13208 Federal Register / Vol. 79, No. 46 / Monday, March 10, 2014 / Rules and Regulations 

(2) For airplanes identified in Group 2 of 

Boeing Special Attention Service Bulletin 

777–32–0083, Revision 2, dated May 2, 2013: 

As of the effective date of this AD, no person 

may install a retract actuator fuse pin having 

part number 112W1769–1 on any airplane. 

(j) Credit for Previous Actions 

(1) This paragraph provides credit for the 

actions specified in paragraph (g) of this AD, 

if those actions were performed before the 

effective date of AD 2012–12–08, 

Amendment 39–17088 (77 FR 37781, June 

25, 2012; corrected July 20, 2012 (77 FR 

42625)), using Boeing Special Attention 

Service Bulletin 777–32–0083, dated 

February 5, 2009, which is not incorporated 

by reference in this AD. 

(2) This paragraph provides credit for the 

actions specified in paragraph (g) of this AD, 

if those actions were performed before the 

effective date of this AD using Boeing Special 

Attention Service Bulletin 777–32–0083, 

Revision 1, dated February 17, 2011, which 

is not incorporated by reference in this AD. 

(k) Alternative Methods of Compliance 

(AMOCs) 

(1) The Manager, Seattle Aircraft 

Certification Office (ACO), FAA, has the 

authority to approve AMOCs for this AD, if 

requested using the procedures found in 14 

CFR 39.19. In accordance with 14 CFR 39.19, 

send your request to your principal inspector 

or local Flight Standards District Office, as 

appropriate. If sending information directly 

to the manager of the ACO, send it to the 

attention of the person identified in 

paragraph (l)(1) of this AD. Information may 

be emailed to: 9-ANM-Seattle-ACO-AMOCRequests@faa.gov. 

(2) Before using any approved AMOC, 

notify your appropriate principal inspector, 

or lacking a principal inspector, the manager 

of the local flight standards district office/

certificate holding district office. 

(3) An AMOC that provides an acceptable 

level of safety may be used for any repair 

required by this AD if it is approved by the 

Boeing Commercial Airplanes Organization 

Designation Authorization (ODA) that has 

been authorized by the Manager, Seattle 

ACO, to make those findings. For a repair 

method to be approved, the repair must meet 

the certification basis of the airplane, and the 

approval must specifically refer to this AD. 

(l) Related Information 

(1) For more information about this AD, 

contact Melanie Violette, Aerospace 

Engineer, Airframe Branch, ANM–120S, 

FAA, Seattle Aircraft Certification Office, 

1601 Lind Avenue SW., Renton, WA 98057– 

3356; phone: 425–917–6422; fax: 425–917– 

6590; email: melanie.violette@faa.gov. 

(2) Service information identified in this 

AD that is not incorporated by reference in 

this AD may be obtained at the addresses 

specified in paragraphs (m)(3) and (m)(4) of 

this AD. 

(m) Material Incorporated by Reference 

(1) The Director of the Federal Register 

approved the incorporation by reference 

(IBR) of the service information listed in this 

paragraph under 5 U.S.C. 552(a) and 1 CFR 

part 51. 

(2) You must use this service information 

as applicable to do the actions required by 

this AD, unless the AD specifies otherwise. 

(i) Boeing Special Attention Service 

Bulletin 777–32–0083, Revision 2, dated May 

2, 2013. 

(ii) Reserved. 

(3) For Boeing service information 

identified in this AD, contact Boeing 

Commercial Airplanes, Attention: Data & 

Services Management, P.O. Box 3707, MC 

2H–65, Seattle, WA 98124–2207; telephone 

206–544–5000, extension 1; fax 206–766– 

5680; Internet https://

www.myboeingfleet.com. 

(4) You may view this service information 

at FAA, Transport Airplane Directorate, 1601 

Lind Avenue SW., Renton, Washington. For 

information on the availability of this 

material at the FAA, call 425–227–1221. 

(5) You may view this service information 

that is incorporated by reference at the 

National Archives and Records 

Administration (NARA). For information on 

the availability of this material at NARA, call 

202–741–6030, or go to: http://

www.archives.gov/federal-register/cfr/ibrlocations.html. 

Issued in Renton, Washington, on February 

18, 2014. 

Ross Landes, 

Acting Manager, Transport Airplane 

Directorate, Aircraft Certification Service. 

[FR Doc. 2014–04588 Filed 3–7–14; 8:45 am] 

BILLING CODE 4910–13–P 

CONSUMER PRODUCT SAFETY 

COMMISSION 

16 CFR Parts 1112 and 1227 

[Docket No. CPSC–2013–0019] 

Safety Standard for Carriages and 

Strollers 

AGENCY: Consumer Product Safety 

Commission. 

ACTION: Final rule. 

SUMMARY: The Danny Keysar Child 

Product Safety Notification Act, section 

104 of the Consumer Product Safety 

Improvement Act of 2008 (CPSIA), 

requires the United States Consumer 

Product Safety Commission 

(Commission or CPSC) to promulgate 

consumer product safety standards for 

durable infant or toddler products. 

These standards are to be ‘‘substantially 

the same as’’ applicable voluntary 

standards or more stringent than the 

voluntary standards if the Commission 

concludes that more stringent 

requirements would further reduce the 

risk of injury associated with the 

products. The Commission is issuing a 

safety standard for carriages and 

strollers in response to the direction 

under Section 104(b) of the CPSIA. 

DATES: The rule is effective on 

September 10, 2015. The incorporation 

by reference of the publication listed in 

this rule is approved by the Director of 

the Federal Register as of September 10, 

2015. 

FOR FURTHER INFORMATION CONTACT: 

Mike Lee, Compliance Officer, 

Consumer Product Safety Commission, 

4330 East West Highway, Bethesda, MD 

20814; telephone: 301–504–7737; email: 

mlee@cpsc.gov. 

SUPPLEMENTARY INFORMATION: 

A. Background and Statutory Authority 

The Consumer Product Safety 

Improvement Act of 2008 (CPSIA, Pub. 

L. 110–314) was enacted on August 14, 

2008. Section 104(b) of the CPSIA, part 

of the Danny Keysar Child Product 

Safety Notification Act, requires the 

Commission to: (1) Examine and assess 

the effectiveness of voluntary consumer 

product safety standards for durable 

infant or toddler products, in 

consultation with representatives of 

consumer groups, juvenile product 

manufacturers, and independent child 

product engineers and experts; and (2) 

promulgate consumer product safety 

standards for durable infant and toddler 

products. These standards are to be 

‘‘substantially the same as’’ applicable 

voluntary standards or more stringent 

than the voluntary standards if the 

Commission concludes that more 

stringent requirements would further 

reduce the risk of injury associated with 

the products. 

On May 20, 2013, the Commission 

issued a notice of proposed rulemaking 

(NPR) for carriages and strollers. 78 FR 

29279. The NPR proposed to 

incorporate by reference the voluntary 

standard, ASTM 833–13, ‘‘Standard 

Consumer Safety Performance 

Specification for Carriages and 

Strollers,’’ with certain changes to 

provisions in the voluntary standard to 

strengthen the ASTM standard. 

In this document, the Commission is 

issuing a safety standard for carriages 

and strollers. As required by Section 

104(b)(1)(A), the Commission consulted 

with manufacturers, retailers, trade 

organizations, laboratories, consumer 

advocacy groups, consultants, and 

members of the public in the 

development of this proposed standard, 

largely through the ASTM process. The 

rule incorporates by reference the most 

recent voluntary standard developed by 

ASTM International (formerly the 

American Society for Testing and 

Materials), ASTM F833–13b, ‘‘Standard 

Consumer Safety Performance 

Specification for Carriages and 

Strollers’’ (ASTM F833–13b), with a 


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modification to address head 

entrapment hazards associated with 

multi-positional/adjustable grab bars. 

B. Product Description 

The term ‘‘durable infant or toddler 

product’’ is defined in section 104(f)(1) 

of the CPSIA as a durable product 

intended for use, or that may be 

reasonably expected to be used, by 

children under the age of 5 years. 

‘‘Strollers’’ are specifically identified in 

section 104(f)(2)(I) of the CPSIA as a 

durable infant or toddler product. 

ASTM F833–13b defines a ‘‘stroller’’ as 

a wheeled vehicle to transport children 

usually from infancy to 36 months of 

age. Children are transported generally 

in a sitting-up or semi-reclined position. 

The motive power is supplied by a 

person while pushing on a handle 

attached to the stroller. Carriages, on the 

other hand, are wheeled vehicles to 

transport an infant, usually in a lying 

down position. Thus, the principal 

difference between strollers and 

carriages is the position of the occupant. 

Both carriages and strollers may be 

capable of being folded for storage. 

Umbrella strollers are lightweight, 

compact when folded, and may lack 

certain accessories, such as baskets 

underneath the seat, or cup holders for 

the caregiver. Strollers that fold in two 

dimensions, the height and length, are 

called ‘‘2D’’ strollers. Strollers that 

collapse in all three dimensions— 

height, length, and width—resulting in 

a smaller folded package than 2D 

strollers, are called ‘‘3D’’ strollers. Other 

types of strollers include travel systems 

that accommodate an infant car seat on 

a stroller. Strollers intended to be used 

at a jogging rate are called ‘‘jogging 

strollers.’’ Some products can be used as 

strollers and carriages (convertible 

carriages/strollers). Convertible 

carriages or strollers are intended to be 

converted by the owner to be used as a 

carriage or a stroller. Some strollers 

incorporate automatic or assisted 

folding and unfolding mechanisms. All 

of these carriages and strollers fall 

within the scope of ASTM F833–13b. 

C. Market Description 

The majority of carriages/strollers are 

produced and/or marketed by juvenile 

product manufacturers and distributors. 

Currently, there are 85 known suppliers 

of carriages/strollers to the U.S. market. 

Thirty-four are domestic manufacturers, 

36 are domestic importers, and four are 

domestic firms with unknown supply 

sources. In addition, 10 foreign firms 

supply strollers to the U.S. market: 

Seven foreign manufacturers, one firm 

that imports products from foreign 

companies and distributes them from 

outside of the United States, one foreign 

retailer that ships directly to the United 

States, and one firm with an unknown 

supply source. There is an additional 

manufacturer whose size and location 

we could not determine. 

According to a 2005 survey conducted 

by the American Baby Group (2006 

Baby Products Tracking Study), nearly 

all new mothers (99 percent) own at 

least one stroller. Applying this 

information to Centers for Disease 

Control and Prevention (CDC) birth data 

indicates that nearly 4 million strollers 

are owned by new mothers. 

Approximately 26 percent of those 

strollers were handed down or 

purchased secondhand, according to the 

2006 Baby Products Tracking Study. 

Thus, about 74 percent of strollers were 

acquired new, and approximately 3 

million strollers are sold to households 

annually (.99 × .74 × 4 million births per 

year). Strollers can cost between $20 to 

$700, depending upon the type and 

brand of stroller. On average, umbrella 

strollers tend to be the least expensive 

(around $25–$50 for the least costly 

versions); and most other strollers cost 

around $150–$300, with many carriages, 

travel systems, and jogging stroller costs 

running in the $500–$700 range. 

D. Incident Data 

The preamble to the NPR summarized 

the incident data reported to the 

Commission from January 1, 2008 

through December 31, 2012, involving 

strollers. 78 FR 29281. In the NPR 

CPSC’s Directorate for Epidemiology 

staff identified four stroller-related 

fatalities. In addition, 1,203 strollerrelated nonfatal incidents, 359 of which 

resulted in injuries, were reported 

during that time period. 

The hazard patterns identified in the 

NPR included issues with wheels, 

parking brakes, lock mechanisms, 

restraints, hinges, structural integrity, 

stability/tip-over, clearance, car seat 

attachment, canopies, handlebars, seats, 

sharp points or edges, trays, and 

unspecified or miscellaneous problems. 

Since the NPR, 90 new incidents related 

to carriages and strollers were reported 

to the Commission between January 1, 

2013 and June 30, 2013; these incidents 

reportedly occurred between January 1, 

2008 and June 30, 2013. There were no 

new fatal incidents reported. Out of the 

90 new incidents, 32 stroller-related, 

nonfatal injuries were reported. Thus, 

the total number of incidents reported 

from January 1, 2008 through June 30, 

2013, increased to 1,297 incidents, 

including 4 fatalities, and 391 injuries. 

The hazard patterns identified among 

the 90 new incidents were similar to the 

ones identified in the NPR. Wheel 

problems accounted for 25 of the 90 

new incidents, which resulted in six 

injuries. Lock mechanical failures 

resulted in 11 incidents, causing five 

injuries. Ten incidents, resulting in 

three injuries, arose from stability 

issues. Restraints were associated with 

two injuries and eight noninjury 

incidents. 

Of the 90 new incidents, four 

incidents required hospitalization. Two 

incidents resulted in finger 

amputations, one that occurred when a 

child’s finger got caught in the folding 

hinge; the second finger amputation 

occurred when a stroller collapsed. The 

third hospitalization involved a child 

unbuckling the restraints, attempting to 

leave the stroller, and getting caught on 

the extended rivet used to latch the 

folded stroller; this incident caused a 

laceration to the crotch area. The fourth 

hospitalization resulted from a stroller 

rolling off a train platform and falling 

onto the tracks with the child in the 

stroller, causing a cut on the child’s 

forehead. 

The NPR also noted 78 reported 

stroller incidents that involved children 

older than 4 years of age and adults. Out 

of the 78 incidents, 72 involved victims 

between 17 and 64 years of age. Almost 

all of the incidents (74 out of 78) 

resulted in injuries, mostly to the 

fingers. Six new incidents were reported 

from January 1, 2013 to June 30, 2013, 

for a total of 84 stroller incidents. Based 

on the narratives provided, all six new 

incidents involved children older than 4 

years of age or adults, and the six 

incidents each resulted in finger 

injuries. 

E. Overview of ASTM F833 

ASTM first published a consumer 

product safety standard for carriages 

and strollers in 1983. ASTM F833, 

‘‘Standard Consumer Safety 

Performance Specification for Carriages 

and Strollers,’’ established safety 

performance requirements, test 

methods, and labeling requirements to 

minimize the hazards to children 

presented by carriages and strollers. 

ASTM F833 has been revised more than 

20 times. The current standard, ASTM 

F833–13b, was approved on November 

1, 2013. 

1. Proposed Rule 

In the NPR, the Commission proposed 

to incorporate ASTM F833–13, which 

addressed many of the hazards patterns 

identified for strollers. Among other 

requirements, ASTM F833–13 provided: 

• An improved test method for the 

parking brake requirement; 

• a new requirement and test method 

to address head entrapment hazards 


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associated with car seats on a stroller 

(combination unit); 

• a new requirement, test method, 

and warnings to address wheel and 

swivel assemblies’ detachments; 

• an improved test method for 

latching and locking mechanisms; 

• a new requirement and test method 

to address the scenario of the child 

releasing the buckle of the restraint 

system and a clarification on the buckle 

closing system; 

• a new requirement and test method 

to address pinching, shearing, and 

scissoring at the saddle hinge link on 3D 

fold strollers; 

• a new requirement and test method 

to address pinching, shearing, and 

scissoring at the canopy hinges; 

• an improved requirement and test 

method to address stability issues by 

taking into account multiple seats facing 

different directions, such as rotating 

seats; 

• a new requirement and test method 

to address a strangulation hazard 

associated with cords and straps within 

the occupant space; and 

• warning label clarifications. 

In the NPR, the Commission also 

proposed a performance requirement 

and test method to address scissoring, 

shearing, and pinching hazards 

associated with 2D fold strollers, which 

were already required for 3D fold 

strollers. The Commission noted that 

hinge issues caused the highest injury 

rate of any stroller hazard category (75 

incidents, resulting in 72 injuries). Most 

of the hinge-related injuries resulted 

from scissoring, pinching, or shearing at 

the hinge link of 2D and 3D fold 

strollers. Most of the incidents occurred 

when a caregiver was unfolding the 

stroller for use and the child was 

climbing into the stroller. Reported 

injuries involved pinched, lacerated, or 

amputated fingers or arms, including 

one hospitalization for reattachment of 

a finger. For testing of the 2D fold 

stroller and convertible carriage/

strollers, the Commission proposed a 

test within an access zone based on the 

incident data and the anthropometric 

dimensions of a child occupant. The 

Commission also proposed a test 

method to test the frame folding action 

of a stroller while the stroller is moved 

from the completely folded to the 

completely erect position and from the 

partially folded position to the fully 

erect and locked position (travel 

distance calculation). 

2. Current ASTM Standard for Carriages 

and Strollers (ASTM F833–13b) 

ASTM adopted the performance 

requirement and test method proposed 

by the Commission in a subsequent 

version of the ASTM standard, ASTM 

F833–13a, to address scissoring, 

shearing, and pinching hazards 

associated with 2D fold strollers. ASTM 

approved ASTM F833–13a on 

September 15, 2013. On November 1, 

2013, ASTM approved the current 

version of the standard, ASTM F833– 

13b, which adopts the performance 

requirement and test method for 2D fold 

strollers, with a modification to the 

travel distance calculation to test for 

scissoring, shearing, and pinching. 

In this rule, the Commission 

incorporates by reference ASTM F833– 

13b because the Commission’s proposed 

modifications in the NPR have been 

adopted in ASTM F833–13b, including 

the requirements and test methods for 

2D fold strollers to address hazards 

associated with scissoring, shearing, and 

pinching. Specifically, ASTM F833–13b 

provides a definition of a ‘‘2D fold 

stroller’’ as a stroller that folds the 

handlebars and leg tubes only in the 

front-to-back (or back-to-front) direction. 

To address the 2D fold stroller hazards, 

ASTM F833–13b requires the frame 

folding action of a 2D fold stroller and 

convertible carriage/stroller to be 

designed and constructed to prevent 

injury from scissoring, shearing, or 

pinching. Scissoring, shearing, or 

pinching that may cause injury exists 

when the edges of the rigid parts admit 

a 0.210-in (5.33-mm) diameter probe but 

do not admit a 0.375-in (9.53-mm) 

diameter probe when tested. However, 

units with a removable seat that 

prevents the complete folding of unit 

when still attached are exempt from this 

requirement. 

ASTM F833–13b also provides a test 

method for 2D frame strollers to address 

folding scissoring, shearing, and 

pinching. In the NPR, the Commission 

proposed a test method for scissoring, 

shearing, and pinching hazards that may 

occur while moving the stroller from a 

completely folded and partially folded 

position to the fully erect and locked 

position. The test proposed in the NPR 

calculated the travel distance based on 

the distance between front and rear 

wheels in an open position and in a 

closed position. ASTM F833–13b 

modified the travel distance calculation 

for the test. The modified test shows the 

travel distance based on the distance 

between front and rear wheels only in 

an open position. ASTM’s rationale for 

the test explains that products are 

evaluated for the last 1/3 of travel for a 

predefined access zone because the last 

1/3 of travel is considered the most 

hazardous condition, where a seated 

child’s hand may be vulnerable to 

scissoring, shearing, and pinching 

within the access zone while the 

caregiver is preoccupied with the final 

stages of erecting the stroller. 

CPSC staff compared both methods of 

the calculation, using various strollers, 

including strollers involved in 

incidents. Although in certain strollers 

the total amount of travel distance to be 

tested would be less than the travel 

distance proposed in the NPR, CPSC 

staff’s review showed that the revised 

test method would be less burdensome 

and would provide an equal degree of 

safety as the travel distance calculation 

proposed in the NPR. According to 

CPSC staff, under the revised travel 

distance calculation, the most critical 

part of the frame folding associated with 

the incidents will be tested for 

scissoring, shearing, or pinching. 

Because the revised test is simpler to 

use, and because the reduction in travel 

distance does not make the test less 

effective, the Commission incorporates 

by reference ASTM F833–13b with the 

revised travel distance calculation. 

F. Response to Comments 

The Commission received six 

comments from manufacturers, 

consumer advocacy groups, and trade 

associations in response to the NPR. A 

summary of each comment topic and 

response is provided. In general, all of 

the commenters support the mandatory 

standard for carriages and strollers. 

1. 2D Fold Stroller Test 

Comment: One manufacturer 

recommended simplifying the test 

method that was included in the NPR, 

as outlined in section 7.18.2 for units 

where the front and rear wheels move 

toward each other during folding, to 

address scissoring, shearing, and 

pinching hazards for 2D frame fold 

strollers. The commenter proposed 

determining the starting point for the 

stroller test by beginning at 2/3 the 

distance between the front and rear 

wheel axles in an open position of the 

stroller. The commenter stated that the 

ASTM subcommittee was working to 

include this starting point definition in 

the next revision and requested that the 

Commission review and adopt the 

change to the test method once the 

requirement is approved by the ASTM 

subcommittee. 

Response: ASTM has revised the 

travel distance calculation in ASTM 

F833–13b. CPSC staff compared the 

travel distance calculation test proposed 

in the NPR and the modified test in 

ASTM F833–13b, using various 

strollers, including certain incident 

strollers. CPSC staff’s review showed 

that the revised test is simpler, but the 

revised test will still test the most 

critical part of the frame folding 


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associated with the incidents. 

Accordingly, the Commission will adopt 

ASTM F833–13b with the revised travel 

distance calculation because the hazards 

identified by CPSC staff (scissoring, 

shearing, and pinching hazards in 2D 

fold strollers) will be addressed 

adequately by the test in ASTM F833– 

13b. 

2. 2D Fold Stroller Access Zone 

Comment: A commenter suggested an 

exemption to the 2D fold stroller test 

procedure, if there is a cover over the 

hinge that is within the access zone; for 

example, a stroller hinge that has a 

cover over the top and sides of the 

hinge, but the bottom is left open to 

allow the frame members to rotate 

during folding. The only way to access 

the hinge would be to come up from 

underneath or behind through the rear 

of the stroller, which would not be 

possible if a child is sitting in the 

stroller or standing on the side of the 

stroller. According to the commenter, 

the ASTM subcommittee is currently 

reviewing an additional requirement to 

assess at what point a covering on a 

hinge is sufficient protection from the 

2D frame fold pinch hazard. The 

commenter requested that the 

Commission review and adopt the 

additional requirement once the 

additional requirement is approved by 

the ASTM subcommittee. 

Response: As discussed in the 

preamble, ASTM 833–13b now 

addresses hazards associated with frame 

fold hinges for both 2D fold strollers and 

3D fold strollers, regardless of the 

direction of entry, to reduce the risk of 

finger injury to a child who is sitting or 

is about to sit in a stroller. CPSC staff 

believes that there are many factors, 

including the size, shape, and material 

properties of the cover that may hinder 

the cover’s effectiveness. Without more 

information about protective covers and 

how they would be used, the 

Commission will not provide an 

exemption for such covers without 

further review and testing. However, if 

ASTM subsequently publishes a 

standard to include a protective cover 

exemption, ASTM can notify the 

Commission of the revision, and the 

Commission would consider the 

revision at that time. 

3. Combined Braking and Stability Test 

Comment: A commenter suggested 

that the Commission adopt the 

combined braking and stability test that 

Consumer Reports uses in its testing. 

The commenter stated that the test 

evaluates both brake efficacy and 

stability in various orientations on an 

incline of 20°—as opposed to 12°. In 

addition, the commenter states that the 

brake standard should assess how easy 

it is to engage the brake, and reliably tell 

if the brake is engaged. 

Response: The parking brake 

requirements were improved 

significantly in the ASTM F833–13 

version of the standard to approximate 

the force that is applied to the parking 

brake, if the 12° inclined plane was 

increased to 20°. ASTM F833–13 also 

included an improved requirement and 

test method for multiple seats facing 

different directions, such as rotating 

seats, to address stability issues. These 

requirements are included in ASTM 

F833–13b. Therefore, the Commission 

finds that the requirements in ASTM 

F833–13b are adequate to address the 

hazards associated with parking brakes 

and stability issues and do not require 

additional requirements at this time. 

4. Irregular Surface Test 

Comment: Two commenters suggested 

that the Commission adopt the Irregular 

Surface Test in EN 1888:2012. The 

commenters stated that the irregular 

surface test is a durability test that 

evaluates the strollers for the expected 

lifetime of the product. 

Response: ASTM F833–13 included 

improved parking brake, stability, wheel 

detachment, and locking mechanism 

requirements that address the hazards 

associated with the structural issues 

identified in the incident data. These 

requirements are included in ASTM 

F833–13b. CPSC staff’s review of fatigue 

tests, such as the irregular surface test, 

indicates that such tests are timeconsuming (and costly) and that tests 

with lower repetitions and higher 

weights/forces yield substantially 

similar results. Accordingly, the 

Commission will not require the 

irregular surface test at this time. 

5. Passive Containment/Clearance 

Comment: One commenter 

recommended that the standard’s 

passive containment/foot opening test 

method be augmented with a 

requirement that any adjustable part, 

such as an adjustable grab bar or a car 

seat adapter that remains in the stroller, 

be tested in all possible use positions. 

Response: The Commission agrees 

that the test for passive containment/

foot opening should be improved. An 

adjustable (or multi-positional) grab bar 

can adjust to suit the height of the child 

to increase comfort while holding the 

bar. However, adjustable grab bars may 

be left in an unsafe position, resulting 

in a potentially fatal head entrapment 

between the grab bar and the seat 

because the consumer may have 

difficulty discerning visually the 

difference between certain positions of 

the grab bar, such as the car seat 

position and the occupant-use position. 

CPSC staff is aware of earlier model year 

strollers that had adjustable grab bars, as 

described by the commenter. Of the four 

stroller-related fatalities from January 1, 

2008 through December 31, 2012, one 

incident involved a 5-month-old infant 

whose head became entrapped between 

the seat and tray. Therefore, the 

Commission believes that the opening 

between the seat and the tray or the seat 

and grab bar could lead to a potentially 

fatal head entrapment hazard. 

Currently, the test method for passive 

containment/foot opening in ASTM 

F833–13b provides under 7.12 Passive 

Containment/Foot Opening Test Method 

the following steps: Secure the front 

wheels of the unit in their normal 

standing position so that the unit cannot 

move forward. Attach the tray(s) or grab 

bar(s) in the position that creates the 

bounded opening(s). Per the 

manufacturer’s instructions, position 

any adjustable features (that is, calf 

supports, foot rests, etc.) that may affect 

the bounded opening(s) to create the 

minimum opening(s) size. 

If the head probe fails to pass 

completely through the bounded 

opening, the following steps are 

required: If necessary, reattach/

reposition tray(s) grab bar(s) to the 

manufacturer’s recommended use 

position, then perform the torso probe 

test per 7.12.4. Per the manufacturer’s 

instructions, position any adjustable 

features (that is, calf supports, foot rests, 

etc.) that may affect the bounded 

opening(s), to create the maximum 

opening(s) size. 

To prevent head entrapment hazards, 

the current test under ASTM F833–13b 

requires the trays or grab bar to be in the 

manufacturer-recommended use 

position. This requirement specifies a 

minimum opening created by the grab 

bar or tray and foot rest. However, this 

test may not always capture a hazardous 

head entrapment opening between an 

adjustable grab bar and seat that could 

occur if the grab bar were improperly 

positioned. For example, a hazardous 

opening that is larger than the minimum 

opening may be created by the grab bar 

and foot rest configuration. 

Accordingly, the Commission revises 

the test method for passive 

containment/foot opening as follows: 

Secure the front wheels of the unit in 

their normal standing position so that 

the unit cannot move forward. Attach 

the tray(s) or grab bar(s) in the position 

that creates the bounded opening(s). 

Position any adjustable features (that is, 

grab bar, calf supports, foot rests, etc.) 

that may affect the bounded opening(s) 


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to create an opening(s) size that is most 

likely to cause failure. 

If the head probe fails to pass 

completely through the bounded 

opening, the following steps are 

required: If necessary, reattach/

reposition tray(s) grab bar(s), then 

perform the torso probe test per 7.12.4. 

Position any adjustable features (that is, 

grab bar, calf supports, foot rests, etc.) 

that may affect the bounded opening(s), 

to create the opening(s) size that is most 

likely to cause failure. 

The revised wording: ‘‘most likely to 

cause failure’’ requires the tester to 

place the adjustable feature, such as a 

grab bar, if possible, in a position that 

creates a hazardous opening, thereby 

causing the stroller to fail, irrespective 

of the manufacturer’s instructions or the 

manufacturer’s use position. The test is 

based on an evaluation of the bounded 

opening(s) that is/are most likely to 

create an entrapment hazard and should 

address the potential for entrapment 

hazards for multi-positional or 

adjustable grab bars in strollers. 

The commenter also recommended 

that a car seat adapter that can remain 

in the stroller be tested for head 

entrapment. Currently, the Commission 

is not aware of a car seat adapter that 

is intended to remain installed in the 

stroller when the car seat is not used; 

and the Commission does not have any 

additional information or data to 

recommend additional requirements for 

car seat adapters at this time. However, 

this issue may be raised in an ASTM 

subcommittee meeting for further 

review and discussion. 

6. Effective Date 

Comment: Several comments 

addressed the effective date of the 

proposed rule. One commenter 

supported the proposed 18-month 

effective date. A second commenter 

asked the Commission to take a careful 

look at how much time is needed to 

bring carriages and strollers into 

compliance and to make the new rule 

effective on the earliest practicable date. 

A third commenter suggested a 12- 

month effective date. The commenter 

stated that, given the extended length of 

time that it took for both the voluntary 

standard and the proposed rule to reach 

this point, consumers should not have 

to wait until late 2015 to see products 

that meet the standard. 

Response: In the NPR, the 

Commission noted that there were 

significant revisions to the ASTM 

standard in ASTM F833–13 requiring 

many modifications to carriages and 

strollers. Due to the complexity of 

stroller designs, and to allow time for 

manufacturers to come into compliance, 

the Commission proposed an 18-month 

effective date. The new performance 

requirements and test methods adopted 

in ASTM 833–13 and ASTM 833–13b 

are extensive and require manufacturers 

to make fundamental changes to 

carriages and strollers (i.e., latching 

mechanism, parking brakes, static load, 

restraining system, passive 

containment/foot openings, wheel and 

swivel assemblies, hinges, and stability/ 

tip over.) Although these requirements 

were approved in ASTM 833–13 in 

April, 2013, after the NPR was 

published, ASTM revised the standard, 

ASTM 833–13b, on November 1, 2013, 

to address the scissoring, shearing, and 

pinching hazards in 2D fold strollers. 

Now, in the final rule, the Commission 

requires an additional modification to 

address head entrapment issues. All of 

these requirements warrant additional 

time to allow manufacturers to come 

into full compliance with the mandatory 

standard. The Commission believes that 

18 months is a reasonable amount of 

time for manufacturers who will need to 

redesign products, test new prototype 

products, and then retool their 

production processes to meet the 

considerable modifications that were 

made in ASTM F833–13 and ASTM 

F833–13b, plus the additional 

modification to the passive 

containment/foot opening test method 

in the final rule. Moreover, 18 months 

will reduce the impact on the firms that 

have product lines that largely or 

exclusively focus on strollers and 

stroller accessories. A longer effective 

date reduces the impact on firms in two 

ways. First, firms are less likely to 

experience a lapse in production, which 

could result if they are unable to comply 

within the required timeframe. Second, 

firms could spread costs over a longer 

time period. For these reasons, the 

standard for carriages and strollers will 

become effective 18 months after 

publication of the final rule. 

7. Effective Date Marking 

Comment: Two commenters stated 

that products that are manufactured 

after the effective date of the rule should 

be marked clearly so that consumers can 

easily identify products that meet the 

mandatory standard. 

Response: A code mark or other 

means that identifies the date (month 

and year at a minimum) of manufacture 

is already required to be on the product 

under ASTM F833–13b. In addition, a 

final rule implementing sections 

14(a)(2) and 14(i)(2) of the Consumer 

Product Safety Act (CPSA), as amended 

by the CPSIA, Testing and Labeling 

Pertaining to Product Certification, 16 

CFR part 1107 (the 1107 rule), became 

effective on February 13, 2013. Under 

the 1107 rule, a manufacturer or 

importer may voluntarily label a 

certified compliant product: ‘‘Meets 

CPSC Safety Requirements.’’ At this 

time, the Commission will not require 

additional markings because ASTM 

F833–13b already requires the date of 

manufacture on each product and retail 

package, and producers may label 

compliant products as such under the 

1107 rule. 

8. Restraining System/Harness 

Comment: One commenter suggested 

that the Commission require a five-point 

harness for all strollers and carriages for 

improved protection to ensure that the 

child does not move into an unsafe 

position on his own or due to the 

stroller being jarred. This commenter 

also suggested that the Commission look 

for feasible means of requiring an alert 

mechanism to indicate whether the 

harness restraint system is secured 

properly. 

Response: Although a five-point 

harness system may provide extra 

protection if a stroller tips over, CPSC 

staff’s review of incident data did not 

demonstrate that such a system would 

result in a significant improvement in 

occupant safety beyond a three-point 

harness. Moreover, the recent changes to 

prevent stroller tip over that have been 

added to ASTM F833–13 and adopted 

in ASTM F833–13b, such as the new 

wheel-detachment requirements, should 

mitigate the likelihood of tip-over 

incidents. Accordingly, at this time, the 

Commission will not require a fivepoint harness in the standard. In 

addition, the Commission has 

insufficient information regarding 

whether an alert mechanism could be 

implemented without significantly 

raising the cost of a stroller, or whether 

such a system would be effective in 

reducing incidents involving restraints. 

However, this issue may be raised for 

further review and discussion in an 

ASTM subcommittee meeting. 

9. Warnings 

Comment: To emphasize the risk of 

entrapment or suffocation to children 

falling asleep in strollers and other 

infant products not intended for 

overnight sleep (but where children 

often fall asleep), one commenter 

recommended changing the wording in 

section 8.2.2 of the standard, which 

currently states: ‘‘Do not leave child 

unattended’’ to state instead: ‘‘Children 

have become entrapped or suffocated 

while sleeping in strollers. Never leave 

a sleeping child unattended. Move to a 

crib or safe sleep surface.’’ 


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Response: The current wording 

advises the caregiver to attend to the 

child whether or not he/she is sleeping, 

thus providing a more generic warning. 

In most of the incidents where children 

were reportedly sleeping, the caregiver 

was also present. CPSC staff’s review of 

the incident data shows that in one of 

the fatal incidents, a child was left 

sleeping in the stroller and was later 

found entrapped between the seat and 

tray. In another fatal incident, a child 

was left sleeping in the infant carrier 

that was attached to the stroller and 

found entrapped between the stroller 

handlebar and foot end of the car seat. 

The Commission reiterates that children 

should not be left unattended whether 

they are sleeping or not. However, the 

Commission believes that products in 

which children often fall asleep, such as 

strollers and hand-held carriers, could 

benefit from a harmonized and welldesigned warning label on the product 

to educate consumers to take proper 

action. Accordingly, the Commission 

would support CPSC staff’s 

participation in a cross-product ad hoc 

working group; and should the need 

arise, the Commission will consider 

future action, once such a warning label 

is developed. 

Comment: Another commenter 

recommended changing the current 

wording in section 8.2.2 of ASTM F833– 

13 from: ‘‘The product shall have the 

following warning statements . . .’’ to: 

‘‘The product shall have the following 

warning statements that address . . .’’ 

to provide additional flexibility for 

manufacturers to alter warnings. 

Response: The warning statements in 

sections 8.2.2.2, 8.2.2.3, and 8.2.2.4 

already include a provision for 

manufacturers to insert their own words 

to describe their restraint system or 

product-specific instructions. The 

suggestion would only affect section 

8.2.2.1, which includes the warning 

statement: ‘‘Never leave child 

unattended.’’ The commenter stated that 

a simple change in wording to: ‘‘Never 

leave your child unattended’’ would not 

be allowed under 8.2.2. The 

Commission does not believe that a 

change to the warnings is warranted, 

given that the requested word changes 

would not necessarily increase the 

effectiveness of the warning. However, 

this issue may be raised for further 

review and discussion in a future ASTM 

subcommittee meeting. 

G. Final Rule 

The CPSC is incorporating by 

reference ASTM F833–13b because the 

Commission’s proposed modifications 

in the NPR have been adopted in ASTM 

F833–13b, including requirements and 

test methods to address scissoring, 

shearing, and pinching hazards 

associated with 2D fold strollers. 

However, the Commission is requiring 

an additional modification to the 

passive containment/foot opening test 

method in ASTM F833–13b, to address 

head entrapment hazards associated 

with multi-positional/adjustable grab 

bars. Specifically, the test method for 

passive containment/foot opening is 

revised as follows: 

(a) 7.12.1 Secure the front wheels of 

the unit in their normal standing 

position so that the unit cannot move 

forward. Attach the tray(s) or grab bar(s) 

in the position that creates the bounded 

opening(s). Position any adjustable 

features (that is, grab bar, calf supports, 

foot rests, etc.) that may affect the 

bounded opening(s) to create an 

opening(s) size that is most likely to 

cause failure; and 

(b) 7.12.3 If necessary, reattach/

reposition tray(s) grab bar(s), then 

perform the torso probe test per 7.12.4. 

Position any adjustable features (that is, 

grab bar, calf supports, foot rests, etc.) 

that may affect the bounded opening(s), 

to create the opening(s) size that is most 

likely to cause failure. 

H. Effective Date 

The Administrative Procedure Act 

(APA) generally requires that the 

effective date of the rule be at least 30 

days after publication of the final rule. 

5 U.S.C. 553(d). The safety standard for 

carriages and strollers will become 

effective 18 months after publication of 

a final rule in the Federal Register. 

I. Regulatory Flexibility Act 

1. Introduction 

The Regulatory Flexibility Act (RFA), 

5 U.S.C. 601–612, requires agencies to 

consider the impact of proposed and 

final rules on small entities, including 

small businesses. Section 604 of the 

RFA requires that the Commission 

prepare a final regulatory flexibility 

analysis when promulgating final rules, 

unless the head of the agency certifies 

that the rule will not have a significant 

impact on a substantial number of small 

entities. The final regulatory flexibility 

analysis must describe the impact of the 

proposed rule on small entities and 

identify any alternatives that may 

reduce the impact. Specifically, the final 

regulatory flexibility analysis must 

contain: 

• A succinct statement of the 

objectives of, and legal basis for, the 

rule; 

• a summary of the significant issues 

raised by public comments in response 

to the initial regulatory flexibility 

analysis, a summary of the assessment 

of the agency of such issues, and a 

statement of any changes made in the 

proposed rule as a result of such 

comments; 

• a description of, and, where 

feasible, an estimate of, the number of 

small entities to which the rule will 

apply; 

• a description of the projected 

reporting, recordkeeping, and other 

compliance requirements of the rule, 

including an estimate of the classes of 

small entities subject to the 

requirements and the type of 

professional skills necessary for the 

preparation of reports or records; and 

• a description of the steps the agency 

has taken to reduce the significant 

economic impact on small entities, 

consistent with the stated objectives of 

applicable statutes, including a 

statement of the factual, policy, and 

legal reasons for selecting the alternative 

adopted in the rule, and why each one 

of the other significant alternatives to 

the rule considered by the agency, 

which affect the impact on small 

entities, was rejected. 

2. Reason for Agency Action 

The Danny Keysar Child Product 

Safety Notification Act, section 104 of 

the CPSIA, requires the CPSC to 

promulgate mandatory standards that 

are substantially the same as, or more 

stringent than, the voluntary standard 

for a durable infant or toddler product. 

CPSC staff worked closely with ASTM 

stakeholders to develop the new 

requirements and test procedures that 

have been incorporated into ASTM 

F833–13b, which together form the basis 

for the mandatory standard. 

3. Other Federal Rules 

There are two federal rules that would 

impact the stroller mandatory standard: 

(1) Testing and Labeling Pertaining to 

Product Certification (16 CFR part 

1107); and (2) Requirements Pertaining 

to Third Party Conformity Assessment 

Bodies (16 CFR part 1112). 

The testing and labeling rule (16 CFR 

part 1107) requires that manufacturers 

of children’s products subject to product 

safety rules, certify, based on third party 

testing, that their children’s products 

comply with all applicable safety rules. 

Because strollers will be subject to a 

mandatory rule, they will also be subject 

to the third party testing requirements 

when the stroller rule becomes effective. 

In addition, the 1107 rule requires the 

third party testing of children’s products 

to be conducted by CPSC-accredited 

laboratories. Section 14(a)(2) of the 

Consumer Product Safety Act (CPSA) 

requires the Commission to publish a 


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notice of requirements (NOR) for the 

accreditation of third party conformity 

assessment bodies (i.e., testing 

laboratories) to test for conformance 

with each children’s product safety rule. 

These NORs are set forth in 16 CFR part 

1112. 

4. Impact on Small Business 

There are approximately 85 firms that 

currently supply carriages/strollers in 

the United States. Under U.S. Small 

Business Administration (SBA) 

guidelines, a manufacturer of strollers is 

considered small if the manufacturer 

has 500 or fewer employees, and 

importers and wholesalers are 

considered small if they have 100 or 

fewer employees. Based on these 

guidelines, about 55 are small firms—26 

domestic manufacturers, 26 domestic 

importers, and three firms with 

unknown supply sources. There may be 

additional unknown small stroller 

suppliers operating in the U.S. market. 

Small Manufacturers 

The expected impact of the final rule 

will differ based on whether a firm’s 

strollers are already compliant with 

ASTM F833–11, the voluntary standard 

in effect prior to ASTM F833–13. In 

general, firms whose strollers meet the 

requirements of ASTM F833–11 are 

likely to continue to comply with the 

voluntary standard as new versions are 

published. Many of these firms are 

active in the ASTM standard 

development process, and compliance 

with the voluntary standard is part of an 

established business practice. Firms 

supplying strollers that comply with 

ASTM F833–11 likely would also 

comply with F833–13b before the final 

rule becomes effective. 

ASTM F833–13b requirements could 

require product redesign for at least 

some strollers that are not compliant 

with ASTM F833–11 (eight of 26 small 

domestic manufacturers). Most of the 

redesign and retooling costs are 

associated with meeting the 

requirements of the standard. A 

redesign would be minor if most of the 

changes involve adding straps and 

fasteners or using different mesh or 

fabric. However, a redesign could be 

more significant if changes to the frame 

are required. Due to the complexity of 

carriages and strollers, a complete 

redesign of these products, including 

engineering time, prototype 

development, tooling, and other 

incidental costs, could exceed $1 

million for the most complex stroller 

models. Industry sources, including the 

Juvenile Products Manufacturers 

Association (JPMA) note that new 

tooling alone could exceed $300,000 per 

product model. However, costs and 

development time are likely to vary 

widely across firms. Companies with 

substantial experience in manufacturing 

strollers should be able to complete 

redesigns more cost effectively than 

firms with less experience. 

Additionally, firms with numerous 

stroller models may experience lower 

costs because stroller models could be 

redesigned as a group. 

The modification to the passive 

containment/foot opening test method 

may or may not have any impact on 

small manufacturers because CPSC staff 

could not identify any strollers on the 

U.S. market that have adjustable grab 

bars. Therefore, the direct impact on 

manufacturers whose products are 

expected to meet the requirements of 

ASTM F833–13b (18 of 26 small 

domestic manufacturers) is not expected 

to be significant, although it is possible 

that there are unknown stroller 

suppliers with products that might be 

affected. 

The 18-month effective date may 

mitigate the impact on small 

manufacturers because such firms are 

less likely to experience a lapse in 

production, which could result if these 

firms are unable to comply within the 

required timeframe, and costs may be 

spread over a longer period. 

In addition, there are indirect 

impacts. Once the new requirements 

become effective, all manufacturers will 

be subject to the additional costs 

associated with third party testing and 

certification requirements triggered by 

the final rule. Those additional third 

party testing costs will pertain to any 

physical and mechanical test 

requirements specified in the stroller 

final rule; lead and phthalates testing is 

already required. Third party testing 

costs could as much as $800–$1,000 per 

model sample. 

On average, each small domestic 

manufacturer supplies seven different 

models of strollers to the U.S. market 

annually. Therefore, if third party 

testing were conducted every year on a 

single sample for each model, third 

party testing costs for each manufacturer 

would be about $5,600–$7,000 annually. 

Based on a review of firm revenues, the 

impact of third party testing to ASTM 

F833–13b is unlikely to be significant if 

only one stroller sample per model is 

required. However, the economic 

impact could be significant for some 

small firms, if as few as two or three 

samples per model are required to meet 

the testing requirements. 

Small Importers 

In the absence of regulation, small 

importers of strollers currently in 

compliance with F833–11 (13 of 26 

small domestic importers) would likely 

continue to comply with the standard as 

it evolves, including the final 

mandatory standard. Any increase in 

production costs experienced by their 

suppliers may be passed on to them. 

However, these costs are not likely to be 

significant, given that CPSC staff could 

not identify any strollers on the U.S. 

market that have adjustable grab bars 

requiring modification. 

Small importers of strollers would 

need to find an alternate source if their 

existing supplier does not come into 

compliance with the requirements of 

ASTM F833–13b. Thirteen importers of 

strollers currently may not be in 

compliance with ASTM F833–11. Some 

importers may discontinue the carriage/ 

stroller product line altogether. The 

impact of such a decision could be 

mitigated by replacing the 

noncompliant stroller with a compliant 

stroller or by deciding to import an 

alternative product. However, some of 

these firms have few or no other 

products in their product line. Because 

many of these firms have low sales 

revenues and limited product lines 

apart from strollers and stroller 

accessories, it is possible that the final 

rule could have a significant impact on 

one or more importers. The 18-month 

effective date may mitigate the impact 

because such firms are less likely to 

experience a lapse in obtaining 

compliant strollers, which could result 

if they are unable to comply within the 

required timeframe; and costs may be 

spread over a longer time period. 

All importers are also subject to third 

party testing and certification 

requirements. Consequently, importers 

will experience costs similar to those for 

manufacturers, if their supplying foreign 

firm(s) does not perform third party 

testing. The resulting costs could have 

a significant impact on a few small 

importers who must perform the testing 

themselves, even if only one sample per 

model were required. 

5. Alternatives 

One alternative that could reduce the 

impact on small entities would be to 

make the voluntary standard mandatory, 

with no further modifications. However, 

given that CPSC staff could not identify 

any strollers on the U.S. market that 

currently would be impacted by the 

modification to the passive 

containment/foot opening test method, 

this reduction may be insignificant. In 

addition, incorporating the voluntary 

standard without modifications would 

not substantially benefit firms with 

noncompliant products because their 

strollers might still require redesign. 


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The 18-month effective date may 

mitigate the impact because suppliers 

will have additional time to modify 

and/or develop compliant strollers and 

spread the associated costs over a longer 

period of time. However, the 

Commission could opt to set a later 

effective date, which may reduce further 

the impact on affected firms. A third 

alternative would be to set an earlier 

effective date. However, setting an 

earlier effective date could increase the 

impact of the rule on small entities, 

particularly those with limited product 

lines and low sales revenues. 

J. Environmental Considerations 

The Commission’s regulations address 

whether we are required to prepare an 

environmental assessment or an 

environmental impact statement. These 

regulations provide a categorical 

exclusion for certain CPSC actions that 

normally have ‘‘little or no potential for 

affecting the human environment.’’ 

Among those actions are rules or safety 

standards for consumer products. 16 

CFR 1021.5(c)(1). The rule falls within 

the categorical exclusion. 

K. Paperwork Reduction Act 

This rule contains information 

collection requirements that are subject 

to public comment and review by the 

Office of Management and Budget 

(OMB) under the Paperwork Reduction 

Act of 1995 (44 U.S.C. 3501–3521). The 

preamble to the proposed rule (77 FR 

29286) discussed the information 

collection burden of the proposed rule 

and specifically requested comments on 

the accuracy of our estimates. Sections 

8 and 9 of ASTM F833–13b contain 

requirements for marking, labeling, and 

instructional literature. These 

requirements fall within the definition 

of ‘‘collection of information,’’ as 

defined in 44 U.S.C. 3502(3). 

OMB has assigned control number 

3041–0164 to this information 

collection. The Commission did not 

receive any comments regarding the 

information collection burden of this 

proposal. However, the final rule makes 

modifications regarding the information 

collection burden because the number 

of estimated manufacturers subject to 

the information collection burden is 

now estimated at 85 manufacturers 

rather than the 86 manufacturers 

initially estimated in the proposed rule 

due to firms entering and exiting the 

U.S. stroller market. Additionally, the 

average number of stroller models 

supplied by all of the firms has 

increased from six to eight models. 

Accordingly, the estimated burden of 

this collection of information is 

modified, as follows: 

TABLE 1—ESTIMATED ANNUAL REPORTING BURDEN

16 CFR Section Number of 

respondents 

Frequency of 

responses 

Total annual 

responses 

Hours per 

response 

Total burden 

hours 

1227 ..................................................................................... 85 8 680 1 680 

L. Preemption 

Section 26(a) of the CPSA, 15 U.S.C. 

2075(a), provides that where a consumer 

product safety standard is in effect and 

applies to a product, no state or political 

subdivision of a state may either 

establish or continue in effect a 

requirement dealing with the same risk 

of injury unless the state requirement is 

identical to the federal standard. Section 

26(c) of the CPSA also provides that 

states or political subdivisions of states 

may apply to the Commission for an 

exemption from this preemption under 

certain circumstances. Section 104(b) of 

the CPSIA refers to the rules to be 

issued under that section as ‘‘consumer 

product safety rules,’’ thus, implying 

that the preemptive effect of section 

26(a) of the CPSA would apply. 

Therefore, a rule issued under section 

104 of the CPSIA will invoke the 

preemptive effect of section 26(a) of the 

CPSA when it becomes effective. 

M. Certification and Notice of 

Requirements (NOR) 

Section 14(a) of the CPSA imposes the 

requirement that products subject to a 

consumer product safety rule under the 

CPSA, or to a similar rule, ban, standard 

or regulation under any other Act 

enforced by the Commission, must be 

certified as complying with all 

applicable CPSC-enforced requirements. 

15 U.S.C. 2063(a). Section 14(a)(2) of the 

CPSA requires that certification of 

children’s products subject to a 

children’s product safety rule be based 

on testing conducted by a CPSCaccepted third party conformity 

assessment body. Section 14(a)(3) of the 

CPSA requires the Commission to 

publish a NOR for the accreditation of 

third party conformity assessment 

bodies (or laboratories) to assess 

conformity with a children’s product 

safety rule to which a children’s product 

is subject. The ‘‘Safety Standard for 

Carriages and Strollers,’’ to be codified 

at 16 CFR part 1227, is a children’s 

product safety rule that requires the 

issuance of an NOR. 

The Commission published a final 

rule, Requirements Pertaining to Third 

Party Conformity Assessment Bodies, 78 

FR 15836 (March 12, 2013), which is 

codified at 16 CFR part 1112 (referred to 

here as part 1112). This rule became 

effective on June 10, 2013. Part 1112 

establishes requirements for 

accreditation of third party conformity 

assessment bodies (or laboratories) to 

test for conformance with a children’s 

product safety rule in accordance with 

Section 14(a)(2) of the CPSA. Part 1112 

also codifies a list of all of the NORs 

that the CPSC had published at the time 

part 1112 was issued. All NORs issued 

after the Commission published part 

1112, such as the standard for carriages 

and strollers, require the Commission to 

amend part 1112. Accordingly, this rule 

amends part 1112 to include the 

standard for carriages and strollers in 

the list with the other children’s 

product safety rules for which the CPSC 

has issued NORs. 

Laboratories applying for acceptance 

as a CPSC-accepted third party 

conformity assessment body to test to 

the new standard for carriages and 

strollers would be required to meet the 

third party conformity assessment body 

accreditation requirements in 16 CFR 

part 1112, Requirements Pertaining to 

Third Party Conformity Assessment 

Bodies. When a laboratory meets the 

requirements as a CPSC-accepted third 

party conformity assessment body, the 

laboratory can apply to the CPSC to 

have 16 CFR part 1227, Safety Standard 

for Carriages and Strollers, included in 

its scope of accreditation of CPSC safety 

rules listed for the laboratory on the 

CPSC Web site at: www.cpsc.gov/

labsearch. 

CPSC staff conducted an analysis of 

the potential impacts on small entities 

of the proposed rule establishing 

accreditation requirements, as required 

by the Regulatory Flexibility Act, and 

the agency prepared an Initial 

Regulatory Flexibility Analysis (IRFA). 

Requirements Pertaining to Third Party 

Conformity Assessment Bodies. 77 FR 

31086, 31123–26. Specifically, the NOR 

for the standard for carriages and 

strollers would not have a significant 

adverse impact on small laboratories. 


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1We originally adopted the Filer Manual on April 

1, 1993, with an effective date of April 26, 1993. 

Based upon the number of laboratories 

in the United States that have applied 

for CPSC acceptance of the accreditation 

to test for conformance to other juvenile 

product standards, we expect that only 

a few laboratories will seek CPSC 

acceptance of their accreditation to test 

for conformance with the standard for 

carriages and strollers. Most of these 

laboratories already will have been 

accredited to test for conformance to 

other juvenile product standards, and 

the only cost to them would be the cost 

of adding the standard for carriages and 

strollers to their scope of accreditation. 

As a consequence, the Commission 

certifies that the NOR for the standard 

for carriages and strollers will not have 

a significant impact on a substantial 

number of small entities. 

List of Subjects 

16 CFR Part 1112 

Administrative practice and 

procedure, Audit, Consumer protection, 

Reporting and recordkeeping 

requirements, Third party conformity 

assessment body. 

16 CFR Part 1227 

Consumer protection, Imports, 

Incorporation by reference, Infants and 

children, Labeling, Law enforcement, 

and Toys. 

For the reasons discussed in the 

preamble, the Commission amends Title 

16 of the Code of Federal Regulations as 

follows: 

PART 1112—REQUIREMENTS 

PERTAINING TO THIRD PARTY 

CONFORMITY ASSESSMENT BODIES 

■ 1. The authority citation for part 1112 

continues to read as follows: 

Authority: 15 U.S.C. 2063; Pub. L. 110– 

314, section 3, 122 Stat. 3016, 3017 (2008). 

■ 2. Amend § 1112.15 by adding 

paragraph (b)(36) to read as follows: 

§ 1112.15 When can a third party 

conformity assessment body apply for 

CPSC acceptance for a particular CPSC rule 

and/or test method? 

* * * * * 

(b)(36) 16 CFR part 1227, Safety 

Standard for Carriages and Strollers. 

* * * * * 

■ 3. Add part 1227 to read as follows: 

PART 1227—SAFETY STANDARD FOR 

CARRIAGES AND STROLLERS 

Sec. 

1227.1 Scope. 

1227.2 Requirements for carriages and 

strollers. 

Authority: The Consumer Product Safety 

Improvement Act of 2008, Pub. L. 110–314, 

§ 104, 122 Stat. 3016 (August 14, 2008); Pub. 

L. 112–28, 125 Stat. 273 (August 12, 2011). 

§ 1227.1 Scope. 

This part establishes a consumer 

product safety standard for carriages 

and strollers. 

§ 1227.2 Requirements for carriages and 

strollers. 

(a) Except as provided in paragraph 

(b) of this section, each carriage and 

stroller must comply with all applicable 

provisions of ASTM F833–13b, 

Standard Consumer Safety Performance 

Specification for Carriages and Strollers, 

approved on November 1, 2013. The 

Director of the Federal Register 

approves this incorporation by reference 

in accordance with 5 U.S.C. 552(a) and 

1 CFR part 51. You may obtain a copy 

from ASTM International, 100 Bar 

Harbor Drive, P.O. Box 0700, West 

Conshohocken, PA 19428; http://

www.astm.org/cpsc.htm. You may 

inspect a copy at the Office of the 

Secretary, U.S. Consumer Product 

Safety Commission, Room 820, 4330 

East West Highway, Bethesda, MD 

20814, telephone 301–504–7923, or at 

the National Archives and Records 

Administration (NARA). For 

information on the availability of this 

material at NARA, call 202–741–6030, 

or go to: http://www.archives.gov/

federal_register/code_of_federal 

regulations/ibr_locations.html. 

(b) Comply with ASTM F833–13b 

standard with the following changes: 

(1) Instead of complying with section 

7.12.1 of ASTM F833–13b, comply with 

the following: 

(i) 7.12.1 Secure the front wheels of 

the unit in their normal standing 

position so that the unit cannot move 

forward. Attach the tray(s) or grab bar(s) 

in the position that creates the bounded 

opening(s). Position any adjustable 

features (that is, grab bar, calf supports, 

foot rests, etc.) that may affect the 

bounded opening(s) to create an 

opening(s) size that is most likely to 

cause failure. 

(ii) [Reserved] 

(2) Instead of complying with section 

7.12.3 of ASTM F833–13b, comply with 

the following: 

(i) 7.12.3 If necessary, reattach/

reposition tray(s) grab bar(s), then 

perform the torso probe test per 7.12.4. 

Position any adjustable features (that is, 

grab bar, calf supports, foot rests, etc.) 

that may affect the bounded opening(s), 

to create the opening(s) size that is most 

likely to cause failure. 

(ii) [Reserved] 

Dated: March 5, 2014. 

Todd A. Stevenson, 

Secretary, Consumer Product Safety 

Commission. 

[FR Doc. 2014–05065 Filed 3–7–14; 8:45 am] 

BILLING CODE 6355–01–P 

SECURITIES AND EXCHANGE 

COMMISSION 

17 CFR Part 232 

[Release Nos. 33–9554; 34–71643; 39–2496; 

IC–30972] 

Adoption of Updated EDGAR Filer 

Manual 

AGENCY: Securities and Exchange 

Commission. 

ACTION: Final rule. 

SUMMARY: The Securities and Exchange 

Commission (the Commission) is 

adopting revisions to the Electronic Data 

Gathering, Analysis, and Retrieval 

System (EDGAR) Filer Manual and 

related rules to reflect updates to the 

EDGAR system. The revisions are being 

made primarily to introduce new 

submission form types MA, MA–A, MA/ 

A, MA–I, MA–I/A, and MA–W to 

support Registration of Municipal 

Advisors; updates to submission form 

types 8–K, 8–K/A, 10–K, 10–K/A, 10– 

KT, 10–KT/A, 10–D, 10–D/A, POS AM, 

424B1, 424B2, 424B3, 424B4, 424B5, 

424B7, and 424B8; and minor updates 

to Form 13F validations. The EDGAR 

system is scheduled to be upgraded to 

support this functionality on March 3, 

2014. 

DATES: Effective Date: March 10, 2014. 

The incorporation by reference of the 

EDGAR Filer Manual is approved by the 

Director of the Federal Register as of 

March 10, 2014. 

FOR FURTHER INFORMATION CONTACT: In 

the Office of Municipal Securities, for 

questions concerning Registration of 

Municipal Advisors contact Jessica 

Kane at (202) 551–3235; in the Division 

of Investment Management, for 

questions concerning Form 13F contact 

Heather Fernandez at (202) 551–6715; 

and in the Office of Information 

Technology, contact Vanessa Anderson 

at (202) 551–8800. 

SUPPLEMENTARY INFORMATION: We are 

adopting an updated EDGAR Filer 

Manual, Volume I and Volume II. The 

Filer Manual describes the technical 

formatting requirements for the 

preparation and submission of 

electronic filings through the EDGAR 

system.1 It also describes the 


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