It is not particularly easy to avoid setting your couch on fire. The problem with flaming couches is not just those cases where the couch is the primary contributor to the fire; it's also the cases where couches rapidly accelerate the intensity of a smaller fire, like from an electrical malfunction.
The regulation says, "the foam inside upholstered furniture be able to withstand exposure to a small flame, like a candle or cigarette lighter, for 12 seconds without igniting." so if a fire has already started and it is bigger than a small flame then this regulation isn't meant to help with that. In fact if you look around you can find http://laurasrules.org/2012/04/15/sofa-saga-part-3-interview... people talking about studies that show that in a actual fire these chemicals only slow down the burn rate by a couple seconds.