[Federal Register Volume 62, Number 160 (Tuesday, August 19, 1997)] [Proposed Rules] [Pages 44099-44102] From the Federal Register Online via the Government Publishing Office [www.gpo.gov] [FR Doc No: 97-21922] ======================================================================= ----------------------------------------------------------------------- FEDERAL TRADE COMMISSION 16 CFR Part 403 Deceptive Use of ``Leakproof,'' ``Guaranteed Leakproof,'' Etc., as Descriptive of Dry Cell Batteries AGENCY: Federal Trade Commission. ACTION: Notice of proposed rulemaking. ----------------------------------------------------------------------- SUMMARY: The Federal Trade Commission (the ``FTC'' or ``Commission'') announces the commencement of a rulemaking proceeding for the Trade Regulation Rule on Deceptive Use of ``Leakproof,'' ``Guaranteed Leakproof,'' Etc., as Descriptive of Dry Cell Batteries (``the Dry Cell Battery Rule'' or ``the Rule''), 16 CFR Part 403. The proceeding will address whether or not the Dry Cell Battery Rule should be repealed. The Commission invites interested parties to submit written data, views, and arguments on how the Rule has affected consumers, businesses and others, and on whether there currently is a need for the Rule. This document includes a description of the procedures to be followed, an invitation to submit written comments, a list of questions and issues upon which the Commission particularly desires comments, and instructions for prospective witnesses and other interested persons who desire to participate in the proceeding. DATES: Written comments must be submitted on or before September 18, 1997. Notifications of interest in testifying must be submitted on or before September 18, 1997. If interested parties request the opportunity to present testimony, the Commission will publish a document in the Federal Register, stating the time and place at which the hearings will be held and describing the procedures that will be followed in conducting the hearings. In addition to submitting a request to testify, interested parties who wish to present testimony must submit, on or before September 18, 1997, a written comment or statement that describes the issues on which the party wishes to testify and the nature of the testimony to be given. ADDRESSES: Written comments and requests to testify should be submitted to Office of the Secretary, Federal Trade Commission, Room H-159, Sixth and Pennsylvania Ave., NW., Washington, DC 20580, (202) 326-2506. Comments and requests to testify should be identified as ``16 CFR Part 403 Comment--Dry Cell Battery Rule'' and ``16 CFR Part 403 Request to Testify--Dry Cell Battery Rule,'' respectively. If possible, submit comments both in writing and on a personal computer diskette in Word Perfect or other word processing format (to assist in processing, please identify the format and version used). Written comments should be submitted, when feasible and not burdensome, in five copies. FOR FURTHER INFORMATION CONTACT: Neil Blickman, Attorney, Federal Trade Commission, Bureau of Consumer Protection, Division of Enforcement, Sixth and Pennsylvania Ave., NW., Washington, DC 20580, (202) 326-3038. SUPPLEMENTARY INFORMATION: I. Introduction Pursuant to the Federal Trade Commission Act (``FTC Act''), 15 U.S.C. 41-58, and the Administrative Procedure Act, 5 U.S.C. 551-59, 701-06, by this Notice of Proposed Rulemaking [[Page 44100]] (``NPR'') the Commission initiates a proceeding to consider whether the Dry Cell Battery Rule should be repealed or remain in effect.\1\ The Commission is undertaking this rulemaking proceeding as part of the Commission's ongoing program of evaluating trade regulation rules and industry guides to determine their effectiveness, impact, cost and need. This proceeding also responds to President Clinton's National Regulatory Reinvention Initiative, which, among other things, urges agencies to eliminate obsolete or unnecessary regulations. --------------------------------------------------------------------------- \1\ In accordance with section 18 of the FTC Act, 15 U.S.C. 57a, the Commission submitted this NPR to the Chairman of the Committee on Commerce, Science, and Transportation, United States Senate, and the Chairman of the Committee on Commerce, United States House of Representatives, 30 days prior to its publication in the Federal Register. --------------------------------------------------------------------------- II. Background Information On May 20, 1964, the Commission promulgated a trade regulation rule that states that in connection with the sale of dry cell batteries in commerce, the use of the word ``leakproof,'' the term ``guaranteed leakproof,'' or any other word or term of similar import, or any abbreviation thereof, in advertising, labeling, marking or otherwise, as descriptive of dry cell batteries, constitutes an unfair method of competition and an unfair or deceptive act or practice in violation of section 5 of the FTC Act (16 CFR 403.4). This Rule was based on the Commission's finding that, despite efforts by dry cell battery manufacturers to eliminate electrolyte leakage, battery leakage and damage therefrom occurs from the use to which consumers ordinarily subject dry cell batteries. The Rule provides that manufacturers or marketers are not prohibited from offering or furnishing guarantees that provide for restitution in the event of damage from battery leakage, provided no representation is made, directly or indirectly, that dry cell batteries will not leak (16 CFR 403.5). The Rule further provides that in the event any person develops a new dry cell battery that he believes is in fact leakproof, he may apply to the Commission for an amendment to the Rule, or other appropriate relief (16 CFR 403.6). The Commission conducted an informal review of industry practices by examining the advertising, labeling and marking of dry cell batteries available for retail sale. This review revealed no representations that the batteries were leakproof. The Commission's review, therefore, indicated general compliance with the Rule's provisions. Moreover, the Commission has no record of receiving any complaints regarding non-compliance with the Rule, or of initiating any law enforcement actions alleging violations of the Rule. Additionally, the Commission's review indicated general voluntary compliance by the industry with the requirements of American National Standards Institute (``ANSI'') Standard C18.1M-1992 Dry Cells and Batteries--Specifications. The ANSI standard contains specifications for dry cell batteries, and requirements for labeling the products and their packages. The ANSI standard requires the following information to be printed on the outside of each battery (when necessary, the standard permits some of this information to be applied to the unit package): (1) the name or trade name of the manufacturer; (2) the ANSI/National Electronic Distributors Association number, or some other identifying designation; (3) year and month, week or day of manufacture, which may be a code, or the expiration of a guarantee period, in a clear readable form; (4) the nominal voltage; (5) terminal polarity; and (6) warnings or cautionary notes where applicable.\2\ --------------------------------------------------------------------------- \2\ See section 8.1 of ANSI Standard C18.1M-1992. --------------------------------------------------------------------------- The ANSI standard recommends that dry cell battery manufacturers and sellers include on their products and packages several battery user guidelines and warnings that are relevant to this proceeding. They are: (1) although batteries basically are trouble-free products, conditions of abuse or misuse can cause leakage; (2) failure to replace all batteries in a unit at the same time may result in battery leakage; (3) mixing batteries of various chemical systems, ages, applications, types or manufacturers may result in poor device performance and battery leakage; (4) attempting to recharge a non-rechargeable battery is unsafe because it could cause leakage; (5) reverse insertion of batteries may cause charging, which may result in leakage; (6) devices that operate on either household current or battery power may subject batteries to a charging current, which may cause leakage; (7) do not store batteries or battery-powered equipment in high-temperature areas; and (8) do not dispose of batteries in fire.\3\ At a minimum, each dry cell battery and battery package inspected by Commission staff informed consumers that the batteries may explode or leak if recharged, inserted improperly, disposed of in fire, or mixed with different battery types. --------------------------------------------------------------------------- \3\ See section 7.5 of ANSI Standard C18.1M-1992. --------------------------------------------------------------------------- Based on the foregoing, on March 25, 1997, the Commission published an Advance Notice of Proposed Rulemaking (``ANPR'') tentatively concluding that industry members that comply with the ANSI standard's point-of-sale disclosure requirements, of necessity, also are in compliance with the Rule. Accordingly, the Commission tentatively determined that the Dry Cell Battery Rule is no longer necessary, and sought comments on the proposed repeal of the Rule.\4\ --------------------------------------------------------------------------- \4\ 62 FR 14050. --------------------------------------------------------------------------- The only comment received in response to the ANPR was submitted by the National Electrical Manufacturers Association (``NEMA''), a trade association representing all major U.S. manufacturers of dry cell batteries.\5\ NEMA supports repeal of the Commission's Dry Cell Battery Rule, indicating that it has been superseded effectively in the marketplace by ANSI Standard C18.1M-1992.\6\ --------------------------------------------------------------------------- \5\ The comment submitted in response to the ANPR has been placed on the public record, and is filed as document number B21969700001. In today's notice, the comment is cited as NEMA, #1. \6\ NEMA, #1. --------------------------------------------------------------------------- Accordingly, after reviewing the comment submitted, and in light of ANSI Standard C18.1M-1992, the Commission has determined that the Dry Cell Battery Rule is no longer necessary.\7\ The Commission, therefore, seeks comments on the proposed repeal of the Dry Cell Battery Rule. --------------------------------------------------------------------------- \7\ Repealing the Dry Cell Battery Rule would eliminate the Commission's ability to obtain civil penalties for any future misrepresentations that dry cell batteries are leakproof. The Commission, however, has tentatively determined that repealing the Rule would not seriously jeopardize the Commission's ability to act effectively. Any significant problems that might arise could be addressed on a case-by-case basis under section 5 of the FTC Act, 15 U.S.C. 45, either administratively or through Section 13(b) actions, 15 U.S.C. 53(b), filed in federal district court. Prosecuting serious misrepresentations in district court allows the Commission to obtain injunctive relief as well as equitable remedies, such as redress or disgorgement. --------------------------------------------------------------------------- III. Rulemaking Procedures The Commission finds that the public interest will be served by using expedited procedures in this proceeding. First, there do not appear to be any material issues of disputed fact to resolve in determining whether to repeal the Rule. Second, using expedited procedures will support the Commission's goal of eliminating obsolete or unnecessary regulations without an undue expenditure of resources, while ensuring that the public has an opportunity to submit data, views and arguments on whether the Commission should repeal the Rule. The Commission, therefore, has determined, pursuant to 16 CFR 1.20, to use the procedures set forth in this notice. These procedures include: (1) [[Page 44101]] publishing this Notice of Proposed Rulemaking; (2) soliciting written comments on the Commission's proposal to repeal the Rule; (3) holding an informal hearing, if requested by interested parties; (4) obtaining a final recommendation from staff; and (5) announcing final Commission action in a notice published in the Federal Register. IV. Invitation To Comment And Questions For Comment Interested persons are required to submit written data, views or arguments on any issue of fact, law or policy they believe may be relevant to the Commission's decision on whether to repeal the Rule. The Commission requests that commenters provide representative factual data in support of their comments. Individual firms' experiences are relevant to the extent they typify industry experience in general or the experience of similar-sized firms. Commenters opposing the proposed repeal of the Rule should explain the reasons they believe the Rule is still needed and, if appropriate, suggest specific alternatives. Proposals for alternative requirements should include reasons and data that indicate why the alternatives would better protect consumers from unfair or deceptive acts or practices under section 5 of the FTC Act, 15 U.S.C. 45. Although the Commission welcomes comments on any aspect of the proposed repeal of the Rule, the Commission is particularly interested in comments on questions and issues raised in this Notice. All written comments should state clearly the question or issue that the commenter is addressing. Before taking final action, the Commission will consider all written comments timely submitted to the Secretary of the Commission and testimony given on the record at any hearings scheduled in response to requests to testify. Written comments submitted will be available for public inspection in accordance with the Freedom of Information Act, 5 U.S.C. 552, and Commission regulations, on normal business days between the hours of 8:30 a.m. to 5:00 p.m. at the Federal Trade Commission, Public Reference Room, Room H-130, Sixth St. and Pennsylvania Ave., NW., Washington, DC 20580, (202) 326-2222. Questions (1) Should the Dry Cell Battery Rule be kept in effect, or should it be repealed? (2) What benefits do consumers derive from the Rule? (3) How would repealing the Rule affect the benefits experienced by consumers? (4) How would repealing the Rule affect the benefits and burdens experienced by firms that must comply with the Rule? (5) Are ``leakproof'' or ``guaranteed leakproof'' representations a significant problem in the marketplace? (6) Are there any other federal, state, or local laws or regulations, or private industry standards, that eliminate the need for the Rule? (7) Does the existence of ANSI Standard C18.1M-1992 for Dry Cell Batteries eliminate or greatly lessen the need for the Rule? V. Requests for Public Hearings Because there does not appear to be any dispute as to the material facts or issues raised by this proceeding and because written comments appear adequate to present the views of all interested parties, a public hearing has not been scheduled. If any person would like to present testimony at a public hearing, he or she should follow the procedures set forth in the DATES and ADDRESSES sections of this notice. VI. Preliminary Regulatory Analysis The Regulatory Flexibility Act (``RFA''), 5 U.S.C. 601-12, requires an analysis of the anticipated impact of the proposed repeal of the Rule on small businesses.\8\ The analysis must contain, as applicable, a description of the reasons why action is being considered, the objectives of and legal basis for the proposed action, the class and number of small entities affected, the projected reporting, recordkeeping and other compliance requirements being proposed, any existing federal rules which may duplicate, overlap or conflict with the proposed action, and any significant alternatives to the proposed action that accomplish its objectives and, at the same time, minimize its impact on small entities. --------------------------------------------------------------------------- \8\ Section 22 of the FTC Act, 15 U.S.C. 57b-3, also requires the Commission to issue a preliminary regulatory analysis relating to proposed rules when the Commission publishes a notice of proposed rulemaking. The Commission has determined that a preliminary regulatory analysis is not required by section 22 in this proceeding because the Commission has no reason to believe that repeal of the Rule: (1) will have an annual effect on the national economy of $100,000,000 or more; (2) will cause a substantial change in the cost or price of goods or services that are used extensively by particular industries, that are supplied extensively in particular geographical regions, or that are acquired in significant quantities by the Federal Government, or by State or local governments; or (3) otherwise will have a significant impact upon persons subject to the Rule or upon consumers. --------------------------------------------------------------------------- A description of the reasons why action is being considered and the objectives of the proposed repeal of the Rule have been explained elsewhere in this Notice. Repeal of the Rule would appear to have little or no effect on any small business. The Commission is not aware of any existing federal laws or regulations that would conflict with repeal of the Rule. For these reasons, the Commission certifies, pursuant to section 605 of RFA, 5 U.S.C. 605, that if the Commission determines to repeal the Rule, that action will not have a significant impact on a substantial number of small entities. To ensure that no substantial economic impact is being overlooked, however, the Commission requests comments on this issue. After reviewing any comments received, the Commission will determine whether it is necessary to prepare a final regulatory flexibility analysis. VII. Paperwork Reduction Act The Dry Cell Battery Rule imposes no third-party disclosure requirements that constitute ``information collection requirements'' under the Paperwork Reduction Act, 44 U.S.C. 3501 et seq. Since 1964, therefore, the Rule has imposed no paperwork burdens on marketers of dry cell batteries. In any event, repeal of the Dry Cell Battery Rule would permanently eliminate any burdens on the public imposed by the Rule. VIII. Additional Information for Interested Persons A. Motions or Petitions Any motions or petitions in connection with this proceeding must be filed with the Secretary of the Commission. B. Communications by Outside Parties to Commissioners or Their Advisors Pursuant to Rule 1.18(c) of the Commission's Rules of Practice, 16 CFR 1.18(c), communications with respect to the merits of this proceeding from any outside party to any Commissioner or Commissioner's advisor during the course of this rulemaking shall be subject to the following treatment. Written communications, including written communications from members of Congress, shall be forwarded promptly to the Secretary for placement on the public record. Oral communications, not including oral communications from members of Congress, are permitted only when such oral communications are transcribed verbatim or summarized at the discretion of the Commissioner or Commissioner's advisor to whom such oral communications are made, and are [[Page 44102]] promptly placed on the public record, together with any written communications relating to such oral communications. Memoranda prepared by a Commissioner or Commissioner's advisor setting forth the contents of any oral communications from members of Congress shall be placed promptly on the public record. If the communication with a member of Congress is transcribed verbatim or summarized, the transcript or summary will be placed promptly on the public record. Authority: 15 U.S.C. 41-58. List of Subjects in 16 CFR Part 403 Advertising, Dry cell batteries, Labeling, Trade practices. By direction of the Commission. Donald S. Clark, Secretary. [FR Doc. 97-21922 Filed 8-18-97; 8:45 am] BILLING CODE 6750-01-M