Incorporation by Reference; North American Standard Out-of-Service Criteria; Hazardous Materials Safety Permits, 48141-48146 [2022-16510]
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Federal Register / Vol. 87, No. 151 / Monday, August 8, 2022 / Proposed Rules
DEPARTMENT OF TRANSPORTATION
Federal Motor Carrier Safety
Administration
49 CFR Part 385
[Docket No. FMCSA–2022–0128]
RIN 2126–AC48
Incorporation by Reference; North
American Standard Out-of-Service
Criteria; Hazardous Materials Safety
Permits
Federal Motor Carrier Safety
Administration (FMCSA), Department
of Transportation (DOT).
ACTION: Notice of proposed rulemaking.
AGENCY:
FMCSA proposes
amendments to its Hazardous Materials
Safety Permits regulations to
incorporate by reference the updated
Commercial Vehicle Safety Alliance
(CVSA) handbook containing inspection
procedures and Out-of-Service Criteria
(OOSC) for inspections of shipments of
transuranic waste and highway route
controlled quantities of radioactive
material. The OOSC provide
enforcement personnel nationwide,
including FMCSA’s State partners, with
uniform enforcement tolerances for
inspections. Currently, the regulations
reference the April 1, 2021, edition of
the handbook. Through this notice,
FMCSA proposes to incorporate by
reference the April 1, 2022, edition.
DATES: Comments must be received on
or before September 7, 2022.
ADDRESSES: You may submit comments
identified by Docket Number FMCSA2022–0128 using any of the following
methods:
• Federal eRulemaking Portal: Go to
https://www.regulations.gov/docket/
FMCSA-2022-0128/document. Follow
the online instructions for submitting
comments.
• Mail: Dockets Operations, U.S.
Department of Transportation, 1200
New Jersey Avenue SE, West Building,
Ground Floor, Room W12–140,
Washington, DC 20590–0001.
• Hand Delivery or Courier: Dockets
Operations, U.S. Department of
Transportation, 1200 New Jersey
Avenue SE, West Building, Ground
Floor, Room W12–140, Washington, DC
20590–0001, between 9 a.m. and 5 p.m.,
Monday through Friday, except Federal
holidays. To be sure someone is there to
help you, please call (202) 366–9317 or
(202) 366–9826 before visiting Dockets
Operations.
• Fax: (202) 493–2251.
Viewing incorporation by reference
material: You may inspect the material
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SUMMARY:
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proposed for incorporation by reference
at U.S. Department of Transportation,
1200 New Jersey Avenue SE,
Washington, DC 20590–0001 between 8
a.m. and 5 p.m., Monday through
Friday, except Federal holidays. The
telephone number is (202) 366–1812.
Copies of the material are available as
indicated in the ‘‘EXECUTIVE
SUMMARY AND 1 CFR 51’’ section of
this preamble.
FOR FURTHER INFORMATION CONTACT: Mr.
Jose´ Cestero, Vehicle and Roadside
Operations Division, FMCSA, 1200 New
Jersey Avenue SE, Washington, DC
20590–0001, (202) 366–5541,
jose.cestero@dot.gov. If you have
questions on viewing or submitting
material to the docket, contact Dockets
Operations, (202) 366–9826.
SUPPLEMENTARY INFORMATION: FMCSA
organizes this notice of proposed
rulemaking (NPRM) as follows:
I. Public Participation and Request for
Comments
A. Submitting Comments
B. Viewing Comments and Documents
C. Privacy
II. Executive Summary
III. Abbreviations
IV. Legal Basis
V. Background
VI. Discussion of Proposed Rulemaking
VII. International Impacts
VIII. Section-by-Section Analysis
IX. Regulatory Analyses
A. E.O. 12866 (Regulatory Planning and
Review), E.O. 13563 (Improving
Regulation and Regulatory Review), and
DOT Regulatory Policies and Procedures
B. Congressional Review Act
C. Advance Notice of Proposed
Rulemaking
D. Regulatory Flexibility Act (Small
Entities)
E. Assistance for Small Entities
F. Unfunded Mandates Reform Act of 1995
G. Paperwork Reduction Act
H. E.O. 13132 (Federalism)
I. Privacy
J. E.O. 13175 (Indian Tribal Governments)
K. National Environmental Policy Act of
1969
I. Public Participation and Request for
Comments
A. Submitting Comments
If you submit a comment, please
include the docket number for this
NPRM (FMCSA–2022–0128), indicate
the specific section of this document to
which your comment applies, and
provide a reason for each suggestion or
recommendation. You may submit your
comments and material online or by fax,
mail, or hand delivery, but please use
only one of these means. FMCSA
recommends that you include your
name and a mailing address, an email
address, or a phone number in the body
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of your document so FMCSA can
contact you if there are questions
regarding your submission.
To submit your comment online, go to
https://www.regulations.gov/docket/
FMCSA-2022-0128/document, click on
this NPRM, click ‘‘Comment,’’ and type
your comment into the text box on the
following screen.
If you submit your comments by mail
or hand delivery, submit them in an
unbound format, no larger than 81⁄2 by
11 inches, suitable for copying and
electronic filing. If you submit
comments by mail and would like to
know that they reached the facility,
please enclose a stamped, self-addressed
postcard or envelope.
FMCSA will consider all comments
and material received during the
comment period.
Confidential Business Information (CBI)
CBI is commercial or financial
information that is both customarily and
actually treated as private by its owner.
Under the Freedom of Information Act
(5 U.S.C. 552), CBI is exempt from
public disclosure. If your comments
responsive to the NPRM contain
commercial or financial information
that is customarily treated as private,
that you actually treat as private, and
that is relevant or responsive to the
NPRM, it is important that you clearly
designate the submitted comments as
CBI. Please mark each page of your
submission that constitutes CBI as
‘‘PROPIN’’ to indicate it contains
proprietary information. FMCSA will
treat such marked submissions as
confidential under the Freedom of
Information Act, and they will not be
placed in the public docket of the
NPRM. Submissions containing CBI
should be sent to Mr. Brian Dahlin,
Chief, Regulatory Analysis Division,
Office of Policy, FMCSA, 1200 New
Jersey Avenue SE, Washington DC
20590–0001. Any comments FMCSA
receives not specifically designated as
CBI will be placed in the public docket
for this rulemaking.
B. Viewing Comments and Documents
To view any documents mentioned as
being available in the docket, go to
https://www.regulations.gov/docket/
FMCSA-2022-0128/document and
choose the document to review. To view
comments, click this NPRM, then click
‘‘Browse Comments.’’ If you do not have
access to the internet, you may view the
docket online by visiting Dockets
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Federal Register / Vol. 87, No. 151 / Monday, August 8, 2022 / Proposed Rules
Operations in Room W12–140 on the
ground floor of the DOT West Building,
1200 New Jersey Avenue SE,
Washington, DC 20590–0001, between 9
a.m. and 5 p.m., Monday through
Friday, except Federal holidays. To be
sure someone is there to help you,
please call (202) 366–9317 or (202) 366–
9826 before visiting Dockets Operations.
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C. Privacy
DOT solicits comments from the
public to better inform its regulatory
process, in accordance with 5 U.S.C.
553(c). DOT posts these comments,
without edit, including any personal
information the commenter provides, to
www.regulations.gov, as described in
the system of records notice (DOT/ALL
14—Federal Docket Management
System (FDMS)), which can be reviewed
at www.transportation.gov/privacy.
II. Executive Summary and 1 CFR 51
This NPRM proposes to update an
incorporation by reference found at 49
CFR 385.4(b)(1) and referenced at
§ 385.415(b). The provision at
§ 385.4(b)(1) currently references the
April 1, 2021, edition of CVSA’s
handbook titled ‘‘North American
Standard Out-of-Service Criteria and
Level VI Inspection Procedures and Outof-Service Criteria for Commercial
Highway Vehicles Transporting
Transuranics and Highway Route
Controlled Quantities of Radioactive
Materials as defined in 49 CFR part
173.403.’’ The CVSA handbook contains
inspection procedures and Out-ofService Criteria (OOSC) for inspections
of shipments of transuranic waste and
highway route controlled quantities of
radioactive material. The OOSC, while
not regulations, provide enforcement
personnel nationwide, including
FMCSA’s State partners, with uniform
enforcement tolerances for inspections.
The material is available, and will
continue to be available, for inspection
at the FMCSA, Office of Safety, 1200
New Jersey Avenue SE, Washington, DC
20590 (Attention: Chief, Compliance
Division) at (202) 366–1812. The
document may be purchased from the
Commercial Vehicle Safety Alliance,
6303 Ivy Lane, Suite 310, Greenbelt, MD
20770, (301) 830–6143, www.cvsa.org.
In this NPRM, FMCSA proposes to
incorporate by reference the April 1,
2022, edition of the handbook. This
NPRM will discuss all updates to the
currently incorporated 2021 edition of
the handbook.
Fourteen updates distinguish the
April 1, 2022, handbook edition from
the 2021 edition. The incorporation by
reference of the 2022 edition does not
impose new regulatory requirements.
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III. Abbreviations
CDL Commercial Driver’s License
CVSA Commercial Vehicle Safety Alliance
DOT Department of Transportation
FMCSA Federal Motor Carrier Safety
Administration
FMCSRs Federal Motor Carrier Safety
Regulations
FR Federal Register
MCMIS Motor Carrier Management
Information System
OOS Out-of-Service
OOSC Out-of-Service Criteria
RFA Regulatory Flexibility Act
UMRA The Unfunded Mandates Reform
Act of 1995
U.S.C. United States Code
IV. Legal Basis for the Rulemaking
Congress has enacted several statutory
provisions to ensure the safe
transportation of hazardous materials in
interstate commerce. Specifically, in
provisions codified at 49 U.S.C. 5105(d),
relating to inspections of motor vehicles
carrying certain hazardous material, and
49 U.S.C. 5109, relating to motor carrier
safety permits, the Secretary of
Transportation is required to
promulgate regulations as part of a
comprehensive safety program on
hazardous materials safety permits. The
FMCSA Administrator has been
delegated authority under 49 CFR
1.87(d)(2) to carry out the rulemaking
functions vested in the Secretary of
Transportation. Consistent with that
authority, FMCSA has promulgated
regulations under 49 CFR part 385,
subpart E to address the congressional
mandate on hazardous materials safety
permits. Those regulations are the
underlying provisions to which the
material incorporated by reference
discussed in this notice is applicable.
V. Background
In 1986, the U.S. Department of
Energy and CVSA entered into a
cooperative agreement to develop a
higher level of inspection procedures,
out-of-service (OOS) conditions and/or
criteria, an inspection decal, and a
training and certification program for
inspectors to conduct inspections on
shipments of transuranic waste and
highway route controlled quantities of
radioactive material. CVSA developed
the North American Standard Level VI
Inspection Program for Transuranic
Waste and Highway Route Controlled
Quantities of Radioactive Material. This
inspection program for select
radiological shipments includes
inspection procedures, enhancements to
the North American Standard Level I
Inspection, radiological surveys, CVSA
Level VI decal requirements, and the
‘‘North American Standard Out-ofService Criteria and Level VI Inspection
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Procedures and Out-of-Service Criteria
for Commercial Highway Vehicles
Transporting Transuranics and Highway
Route Controlled Quantities of
Radioactive Materials as defined in 49
CFR part 173.403.’’ As of January 1,
2005, all vehicles and carriers
transporting highway route controlled
quantities of radioactive material are
regulated by the U.S. Department of
Transportation. All highway route
controlled quantities of radioactive
material must pass the North American
Standard Level VI Inspection prior to
the shipment being allowed to travel in
the United States. All highway route
controlled quantities of radioactive
material shipments entering the United
States must also pass the North
American Standard Level VI Inspection
either at the shipment’s point of origin
or when the shipment enters the United
States.
Section 385.415 of title 49, Code of
Federal Regulations, prescribes
operational requirements for motor
carriers transporting hazardous
materials for which a hazardous
materials safety permit is required.
Section 385.415(b) requires that motor
carriers ensure a pre-trip inspection is
performed on each motor vehicle to be
used to transport a highway route
controlled quantity of a Class 7
(radioactive) material, in accordance
with the requirements of CVSA’s
handbook titled ‘‘North American
Standard Out-of-Service Criteria and
Level VI Inspection Procedures and Outof-Service Criteria for Commercial
Highway Vehicles Transporting
Transuranics and Highway Route
Controlled Quantities of Radioactive
Materials as defined in 49 CFR part
173.403.’’
According to 2018–2021 data from
FMCSA’s Motor Carrier Management
Information System (MCMIS),
approximately 2.86 million Level I–
Level VI inspections were performed
annually. Nearly 96 percent of these
were Level I,1 Level II,2 and Level III 3
inspections. During the same period, an
average of 670 Level VI inspections
were performed annually, comprising
only 0.02 percent of all inspections. On
average, OOS violations were cited in
1 Level I is a 37-step inspection procedure that
involves examination of the motor carrier’s and
driver’s credentials, record of duty status, the
mechanical condition of the vehicle, and any
hazardous materials/dangerous goods that may be
present.
2 Level II is a driver and walk-around vehicle
inspection, involving the inspection of items that
can be checked without physically getting under
the vehicle.
3 Level III is a driver-only inspection that
includes examination of the driver’s credentials and
documents.
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only 4 Level VI inspections annually
(0.6 percent), whereas on average, OOS
violations were cited in 212,603 Level I
inspections (26 percent), 249,550 Level
II inspections (25 percent), and 52,911
Level III inspections (6 percent)
annually. As these statistics
demonstrate, OOS violations are cited in
a far lower percentage of Level VI
inspections than Level I, II, and III
inspections, due largely to the enhanced
oversight and inspection of these
vehicles because of the sensitive nature
of the cargo being transported.
The changes to the 2022 edition of the
CVSA handbook are intended to ensure
clarity in the presentation of the OOS
conditions and are generally editorial or
ministerial. As discussed below,
FMCSA does not expect the changes
made in the 2022 edition of the CVSA
handbook to affect the number of OOS
violations cited during Level VI
inspections.
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VI. Discussion of Proposed Rulemaking
Section 385.4(b)(1), as amended on
December 23, 2021 (86 FR 72854),
references the April 1, 2021, edition of
the CVSA handbook. This NPRM
proposes to amend § 385.4(b)(1) by
replacing the reference to the April 1,
2021, edition date with a reference to
the new edition date of April 1, 2022.
The changes made based on the 2022
edition of the handbook are outlined
below. It is necessary to update the
materials incorporated by reference to
ensure motor carriers and enforcement
officials have convenient access to the
correctly identified inspection criteria
referenced in the rules.
April 1, 2022, Changes
Fourteen changes in the 2022 edition
of the CVSA handbook distinguish it
from the April 1, 2021, edition:
(1) The Policy Statement of Part I was
amended to provide a clear definition of
OOSC and define the term ‘‘imminent
hazard.’’ CVSA determined that the
term ‘‘imminent hazard’’ should be used
to describe an OOSC. As such, wording
was used to provide consistency
between the OOSC and the Federal
Motor Carrier Safety Regulations
(FMCSRs). A note was also added to
clarify that the OOSC in Part I does not
apply to a co-driver. This clarification is
not expected to have any effect on the
number of OOS violations cited during
Level VI inspections in the United
States.
(2) Part I, Item 2.a. and Item 3.a., was
amended to add a note clarifying that
information received from the National
Law Enforcement Telecommunication
System or the Commercial Driver’s
License Information System may be
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used for U.S. home jurisdiction license
verification without the need of
additional confirmation. The changes
are intended to ensure clarity in the
presentation of the OOS conditions and
are not expected to affect the number of
OOS violations cited during Level VI
inspections in the United States.
(3) Part I, Item 2.b. and Item 3.c., were
amended to clarify in the note on
Mexico’s ‘‘Licencia Federal de
Conductor’’ (LFC) that only Class E
requires an endorsement. Prior to
February 25, 2016, a driver with
Mexico’s Class B license could operate
a commercial motor vehicle
combination that included double
trailers. The ‘‘Observaciones’’ section on
the back of the license did not include
an explicit doubles endorsement.
Similarly, a driver could obtain
Mexico’s Class E license and the
‘‘Observaciones’’ section on the back of
the license did not include an explicit
hazardous materials endorsement. After
February 25, 2016, Mexico’s Direccion
General de Autotransporte Federal,
Secretarı´a de Infraestructura,
Comunicaciones, y Transportes required
a new Class E license for drivers that
wish and are qualified to operate
doubles and/or transport hazardous
materials. Additionally, the
‘‘Observaciones’’ section on the back of
the license has an explicit endorsement
specifying whether the driver is
authorized to use doubles or transport
hazardous materials or both. However, a
clarification was needed to specify that
the endorsement on the back of the
license is for the Class E license, not the
Class B license. This information had
already been updated in the LFC
Inspection Schematic issued in April
2021. This amendment is applicable
only to the enforcement of Mexican
regulations and will not have any effect
on the number of OOS violations cited
during Level VI inspections in the
United States.
(4) Part I, Item 7.c., was amended to
add a table clarifying the Commercial
Driver’s License (CDL) and non-CDL
drivers prohibited in the Drug and
Alcohol Clearinghouse. Currently, this
section details the OOS actions that are
required to be taken when a driver is
recorded in the Drug and Alcohol
Clearinghouse as prohibited from
performing safety-sensitive functions
per 382.501(a). However, CVSA noted
that the current FMCSRs, specifically
§ 382.501, do not state that a driver
operating a non-CDL required vehicle
and engaged in intrastate commerce be
placed OOS. Therefore, a guidance table
was provided to clarify the OOSC for
CDL and non-CDL drivers prohibited
from performing safety sensitive
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functions during intrastate and
interstate commerce. A note was also
added explaining the applicability of
the table. The changes are intended to
ensure clarity in the presentation of the
OOS conditions and are not expected to
affect the number of OOS violations
cited during Level VI inspections in the
United States.
(5) The Policy Statement of Part II was
amended to provide a clear definition of
OOSC and define the term ‘‘imminent
hazard.’’ CVSA determined that the
term ‘‘imminent hazard’’ should be used
to describe an OOSC. As such, wording
was used to provide consistency
between the OOSC and the FMCSRs. A
note was also added to clarify that the
OOSC in Part I does not apply to a codriver. This clarification is not expected
to have any effect on the number of OOS
violations cited during Level VI
inspections in the United States.
(6) The chart for ‘‘Defective Brakes’’ in
Part II, Item 1.a., was amended to add
a note to clarify that brakes on wheels
required or not shall be used in the 20
percent calculation for the total number
of brakes. Clarification was necessary
specifically in driveaway/towaway
combination cases where brakes are not
required on the towed unit. The 20
percent calculation is only used to
determine if the vehicle or combination
is OOS based on the number of
defective brakes versus the number of
operational brakes. Therefore, CVSA
determined that all brakes must be
considered for the purpose of imminent
hazard, whether they are required or
not. This clarification is not expected to
have any effect on the number of OOS
violations cited during Level VI
inspections in the United States.
(7) Part II, Item 1.d.2., was amended
to add language to specify that a
breakaway device can be attached to a
permanently mounted hitch.
Clarification was needed to specify that
a hitch that is bolted to the towing
vehicle should be considered
permanently attached to the vehicle.
Thus, a breakaway device like a cable
attached to a permanent hitch is
acceptable. This clarification is not
expected to have any effect on the
number of OOS violations cited during
Level VI inspections in the United
States.
(8) Reference table Part II, Item 1.h.1.
was amended to clarify when an air
hose should be placed OOS. CVSA
contacted the industry to discuss air
brake hose failure modes and OOS
conditions. Brake hose manufacturers
provided information indicating that
when the reinforcement ply layer is
frayed the integrity of the brake hose is
compromised and thus, to prevent a
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failure, the brake hose should be placed
OOS. According to this information,
The Society of Automotive Engineers
provided updated language and
guidance to the OOS condition. As
such, CVSA added language to the OOS
reference table and updated the diagram
for air hoses/tubing. In addition, a note
was also added to define the term
‘‘reinforcement ply.’’ The changes are
intended to ensure clarity in the
presentation of the OOS conditions and
are not expected to affect the number of
OOS violations cited during Level VI
inspections in the United States.
(9) Part II, Item 1.o., was amended to
add an OOS condition to address a
situation where the entire master
cylinder assembly is found loose. In
response to a video that shows an
inspection where the entire master
cylinder assembly, including the backup
system, was loose on the firewall, CVSA
determined that this condition, although
rare, would cause a severe reduction in
braking action and, in other cases, brake
failure if the assembly is completely
detached from the firewall. Part II, Item
1.o. was amended to add an OOS
condition that a vehicle should be
placed OOS when the master cylinder
assembly including the backup system,
power assist, or power brake unit has
loose or missing mounting bolts. The
changes are intended to ensure clarity in
the presentation of the OOS conditions
and are not expected to affect the
number of OOS violations cited during
Level VI inspections in the United
States.
(10) Part II, Item 9.b. was amended to
clarify that this section only applies to
lighting systems and no other electrical
systems. There have been instances
where inspectors have been using this
section and applying it incorrectly to
electric brakes. The purpose of the OOS
condition in the ‘‘Lighting Devices’’
section was to only address lighting.
However, for further clarity, CVSA
determined that the term ‘‘lighting’’
should be added to the existing
language to clarify that this condition
only applies to the lights. The changes
are intended to ensure clarity in the
presentation of the OOS conditions and
are not expected to affect the number of
OOS violations cited during Level VI
inspections in the United States.
(11) Part II, Item 12.a.2., was amended
to remove the reference to ‘‘breaker
strip’’ in a steering tire. The term
‘‘breaker strip’’ in the OOSC is outdated
nomenclature that is no longer used in
reference materials describing radial
truck tires. Enforcement personnel
therefore have trouble identifying and
finding the area of the ‘‘breaker strip’’ in
supporting documentation. Also, the
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sidewall and tread area OOS conditions
cover the same area of the tire rendering
the term redundant. As such, CVSA
determined that the term ‘‘breaker strip’’
should be removed from the section.
The changes are intended to ensure
clarity in the presentation of the OOS
conditions and are not expected to affect
the number of OOS violations cited
during Level VI inspections in the
United States.
(12) The Policy Statement of Part III
was amended to provide a clear
definition of OOSC and define the term
‘‘imminent hazard.’’ CVSA determined
that the term ‘‘imminent hazard’’ should
be used to describe an OOSC. As such,
wording was used to provide
consistency between the OOSC and the
FMCSRs. A note was also added to
clarify that the OOSC in Part III does not
apply to a co-driver. This clarification is
not expected to have any effect on the
number of OOS violations cited during
Level VI inspections in the United
States.
(13) Part III, Item 4.a., was amended
to clarify in the notes that the
identification number is not required on
the transport vehicle if it is visible on
the bulk packaging. CVSA determined
that if there is no identification number
on the transport vehicle, the
identification number displayed on an
orange panel or incorporated with a
placard (in the United States and
Canada), or on a white square-on-point
(United States only) that is visible on a
bulk package is sufficient to satisfy the
requirement. The changes are intended
to ensure clarity in the presentation of
the OOS conditions and are not
expected to affect the number of OOS
violations cited during Level VI
inspections in the United States.
(14) The Policy Statement of Part IV
was amended to provide a better
description of OOSC and define the
term ‘‘imminent hazard.’’ The former
policy statement stated that an ‘‘Out of
Service Violation’’ preclude a driver
from further operation of a commercial
motor vehicle for a specified period of
time or for some violations until a
required condition is met. CVSA found
that the language in the OOSC
description needed consistency with the
FMCSRs and determined that a driver
that presents an ‘‘imminent hazard’’
precluding safe operation of a
commercial motor vehicle should be
used to describe OOSC. Specifically,
383.5 defines imminent hazard as the
existence of any condition of a driver
that substantially increases the
likelihood of serious injury or death if
not discontinued immediately. As such,
CVSA updated the language in the
OOSC and defined ‘‘imminent hazard’’
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as described in the FMCSRs. A note was
also added to clarify that the OOSC in
Part IV does not apply to a co-driver.
This clarification is not expected to
have any effect on the number of OOS
violations cited during Level VI
inspections in the United States.
VII. International Impacts
Motor carriers and drivers are subject
to the laws and regulations of the
countries that they operate in, unless an
international agreement states
otherwise. Drivers and carriers should
be aware of the regulatory differences
between nations.
The CVSA is an organization
representing Federal, State, and
Provincial motor carrier safety
enforcement agencies in the United
States, Canada, and Mexico. The OOSC
provide uniform enforcement tolerances
for inspections conducted in all three
countries.
VIII. Section-By-Section Analysis
Section 385.4 Matter Incorporated by
Reference
Section 385.4(b)(1), as amended on
December 23, 2021, references the April
1, 2021, edition of the CVSA handbook.
This NPRM would replace the reference
to the April 1, 2021, edition date with
a reference to the new edition date of
April 1, 2022.
IX. Regulatory Analyses
A. Executive Order (E.O.) 12866
(Regulatory Planning and Review), E.O.
13563 (Improving Regulation and
Regulatory Review), and DOT
Regulatory Policies and Procedures
FMCSA has considered the impact of
this notice of proposed rulemaking
under E.O. 12866 (58 FR 51735, Oct. 4,
1993), Regulatory Planning and Review,
E.O. 13563 (76 FR 3821, Jan. 21, 2011),
Improving Regulation and Regulatory
Review, and DOT’s regulatory policies
and procedures. The Office of
Information and Regulatory Affairs
within the Office of Management and
Budget (OMB) determined that this
notice of proposed rulemaking is not a
significant regulatory action under
section 3(f) of E.O. 12866, as
supplemented by E.O. 13563, and does
not require an assessment of potential
costs and benefits under section 6(a)(3)
of that order. Accordingly, OMB has not
reviewed it under that E.O.
The proposed rule, if finalized, would
update an incorporation by reference
from the April 1, 2021, edition to the
April 1, 2022, edition of CVSA’s
handbook titled ‘‘North American
Standard Out-of-Service Criteria and
Level VI Inspection Procedures and Out-
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of-Service Criteria for Commercial
Highway Vehicles Transporting
Transuranics and Highway Route
Controlled Quantities of Radioactive
Materials as defined in 49 CFR part
173.403.’’ FMCSA reviewed its MCMIS
data on inspections performed from
2018 to 2021 and does not expect the
handbook updates to have any effect on
the number of OOS violations cited
during Level VI inspections. Therefore,
the proposed rule’s impact would be de
minimis.
B. Congressional Review Act
This rule is not a major rule as
defined under the Congressional Review
Act (5 U.S.C. 801–808).4
C. Advance Notice of Proposed
Rulemaking
Under 49 U.S.C. 31136(g), FMCSA is
required to publish an advance notice of
proposed rulemaking (ANPRM) or
proceed with a negotiated rulemaking, if
a proposed rule is likely to lead to the
promulgation of a major rule. As this
proposed rule is not likely to result in
the promulgation of a major rule, the
Agency is not required to issue an
ANPRM or to proceed with a negotiated
rulemaking.
D. Regulatory Flexibility Act
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The Regulatory Flexibility Act (5
U.S.C. 601, et seq.) (RFA), as amended
by the Small Business Regulatory
Enforcement Fairness Act of 1996,5
requires Federal agencies to consider
the effects of the regulatory action on
small business and other small entities
and to minimize any significant
economic impact. The term small
entities comprises small businesses and
not-for-profit organizations that are
independently owned and operated and
are not dominant in their fields, and
governmental jurisdictions with
populations of less than 50,000 (5 U.S.C.
601(6)). Accordingly, DOT policy
requires an analysis of the impact of all
regulations on small entities, and
mandates that agencies strive to lessen
any adverse effects on these businesses.
None of the updates from the 2022
edition impose new requirements or
4 A ‘‘major rule’’ means any rule that OMB finds
has resulted in or is likely to result in (a) an annual
effect on the economy of $100 million or more; (b)
a major increase in costs or prices for consumers,
individual industries, geographic regions, Federal,
State, or local government agencies; or (c)
significant adverse effects on competition,
employment, investment, productivity, innovation,
or on the ability of United States-based enterprises
to compete with foreign-based enterprises in
domestic and export markets (49 CFR 389.3).
5 Public Law 104–121, 110 Stat. 857, (Mar. 29,
1996).
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make substantive changes to the
FMCSRs.
When an Agency issues a rulemaking
proposal, the RFA requires the Agency
to ‘‘prepare and make available an
initial regulatory flexibility analysis’’
that will describe the impact of the
proposed rule on small entities (5 U.S.C.
603(a)). Section 605 of the RFA allows
an agency to certify a rule, instead of
preparing an analysis, if the proposed
rule is not expected to impact a
substantial number of small entities.
The proposed rule would update an
incorporation by reference found at
§ 385.4(b)(1) and referenced at
§ 385.415(b), and would incorporate by
reference the April 1, 2022, edition of
the CVSA handbook. The changes to the
2022 edition of the CVSA handbook
from the 2021 edition are intended to
ensure clarity in the presentation of the
OOS conditions and are generally
editorial or ministerial. As noted above,
FMCSA does not expect the changes
made in the 2022 edition of the CVSA
handbook to affect the number of OOS
violations cited during Level VI
inspections in the United States.
Accordingly, I certify that the proposed
action would not have a significant
economic impact on a substantial
number of small entities.
E. Assistance for Small Entities
In accordance with section 213(a) of
the Small Business Regulatory
Enforcement Fairness Act of 1996,6
FMCSA wants to assist small entities in
understanding this proposed rule so
they can better evaluate its effects on
themselves and participate in the
rulemaking initiative. If the proposed
rule would affect your small business,
organization, or governmental
jurisdiction and you have questions
concerning its provisions or options for
compliance, please consult the person
listed under FOR FURTHER INFORMATION
CONTACT.
Small businesses may send comments
on the actions of Federal employees
who enforce or otherwise determine
compliance with Federal regulations to
the Small Business Administration’s
Small Business and Agriculture
Regulatory Enforcement Ombudsman
(Office of the National Ombudsman, see
https://www.sba.gov/about-sba/
oversight-advocacy/office-nationalombudsman) and the Regional Small
Business Regulatory Fairness Boards.
The Ombudsman evaluates these
actions annually and rates each agency’s
responsiveness to small business. If you
wish to comment on actions by
6 Public Law 104–121, 110 Stat. 857, (Mar. 29,
1996).
PO 00000
Frm 00055
Fmt 4702
Sfmt 4702
48145
employees of FMCSA, call 1–888–REG–
FAIR (1–888–734–3247). DOT has a
policy regarding the rights of small
entities to regulatory enforcement
fairness and an explicit policy against
retaliation for exercising these rights.
F. Unfunded Mandates Reform Act of
1995
The Unfunded Mandates Reform Act
of 1995 (2 U.S.C. 1531–1538) (UMRA)
requires Federal agencies to assess the
effects of their discretionary regulatory
actions. The Act addresses actions that
may result in the expenditure by a State,
local, or Tribal government, in the
aggregate, or by the private sector of
$178 million (which is the value
equivalent of $100 million in 1995,
adjusted for inflation to 2021 levels) or
more in any 1 year. Though this NPRM
would not result in such an
expenditure, and the analytical
requirements of UMRA do not apply as
a result, the Agency discusses the effects
of this rule elsewhere in this preamble.
G. Paperwork Reduction Act
This proposed rule contains no new
information collection requirements
under the Paperwork Reduction Act of
1995 (44 U.S.C. 3501–3520).
H. E.O. 13132 (Federalism)
A rule has implications for federalism
under section 1(a) of E.O. 13132 if it has
‘‘substantial direct effects on the States,
on the relationship between the national
government and the States, or on the
distribution of power and
responsibilities among the various
levels of government.’’
FMCSA has determined that this rule
would not have substantial direct costs
on or for States, nor would it limit the
policymaking discretion of States.
Nothing in this document preempts any
State law or regulation. Therefore, this
rule does not have sufficient federalism
implications to warrant the preparation
of a Federalism Impact Statement.
I. Privacy
The Consolidated Appropriations Act,
2005,7 requires the Agency to assess the
privacy impact of a regulation that will
affect the privacy of individuals. This
NPRM would not require the collection
of personally identifiable information.
J. E.O. 13175 (Indian Tribal
Governments)
This rule does not have Tribal
implications under E.O. 13175,
Consultation and Coordination with
Indian Tribal Governments, because it
7 Public Law 108–447, 118 Stat. 2809, 3268, note
following 5 U.S.C. 552a (Dec. 4, 2014).
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Federal Register / Vol. 87, No. 151 / Monday, August 8, 2022 / Proposed Rules
does not have a substantial direct effect
on one or more Indian Tribes, on the
relationship between the Federal
Government and Indian Tribes, or on
the distribution of power and
responsibilities between the Federal
Government and Indian Tribes.
K. National Environmental Policy Act of
1969
FMCSA analyzed this proposed rule
pursuant to the National Environmental
Policy Act of 1969 (42 U.S.C. 4321, et
seq.) and determined this action is
categorically excluded from further
analysis and documentation in an
environmental assessment or
environmental impact statement under
FMCSA Order 5610.1 (69 FR 9680),
Appendix 2, paragraph 6(b). This
Categorical Exclusion (CE) covers minor
revisions to regulations. The proposed
requirements in this rulemaking are
covered by this CE.
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List of Subjects in 49 CFR 385
Administrative practice and
procedure, Highway safety,
Incorporation by reference, Mexico,
Motor carriers, Motor vehicle safety,
Reporting and recordkeeping
requirements.
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In consideration of the foregoing,
FMCSA proposes to amend 49 CFR
chapter III, part 385, as set forth below:
PART 385—SAFETY FITNESS
PROCEDURES
1. The authority citation for part 385
continues to read as follows:
■
Authority: 49 U.S.C. 113, 504, 521(b),
5105(d), 5109, 5113, 13901–13905, 13908,
31135, 31136, 31144, 31148, 31151, 31502;
sec. 113(a), Pub. L. 103–311, 108 Stat. 1673,
1676; sec. 408, Pub. L. 104–88, 109 Stat. 803,
958; sec. 350, Pub. L. 107–87, 115 Stat. 833,
864; sec. 5205, Pub. L. 114–94, 129 Stat.
1312, 1537; and 49 CFR 1.87.
2. Amend § 385.4 by revising
paragraphs (a) and (b)(1) to read as
follows:
■
§ 385.4
Matter incorporated by reference.
(a) Certain material is incorporated by
reference into this part with the
approval of the Director of the Federal
Register in accordance with 5 U.S.C.
552(a) and 1 CFR part 51. All approved
incorporation by reference (IBR)
material is available for inspection at
the FMCSA and at the National
Archives and Records Administration
(NARA). Contact FMCSA at: Federal
PO 00000
Frm 00056
Fmt 4702
Sfmt 9990
Motor Carrier Safety Administration,
Office of Enforcement and Compliance,
1200 New Jersey Ave. SE, Washington,
DC 20590; Attention: Chief, Compliance
Division at (202) 366–1812. For
information on the availability of this
material at NARA, email: fr.inspection@
nara.gov, or go to: www.archives.gov/
federal-register/cfr/ibr-locations.html.
The material may be obtained from the
source in the following paragraph of this
section.
(b) * * *
(1) ‘‘North American Standard Out-ofService Criteria and Level VI Inspection
Procedures and Out-of-Service Criteria
for Commercial Highway Vehicles
Transporting Transuranics and Highway
Route Controlled Quantities of
Radioactive Materials as defined in 49
CFR part 173.403,’’ April 1, 2022,
incorporation by reference approved for
§ 385.415(b).
*
*
*
*
*
Issued under authority delegated in 49 CFR
1.87.
Robin Hutcheson,
Deputy Administrator.
[FR Doc. 2022–16510 Filed 8–5–22; 8:45 am]
BILLING CODE 4910–EX–P
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Agencies
[Federal Register Volume 87, Number 151 (Monday, August 8, 2022)]
[Proposed Rules]
[Pages 48141-48146]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-16510]
[[Page 48141]]
=======================================================================
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DEPARTMENT OF TRANSPORTATION
Federal Motor Carrier Safety Administration
49 CFR Part 385
[Docket No. FMCSA-2022-0128]
RIN 2126-AC48
Incorporation by Reference; North American Standard Out-of-
Service Criteria; Hazardous Materials Safety Permits
AGENCY: Federal Motor Carrier Safety Administration (FMCSA), Department
of Transportation (DOT).
ACTION: Notice of proposed rulemaking.
-----------------------------------------------------------------------
SUMMARY: FMCSA proposes amendments to its Hazardous Materials Safety
Permits regulations to incorporate by reference the updated Commercial
Vehicle Safety Alliance (CVSA) handbook containing inspection
procedures and Out-of-Service Criteria (OOSC) for inspections of
shipments of transuranic waste and highway route controlled quantities
of radioactive material. The OOSC provide enforcement personnel
nationwide, including FMCSA's State partners, with uniform enforcement
tolerances for inspections. Currently, the regulations reference the
April 1, 2021, edition of the handbook. Through this notice, FMCSA
proposes to incorporate by reference the April 1, 2022, edition.
DATES: Comments must be received on or before September 7, 2022.
ADDRESSES: You may submit comments identified by Docket Number FMCSA-
2022-0128 using any of the following methods:
Federal eRulemaking Portal: Go to https://www.regulations.gov/docket/FMCSA-2022-0128/document. Follow the online
instructions for submitting comments.
Mail: Dockets Operations, U.S. Department of
Transportation, 1200 New Jersey Avenue SE, West Building, Ground Floor,
Room W12-140, Washington, DC 20590-0001.
Hand Delivery or Courier: Dockets Operations, U.S.
Department of Transportation, 1200 New Jersey Avenue SE, West Building,
Ground Floor, Room W12-140, Washington, DC 20590-0001, between 9 a.m.
and 5 p.m., Monday through Friday, except Federal holidays. To be sure
someone is there to help you, please call (202) 366-9317 or (202) 366-
9826 before visiting Dockets Operations.
Fax: (202) 493-2251.
Viewing incorporation by reference material: You may inspect the
material proposed for incorporation by reference at U.S. Department of
Transportation, 1200 New Jersey Avenue SE, Washington, DC 20590-0001
between 8 a.m. and 5 p.m., Monday through Friday, except Federal
holidays. The telephone number is (202) 366-1812. Copies of the
material are available as indicated in the ``EXECUTIVE SUMMARY AND 1
CFR 51'' section of this preamble.
FOR FURTHER INFORMATION CONTACT: Mr. Jos[eacute] Cestero, Vehicle and
Roadside Operations Division, FMCSA, 1200 New Jersey Avenue SE,
Washington, DC 20590-0001, (202) 366-5541, [email protected]. If you
have questions on viewing or submitting material to the docket, contact
Dockets Operations, (202) 366-9826.
SUPPLEMENTARY INFORMATION: FMCSA organizes this notice of proposed
rulemaking (NPRM) as follows:
I. Public Participation and Request for Comments
A. Submitting Comments
B. Viewing Comments and Documents
C. Privacy
II. Executive Summary
III. Abbreviations
IV. Legal Basis
V. Background
VI. Discussion of Proposed Rulemaking
VII. International Impacts
VIII. Section-by-Section Analysis
IX. Regulatory Analyses
A. E.O. 12866 (Regulatory Planning and Review), E.O. 13563
(Improving Regulation and Regulatory Review), and DOT Regulatory
Policies and Procedures
B. Congressional Review Act
C. Advance Notice of Proposed Rulemaking
D. Regulatory Flexibility Act (Small Entities)
E. Assistance for Small Entities
F. Unfunded Mandates Reform Act of 1995
G. Paperwork Reduction Act
H. E.O. 13132 (Federalism)
I. Privacy
J. E.O. 13175 (Indian Tribal Governments)
K. National Environmental Policy Act of 1969
I. Public Participation and Request for Comments
A. Submitting Comments
If you submit a comment, please include the docket number for this
NPRM (FMCSA-2022-0128), indicate the specific section of this document
to which your comment applies, and provide a reason for each suggestion
or recommendation. You may submit your comments and material online or
by fax, mail, or hand delivery, but please use only one of these means.
FMCSA recommends that you include your name and a mailing address, an
email address, or a phone number in the body of your document so FMCSA
can contact you if there are questions regarding your submission.
To submit your comment online, go to https://www.regulations.gov/docket/FMCSA-2022-0128/document, click on this NPRM, click ``Comment,''
and type your comment into the text box on the following screen.
If you submit your comments by mail or hand delivery, submit them
in an unbound format, no larger than 8\1/2\ by 11 inches, suitable for
copying and electronic filing. If you submit comments by mail and would
like to know that they reached the facility, please enclose a stamped,
self-addressed postcard or envelope.
FMCSA will consider all comments and material received during the
comment period.
Confidential Business Information (CBI)
CBI is commercial or financial information that is both customarily
and actually treated as private by its owner. Under the Freedom of
Information Act (5 U.S.C. 552), CBI is exempt from public disclosure.
If your comments responsive to the NPRM contain commercial or financial
information that is customarily treated as private, that you actually
treat as private, and that is relevant or responsive to the NPRM, it is
important that you clearly designate the submitted comments as CBI.
Please mark each page of your submission that constitutes CBI as
``PROPIN'' to indicate it contains proprietary information. FMCSA will
treat such marked submissions as confidential under the Freedom of
Information Act, and they will not be placed in the public docket of
the NPRM. Submissions containing CBI should be sent to Mr. Brian
Dahlin, Chief, Regulatory Analysis Division, Office of Policy, FMCSA,
1200 New Jersey Avenue SE, Washington DC 20590-0001. Any comments FMCSA
receives not specifically designated as CBI will be placed in the
public docket for this rulemaking.
B. Viewing Comments and Documents
To view any documents mentioned as being available in the docket,
go to https://www.regulations.gov/docket/FMCSA-2022-0128/document and
choose the document to review. To view comments, click this NPRM, then
click ``Browse Comments.'' If you do not have access to the internet,
you may view the docket online by visiting Dockets
[[Page 48142]]
Operations in Room W12-140 on the ground floor of the DOT West
Building, 1200 New Jersey Avenue SE, Washington, DC 20590-0001, between
9 a.m. and 5 p.m., Monday through Friday, except Federal holidays. To
be sure someone is there to help you, please call (202) 366-9317 or
(202) 366-9826 before visiting Dockets Operations.
C. Privacy
DOT solicits comments from the public to better inform its
regulatory process, in accordance with 5 U.S.C. 553(c). DOT posts these
comments, without edit, including any personal information the
commenter provides, to www.regulations.gov, as described in the system
of records notice (DOT/ALL 14--Federal Docket Management System
(FDMS)), which can be reviewed at www.transportation.gov/privacy.
II. Executive Summary and 1 CFR 51
This NPRM proposes to update an incorporation by reference found at
49 CFR 385.4(b)(1) and referenced at Sec. 385.415(b). The provision at
Sec. 385.4(b)(1) currently references the April 1, 2021, edition of
CVSA's handbook titled ``North American Standard Out-of-Service
Criteria and Level VI Inspection Procedures and Out-of-Service Criteria
for Commercial Highway Vehicles Transporting Transuranics and Highway
Route Controlled Quantities of Radioactive Materials as defined in 49
CFR part 173.403.'' The CVSA handbook contains inspection procedures
and Out-of-Service Criteria (OOSC) for inspections of shipments of
transuranic waste and highway route controlled quantities of
radioactive material. The OOSC, while not regulations, provide
enforcement personnel nationwide, including FMCSA's State partners,
with uniform enforcement tolerances for inspections. The material is
available, and will continue to be available, for inspection at the
FMCSA, Office of Safety, 1200 New Jersey Avenue SE, Washington, DC
20590 (Attention: Chief, Compliance Division) at (202) 366-1812. The
document may be purchased from the Commercial Vehicle Safety Alliance,
6303 Ivy Lane, Suite 310, Greenbelt, MD 20770, (301) 830-6143,
www.cvsa.org.
In this NPRM, FMCSA proposes to incorporate by reference the April
1, 2022, edition of the handbook. This NPRM will discuss all updates to
the currently incorporated 2021 edition of the handbook.
Fourteen updates distinguish the April 1, 2022, handbook edition
from the 2021 edition. The incorporation by reference of the 2022
edition does not impose new regulatory requirements.
III. Abbreviations
CDL Commercial Driver's License
CVSA Commercial Vehicle Safety Alliance
DOT Department of Transportation
FMCSA Federal Motor Carrier Safety Administration
FMCSRs Federal Motor Carrier Safety Regulations
FR Federal Register
MCMIS Motor Carrier Management Information System
OOS Out-of-Service
OOSC Out-of-Service Criteria
RFA Regulatory Flexibility Act
UMRA The Unfunded Mandates Reform Act of 1995
U.S.C. United States Code
IV. Legal Basis for the Rulemaking
Congress has enacted several statutory provisions to ensure the
safe transportation of hazardous materials in interstate commerce.
Specifically, in provisions codified at 49 U.S.C. 5105(d), relating to
inspections of motor vehicles carrying certain hazardous material, and
49 U.S.C. 5109, relating to motor carrier safety permits, the Secretary
of Transportation is required to promulgate regulations as part of a
comprehensive safety program on hazardous materials safety permits. The
FMCSA Administrator has been delegated authority under 49 CFR
1.87(d)(2) to carry out the rulemaking functions vested in the
Secretary of Transportation. Consistent with that authority, FMCSA has
promulgated regulations under 49 CFR part 385, subpart E to address the
congressional mandate on hazardous materials safety permits. Those
regulations are the underlying provisions to which the material
incorporated by reference discussed in this notice is applicable.
V. Background
In 1986, the U.S. Department of Energy and CVSA entered into a
cooperative agreement to develop a higher level of inspection
procedures, out-of-service (OOS) conditions and/or criteria, an
inspection decal, and a training and certification program for
inspectors to conduct inspections on shipments of transuranic waste and
highway route controlled quantities of radioactive material. CVSA
developed the North American Standard Level VI Inspection Program for
Transuranic Waste and Highway Route Controlled Quantities of
Radioactive Material. This inspection program for select radiological
shipments includes inspection procedures, enhancements to the North
American Standard Level I Inspection, radiological surveys, CVSA Level
VI decal requirements, and the ``North American Standard Out-of-Service
Criteria and Level VI Inspection Procedures and Out-of-Service Criteria
for Commercial Highway Vehicles Transporting Transuranics and Highway
Route Controlled Quantities of Radioactive Materials as defined in 49
CFR part 173.403.'' As of January 1, 2005, all vehicles and carriers
transporting highway route controlled quantities of radioactive
material are regulated by the U.S. Department of Transportation. All
highway route controlled quantities of radioactive material must pass
the North American Standard Level VI Inspection prior to the shipment
being allowed to travel in the United States. All highway route
controlled quantities of radioactive material shipments entering the
United States must also pass the North American Standard Level VI
Inspection either at the shipment's point of origin or when the
shipment enters the United States.
Section 385.415 of title 49, Code of Federal Regulations,
prescribes operational requirements for motor carriers transporting
hazardous materials for which a hazardous materials safety permit is
required. Section 385.415(b) requires that motor carriers ensure a pre-
trip inspection is performed on each motor vehicle to be used to
transport a highway route controlled quantity of a Class 7
(radioactive) material, in accordance with the requirements of CVSA's
handbook titled ``North American Standard Out-of-Service Criteria and
Level VI Inspection Procedures and Out-of-Service Criteria for
Commercial Highway Vehicles Transporting Transuranics and Highway Route
Controlled Quantities of Radioactive Materials as defined in 49 CFR
part 173.403.''
According to 2018-2021 data from FMCSA's Motor Carrier Management
Information System (MCMIS), approximately 2.86 million Level I-Level VI
inspections were performed annually. Nearly 96 percent of these were
Level I,\1\ Level II,\2\ and Level III \3\ inspections. During the same
period, an average of 670 Level VI inspections were performed annually,
comprising only 0.02 percent of all inspections. On average, OOS
violations were cited in
[[Page 48143]]
only 4 Level VI inspections annually (0.6 percent), whereas on average,
OOS violations were cited in 212,603 Level I inspections (26 percent),
249,550 Level II inspections (25 percent), and 52,911 Level III
inspections (6 percent) annually. As these statistics demonstrate, OOS
violations are cited in a far lower percentage of Level VI inspections
than Level I, II, and III inspections, due largely to the enhanced
oversight and inspection of these vehicles because of the sensitive
nature of the cargo being transported.
---------------------------------------------------------------------------
\1\ Level I is a 37-step inspection procedure that involves
examination of the motor carrier's and driver's credentials, record
of duty status, the mechanical condition of the vehicle, and any
hazardous materials/dangerous goods that may be present.
\2\ Level II is a driver and walk-around vehicle inspection,
involving the inspection of items that can be checked without
physically getting under the vehicle.
\3\ Level III is a driver-only inspection that includes
examination of the driver's credentials and documents.
---------------------------------------------------------------------------
The changes to the 2022 edition of the CVSA handbook are intended
to ensure clarity in the presentation of the OOS conditions and are
generally editorial or ministerial. As discussed below, FMCSA does not
expect the changes made in the 2022 edition of the CVSA handbook to
affect the number of OOS violations cited during Level VI inspections.
VI. Discussion of Proposed Rulemaking
Section 385.4(b)(1), as amended on December 23, 2021 (86 FR 72854),
references the April 1, 2021, edition of the CVSA handbook. This NPRM
proposes to amend Sec. 385.4(b)(1) by replacing the reference to the
April 1, 2021, edition date with a reference to the new edition date of
April 1, 2022.
The changes made based on the 2022 edition of the handbook are
outlined below. It is necessary to update the materials incorporated by
reference to ensure motor carriers and enforcement officials have
convenient access to the correctly identified inspection criteria
referenced in the rules.
April 1, 2022, Changes
Fourteen changes in the 2022 edition of the CVSA handbook
distinguish it from the April 1, 2021, edition:
(1) The Policy Statement of Part I was amended to provide a clear
definition of OOSC and define the term ``imminent hazard.'' CVSA
determined that the term ``imminent hazard'' should be used to describe
an OOSC. As such, wording was used to provide consistency between the
OOSC and the Federal Motor Carrier Safety Regulations (FMCSRs). A note
was also added to clarify that the OOSC in Part I does not apply to a
co-driver. This clarification is not expected to have any effect on the
number of OOS violations cited during Level VI inspections in the
United States.
(2) Part I, Item 2.a. and Item 3.a., was amended to add a note
clarifying that information received from the National Law Enforcement
Telecommunication System or the Commercial Driver's License Information
System may be used for U.S. home jurisdiction license verification
without the need of additional confirmation. The changes are intended
to ensure clarity in the presentation of the OOS conditions and are not
expected to affect the number of OOS violations cited during Level VI
inspections in the United States.
(3) Part I, Item 2.b. and Item 3.c., were amended to clarify in the
note on Mexico's ``Licencia Federal de Conductor'' (LFC) that only
Class E requires an endorsement. Prior to February 25, 2016, a driver
with Mexico's Class B license could operate a commercial motor vehicle
combination that included double trailers. The ``Observaciones''
section on the back of the license did not include an explicit doubles
endorsement. Similarly, a driver could obtain Mexico's Class E license
and the ``Observaciones'' section on the back of the license did not
include an explicit hazardous materials endorsement. After February 25,
2016, Mexico's Direccion General de Autotransporte Federal,
Secretar[iacute]a de Infraestructura, Comunicaciones, y Transportes
required a new Class E license for drivers that wish and are qualified
to operate doubles and/or transport hazardous materials. Additionally,
the ``Observaciones'' section on the back of the license has an
explicit endorsement specifying whether the driver is authorized to use
doubles or transport hazardous materials or both. However, a
clarification was needed to specify that the endorsement on the back of
the license is for the Class E license, not the Class B license. This
information had already been updated in the LFC Inspection Schematic
issued in April 2021. This amendment is applicable only to the
enforcement of Mexican regulations and will not have any effect on the
number of OOS violations cited during Level VI inspections in the
United States.
(4) Part I, Item 7.c., was amended to add a table clarifying the
Commercial Driver's License (CDL) and non-CDL drivers prohibited in the
Drug and Alcohol Clearinghouse. Currently, this section details the OOS
actions that are required to be taken when a driver is recorded in the
Drug and Alcohol Clearinghouse as prohibited from performing safety-
sensitive functions per 382.501(a). However, CVSA noted that the
current FMCSRs, specifically Sec. 382.501, do not state that a driver
operating a non-CDL required vehicle and engaged in intrastate commerce
be placed OOS. Therefore, a guidance table was provided to clarify the
OOSC for CDL and non-CDL drivers prohibited from performing safety
sensitive functions during intrastate and interstate commerce. A note
was also added explaining the applicability of the table. The changes
are intended to ensure clarity in the presentation of the OOS
conditions and are not expected to affect the number of OOS violations
cited during Level VI inspections in the United States.
(5) The Policy Statement of Part II was amended to provide a clear
definition of OOSC and define the term ``imminent hazard.'' CVSA
determined that the term ``imminent hazard'' should be used to describe
an OOSC. As such, wording was used to provide consistency between the
OOSC and the FMCSRs. A note was also added to clarify that the OOSC in
Part I does not apply to a co-driver. This clarification is not
expected to have any effect on the number of OOS violations cited
during Level VI inspections in the United States.
(6) The chart for ``Defective Brakes'' in Part II, Item 1.a., was
amended to add a note to clarify that brakes on wheels required or not
shall be used in the 20 percent calculation for the total number of
brakes. Clarification was necessary specifically in driveaway/towaway
combination cases where brakes are not required on the towed unit. The
20 percent calculation is only used to determine if the vehicle or
combination is OOS based on the number of defective brakes versus the
number of operational brakes. Therefore, CVSA determined that all
brakes must be considered for the purpose of imminent hazard, whether
they are required or not. This clarification is not expected to have
any effect on the number of OOS violations cited during Level VI
inspections in the United States.
(7) Part II, Item 1.d.2., was amended to add language to specify
that a breakaway device can be attached to a permanently mounted hitch.
Clarification was needed to specify that a hitch that is bolted to the
towing vehicle should be considered permanently attached to the
vehicle. Thus, a breakaway device like a cable attached to a permanent
hitch is acceptable. This clarification is not expected to have any
effect on the number of OOS violations cited during Level VI
inspections in the United States.
(8) Reference table Part II, Item 1.h.1. was amended to clarify
when an air hose should be placed OOS. CVSA contacted the industry to
discuss air brake hose failure modes and OOS conditions. Brake hose
manufacturers provided information indicating that when the
reinforcement ply layer is frayed the integrity of the brake hose is
compromised and thus, to prevent a
[[Page 48144]]
failure, the brake hose should be placed OOS. According to this
information, The Society of Automotive Engineers provided updated
language and guidance to the OOS condition. As such, CVSA added
language to the OOS reference table and updated the diagram for air
hoses/tubing. In addition, a note was also added to define the term
``reinforcement ply.'' The changes are intended to ensure clarity in
the presentation of the OOS conditions and are not expected to affect
the number of OOS violations cited during Level VI inspections in the
United States.
(9) Part II, Item 1.o., was amended to add an OOS condition to
address a situation where the entire master cylinder assembly is found
loose. In response to a video that shows an inspection where the entire
master cylinder assembly, including the backup system, was loose on the
firewall, CVSA determined that this condition, although rare, would
cause a severe reduction in braking action and, in other cases, brake
failure if the assembly is completely detached from the firewall. Part
II, Item 1.o. was amended to add an OOS condition that a vehicle should
be placed OOS when the master cylinder assembly including the backup
system, power assist, or power brake unit has loose or missing mounting
bolts. The changes are intended to ensure clarity in the presentation
of the OOS conditions and are not expected to affect the number of OOS
violations cited during Level VI inspections in the United States.
(10) Part II, Item 9.b. was amended to clarify that this section
only applies to lighting systems and no other electrical systems. There
have been instances where inspectors have been using this section and
applying it incorrectly to electric brakes. The purpose of the OOS
condition in the ``Lighting Devices'' section was to only address
lighting. However, for further clarity, CVSA determined that the term
``lighting'' should be added to the existing language to clarify that
this condition only applies to the lights. The changes are intended to
ensure clarity in the presentation of the OOS conditions and are not
expected to affect the number of OOS violations cited during Level VI
inspections in the United States.
(11) Part II, Item 12.a.2., was amended to remove the reference to
``breaker strip'' in a steering tire. The term ``breaker strip'' in the
OOSC is outdated nomenclature that is no longer used in reference
materials describing radial truck tires. Enforcement personnel
therefore have trouble identifying and finding the area of the
``breaker strip'' in supporting documentation. Also, the sidewall and
tread area OOS conditions cover the same area of the tire rendering the
term redundant. As such, CVSA determined that the term ``breaker
strip'' should be removed from the section. The changes are intended to
ensure clarity in the presentation of the OOS conditions and are not
expected to affect the number of OOS violations cited during Level VI
inspections in the United States.
(12) The Policy Statement of Part III was amended to provide a
clear definition of OOSC and define the term ``imminent hazard.'' CVSA
determined that the term ``imminent hazard'' should be used to describe
an OOSC. As such, wording was used to provide consistency between the
OOSC and the FMCSRs. A note was also added to clarify that the OOSC in
Part III does not apply to a co-driver. This clarification is not
expected to have any effect on the number of OOS violations cited
during Level VI inspections in the United States.
(13) Part III, Item 4.a., was amended to clarify in the notes that
the identification number is not required on the transport vehicle if
it is visible on the bulk packaging. CVSA determined that if there is
no identification number on the transport vehicle, the identification
number displayed on an orange panel or incorporated with a placard (in
the United States and Canada), or on a white square-on-point (United
States only) that is visible on a bulk package is sufficient to satisfy
the requirement. The changes are intended to ensure clarity in the
presentation of the OOS conditions and are not expected to affect the
number of OOS violations cited during Level VI inspections in the
United States.
(14) The Policy Statement of Part IV was amended to provide a
better description of OOSC and define the term ``imminent hazard.'' The
former policy statement stated that an ``Out of Service Violation''
preclude a driver from further operation of a commercial motor vehicle
for a specified period of time or for some violations until a required
condition is met. CVSA found that the language in the OOSC description
needed consistency with the FMCSRs and determined that a driver that
presents an ``imminent hazard'' precluding safe operation of a
commercial motor vehicle should be used to describe OOSC. Specifically,
383.5 defines imminent hazard as the existence of any condition of a
driver that substantially increases the likelihood of serious injury or
death if not discontinued immediately. As such, CVSA updated the
language in the OOSC and defined ``imminent hazard'' as described in
the FMCSRs. A note was also added to clarify that the OOSC in Part IV
does not apply to a co-driver. This clarification is not expected to
have any effect on the number of OOS violations cited during Level VI
inspections in the United States.
VII. International Impacts
Motor carriers and drivers are subject to the laws and regulations
of the countries that they operate in, unless an international
agreement states otherwise. Drivers and carriers should be aware of the
regulatory differences between nations.
The CVSA is an organization representing Federal, State, and
Provincial motor carrier safety enforcement agencies in the United
States, Canada, and Mexico. The OOSC provide uniform enforcement
tolerances for inspections conducted in all three countries.
VIII. Section-By-Section Analysis
Section 385.4 Matter Incorporated by Reference
Section 385.4(b)(1), as amended on December 23, 2021, references
the April 1, 2021, edition of the CVSA handbook. This NPRM would
replace the reference to the April 1, 2021, edition date with a
reference to the new edition date of April 1, 2022.
IX. Regulatory Analyses
A. Executive Order (E.O.) 12866 (Regulatory Planning and Review), E.O.
13563 (Improving Regulation and Regulatory Review), and DOT Regulatory
Policies and Procedures
FMCSA has considered the impact of this notice of proposed
rulemaking under E.O. 12866 (58 FR 51735, Oct. 4, 1993), Regulatory
Planning and Review, E.O. 13563 (76 FR 3821, Jan. 21, 2011), Improving
Regulation and Regulatory Review, and DOT's regulatory policies and
procedures. The Office of Information and Regulatory Affairs within the
Office of Management and Budget (OMB) determined that this notice of
proposed rulemaking is not a significant regulatory action under
section 3(f) of E.O. 12866, as supplemented by E.O. 13563, and does not
require an assessment of potential costs and benefits under section
6(a)(3) of that order. Accordingly, OMB has not reviewed it under that
E.O.
The proposed rule, if finalized, would update an incorporation by
reference from the April 1, 2021, edition to the April 1, 2022, edition
of CVSA's handbook titled ``North American Standard Out-of-Service
Criteria and Level VI Inspection Procedures and Out-
[[Page 48145]]
of-Service Criteria for Commercial Highway Vehicles Transporting
Transuranics and Highway Route Controlled Quantities of Radioactive
Materials as defined in 49 CFR part 173.403.'' FMCSA reviewed its MCMIS
data on inspections performed from 2018 to 2021 and does not expect the
handbook updates to have any effect on the number of OOS violations
cited during Level VI inspections. Therefore, the proposed rule's
impact would be de minimis.
B. Congressional Review Act
This rule is not a major rule as defined under the Congressional
Review Act (5 U.S.C. 801-808).\4\
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\4\ A ``major rule'' means any rule that OMB finds has resulted
in or is likely to result in (a) an annual effect on the economy of
$100 million or more; (b) a major increase in costs or prices for
consumers, individual industries, geographic regions, Federal,
State, or local government agencies; or (c) significant adverse
effects on competition, employment, investment, productivity,
innovation, or on the ability of United States-based enterprises to
compete with foreign-based enterprises in domestic and export
markets (49 CFR 389.3).
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C. Advance Notice of Proposed Rulemaking
Under 49 U.S.C. 31136(g), FMCSA is required to publish an advance
notice of proposed rulemaking (ANPRM) or proceed with a negotiated
rulemaking, if a proposed rule is likely to lead to the promulgation of
a major rule. As this proposed rule is not likely to result in the
promulgation of a major rule, the Agency is not required to issue an
ANPRM or to proceed with a negotiated rulemaking.
D. Regulatory Flexibility Act
The Regulatory Flexibility Act (5 U.S.C. 601, et seq.) (RFA), as
amended by the Small Business Regulatory Enforcement Fairness Act of
1996,\5\ requires Federal agencies to consider the effects of the
regulatory action on small business and other small entities and to
minimize any significant economic impact. The term small entities
comprises small businesses and not-for-profit organizations that are
independently owned and operated and are not dominant in their fields,
and governmental jurisdictions with populations of less than 50,000 (5
U.S.C. 601(6)). Accordingly, DOT policy requires an analysis of the
impact of all regulations on small entities, and mandates that agencies
strive to lessen any adverse effects on these businesses. None of the
updates from the 2022 edition impose new requirements or make
substantive changes to the FMCSRs.
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\5\ Public Law 104-121, 110 Stat. 857, (Mar. 29, 1996).
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When an Agency issues a rulemaking proposal, the RFA requires the
Agency to ``prepare and make available an initial regulatory
flexibility analysis'' that will describe the impact of the proposed
rule on small entities (5 U.S.C. 603(a)). Section 605 of the RFA allows
an agency to certify a rule, instead of preparing an analysis, if the
proposed rule is not expected to impact a substantial number of small
entities. The proposed rule would update an incorporation by reference
found at Sec. 385.4(b)(1) and referenced at Sec. 385.415(b), and
would incorporate by reference the April 1, 2022, edition of the CVSA
handbook. The changes to the 2022 edition of the CVSA handbook from the
2021 edition are intended to ensure clarity in the presentation of the
OOS conditions and are generally editorial or ministerial. As noted
above, FMCSA does not expect the changes made in the 2022 edition of
the CVSA handbook to affect the number of OOS violations cited during
Level VI inspections in the United States. Accordingly, I certify that
the proposed action would not have a significant economic impact on a
substantial number of small entities.
E. Assistance for Small Entities
In accordance with section 213(a) of the Small Business Regulatory
Enforcement Fairness Act of 1996,\6\ FMCSA wants to assist small
entities in understanding this proposed rule so they can better
evaluate its effects on themselves and participate in the rulemaking
initiative. If the proposed rule would affect your small business,
organization, or governmental jurisdiction and you have questions
concerning its provisions or options for compliance, please consult the
person listed under FOR FURTHER INFORMATION CONTACT.
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\6\ Public Law 104-121, 110 Stat. 857, (Mar. 29, 1996).
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Small businesses may send comments on the actions of Federal
employees who enforce or otherwise determine compliance with Federal
regulations to the Small Business Administration's Small Business and
Agriculture Regulatory Enforcement Ombudsman (Office of the National
Ombudsman, see https://www.sba.gov/about-sba/oversight-advocacy/office-national-ombudsman) and the Regional Small Business Regulatory Fairness
Boards. The Ombudsman evaluates these actions annually and rates each
agency's responsiveness to small business. If you wish to comment on
actions by employees of FMCSA, call 1-888-REG-FAIR (1-888-734-3247).
DOT has a policy regarding the rights of small entities to regulatory
enforcement fairness and an explicit policy against retaliation for
exercising these rights.
F. Unfunded Mandates Reform Act of 1995
The Unfunded Mandates Reform Act of 1995 (2 U.S.C. 1531-1538)
(UMRA) requires Federal agencies to assess the effects of their
discretionary regulatory actions. The Act addresses actions that may
result in the expenditure by a State, local, or Tribal government, in
the aggregate, or by the private sector of $178 million (which is the
value equivalent of $100 million in 1995, adjusted for inflation to
2021 levels) or more in any 1 year. Though this NPRM would not result
in such an expenditure, and the analytical requirements of UMRA do not
apply as a result, the Agency discusses the effects of this rule
elsewhere in this preamble.
G. Paperwork Reduction Act
This proposed rule contains no new information collection
requirements under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501-
3520).
H. E.O. 13132 (Federalism)
A rule has implications for federalism under section 1(a) of E.O.
13132 if it has ``substantial direct effects on the States, on the
relationship between the national government and the States, or on the
distribution of power and responsibilities among the various levels of
government.''
FMCSA has determined that this rule would not have substantial
direct costs on or for States, nor would it limit the policymaking
discretion of States. Nothing in this document preempts any State law
or regulation. Therefore, this rule does not have sufficient federalism
implications to warrant the preparation of a Federalism Impact
Statement.
I. Privacy
The Consolidated Appropriations Act, 2005,\7\ requires the Agency
to assess the privacy impact of a regulation that will affect the
privacy of individuals. This NPRM would not require the collection of
personally identifiable information.
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\7\ Public Law 108-447, 118 Stat. 2809, 3268, note following 5
U.S.C. 552a (Dec. 4, 2014).
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J. E.O. 13175 (Indian Tribal Governments)
This rule does not have Tribal implications under E.O. 13175,
Consultation and Coordination with Indian Tribal Governments, because
it
[[Page 48146]]
does not have a substantial direct effect on one or more Indian Tribes,
on the relationship between the Federal Government and Indian Tribes,
or on the distribution of power and responsibilities between the
Federal Government and Indian Tribes.
K. National Environmental Policy Act of 1969
FMCSA analyzed this proposed rule pursuant to the National
Environmental Policy Act of 1969 (42 U.S.C. 4321, et seq.) and
determined this action is categorically excluded from further analysis
and documentation in an environmental assessment or environmental
impact statement under FMCSA Order 5610.1 (69 FR 9680), Appendix 2,
paragraph 6(b). This Categorical Exclusion (CE) covers minor revisions
to regulations. The proposed requirements in this rulemaking are
covered by this CE.
List of Subjects in 49 CFR 385
Administrative practice and procedure, Highway safety,
Incorporation by reference, Mexico, Motor carriers, Motor vehicle
safety, Reporting and recordkeeping requirements.
In consideration of the foregoing, FMCSA proposes to amend 49 CFR
chapter III, part 385, as set forth below:
PART 385--SAFETY FITNESS PROCEDURES
0
1. The authority citation for part 385 continues to read as follows:
Authority: 49 U.S.C. 113, 504, 521(b), 5105(d), 5109, 5113,
13901-13905, 13908, 31135, 31136, 31144, 31148, 31151, 31502; sec.
113(a), Pub. L. 103-311, 108 Stat. 1673, 1676; sec. 408, Pub. L.
104-88, 109 Stat. 803, 958; sec. 350, Pub. L. 107-87, 115 Stat. 833,
864; sec. 5205, Pub. L. 114-94, 129 Stat. 1312, 1537; and 49 CFR
1.87.
0
2. Amend Sec. 385.4 by revising paragraphs (a) and (b)(1) to read as
follows:
Sec. 385.4 Matter incorporated by reference.
(a) Certain material is incorporated by reference into this part
with the approval of the Director of the Federal Register in accordance
with 5 U.S.C. 552(a) and 1 CFR part 51. All approved incorporation by
reference (IBR) material is available for inspection at the FMCSA and
at the National Archives and Records Administration (NARA). Contact
FMCSA at: Federal Motor Carrier Safety Administration, Office of
Enforcement and Compliance, 1200 New Jersey Ave. SE, Washington, DC
20590; Attention: Chief, Compliance Division at (202) 366-1812. For
information on the availability of this material at NARA, email:
[email protected], or go to: www.archives.gov/federal-register/cfr/ibr-locations.html. The material may be obtained from the source in
the following paragraph of this section.
(b) * * *
(1) ``North American Standard Out-of-Service Criteria and Level VI
Inspection Procedures and Out-of-Service Criteria for Commercial
Highway Vehicles Transporting Transuranics and Highway Route Controlled
Quantities of Radioactive Materials as defined in 49 CFR part
173.403,'' April 1, 2022, incorporation by reference approved for Sec.
385.415(b).
* * * * *
Issued under authority delegated in 49 CFR 1.87.
Robin Hutcheson,
Deputy Administrator.
[FR Doc. 2022-16510 Filed 8-5-22; 8:45 am]
BILLING CODE 4910-EX-P