CPSIA electronics豁免项目_图文

pprovepublicationofthedraftfinalruleonelectronicdevicesinthe

FederalRegister.

(Signature)

(Date)

heraction.(Pleasespecify.)

(Signature)

(Date)

Attachments:

Draft

FederalRegister

Notice:Children'sProductsContainingLead;ExemptionsforCertain

ElectronicDevices;FinalRule

id,Toxicologist,,AssistantExecutive

Director,HealthSciences,

ConsumerProductSafetyImprovementActof2008(CPSIA);Regulation

ofCertainElectronicDevices

datedDecember2009.

id,Toxicologist,DirectorateforHealthSciencestoMary

Ann

Danello,AssociateExecutiveDirector,

ResponsetoPublicComments;CertainElectronicDevices

datedDecember2009.

.MemorandumfromRobertFranklin,EconomisttoKristinaHatlelid,

Economicanalysisofarule

providingexemptionsoralternativelimits

forcertainelectronicdevicesfromsection101(a)ofthe

ConsumerProductSafetyImprovementAct

datedSeptember2009.

Page2

of2

[BillingCode6355-01]

CONSUMERPRODUCTSAFETYCOMMISSION

16CFRPart1500

Children'sProductsContainingLead;ExemptionsforCertain

ElectronicDevices;FinalRule

AGENCY:ConsumerProductSafetyCommission.

ACTION:Finalrule

SUMMARY:TheConsumerProductSafetyCommission(CPSCor

Commission)isissuinganfinalruleconcerningcertain

electronicdevicesforwhichitisnottechnologically

feasibletomeettheleadlimitsasrequiredundersection

101oftheConsumerProductSafetyImprovementActof2008

(CPSIA),PublicLaw110-314,122Stat.3016.

DATES:

EffectiveDate:

Thisfinalruleiseffectiveon

[insertdateofpublicationintheFEDERALREGISTER].

FORFURTHERINFORMATIONCONTACT:KristinaHatlelid,Ph.D.,

M.P.H.,DirectorateforHealthSciences,ConsumerProduct

SafetyCommission,4330EastWestHighway,Bethesda,

Maryland20814;e-mail

khatlelid@;

telephone(301)

504-7254.

SUPPLEMENTARYINFORMATION:

1

ound

TheCPSIAprovidesforspecificleadlimitsin

children'n101(a)oftheCPSIAprovides

that,byFebruary10,2009,productsdesignedorintended

primarilyforchildren12andyoungermaynotcontainmore

ugust14,2009,products

designedorintendedprimarilyforchildren12andyounger

itwill

befurtherreducedto100ppmafterthreeyears,orAugust

14,2011,unlesstheCommissiondeterminesthatitisnot

n

3(a)(16)oftheConsumerProductSafetyAct,asamendedby

section235(a)oftheCPSIA,defines"children'sproduct"

asa"consumerproductdesignedorintendedprimarilyfor

children12yearsofageoryounger."

oryAuthority

Section101(b)(2)oftheCPSIAprovidesthatthelead

limitsdonotapplytocomponentpartsofaproductthat

ctionspecifiesthat

acomponentpartisnotaccessibleifitisnotphysically

exposedbyreasonofasealedcoveringorcasinganddoes

notbecomephysicallyexposedthroughreasonably

foreseeableuseandabuseoftheproductincluding

swallowing,mouthing,breaking,orotherchildren's

2

activities,andtheagingoftheproduct,asdeterminedby

theCommission.

Paint,coatings,orelectroplatingmaynot

beconsideredtobeabarrierthatwouldrenderleadinthe

n101

(b)(2)(B)oftheCPSIAfurtherprovidesthattheCommission

mustpromulgatearuleprovidingguidancewithrespectto

whatproductcomponentsorclassesofcomponentswillbe

consideredtobeinaccessible.

An

interpretativerule

providingguidanceoninaccessibility(inaccessibility

rule)waspublishedintheFederalRegisteronAugust7,

2009(74FR39535).

Inaddition,iftheCommissiondeterminesthatitis

nottechnologicallyfeasibleforcertainelectronicdevices

tocomplywiththeleadlimits,section101(b)(4)ofthe

CPSIAprovidesthattheCommissionmayissuerequirements

byregulationtoeliminateorminimizethepotentialfor

exposuretoandaccessibilityofleadinsuchelectronic

devices,andestablishascheduleforachievingfull

complianceunlesstheCommissiondeterminesthatfull

compliancewiththeleadlimitsisnottechnologically

logicalfeasibility

isbasedonthecommercialavailabilityofproducts,

technology,orotherpracticesthatwillallowcompliance

withtheleadlimits.

3

OnJanuary15,2009,theCommissionissuedanoticeof

proposedrulemakingonrequirementsforcertainelectronic

devicesthatcouldnotcomplywiththeleadlimitsdueto

technologicalinfeasibility(74FR2435).

Thenoticeof

proposedrulemakingwaswithdrawnonFebruary12,2009(74

FR7021).Onthatdate,theCommissionissuedaninterim

finalrule(74FR6991)toprovidecertainexemptionsfor

children'selectronicdevicesincluding:

•inaccessiblelead-containingcomponentparts;

•accessiblelead-containingcomponentspartsthat

cannotbeproducedwithoutleadduetothelackof

technologicallyfeasiblesubstitutionsandwhich

requireleadfortheproperfunctioningofthe

componentpart;and

•lead-containingsparepartsorotherremovable

componentswhichareinaccessiblewhentheproductis

assembledinfunctionalformorisotherwisegranted

anexemption.

TheinterimfinalrulealsodirectedCommissionstaff

toreevaluateandreporttotheCommissiononthetechnical

feasibilityofcompliancewiththeleadlimits,including

thetechnologicalfeasibilityofmakingaccessible

componentpartsinaccessible,andthestatusofthe

exemptionsnolessthaneveryfiveyearsafterpublication

4

ofafinalruleinthe

FederalRegister.

Commentsonthe

interimfinalruleweredueonMarch16,2009.

sionofCommentstotheInterimFinalRule

TheCommissionreceivedsevencommentsfromconsumer

groups,electronicsassociations,companies,and

ral,mostcommentssoughttonarrowor

expandthescopeoftheexemptions.

1.

SummaryoftheLaw-Section1500.88(a)

Section1500.88(a),inessence,summarizedthelead

contentlimitsinchildren'sproductsundersection101of

theCPSIAandhow,overtime,thelimitsdecreasefrom600

ppmto100ppmbyAugust14,2011unlesstheCommission

determinesthatitisnottechnologicallyfeasibletomeet

n1500.88(a)alsostatedthat,

"Paint,coatingsorelectroplatingmaynotbeconsidereda

barrierthatwouldmaketheleadcontentofaproduct

inaccessibletoachild."

Wedidnotreceiveanycommentonthisprovisionand

havefinalizeditwithoutchange.

logicalFeasibility-Section1500.88(b)

Section1500.88(b)explainedthatiftheCommission

determinesthatitisnottechnologicallyfeasiblefor

certainelectronicdevices,theCommissionmustissue

5

requirementsbyregulationtoeliminateorminimizethe

potentialforexposuretoandaccessibilityofleadinsuch

electronicdevicesandestablishascheduleunlessthe

Commissiondeterminesthatfullcomplianceisnot

technologicallyfeasible.

Onecommenterrequestedguidanceregardingthe

definitionof"electronicdevices."

TheCPSIAdoesnotprovideadefinitionforelectronic

r,webelieveareasonabledefinitionofan

electronicdeviceis"adevicethatgenerates,stores,

distributes,orconvertselectricalenergyintoanother

energyform."Examplesofchildren'selectronicdevices

include,butarenotlimitedto,productswithbatteriesor

powercords(orthatusesolarpowerorotherpower

sources),suchasmusicplayers,headphones,sometoysand

games,somecalculators,andcertaincomputersorsimilar

electroniclearningproducts.

nLead-ContainingComponentParts-Section

1500.88(c)

Section1500.88(c)providedthatcertainlead-containing

componentpartsinelectronicdevicesthatareunableto

meettheleadlimitswouldbegrantedexemptionsprovided

thattheuseofleadisnecessaryfortheproper

functioningofthecomponentpartanditisnot

6

technologicallyfeasibleforthecomponentparttomeetthe

leadcontentlimits.

Onecommenterstatedthattheexemptionsshouldbe

narrowedtocoveronlycomponentsofelectricalgoods.

Thiscommenterassertedthatthelanguageintheinterim

finalrulecouldbereadtoexcludegeneralmaterialsthat

containmetalalloysandenablemanufacturerstoaddlead

althoughitmaynotbetechnologicallynecessarytodoso.

Therulewasintendedtobelimitedtothematerialsand

componentsnecessaryfortheelectronicfunctioningof

children'onsetothe

comments,wehaverevised

§

1500.88(c)byaddingtheword

"electronic"beforetheword"functioning."Inaddition,

wehavefurtherclarified

§

1500.88(d)toaddtheword

"electronic"before"componentparts"inthefirst

-functionalusesofleadinchildren's

electronicdevicesremainsubjecttotheleadcontent

limitsundersection101(a)mple,if

themetalcomponentpartwaspurelydecorative,suchasa

cellphonecharmorwristaccessorysoldwith,orattached

to,achild'sphone,thatcharmoraccessoryisnot

necessarytotheproperelectronicfunctioningofthe

componentpartandissubjecttotheleadcontentlimits.

7

Anothercommenterrequestedthattheexemptionsforthe

metalalloycomponentsinchildren'selectronicdevicesbe

extendedtoproductswhosemechanicalfunctionsrequirethe

useofmaterialcontaininglead,suchasabrasscollaron

menteralsoassertedthatthe

electronicexemptionfor"lead-bronzebearingshellsand

bushings"arenotprimarilyusedforthetransmissionof

electricalcurrent,butaremechanicaldevices.

SectionlOl(b)(4)oftheCPSIAallowsexemptionstothe

leadcontentlimitsiftheCommissionfindsthatitisnot

technologicallyfeasibletoremovetheleadfromthe

ctiondoesnotprovidefor

exemptionsforothertypesofproductsthatareunrelated

mptionsunderthisrule

includebearingshellsandbushingsonlywhenthosebearing

shellsandbushingsareintegraltotheoperationof

certainelectronicdevices,

thisreason,lead-bronzebearingshellsandbushingsare

allowedinchildren'r,the

exemptiondoesnotextendtobearingshellsandbushingsin

children'sproductsthatareunrelatedtoelectronic

operationsbecausetheydonotfallwithinthescopeof

theseexemptions.

Suchcomponentsmustcomplywiththe

CPSIA'thatifsuch

8

componentsareinaccessibletoachild,theywouldnotbe

subjecttotheCPSIAleadcontentlimitsunder16CFR

1500.87.

Onecornmenterstatedthatthehealthimplicationsof

leadexposurefromtheelectronicproductshavenotbeen

consideredandthattheproposaldoesnotprovidean

incentivetoimprovetechnologytoreduceleadcontent.

Thecornmenteralsostatedthatexemptedproductsshouldbe

rcornmenterstatedthat

noexemptionsshouldbegrantedgiventhedangerouseffects

ofleadinchildren.

Asdiscussedinthepreambletotheinterimfinalrule

(74FRat6992),thecompleteeliminationoflead,orthe

reductioninleadcontenttotheleadcontentlimits

specifiedintheCPSIA,iscurrentlynottechnologically

feasibleforchildren'ingly,

thefinalruleprovidesforcertainexemptionsfromthe

leadlimitsforalimitednumberofcomponentsof

electronicdevicesthatmustbemanufacturedusinglead,

includingincertainmetalalloys.

Suchcomponentparts

couldincludepowercordpins,cathode-raytubes,and

enarenotexpectedto

experiencesignificantexposurestoleadfromthesefew

applications.

Theleadcontainingcomponentsthatare

9

beingexemptedarecomponentsthatonewouldnotexpect

childrentomouth,swallow,orhandleforsignificant

periodsundernormalandreasonablyforeseeableconditions.

Moreover,withfewexceptions,manyelectronicdeviceswill

beincompliancewiththeleadlimitsundertheCPSIA

eitherbecausetheyalreadymeettheleadcontentlimitsor

becausethelead-containingcomponentpartisinaccessible

(74FRat6992).

Furthermore,wedonotbelievethatlabelingelectronic

devicesfortheirleadcontentwouldaddtothesafetyof

theseproducts.

Intheabsenceoftheexemptionsprovided

forintheCPSIAandthisrule,certainelectronicsdevices

wouldbebannediftheywereintendedprimarilyfor

elysubstituteforsomeoftheseproducts

wouldbesimilarproductsthatareintendedforgeneral

,notprovidingtheseexemptionscould

resultinincreasesinthechildren'sleadexposurefrom

productsintendedforgeneralconsumerusethatarenot

subjecteithertotheleadlimitationsintheCPSIAorthe

alternateleadlimitsprovidedforintheexemptionsunder

thisrule.

Wealsodisagreewiththecommenter'sassertionthatthe

ruledoesnotprovideincentivesfortechnological

improvements.

Congressrecognizedthatcertainelectronic

10

devicescurrentlymaynotbeabletomeettheleadcontent

r,undersection101(b)(5)oftheCPSIA,the

Commissionspecificallywasdirectedtoperiodicallyreview

andrevisetheregulations,asnecessary,nolessthan

missionintendstocontinueto

evaluatethetechnologicalfeasibilityofmakingaccessible

componentpartsinaccessible,andtoreevaluatethe

exemptionswithinthattimeframeasprovidedunder

§

1500.88(f)ofthisrule.

ionsforLead-Section1500.88(d)

Thissectionsetforththespecificexemptionsforlead

asuseincertaincomponentpartsinchildren'sproducts.

AsdiscussedinpartC.3ofthispreamble,wehaveadded

theword"electronic"before"componentparts"inthefirst

sentenceof

§

1500.88(d)tomakeclearthatthisrule

appliestomaterialsandcomponentsnecessaryforthe

electronicfunctioningofchildren'selectronicdevices.

Additionally,onourowninitiative,wehaverevised

§

1500.88(d)(1)toinsertacommabetween"electronic

components"and"andfluorescenttubes"toclarifythat

electroniccomponentsandfluorescenttubesshouldbe

consideredasseparateitemsratherthanasoneitemoras

haverevised

§

1500.88(d)(2)toreplace

"3500ppm"with"3,500ppm,"forpurposesofconsistency

11

withhowtheppmlevelsareexpressedelsewhereinthe

haverevised

§

1500.88(d)(8)toinsert

acommabetween"thesealfritandfritring"and"aswell

asinprintpastes"toclarifythatasealfritandfrit

ringaredistinctfromprintpastes.

Commentersrepresentingtheelectronicsindustry

manufacturersassertedthatthelistofexemptedmaterials

requestedthattheruleincorporateallofthecurrent

exemptionsoftheuseofleadintheEuropeanUnion'S

RestrictiononHazardousSubstances(EURoHS)directiveto

avoidinconsistenciesandtoharmonizewithother

aimedthatwhileongoingresearchaims

tofindalternativesandeliminatetheuseoflead,itis

notyettechnologicallyfeasibletoavoidallusesoflead.

Thecommentersalsoassertedthattestingforleadin

electronicproductsisdifficultandcostly.

Wedonotbelievethatitisnecessarytoincorporate

intotherulealloftheexemptionslistedintheEURoHS

directive.(EuropeanUnionDirective2002/95/ECand

amendmentstothedirectiveareavailableat

/en/.)

TheEuropeanUnion

andothercountriesandauthoritieshaveadopted

12

restrictionsontheuseofleadandotherchemicalsin

electronicdevicestoaddressconcernsrelatedtohuman

healthandenvironmentalimpactsofwasteelectricaland

oHSdirectiveallowscertain

exemptionsifsubstitutionisnotpossiblefromthe

scientificandtechnicalpointofvieworifthenegative

environmentalorhealthimpactscausedbysubstitutionare

likelytooutweighthehumanandenvironmentalbenefitsof

thesubstitution.

Italsospecifiesthatexemptionsmust

bereviewedatleasteveryfouryearswiththeaimof

removingsuchexemptionsifitbecomestechnologicallyor

scientificallypossibletoreplacetheleadinaparticular

tofexemptionscoveredundertheED

RoHS

directiveisintendedtocoverallelectricand

electronicequipment.

Thelistofexemptionsprovidedunderthisruleis

intendedtoallowtheuseoflead-containingcomponents

usedinchildren'sproductsthatarenecessaryforthe

electronicfunctioningofthechildren'selectronicdevice.

Accordingly,thelistofexemptionsdoesnotinclude

exemptionsforusesofleadincomponentsthathaveno

applicationto,orwouldnototherwisebeusedin

children'mple,adoptingtheEDRoHS

directivewouldresultintheinclusionofEDRoHS

13

directiveexemption23,"Leadalloysassolderfor

transducersusedinhigh-powered(designedtooperatefor

severalhoursatacousticpowerlevelsof125dBSPLand

above)loudspeakers"intothefinalrule.

Suchhigh

poweredspeakersmaybeappropriateforuseinastadium,

butarenotachildren'ethecommenters

didnotidentifyanyspecificexemptionundertheEDRoHS

directiveorsimilardirectivesthatmay,infact,require

theuseofleadinacomponentofchildren'selectronic

devicesandthatalsoisnotlistedasanexemptionunder

thisrule,wedeclinetorevisethelistofexemptionsat

thatthisruledoesnotprecludethe

commentersfromcomplyingwiththeEDRoHSdirectiveif

r,ifcommentersneed

additionalexemptionsforlead-containingcomponentparts

inchildren'selectronicdevices,theycansubmita

petitionundertheproceduressetforthunder16CFRpart

alrequest

forregulatoryactionwhichdoesnotreasonablyspecifythe

typeofactionrequestedisnotsufficientforpurposesof

apetitionrequest.

16CFR1051.6(a)(5).

Commentersalsorequestedthattheruleexplicitlystate

thatexemptedorinaccessiblepartsarenotsubjecttothe

testingrequirementofsection102oftheCPSIA.

14

Withregardtoinaccessiblecomponentparts,the

preambletotheinaccessibilityrulestatedthata

manufacturercurrentlyisnotrequiredtoprovidethird-

partytestingtodemonstrateinaccessibility(74FRat

39537).Inaddition,manyoftheexemptionsprovidedunder

thisruledonotrequiretestingundersection102ofthe

CPSIAbecausetherearenoleadlimitsassociatedwiththe

r,theexemptionsforthemetalalloys

d,theyare

,those

,copper(lessthan4percentleadby

weight),steel(lessthan0.35percentleadbyweight),and

aluminum(lessthan0.4percentleadbyweight),muststill

betestedbythemanufacturertoverifythatthese

componentpartscomplywiththesehigherleadlimitsunder

section102oftheCPSIA.

TheCommissionintendstoaddresscomponentparttesting

andtheestablishmentofprotocolsandstandardsfor

ensuringthatchildren'sproductsaretestedforcompliance

withapplicablechildren'sproductssafetyrulesinan

upcomingrulemaking.

Asfortheotherspecificexemptionsmentionedin

§

1500.88(d),suchasleadusedincompliantpinconnector

15

systems(§1500.88(d)(6)),leadusedinopticalandfilter

glass(§1500.88(d)(7)),leadoxideinplasmadisplay

panelsandsurfaceconductionelectronemitterdisplays

usedinstructuralelements

(§

1500.88(d)(8)),andlead

oxideintheglassenvelopeofBlackLightBluelamps(§

1500.88(d)(9)),wedidnotreceivecommentsonthose

uently,thefinalruleretainsthose

provisionswithoutchange.

ble

or

ReplaceableParts-Section1500.88(e)

Thissectionprovidedthatcomponentsofelectronic

devicesthatareremovableorreplaceable,suchasbattery

packsandlightbulbs,arenotsubjecttotheleadcontent

limitsiftheyotherwisegrantedanexemptionorare

inaccessiblewhentheproductisassembledinfunctional

form.

Severalcommentersaddressedremovableandreplaceable

mmenterssupportedtheexemptionfromthe

leadcontentlimitsforsuchpartsonthebasisthat

replacingorinstallingpartsofachildren'selectronic

deviceisnotachildren'ommenters

opposedtheexemptionbecausechildrencouldaccessthe

lead-containingpartswhentheyarenotinstalled.

16

Wedeclinetorevisetheruleassuggestedbysome

determinedthatremovableor

replaceableparts,suchasbatterypacksandlightbulbs,

thatareinaccessiblewheninstalledintheproduct,are

installed,suchpartsareinaccessibleunder16CFR

§

1500.87.

Inaddition,thesetypesofsparepartsor

replacementparts,includingbatterypackandlightbulbs,

arenotintendedprimarilyforchildrensincesuchparts

pare

partsmaysometimesbeincludedwithachildren'sproduct,

inmanyinstances,theparts,necessaryforthefunctioning

oftheelectronicdevice,aretobeinstalledbyadults,

andareinaccessibletochildrenonceinstalled.

Onecommenterrequestedguidanceregardingwhethera

metalkeysoldwithelectricalelectronicequipmentwould

ingtothe

commenter,keysaremadewithcopperalloyandaluminumand

containleadofupto0.4%.Thecommenterstatedthat

substitutescontainingleadbelow300ppmareunavailable.

Thedefinitionof"children'sproduct"meansaconsumer

productdesignedorintendedprimarilyforchildren12

edinconnectionwithachild's

17

electronicdevicedoesnotnecessarilymakethekeya

children'sproductifthekeyisintendedforanadultto

useinsafeguardingormonitoringtheuseoftheelectronic

equipment.

Insuchinstances,thekeywouldbeinthe

possessionoftheadultatalltimes,andwouldnotbe

consideredachildren'sproduct.

Inotherinstances,ifa

keyistobeusedprimarilybyachildinconnectionwith

anelectronicdevice,anexemptionfromtheleadcontent

limitsundertheCPSIAwouldapplyonlyininstanceswhere

suchakeyisnecessaryfortheelectronicfunctioningof

thedevice.

Period-Section1500.88(f)

ThissectionprovidesthattheCommissionstaffwill

reevaluateandreporttotheCommissiononthe

technologicalfeasibilityofcompliancewiththelead

contentlimitsforchildren'selectronicdevices,including

thetechnologicalfeasibilityofmakingaccessible

componentpartinaccessible,andthestatusofthe

exemptionsnolessthaneveryfiveyears.

OnecommenterstatedthattheEDRoHSdirective

specifiesthatexemptionsmustbereviewedeveryfour

menterrequestedthattheCommissionadopt

thesamefouryearreviewcycle.

18

AsdiscussedinpartC.4ofthispreamble,wearenot

adoptingalloftheexemptionsintheEURoHSdirectiveat

ingly,theCommission'sreviewonthe

exemptionsprovidedunderthisrulewillbebasedonthe

applicationofleadinchildren'selectronicdevices.

Section101(b)(5)oftheCPSIAprovidesthatreviewsand

possiblerevisionmustoccurnolessfrequentlythanevery

,wedonotbelievethattheruleneedsto

r,totheextent

technologicaladvancesaremadeinthenextfewyears,such

thattheexistingexemptionswarrantrevisionor

rescission,wewillreviewsuchchangesandconsider

revisionspriortothe

5

yearreviewperiod.

onSmallBusinesses

UndertheRegulatoryFlexibilityAct(RFA),whenan

agencyissuesaproposedrule,itgenerallymustpreparean

initialregulatoryflexibilityanalysisdescribingthe

impacttheproposedruleisexpectedtohaveonsmall

entities.

5

doesnotrequirea

regulatoryflexibilityanalysisiftheheadoftheagency

certifiesthattherulewillnothaveasignificanteffect

onasubstantialnumberofsmallentities.

Inthepreambletotheinterimfinalrule(74FRat

6992),theCommission'sDirectorateforEconomicAnalysis

19

determinedthattheexemptionforcertainspecified

materialsfromtherequirementsofsection101(a)ofthe

CPSIAwillnotresultinanyincreaseinthecostsof

productionforanyfirm.

Itsonlyeffectonbusinesses,

includingsmallbusinesses,willbetoreducethecosts

associatedwithcompliancewiththeleadcontentlimitsof

ntheforegoingassessment,the

Commissioncertifiesthattherulewouldnothavea

significantimpactonasubstantialnumberofsmall

entities.

nmentalConsiderations

Generally,CPSCrulesareconsideredto"havelittle

ornopotentialforaffectingthehumanenvironment,"and

environmentalassessmentsarenotusuallypreparedfor

theserules(see16CFR1021.5(c)(1)).Thefinalruleis

notexpectedtohaveanadverseimpactontheenvironment,

thus,theCommissionconcludesthatnoenvironment

assessmentorenvironmentalimpactstatementisrequiredin

thisproceeding.

iveOrders

AccordingtoExecutiveOrder12988(February5,1996),

agenciesmuststateinclearlanguagethepreemptive

effect,ifany,ofnewregulations.

Thepreemptiveeffect

ofregulationssuchasthisfinalruleisstatedinsection

20

18oftheFederalHazardousSubstancesAct.15U.S.C.

1261n.

iveDate

TheAdministrativeProcedureActrequiresthata

substantiverulemustbepublishednotlessthan30days

beforeitseffectivedate,unlesstherulerelievesa

restriction.5U.S.C.553(d)(1).Becausethefinalrule

providesrelieffromexistingtestingrequirementsunder

theCPSIAandisvirtuallyidenticaltoaninterimfinal

rulethathasbeenineffectsinceFebruary10,2009,the

effectivedateforthefinalruleis

[insertdateof

publicationintheFEDERALREGISTER].

ListofSubjectsin16CFRPart1500

Consumerprotection,Hazardousmaterials,Hazardous

substances,Imports,Infantsandchildren,Labeling,Law

enforcement,andToys.

sion

Forthereasonsstatedabove,theCommissionamends

Title16oftheCodeofFederalRegulationsasfollows:

PART1500-HAZARDOUSSUBSTANCESANDARTICLES:

ADMINISTRATION

ANDENFORCEMENTREGULATIONS

horityforpart1500continuestoreadas

follows:

Authority:15U.S.C.1261-1278,122Stat.3016.

21

wsection1500.88toreadasfollows:

§

1500.88ExemptionsfromLeadLimitsundersection

101oftheConsumerProductSafetyImprovementActfor

CertainElectronicDevices.

(a)TheConsumerProductSafetyImprovementAct

(CPSIA)providesforspecificleadlimitsinchildren's

n101(a)oftheCPSIAprovidesthatby

February10,2009,productsdesignedorintendedprimarily

forchildren12andyoungermaynotcontainmorethan600

ugust14,2009,productsdesignedor

intendedprimarilyforchildren12andyoungercannot

st14,2011,the

limitwillbefurtherreducedto100ppm,unlessthe

Commissiondeterminesthatitisnottechnologically

,coatingsor

electroplatingmaynotbeconsideredabarrierthatwould

maketheleadcontentofaproductinaccessibletoachild.

(b)Section101(b)(4)oftheCPSIAprovidesthatif

theCommissiondeterminesthatitisnottechnologically

feasibleforcertainelectronicdevicestocomplywiththe

leadlimits,theCommissionmustissuerequirementsby

regulationtoeliminateorminimizethepotentialfor

exposuretoandaccessibilityofleadinsuchelectronic

devicesandestablishacompliancescheduleunlessthe

22

Commissiondeterminesthatfullcomplianceisnot

technologicallyfeasible.

(c)Certainlead-containingcomponentpartsin

children'selectronicdevicesunabletomeetthelead

limitssetforthinparagraph(a)ofthissectiondueto

technologicalinfeasibilityaregrantedtheexemptionsthat

followinparagraph(d)ofthissectionbelow,provided

thatuseofleadisnecessaryfortheproperelectronic

functioningofthecomponentpartanditisnot

technologicallyfeasibleforthecomponentparttomeetthe

leadcontentlimitssetforthinparagraph(a)ofthis

section.

(d)Exemptionsforleadasusedincertainelectronic

componentspartsinchildren'selectronicdevicesinclude:

(1)Leadblendedintotheglassofcathoderaytubes,

electroniccomponents,andfluorescenttubes.

(2)

maximumamountofleadshallbelessthan0.35%byweight

(3,500ppm).

(3)

maximumamountofleadshallbelessthan0.4%byweight

(4,000ppm).

23

(4)imum

amountofleadshallbelessthan4%byweight(40,000

ppm).

(5)

Leadused

inlead-bronzebearing

shellsand

bushings.

(6)

Leadused

incompliantpinconnector

systems.

(7)

Leadused

inopticalandfilterglass.

(8)

Leadoxide

Inplasmadisplaypanels

(PDP)

and

surfaceconductionelectronemitterdisplays(SED)usedin

structuralelements;notablyinthefrontandrearglass

dielectriclayer,thebuselectrode,theblackstripe,the

addresselectrode,thebarrierribs,thesealfritandfrit

ring,aswellasinprintpastes.

(9)LeadoxideIntheglassenvelopeofBlackLight

Blue(BLB)lamps.

(e)Componentsofelectronicdevicesthatare

removableorreplaceablesuchasbatterypacksandlight

bulbsthatareinaccessiblewhentheproductisassembled

infunctionalformorareotherwisegrantedanexemption

arenotsubjecttotheleadlimitsinparagraph(a)ofthis

section.

(f)Commissionstaffisdirectedtoreevaluateand

reporttotheCommissiononthetechnologicalfeasibility

ofcompliancewiththeleadlimitsinparagraph(a)ofthis

24

sectionforchildren'selectronicdevices,includingthe

technologicalfeasibilityofmakingaccessiblecomponent

partsinaccessible,andthestatusoftheexemptions,no

lessthaneveryfiveyearsafterpublicationofafinal

ruleinthe

FederalRegister

onchildren'selectronic

devices.

Dated:

Todd

A.

Stevenson,Secretary

ConsumerProductSafetyCommission

25

ealsoaddressesremovableorreplaceablecomponentpartsthatare

inaccessiblewhentheproductisassembledinfunctionalform.

PublicComments

Asdiscussedintheaccompanyingmemorandum

I,

commentsreceivedfromthepublicraised

severalissuesconcerningthescope

oftherule,includingwhethertheexemptionsaretoobroad

ortoorestrictive,andotherspecificprovisions

oftherule.

Somecommentersexpressedconcernthatthepurpose

ofthelawinreducingleadexposuresis

lawallowstheCommissiontoaddressthe

technologicalfeasibility

ofcertainelectronicdevicestocomplywiththeCPSIAleadcontent

limits,butitalsodirectstheCommissiontorevieweachregulationandtoreviseeachregulation

tomakeitmorestringentandtorequirethelowestamount

ofleadthatistechnologically

indicatesthatreviewsandpossiblerevisionmustoccurnolessfrequentlythan

everyfiveyears,butthereisnorestrictiononconductingreviewsmorefrequentlythanevery

fiveyears

iftheCommissionfindsthattechnologicaladvanceshavebeenmade.

Somecommentersindicatedthattheruleappliestoobroadlyandthatproductsshouldgenerally

complywiththeCPSIAsection(101)(a)ommentersrequestedthatthescope

bebroadenedbeyondelectronicdevicesortoincludeadditionalelectroniccomponentsthatwere

allowsforexemptionfromtheleadcontent

requirementsforcertainelectronicdevices,r,it

doesnotprovideforexemptionsforothertypes

ffidentifiedalimited

number

ofmaterialsorcomponentsofelectronicdevicesthatmaybecomponentsofchildren's

productsthatshouldbeexcludedfromtheCPSIAleadlimitsonthebasis

oftechnological

necommentincludedarequestthatadditionalitemsbeexempted,the

staff

believesthattheadditionalitemsareeithernotexpectedtobepartofchildren'sproductsor

wouldnotbeaccessibleparts

ofaproduct;nospecificproductorcomponentwasindicatedasa

children'sproductthatshouldbeexemptedthatisnotalreadylistedintheinterimfinalrule.

Severalcommentsaddressedremovableandreplaceableparts,bothinsupport

oftheexemption

fromtheleadcontentlimitsforsuchpartsonthebasisthatreplacingorinstallingparts

ofa

children'selectronicdeviceisnotachildren'sactivity,andinoppositiontotheexemption

becausech

staff

believesthatremovableorreplaceableparts,suchasbatterypacksandlightbulbs,thatare

inaccessiblewheninstalledintheproduct,arenotsubjecttotheleadcontentrequirements.

Further,manysparepartsorreplacementpartsarenotintendedprimarilyforchildrensincesuch

componentpartsareforgeneralusebythepublicormustbespeciallyorderedforspecific

parepartsmaysometimesbeincludedwithachildren'sproduct,in

manyinstances,theparts,necessaryforthefunctioning

oftheelectronicdevice,aretobe

installedbyadults,andareinaccessibletochildrenonceinstalled.

I

ThestaffssummaryofthepubliccommentsandthestaffsresponsesarelocatedinthememorandumfromKristinaM.

Hatlelid,Ph.D.,M.P.H.,toMaryAnnDanello,Ph.D.,ResponsetoPublicComments:CertainElectronicDevices,October2009.

2

RegulatoryAnalysis

Staffpreparedtheregulatoryanalysis/requiredforCommissionregulatoryproceedings,

includinganassessment

ofthepotentialbenefitsandcostsoftherule,anassessmentofthe

impactonsmallbusinesses,andanenvironmentalassessment.

Thepotentialbenefit

oftheruleisthatsomechildrenwouldhavetheuseofelectronicdevices

designedforchildrenthatwould,intheabsence

oftherule,bebannedfromthemarketplace.

Thebenefitwouldbeequaltothedifferenceinthevaluethatconsumersplaceontheproducts

thatwouldbeb

manycases,theproductsthatwouldlikelyreplacethebannedproductswouldbeproductsthat

provideessentiallythesamefunctionasthebannedproducts,

butthatareintendedforgeneral

consumeruseandnotspecificallyintendedforchildrenage12yearsandyounger.

Forexample,

productssuchasCDandDVDplayers,computers,electronicgames,telephones,andtelevisions

areusedbypeople

ofallages,butsomeoftheseproductsaredesignedspecificallyforchildren

age12yearsandyounger,withfeaturessuchasdecorationsthatappealtochildren,designsthat

makethemeasiertooperate,orcharacteristicstomakethemsturdierforusebychildren.

Becausetherulewouldprovideexemptionstotherequirements

ofsectionIOI(a)oftheCPSIA,

thepotentialcostoftheruleconsistsofthecontinuedriskassociatedwiththeabsorptionoflead

fromthechildren'selectronicproductsthat,intheabsence

oftheexemptionsoralternative

limits,r,the

staffbelievesthatthelikelihoodis

lowthatleadexposurefromexemptedelectronicdeviceswouldresultinsignificantlead

onally,therulecould,insomecases,ultimatelyresultinreduced

leadexposureforsomechildrenif,intheabsence

oftheexemptions,parentswouldhave

substitutedfortheirchildren'suseelectronicproductsintendedforthegeneralpublic;

i.e.,

productsthatarenotsubjecttotheleadcontentlimitsoftheCPSIA.

Neitherthebenefitsnorthecosts

oftherulecanbequantifiedwiththeavailableinformation.

Thenumber

ofsmallbusinessesthatwillbedirectlyaffectedbytheruleisunknownbutcouldbe

r,becausetherulewouldexemptcertainspecifieddevicesorcomponents

fromtherequirements

ofsection101(a)oftheCPSIAorestablishesalternative,lessrestrictive

requirementsforothers,itwillnotincreasethecosts

uently,

theCommissioncouldmakeafindingthattherulewillnothaveasignificanteconomicimpact

onasubstantialnumber

ofsmallentitiesunderthecriteriaoftheRegulatoryFlexibilityAct.

Thisrulewillnotresultinanyadditionaluse

ofleadoverwhatisoccurringatthepresenttime.

It

willexemptsomeelectronicdevicesintendedforchildrenfromthemorestringent

requirements

ore,itcouldresultinsomewhatmoreleadbeingreleasedinto

r,insomecases

electronicdevicesintendedforgeneralconsumeruse,whicharenotsubjecttotheleadlimitsin

theCPSIA,wouldbesubstitutedforthechildren'sproductsthatwouldbeeffectivelybannedif

uently,theadditionalleadreleasedoverwhatwouldbe

oreanyadverse

environmentaleffectsoftherulearelikelytobesmall.

2

CPSCMemorandumfromRobertFranklintoKristinaHatlelid,"Economicanalysisofaruleprovidingexemptionsor

alternativelimitsforcertainelectronicdevicesfromsection101(a)

oftheConsumerProductSafetyImprovementAct,"

September16,2009.

3

Recommendation

ThestaffrecommendsthattheCommissionissueafinalrulethatspecifies,asintheinterimfinal

rule,exemptionsforcertainelectronicdevicesorcomponents

ofdevicesforwhichitisnot

e

ofthepublic

commentsseekingclarificationaboutthescopeofproductsorcomponentpartsthatareexempt

fromtheleadcontentrequirements,thestaffrecommendsthattheruleclearlystatethatthescope

oftheexclusionsislimitedtomaterialsandcomponentsthatareintegraltotheelectronic

functioningofcertainelectronicdevicesandonlyappliestotheuseofsuchmaterialsin

electronicdevices.

4

mmentstatedthattheperiodicreviewofthe

ruleisimportantbecause

oftherapidpaceoftechnologicalchange.

CPSCStaffResponse:

CPSIAsection101(b)(4)addressesthetechnologicalfeasibilityofelectronicdevicestocomply

ctionprovidestheCommissionauthoritytoissueregulationsfor

certainelectronicdevicesthatcannotcomplywiththeleadlimitsconsideringtechnological

basis,thestaffrecommendedcertainspecificmaterialsandcomponents

of

electronicdevicesthatshouldbeexcludedatthistimeorthatshouldcomplywithalternatelead

illrevisitthesealternaterequirementsnolessfrequentlythaneveryfiveyears,to

evaluatethestate

ofthetechnology.

Theruleprovidesforexclusionfromtheleadlimitsforalimitednumber

ofcomponentsof

electronicdevicesthatmustbemanufacturedusingcertainmetalalloys,suchaspowercordpins,

enarenotexpected

toexperiencesignificantexposurestoleadfromthesespecificcomponentparts

ofelectronic

devices,andthestaffhasnoknowledgethatsuchcomponentswouldbeassociatedwitha

significantproportion

ofchildren',thestaffconcludedthatthe

healthimplications

oftheleadcontentofelectronicdevicesareminimal,andthereisnobasisfor

requiringwarninglabelsforsuchproducts.

Thestaffbelievesthatthecompleteelimination

oflead,orthereductioninleadcontenttothe

leadcontentlimitsspecifiedintheCPSIA,forallproductsisnotcurrentlytechnologically

illrevisitthesealternaterequirementsnolessfrequentlythaneveryfiveyears,

toevaluatethestate

ofthetechnology.

Thestaffalsonotesthatintheabsence

oftheexemptionsprovidedforinthisrule,certain

electronicsdeviceswouldbebanned

ely

substituteforsome

oftheseproductswouldbesimilarproductsthatareintendedforgeneral

,notprovidingtheseexemptionscouldresultinincreasesinchildren'slead

exposurefromproductsintendedforgeneralconsumerusethatarenotsubjecttothelead

limitationsintheCPSIA.

Removableorreplaceableparts,suchasbatterypacksandlightbulbs,thatareinaccessiblewhen

installedintheproduct,arepartsor

replacementpartsarenotintendedprimarilyforchildrensincesuchcomponentpartsarefor

generalus

sparepartsmaysometimesbeincludedwithachildren'sproduct,inmanyinstances,theparts,

necessaryforthefunctioning

oftheelectronicdevice,aretobeinstalledbyadults,andare

inaccessibletochildrenonceinstalled.

Comment2:

Comment2fromGaryJonesofLearningCurveBrands,sesprimarilytheneedfor

uggestedthat

theexclusionshouldbeextendedtoaccessiblemetalalloycomponentsinproductswhose

mechanicalfunctionsnecessitatetheuse

ofmaterialscontaininglead,exceptingcomponentsthat

pecifically

mentionedthatone

ofthecategoriesofmaterialsallowedintheinterimfinalrule,"lead-bronze

bearingshellsandbushings,"arenotusedforelectricalfunctions,butaremechanicaldevices.

2

CPSCStaffResponse:

Bearingshellsandbushingsare,insomecases,integraltotheoperationofcertainelectronic

devices,suchaselectricmotors.

CPSIAsection101(b)(4)specificallyaddressesthe

technologicalfeasibility

ctiondoes

notprovideforexemptionsforothertypes

ofproductsthatareunrelatedtoelectronic

functionality.

Therefore,whiletheuse

oflead-bronzebearingshellsandbushingsincertainelectronicdevices

isallowedbyregulation,

otherapplicationsofbearingshellsandbushingsinproductsthathave

nodirectconnectiontoelectronicoperationsdonotfallwithinthescopeofexemptionsfor

certainelectronicproducts.

SuchcomponentsmustcomplywiththeCPSIAleadcontentlimits.

However,

ifsuchcomponentsareinaccessibletoachild,theywouldnotbesubjecttotheCPSIA

leadlimits.16CFR1500.87.

'productsarealso

thesubjectofaseparaterequestforexclusionfromtheleadlimits

undersection101(b)(1)

missionisrespondingtothatrequestina

separateproceeding.

Comment3:

Thiscomment,,indicatedsupportforthelaw,aswellas

supportforwithdrawingtheproposedelectronicdevicesrule.

Thecommentercitedtheknown

adversehealtheffectsofleadexposureandcertainotherregulations,suchasbanningleadin

householdpaintandgasoline.

CPSCStaffResponse:

therhand,the

staffrecognizesthatthecompleteeliminationoflead,orthereductioninleadcontenttothelead

contentlimitsspecifiedintheCPSIA,forallproductsis

notcurrentlytechnologicallyfeasible.

TheCPSIAallowsforcertainelectronicdevicestobeexcludedfrom

complyingwiththelead

limitsforthisreason,andthe

staffrecommendedcertainspecificmaterialsandcomponentsof

illrevisitthesealternate

requirementsnolessfrequently

thaneveryfiveyears,toevaluatethestateofthetechnology.

Comment4:

Thiscomment,submittedby

BrianMarkwalteroftheConsumerElectronicsAssociation,

ChristopherCleet

oftheInformationTechnologyIndustryCouncil,nof

theIPC-AssociationConnectingElectronicsIndustries,discussedseveralpointsrelatedtothe

electronicdevicesinterimfinalrule

andtheCommission'sruleofcomponentpartsaccessibility.

Thesecommentersstated

thatmostelectronicdevicesarenotchildren'sproducts.

Forthoseproductsthatarechildren'sproducts,

statedthatcomponentpartswithinadevice,thatmightcontainalead-containingcomponent,

shouldnotbeconsideredtobeanaccessiblelead-containingcomponent.

Thecommentersasserted

thatthelistofexemptedmaterialsandcomponentsinthefinalrulewas

limited;theyrequestedthattheruleincorporateallofthecurrentexemptionsoftheuseofleadin

theEuropean

Union'sRestrictiononHazardousSubstances(RoHS)directive,inordertoavoid

inconsistenciesandharmonizewithotherstandards.

Theyindicatedthatwhileongoingresearch

3

aimstofindalternativesandeliminatetheuseoflead,itisnotyettechnologicallyfeasibleto

avoidalluses

oflead.

Thesecommentersalsorequestedthattheruleexplicitlystatethatexemptedorinaccessibleparts

arerelieved

ofthetestingrequirementofsection102oftheCPSIA.

ThecommentersagreedwiththeCommission'sconclusionthatremovableorreplaceableparts

shouldnotbesubjecttotheleadrequirements

iftheyareinaccessibletoachildwhentheproduct

isassembledinfunctionalform,becausetheybelievethatreplacingorinstallingpartsofa

children'selectronicdeviceisnotachildren'sactivity.

Finally,thecommentersexpressedthattestingforleadinelectronicproductsforpartsthatare

nototherwiseexcludedfromtheleadcontentrequirementsisdifficultandcostly.

CPSCStaffResponse:

Thestaffagreesthatmostconsumerelectronicsarenotchildren'r,thereare

certainproductsthatwouldbeconsideredtobechildren'sproducts,asthattermisdefinedinthe

ingonfactorssuchas

manufacturers'statements,labeling,andmarketing,children'selectronicdevicescouldinclude

certainmusicplayers,headphones,sometoysandgames,somecalculators,andcertain

computersorsimilarelectroniclearningproducts.

Regardingaccessibility

oflead-containingcomponents,asdiscussedintheFederalRegister

noticefortheInterpretativeRuleonInaccessibleComponentParts(74FR39535),the

Commissioninterpretsalead-containingcomponentparttomeanthematerialusedtoconstruct

thepartincludesleadinitsformulation,notthatthepartcontainssmallerpartsthatcontainlead.

Thestaffdoesnotagreethatitisnecessarytoincorporateintotheruleall

oftheexemptions

listedinthedirectivessuchasEuropeanUnion'sRestrictiononHazardousSubstances(RoHS).

Incontrasttothescope

oftheRoHSdirective,whichiselectricalandelectronicequipmentin

general,thefocus

oftheCPSIAischildren'ingly,thestaffdidnotbelieve

thatitwouldbeusefulorappropriatetoincludeelectronicdevicesorcomponentsthathaveno

applicationtochildren'sproducts,suchasRoHSexemption25,"Leadalloysassolderfor

transducersusedinhigh-powered(designedtooperateforseveralhoursatacousticpowerlevels

of125dBSPLandabove)loudspeakers."Furthermore,unliketheRoHSandsimilardirectives

thatrestricttheleadcontent

ofallpartsofproducts,theCPSIAdoesnotrestricttheuseofleadin

,itisnotnecessarytoincludetheRoHS

exemptionsthatareforapplications

ofleadinsidecertaincomponentsthatarenotaccessibleto

ethecommentersdidnotidentifyanyspecificexemptionundertheRoHSor

similardirectivesthatmay,infact,beacomponent

ofchildren'selectronicdevices,butthatis

notalsolistedasexemptedintheinterimfinalrule,thestaffdisagreesthatadditionalitemsmust

entsusedingeneral-useconsumer

productsarenotsubjecttotheCPSIAleadlimitsforchildren'sproducts.

Commentersarguethattheruleshouldexplicitlystatethatexemptedorinaccessiblepartsarenot

subjecttothetestingrequirement

ffagreesthatthe

electronicdevicesrulespecificallyexemptscertaincomponentsfromtheleadcontent

requirementsanddoesnotrequiretestingtocomplywiththeCPSIAleadcontentlimits.

However,thestaffnotesthattheexemptionsforthemetalalloysarenotoutrightexemptions.

Instead,,thosecomponents,

i.

e.,

copper(lessthan

4

4percentleadbyweight),steel(lessthan0.35percentlead),andaluminum(lessthan0.4percent

lead),ffagreesthatinaccessible

componentpartsarenotsubjecttotheCPSIAleadlimits,asstatedintheinaccessibilityrule.16

CFR1500.87.

Removableorreplaceableparts,suchasbatterypacksandlightbulbs,thatareinaccessiblewhen

installedintheproduct,arepartsor

replacementpartsarenotintendedprimarilyforchildrensincesuchcomponentpartsarefor

generalus

sparepartsmaysometimesbeincludedwithachildren'sproduct,inmanyinstances,theparts,

necessaryforthefunctioning

oftheelectronicdevice,aretobeinstalledbyadults,andare

inaccessibletochildrenonceinstalled.

Finally,whileitmaybetruethattestingforleadinproductsisdifficultandcostly,thelawdoes

notprovideforcosttobeaconsiderationforcompliancewithsection101

oftheCPSIA.

However,theCommissionwilladdressissuesrelatedtothetestingrequirements

ofsection102

inaseparaterulemaking.

Comment5:

ThiscommentbyJanellMayoDuncanandDonald

L.

MaysofConsumersUnion,Rachel

Weintraub

ofConsumerFederationofAmerica,DavidArkushofPublicCitizen,andEd

isedthreemainpoints.

ThecommentersstatethatthematerialexemptedfromtheCPSIAleadcontentrequirementsis

overlybroadandnotn

mentersstated

thateasilyremovableandreplaceablepartsshouldberequiredtomeettheCPSIAleadcontent

,thesecommentersrequestedthattheperiodicreviewbytheCommissionshould

benolessfrequentthaneveryfouryears,ratherthanatleasteveryfiveyears.

CPSC

Staff

Response:

Whilethestaffbelievesthatthescopeoftheexemptionsintheinterimfinalruleislimitedto

materialsandcomponentsthatareintegraltotheelectronicfunctioning

ofcertainelectronic

devicesandonlyappliestotheuse

ofsuchmaterialsinelectronicsdevices,thestaffrecommends

thatthisshouldbeclarifiedinthefinalrule.

Removableorreplaceableparts,suchasbatterypacksandlightbulbs,thatareinaccessiblewhen

installedintheproduct,arepartsor

replacementpartsarenotintendedprimarilyforchildrensincesuchcomponentpartsarefor

generalus

sparepartsmaysometimesbeincludedwithachildren'sproduct,inmanyinstances,theparts,

necessaryforthefunctioning

oftheelectronicdevice,aretobeinstalledbyadults,andare

inaccessibletochildrenonceinstalled.

Asindicatedintheinterimfinalrule,theperiodicreviewbytheCommissionisspecifiedto

occurnolessfrequentlythaneveryfiveyears,whichisidenticaltotherequirementforperiodic

snorestrictiononconductingreviewsmorefrequently

,

iftheCommissionfindssoonafteraperiodicreviewthat

technologicaladvanceshavebeenmade,itcouldimmediatelyinitiateanotherreview.

5

Comment6:

JoeLeefromSMARTTechnologiesdiscussedkeysthatareusedwithcertainelectronic

equipment,andstatedthatitisdifficulttofindavendortosupplysuchkeysthatcomplywiththe

tedthatitmightbecostlytomanufacturecompliantkeysorthat

statedthatthekeyswouldnormallybeused

byteachers,notchildren.

CPSCStaffResponse:

Intheabsenceofspecificproductinformation,thestaffisnotabletofullyaddressthis

commenter'productsusedaroundchildrenarenecessarilychildren'sproducts

tsthatarenotdesignedorintendedprimarilyforchildren12years

therhand,aproductthatisintended

forchildrenmustcomplywiththeleadcontentrequirements

oftheCPSIAunlessotherwise

exemptedbystatuteorrule.

However,thestaffbelievesthattheexclusionsprovidedforcertainelectronicdevicesdonot

extendtoallcomponentparts

ofsuchdevices,buttothecomponentsthatareintegraltothe

electronicfunctioning

rakeywouldbeconsideredtobeanecessarypart

ofthedevice'selectronicfunctionwilldepend,amongotherfactors,onhowitisusedandby

whomitisused.

Comment7:

PratikIchhaporiaofIntertekConsumerGoods-NorthAmericarequestedthedefinitionof

"electronicdevices."

CPSCStaffResponse:

Theterm"electronicdevices"ffbelievesthatareasonable

definitionis,"Adevicethatgenerates,stores,distributes,orconvertselectricalenergyinto

anotherenergyform."

Examples

ofchildren'selectronicdevicesinclude,butarenotlimitedto,productswithbatteries

orpowercords(orthatusesolarpowerorotherpowersources),suchasmusicplayers,

headphones,sometoysandgames,somecalculators,andcertaincomputersorsimilarelectronic

learningproducts.

Productsthatthatarenotdesignedorintendedprimarilyforchildren12years

ofageoryounger,

even

ifchildrenhaveaccesstothem,arenotsubjecttotheleadlimits.

6

CategoriesofElectronicDevicesCoveredbytheRule

Onecategory

ofelectronicdevicescoveredbytheruleconsistsoflead-containing

componentsthatarenotphysicallyaccessibletochildrenbecausetheyareencasedwithinan

essibility

ofthelead-containingcomponentisevaluatedthroughthe

applicationoftheaccessibilityprobesdescribedin16CFR1500.48and1500.49,beforeand

afteruseandabusetestsdescribedat16CFR1500.50through1500.53,andasprovidedinthe

guidanceruleunderCPSIAsection101(b)(2).

Asecondcategory

ofelectronicdevicescoveredbytheruleconsistsof

(l)

componentsof

electronicdevicesforwhichthereiscurrentlynotechnologicallyfeasiblesubstituteforleadthat

wouldallowfortheproperfunctioning

ofthecomponentand(2)componentsinwhichleadis

mple,leadisrequiredincathoderaytubestoabsorbx-rays

andinsomecopperalloysusedinelectronicdevicestoadjustthemechanicalstrengthand

cificcomponentsofelectronicdevicesincludedinthiscategoryare

listedinthetext

casestheruleexemptsthecomponentfromleadlimits

,leadblendedintotheglass

ofcathoderaytubes,electronic

componentsandflorescenttubes).Inothercases,,

leadusedinthemanufacture

ofaluminumcomponentsusedinelectronicdevicesislimitedto

lessthan4,000ppm).

Thethirdandfinalcategory

ofelectronicdevicescoveredbytheruleconsistsofspare

partsorotherremovablecomponentsthatwouldbeconsideredinaccessiblewhentheproductis

e,theaccessibility

ofthelead-containingcomponent

wouldbeevaluatedthroughapplication

oftheaccessibilityprobesdescribedin16CFR1500.48

and1500.49,beforeandafteruseandabusetests.

RegulatoryAnalysis

Becausetherulewouldprovideexemptionstotherequirements

ofsection101(a)ofthe

CPSIA,thepotentialcost

oftheruleconsistsofthecontinuedriskassociatedwiththeabsorption

ofleadfromthechildren'selectronicproductsthat,intheabsenceoftheexemptionsor

alternativelimits,entialbenefit,ontheotherhand,

consistsofthevaluethatconsumersattachtohavingtheotherwisebarredchildren'selectronic

rthebenefitsnorthecostscanbequantifiedwiththeavailable

information,butarediscussedinmoredetailbelow.

Benefits

Asnotedabove,thepotentialbenefit

oftheruleisthatsomechildrenwouldhavetheuse

ofelectronicdevicesdesignedforchildrenthatwould,intheabsenceoftherule,bebannedfrom

efitwouldbeequaltothedifferenceinthevaluethatconsumersplace

ontheproductsthatwouldbebannedandthevalueconsumersplaceontheproductsthatwould

replacethem.

Inmanycases,theproductsthatwouldlikelyreplacethebannedproductswouldbe

productsthatprovideessentiallythesamefunctionasthebannedproducts,butthatareintended

forgeneralconsumeruseandnotspecificallyintendedforchildrenage12yearsandyounger.

Productsintendedforgeneralconsumerusearenotsubjecttothelead-contentlimitationsinthe

mple,althoughproductssuchasCDandDVDplayers,computers,electronic

games,telephones,andtelevisionsareusedbypeople

ofallages,someoftheseproductsare

-2-

ductsintendedforchildren

,cartooncharacters),havefeweror

largerbuttonsthatmakethemeasiertooperate,andmightbebuiltmoresturdysothattheycan

betterwithstandthemoreharshuseandabusethatyoungchildrenarelikelytoinflictonthe

products.

Whenusingtheproductdesignedforgeneralconsumeruse,instead

ofonedesignedfor

children,childrenwouldnotlosethefullbenefit

r,children

mightfinditsomewhatmoredifficulttooperatetheproductsintendedforgeneralconsumeruse

andsuchproductsmightnotbebuilttowithstandtheabusetowhichayoungchildmightsubject

aproduct.

Itisalsoimportanttonotethatproductsthatareintendedforgeneralconsumeruse

ore,electronic

devicesdesignedforthegeneralconsumermighthavemorecomponentsthatcontainlead,and

thelead-containingcomponentsmightbemoreaccessibleafterreasonablyforeseeableuseand

abuse

ore,afailuretogranttheexemptionsortoestablishthe

alternativelimitscouldpotentiallyresultinsomechildrenbeingexposedtomorelead.

Otherelectronicdevicesintendedforchildrenmightnothaveanadultequivalent

ightincludesome"educationalgames"thatareintendedtohelpchildrenwith

learningtocount,thealphabet,orthenames

ttheexemption,theseproducts

dabove,thebenefit

oftheexemptionisthe

differencebetweenthevalueprovidedbytheproductthatisremovedfromthemarketandthe

valueprr,in

ore,no

additionalinformationonthebenefitscanbeprovided.

Costs

Asnotedabove,thecost

oftheruleisthattheexemptionswouldallowforthecontinued

exposure

sweknow,no

studieshavebeenconductedtoevaluatetherisktochildren

ofleadabsorptionfromtheuseof

heriskscannotbequantifiedwiththe

availableinformation,HealthSciencesandHumanFactors

staffbelievesthatthelikelihoodis

lowthatleadexposurefromtheexemptedelectronicdeviceswouldresultinsignificantlead

absorptionbychildren.

Ifalead-containingcomponentisexemptedbecauseitiscompletelyencasedina

product,andhenceinaccessibletochildrenasprovidedintheguidanceruleunderCPSIAsection

IOI(b)(2),therisk

ofexposuretoleadislikelytobelowsinceachildwouldnotbeabletotouch

tsforinaccessibilityincludeprobetests,designedtoensurethat

thecomponentcannotbereachedbyachild,anduseandabusetestsdesignedtoensurethatthe

lead-containingcomponentremainsinaccessibleafterreasonablyforeseeableuseandabuse.

However,itispossiblethatsomechildrenwouldbeabletoopenorbreaktheproductandgain

ametime,asnotedabove,aneffectiveban

of

certainchildren'selectronicdevicesthatresultedinmorechildrenusingproductsintendedfor

generalconsumerusecouldpotentiallyleadtoanincreaseinleadexposure.

Forlead-containingcomponentsthatarenotfullyencasedinaproduct,therewould

clearlybesomerisk

pleofthistypeofcomponentistheleadedglassin

thescreen

ofcathoderaytubeproducts,renot

-3-

typicallycomponentsthatonewouldexpectachildtoingest,butsomemouthingoftheproducts

ffisnotawareofanyepidemiologicalstudythatsuggeststhatthese

componentsareasignificantsource

rmore,evenifsuch

productsintendedforchildrenwerenotexemptedfromtherule,someparentswouldlikely

substitute,fortheirchildren'suse,similarproductsintendedforthegeneralconsumerpopulation

thatwouldnotbesubjecttotheCPSIA'sleadlimits.

Forlead-containingreplacementcomponents,therisk

ofleadexposureisprobablylow

oncethereplacementpartisinstalledintheproductsinceitwillbefullyencasedintheproduct

andwillbeinaccessible,asprovidedintheguidanceruleunderCPSIAsection101(b)(2).The

highestriskofleadexposurefromthesetypesofproducts,suchasareplacementbattery,would

occurbeforethecomponentisinstalledorafterithasbeenremovedfromtheproductattheend

ofthecomponent'aseofproductsintendedforveryyoungchildren,whoare

mostsusceptibletotheharmfuleffects

oflead,itislikelythataparentwouldoftenreplacethe

hildrenmightreplacethecomponentsthemselvesbutaremorelikelyto

,itshouldbe

notedthatthesameriskwouldresultfromtheexposuretolead-containingreplacementparts

if

parentssubstituted,fortheirchildren'suse,productsintendedforthegeneralpopulationof

consumersthatarenotsubjecttotheleadlimitationsoftheCPSIA.

Conclusions

Insummary,thefinalrulewouldallowthecontinueduseofsomelead-containing

electronicdevicesintendedfortheuseofchildren,whenitisnottechnologicallyfeasibleto

,childrencouldbeexposedtosomeamount

ofleadfrom

r,theexemptionsarenotexpectedtoincreasetheleadexposureto

childrenfromelectronicdevices,onally,therulecould,in

somecases,ultimatelyresultinreducedleadexposureforsomechildrenif,intheabsence

ofthe

exemptions,parentswouldhavesubstitutedfortheirchildren'suseelectronicproductsintended

forthegeneralpublic-productspotsubjecttotheleadlimitations

oftheCPSIA.

ImpactonSmallBusinesses

Section605oftheRegulatoryFlexibilityAct(RFA)requirestheCommissiontoconsider

theimpactoftheruleonsmallbusinesses.

Thenumber

ofsmallbusinessesthatwillbedirectlyaffectedbytheruleisunknownbut

r,becausetheproposedruleexemptscertainspecifieddevicesor

componentsfromtherequirements

ofsectionlOl(a)oftheCPSIAorestablishesalternative,less

restrictiverequirementsforothers,itwillnotincreasethecosts

ofproductionforanyfirm.

Consequently,theCommissioncouldmakeafindingthattherulewillnothaveasignificant

economicimpactonasubstantialnumber

ofsmallentitiesunderthecriteriaoftheRegulatory

FlexibilityAct.

EnvironmentalAssessment

TheNationalEnvironmentalPolicyActrequiresthattheCommissionconsiderthe

impact

Cenvironmentalreviewregulationsdefine

rulestoprovidedesignorperformancerequirementsforproductstobe"categoricalexclusions"

forwhichenvironmentalassessmentsarenotnormallyrequired(16CFR1021.5).Thisrulewill

notresultinanyadditionaluse

ofleadoverwhatisoccurringatthepresenttime.

It

willexempt

-4-

someelectronicdevicesintendedforchildrenfromthemorestringentrequirementsofthe

ore,itcouldresultinsomewhatmoreleadbeingreleasedintotheenvironment

thanwouldoccur

r,insomecaseselectronicdevices

intendedforgeneralconsumeruse,whicharenotsubjecttotheleadlimitsintheCPSIA,would

besubstitutedforthechildren'sproductsthatwouldbeeffectivelybannediftherulewerenot

uently,theadditionalleadreleasedoverwhatwouldbereleased

ifthe

oreanyadverseenvironmentaleffects

oftherulearelikelytobesmall.

-5-