FOR IMMEDIATE RELEASE |
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August 16, 1984 |
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Release # 84-051 |
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CPSC Revokes Its Mandatory Standard
For Unvented Gas-Fired Space Heaters
WASHINGTON, D.C. -- The Consumer Product Safety Commission
yesterday voted 3 to 2 to revoke its mandatory standard requiring all
unvented gas-fired space heaters to be equipped with an oxygen-depletion sensor device to address the risk of carbon monoxide poisoning.
Subsequent to adoption of the Commission's mandatory standard in
1981, 95 to 100 percent of the manufacturers had complied by adding such
sensors to every heater, CPSC staff reported.
The industry has developed a voluntary standard which requires the
devices to be included on unvented gas space heaters. In addition, an
industry certification program exists to encourage compliance with the
voluntary standard.
Six states and 40 local jurisdictions had already petitioned the
Commission for exemptions from the federal preemption. Following the
effective date of this revocation, each state and locality will be able to
address the risks of injury from unvented gas space heaters independently.
Voting to revoke the mandatory standard were Commissioners
Carol G. Dawson, Terrence M. Scanlon and Stuart M. Statler. Voting
against revocation were CPSC Chairman Nancy Harvey Steorts and Vice
Chairman Saundra Brown Armstrong.
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Statement Of Commissioner Stuart M. Statler
On
Revocation Of Standard On Unvented Gas-Fired Space Heaters
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Ijoined in the vote today to revoke the CPSC mandatory standard requiring
an oxygen depletion sensor (ODS) on unvented gas-fired space heaters. In no way
should this action be seen as a lessening of protection for consumers. Were
there any evidence of that, I would have voted otherwise. The mandatory standard
has served its purpose in stimulating industry to act on its own; but it is no
longer necessary to reduce the unreasonable risk of carbon monoxide poisoning
from this source. This is so because the voluntary industry standard which is
substantively the same -- even more comprehensive in some respects -- is now
addressing the hazard. And because it has greater flexibility to recognize new
technological strides, it can better protect for the future. Specifically -
- There is now substantial compliance (95% to 100%) with the voluntary
standard for unvented gas space heaters. This industry has been exceedingly
responsible in promoting compliance, and its unique and highly effective
certification program will assure that result.
- While the voluntary standard does not address LP gas cabinet heaters,
market data indicate that such heaters are no longer being imported into the
U.S., because of likely seizure by CPSC and because industry's National Fire
Protection Code prohibits use of such LP gas cylinders in a residential setting.
48 states have adopted this code, effectively banning these heaters. Moreover,
when such heaters were sold in the U.S., all were equipped with an ODS.
- The Commission retains powers under Section 15 of the CPSA to remove from the market any unvented LP or natural gas-fired heaters not equipped with
an ODS device or equivalent means to curtail the asphyxiation risk.
- Revocation of the standard will eliminate confusion in States and
localities over possible Federal preemption of their own restrictions, bans or
use-requirements. If they believe the voluntary standard is not a sufficient
safeguard, States and cities may now regulate the use of unvented gas space
heaters as they best see fit without having their hands tied by the existence of
a Federal rule. The effect on interstate commerce should be negligible, since
markets which first opened up as a result of Federal preemption of local laws do
not account for a significant percentage of unvented heater sales.
- The door to innovation is opened wide by removing the design-restrictive
specifications for an ODS device in the mandatory standard. Fast-emerging
sensing devices were literally unheard of just a year or two ago. One which
would directly measure carbon monoxide levels may prove to be a more accurate
and more timely means to detect the presence of CO instead of -- as now --
merely the absence of oxygen. The mandatory standard did not set a performance
level, but rigidly said that an ODS must be used and nothing else. With it in
force, emerging devices for directly measuring CO would be stifled. Both
improved safety and lower cost to American consumers would be sacrificed were
the mandatory standard to remain intact.
Our action today -- to defer to a highly successful voluntary standard of
proven worth -- is an indication of the cooperative efforts of the gas industry
and this Commission to protect the safety of consumers. The Commission will
rigorously monitor the marketplace and the efforts of this industry so as to
further reduce instances of carbon monoxide poisoning from these heaters.
August 14, 1984
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Opinion of
Commissioner Terrence M. Scanlon
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In voting with the majority to revoke the mandatory standard today for unvented gas-fired space heaters, I have considered two primary issues: |
I. Consumer Safety
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As required by the Consumer Product Safety Act, this Commission may revoke a rule "only if it determines that the rule is not reasonably necessary to eliminate or reduce an unreasonable risk of injury associated with the product." [CPSA, Sec. 9(h)]. From the record and public meetings, three points are particularly significant. |
1. | CPSC staff has stated that the level of ODS use and ANS1 conformance is
100% and that the degree of ANSI/AGA conformance is not expected to change
if the mandatory standard is revoked. |
2. | Representatives from trade associations and the model building code
groups with whom I met last stunner, as well as the correspondence from
various local governments, supported the argument that revocation will
not degrade consumer safety. |
3. | The CPSC has already noted publicly with regard to this particular
industry that " ...conformance by manufacturers to the industry's
vc1unta.q standards and industry certification programs [for vented
space heaters] is high." (Fed. Reg. 45, No. 182, September 17, 1980,
p. 61881]. |
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Hence, the voluntary standard will be as effective as the mandatory standard in
assuring that unvented gas-fired space heaters are equipped with an ODS device and are properly labeled. It follows that the mandatory standard is not reasonably necessary to insure the safety of this product. |
II. Local Autonomy
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Many local jurisdictions have indicated a desire to address risks in addition to
those addressed by the CPSC standard and have adopted more stringent restrictions. Such a position is found in a letter received last summer from the City of Baltimore. As was pointed out, Baltimore's ordinance -- a ban on residential use -- was based upon "fire and burn, as well as asphyxiation risks." If the mandatory standard is revoked, local bans of or other restrictions on unvented gas-fired space heaters would not be precluded.
It is my view that the CPSC should not needlessly preempt such local restrictions
and autonomy. Revocation of the mandatory standard should result in increased consumer safety on the local level as well.
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Opinion
Chairman Nancy Harvey Steorts
U.S. Consumer Product Safety Commission
Revocation of Standard on Unvented Gas-fired Space Heaters
August 14, 1984
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I firmly believe that the Safety Standard for Unvented Gas-Fired
Space Heaters should be retained. Today, I am voting against revocation
of the mandatory standard as a reaffirmation of a position I have
expressed each time this issue has come before the Commission.
My reasons for voting to keep the current mandatory standard
remain unchanged.
1. Revocation would give unscrupulous foreign and domestic
manufacturers the opportunity to place inferior, unsafe products
in the marketplace. This is particularly perilous for consumers who
might erroneously assume that they are still protected by the existing
mandatory standard.
2. Without a Federal mandatory standard, the only consumer
protection left will be a patchwork of largely unenforceable state and
local restrictions. In effect, the consumer will be left unprotected.
3. Representatives of the manufacturing, distributing and importing
segments of this industry have stated flatly that revocation will have
an adverse economic effect both on the industry and the consumer.
Varying requirements from state to state will complicate distribution
and increase costs ultimately borne by the consumer.
4. Lifting of the CPSC's mandatory standard will stimulate
promulgation of new standards in even more states and other
jurisdictions, creating more numerous and, possibly more divergent,
restrictions 'across the nation.
In conclusion, allow me to stress that my first preference is for
voluntary standards. However, this is an occasion which is an
exception to that rule. The mandatory standard for unvented gas-fired
space heaters has worked. To revoke it may very well mean the undoing of
substantial progress we have made in this critical area of consumer
safety.
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Statement Of Vice Chairman Saundra Brown Armstrong
On
Unvented Gas-Fired Space Heaters: Final Revocation
August 14, 1984
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In considering the administrative record underlying the recommendation
to revoke the mandatory standard for unvented gas-fired space heaters
(16 CFR 5 1212), I have determined that there is insufficient
substantive evidence to support my determination that the rule "is not
reasonably necessary to eliminate or reduce an unreasonable risk of
injury associated with the product" as required by section 9(h) of the
Consumer Product Safety Act (CPSA) (15 U.S.C. § 2058). While the
staff has recently provided more information to form a basis for the
Commission's deliberations, too many arguments have been advanced
which are nevertheless based largely upon speculation. I believe that
it is essential that a precedent-setting decision such as revocation
of the mandatory standard for unvented gas-fired space heaters not be
based solely upon "gut reactions," "best guesses," and "good faith"
assurances.
I am not confident that the implications and consequences of withdrawing
the mandatory standard vis-a-vis the consumer, retailers, and
manufacturers have been fully explored. In this instance, in which
substantial time and Commission resources have been invested in the
development and implementation of a safety rule to provide a maximum
level of protection to consumers against the risk of carbon monoxide
poisoning, I am not inclined to precipitously abandon the federal
regulation, which appears to be working, for a "grab-bag" of uncertainties.
Consequently, for a variety of reasons, I am voting against revocation
of the mandatory standard for unvented gas-fired space heaters.
According to the Commission staff, the major benefit of revocation
would be elimination of the need for the staff to process, and the
Commission to consider, the petitions from state and local
jurisdictions for exemption from the preemptive effects of the
mandatory federal regulation. This "benefit" arises from the apparent
state of confusion within the Commission concerning the reach of preemption
in this situation. It appears, therefore, that implementation of Office of
General Counsel advisory opinions that state that local-state requirements
restricting use and/or location of heaters are not encompassed within
section 26 of the CPSA (15 U.S.C. § 2075) and, therefore, are not preempted
by the mandatory regulation would alleviate much of the confusion and
perceived administrative burden. Nevertheless, relief from a possible
administrative burden, in my estimation, does not constitute adequate
justification for reversal of a decision which the Commission, just.
two and a half years ago, felt was imperative to protect the American
public from unreasonable risk of injury.
A detailed statement on my vote in this matter will be filed with the
Office of the Secretary.
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