[Federal Register Volume 61, Number 242 (Monday, December 16, 1996)]
[Rules and Regulations]
[Pages 65958-65959]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-31649]



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DEPARTMENT OF TRANSPORTATION

Research and Special Programs Administration

49 CFR Part 171

[Docket No. HM-215B; Amdt No. 171-149]
RIN 2137-AC82


Harmonization With the United Nations Recommendations, 
International Maritime Dangerous Goods Code, and International Civil 
Aviation Organization's Technical Instructions

AGENCY: Research and Special Programs Administration (RSPA), DOT.

ACTION: Final rule.

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SUMMARY: This final rule updates references in the Hazardous Materials 
Regulations to include the most recent amendments to international 
standards. Because of recent changes to the International Maritime 
Dangerous Goods Code (IMDG Code) and the International Civil Aviation 
Organization's Technical Instructions for the Safe Transport of 
Dangerous Goods by Air (ICAO Technical Instructions), these amendments 
are necessary to facilitate the continued transport of hazardous 
materials in international commerce by vessel and aircraft when these 
international regulations become effective.

DATES: Effective date: The effective date of these amendments is June 
1, 1997.
    Compliance date: Because of international standards which become 
effective on January 1, 1997, RSPA is authorizing immediate voluntary 
compliance. However, persons voluntarily complying with these 
regulations should be aware that petitions for reconsideration may be 
received and, as a result of RSPA's evaluation of those petitions, the 
amendments adopted in this final rule could be subject to further 
revision.
    Incorporation by reference. The incorporation by reference of 
certain publications listed in these amendments has been approved by 
the Director of the Federal Register as of June 1, 1997.

FOR FURTHER INFORMATION CONTACT: Bob Richard, Assistant International 
Standards Coordinator, telephone (202) 366-0656, or Beth Romo, Office 
of Hazardous Materials Standards, telephone (202) 366-8553, Research 
and Special Programs Administration, U.S. Department of Transportation, 
400 Seventh Street, S.W., Washington, D.C. 20590-0001.

SUPPLEMENTARY INFORMATION:

I. Background

    The UN Recommendations are recommendations issued by the UN 
Committee of Experts on the Transport of Dangerous Goods. These 
recommendations are amended and updated biennially by the Committee of 
Experts and are distributed to nations throughout the world. They serve 
as the basis for national, regional, and international modal 
regulations (specifically the IMDG Code, issued by the International 
Maritime Organization (IMO), and the International Civil Aviation 
Organization (ICAO) Technical Instructions, issued by the ICAO 
Dangerous Goods Panel).
    On October 25, 1996, RSPA published a notice of proposed rulemaking 
under Docket HM-215B [61 FR 55364] to amend the HMR to incorporate 
provisions adopted in the ninth revised edition of the UN 
Recommendations, the 1997-98 ICAO Technical Instructions, and Amendment 
28 to the IMDG Code. The notice contained proposals which would more 
fully align the HMR with international air and sea transport 
requirements which become effective on January 1, 1997. Other proposed 
changes in the NPRM were based on feedback from the regulated industry 
and RSPA initiatives. RSPA limited the comment period to 30 days and 
stated its intent to develop and issue a final rule to coincide with 
the January 1, 1997 effective date for international air and sea 
transport requirements. Commenters to the NPRM were very supportive of 
RSPA's efforts to align the HMR with international standards and urged 
RSPA to adopt regulations to incorporate the most recent editions of 
the ICAO Technical Instructions and IMDG Code by January 1, 1997. 
However, due to an unanticipated delay in publication of the NPRM and a 
variety of complex issues raised by commenters, RSPA recognizes the 
impossibility of issuing one final rule by January 1, 1997, that 
adequately addresses all concerns expressed by commenters. Therefore, 
RSPA is issuing this final rule to incorporate the latest versions of 
the ICAO Technical Instructions and IMDG Code to allow voluntary 
compliance with international standards on January 1, 1997. All other 
changes to the HMR proposed in the NPRM will be addressed in a 
subsequent final rule under HM-215B.
    In this final rule, RSPA is amending Sec. 171.7 to recognize 
Amendment 28 to the IMDG Code, which has recently been published by the 
International Maritime Organization (IMO). This amendment promulgates 
numerous miscellaneous changes to the IMDG Code and addresses such 
matters as classification, labeling, packaging, and documentation. IMO 
has established January 1, 1997, as the implementation date for these 
amendments. In Sec. 171.12, the HMR authorize shipments prepared in 
accordance with the IMDG Code if all or part of the transportation is 
by vessel, subject to certain conditions and limitations.
    This rule also incorporates by reference the 1997-1998 edition of 
the ICAO Technical Instructions, which becomes effective on January 1, 
1997, pursuant to decisions taken by the ICAO Council regarding 
implementation of Annex 18 to the Convention on International Civil 
Aviation. The offering, acceptance and transportation of hazardous 
materials by aircraft, and by motor vehicle either before or after 
being transported by aircraft, is authorized in Sec. 171.11 as fully 
equivalent to the HMR (with certain exceptions) if in conformance with 
the ICAO Technical Instructions.
    This final rule serves as a competent authority approval by 
authorizing a six- month period for use of either Amendment 27 or 
Amendment 28 of the IMDG Code and either the 1995-96 or 1997-98 ICAO 
Technical Instructions. Voluntary compliance with new IMDG Code and 
ICAO requirements is authorized as of January 1, 1997, but regulated 
entities may comply with the old requirements until June 1, 1997.

II. Rulemaking Analyses and Notices

A. Executive Order 12866 and DOT Regulatory Policies and Procedures

    This final rule is not considered a significant regulatory action 
under section 3(f) of Executive Order 12866 and, therefore, was not 
reviewed by the Office of Management and Budget. The rule is not 
considered a significant rule under the Regulatory Policies and 
Procedures of the Department of Transportation (44 FR 11034).
    The economic impact of this final rule is expected to result in 
only minimal costs to certain persons subject to the HMR and may result 
in modest cost savings to a small number of persons subject to the HMR 
and to the agency. Because of the minimal economic impact of this rule, 
preparation of a regulatory impact analysis or a regulatory evaluation 
is not warranted.

B. Executive Order 12612

    This final rule has been analyzed in accordance with the principles 
and criteria contained in Executive Order 12612 (``Federalism''). 
Federal

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hazardous materials transportation law, 49 U.S.C. 5701-5127, contains 
an express preemption provision (49 U.S.C. 5125(b)) that preempts 
State, local, and Indian tribe requirements on certain covered 
subjects. Covered subjects are:
    (1) The designation, description, and classification of hazardous 
material;
    (2) The packing, repacking, handling, labeling, marking, and 
placarding of hazardous material;
    (3) The preparation, execution, and use of shipping documents 
related to hazardous material and requirements related to the number, 
contents, and placement of those documents;
    (4) The written notification, recording, and reporting of the 
unintentional release in transportation of hazardous material; or
    (5) The design, manufacturing, fabricating, marking, maintenance, 
reconditioning, repairing, or testing of a packaging or container 
represented, marked, certified, or sold as qualified for use in 
transporting hazardous material.
    This final rule addresses covered subjects under items (1), (2), 
(3), and (5) above and, if adopted as final, would preempt State, 
local, or Indian tribe requirements not meeting the ``substantively the 
same'' standard. Federal hazardous materials transportation law 
provides at Sec. 5125(b)(2) that if DOT issues a regulation concerning 
any of the covered subjects DOT must determine and publish in the 
Federal Register the effective date of Federal preemption. The 
effective date may not be earlier than the 90th day following the date 
of issuance of the final rule and not later than two years after the 
date of issuance. RSPA has determined that the effective date of 
Federal preemption for these requirements will be June 16, 1997 under 
this docket. Thus, RSPA lacks discretion in this area, and preparation 
of a federalism assessment is not warranted.

C. Regulatory Flexibility Act

    This final rule incorporates by reference the 1997-98 ICAO 
Technical Instructions and Amendment 28 to the IMDG Code. It applies to 
offerors and carriers of hazardous materials and facilitates the 
transportation of hazardous materials in international commerce by 
providing consistency with international requirements. U.S. companies, 
including numerous small entities competing in foreign markets, will 
not be at an economic disadvantage by being forced to comply with a 
dual system of regulation. Therefore, I certify that this final rule 
will not have a significant economic impact on a substantial number of 
small entities.

D. Paperwork Reduction Act

    The requirements for information collection have been approved by 
the Office of Management and Budget (OMB) under OMB control numbers 
2137-0034 for shipping papers and 2137-0557 for approvals. Under the 
Paperwork Reduction Act of 1995, no person is required to respond to a 
collection of information unless it displays a valid OMB control 
number.

E. Regulation Identifier Number (RIN)

    A regulation identifier number (RIN) is assigned to each regulatory 
action listed in the Unified Agenda of Federal Regulations. The 
Regulatory Information Service Center publishes the Unified Agenda in 
April and October of each year. The RIN number contained in the heading 
of this document can be used to cross-reference this action with the 
Unified Agenda.

List of Subjects in 49 CFR Part 171

    Exports, Hazardous materials transportation, Hazardous waste, 
Imports, Incorporation by reference, Reporting and recordkeeping 
requirements.
    In consideration of the foregoing, 49 CFR Chapter I is amended as 
follows:

PART 171--GENERAL INFORMATION, REGULATIONS, AND DEFINITIONS

    1. The authority citation for part 171 continues to read as 
follows:

    Authority: 49 U.S.C. 5101-5127; 49 CFR 1.53.


Sec. 171.7   [Amended]

    2. In Sec. 171.7, in the table in paragraph (a)(3), the following 
changes are made:
    a. Under International Civil Aviation Organization (ICAO), for the 
entry Technical Instructions for the Safe Transport of Dangerous Goods 
by Air, the date ``1995-1996'' is revised to read ``1997-1998''.
    b. Under International Maritime Organization (IMO), the entry 
``International Maritime Dangerous Goods (IMDG) Code'' is amended by 
removing the wording ``1990 Consolidated Edition, as amended by 
Amendment 27 (1994)'' and adding in its place ``1994 Consolidated 
Edition, as amended by Amendment 28 (1996)''.

    Issued in Washington, DC on December 9, 1996, under authority 
delegated in 49 CFR part 1.
Kelley S. Coyner,
Deputy Administrator.
[FR Doc. 96-31649 Filed 12-13-96; 8:45 am]
BILLING CODE 4910-60-P