95-3450. Statement of Policy or Interpretation; Enforcement Policy for Art Materials  

  • [Federal Register Volume 60, Number 29 (Monday, February 13, 1995)]
    [Rules and Regulations]
    [Pages 8188-8194]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-3450]
    
    
    
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    CONSUMER PRODUCT SAFETY COMMISSION
    
    16 CFR Part 1500
    
    
    Statement of Policy or Interpretation; Enforcement Policy for Art 
    Materials
    
    AGENCY: Consumer Product Safety Commission.
    
    ACTION: Final rule; statement of enforcement policy.
    
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    SUMMARY: In 1988, Congress enacted the Labeling of Hazardous Art 
    Materials Act which mandated a labeling standard and certain other 
    requirements for art materials. Based on its experience enforcing these 
    requirements, the Commission is issuing a statement of enforcement 
    policy to more clearly apprise the public of its intended enforcement 
    focus.
    
    [[Page 8189]] DATES: Effective Date; February 13, 1995.
        Applicability Dates: For items for which this policy relieves a 
    restriction, this policy is applicable for products introduced into 
    interstate commerce on or after February 13, 1995. For items against 
    which the Commission previously stated it would not enforce under 
    LHAMA, the policy becomes applicable for products introduced into 
    interstate commerce on or after August 14, 1995.
    
    FOR FURTHER INFORMATION CONTACT: Mary Toro, Division of Regulatory 
    Management, Office of Compliance and Enforcement, Consumer Product 
    Safety Commission, Washington, DC 20207; telephone (301) 504-0400.
    
    SUPPLEMENTARY INFORMATION:
    
    A. Background
    
        In 1988, Congress enacted the Labeling of Hazardous Art Materials 
    Act (``LHAMA''), 15 U.S.C. 1277. Through LHAMA, Congress expressed its 
    desire that art materials should be labeled to warn consumers of 
    potential chronic hazards. LHAMA mandated a voluntary standard, ASTM D 
    4236, with certain modifications, as a mandatory Commission rule under 
    section 3(b) of the Federal Hazardous Substances Act (``FHSA'').
        On October 9, 1992, the Commission issued a notice in the Federal 
    Register that codified the standard as mandated by Congress. 57 FR 
    46626. (At that time, the Commission also issued guidelines for 
    determining when a product presents a chronic hazard, and a 
    supplemental regulatory definition of the term ``toxic'' that 
    explicitly includes chronic toxicity.) The standard is codified at 16 
    CFR 1500.14(b)(8).
        LHAMA and the standard it mandated provide certain requirements for 
    art materials. Under these requirements, the producer or repackager of 
    an art material must submit the product's formulation to a toxicologist 
    to determine whether the art material has potential to produce chronic 
    adverse health effects through customary or reasonably foreseeable use. 
    If the toxicologist determines that the art material has this 
    potential, the producer or repackager must use suitable labeling on the 
    product. The producer or manufacturer of the art material must submit 
    to the Commission (1) the criteria the toxicologist uses to determine 
    whether the producer/repackager's product presents a chronic hazard and 
    (2) a list of art materials that require chronic hazard labeling. The 
    standard also requires that the product bear or be displayed with a 
    conformance statement indicating that it has been reviewed in 
    accordance with the standard. The standard, which is set forth at 16 
    CFR 1500.14(b)(8), and section 2(p) of the FHSA, 15 U.S.C. 1261(p), 
    provide additional information on the required content of labels and 
    the conformance statement.
    
    B. The Scope of ``Art Materials''
    
    1. The Statute and Previous Commission Interpretation
    
        The requirements described above apply to ``art materials'' as 
    broadly defined in LHAMA. The term art material is defined in the 
    statute as ``any substance marketed or represented by the producer or 
    repackager as suitable for use in any phase of the creation of any work 
    of visual or graphic art of any medium.'' 15 U.S.C. 1277(b)(1). The 
    definition applies to art materials intended for users of any age, but 
    excludes pesticides, drugs, devices, and cosmetics subject to other 
    federal statutes, Id. 1277(b) (1) and (2).
        When the Commission issued the final rule implementing the LHAMA 
    provisions on October 9, 1992, it recognized that the statutory 
    definition of art material could be interpreted to reach far beyond the 
    common perception of the meaning of that term. Accordingly, the 
    Commission identified three categories of products that it would not 
    enforce the LHAMA requirements against, although they arguably fall 
    within the statutory definition of art materials. Specifically, the 
    Commission stated that it would not enforce the LHAMA requirements 
    against tools, implements, and furniture that were used in the process 
    of creating a work of art but do not become part of the work of art 
    (called ``category 3 products'' in the October 9, 1992 notice). 
    Examples provided of items that might fall into this category were 
    drafting tables and chairs, easels, picture frames, canvas stretchers, 
    potter's wheels, hammers, chisels, and air pumps for air brushes.
        The Commission also delineated two general categories of products 
    which could fall within the statutory definition and against which the 
    Commission would enforce the LHAMA requirements. The October 9, 1992 
    notice identified these items as products which actually become a 
    component of the work of art (e.g., paint, canvas, inks) (previously 
    ``category 1 products'') and products closely and intimately associated 
    with the creation of an art work (e.g., brush cleaners, solvents, photo 
    developing chemicals) (previously ``category 2 products'').
    
    2. The Statement of Enforcement Policy
    
        The distinctions made in the October 9, 1992 notice have proved 
    unsatisfactory in the practical enforcement of the LHAMA requirements. 
    The staff has found that these categories, and enforcement policies 
    based on the categories, may lead to inconsistent determinations. Thus, 
    the Commission began to reconsider its enforcement of the LHAMA 
    requirements against certain products. On March 8, 1994, the Commission 
    published a proposed Enforcement Policy for Art Materials. 59 FR 10761. 
    Today, the Commission is finalizing its enforcement policy essentially 
    as it was proposed. This notice restates the enforcement policy, 
    clarifies several issues, and responds to public comments received on 
    the proposal. This interpretation will supersede the enforcement policy 
    stated in the October 9, 1992 notice and other related interpretations.
        The Commission will focus its enforcement efforts on items that 
    have traditionally been considered art materials, such as paints, inks, 
    solvents, pastes, ceramic glazes, and crayons, and on other items that 
    may present a risk of chronic injury. This enforcement policy will not 
    compromise public safety because there is virtually no risk of chronic 
    health effects with the types of products and materials--such as paper 
    or hard plastic--that the Commission will not enforce against. Also, 
    even if such products presented such a risk, the Federal Hazardous 
    Substances Act, 15 U.S.C. 1261(p), requires cautionary labeling for any 
    article intended or packaged for household use if it contains a 
    hazardous substance. This includes, but is not limited to, art 
    materials that, under reasonably foreseeable conditions of purchase, 
    storage, or use, may be used in or around the household. Unless 
    expressly exempted, children's articles are banned under the FHSA if 
    they are or contain a hazardous substance. The Commission believes that 
    the public interest will be better served by this exercise of 
    enforcement discretion because the staff can use its limited resources 
    more efficiently to pursue enforcement actions against those art 
    materials that present the greatest risk of chronic health effects.
        The Commission will not enforce against the following types of 
    products under LHAMA.
        (1) General use products. The Commission will not take enforcement 
    action under LHAMA against general use products which might 
    incidentally be used to create art, unless a particular 
    [[Page 8190]] product is specifically packaged, promoted, or marketed 
    in a manner that would lead a reasonable person to conclude that it is 
    intended for use as an art material. Examples of such general use 
    products are common wood pencils, pens, markers, and chalk. For 
    enforcement purposes, the Commission presumes that these types of items 
    are not art materials. The presumption can be overcome, however, by 
    evidence that such an item is intended for specific use in creating 
    art. Factors the Commission will consider to determine the status of 
    such items include how the items are packaged (e.g., packages of 
    multiple colored pencils, chalks, or markers unless promoted for non-
    art material uses are likely to be art materials), how they are 
    marketed and promoted (e.g., pencils and pens intended specifically for 
    sketching and drawing are likely to be art materials), and where they 
    are sold (e.g., products sold in an art supply store are likely to be 
    art materials).
        (2) Tools, implements, and furniture. The Commission will not take 
    enforcement action under LHAMA against tools, implements, and furniture 
    used in the creation of a work of art, such as brushes, chisels, 
    easels, picture frames, drafting tables and chairs, canvas stretchers, 
    potter's wheels, hammers, and air pumps for air brushes. In this policy 
    statement the Commission expands the scope of what were referred to as 
    ``category 3'' art materials in the October 9, 1992 notice. Based on 
    the Commission's enforcement experience, the Commission will consider 
    some items that it previously categorized as closely and intimately 
    associated with creation of a work of art (previously ``category 2'' 
    products) to be tools, implements and furniture. The Commission 
    believes that these items (brushes, kilns, and molds) are better 
    characterized as tools and implements against which the Commission will 
    not enforce the LHAMA requirements. The Commission believes this 
    revised interpretation is more consistent with the purposes of LHAMA. 
    They are not like the more traditional art materials mentioned in LHAMA 
    floor debates, and they are unlikely to pose a chronic hazard to the 
    user.
        (3) Surface materials. The Commission will not take enforcement 
    action under LHAMA against the surface materials to which an art 
    material is applied. Examples are coloring books and canvas. In many 
    instances, an art material is applied to a surface such as paper, 
    plastic, wood, or cloth. These surfaces continue to be components of 
    the work of art and thus art materials, but are now characterized as 
    products against which the Commission will not enforce the LHAMA 
    requirements.
        (4) Specific Materials. The Commission will also not take 
    enforcement action under LHAMA against the following specifically 
    enumerated materials: paper, cloth, plastic, film, yarn, threads, 
    rubber, sand, wood, stone, tile, masonry, and metal. Several of these 
    materials are often used as a surface for art work while others are 
    used to create the work of art itself. Regardless of whether such items 
    are used as a surface or not, the Commission will not enforce the LHAMA 
    requirements against them.
        The guidance given in (3) and (4) above does not apply if the 
    processing or handling of a material exposes users to chemicals in or 
    on the material in a manner which makes those chemicals susceptible to 
    being ingested, absorbed through the skin, or inhaled. The Commission 
    believes that in most cases, the surfaces and specific materials listed 
    do not present a chronic risk. These types of materials are unlikely to 
    allow exposure. However, if it is likely that reasonably foreseeable 
    handling or use of the material would expose the consumer to chemicals, 
    the Commission will enforce all LHAMA requirements with respect to that 
    product. This is a question of potential exposure, not the 
    manufacturer's assessment of hazard. Thus, even if the chemical to 
    which the consumer might be exposed is potentially non-hazardous, the 
    Commission would enforce the LHAMA requirements, including review by a 
    toxicologist. This is consistent with Congress's intention that a 
    toxicologist, not the manufacturer, should assess the potential chronic 
    hazard.
        For example, paper stickers marketed or promoted as art materials 
    often have an adhesive backing that users lick. The act of licking the 
    backing can result in the ingestion of chemicals, and the LHAMA 
    requirements will therefore be enforced. For self-adhesive stickers, on 
    the other hand, which present little risk of exposure, the staff will 
    generally refrain from enforcement unless there is reason to believe 
    that the nature of a particular sticker and its intended use presents a 
    genuine risk of exposure to a potential chemical hazard either by 
    ingestion or absorption.
        Another example involves plastic. If the artistic use for which the 
    plastic is intended requires heating or melting it in a manner that 
    results in the emission of chemical vapors, the LHAMA requirements will 
    be enforced.
    
    C. Craft and Hobby Kits and Supplies
    
    1. Kits
    
    a. Previous Interpretation
        In enforcing LHAMA, the Commission has encountered the question of 
    the applicability of LHAMA requirements to certain craft or hobby kits. 
    The basic issue centers on the meaning of the term ``work of art.'' In 
    previous letters to industry, the staff has advised that the 
    determination depends on whether the end product produced from the kit 
    would be primarily functional or aesthetic. If the former were true, 
    the staff has said that the end product would not be a work of art and 
    none of the components would be art materials. If the latter were true, 
    the end product would be a work of art and all of the components of the 
    kit would be art materials. This distinction proved difficult for 
    practical enforcement, and has raised the possibility of inconsistent 
    enforcement results. For example, if the same paints that were included 
    in a kit to make a working model airplane were also included in a 
    paint-by-number set, under the staff's previous interpretation, the 
    Commission would enforce the LHAMA requirements against the paints in 
    the second kit, but not in the first.
    b. Statement of Enforcement Policy
        After considering the above, as well as the purpose of LHAMA to 
    alert consumers to the potential dangers associated with products used 
    in the creation of art, the Commission published its proposed policy to 
    clarify its enforcement of LHAMA concerning craft and hobby kits. The 
    Commission is finalizing that aspect of the policy as proposed. As 
    explained below, the Commission believes that its LHAMA enforcement 
    should include both (1) kits to make items for display and (2) kits 
    which involve decorating an item, regardless of the end use of the item 
    created. Models and similar kits to make hobby or art/craft items can 
    have dual purposes, both functional and for display. In addition, when 
    a consumer creatively decorates a functional object, it arguably 
    becomes a work of art just as decorated canvas or paper would. 
    Therefore, the Commission believes that materials for decorating and 
    assembling models and art/craft items come within the reach of LHAMA. 
    The Commission believes that the following interpretation is more 
    workable than the previous one and is consistent with the intent of 
    Congress.
        For kits that include materials to decorate products whether the 
    products are functional, for display, or both, the Commission will 
    enforce the LHAMA [[Page 8191]] requirements against materials in the 
    kit that are intended to decorate or assemble an item in the kit--i.e., 
    traditional art materials, such as, paints, crayons, colored pencils, 
    adhesives, and putties--even if the finished product is a toy or other 
    item whose primary use may be functional. Thus, for a kit that contains 
    a plastic toy or a paint-by number board, along with paints or 
    adhesives to decorate or assemble the item, the Commission will expect 
    the paints and adhesives in each case to meet all the LHAMA 
    requirements. However, as explained in section B.2.(3) & (4) above 
    pertaining to surfaces and specific materials, the Commission would not 
    enforce the requirements against the plastic toy or the board.
        For kits that package an item that would be subject to enforcement 
    under this policy together with an item that would not, any necessary 
    chronic hazard statements or labeling, including any required 
    conformance statement, must appear on the outer container or wrapping 
    of the kit, or must be visible through it, and must specify the item to 
    which the statement or labeling refers. Any conformance statement must 
    be visible at the point of sale. In addition to being visible at the 
    point of sale, any required chronic hazard warning label must be on the 
    immediate package of the item that is subject to LHAMA as well as on 
    accompanying literature where there are instructions for use. See 16 
    CFR 1500.125.
    
    2. Enforcement Policy for Separate Supplies
    
        As stated in the March 8, 1994 proposal, the Commission will 
    enforce LHAMA requirements against materials intended to decorate art 
    and craft, model and hobby items, such as paints, even if they are sold 
    separately and not part of a kit. Similarly, paints or markers intended 
    for decorating clothes will be considered art materials for enforcement 
    purposes since they are intended for decorating clothing, even though 
    the resulting item, the garment, has a functional purpose. Note that as 
    explained in section B above, the Commission would not enforce the 
    requirements against the surface upon which the art material is 
    applied, regardless of the primary use of the finished product.
        The status of glues, adhesives, and putties will depend on their 
    intended use. Some illustrative examples follow. Glues which are 
    marketed for general repair use only would not be art materials, and 
    the Commission will not enforce the LHAMA requirements against them. 
    Glue sticks for glue guns which are for art or craft use would be 
    considered art materials. Spray adhesives and rubber cements will 
    normally be considered art materials unless they are marketed for some 
    specialty non-art use. School pastes and glues will also be considered 
    art materials.
    
    D. Conformance Statement
    
        Section 1500.14(b)(8)(i)(C)(7) of the LHAMA rule requires that a 
    conformance statement appear with an art material. In the preamble to 
    the original LHAMA rule, the Commission stated that every art material 
    must display either a conformance statement or a hazard warning, but 
    not both. See 57 FR 46629, October 9, 1992.
        The Commission has reviewed this matter in light of one comment it 
    received opposing the Commission's policy on this issue and its 
    experience enforcing the LHAMA requirements. The Commission agrees with 
    the commenter and is now modifying its policy concerning the 
    conformance statement.
        The language of the standard that was mandated by LHAMA is not 
    entirely clear on this question. 16 CFR 1500.14(b)(8)(i)(C). However, 
    based on its experience enforcing LHAMA, the Commission agrees with the 
    commenter that there is the potential for confusion if some products 
    that have been reviewed according to the standard display a conformance 
    statement but others do not. Thus, the Commission's policy is that a 
    conformance statement must appear with all toxicologist-reviewed art 
    materials subject to LHAMA regardless of whether they also have a 
    hazard warning statement. A subsection has been added to the 
    enforcement policy, Sec. 1500.14(b)(8)(iv)(C), stating this policy. 
    Since the conformance statement constitutes ``other cautionary 
    labeling'' as defined in 16 CFR 1500.121(a)(2)(viii), it must comply 
    with the conspicuousness requirements of 16 CFR 1500.121 (c) and (d), 
    including the type-size requirement laid out in Table 1 of 
    1500.121(c)(2).
    
    E. Response to Comments
    
    1. General
    
        The Commission heard from six commenters on its proposed 
    enforcement policy. For the most part, commenters supported the 
    Commission's effort to clarify its enforcement intentions in this area. 
    For example, one commenter stated that the proposed enforcement policy 
    alleviates practical problems, follows common sense, is consistent with 
    Congressional intent, and appropriately focuses on intended use. 
    However, commenters did raise several specific criticisms of certain 
    aspects of the proposed policy. These comments and the Commission's 
    responses are discussed below.
    
    2. Scope of ``Art Materials''
    
        One commenter suggested changing 16 CFR 1500.14(b)(8)(iv)(A)(1) to 
    state that markers sold in art supply stores are art materials, rather 
    than likely to be art materials.
        The Commission declines to make this change. For general use 
    products, the Commission will look at a variety of factors, including 
    packaging, marketing, and where the item is sold. Often a single factor 
    will not be determinative. For example, along with other markers, an 
    art supply store might sell high-lighters which are clearly promoted 
    for use by students in marking textbooks. These are probably general 
    use products, and the enforcement policy should be flexible enough to 
    allow this determination.
        The Writing Instrument Manufacturer's Association (``WIMA''), a 
    trade association for the writing instrument industry, commented that 
    it generally supported the proposed enforcement policy but suggested 
    that cased pencils (referred to as common wood pencils in the proposed 
    policy) should generally be considered art materials. WIMA asserted 
    that these pencils are generally considered in the industry to be art 
    materials and are used for drawing and sketching. Another commenter 
    argued that if the enforcement policy considers these general use 
    pencils not to be art materials, products from China and other 
    countries without consumer protection laws will flood the market.
        The Commission declines to make this change in the enforcement 
    policy. The Commission believes that common pencils, much like pens or 
    markers, are generally used as writing materials. Under the policy, 
    specific pencils that are intended primarily for drawing or sketching 
    (such as colored pencils) will be considered art materials for 
    enforcement purposes. Of course, pencil makers who wish to submit their 
    formulations to a toxicologist for evaluation and label them 
    accordingly may do so. However, the Commission will not enforce the 
    LHAMA requirements against common pencils unless they are specifically 
    intended or marketed as art materials. Whether products are produced 
    domestically or imported, they are all subject to the consumer 
    protection laws and regulations of this country if they are sold here. 
    With respect to the comment concerning imports from countries 
    [[Page 8192]] without consumer protection laws, CPSC reminds the 
    commenter that imports are subject to the same requirements as products 
    made in this country.
        One commenter stated support for the proposed enforcement policy's 
    treatment of brushes, kilns, and molds, finding it to be consistent 
    with other CPSC policy interpretations. CPSC agrees.
    
    3. Actual Toxicity Hazards
    
        One commenter argued that the proposed enforcement policy would 
    allow products which present chronic toxicity hazards to consumers to 
    evade the review required by LHAMA. The commenter stated that items 
    ``such as pencils, paper, fabric, paint brushes, and sand have all been 
    found to present chronic toxicity hazards in the past * * *.''
        The Commission's scientific staff examined this comment, and does 
    not agree. Neither the Commission nor the staff have concluded that any 
    of the listed items typically present chronic toxicity hazards. The 
    staff has in the past examined some uses of some of these materials 
    outside of the context of art materials. For example, children's 
    playsand was evaluated to see if the sand posed a hazard through 
    tremolite asbestos or non-asbestos tremolite. No such hazard was 
    established. Paper has been found to contain extremely small amounts of 
    dioxin, but the amount is so small that the risk is negligible. Through 
    its enforcement policy, the Commission is attempting to focus 
    enforcement efforts on items that may actually harm consumers. The 
    Commission believes this policy furthers that goal. It is worth noting 
    that in the unlikely event that any of these items were found to be 
    dangerous, the labeling and banning provisions of the Federal Hazardous 
    Substances Act (15 U.S.C. 1261 (f), (p), and (q)(1), and 15 U.S.C. 
    1263) still apply.
        Another commenter agreed with the Commission's focus on potential 
    for genuine risk of exposure but suggested that the language of the 
    proposed policy be changed in 16 CFR 1500.14(b)(8)(iv)(A) (3) and (4) 
    to state that the user's exposure must be to a hazardous chemical 
    before the Commission will enforce LHAMA against the materials listed 
    in those subsections. In the sections referred to, the enforcement 
    policy provides that the Commission will not enforce the LHAMA 
    requirements against surface materials and certain specifically 
    enumerated materials unless it is likely that handling or processing 
    the material may expose the user to chemicals in or on the material.
        The Commission declines to make the commenter's suggested change. 
    As explained in section B.2 above, although the Commission believes 
    that generally there will not be a chronic hazard with use of these 
    materials, the Commission is concerned that a situation could arise in 
    which a unique manner of handling or using these materials could pose a 
    risk of exposure. An example is paper stickers with adhesive that is 
    licked. The commenter's suggestion would put the manufacturer in the 
    position of deciding whether a particular chemical is hazardous. 
    However, Congress intended that this determination be made by the 
    toxicologist reviewing a product's formulation. The enforcement policy 
    concerns the initial question of whether exposure is likely, not 
    whether a chemical is hazardous. Thus, under the Commission's 
    enforcement policy, if there is the potential for exposure to a 
    chemical from a surface or specifically enumerated material, the LHAMA 
    requirements will be enforced.
    
    4. Enforcing LHAMA Against Non-Hazardous Products
    
        Comments suggested that all art materials should have to comply 
    with LHAMA regardless of actual risk, and that the items listed in the 
    proposed enforcement policy should not be excluded from enforcement 
    efforts. They noted that the conformance statement on a non-hazardous 
    product tells the consumer that the product has been cleared by a 
    toxicologist. An unlabeled product, on the other hand, could either 
    have been evaluated as non-toxic, or not evaluated at all. Thus the 
    commenters argue that the Commission should enforce against all art 
    materials, whether hazardous or not.
        In response, the Commission notes that focusing its enforcement 
    efforts is important to ensure that the enforcement program is as 
    effective as possible through the effective use of the Commission's 
    limited resources. The Commission believes that the categories of 
    products against which it will no longer enforce present virtually no 
    risk of exposing consumers to chronic toxicity hazards. No evidence of 
    consumer confusion was presented with the comments, and we think any 
    such confusion should be minimal.
    
    5. Conformance Statement and Warnings
    
        As explained above, one commenter argued that the conformance 
    statement should accompany all art materials, including those that also 
    require a hazard warning. The preamble to the original LHAMA rule 
    stated that every art material must display either a conformance 
    statement or a hazard warning, but not both. See 57 FR 46629, October 
    9, 1992.
        The Commission has reviewed this issue in light of this comment and 
    its experience. For reasons explained in greater detail above, the 
    Commission agrees with the commenter and has added a subsection to the 
    enforcement policy making this change.
    
    6. Other Labeling Issues
    
        One commenter noted that some labels bear adequate safe handling 
    instructions, but do not list the chronic hazards that necessitate 
    these precautions. LHAMA and the ASTM standard clearly require that 
    both the chronic hazard and the safety instructions be on the label.
        Another commenter noted that facially adequate labels should be 
    examined for accuracy. The Commission considers this a very important 
    issue. If labels are inaccurate, the labels and the standard itself 
    become meaningless to the consumer. It is clearly unacceptable for 
    labels to indicate that they have been reviewed by a toxicologist (by 
    display of the conformance statement) if they in fact have not.
    
    7. Kits and Supplies
    
        One commenter stated specific support for the proposed enforcement 
    policy concerning kits and separate supplies.
    
    8. Status of Enforcement Policy
    
        One commenter argued that the Commission is actually exempting 
    certain products from the FHSA, and it is therefore improper to issue 
    an enforcement policy rather than a regulation under section 3(c) of 
    the FHSA (15 U.S.C. 1262(c)). The commenter argued that the enforcement 
    policy would create confusion.
        The Commission disagrees with this comment. This policy does not 
    exempt any items from the FHSA. First, the policy does not grant 
    exemptions from the LHAMA provisions, but rather clarifies the 
    Commission's interpretation of the statutory term ``art material'' and 
    informs the public that the Commission's enforcement efforts under 
    LHAMA will be directed against those products that present the greatest 
    risk. Through this policy, the Commission is explaining what that means 
    in practice. The policy explains how the Commission will interpret the 
    statutory definition of ``art material'' for purposes of enforcement 
    and that it does not intend to enforce LHAMA [[Page 8193]] requirements 
    against certain items or materials which are unlikely to present a 
    chronic hazard. The Commission believes that the policy, with its 
    general guidance and specific examples, will help to clarify existing 
    confusion. The enforcement policy will be published in the CFR with the 
    LHAMA regulations so that all will be aware of Commission policy. In 
    addition, the policy has no impact on the enforcement of other 
    provisions of the FHSA, such as recall or notice actions under section 
    15 of the FHSA, as to art materials.
        Focusing enforcement efforts to make them maximally effective is an 
    appropriate use of an enforcement policy. The commenter stated that 
    enforcement policies should clarify where an agency will take action, 
    rather than where it will not. No authority was cited for this 
    proposition, and the Commission is not aware of any such authority.
        However, the Commission is modifying the language of section 
    1500.14(b)(8)(iv)(A)(1) slightly to clarify its interpretation with 
    respect to that one category of products. The Commission does not 
    consider the products described in that subsection (products intended 
    for general use) to be art materials under the statutory definition. 
    This is now stated explicitly in that subsection.
    
    9. Effective Date
    
        One commenter requested that manufacturers have one year to comply 
    with this enforcement policy, rather than six months. No data were 
    submitted as to why compliance in six months would be unduly 
    burdensome. The Commission believes that six months is adequate time to 
    submit formulae to toxicologists and comply with relevant labeling 
    requirements. The Commission will, however, apply the policy to those 
    products initially introduced into interstate commerce after six 
    months, rather than those manufactured or imported after that date.
    
    10. Prohibition of Lead in Children's Products
    
        One commenter suggested that the Commission should prohibit the use 
    of lead in products intended or marketed for the use of children. This 
    comment is beyond the scope of this enforcement policy. However, we 
    remind the commenter that the hazard of lead in consumer products 
    intended for children is dealt with by regulations under the CPSA, 16 
    CFR 1303.4, and provisions of the FHSA, 15 U.S.C. 1261 (f)(1)(A) & 
    (q)(1)(A).
    
    F. Environmental Considerations
    
        The Commission has considered whether issuance of this enforcement 
    statement will produce any environmental effects and has determined 
    that it will not. The Commission's regulations at 16 CFR 1021.5(c)(1) 
    state that rules and safety standards ordinarily have little or no 
    potential to affect the human environment, and therefore, do not 
    require an environmental impact statement or environmental assessment. 
    The Commission believes that, as with such standards, this enforcement 
    policy would have no adverse impact on the environment.
    
    G. Regulatory Flexibility Act Certification
    
        The Regulatory Flexibility Act generally requires agencies to 
    prepare proposed and final regulatory analyses describing the impact of 
    a rule on small businesses and other small entities. Section 605 of the 
    Act provides that an agency is not required to prepare a regulatory 
    flexibility analysis if the head of an agency certifies that the rule 
    will not have a significant economic impact on a substantial number of 
    small entities. The Commission believes that this enforcement statement 
    will have little effect on businesses in general or on small businesses 
    in particular. Accordingly, the Commission concludes that its 
    enforcement statement concerning the labeling of hazardous art 
    materials would not have any significant economic effect on a 
    substantial number of small entities.
    
    H. Authority
    
        Section 10 of the FHSA gives the Commission authority to issue 
    regulations for the efficient enforcement of the FHSA. 15 U.S.C. 
    1269(a). This provision authorizes the Commission to issue statements 
    of enforcement policy in which the Commission explains how it intends 
    to enforce a Commission requirement.
    
    I. Applicability Date
    
        Since this notice issues an interpretative rule/statement of 
    policy, no particular applicability date is required by the 
    Administrative Procedure Act. 5 U.S.C. 553(d)(2). The Commission 
    recognizes, however, that as to items against which the Commission 
    previously stated that it would not enforce LHAMA, manufacturers will 
    need time to bring their products into compliance. Thus, this policy 
    regarding such items applies to products introduced into interstate 
    commerce on or after 6 months from the date this policy is published in 
    the Federal Register. The Commission believes that this is adequate 
    time to submit formulae to toxicologists and comply with relevant 
    labeling requirements. As to those items where this policy relieves a 
    restriction, the policy becomes applicable for such products introduced 
    into interstate commerce on or after the date of publication of this 
    notice.
    
    List of Subjects in 16 CFR Part 1500
    
        Arts and crafts, Consumer protection, Hazardous materials, 
    Hazardous substances, Imports, Infants and children, Labeling, Law 
    enforcement, Toys.
    
        For the reasons given above, the Commission amends 16 CFR 1500.14 
    as follows:
    
    PART 1500--[AMENDED]
    
        1. The authority citation for part 1500 continues to read as 
    follows:
    
        Authority: 15 U.S.C. 1261-1277.
    
        2. Section 1500.14 is amended by adding a new paragraph (b)(8)(iv) 
    to read as follows:
    
    
    Sec. 1500.14  Products requiring special labeling under section 3(b) of 
    the Act.
    
    * * * * *
        (b) * * *
        (8) * * *
        (iv) Policies and interpretations.
        (A) For purposes of enforcement policy, the Commission will not 
    consider as sufficient grounds for bringing an enforcement action under 
    the Labeling of Hazardous Art Materials Act (``LHAMA'') the failure of 
    the following types of products to meet the requirements of 
    Sec. 1500.14(b)(8) (i) through (iii).
        (1) Products whose intended general use is not to create art (e.g., 
    common wood pencils, and single colored pens, markers, and chalk), 
    unless the particular product is specifically packaged, promoted, or 
    marketed in a manner that would lead a reasonable person to conclude 
    that it is intended for use as an art material. Factors the Commission 
    would consider in making this determination are how an item is packaged 
    (e.g., packages of multiple colored pencils, chalks, or markers unless 
    promoted for non-art materials uses are likely to be art materials), 
    how it is marketed and promoted (e.g., pencils and pens intended 
    specifically for sketching and drawing are likely to be art materials), 
    and where it is sold (e.g., products sold in an art supply store are 
    likely to be art materials). The products described in this paragraph 
    do not meet the statutory definition of ``art material.''
    [[Page 8194]]
    
        (2) Tools, implements, and furniture used in the creation of a work 
    of art such as brushes, chisels, easels, picture frames, drafting 
    tables and chairs, canvas stretchers, potter's wheels, hammers, air 
    pumps for air brushes, kilns, and molds.
        (3) Surface materials upon which an art material is applied, such 
    as coloring books and canvas, unless, as a result of processing or 
    handling, the consumer is likely to be exposed to a chemical in or on 
    the surface material in a manner which makes that chemical susceptible 
    to being ingested, absorbed, or inhaled.
        (4) The following materials whether used as a surface or applied to 
    one, unless, as a result of processing or handling, the consumer is 
    likely to be exposed to a chemical in or on the surface material in a 
    manner which makes that chemical susceptible to being ingested, 
    absorbed, or inhaled: paper, cloth, plastics, films, yarn, threads, 
    rubber, sand, wood, stone, tile, masonry, and metal.
        (B) For purposes of LHAMA enforcement policy, the Commission will 
    enforce against materials including, but not limited to, paints, 
    crayons, colored pencils, glues, adhesives, and putties, if such 
    materials are sold as part of an art, craft, model, or hobby kit. The 
    Commission will enforce the LHAMA requirements against paints or other 
    materials sold separately which are intended to decorate art, craft, 
    model, and hobby items. Adhesives, glues, and putties intended for 
    general repair or construction uses are not subject to LHAMA. However, 
    the Commission will enforce the LHAMA requirements against adhesives, 
    glues, and putties sold separately (not part of a kit) if they are 
    intended for art and craft and model construction uses. This paragraph 
    (b)(8)(iv)(B) applies to products introduced into interstate commerce 
    on or after August 14, 1995.
        (C) Commission regulations at Sec. 1500.14(b)(8)(i)(C)(7) require 
    that a statement of conformance appear with art materials that have 
    been reviewed in accordance with the Commission standard. The 
    Commission interprets this provision to require a conformance statement 
    regardless of the presence of any chronic hazard warnings.
        (D) Nothing in this enforcement statement should be deemed to alter 
    any of the requirements of the Federal Hazardous Substances Act 
    (``FHSA''), such as, but not limited to, the requirement that any 
    hazardous substance intended or packaged in a form suitable for 
    household use must be labeled in accordance with section 2(p) of the 
    FHSA.
    
        Dated: February 6, 1995.
    Sadye E. Dunn,
    Secretary, Consumer Product Safety Commission.
    [FR Doc. 95-3450 Filed 2-10-95; 8:45 am]
    BILLING CODE 6355-01-P
    
    

Document Information

Effective Date:
2/13/1995
Published:
02/13/1995
Department:
Consumer Product Safety Commission
Entry Type:
Rule
Action:
Final rule; statement of enforcement policy.
Document Number:
95-3450
Dates:
Effective Date; February 13, 1995.
Pages:
8188-8194 (7 pages)
PDF File:
95-3450.pdf
CFR: (2)
16 CFR 1500.14(b)(8)
16 CFR 1500.14