[Federal Register Volume 61, Number 124 (Wednesday, June 26, 1996)]
[Proposed Rules]
[Pages 33075-33082]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-16248]



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DEPARTMENT OF TRANSPORTATION

Office of the Secretary

49 CFR Part 7

[Docket No. OST-96-1430; Notice 96-17]
RIN 2105-AC58


Public Availability of Information

AGENCY: Office of the Secretary, DOT.

ACTION: Notice of proposed rulemaking.

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SUMMARY: Department of Transportation proposes to revise regulations 
implementing the Freedom of Information Act (FOIA), 5 U.S.C. 552. This 
revision updates organizational changes since the last revision and 
streamlines the regulations in order to make the regulations more 
useful.

DATES: Comments are due August 26, 1996.

ADDRESSES: Comments should be addressed to Documentary Services 
Division, Attention: Docket Section, Room PL401, Docket No. OST-96-
1430, Department of Transportation, C-55, Washington, DC 20590. Any 
person wishing acknowledgment that his/her comments have been received 
should include a self-addressed stamped postcard. Comments received 
will be available for public inspection and copying in the Documentary 
Services Division, Room PL401, Department of Transportation Building, 
400 Seventh Street, SW, Washington, DC, from 10:00 AM to 5:00 PM ET 
Monday through Friday except Federal holidays.

FOR FURTHER INFORMATION CONTACT: Dorothy A. Chambers, Chief, FOIA 
Division, Office of the General Counsel, C-12, Department of 
Transportation, Washington, DC 20590, telephone (202) 366-4542, FAX 
(202) 366-7152.

SUPPLEMENTARY INFORMATION: The President instituted a Regulatory Review 
initiative, for the reinvention of regulations by eliminating 
duplicate, redundant, or unnecessary language and revising regulations 
to meet the needs of users. In response to this initiative, we have 
reviewed part 7 and are proposing to revise this section to update and 
streamline information on public availability of information. We 
propose to reorganize this part by combining in subpart B sections that 
relate to information that is publicly available without a specific 
request. Similarly, we have combined sections in subpart C that address 
information that must be requested under FOIA. We have shortened the 
descriptions of FOIA exemptions and propose to delete the Appendices 
that set forth redundant information concerning document inspection 
facilities. We propose to replace these appendices with provisions in 
Secs. 7.10 and 7.15, which set forth necessary information regarding 
public records available at Department Docket locations and FOIA 
contacts for records requested under the FOIA.

Analysis of Regulatory Impacts

    This amendment is not a ``significant regulatory action'' within 
the meaning of Executive Order 12866. It is also not significant within 
the definition in DOT's Regulatory Policies and Procedures, 49 FR 11034 
(1979), in part because it does not involve any change in important 
Departmental policies. Because the economic impact should be minimal, 
further regulatory evaluation is not necessary. Moreover, I certify 
that this proposal will not have a significant economic impact on a 
substantial number of small entities.
    This proposal does not significantly affect the environment, and 
therefore an environmental impact statement is not required under the 
National Environmental Policy Act of 1969. It has also been reviewed 
under Executive Order 12612, Federalism, and it has been determined 
that it does not have sufficient implications for federalism to warrant 
preparation of a Federalism Assessment.
    Finally, the proposal does not contain any collection of 
information requirements, requiring review under the Paperwork 
Reduction Act, as amended.

List of Subjects in 49 CFR Part 7

    Freedom of information.

    In accordance with the above, DOT proposes to revise 49 CFR part 7 
to read as follows:

PART 7--PUBLIC AVAILABILITY OF INFORMATION

Subpart A--General Provisions

Sec.
7.1  General.
7.2  Definitions.
Subpart B--Information Required to be Made Public by the Department
7.3  Publication in the Federal Register.
7.4  Publication Required.

[[Page 33076]]

7.5  Availability of Opinions, Orders, Staff Manuals, Statements of 
Policy and Interpretations and Indices.
7.6  Deletion of Identifying Detail.
7.7  Access to Materials and Indices.
7.8  Copies.
7.9  Protection of Records.
7.10  Public Records Available at Department Docket Locations.
Subpart C--Availability of Reasonably Described Records Under the 
Freedom of Information Act
7.11  Applicability.
7.12  Administration of Part.
7.13  Records Available.
7.14  Requests for Records.
7.15  Contacts for Records Requested Under the FOIA.
7.16  Requests for Records of Concern to More than One Government 
Organization.
7.17  Consultation with Submitters of Commercial and Financial 
Information.
Subpart D--Procedures for Appealing Decisions Not To Disclose Records 
and/or Waive Fees
7.21  General.

Subpart E--Time Limits

7.31  Initial Determinations.
7.32  Final Determinations.
7.33  Extension.

Subpart F--Fees

7.41  General.
7.42  Payment of Fees.
7.43  Fee Schedule.
7.44  Services Performed Without Charge or at a Reduced Charge.
7.45  Transcripts.
7.46  Alternative Sources of Information.

    Authority: 5 U.S.C. 552; 31 U.S.C. 9701; 49 U.S.C. 322; E.O. 
12600

Subpart A--General Provisions


Sec. 7.1  General.

    (a) This part implements 5 U.S.C. 552, and prescribes rules 
governing the availability to the public of records of the Department 
of Transportation. Many documents are made available to the public for 
inspection and copying through the Department Docket locations that are 
listed in subpart B, which contains the regulations of the Department 
of Transportation concerning the availability to the public of opinions 
issued in the adjudication of cases, policy issuances, administrative 
manuals, and other information made available to the public.
    (b) Subpart C of this part describes the records that are not 
required to be disclosed on the Department's own action under this 
part, but that may be available upon request under the Freedom of 
Information Act.
    (c) Indices are maintained to reflect all records subject to 
subpart B of this part, and are available for public inspection and 
copying as provided in subpart B.


Sec. 7.2  Definitions.

    As used in this part--
    Act and FOIA mean the Freedom of Information Act, 5 U.S.C. 552.
    Administrator means the head of each operating element of the 
Department and includes the Commandant of the Coast Guard and the 
Director of the Bureau of Transportation Statistics.
    Department or DOT means the Department of Transportation, including 
the Office of the Secretary of Transportation, the Office of the 
Inspector General, and the following operating elements:
    (1) United States Coast Guard.
    (2) Federal Aviation Administration.
    (3) Federal Highway Administration.
    (4) Federal Railroad Administration.
    (5) National Highway Traffic Safety Administration.
    (6) Federal Transit Administration.
    (7) Saint Lawrence Seaway Development Corporation.
    (8) Maritime Administration.
    (9) Research and Special Programs Administration.
    (10) Bureau of Transportation Statistics.
    Record includes any writing, drawing, map, recording, tape, film, 
photograph, or other documentary material by which information is 
preserved. The term also includes any such documentary material stored 
by computer.
    Secretary means the Secretary of Transportation or any person to 
whom the Secretary has delegated authority in the matter concerned.

Subpart B--Information Required To Be Made Public by the Department


Sec. 7.3   Publication in the Federal Register.

    This section implements 5 U.S.C. 552(a)(1), and prescribes rules 
governing the publication in the Federal Register of the following:
    (a) Descriptions of the organization of the Department, including 
its operating elements and the established places at which, the 
officers from whom, and the methods by which, the public may secure 
information and make submittals or obtain decisions;
    (b) Statements of the general course and methods by which the 
Department's functions are channeled and determined, including the 
nature and requirements of all formal and informal procedures 
available;
    (c) Rules of procedure, descriptions of forms available or the 
places at which forms may be obtained, and instructions as to the scope 
and contents of all papers, reports, or examinations;
    (d) Substantive rules of general applicability adopted as 
authorized by law and statements of general policy or interpretations 
of general applicability formulated and adopted by the Department; and
    (e) Each amendment, revision, or repeal of any material listed in 
paragraphs (a) through (d) of this section.


Sec. 7.4   Publication Required.

    (a) General. The material described in Sec. 7.3 shall be published 
in the Federal Register. For the purposes of this paragraph, material 
that will reasonably be available to the class of persons affected by 
it will be considered to be published in the Federal Register if it has 
been incorporated by reference therein with the approval of the 
Director of the Federal Register.
    (b) Effect of nonpublication. Except to the extent that a person 
has actual and timely notice of the terms thereof, a person may not in 
any manner be required to resort to, or be adversely affected by, any 
procedure or matter required to be published in the Federal Register, 
but not so published.


Sec. 7.5   Availability of Opinions, Orders, Staff Manuals, Statements 
of Policy, and Interpretations and Indices.

    (a) This section implements 5 U.S.C. 552(a)(2). It prescribes the 
rules governing the availability for public inspection and copying of 
the following:
    (1) Any final opinion (including a concurring or dissenting 
opinion) or order made in the adjudication of a case.
    (2) Any policy or interpretation that has been adopted under the 
authority of the Department, including any policy or interpretation 
concerning a particular factual situation, if that policy or 
interpretation can reasonably be expected to have precedential value in 
any case involving a member of the public in a similar situation.
    (3) Any administrative staff manual or instruction to staff that 
affects any member of the public, including the prescribing of any 
standard, procedure, or policy that, when implemented, requires or 
limits any action of any member of the public or prescribes the manner 
of performance of any activity by any member of the public. However, 
this does not include staff manuals or instructions to staff concerning 
internal operating rules, practices, guidelines, and procedures for 
Departmental inspectors, investigators, law enforcement officers, 
examiners, auditors, and negotiators and other information developed 
predominantly for internal use, the release of which

[[Page 33077]]

could significantly risk circumvention of agency regulations or 
statutes.
    (b) Any material listed in paragraph (a) of this section that is 
not made available for public inspection and copying, or that is not 
indexed as required by Sec. 7.7, may not be cited, relied on, or used 
as precedent by the Department to affect any member of the public 
adversely unless the person to whose detriment it is relied on, used, 
or cited has had actual timely notice of the material.
    (c) This section does not apply to material that is published in 
the Federal Register or covered by subpart C of this part.


Sec. 7.6   Deletion of Identifying Detail.

    Whenever it is determined to be necessary to prevent a clearly 
unwarranted invasion of personal privacy, identifying details will be 
deleted from any record covered by this subpart that is published or 
made available for inspection. A full explanation of the justification 
for the deletion will accompany the record published or made available 
for inspection.


Sec. 7.7   Access to Materials and Indices.

    (a) Except as provided in paragraph (b) of this section, material 
listed in Sec. 7.5 will be made available for inspection and copying to 
any member of the public at document inspection facilities of the 
Department. It has been determined that it is unnecessary and 
impracticable to publish the index of materials in the Federal 
Register. Information as to the kinds of materials available at each 
facility may be obtained from the facility or the headquarters of the 
operating element of which it is a part.
    (b) The material listed in Sec. 7.5 that is published and offered 
for sale will be indexed, but is not required to be kept available for 
public inspection. Whenever practicable, however, it will be made 
available for public inspection at any document inspection facility 
maintained by the Office of the Secretary or an operating element, as 
appropriate.


Sec. 7.8   Copies.

    Copies of any material covered by this subpart that is not 
published and offered for sale may be ordered, upon payment of the 
appropriate fee, from the Docket Offices listed in Sec. 7.10. Copies 
will be certified upon request and payment of the fee prescribed in 
Sec. 7.43.


Sec. 7.9   Protection of Records.

    (a) Records made available for inspection and copying may not be 
removed, altered, destroyed, or mutilated.
    (b) 18 U.S.C. 641 provides, in pertinent part, for criminal 
penalties for embezzlement or theft of government records.
    (c) 18 U.S.C. 2071 provides, in pertinent part, for criminal 
penalties for the willful and unlawful concealment, mutilation or 
destruction of, or the attempt to conceal, mutilate, or destroy, 
government records.


Sec. 7.10   Public Records Available at Department Docket Locations.

    Publicly available records are located in DOT Docket Units as 
follows (all times are eastern time zone, and are Monday--Friday except 
Federal holidays):
    (a) Docket Units located at 400 7th Street, S.W., Washington, D.C. 
20590 include:
    (1) Office of the Secretary and former Civil Aeronautics Board 
material, Plaza 401, Hours 10:00-5:00.
    (2) Federal Highway Administration, Room 4232, Hours 8:30-5:00.
    (3) Federal Railroad Administration, Room 8209, Hours 9:30-4:00
    (4) National Highway Traffic Safety Administration, Room 5111, 
Hours 9:30-4:00.
    (5) Federal Transit Administration, Room 9316A, Hours 8:30-5:00.
    (6) Maritime Administration, Room 7210, Hours 8:30-5:00.
    (7) Research and Special Programs Administration, Room 8421, Hours 
8:30-5:00.
    (b) Federal Aviation Administration, 800 Independence Avenue, S.W., 
Washington, D. C. 20591:
    (1) Rules Dockets Room 915-G, Hours 8:30-5:00.
    (2) Enforcement Dockets, Room 924-C, Hours 8:30-5:00.
    (c) United States Coast Guard, Room 3406, Hours 8:30-5:00, 2100 2nd 
Street, S.W., Washington, D. C. 20593-0001.
    (d) Operating elements also maintain public record units at 
regional offices and at the offices of the Commandant and District 
Commanders of the United States Coast Guard. These facilities are open 
to the public Monday through Friday except Federal holidays, during 
regular working hours.
    (e) Additional information on the location and hours of operations 
for Department Docket Offices can be obtained through the Office of the 
Secretary Docket Unit, mentioned above, at (202) 366-9322.

Subpart C--Availability of Reasonably Described Records Under the 
Freedom of Information Act


Sec. 7.11   Applicability.

    (a) This subpart implements 5 U.S.C 552(a)(3), and prescribes the 
regulations governing public inspection and copying of reasonably 
described records under the Freedom of Information Act.
    (b) This subpart does not apply to:
    (1) Records published in the Federal Register, opinions in the 
adjudication of cases, statements of policy and interpretations, and 
administrative staff manuals that have been published or made available 
under subpart B of this part.
    (2) Records or information compiled for law enforcement purposes 
and covered by the disclosure exemption described in Sec. 7.13(c)(7) 
if--
    (i) The investigation or proceeding involves a possible violation 
of criminal law; and
    (ii) There is reason to believe that--
    (A) The subject of the investigation or proceeding is not aware of 
its pendency, and
    (B) Disclosure of the existence of the records could reasonably be 
expected to interfere with enforcement proceedings.
    (3) Informant records maintained by a criminal law enforcement 
component of the Department under an informant's name or personal 
identifier, if requested by a third party according to the informant's 
name or personal identifier, unless the informant's status as an 
informant has been officially confirmed.


Sec. 7.12   Administration of Part.

    Authority to administer this part and to issue determinations with 
respect to initial requests is delegated as follows:
    (a) to the General Counsel for the records of the Office of the 
Secretary other than the Office of the Inspector General.
    (b) to the Inspector General for records of the Office of the 
Inspector General.
    (c) to the Administrator of each operating element, who may 
redelegate to officers of that element the authority to administer this 
part in connection with defined groups of records. However, each 
Administrator may redelegate the duties under subpart D of this part to 
consider appeals of initial denials of requests for records only to his 
or her deputy or to not more than one other officer who reports 
directly to the Administrator and who is located at the headquarters of 
that operating element.


Sec. 7.13   Records Available.

    (a) Policy. It is the policy of the Department of Transportation to 
make

[[Page 33078]]

the records of the Department available to the public to the greatest 
extent possible, in keeping with the spirit of the Freedom of 
Information Act. This includes providing reasonably segregable 
information from documents that contain information that may be 
withheld.
    (b) Statutory disclosure requirement. The Act requires that the 
Department, on a request from a member of the public submitted in 
accordance with the procedures in this subpart, make requested records 
available for inspection and copying.
    (c) Statutory exemptions. Exempted from the Act's statutory 
disclosure requirement are matters that are:
    (1)(i) Specifically authorized under criteria established by 
Executive Order to be kept secret in the interest of national defense 
or foreign policy, and
    (ii) In fact properly classified pursuant to such Executive order;
    (2) Related solely to the internal personnel rules and practices of 
an agency;
    (3) Specifically exempted from mandatory disclosure by statute 
(other than the Privacy Act), provided that such statute--
    (i) Requires that the matters be withheld from the public in such a 
manner as to leave not any discretion on the issue, or
    (ii) Establishes particular criteria for withholding or refers to 
particular criteria for withholding or refers to particular types of 
matters to be withheld;
    (4) Trade secrets and commercial or financial information obtained 
from a person and privileged or confidential;
    (5) Inter-agency or intra-agency memorandums or letters that would 
not be available by law to a party other than an agency in litigation 
with the agency;
    (6) Personnel and medical files and similar files the disclosure of 
which would constitute a clearly unwarranted invasion of personal 
privacy;
    (7) Records or information compiled for law enforcement purposes, 
but only to the extent that the production of such law enforcement 
records or information--
    (i) Could reasonably be expected to interfere with enforcement 
proceedings,
    (ii) Would deprive a person of a right to a fair or an impartial 
adjudication,
    (iii) Could reasonably be expected to constitute an unwarranted 
invasion of personal privacy,
    (vi) Could reasonably be expected to disclose the identity of a 
confidential source, including a State, local, or foreign agency or 
authority or any private institution that furnished information on a 
confidential basis, and, in the case of a record or information 
compiled by a criminal law enforcement authority in the course of a 
criminal investigation, or by an agency conducting a lawful national 
security intelligence investigation, information furnished by a 
confidential source,
    (v) Would disclose techniques and procedures for law enforcement 
investigations or prosecutions or would disclose guidelines for law 
enforcement investigations or prosecutions if such disclosure could 
reasonably be expected to risk circumvention of the law, or
    (vi) Could reasonably be expected to endanger the life or physical 
safety of any individual;
    (8) Contained in or related to examination, operating, or condition 
reports prepared by, on behalf of, or for the use of an agency 
responsible for the regulation or supervision of financial 
institutions; or
    (9) Geological and geophysical information and data, including 
maps, concerning wells.


Sec. 7.14   Requests for Records.

    (a) Each person desiring access to or a copy of a record covered by 
this subpart shall comply with the following provisions:
    (1) A written request must be made for the record.
    (2) Such request should indicate that it is being made under the 
Freedom of Information Act.
    (3) The envelope in which the request is sent should be prominently 
marked: ``FOIA.''
    (4) The request should be addressed to the appropriate office as 
set forth in Sec. 7.15.
    (b) If the requirements of paragraph (a) of this section are not 
met, treatment of the request will be at the discretion of the agency. 
The ten-day limit for responding to requests, described in Sec. 7.31, 
will not start to run until the request has been identified, or would 
have been identified with the exercise of due diligence, by an employee 
of the Department as a request pursuant to the Freedom of Information 
Act and has been received by the office to which it should have been 
originally sent.
    (c) Form of Requests. (1) Each request should describe the 
particular record to the fullest extent possible. The request should 
describe the subject matter of the record, and, if known, indicate the 
date when it was made, the place where it was made, and the person or 
office that made it. If the description does not enable the office 
handling the request to identify or locate the record sought, that 
office will notify the person making the request and, to the extent 
possible, indicate the additional data required.
    (2) Each request shall--
    (i) Specify the fee category (commercial use, news media, 
educational institution, noncommercial scientific institution, or 
other) in which the requester claims the request to fall and the basis 
of this claim (see subpart F for fees and fee waiver requirements), and
    (ii) State the maximum amount of fees that the requester is willing 
to pay or include a request for a fee waiver.
    (iii) Requesters are advised that the time for responding to 
requests set forth in subpart E may be delayed--
    (A) If a requester has not sufficiently identified the fee category 
applicable to the request,
    (B) If a requester has not stated a willingness to pay fees as high 
as anticipated by the Department, or
    (C) If a fee waiver request is denied and the requester has not 
included an alternative statement of willingness to pay fees as high as 
anticipated by the Department.
    (iv) A request seeking a fee waiver shall, to the extent possible, 
address why the requester believes that the criteria for fee waivers 
set out in Sec. 7.44(f) are met.
    (d) Creation of records. A request may seek only records that are 
in existence at the time the request is received. A request may not 
seek records that come into existence after the date on which it is 
received and may not require that new records be created in response to 
the request by, for example, combining or compiling selected items from 
manual files, preparing a new computer program, or calculating 
proportions, percentages, frequency distributions, trends, or 
comparisons. In those instances where the Department determines that 
creating a new record will be less burdensome than disclosing large 
volumes of unassembled material, the Department may, in its discretion, 
agree to creation of a new record as an alternative to disclosing 
existing records.
    (e) Each record made available under this subpart will be made 
available for inspection and copying during regular business hours at 
the place where it is located, or photocopying may be arranged with the 
copied materials being mailed to the requester upon payment of the 
appropriate fee. Original records ordinarily will be copied except in 
this instances where, in the Department's judgment, copying would 
endanger the quality of the original or raise the reasonable 
possibility of irreparable harm to the record. In these instances, 
copying of the original would not be in the public interest. In any

[[Page 33079]]

event, original records will not be released from Department custody.
    (f) If a requested record is known not to exist in the files of the 
agency, or to have been destroyed or otherwise disposed of, the 
requester will be so notified.
    (g) Fees will be determined in accordance with subpart F of this 
part.
    (h) Notwithstanding paragraphs (a) through (g) of this section, 
informational material, such as news releases, pamphlets, and other 
materials of that nature that are ordinarily made available to the 
public as a part of any information program of the Government will be 
available upon oral or written request. A fee will not be charged for 
individual copies of that material so long as the material is in 
supply. In addition the Department will continue to respond, without 
charge, to routine oral or written inquiries that do not involve the 
furnishing of records.


Sec. 7.15   Contacts for Records Requested Under the FOIA.

    Each person desiring a record under this subpart should submit a 
request in writing to the Departmental element where the records are 
located:
    (a) FOIA Offices at 400 7th Street, S.W., Washington, D.C. 20590:
    (1) Office of the Secretary of Transportation, Room 5432
    (2) Federal Highway Administration, Room 4428
    (3) Federal Railroad Administration, Room 8201
    (4) National Highway Traffic Safety Administration, Room 5219
    (5) Federal Transit Administration, Room 9400
    (6) Maritime Administration, Room 7221
    (7) Research and Special Programs Administration, Room 8419
    (8) St. Lawrence Seaway Development Corporation, Room 5424
    (9) Bureau of Transportation Statistics, Room 2104
    (10) Office of the Inspector General, Room 9210
    (b) Federal Aviation Administration, 800 Independence Avenue, S.W., 
Room 906A, Washington, D. C. 20591.
    (c) United States Coast Guard, 2100 2nd Street, S.W., Room 6418, 
Washington, D. C. 20593-0001.
    (d) Operating elements also maintain FOIA contacts at regional 
offices and at the offices of the Commandant and District Commanders of 
the United States Coast Guard. Additional information on the location 
of these offices can be obtained through the FOIA contact offices 
listed above.
    (e) If the person making the request does not know where in the 
Department the record is located, he or she may make inquiry to the 
Chief, FOIA Division, Office of the General Counsel.


Sec. 7.16   Requests for Records of Concern to More Than One Government 
Organization.

    (a) If the release of a record covered by this subpart would be of 
concern to both this Department and another Federal agency, the 
determination as to release will be made only after consultation with 
the other interested agency.
    (b) If the release of the record covered by this subpart would be 
of concern to both this Department and a State or local government, a 
territory or possession of the United States, or a foreign government, 
the determination as to release will be made by the Department only 
after consultation with the other interested State or local government 
or foreign government.
    (c) As an alternative to consultation, the Department may refer the 
request (or relevant portion thereof) to a Federal agency that 
originated or is substantially concerned with the records. Such 
referrals shall be made expeditiously and the requester shall be 
notified in writing that a referral has been made.


Sec. 7.17  Consultation With Submitters of Commercial and Financial 
Information.

    (a) If a request is received for information that has been 
designated by the submitter as confidential commercial information, or 
which the Department has some other reason to believe may contain trade 
secrets or other commercial or financial information of the type 
described in Sec. 7.13(c)(4), the submitter of such information will, 
except as is provided in paragraphs (c) and (d) of this section, be 
notified expeditiously and asked to submit any written objections to 
release. At the same time, the requester will be notified that notice 
and an opportunity to comment are being provided to the submitter. The 
submitter will, to the extent permitted by law, be afforded a 
reasonable period of time within which to provide a detailed statement 
of any such objections. The submitter's statement shall specify all 
grounds for withholding any of the information. The burden shall be on 
the submitter to identify all information for which exempt treatment is 
sought and to persuade the agency that the information should not be 
disclosed.
    (b) The Office of the Secretary or the responsible operating 
element, as appropriate, will, to the extent permitted by law, consider 
carefully a submitter's objections and specific grounds for 
nondisclosure prior to determining whether to disclose business 
information. Whenever a decision is made to disclose such information 
over the objection of a submitter, the office responsible for the 
decision will forward to the submitter a written notice that will 
include:
    (1) A statement of the reasons for which the submitter's disclosure 
objections were not accepted;
    (2) A description of the business information to be disclosed; and
    (3) A specific disclosure date. Such notice of intent to disclose 
will, to the extent permitted by law, be forwarded to the submitter a 
reasonable number of days prior to the specified date upon which 
disclosure is intended. At the same time the submitter is notified, the 
requester will be notified of the decision to disclose information.
    (c) The notice requirements of this section will not apply if:
    (1) The office responsible for the decision determines that the 
information should not be disclosed;
    (2) The information lawfully has been published or otherwise made 
available to the public; or
    (3) Disclosure of the information is required by law (other than 5 
U.S.C. 552).
    (d) The procedures established in this section shall not apply in 
the case of:
    (1) Business information submitted to the National Highway Traffic 
Safety Administration and addressed in 49 CFR part 512.
    (2) Information contained in a document to be filed or in oral 
testimony that is sought to be withheld pursuant to Rule 39 of the 
Rules of Practice (14 CFR 302.39) in Aviation Economic Proceedings.
    (e) Whenever a requester brings suit seeking to compel disclosure 
of confidential commercial information, the Office of the Secretary or 
the responsible operating element, whichever the case may be, will 
promptly notify the submitter.

Subpart  D--Procedures for Appealing Decisions Not To Disclose 
Records and/or Waive Fees


Sec. 7.21  General.

    (a) Each officer or employee of the Department who, upon a request 
by a member of the public for a record under this part, makes a 
determination that the record is not to be disclosed, either because it 
is subject to an exemption or not in the Department's custody and 
control, will give a written statement of the reasons for that 
determination to the person making the request; and indicate the names 
and titles or positions of each person responsible for the initial 
determination not to comply with such

[[Page 33080]]

request, and the availability of an appeal within the Department.
    (b) When a request for a waiver of fees, pursuant to Sec. 7.44, has 
been denied in whole or in part, the requester may appeal the denial.
    (c) Any person to whom a record has not been made available within 
the time limits established by Sec. 7.31 and any person who has been 
given a determination pursuant to paragraph (a) of this section that a 
record will not be disclosed may appeal to the head of the operating 
element concerned or, in the case of the Office of the Secretary, to 
the General Counsel of the Department, and in the case of the Office of 
Inspector General, to the Inspector General. Any person who has not 
received an initial determination on his or her request within the time 
limits established by Sec. 7.31 can seek immediate judicial review, 
which may be sought without the need first to submit an administrative 
appeal. Judicial review may be sought in the United States District 
Court for the judicial district in which the requester resides or has 
his or her principal place of business, the judicial district in which 
the records are located, or in the District of Columbia. A 
determination that a record will not be disclosed and/or that a request 
for a fee waiver or reduction will not be granted does not constitute 
final agency action for the purposes of judicial review unless:
    (1) It was made by the head of the operating element concerned (or 
his or her designee), or the General Counsel or the Inspector General, 
as the case may be; or
    (2) The applicable time limit has passed without a determination on 
the initial request or the appeal, as the case may be, having been 
made.
    (d) Each appeal must be made in writing within thirty days from the 
date of receipt of the original denial and should include all 
information and arguments relied upon by the person making the request. 
Such letter should indicate that it is an appeal from a denial of a 
request made under the Freedom of Information Act. The envelope in 
which the appeal is sent should be prominently marked: ``FOIA Appeal.'' 
If these requirements are not met, the twenty-day limit described in 
Sec. 7.32 will not begin to run until the appeal has been identified, 
or would have been identified with the exercise of due diligence, by an 
employee of the Department as an appeal under the Freedom of 
Information Act, and has been received by the appropriate office.
    (e) Whenever the head of the operating element concerned, or the 
General Counsel or the Inspector General, as the case may be, 
determines it to be necessary, he/she may require the person making the 
request to furnish additional information, or proof of factual 
allegations, and may order other proceedings appropriate in the 
circumstances. The decision of the head of the operating element 
concerned, or the General Counsel or the Inspector General, as the case 
may be, as to the availability of the record or the appropriateness of 
a fee waiver or reduction constitutes final agency action for the 
purpose of judicial review.
    (f) The decision of the head of the operating element concerned, or 
the General Counsel or Inspector General, as the case may be, not to 
disclose a record under this part or not to grant a request for a fee 
waiver or reduction is considered to be a denial by the Secretary for 
the purpose of 5 U.S.C. 552(a)(4)(B).
    (g) Any final determination by the head of an operating element or 
his or her delegate, not to disclose a record under this part, or not 
to grant a request for a fee waiver or reduction, is subject to 
concurrence by the General Counsel or his/her designee.
    (h) Upon a determination that an appeal will be denied, the 
requester will be informed in writing of the reasons for the denial of 
the request and the names and titles or positions of each person 
responsible for the determination, and that judicial review of the 
determination is available in the United States District Court for the 
judicial district in which the requester resides or has his or her 
principal place of business, the judicial district in which the 
requested records are located, or the District of Columbia.

Subpart E--Time Limits


Sec. 7.31  Initial Determinations.

    An initial determination whether to release a record requested 
pursuant to subpart C will be made within ten Federal working days 
after the request is received by the appropriate office in accordance 
with Sec. 7.14, except that this time limit may be extended by up to 
ten Federal working days in accordance with Sec. 7.33. The person 
making the request will be notified immediately of such determination. 
If the determination is to grant this request, the desired record will 
be made available as promptly as possible. If the determination is to 
deny the request, the person making the request will be notified in 
writing, at the same time he or she is notified of such determination, 
of the reason for the determination, the right of such person to appeal 
the determination, and the name and title of each person responsible 
for the initial determination to deny the request.


Sec. 7.32  Final Determination.

    A determination with respect to any appeal made pursuant to 
Sec. 7.21 will be made within twenty Federal working days after receipt 
of such appeal except that this time limit may be extended by up to ten 
Federal working days in accordance with Sec. 7.33. The person making 
the request will be notified immediately of such determination pursuant 
to Sec. 7.21.


Sec. 7.33  Extension.

    In unusual circumstances as specified in this section, the time 
limits prescribed in Sec. 7.31 and Sec. 7.32 may be extended by written 
notice to the person making the request setting forth the reasons for 
such extension and the date on which a determination is expected to be 
dispatched. Such notice may not specify a date that would result in a 
cumulative extension of more than ten Federal working days. As used in 
this subparagraph, ``unusual circumstances'' means, but only to the 
extent reasonably necessary to the proper processing of the particular 
request:
    (a) The need to search for and collect the requested records from 
field facilities or other establishments that are separate from the 
office processing the request.
    (b) The need to search for, collect, and appropriately examine a 
voluminous amount of separate and distinct records that are demanded in 
a single request; or
    (c) The need for consultation, which will be conducted with all 
practicable speed, with any other agency or DOT element having a 
substantial interest in the determination of the request or among two 
or more components of the agency having substantial subject-matter 
interest therein.

Subpart F--Fees


Sec. 7.41  General.

    (a) This subpart prescribes fees for services performed for the 
public under subparts B and C of this part by the Department.
    (b) All terms defined by the Freedom of Information Act apply to 
this subpart, and the term ``hourly rate'' means the actual hourly base 
pay for a civilian employee or, for members of the Coast Guard, the 
equivalent hourly pay rate computed using a 40-hour week and the 
member's normal basic pay and allowances.
    (c) This subpart applies to all employees of the Department, 
including those of non-appropriated fund

[[Page 33081]]

activities of the Coast Guard and the Maritime Administration.
    (d) This subpart does not apply to any special study, special 
statistical compilation, table, or other record requested under 49 
U.S.C. 329(c). The fee for the performance of such a service is the 
actual cost of the work involved in compiling the record. All such fees 
received by the Department in payment of the cost of such work are 
deposited in a separate account administered under the direction of the 
Secretary, and may be used for the ordinary expenses incidental to 
providing the information.
    (e) This subpart does not apply to requests from record subjects 
for records about themselves in Departmental systems of records. Fees 
for such requests are to be determined in accordance with the Privacy 
Act of 1974, as implemented by Department of Transportation regulations 
(49 CFR part 10).


Sec. 7.42  Payment of Fees.

    (a) The fees prescribed in this subpart may be paid by check, 
draft, or money order, payable to the Treasury of the United States; 
except that, in the case of the Saint Lawrence Seaway Development 
Corporation, all fees resulting from a request to that operating 
element shall be made payable to the Saint Lawrence Seaway Development 
Corporation.
    (b) Charges may be assessed by the Department for time spent 
searching for requested records even if the search fails to locate 
records or the records located are determined to be exempt from 
disclosure. In addition, if records are requested for commercial use, 
the Department may assess a fee for time spent reviewing any responsive 
records located to determine whether they are exempt from disclosure.
    (c) When it is estimated that the search charges, review charges, 
duplication fees or any combination of fees that could be charged to 
the requester will likely exceed $25, the requester will be notified of 
the estimated amount of the fees, unless the requester has indicated in 
advance his or her willingness to pay fees as high as those 
anticipated. The notice will also inform the requester how to consult 
with the appropriate Departmental officials with the object of 
reformulating the request to meet his or her needs at a lower cost.
    (d) Payment of fees may be required by the Department prior to 
actual duplication or delivery of any releasable records to a 
requester. However, advance payment of fees, i.e., payment before work 
is commenced or continued on a request, may not be required unless:
    (1) Allowable charges that a requester may be required to pay are 
likely to exceed $250; or
    (2) The requester has failed to pay within 30 days of the billing 
date fees charged for a previous request to any part of the Department.
    (e) When paragraph (d)(1) of this section applies, the requester 
will be notified of the likely cost and, where he/she has a history of 
prompt payment of FOIA fees, requested to furnish satisfactory 
assurance of full payment of FOIA fees. Where the requestor does not 
have any history of payment, he or she may be required to make advance 
payment of any amount up to the full estimated charges.
    (f) When paragraph (d)(2) of this section applies, the requester 
will be required to demonstrate that the fee has, in fact, been paid or 
to pay the full amount owed, including any applicable interest, late 
handling charges, and penalty charges as discussed below. The requester 
will also be required to make an advance payment of the full amount of 
the estimated fee before processing of a new request or continuation of 
a pending request is begun.
    (g) The Department will assess interest on an unpaid bill starting 
on the 31st day following the day on which the notice of the amount due 
is first mailed to the requester. Interest will accrue from the date of 
the notice of amount due and will be at the rate prescribed in 31 
U.S.C. 3717. Receipt by the Department of a payment for the full amount 
of the fees owed within 30 calendar days after the date of the initial 
billing will stay the accrual of interest, even if the payment has not 
been processed.
    (h) If payment of fees charged is not received within 30 calendar 
days after the date the initial notice of the amount due is first 
mailed to the requester, an administrative charge will be assessed by 
the Department to cover the cost of processing and handling the 
delinquent claim. In addition, a penalty charge will be applied with 
respect to any principal amount of a debt that is more than 90 days 
past due. Where appropriate, other steps permitted by Federal debt 
collection statutes, including disclosure to consumer reporting 
agencies and use of collection agencies, will be used by the Department 
to encourage payment of amounts overdue.
    (i) In any instance where the Department reasonably believes that a 
requester or a group of requesters acting in concert is attempting to 
break down a single FOIA request into a series of requests for the sole 
purpose of evading the payment of otherwise applicable fees, the 
Department will aggregate the requests and determine the applicable 
fees on the basis of the aggregation.
    (j) Notwithstanding any other provision of this subpart, when the 
total amount of fees that could be charged for a particular request (or 
aggregation of requests) under subpart C, after taking into account all 
services that must be provided free of, or at a reduced, charge, is 
less than $10.00 the Department will not make any charge for fees.


Sec. 7.43  Fee Schedule.

    (a) The standard fee for a manual search to locate a record 
requested under subpart C of this part, including making it available 
for inspection, will be determined by multiplying each searcher's 
hourly rate plus 16 percent by the time spent conducting the search.
    (b) The standard fee for a computer search for a record requested 
under subpart C of this part is the actual cost. This includes the cost 
of operating the central processing unit for the time directly 
attributable to searching for records responsive to a FOIA request and 
the operator/programmer salary (hourly plus 16 percent) costs 
apportionable to the search.
    (c) The standard fee for review of records requested under subpart 
C of this part is the reviewer's hourly rate plus 16 percent multiplied 
by the time he or she spent determining whether the requested records 
are exempt from mandatory disclosure.
    (d) The standard fee for duplication of a record requested under 
subpart C of this part is determined as follows:
    (1) Per copy of each page (not larger than 8 1/2 x 14 inches) 
reproduced by photocopy or similar methods (includes costs of personnel 
and equipment)--$0.10.
    (2) Per copy prepared by computer such as tapes or printout--actual 
costs, including operator time.
    (3) Per copy prepared by any other method of duplication--actual 
direct cost of production.
    (e) Depending upon the category of requester, and the use for which 
the records are requested, in some cases the fees computed in 
accordance with the above standard fee schedule will either be reduced 
or not charged, as prescribed by other provisions of this subpart.
    (f) The following special services not required by the FOIA may be 
made available upon request, at the stated fees: Certified copies of 
documents, with Department of Transportation or operating element seal 
(where authorized)--$4.00; or true copy, without seal--$2.00

[[Page 33082]]

Sec. 7.44  Services Performed Without Charge or at a Reduced Charge.

    (a) A fee is not to be charged to any requester making a request 
under subpart C for the first two hours of search time unless the 
records are requested for commercial use. For purposes of this subpart, 
when a computer search is required two hours of search time will be 
considered spent when the hourly costs of operating the central 
processing unit used to perform the search added to the computer 
operator's salary cost (hourly rate plus 16 percent) equals two hours 
of the computer operator's salary costs (hourly rate plus 16 percent).
    (b) A fee is not to be charged for any time spent searching for a 
record requested under subpart C if the records are not for commercial 
use and the requester is a representative of the news media, an 
educational institution whose purpose is scholarly research, or a non-
commercial scientific institution whose purpose is scientific research.
    (c) A fee is not to be charged for duplication of the first 100 
pages (standard paper, not larger than 8.5 x 14 inches) of records 
provided to any requester in response to a request under subpart C 
unless the records are requested for commercial use.
    (d) A fee is not to be charged to any requester under subpart C to 
determine whether a record is exempt from mandatory disclosure unless 
the record is requested for commercial use. A review charge may not be 
charged except with respect to an initial review to determine the 
applicability of a particular exemption to a particular record or 
portion of a record. A review charge may not be assessed for review at 
the administrative appeal level. When records or portions of records 
withheld in full under an exemption that is subsequently determined not 
to apply are reviewed again to determine the applicability of other 
exemptions not previously considered, this is considered an initial 
review for purposes of assessing a review charge.
    (e) Documents will be furnished without charge or at a reduced 
charge if the official having initial denial authority determines that 
disclosure of the information is in the public interest because it is 
likely to contribute significantly to public understanding of the 
operations or activities of the government and is not primarily in the 
commercial interest of the requester.
    (f) Factors to be considered by officials of the Department 
authorized to determine whether a waiver or reduction of fees will be 
granted include:
    (1) Whether the subject matter of the requested records concerns 
the operations or activities of the Federal government;
    (2) Whether the disclosure is likely to contribute to an 
understanding of Federal government operations or activities;
    (3) Whether disclosure of the requested information will contribute 
to the understanding of the public at large, as opposed to the 
individual understanding of the requester or a narrow segment of 
interested persons;
    (4) Whether the contribution to public understanding of Federal 
government operations or activities will be significant;
    (5) Whether the requester has a commercial interest that would be 
furthered by the requested disclosure; and
    (6) Whether the magnitude of any identified commercial interest to 
the requester is sufficiently large in comparison with the public 
interest in disclosure that disclosure is primarily in the commercial 
interest of the requester.


Sec. 7.45  Transcripts.

    Transcripts of hearings or oral arguments are available for 
inspection. Where transcripts are prepared by a nongovernmental 
contractor, and the contract permits the Department to handle the 
reproduction of further copies, Sec. 7.43 applies. Where the contract 
for transcription services reserves the sales privilege to the 
reporting service, any duplicate copies must be purchased directly from 
the reporting service.


Sec. 7.46  Alternative Sources of Information.

    In the interest of making documents of general interest publicly 
available at as low a cost as possible, alternative sources shall be 
arranged whenever possible. In appropriate instances, material that is 
published and offered for sale may be obtained from the Superintendent 
of Documents, U.S. Government Printing Office, Washington, DC 20402; 
U.S. Department of Commerce's National Technical Information Service 
(NTIS), Springfield, Virginia 22151; or National Audio-Visual Center, 
National Archives and Records Administration, Capital Heights, MD 
20743-3701.

    Issued in Washington, DC, on May 31, 1996.
Federico Pena,
Secretary of Transportation.
[FR Doc. 96-16248 Filed 6-25-96; 8:45 am]
BILLING CODE 4910-62-P