with a length equal
 to or less than 8 inches in any
 state (free or under tension) OR
3. Inaccessible operating cords.
4. Inner cords that meet Appendix C  Adequate.....................  Required.............  Required.
 and D.
5. Manufacturer Label that meets     Adequate.....................  Required.............  Required.
 section 5.3.
6. Single Retractable Cord Lift      Inadequate...................  Prohibited...........  Allowed/
 System (no limit on length of                                                             Not Prohibited.
 exposed cord when operating).
7. Continuous Loop Operating
 System.
8. Accessible Operating Cords
 longer than 8 inches.
----------------------------------------------------------------------------------------------------------------

G. Commission Efforts To Address Hazardous Window Covering Cords

1. Petition and Rulemaking
    On October 8, 2014, the Commission granted a petition to initiate a 
rulemaking to develop a mandatory safety standard for window 
coverings.\10\ The petition asked CPSC to prohibit window covering 
cords when a feasible cordless alternative exists. When a feasible 
cordless alternative does not exist, the petition requested that all 
window covering cords be made inaccessible by using passive guarding 
devices. The Commission granted the petition and directed staff to 
prepare an ANPR to seek information and comment on regulatory options 
for a mandatory rule to address the risk of strangulation to young 
children on window covering cords.
---------------------------------------------------------------------------

    \10\ The petition, CP 13-2, was submitted by Parents for Window 
Blind Safety, Consumer Federation of America, Consumers Union, Kids 
In Danger, Public Citizen, U.S. PIRG, Independent Safety Consulting, 
Safety Behavior Analysis, Inc., and Onder, Shelton, O'Leary & 
Peterson, LLC. Staff's October 1, 2014 Petition Briefing Package, 
and a copy of the petition at Tab A, is available on CPSC's website 
at: https://cpsc-d8-media-prod.s3.amazonaws.com/s3fs-public/pdfs/foia_PetitionRequestingMandatoryStandardforCordedWindowCoverings.pdf.

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

    On January 9, 2015, the Commission voted to approve publication in 
the Federal Register of the ANPR for corded window coverings, with 
changes. The Commission published the ANPR for corded window covering 
products on January 16, 2015 (80 FR 2327). The ANPR initiated a 
rulemaking proceeding under the CPSA. CPSC invited comments concerning 
the risk of injury associated with corded window coverings, the 
regulatory alternatives discussed in the notice, the costs to achieve 
each regulatory alternative, the effect of each alternative on the 
safety, cost, utility, and availability of window coverings, and other 
possible ways to address the risk of strangulation posed to young 
children by window covering cords. CPSC also invited interested persons 
to submit an existing standard or a statement of intent to modify or 
develop a voluntary standard to address the risk of injury. The ANPR 
was based on the 2014 version of the ANSI/WCMA standard.
    As described in section II.F of this preamble, the voluntary 
standard, ANSI/WCMA-2018, adequately addresses the risk of injury from 
operating and inner cords on stock window coverings, and the risk of 
inner cord strangulation on custom window coverings. Accordingly, the 
Commission is issuing two final rules: (1) this final rule under 
section 15(j) of the CPSA, to deem as SPHs, stock window coverings that 
do not comply with one or more of three readily observable 
characteristics, and custom window coverings that do not comply with 
one or more of two readily observable characteristics; and (2) in a 
separate rulemaking under sections 7 and 9 of the CPSA, a final rule 
that requires that custom window coverings manufactured for sale in the 
United States not contain hazardous operating cords, by complying with 
the same operating cord requirements as stock products in section 4.3.1 
of ANSI/WCMA-2018, or by making an accessible cord non-hazardous, as 
described in the final rule.\11\
---------------------------------------------------------------------------

    \11\ The custom window covering final rule provides several 
methods for window covering manufacturers to produce safe window 
covering options: cordless, short cords 8 inches or less, 
inaccessible cords (cord shrouds or retractable cords with a 12-inch 
stroke length), and continuous loops contained within a cord or bead 
restraining device that meets the requirements of the final rule.
---------------------------------------------------------------------------

2. Window Covering Recalls
    As reported in the NPR, during the period January 1, 2009 through 
December 31, 2020, CPSC conducted 42 consumer-level recalls, including 
two recall reannouncements. 87 FR at 901. Tab C of Staff's NPR Briefing 
Package provides the details of these 42 recalls, where strangulation 
was the primary hazard. Manufacturers recalled more than 28 million 
units,\12\ including: Roman shades and blinds, roll-up blinds, roller 
shades, cellular shades, horizontal blinds, and vertical blinds. The 
recalled products also included stock products, which can be purchased 
by consumers off-the-shelf, and custom products, which are made-to-
order window coverings based on a consumer's specifications, such as 
material, size, and color. Recalled units did not comply with the 
current voluntary standard, ANSI/WCMA-2018. CPSC has not conducted any 
window

[[Page 72883]]

covering recalls since December 31, 2020.
---------------------------------------------------------------------------

    \12\ This estimate does not include the recalled units of Recall 
No. 10-073. This was an industry-wide recall conducted by members of 
the Window Covering Safety Council (WCSC). The recall announcement 
did not provide an exact number of recalled products.
---------------------------------------------------------------------------

H. Comments on the NPR

    CPSC received three comments on the section 15(j) rule during the 
comment period, and two comments before the comment period began. All 
comments generally supported the 15(j) rule and have been placed on the 
docket for this rule. Commenters include WCMA (two comments),\13\ 
Consumer Federation of America, Consumer Reports, and Parents for 
Window Blind Safety. Based on staff's assessment of the ANSI/WCMA-2018 
standard and all comments in support of the rule, the Commission 
finalizes this rule as proposed.
---------------------------------------------------------------------------

    \13\ WCMA also submitted its comments on the proposed rule for 
operating cords on custom window coverings (Docket CPSC-2013-0028) 
on the docket for this final rule under section 15(j) of the CPSA. 
Those comments are not generally relevant to the determinations 
required for a section 15(j) final rule (readily observable product 
characteristics are adequately addressed in a voluntary standard, 
and products substantially comply with the voluntary standard), and 
so the Commission addresses WCMA's comments in the final rule for 
custom window coverings.
---------------------------------------------------------------------------

II. Commission Determination of a Substantial Product Hazard

    Sections 4.3.1, 4.5, 5.3, 6.3, 6.7, and Appendices C and D of ANSI/
WCMA-2018 set forth the performance requirements for the identified 
readily observable characteristics of stock and custom window coverings 
specified in the final rule. Table 3 summarizes these requirements. The 
final rule deems nonconformance to one or more of the identified 
readily observable characteristics of stock and custom window coverings 
in ANSI/WCMA-2018 to be an SPH under section 15(a)(2) of the CPSA.

 Table 3--Readily Observable Characteristics in ANSI/WCMA-2018 for Stock
                       and Custom Window Coverings
------------------------------------------------------------------------
                                     Readily
Stock window coverings section      observable           Criterion
        of the standard          characteristics
------------------------------------------------------------------------
                            A. Operating cord
------------------------------------------------------------------------
4.3.1.1 Cordless Operating      Presence of the    (a) Not present or
 System: ``The product shall     operating cord.
 have no operating cords''.
4.3.1.2 Short Static or Access  If present,        (b) 8 inches or
 Cords: ``The product shall      measure the        shorter or
 have a Short Cord''.            length in any
                                 position of the
                                 window covering.
4.3.1.3 Inaccessible Operating  If present and     (c) Inaccessible
 Cords: ``The operating cords    longer than 8      using cord
 shall be inaccessible as        inches, observe    accessibility probe.
 determined per the test         whether
 requirements in Appendix C:     accessible.
 Test Procedure for Accessible
 Cords''.
------------------------------------------------------------------------
                              B. Inner cord
------------------------------------------------------------------------
4.5 Inner Cords: ``All          If present,        (a) Inaccessible
 products with inner cords       determine          using cord
 must meet the requirements in   whether            accessibility probe
 Appendix C and Appendix D.''    accessible.        or
 Appendix C. Test Procedure
 for Accessible Cords.
Appendix D. Hazardous Loop      If present,        (b) Pull inner cord
 Test Procedure.                 determine          and measure to
                                 whether a          determine whether
                                 child's head can   the opening is less
                                 penetrate the      than 17 inches. For
                                 opening.           15(j) purposes, this
                                                    is comparable to
                                                    inserting a head
                                                    probe with a force
                                                    of 10 pounds.
------------------------------------------------------------------------
                          C. Manufacturer label
------------------------------------------------------------------------
5.3 Manufacturer Label: There   Presence of a      Observe whether the
 shall be a permanent label(s)   permanent label    label is present and
 or marking on all finished      or marking         contains the
 window covering products.       within or on the   following:
                                 headrail or on    (a) The name, city,
                                 the roller tube.   and state of the
                                                    manufacturer/
                                                    importer/fabricator.
                                                   (b) Month and year of
                                                    manufacture.
                                                   (c) Designation of
                                                    window covering as
                                                    ``Custom'' or
                                                    ``Stock.''
------------------------------------------------------------------------

A. Defined Characteristics Are Readily Observable

1. Operating Cords on Stock Window Coverings
    Section 4.3.1 of ANSI/WCMA-2018 requires the operating cords of 
stock window coverings to be: (1) not present (cordless) (section 
4.3.1.1); (2) inaccessible (section 4.3.1.3); or (3) eight inches long 
or shorter in any position of the stock window covering (section 
4.3.1.2). The Commission determines that these characteristics of 
operating cords on stock window coverings are ``readily observable'' 
because, as explained in the NPR, they require visual observation and 
measurement to assess conformance with sections 4.3.1.1 through 4.3.1.4 
of ANSI/WCMA-2018. 87 FR at 902-04. Additionally, the Commission deems 
the presence of an accessible operating cord longer than 8 inches in 
any position an SPH, because a child can wrap a cord or looped cord 
longer than 8 inches around his or her neck, and the child could 
strangle on the long cord.
2. Inner Cords on Stock and Custom Window Coverings
    If a stock window covering conforms to the readily observable 
operating cord requirements in section 4.3.1 of ANSI/WCMA-2018, a CPSC 
investigator would then observe whether the window covering has 
hazardous inner cords, as set forth in section 4.5, 6.3, 6.7, and 
Appendices C and D, of ANSI/WCMA-2018. Investigators would also assess 
whether a custom window product contains a hazardous inner cord. ANSI/
WCMA-18 requires that inner cords on stock and custom window coverings 
be: (1) not present (cordless); (2) inaccessible; or (3) short enough 
not to create a loop large enough for a child to insert their head. The 
Commission determines that these characteristics of inner cords on 
stock and custom window coverings are ``readily observable'' because, 
as detailed in the NPR, they require visual observation and direct 
measurements of the product to assess conformance with sections 4.5, 
6.3, 6.7, Appendix C, and Appendix D of ANSI/WCMA-2018. 87 FR at 904-
08. The Commission deems the presence of an accessible inner cord on 
stock and custom window coverings that creates a loop large enough for 
a child to insert his or her head when tested per sections 4.5, 6.3, 
6.7, and

[[Page 72884]]

Appendices C and D of ANSI/WCM-2018 to be an SPH, because a child can 
strangle on a noncompliant inner cord loop.
3. Manufacturer Label on Stock and Custom Window Coverings
    Section 5.3 of ANSI/WCMA-2018 requires that stock and custom window 
coverings display a permanent label on the headrail (or roller tube) of 
a window covering, with the following information:
     the readily distinguishable name, city, and state of the 
manufacturer/importer/fabricator;
     the month and year of manufacture;
     the designation of the window covering as ``Custom'' or 
``Stock.''
    The Commission determines, as proposed in the NPR, that the absence 
of a manufacturer label is readily observable with a visual observation 
of the window covering. 87 FR at 908. The Commission deems the absence 
of a manufacturer label on a window covering an SPH, because the window 
covering would not be in compliance with section 5.3 of ANSI/WCMA-2018. 
Additionally, the absence of this manufacturer label makes it difficult 
for staff, manufacturers, and consumers to identify the product and 
class of products subject to a recall, and to distinguish stock from 
custom window coverings. More than 28 million window covering units 
have been subject to a recall. Product information that aids a recall 
is necessary to affect and expedite recalls, especially in cases where 
a consumer, such as a renter, did not directly purchase the window 
coverings and is reliant on the manufacturer label for product 
information.

B. Window Coverings That Conform to ANSI/WCMA-2018 Are Effective at 
Reducing the Risk of Injury Associated With the Identified Readily 
Observable Characteristics

    Based on CPSC staff's analysis, the Commission determines that 
stock window coverings that comply with section 4.3.1 of the 2018 
version of the ANSI/WCMA standard effectively eliminate or 
significantly reduce the risk of strangulation from operating cords, by 
removing operating cords, making operating cords inaccessible to 
children, or by ensuring that operating cords are not long enough for a 
child to wrap around his or her neck. See Tabs G and I of Staff's NPR 
Briefing Package; Briefing Memorandum of Staff's Final Rule Briefing 
Package (at page 36). Staff's review of the incident data found that if 
stock window coverings had complied with the requirements in sections 
4.3.1 of ANSI/WCMA-2018 at the time of the incident, all operating cord 
incidents would have been prevented. Id. Even though the requirements 
in the 2018 standard, when followed, should lead to safe stock window 
coverings, the Commission acknowledges that it will take approximately 
2 decades, for existing window coverings in consumers' homes to be 
replaced.\14\
---------------------------------------------------------------------------

    \14\ For window coverings manufactured before the effective date 
of the voluntary standard, the Window Covering Safety Council (WCSC) 
distributes safety devices through its website, and during October 
safety month, CPSC and WCSC have promoted safe window coverings, and 
offer guidance on what to do to reduce the strangulation hazard.
---------------------------------------------------------------------------

    Based on staff's assessment, the Commission also determines that 
stock and custom window coverings that comply with the inner cord 
requirements in sections 4.5, 6.3, 6.7, and Appendices C and D of ANSI/
WCMA-2018 effectively eliminate or reduce the strangulation risk to 
children from hazardous inner cords. Id. Like the operating cord 
requirements for stock window coverings, the inner cord requirements 
eliminate hazardous cords, by removing them from the product, shrouding 
inner cords to make them inaccessible to children, or ensuring that if 
a child pulls on an inner cord, the loop created is not large enough 
for a child to insert his or her head. Staff's review of the incident 
data found that if stock and custom window coverings had been in 
compliance with section 4.5 of ANSI/WCMA-2018, all inner cord incidents 
would have been prevented on a window covering that is unbroken and 
intact. Id.
    Finally, the Commission determines that stock and custom window 
coverings that comply with section 5.3 of ANSI/WCMA-2018, by displaying 
the required manufacturer label, are effective at reducing the risk of 
injury, by identifying whether a product is stock or custom, and by 
identifying the manufacturer and the manufacture date of the products. 
This information allows CPSC, manufacturers, and consumers to 
differentiate stock products from custom products, and it also aids in 
expediting timely and effective recalls. See Tab D of Staff's NPR 
Briefing Package.

C. Window Coverings Substantially Comply With the Identified Readily 
Observable Characteristics of Window Coverings

    The Commission has several bases to determine that stock window 
coverings substantially comply with the requirements for operating 
cords in ANSI/WCMA-2018. First, WCMA, the trade association for window 
coverings and the body that created the voluntary standard, stated in a 
comment on the ANPR (comment ID: CPSC_2013-0028-1555) that there has 
been substantial compliance with the voluntary standard since its first 
publication. WCMA also stated that the association's message to 
manufacturers is that, to sell window coverings in the United States, 
compliance with the standard is mandatory.
    Additionally, the Commission instructed the staff to investigate 
the level of compliance of window coverings with the voluntary 
standard. CPSC contracted with D+R International, which interviewed 
window covering manufacturers and component manufacturers to collect 
anecdotal information on the distribution of stock and custom product 
sales and the impact of compliance with the voluntary standard (D+R 
International, 2021). Various manufacturers indicated retail customers 
would not stock noncompliant products. Manufacturers are also aware of 
their customers' procedures, and they would not ship to them, if there 
were concerns about the assembly and installation process. The D+R 
report indicates that the voluntary standard has caused U.S. window 
covering manufacturers to design and offer cordless lift operations for 
most stock window covering categories. All manufacturers interviewed 
were aware of the standard and had implemented compliance in all stages 
of their development process, from product design to fabrication.
    CPSC field staff also confirmed compliance of the categorization 
for ``stock'' and ``custom'' window coverings, as defined in the ANSI/
WCMA standard. CPSC field staff conducted unannounced in-store visits 
to 18 firms, comprising wholesalers, manufacturers, and retailers. 
Window coverings in 13 locations demonstrated compliance with the 
voluntary standard for operating cords for stock and custom products. 
However, in four locations, staff observed noncompliance of custom 
window coverings with the ANSI/WCMA standard, primarily for 
characteristics that are not subject to this rule, including: 
deviations from the default options with no specific customer request 
that justified the deviation (e.g., length of operating cords 40 
percent longer than the window covering length and use of a cord tilt, 
instead of a wand tilt,); lack of warning label; lack of manufacturer 
label; and lack of hang tag. Staff found one location with a 
noncomplying stock window covering. This stock window

[[Page 72885]]

covering was being sold with long beaded-cord loops in various sizes. 
Tab E of Staff's NPR Briefing Package contains a more detailed 
description of staff's assessment of substantial compliance with the 
voluntary standard.
    Finally, CPSC technical staff tested custom product samples, using 
test parameters defined in ANSI/WCMA-2018, with a cord accessibility 
probe and force gauge. The samples tested by staff also indicated a 
high level of conformance in custom products regarding inner cord 
accessibility.
    Based on incident data, WCMA's statements, contractor report 
findings, and staff's examination and testing of window covering 
products, the Commission determines that a substantial majority of 
window coverings sold in the United States comply with the readily 
observable safety characteristics identified in ANSI/WCMA-2018, as 
described in Table 3.

III. Description of the Final Rule

    The final rule adds several new paragraphs in part 1120. The final 
rule includes two new definitions in Sec.  1120.2(f) and (g), which 
define ``stock window covering'' and ``custom window covering'' 
consistent with the definitions in section 3 of ANSI/WCMA-2018, 
definitions 5.02 and 5.01, respectively. The final rule defines a 
``stock window covering'' as a product that is ``completely or 
substantially fabricated'' prior to being distributed in commerce and 
is a stock-keeping unit (SKU). The definition further explains that 
even when a seller, manufacturer, or distributor modifies a pre-
assembled product by, for example, adjusting the size, attaching a top 
rail or bottom rail, or tying cords to secure the bottom rail, the 
product is still considered ``stock.'' Additionally, the definition 
clarifies that online sales of the product, or the quantity of an 
order, such as a large quantity for a multifamily housing unit, do not 
make the product a non-stock product. The final rule defines a ``custom 
window covering'' as any window covering that is not classified as a 
stock window covering.
    Section 1120.3 of the final rule lists substantial product hazards 
by product, identifying the readily observable characteristics of each 
product, and the sections of the voluntary standards that address each 
hazard. The final rule modifies Sec.  1120.3 by adding ``stock window 
coverings'' and ``custom window coverings'' as Sec.  1120.3(e) and (f), 
respectively. Section 1120.3(e) of the final rule deems stock window 
coverings that fail to comply with one or more of three readily 
observable characteristics in ANSI/WCMA-2018 an SPH:
    (1) Operating cord requirements in sections 4.3.1.1 (cordless 
operating system), 4.3.1.2 (short static or access cord), or 4.3.1.3 
(inaccessible operating cord);
    (2) Inner cord requirements in sections 4.5, 6.3, 6.7, Appendix C, 
and Appendix D; and
    (3) On-product manufacturer label in section 5.3.
    Additionally, Sec.  1120.3(f) of the final rule deems custom window 
coverings that fail to comply with one or more of two readily 
observable characteristics in ANSI/WCMA-2018 an SPH:
    (1) Inner cord requirements in section 4.5, 6.3, 6.7, Appendix C, 
and Appendix D; and
    (2) On-product manufacturer label in section 5.3.
    These characteristics and the ANSI/WCMA-2018 requirements are 
explained in more detail in section II, and Tables 2 and 3, of this 
preamble.
    Finally, the final rule adds Sec.  1120.4(d), which provides the 
incorporation by reference details for the ANSI/WCMA standard.

IV. Effect of the Final Rule Under Section 15(j) of the CPSA

    Section 15(j) of the CPSA allows the Commission to issue a rule 
specifying that a consumer product or class of consumer products has 
characteristics whose presence or absence creates a substantial product 
hazard. A rule under section 15(j) of the CPSA is not a consumer 
product safety rule, and thus, would not trigger the statutory 
requirements of a consumer product safety rule. For example, a rule 
under section 15(j) of the CPSA does not trigger the testing or 
certification requirements under section 14(a) of the CPSA.
    Although a rule issued under section 15(j) of the CPSA is not a 
consumer product safety rule, a product that is or has an SPH listed in 
16 CFR part 1120 is subject to the reporting requirements of section 
15(b) of the CPSA, 15 U.S.C. 2064(b). A manufacturer, importer, 
distributor, or retailer that fails to report an SPH to the Commission 
is subject to civil penalties under section 20 of the CPSA, 15 U.S.C. 
2069, and is possibly subject to criminal penalties under section 21 of 
the CPSA, 15 U.S.C. 2070.
    A product that is or contains an SPH may also be subject to 
voluntary corrective action or mandatory corrective action under 
sections 15(c) and (d) of the CPSA, 15 U.S.C. 2064(c) and (d). Thus, by 
issuing a final rule under section 15(j) for stock and custom window 
coverings, the Commission can order the manufacturer, importer, 
distributor, or retailer of window coverings that do not conform to one 
or more of the identified readily observable characteristics to offer 
to repair or replace the product or to refund the purchase price to the 
consumer.
    A product that is offered for import into the United States and is 
or contains an SPH shall be refused admission into the United States 
under section 17(a) of the CPSA, 15 U.S.C. 2066(a). Additionally, 
Customs and Border Protection (CBP) has the authority to seize certain 
products offered for import under the Tariff Act of 1930 (19 U.S.C. 
1595a)(Tariff Act), and to assess civil penalties that CBP, by law, is 
authorized to impose. Section 1595a(c)(2)(A) of the Tariff Act states 
that CBP may seize merchandise, and such merchandise may be forfeited 
if: ``its importation or entry is subject to any restriction or 
prohibition which is imposed by law relating to health, safety, or 
conservation and the merchandise is not in compliance with the 
applicable rule, regulation, or statute.'' Thus, pursuant to the final 
rule, stock and custom window coverings that violate the rule are 
subject to CBP seizure and forfeiture.

V. Regulatory Flexibility Act Analysis

    The Regulatory Flexibility Act (RFA) requires that proposed and 
final rules be reviewed for the potential economic impact on small 
entities, including small businesses. 5 U.S.C. 601-612. In the NPR, the 
Commission stated that the economic effect of the rule on all entities 
will be minimal, and that absent public comment with relevant 
information and evidence to the contrary, the Commission intended to 
certify at the final rule stage that the rule will not have a 
significant economic impact on a substantial number of small entities. 
87 FR at 910-11. The Commission received no comments on the RFA 
analysis presented in the NPR, and we have not found any data that 
would alter that analysis. See Tab E of Staff's Final Rule Briefing 
Package. Accordingly, for the final rule, the Commission certifies that 
the rule will not have a significant impact on a substantial number of 
small businesses.

VI. Environmental Considerations

    Generally, the Commission's regulations are considered to have 
little or no potential for affecting the human environment, and 
environmental assessments and impact statements are not usually 
required. See 16 CFR 1021.5(a). The final rule to deem stock and custom 
window covering cords that do not comply with the identified

[[Page 72886]]

readily observable characteristics to be an SPH is not expected to have 
an adverse impact on the environment, and falls within the 
``categorical exclusion'' for the purposes of the National 
Environmental Policy Act. 16 CFR 1021.5(c).

VII. Paperwork Reduction Act

    Under the Office of Management and Budget's (OMB) regulations (5 
CFR 1320.3(b)(2)), the time, effort, and financial resources necessary 
to comply with a collection of information that would be incurred by 
persons in the ``normal course of their activities'' are excluded from 
a burden estimate, where an agency demonstrates that the disclosure 
activities required to comply are ``usual and customary.'' In the NPR, 
CPSC explained staff's assessment that more than 90 percent of the 
window covering market already complies with the voluntary standard, 
including the requirement in section 5.3 of ANSI/WCMA-2018 to place a 
manufacturer label on each window covering. CPSC received no comments 
on the burden estimate. For the final rule, CPSC will not establish an 
information collection under the Paperwork Reduction Act of 1995 (44 
U.S.C. 3501-3521), because the cost and burden of the label required in 
section 5.3 of ANSI/WCMA-2018 is incurred by window covering 
manufacturers in the ``normal course of their activities'' and are thus 
excluded from the burden estimate because compliance is ``usual and 
customary.''

VIII. Preemption

    The final rule under section 15(j) of the CPSA does not establish a 
consumer product safety rule. Accordingly, the preemption provisions in 
section 26(a) of the CPSA, 15 U.S.C. 2075(a), do not apply to this 
rule.

IX. Effective Date

    The Administrative Procedure Act (APA) generally requires that the 
effective date of a rule be at least 30 days after publication of a 
final rule. 5 U.S.C. 553(d). In the NPR, the Commission proposed that 
any stock or custom window coverings that did not conform to the 
specified sections of ANSI/WCMA A100.1--2018 (summarized in Table 3), 
be deemed an SPH effective 30 days after publication of a final rule in 
the Federal Register. We received no comments on the effective date. 
Accordingly, the final rule will apply to all stock and custom window 
coverings that do not comply with the readily observable 
characteristics of ANSI/WCMA-2018, as specified in Table 3 of this 
preamble, that are distributed in commerce or imported on or after 
December 28, 2022.

X. Incorporation by Reference

    The Commission incorporates by reference certain provisions of 
ANSI/WCMA A100.1--2018, American National Standard for Safety of Corded 
Window Covering Products. The Office of the Federal Register (OFR) has 
regulations concerning incorporation by reference. 1 CFR part 51. The 
OFR's regulations require that, for a final rule, agencies must 
discuss, in the preamble of the rule, ways that the materials the 
agency incorporates by reference are reasonably available to interested 
persons and how interested parties can obtain the materials. In 
addition, the preamble of the rule must summarize the material. 1 CFR 
51.5(b).
    In accordance with the OFR's requirements, sections I.F, II.A, and 
Table 3 of this preamble summarize the provisions of ANSI/WCMA A100.1--
2018 that the Commission is incorporating by reference. ANSI/WCMA 
A100.1--2018 is copyrighted. You can view a read-only copy of ANSI/WCMA 
A100.1--2018 at: https://wcmanet.com/wp-content/uploads/2021/07/WCMA-A100-2018_v2_websitePDF.pdf. To download or print the standard, 
interested persons can purchase a copy of ANSI/WCMA A100.1--2018 from 
WCMA, through its website (http://wcmanet.com), or by mail from the 
Window Covering Manufacturers Association, Inc., 355 Lexington Avenue, 
New York, NY 10017; telephone: 212.297.2122. Alternatively, interested 
parties may inspect a copy of the standard free of charge by contacting 
Alberta E. Mills, Office of the Secretary, U.S. Consumer Product Safety 
Commission, 4330 East West Highway, Bethesda, MD 20814; telephone: 301-
504-7479; email: [email protected].

XI. Congressional Review Act

    The Congressional Review Act (CRA; 5 U.S.C. 801-808) states that, 
before a rule may take effect, the agency issuing the rule must submit 
the rule, and certain related information, to each House of Congress 
and the Comptroller General. 5 U.S.C. 801(a)(1). The submission must 
indicate whether the rule is a ``major rule.'' The CRA states that the 
Office of Information and Regulatory Affairs (``OIRA'') determines 
whether a rule qualifies as a ``major rule.'' Pursuant to the CRA, OIRA 
designated this rule as not a ``major rule,'' as defined in 5 U.S.C. 
804(2). To comply with the CRA, CPSC will submit the required 
information to each House of Congress and the Comptroller General.

List of Subjects in 16 CFR Part 1120

    Administrative practice and procedure, Clothing, Consumer 
protection, Cord sets, Extension cords, Household appliances, Lighting, 
Window Coverings, Cords, Infants and children, Imports, Incorporation 
by reference.

    For the reasons stated above, and under the authority of 15 U.S.C. 
2064(j), 5 U.S.C. 553, and section 3 of Public Law 110-314, 122 Stat. 
3016 (August 14, 2008), the Consumer Product Safety Commission amends 
16 CFR part 1120 as follows:

PART 1120--SUBSTANTIAL PRODUCT HAZARD LIST

0
1. The authority citation for part 1120 continues to read as follows:

    Authority:  15 U.S.C. 2064(j).

0
2. In Sec.  1120.2, add paragraphs (f) and (g) to read as follows:


Sec.  1120.2  Definitions.

* * * * *
    (f) Stock window covering (also known as a stock blind, shade, or 
shading) has the same meaning as defined in section 3, definition 5.02, 
of ANSI/WCMA A100.1--2018 (incorporated by reference; see Sec.  
1120.4), as a window covering that is completely or substantially 
fabricated prior to being distributed in commerce and is a specific 
stock-keeping unit (SKU). Even when the seller, manufacturer, or 
distributor modifies a pre-assembled product by adjusting to size, 
attaching the top rail or bottom rail, or tying cords to secure the 
bottom rail, the product is still considered stock. Online sales of the 
product or the size of the order such as multi-family housing do not 
make the product a non-stock product. These examples are provided in 
ANSI/WCMA A100.1--2018 (incorporated by reference; see Sec.  1120.4) to 
clarify that as long as the product is ``substantially fabricated'' 
prior to distribution in commerce, subsequent changes to the product do 
not change its categorization.
    (g) Custom window covering (also known as a custom blind, shade, or 
shading) has the same meaning as defined in section 3, definition 5.01, 
of ANSI/WCMA A100.1--2018 (incorporated by reference; see Sec.  
1120.4), as a window covering that does not meet the definition of a 
stock window covering.

0
3. In Sec.  1120.3, add paragraphs (e) and (f) to read as follows:

[[Page 72887]]

Sec.  1120.3  Products deemed to be substantial product hazards.

* * * * *
    (e) Stock window coverings that fail to comply with one or more of 
the following requirements of ANSI/WCMA A100.1--2018 (incorporated by 
reference; see Sec.  1120.4):
    (1) Operating cord requirements in section 4.3.1: section 4.3.1.1 
(cordless operating system), 4.3.1.2 (short static or access cord), or 
4.3.1.3 (inaccessible operating cord);
    (2) Inner cord requirements in sections 4.5, 6.3, 6.7, and 
Appendices C and D; and
    (3) On-product manufacturer label requirement in section 5.3.
    (f) Custom window coverings that fail to comply with one or more of 
the following requirements of ANSI/WCMA A100.1--2018 (incorporated by 
reference; see Sec.  1120.4):
    (1) Inner cord requirements in sections 4.5, 6.3, 6.7, and 
Appendices C and D; and
    (2) On-product manufacturer label in section 5.3.

0
4. In Sec.  1120.4, add paragraph (d) to read as follows:


Sec.  1120.4  Standards incorporated by reference.

* * * * *
    (d) Window Covering Manufacturers Association, Inc., 355 Lexington 
Avenue, New York, New York 10017. Telephone: 212.297.2122. http://wcmanet.com.
    (1) ANSI/WCMA A100.1--2018. American National Standard For Safety 
Of Corded Window Covering Products, approved January 8, 2018. IBR 
approved for Sec. Sec.  1120.2 and 1120.3.
    (2) [Reserved]

Alberta E. Mills,
Secretary, Consumer Product Safety Commission.
[FR Doc. 2022-25040 Filed 11-25-22; 8:45 am]
BILLING CODE 6355-01-P