---
kind: "section"
citation: "15 U.S.C. § 2082"
title: "15"
title_heading: "Commerce and Trade"
number: "2082"
heading: "Interim cellulose insulation safety standard"
release: "119-102"
date: "2026-07-12"
url: "https://uscodex.org/usc/15/2082"
units:
  - "Chapter 47 — Consumer Product Safety"
---

# §2082. Interim cellulose insulation safety standard

- (a) **Applicability of specification of General Services Administration; authority and effect of interim standard; modifications; criteria; labeling requirements—**
  - (1) Subject to the provisions of [paragraph (2)](#a-2), on and after the last day of the 60-day period beginning on July 11, 1978, the requirements for flame resistance and corrosiveness set forth in the General Services [Administration](/usc/15/636e.md?p=1)’s specification for cellulose insulation, HH–I–515C (as such specification was in effect on February 1, 1978), shall be deemed to be an interim [consumer product](/usc/15/2052.md?p=a-5) safety standard which shall have all the authority and effect of any other [consumer product](/usc/15/2052.md?p=a-5) safety standard promulgated by the [Commission](/usc/15/2052.md?p=a-4) under this chapter. During the 45-day period beginning on July 11, 1978, the [Commission](/usc/15/2052.md?p=a-4) may make, and shall publish in the Federal Register, such technical, nonsubstantive changes in such requirements as it deems appropriate to make such requirements suitable for promulgation as a [consumer product](/usc/15/2052.md?p=a-5) safety standard. At the end of the 60-day period specified in the first sentence of this paragraph, the [Commission](/usc/15/2052.md?p=a-4) shall publish in the Federal Register such interim [consumer product](/usc/15/2052.md?p=a-5) safety standard, as altered by the [Commission](/usc/15/2052.md?p=a-4) under this paragraph.
  - (2) The interim [consumer product](/usc/15/2052.md?p=a-5) safety standard established in [paragraph (1)](#a-1) shall provide that any cellulose insulation which is produced or distributed for sale or use as a [consumer product](/usc/15/2052.md?p=a-5) shall have a flame spread rating of 0 to 25, as such rating is set forth in the General Services [Administration](/usc/15/636e.md?p=1)’s specification for cellulose insulation, HH–I–515C.
  - (3) During the period for which the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard established in [subsection (a)](#a) is in effect, in addition to complying with any labeling requirement established by the [Commission](/usc/15/2052.md?p=a-4) under this chapter, each [manufacturer](/usc/15/2052.md?p=a-11) or [private labeler](/usc/15/2052.md?p=a-12-A) of cellulose insulation shall include the following statement on any container of such cellulose insulation: “ATTENTION: This material meets the applicable minimum Federal flammability standard. This standard is based upon laboratory tests only, which do not represent actual conditions which may occur in the home”. Such statement shall be located in a conspicuous place on such container and shall appear in conspicuous and legible type in contrast by typography, layout, and color with other printed matter on such container.
- (b) **Scope of judicial review—** Judicial review of the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard established in [subsection (a)](#a), as such standard is in effect on and after the last day of the 60-day period specified in such subsection, shall be limited solely to the issue of whether any changes made by the [Commission](/usc/15/2052.md?p=a-4) under [paragraph (1)](#a-1) are technical, nonsubstantive changes. For purposes of such review, any change made by the [Commission](/usc/15/2052.md?p=a-4) under [paragraph (1)](#a-1) which requires that any test to determine the flame spread rating of cellulose insulation shall include a correction for variations in test results caused by equipment used in the test shall be considered a technical, nonsubstantive change.
- (c) **Enforcement; violations; promulgation of final standard; procedures applicable to promulgation; revision of interim standard; procedures applicable to revision—**
  - (1)
    - (A) Any interim [consumer product](/usc/15/2052.md?p=a-5) safety standard established pursuant to this section shall be enforced in the same manner as any other [consumer product](/usc/15/2052.md?p=a-5) safety standard until such time as there is in effect a final [consumer product](/usc/15/2052.md?p=a-5) safety standard promulgated by the [Commission](/usc/15/2052.md?p=a-4), as provided in [subparagraph (B)](#c-1-B), or until such time as it is revoked by the [Commission](/usc/15/2052.md?p=a-4) under [section 2058(e) of this title](/usc/15/2058.md?p=e). A violation of the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard shall be deemed to be a violation of a [consumer product](/usc/15/2052.md?p=a-5) safety standard promulgated by the [Commission](/usc/15/2052.md?p=a-4) under [section 2058 of this title](/usc/15/2058.md).
    - (B) If the [Commission](/usc/15/2052.md?p=a-4) determines that the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard does not adequately protect the public from the unreasonable [risk of injury](/usc/15/2052.md?p=a-14) associated with flammable or corrosive cellulose insulation, it shall promulgate a final [consumer product](/usc/15/2052.md?p=a-5) safety standard to protect against such risk. Such final standard shall be promulgated pursuant to [section 553 of title 5](/usc/5/553.md), except that the [Commission](/usc/15/2052.md?p=a-4) shall give interested [persons](/usc/15/7a.md?p=6) an opportunity for the oral presentation of data, views, or arguments, in addition to an opportunity to make written submissions. A transcript shall be kept of any oral presentation. The provisions of [section 2058(b)](/usc/15/2058.md?p=b), (c), and (d) of this title shall apply to any proceeding to promulgate such final standard. In any judicial review of such final standard under [section 2060 of this title](/usc/15/2060.md), the court shall not require any demonstration that each particular finding made by the [Commission](/usc/15/2052.md?p=a-4) under [section 2058(c) of this title](/usc/15/2058.md?p=c) is supported by substantial evidence. The court shall affirm the action of the [Commission](/usc/15/2052.md?p=a-4) unless the court determines that such action is not supported by substantial evidence on the record taken as a whole.
  - (2)
    - (A) Until there is in effect such a final [consumer product](/usc/15/2052.md?p=a-5) safety standard, the [Commission](/usc/15/2052.md?p=a-4) shall incorporate into the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard, in accordance with the provisions of this paragraph, each revision superseding the requirements for flame resistance and corrosiveness referred to in [subsection (a)](#a) and promulgated by the General Services [Administration](/usc/15/636e.md?p=1).
    - (B) At least 45 days before any revision superseding such requirements is to become effective, the [Administrator](/usc/15/636e.md?p=1) of the General Services [Administration](/usc/15/636e.md?p=1) shall notify the [Commission](/usc/15/2052.md?p=a-4) of such revision. In the case of any such revision which becomes effective during the period beginning on February 1, 1978, and ending on July 11, 1978, such notice from the [Administrator](/usc/15/636e.md?p=1) of the General Services [Administration](/usc/15/636e.md?p=1) shall be deemed to have been made on July 11, 1978.
    - (C)
      - (i) No later than 45 days after receiving any notice under [subparagraph (B)](#c-2-B), the [Commission](/usc/15/2052.md?p=a-4) shall publish the revision, including such changes in the revision as it considers appropriate to make the revision suitable for promulgation as an amendment to the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard, in the Federal Register as a proposed amendment to the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard.
      - (ii) The [Commission](/usc/15/2052.md?p=a-4) may extend the 45-day period specified in [clause (i)](#c-2-C-i) for an additional period of not more than 150 days if the [Commission](/usc/15/2052.md?p=a-4) determines that such extension is necessary to study the technical and scientific basis for the revision involved, or to study the safety and economic consequences of such revision.
    - (D)
      - (i) Additional extensions of the 45-day period specified in [subparagraph (C)(i)](#c-2-C-i) may be taken by the [Commission](/usc/15/2052.md?p=a-4) if—
        - (I) the [Commission](/usc/15/2052.md?p=a-4) makes the determination required in [subparagraph (C)(ii)](#c-2-C-ii) with respect to each such extension; and
        - (II) in the case of further extensions proposed by the [Commission](/usc/15/2052.md?p=a-4) after an initial extension under this clause, such further extensions have not been disapproved under [clause (iv)](#c-2-D-iv).
      - (ii) Any extension made by the [Commission](/usc/15/2052.md?p=a-4) under this subparagraph shall be for a period of not more than 45 days.
      - (iii) Prior notice of each extension made by the [Commission](/usc/15/2052.md?p=a-4) under this subparagraph, together with a statement of the reasons for such extension and an estimate of the length of time required by the [Commission](/usc/15/2052.md?p=a-4) to complete its action upon the revision involved, shall be published in the Federal Register and shall be submitted to the [appropriate Congressional committees](/usc/15/2052.md?p=a-1).
      - (iv) In any case in which the [Commission](/usc/15/2052.md?p=a-4) takes an initial 45-day extension under [clause (i)](#c-2-D-i), the [Commission](/usc/15/2052.md?p=a-4) may not take any further extensions under [clause (i)](#c-2-D-i) if each committee referred to in [clause (iii)](#c-2-D-iii) disapproves by committee resolution any such further extensions before the end of the 15-day period following notice of such initial extension made by the [Commission](/usc/15/2052.md?p=a-4) in accordance with [clause (iii)](#c-2-D-iii).
    - (E) The [Commission](/usc/15/2052.md?p=a-4) shall give interested [persons](/usc/15/7a.md?p=6) an opportunity to comment upon any proposed amendment to the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard during the 30-day period following any publication by the [Commission](/usc/15/2052.md?p=a-4) under [subparagraph (C)](#c-2-C).
    - (F) No later than 90 days after the end of the period specified in [subparagraph (E)](#c-2-E), the [Commission](/usc/15/2052.md?p=a-4) shall promulgate the amendment to the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard unless the [Commission](/usc/15/2052.md?p=a-4) determines, after consultation with the Secretary of Energy, that—
      - (i) such amendment is not necessary for the protection of consumers from the unreasonable [risk of injury](/usc/15/2052.md?p=a-14) associated with flammable or corrosive cellulose insulation; or
      - (ii) implementation of such amendment will create an undue burden upon [persons](/usc/15/7a.md?p=6) who are subject to the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard.
    - (G) The provisions of [section 2060 of this title](/usc/15/2060.md) shall not apply to any judicial review of any amendment to the interim product safety standard promulgated under this paragraph.
- (d) **Reporting requirements of other Federal departments, agencies, etc., of violations—** Any Federal department, agency, or instrumentality, or any Federal independent regulatory agency, which obtains information which reasonably indicates that cellulose insulation is being [manufactured](/usc/15/2052.md?p=a-10) or distributed in violation of this chapter shall immediately inform the [Commission](/usc/15/2052.md?p=a-4) of such information.
- (e) **Reporting requirements of Commission to Congressional committees; contents, time of submission, etc.**
  - (1) The [Commission](/usc/15/2052.md?p=a-4), no later than 45 days after July 11, 1978, shall submit a report to the [appropriate Congressional committees](/usc/15/2052.md?p=a-1) which shall contain a detailed statement of the manner in which the [Commission](/usc/15/2052.md?p=a-4) intends to carry out the enforcement of this section.
  - (2)
    - (A) The [Commission](/usc/15/2052.md?p=a-4), no later than 6 months after the date upon which the report required in [paragraph (1)](#e-1) is due (and no later than the end of each 6-month period thereafter), shall submit a report to each committee referred to in [paragraph (1)](#e-1) which shall describe the enforcement activities of the [Commission](/usc/15/2052.md?p=a-4) with respect to this section during the most recent 6-month period.
    - (B) The first report which the [Commission](/usc/15/2052.md?p=a-4) submits under [subparagraph (A)](#e-2-A) shall include the results of tests of cellulose insulation [manufactured](/usc/15/2052.md?p=a-10) by at least 25 [manufacturers](/usc/15/2052.md?p=a-11) which the [Commission](/usc/15/2052.md?p=a-4) shall conduct to determine whether such cellulose insulation complies with the interim [consumer product](/usc/15/2052.md?p=a-5) safety standard. The second such report shall include the results of such tests with respect to 50 [manufacturers](/usc/15/2052.md?p=a-11) who were not included in testing conducted by the [Commission](/usc/15/2052.md?p=a-4) for inclusion in the first report.
- (f) **Compliance with certification requirements; implementation; waiver; rules and regulations—**
  - (1) The [Commission](/usc/15/2052.md?p=a-4) shall have the authority to require that any [person](/usc/15/7a.md?p=6) required to comply with the certification requirements of [section 2063 of this title](/usc/15/2063.md) with respect to the manufacture of cellulose insulation shall provide for the performance of any test or testing program required for such certification through the use of an independent third party qualified to perform such test or testing program. The [Commission](/usc/15/2052.md?p=a-4) may impose such requirement whether or not the [Commission](/usc/15/2052.md?p=a-4) has established a testing program for cellulose insulation under [section 2063(b) of this title](/usc/15/2063.md?p=b).
  - (2) The [Commission](/usc/15/2052.md?p=a-4), upon petition by a [manufacturer](/usc/15/2052.md?p=a-11), may waive the requirements of [paragraph (1)](#f-1) with respect to such [manufacturer](/usc/15/2052.md?p=a-11) if the [Commission](/usc/15/2052.md?p=a-4) determines that the use of an independent third party is not necessary in order for such [manufacturer](/usc/15/2052.md?p=a-11) to comply with the certification requirements of [section 2063 of this title](/usc/15/2063.md).
  - (3) The [Commission](/usc/15/2052.md?p=a-4) may prescribe such rules as it considers necessary to carry out the provisions of this subsection.
- (g) **Authorization of appropriations—** There are authorized to be appropriated, for each of the fiscal years 1978, 1979, 1980, and 1981, such sums as may be necessary to carry out the provisions of this section.

## Source credit

(Pub. L. 92–573, § 35, as added Pub. L. 95–319, § 3(a), July 11, 1978, 92 Stat. 386; amended Pub. L. 103–437, § 5(c)(2), Nov. 2, 1994, 108 Stat. 4582; Pub. L. 110–314, title II, § 235(c)(3), (5), Aug. 14, 2008, 122 Stat. 3074, 3075.)

## Notes

### Editorial Notes

### Amendments

2008—Subsec. (c)(2)(D)(iii). Pub. L. 110–314, § 235(c)(3), substituted “the appropriate Congressional committees” for “the Committee on Commerce, Science, and Transportation of the Senate and the Committee on Energy and Commerce of the House of Representatives”.

Subsec. (e)(1). Pub. L. 110–314, § 235(c)(5), substituted “the appropriate Congressional committees” for “the Committee on Commerce, Science, and Transportation of the Senate and to the Committee on Energy and Commerce of the House of Representatives”.

1994—Subsecs. (c)(2)(D)(iii), (e)(1). Pub. L. 103–437 substituted “Committee on Energy and Commerce” for “Committee on Interstate and Foreign Commerce”.

### Statutory Notes and Related Subsidiaries

### Congressional Statement of Findings and Purpose

Pub. L. 95–319, § 2, July 11, 1978, 92 Stat. 386, provided that: The Congress finds that— existing Federal, State, and local laws and regulations are insufficient to protect the consumer from improperly manufactured cellulose insulation; an unreasonably large quantity of cellulose insulation is being distributed that does not meet minimum safety standards; an urgent need exists for the expedited setting of interim mandatory Federal standards for the manufacture of cellulose insulation; and such standards are reasonably necessary to eliminate or reduce an unreasonable risk of injury to consumers from flammable or corrosive cellulose insulation. It is the purpose of the Congress in this Act [enacting this section, amending section 2068 of this title, and enacting provisions set out as notes under sections 2051 and 2082 of this title] to provide an interim mandatory safety standard for cellulose insulation manufactured for use as a consumer product.”