[Federal Register Volume 61, Number 130 (Friday, July 5, 1996)]
[Notices]
[Pages 35300-35305]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-17110]


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DEPARTMENT OF TRANSPORTATION

Commercial Vehicle Information Systems and Networks (CVISN) Model 
Deployment Program

AGENCY: Federal Highway Administration (FHWA).

ACTION: Request for application (RFA).

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SUMMARY: The FHWA is soliciting applications for the CVISN Model 
Deployment Program. CVISN are information systems that support 
commercial vehicle operations (CVO). This includes information systems 
owned and operated by governments, motor carriers, and other 
stakeholders. CVISN is not a new national information system, but 
rather a way for existing systems to exchange information through the 
use of standards and the United States commercially available 
communications infrastructure. CVISN will enable government agencies, 
the motor carrier industry, and other parties engaged in commercial 
vehicle operations, safety, and regulation to exchange information and 
conduct business transactions electronically. The objectives of CVISN 
include the following elements:
    a. Distribution of safety information to computers at the roadside 
to target high risk carriers;
    b. Use of license plate reader(s) at roadside to electronically 
identify commercial vehicles and carriers to check safety information;
    c. Electronic collection of inspection data from the roadside and 
uploading to SAFETYNET;
    d. Electronic application for credentials by motor carriers;
    e. Interfacing of State systems to the International Registration 
Plan (IRP) clearinghouse;
    f. Interfacing of State systems to the International Fuel Tax 
Agreement (IFTA) clearinghouse; and
    g. Electronic clearance at fixed and/or mobile sites.
    This RFA has been sent to all State agencies that have major 
responsibilities for the State transportation system,

[[Page 35301]]

Motor Carrier Safety Assistance Program (MCSAP), vehicle registration, 
and vehicle fuel tax. The RFA outlines FHWA's plans for model 
deployment of CVISN in seven pilot States. A full text of the CVISN RFA 
is being provided for responses.

DATES: Applications must be submitted to FHWA on or before July 19, 
1996.

ADDRESSES: Submit applications or mail to: Mr. Doug McKelvey, Federal 
Highway Administration, Office of Motor Carriers, 400 7th Street, SW., 
HSA-20, Room 3419, Washington, D.C. 20590 or Facsimile to: FHWA CVISN 
RFA at (202) 366-7908.

FOR FURTHER INFORMATION CONTACT: Mr. Larry Swartzlander, Office of 
Motor Carriers, (202) 366-6066, or Mr. Kenneth Baxter, Office of Motor 
Carriers, (202) 366-8957.

SUPPLEMENTARY INFORMATION:

1. Introduction

1.1  Background

    On April 11, 1996, notice of the FHWA intention to solicit 
application was published in the Federal Register (61FR16157). Comments 
from twenty-two states and two entities were received. The FHWA 
received comments from twenty-two States and two private agencies on 
the request for information (RFI). Overall, the responders were very 
supportive of CVISN and believe it is a worthy endeavor. The major 
comments and the FHWA's responses include the following:
    1.1.1  All but one commenter agreed with the seven objectives. One 
commenter recommended that the hazardous materials transportation 
registration and permitting as an optional objective be added and 
require one pilot State to test this objective. This objective was not 
added because there are already seven objectives, and program funds and 
time are limited.
    1.1.2  The majority of the States believe the Federal funding over 
a two-year period is appropriate to accomplish the seven objectives. 
Because of limited funding, it was decided to keep the two-year funding 
period.
    1.1.3  The commenters offered varying opinions on the 50% minimum 
non-Federal cost sharing. FHWA will keep the 50% requirement in order 
to comply with the Department of Transportation and Related Agencies 
Appropriations Act, 1996 to vigorously pursue cost-sharing 
opportunities.
    1.1.4  Several States were against giving extra credit for States 
that provide more than a 50% non-Federal match. This selection criteria 
element has been deleted because it would impose a hardship on some 
States.
    1.1.5  The majority of the responders believe motor carrier support 
should be required/encouraged during the model deployment project, but 
there should be no required signature from the industry. The FHWA 
agreed to require documentation indicating motor carrier support.
    1.1.6  The commenters offered varying opinions on the issue of 
requiring the governor's signature on the Memorandum of Agreement 
(MOA). Four States said the governor's signature should be required 
because deploying CVISN will require involvement of numerous State 
agencies and the signature will ensure complete allocation of 
resources. Other States said the governor's signature should not be 
required because every State's administrative requirements are 
different, the signature of the head of the State's lead agency should 
be sufficient, and requiring the governor's signature could discourage 
participation of larger States. It was decided to keep this item 
optional and allow each State to decide if they wanted to obtain the 
governor's signature.
    1.1.7  A few responders recommended that States be allowed to form 
CVISN private and/or public partnerships. The FHWA supports this 
concept and believes the RFI/RFA acknowledges this concept. Additional 
language was added in the RFA to clarify this issue.
    1.1.8  A recommendation to delete the requirement for a 20% non-
Federal hard match was supported by the FHWA and the RFA will reflect 
this deletion and only specify a 50% non-Federal match.
    1.1.9  One commenter suggested deleting the reference to provide 
free Carrier Automated Transaction (CAT) software. The commenter 
believes the reference to free software would result in government 
competing unfairly with private sector participation in CVO deployment. 
The FHWA agrees with this request and the RFA has been changed to say 
that it is available from commercial sources.
    1.1.10  Interoperability with toll systems was also a concern. This 
issue is addressed in the RFI/RFA by requiring interoperability with 
major CVO clearance programs and encourages interoperability with toll 
deployment technology.
    Commercial vehicle business practices and systems were originally 
designed primarily for intrastate trucking, but several factors have 
changed the way CVO business is conducted. These factors include 
increased emphasis on safety, improved truck technology, the 
construction of the Interstate Highway System, the industry's 
deregulation in 1980, and the interstate agreements for registration 
and fuel tax being adopted nationwide. The systems supporting CVO 
operations have not kept pace. Many of the systems supporting CVO are 
manual processes requiring redundant data entry and cannot share 
information within and among States and customers. Additionally, State 
safety and administrative responsibilities for commercial vehicles are 
projected to increase over the next several years and State budgets are 
anticipated to remain stable or face reductions. To address these 
issues, the United States Department of Transportation (US DOT), 
through the FHWA, intends to support model deployment of CVISN in a 
number of States. CVISN are information systems that support commercial 
vehicle operations. This includes information systems owned and 
operated by governments, motor carriers, and other stakeholders. CVISN 
is not a new information system, but rather a way for existing systems 
to exchange information through the use of standards and the existing 
commercially available communications infrastructure. CVISN will enable 
government agencies, the motor carrier industry, and other parties 
engaged in CVO safety and regulation to exchange information and 
conduct business transactions electronically. The purpose of investing 
in model deployment of CVISN in States is (1) to facilitate the 
development and deployment of Intelligent Transportation Systems (ITS) 
services that will increase the safety and productivity of CVO; and (2) 
to ascertain and educate the general public and key State and industry 
decision makers on the costs and benefits of ITS for CVO.

1.2  Description of CVISN Model Deployment Program

    The model deployment of CVISN is focused on safety and 
administrative processes. Safety systems are being pursued to improve 
safety on the nation's highways and to reduce the burden on safe 
carriers, and help streamline government processes. Administrative 
processes are being pursued because of expected benefits to States and 
the high benefit/cost ratio identified in a recent study (``Assessment 
of ITS/Commercial Vehicle Operations and User Services--Qualitative 
Benefit/Cost Analysis'' June, 1996, American Trucking Associations) for 
carriers possessing 100 or more trucks.

[[Page 35302]]

    Three examples of CVISN include screening for safety, acquiring 
credentials, and mainline screening. Screening for safety would include 
Safety and Fitness Electronic Records (SAFER) System information that 
would provide a carrier safety snap-shot to the State or its agent for 
use at the roadside mobile and/or fixed inspection/weigh facility. The 
vehicle would pull into the facility and the US DOT number would be 
obtained. This information is then checked on the pen base computer 
that has a selection algorithm that suggests if the vehicle should be 
inspected for safety. If the inspection is performed, information is 
entered into the database via the pen base computer.
    Carriers and commercial motor vehicle operators will obtain 
credentials and perform carrier to State business transactions 
electronically, directly from their offices. Carrier Automated 
Transaction (CAT) Software that performs these transactions is 
available from commercial sources. Commercial vendors have agreed to 
use open standards being developed through the American National 
Standards Institute (ANSI). ANSI open standards allow organizations to 
develop compatible CAT type software. Larger carriers would likely use 
these open standards to integrate carrier to State transaction software 
into their existing fleet management systems. While the FHWA strongly 
encourages carriers and States to use multiple vendors and encourage a 
healthy competitive market, the CVO architecture requires that all 
communication systems and interfaces deployed under CVISN use an open 
architecture and comply with the ANSI X.12 standards for electronic 
data interchange. Public private partnerships are encouraged in CAT 
development and integration as they are in all CVISN systems.
    Carriers could enroll in mainline screening projects that allow 
carriers to pass inspection stations at mainline speeds for those 
States with roadside inspection/weigh facilities. A carrier's safety 
record will be evaluated using available safety information. The 
probability of a safe carrier being inspected would be very low while 
the probability of an historically unsafe carrier would be very high. 
Participating motor carrier vehicles in the mainline screening program 
would be weighed and classified by high speed screening equipment on 
the highway preceding the inspection facility and electronically 
examined via a vehicle-mounted transponder to ensure that all required 
electronic screening criteria was met. If the vehicle meets the 
criteria, the driver will be electronically notified by an indicator 
device inside of the vehicle and allowed to bypass the inspection 
facility. When one or more of the criteria are not satisfied, the 
driver will be required to enter the inspection facility for further 
review.
    This Request for Application (RFA) outlines FHWA's plans for model 
deployment of CVISN in seven model deployment States, one State from 
each of the seven truckshed regions. The trucksheds were defined by 
geographic distribution in the United States and by truck freight 
volumes, therefore piloting a national program in each of the seven 
regions is a logical progression to ``grow'' the program. Maryland and 
Virginia will be used to try the first generation of CVISN and it will 
then be refined and transferred to the model deployment State. States 
are encouraged to form partnerships with other States and the private 
sector in the CVISN program.
    The complete RFA and additional information will be maintained on 
the World Wide Web at the Johns Hopkins University Applied Physics 
Laboratory (JHU/APL) home page (http://www.jhuapl.edu/transportation/
ssd/cvo/other/downdocs/downdocs.htm). The Intelligent Transportation 
Society of America also provides information relevant to ITS and CVO on 
their home page (http://davinci.csn.net/itsa/).

1.3 CVISN Objectives

    Each model deployment State is required to demonstrate the 
following over a two-year funding period at a few sites and for a 
portion of the truck and motor coach industry:
    a. Distribution of safety information to computers at the roadside 
to target high risk carriers.
    b. Use of license plate reader(s) at roadside to electronically 
identify commercial vehicles and carriers to check safety information.
    c. Electronic collection of inspection data from the roadside and 
uploading to SAFETYNET.
    d. Electronic application for credentials by motor carriers.
    e. Interfacing of State systems to the International Registration 
Plan (IRP) clearinghouse.
    f. Interfacing of State systems to the International Fuel Tax 
Agreement (IFTA) clearinghouse.
    g. Electronic clearance at fixed and/or mobile sites.
    The system for requesting oversize/overweight permits 
electronically is optional.
    CVISN model deployment States using Dedicated Short Range 
Communications (DSRC) must be interoperable with major CVO clearance 
programs and it is desirable to be interoparable with toll deployment 
technology. This specifically includes adopting Electronic Data 
Interchange (EDI) and DSRC standards applicable to CVO when they become 
available. This is not designed to limit strategies, but to encourage 
innovative approaches to achieving the ITS/CVO vision of increased 
safety and efficiency. In addition, the FHWA will accept proposals 
outlining projects that include partnering of additional States in a 
truckshed region. The FHWA's plan includes expansion to additional 
States that may overlap trucksheds, however, funding is limited to one 
lead State per region. An example is a methodology that will identify 
high risk carriers, drivers, and vehicles based on a regional 
hypothesis.
    Evaluation is another requirement. CVISN model deployment State 
must participate in an overall project evaluation. As a partner, the 
FHWA will provide an independent evaluator to work with the stakeholder 
in refining their draft evaluation plan early in the test. The 
evaluation process will help focus stakeholder efforts and resources 
through early evaluation planning to achieve the maximum cost/benefits 
from the program.

1.4 Expected CVISN Benefits

Expected Benefits for State Governments
    a. Data interchange among State, carriers, financial institutions, 
and insurance carriers will be electronic and efficient.
    b. Administrators and enforcement personnel will have electronic 
access to required data.
    c. Enforcement resources can be focused on high risk carriers and 
drivers.
    d. Credentials issuance, taxation, inspections, and compliance 
reviews will be automated to proceed more efficiently.
    e. Better enforcement of weight, size, safety, and tax regulations.
    f. In the long term, re-engineered policies and practices can be 
based on measured data and careful analysis.
Expected Benefits for Motor Carriers
    a. Reduced administrative burden in regulatory compliance.
    b. Vehicles of safe and legal carriers will incur less delay.
    c. Technology investment can support multiple services.
    d. Uniformity of services across North America.
    e. Focus on unsafe carriers will ``level the playing field.''

[[Page 35303]]

    f. Reduction in exposure to lane change movements at inspection 
sites.
    g. Increased commercial vehicle fuel efficiency.
    h. Reduced commercial vehicle emissions.

2. CVISN System and Organizational Coordination

    The objectives of the CVISN model deployment program (Section 1.3) 
will require system and organizational coordination. The organizations 
and capabilities described here include the safety inspections and 
electronic clearance; registration; electronic credentials, clearance, 
and motor carriers; fuel tax system; and oversize/overweight. This 
section takes a paragraph to describe what each objective achieves with 
the CVISN deployment and how this is accomplished. The FHWA assumes 
that model deployment States will upgrade existing systems or use a 
private provider to operate and maintain the systems. The FHWA supports 
automation of the existing functions, but is not encouraging the 
addition of new systems.

2.1  Safety Inspections and Electronic Clearance

    The State commercial vehicle safety system will upload inspections 
electronically at the roadside using the ASPEN portable computer system 
or current State system. Safety information will be provided 
electronically to the roadside to enforcement officers. Preliminary 
data have indicated that the effectiveness of roadside safety 
inspections can be doubled combining this safety information with 
experienced law enforcement officers. This will allow automated 
screening to clear safe operators and focus safety enforcement on high 
risk carriers. Federal model deployment funds could be used for 
hardware and software, and the State will provide manpower to solve 
organizational issues leading to deployment and resources such as motor 
carrier inspectors to operate the system. This will be coordinated with 
the existing Motor Carrier Safety Assistance Program (MCSAP). The State 
will also electronically clear transponder-equipped safe and legal 
trucks and buses at fixed and/or mobile sites.

2.2  Registration

    The State registration system will electronically accept 
registration requests, issue credentials electronically, and respond to 
queries of authorized users. Federal model deployment funds could be 
used to purchase the necessary hardware and software to interface the 
existing pilot State registration system and utilize an interstate IRP 
clearinghouse. This IRP clearinghouse will be developed and operated 
under the direction of the IRP board of directors. The State 
registration agency will provide organizational coordination of the 
technology deployment and any modifications required in the existing 
State system software. Federal model deployment funds could be used for 
travel funding to resolve organizational issues and to participate in 
ANSI standards meetings to ensure the registration standards developed 
meet the pilot State's requirements.

2.3  Electronic Credentials, Clearance, and Motor Carriers

    Carriers and commercial motor vehicle operators will be able to 
obtain credentials electronically. A small carrier if needed would go 
to a single location, either a State or private provider, versus the 
numerous locations currently required. User friendly personal computer 
(PC) software would be developed. This software will allow carriers to 
obtain credentials directly from their office. Larger carriers would 
likely integrate credential software in their existing fleet management 
system.
    Carriers could apply for electronic clearance that allows safe and 
legal carriers with transponder-equipped vehicles to pass inspection 
stations or mobile sites at mainline speeds.

2.4  Fuel Tax System

    The State fuel tax system will (1) electronically accept 
applications for fuel credentials, (2) issue them, (3) accept quarterly 
fuel tax reports, (4) respond to authorized queries, and (5) notify 
other IFTA application States electronically of carriers allocated for 
their State. Federal model deployment funds could be used to purchase 
the necessary hardware and software to interface the existing model 
deployment State fuel tax system and utilize an interstate fuel 
clearinghouse. This fuel clearinghouse will be developed and operated 
under the direction of the IFTA board of directors and coordinated with 
IFTA. The clearinghouse will notify the model deployment State 
electronically of all carriers allowed to operate in the pilot State, 
who are base-stated in other States. The fuel tax system will provide 
organizational coordination for the technology deployment and necessary 
modifications required in the existing system software. Federal model 
deployment funds could be used for travel funding to resolve 
organizational issues and to participate in the ANSI standards meetings 
to ensure the fuel tax standards developed meet the pilot State's 
requirements.

2.5  Oversize/Overweight (Optional)

    The State oversize/overweight system will allow the carrier to 
request credentials electronically and issue oversize/overweight 
permits electronically for CVO vehicles in an approved envelope for 
size and weight. Requests outside the envelope will be notified to 
contact the organization in person. Where States have developed 
regional oversize/overweight agreements, the region will select a 
single State to issue credentials for that region. The State will 
provide manpower to resolve issues and operate the system. Federal 
model deployment funds could be used to purchase and install the system 
and provide travel funding to resolve the organizational issues and to 
participate in ANSI standards meetings to ensure the oversize/
overweight standards developed meet the model deployment State's 
requirements.

3. CVISN Funding

    In fiscal year (FY) 96, the FHWA expects to provide $500,000 to 
each model deployment State to enable them to automate their systems, 
purchase technologies for the model deployment, and develop business 
plans. Additional Federal FY 97 funding is planned. The actual amount 
will be based on implementation cost estimates, Congressional funding 
levels, and past performance. The availability of CVISN funding beyond 
FY 97 is undetermined at this time. Success of the CVISN model 
deployment program will have a significant role in future Federal 
funding.

3.1  Federal Allocation

    Funding for each selected pilot State will be provided over a two-
year funding period.

3.2  Eligible Costs for Federal Funding

    Eligible expenditures for Federal funding will be for software 
development, equipment, installation, maintenance, and other expenses 
to achieve the objectives of the CVISN project.

3.3  Non-Federal Cost Sharing

    The CVISN model deployment States will be asked to contribute at 
least 50% of the cost of the project in hard and/or soft matches. Non-
Federal cost sharing (private and public) funds and other resources are 
required. An example of non-Federal cost sharing

[[Page 35304]]

includes (a) funds for equipment, (b) staff, (c) cash and (d) cost of 
integrating existing equipment for CVISN model deployment. In addition, 
the future non-Federal cost sharing percentage is subject to change 
depending upon Congressional funding.

4. Mainstreaming

    Mainstreaming funds will be available to States and regions in FY 
1996. These funds will help continue to build the organizational and 
institutional arrangements among State, carriers, and vendors to ensure 
the development and deployment of ITS/CVO user services to public and 
private markets. While the model deployment of the CVISN architecture 
proceeds in the model deployment State over the next two funding years, 
the State and regional forums will be strengthened by providing Federal 
funding to hire regional champions responsible for near-term deployment 
activities. The regional champions and forums will serve the following 
functions: (a) the development of regional and State ITS/CVO 
Mainstreaming plans to prepare for CVISN model deployment in States 
throughout the seven truckshed regions, (b) the dissemination of 
results from the initial CVISN model deployment to the rest of the 
regional forum and (c) facilitating information transfer between the 
regional champion and the program manager.

5. Evaluation

    The FHWA will conduct a rigorous, independent evaluation of the 
effectiveness of the CVISN model deployment in achieving the CVISN 
objectives and National ITS program goals. The independent evaluation 
may be conducted using existing FHWA resources, or, as part of another 
solicitation, the FHWA may contract with one or more independent 
evaluation contractor(s) to evaluate the model deployments.

6. Application Requirements

    The application to be a model deployment State shall include a 
memorandum of agreement (MOA) with the chief executive officer's (CEO) 
signature of relevant agencies demonstrating their support for 
providing the CVISN services previously outlined. A signature of the 
Governor is optional. A letter(s) of support from the CEO of a motor 
carrier is strongly encouraged. An organizational chart showing the 
relationship between the agencies, a point of contact for each agency 
and a lead agency will be identified at this time. This process is to 
ensure management support for CVISN services at all levels. If there is 
no MOA, the application will not be considered further.
    Each application shall include and fully address the selection 
criteria statements in Section 7, Selection Criteria.

7. Selection Criteria

    Selection for participation in the CVISN model deployment program 
will include the following criteria:

7.1  Institutional Capabilities

    States interested in model deployment of CVISN should include, with 
their application of interest, supporting documentation indicating the 
extent to which of these institutional capabilities exist. Possessing 
more of these institutional capabilities will increase the ability of a 
State to be selected and to be a successful model deployment State.
    a. Leadership and initiative on ITS/CVO issues and programs through 
participation in ITS/CVO institutional studies and operational tests.
    b. Integration with safety strategies and projects targeting high 
risk carriers.
    c. An ITS/CVO working group involving agencies and private 
industry.
    d. An ITS/CVO plan (strategic, business, deployment, etc.). If a 
plan is available, a bullet list of major elements should be attached 
with the application including: (1) Goals, (2) Objectives, (3) Actions, 
(4) Schedule, and (5) Funding summary.
    e. Strong commitment to customer service and the ability to work 
with the motor carrier industry in their State.
    f. A project manager to oversee deployment of these services.
    g. Experience and willingness to work with other State and CVO-
related organizations at the regional and national level.
    h. Commitment to participate in the evaluation and the CVISN model 
deployment following the two-year operational test.
    i. Public/private partnerships involving CVO.

7.2  Technical Capabilities

    States interested in model deployment of CVISN should include 
supporting documentation indicating their technical capabilities for 
the items below. It is not anticipated that most of these technical 
capabilities exist in States, but possessing more of these technical 
capabilities will increase the ability of a State to be a successful 
model deployment .
    a. Significant public and/or private sector investment and 
technical capability in developing, operating, and maintaining CVO-
related information management systems and technologies.
    b. Significant progress in developing and operating (including the 
private sector) several ITS/CVO services, including:
    1. Distribution of safety information to computers at the roadside 
to target high risk carriers.
    2. Use of license plate reader(s) at roadside to electronically 
identify commercial vehicles and carriers to check safety information.
    3. Electronic application for credentials by motor carriers.
    4. Electronic collection of inspection data from fixed and/or 
mobile electronic safety screening programs, and the ability to support 
on-line data entry of safety information to SAFETYNET.
    5. Electronic clearance programs where States operate a significant 
number of weigh stations, ports-of-entry, or mobile operations.
    6. Electronic registration programs for carriers for interstate and 
intrastate registrations, and the ability to respond to electronic 
queries from government and industry to verify the status of 
registrations.
    7. Electronic fuel tax reporting, and the ability to respond to 
electronic queries from government and industry to verify the status of 
fuel tax accounts.
    8. Electronic oversize/overweight permitting, and the ability to 
respond to electronic queries from government and industry to verify 
the status of oversize/overweight permits.
    c. State communications infrastructure or that of a private 
provider is sufficiently developed to provide on-line information 
exchange capability to the designated users.
    d. Sufficient support equipment to carry out the model deployment 
of CVISN and ITS/CVO services.

8. Schedule

    The time line for the CVISN model deployment State application and 
selection process is as follows:

------------------------------------------------------------------------
              Number and date                           Event           
------------------------------------------------------------------------
1. May 20, 1996...........................  Distribute request for      
                                             Applications for CVISN     
                                             Model Deployment Program.  
2. July 19, 1996..........................  Applications for CVISN Model
                                             Deployment Program due.    
3. August 16, 1996........................  Applications selected for   
                                             CVISN Model Deployment     
                                             Program.                   
4. September 20, 1996.....................  Funding agreements          
                                             completed.                 
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[[Page 35305]]



    Authority: 23 U.S.C. 315; 49 CFR 1.48.

    Issued on: June 28, 1996.
Rodney E. Slater,
Federal Highway Administrator.
[FR Doc. 96-17110 Filed 7-3-96; 8:45 am]
BILLING CODE 4910-22-P