[Federal Register Volume 62, Number 118 (Thursday, June 19, 1997)]
[Rules and Regulations]
[Pages 33351-33358]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-16081]


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DEPARTMENT OF TRANSPORTATION

Federal Highway Administration

23 CFR Part 470

[Docket No. FHWA 97-2394]
RIN 2125-AD74


Federal-Aid Highway Systems

AGENCY: Federal Highway Administration (FHWA), DOT.

ACTION: Interim final rule; request for comments.

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SUMMARY: The FHWA is amending its regulation on Federal-aid highway 
systems to incorporate changes made by the Intermodal Surface 
Transportation Efficiency Act of 1991 (ISTEA) and the National Highway 
System Designation Act of 1995. The ISTEA, among other things, added 
provisions defining the Federal-aid highway systems as the Interstate 
System and the National Highway System (NHS) which replaced the 
provisions defining the Federal-aid highway systems as the Interstate, 
Primary, Secondary, and Urban Systems. The purpose of this document is 
to reflect the statutory changes in defining the Federal-aid highway 
systems, reduce regulatory requirements and simplify recordkeeping 
requirements imposed on States, and consolidate (in appendices to the 
regulation) all nonregulatory guidance material issued previously by 
the FHWA on this subject.

DATES: This interim final rule is effective July 21, 1997. Comments 
must be received by August 18, 1997.

ADDRESSES: Submit written, signed comments to the docket number that 
appears in the heading of this document to the Docket Clerk, U.S. DOT 
Dockets, Room PL-401, 400 Seventh Street SW., Washington, DC 20590-
0001. All comments received will be available for examination at the 
above address between 10 a.m. and 5 p.m., e.t., Monday through Friday, 
except Federal holidays. Those desiring notification of receipt of 
comments must include a self-addressed, stamped envelope or postcard.

FOR FURTHER INFORMATION CONTACT: Thomas R. Weeks, Intermodal and 
Statewide Programs Division (202) 366-5002, or Grace Reidy, Office of 
the Chief Counsel, HCC-32, (202) 366-6226, Federal Highway 
Administration, 400 Seventh Street SW., Washington, DC 20590. Office 
hours are from 7:45 a.m. to 4:15 p.m., e.t., Monday through Friday, 
except Federal holidays.

SUPPLEMENTARY INFORMATION: The FHWA is amending its regulation at 23 
CFR Part 470, subpart A, on Federal-aid highway systems to: (1) Reflect 
recent statutory changes made by sections 1006, 1024, 1025, and 1105 of 
the ISTEA, Pub. L. 102-240, 105 Stat. 1914, and sections 101 and 332 of 
the NHS Act, Pub. L. 104-59, 109 Stat. 568; (2) reduce regulatory 
requirements and simplify recordkeeping requirements imposed on States; 
and (3) consolidate, in appendices to the regulation, all relevant 
nonregulatory guidance previously issued in the FHWA's policy memoranda 
and the ``Federal-Aid Policy Guide.'' The amended regulation, including 
its appendices, now combines all policies and guidance on the Federal-
aid highway systems in a single document for easy reference.
    For a number of years prior to the ISTEA, the Federal-aid highway 
systems consisted of four components--the Primary System (which also 
included the Interstate System), the Urban System, and the Secondary 
System. These four highway systems established basic eligibility of 
qualifying roads and streets for construction or improvement with 
certain categories of Federal-aid highway funds, i.e., the Interstate, 
Primary, Secondary, and Urban System apportionments. The ISTEA 
restructured the Federal-aid highway systems by rescinding the Federal-
aid Primary, Secondary, and Urban Systems and requiring the 
establishment of a new NHS. Certain components of the NHS were 
specified by statute, including the Interstate System and 21 high 
priority corridors. The ISTEA also required a functional 
reclassification of all public roads and streets to determine 
eligibility for inclusion on the NHS and eligibility for funding under 
the Surface Transportation Program. Pending enactment of legislation 
approving the NHS, the ISTEA established an interim NHS that was 
eligible for funding under the NHS program and consisted of all rural 
and urban routes which were functionally classified as principal 
arterials.
    During December 1993, a proposed NHS was submitted by the 
Department of Transportation (DOT) to Congress for approval, and the 
NHS was subsequently designated by the NHS Act. The NHS Act, within 180 
days of enactment, required the Secretary of Transportation (Secretary) 
to submit to Congress for approval proposed additions to the NHS, 
consisting of connections to major intermodal terminal facilities. The 
NHS Act also authorized the Secretary to approve modifications to the 
NHS, including, once the initial designations were enacted by law, the 
connections to intermodal terminals. Finally, the NHS Act designated 
eight additional high priority corridors on the NHS and designated all, 
or part of, four high priority corridors as future Interstate routes.
    The proposed NHS connections to major intermodal terminals were 
submitted to Congress in May 1996. To date, Congress has not enacted 
legislation regarding these additional routes.
    The FHWA issued interim guidance in February 1996 establishing 
procedures for use by the States in proposing modifications to the NHS. 
Guidance for use by the States in proposing modifications to the 
Interstate System under 23 U.S.C. 139 was issued in 1986. Guidance for 
use by the States in proposing additions to the Interstate System under 
Section 332 of the NHS Act was issued in February 1996. Guidance for 
signing and numbering routes identified as future parts of the 
Interstate System was issued in August 1996 and later modified in 
December 1996. All guidance material contained in the documents noted 
above is incorporated in the regulation at 23 CFR part 470 as 
nonregulatory appendices. The documents were initially issued as FHWA 
Headquarters memoranda that

[[Page 33352]]

were transmitted by the field offices to their respective States.

Section-by-Section Analysis

All Sections and Appendices

    All references to the former Federal-aid Primary, Secondary, and 
Urban Systems are removed. A number of provisions that apply to the 
former Federal-aid Primary System are carried over to the new NHS. 
References to statewide and metropolitan transportation planning are 
expanded to include new statutory statewide transportation planning 
requirements and have been coordinated with terms used in the planning 
regulations at 23 CFR part 450. The responsible State body for 
proposing changes to the Federal-aid highway systems is now identified 
as the State transportation agency.
    Because of the substantial number of deletions and additions, the 
existing rule is essentially reorganized and rewritten in its entirety. 
Therefore, section numbers, appendices and titles used herein are those 
of the interim final rule, unless labeled as a former section or 
appendix. Wording carried forward, or revised, may be from a different 
numbered and titled former section. Additional substantive changes made 
in specific sections and appendices are described below.

Section 470.101  Purpose

    The regulations are applied to designation of routes on the 
statutory Federal-aid highway systems.

Section 470.103  Definitions

    The revised statutory name of the Interstate System, the ``Dwight 
D. Eisenhower National System of Interstate and Defense Highways,'' is 
taken from section 1005(e) of the ISTEA. Terms used in the regulation 
are retained for ``governor'' and ``metropolitan planning 
organization.'' The term for ``responsible local officials'' is a new 
heading used in the regulation. Definitions are added for 
``consultation,'' ``cooperation,'' ``coordination,'' ``Federal-aid 
highway systems,'' ``Federal-aid highways,'' and ``State.'' Definitions 
needed only for nonregulatory guidance are removed.

Section 470.105  Urban Area Boundaries and Highway Functional 
Classification

    The minimum boundaries for Federal-aid urban areas are established 
by reference to census urban places and census urbanized areas. 
Modification (enlargement) of the boundaries is permitted by 23 U.S.C. 
101. Guidance for the modification of urban area boundaries is now 
contained in FHWA's ``Federal-Aid Policy Guide,'' which is available 
for inspection and copying, as prescribed in 49 CFR part 7, appendix D, 
and is available for purchase from the FHWA, Office of Management 
Systems, HMS-12, 400 Seventh St. SW., Washington, DC 20590. The limits 
of urban areas can be of importance in the planning and programing of 
improvements to the Federal-aid and other highway systems.
    Functional classification is a prerequisite for determining the 
newly defined Federal-aid highways and National Highway System. 
Procedures for functional classification of existing roads and streets 
according to functional usage are contained in the FHWA publication, 
``Highway Functional Classification--Concepts, Criteria and 
Procedures'' (March 1989) which is available from the FHWA's Office of 
Environment and Planning, HEP-10, 400 Seventh St. SW., Washington, DC 
20590. The mapping and the FHWA approval requirements are retained.

Section 470.107  Federal-Aid Highway Systems

    The new National Highway System includes the Interstate System and 
other principal arterials serving major travel destinations and 
transportation needs, connectors to major transportation terminals, the 
Strategic Highway Network and connectors, and high priority corridors 
identified by law.
    Statutory limits on the lengths of the Federal-aid highway systems 
are being given in terms of kilometers using the factor of 0.62 
kilometers per mile. The portion of Interstate System mileage that may 
be based on 23 U.S.C. 103(e)(1), (e)(2), and (e)(3) is limited to 
43,000 miles (41,000, 500, and 1,500 miles, respectively). The limit on 
NHS mileage is based on 115 percent of 155,000 miles.

Section 470.109  Proposed System Designations--General

    Provisions applicable to any Federal-aid highway system are grouped 
in this section; those applicable to the Interstate or NHS are included 
separately in the following sections. The details of route location, 
mapping, and numbering are no longer covered by regulation.

Former Section 470.111  Reclassifications, Deletions, and 
Reinstatements

    This section regarding the applicability of State agreements to 
maintain Federal-aid projects is deleted as it is a duplication of 
other directives and inappropriate to regulations on highway systems.

Section 470.111  Proposed Interstate System Designations

    Additions to the Interstate System may no longer be approved under 
the authority of 23 U.S.C. 103(e), which created eligibility for 
Interstate construction funds. Furthermore, there are no new 
authorizations of Interstate construction funds. Basic procedural 
requirements are retained, however, for possible Interstate 
modifications under 23 U.S.C. 103(f). The interim final rule now 
incorporates several special provisions that existed for Interstate 
additions. Also, included in the interim final rule are the general 
requirements for designation of routes as parts, or future parts, of 
the Interstate System under 23 U.S.C. 139 (a) or (b). These 
designations are made by the FHWA Administrator for routes that would 
be logical additions to the Interstate System and are, or will be, 
constructed to Interstate standards.
    The FHWA also includes special provisions for Interstate routes in 
Alaska and Puerto Rico under 23 U.S.C. 139(c) and provisions regarding 
four corridors designated as future Interstate routes in section 
332(a)(2) of the NHS Act.
    The interim final rule recognizes the important and long standing 
role of the American Association of State Highway and Transportation 
Officials (AASHTO) in the review of proposed route numbers for 
Interstate highways.
    Although the law is clear that highways designated as future parts 
of the Interstate System under 23 U.S.C. 139(b) may not be signed as a 
part of the Interstate System, it is silent on whether or not they may 
be signed as a future part. Because of increased interest in such 
signing, the FHWA is including reference to a policy (see appendix C of 
the rule) recently established for the signing of future Interstate 
corridors that have been established either under 23 U.S.C. 139(b), or 
under section 332(a)(2) of the NHS Act. The conference report on the 
latter section stated that the ``* * * provision is intended to permit 
States to erect signs along such designated routes as `future' 
Interstates upon enactment.''

Section 470.113  Proposed National Highway System Designations

    There are no additional substantive changes.

[[Page 33353]]

Former Section 470.111 Reclassifications, Deletions, and Reinstatements

    Provisions relating to State obligations with respect to Federal-
aid projects are removed.

Section 470.115  Approval authority

    There are no additional substantive changes.

Former Part 470, Subpart A, Appendix A--Florida (National System of 
Interstate and Defense Highways); Appendix B--Primary Federal-Aid 
System; Appendix C--Urbanized Federal-Aid Urban System

    Former Appendix A, with a detailed format for listing Interstate 
highway descriptions, is removed as unnecessary. Former Appendices B 
and C, which refer to former Federal-aid systems, are removed as 
obsolete.

Part 470, Subpart A, Appendix A--Guidance Criteria for Evaluating 
Requests for Interstate System Designations under 23 U.S.C. 139 (a) and 
(b)

    The criteria for designations of highways as parts, or future 
parts, of the Interstate System under 23 U.S.C. 139 (a) and (b), 
respectively, have been virtually unchanged since 1986. The appendix 
includes both statutory and administrative criteria.

Appendix B--Designation of Segments of Section 332(a)(2) Corridors as 
Parts of the Interstate System

    These procedures for addition of highways designated as future 
parts of the Interstate System under section 332(a)(2) of the NHS Act 
were issued as interim guidance in February 1996.

Appendix C--Policy for the Signing and Numbering of Future Interstate 
Corridors Designated by Section 332 of the NHS Designation Act of 1995 
or Designated under 23 U.S.C. 139(b)

    The policy for signing and numbering of future Interstate routes 
was issued as an interim policy in August 1996 and revised in December 
1996. Criteria are included to establish eligibility for consideration 
of signing of future routes and are supplementary to normal signing 
location, design, construction, and wording requirements.

Appendix D--Guidance Criteria for Evaluating Requests for Modifications 
to the National Highway System

    The criteria for modifications of the National Highway System were 
issued as interim guidance in February 1996. While essentially the same 
as the interim guidance, several sections are being expanded for 
clarification.
    For ease of reference, the following table is provided to assist 
the user in locating section and paragraph changes made in this 
rulemaking:

------------------------------------------------------------------------
                Old Section                          New Section        
------------------------------------------------------------------------
470.101...................................  470.101 revised.            
470.103(a)................................  470.103 introductory        
                                             paragraph.                 
70.103(b):................................  470.103 terms revised:      
Urban area................................  Removed.                    
Rural area................................  Removed.                    
Public road...............................  Removed.                    
Rural arterial routes.....................  Removed.                    
Rural major collector routes..............  Removed.                    
Urban arterial routes.....................  Removed.                    
Appropriate local officials...............  Responsible local officials.
Governor..................................  Governor.                   
Metropolitan planning organization........  Metropolitan planning       
                                             organization.              
Control area..............................  Removed.                    
None......................................  Consultation.               
None......................................  Cooperation.                
None......................................  Coordination.               
None......................................  Federal-aid highway systems.
None......................................  Federal-aid highways.       
None......................................  State.                      
470.105(a)................................  470.107(a) revised.         
470.105 (b)-(d)...........................  Removed.                    
470.107 (a)-(b)...........................  470.105(a)-(b) revised.     
470.107(c)................................  470.109(a)-(e) revised.     
470.107(d)................................  470.107(a)-(b) revised.     
470.107 (e)-(h)...........................  Removed.                    
470.109...................................  470.111 and 470.113.        
470.111...................................  Removed.                    
470.113...................................  470.109.                    
470.115...................................  470.115.                    
470.117...................................  Removed.                    
Appendices A, B, and C....................  Removed.                    
None......................................  Appendices A, B, C, and D.  
------------------------------------------------------------------------

Rulemaking Analyses and Notices

    Because the amendments to this regulation are statutorily mandated, 
incorporate existing policy, or essentially document well-established 
procedures, requirements or practices, the FHWA finds that prior notice 
and opportunity for comment are unnecessary under 5 U.S.C. 
553(b)(3)(B). The States have operated under the basic policies covered 
by this regulation for many years. The amendments being made to this 
regulation were specifically designed to simplify administrative 
procedures, minimize regulatory burdens, and provide flexibility for 
accomplishing required system actions. Therefore, the FHWA is not 
exercising its discretion in a way that could be substantially affected 
by public comment.
    Since passage of the NHS Act, the FHWA developed and implemented 
policies for modifying the NHS. The policies included in the interim 
final rule for modifying the NHS are essentially the same. The criteria 
for modifying the Interstate System under 23 U.S.C. 139 have been 
virtually identical since 1986. The nonregulatory guidance for 
numbering and signing future Interstate routes, although recently 
issued, was developed through a consultative process. Only a few States 
have expressed an interest in such signing.
    For these reasons, the FHWA has also determined that prior notice 
and opportunity for comment are not required under the Department of 
Transportation's regulatory policies and procedures, as it is not 
anticipated that such action would result in the receipt of essential 
information. Issuance of the amended regulation as an interim final 
rule will provide interested parties an opportunity to comment on any 
aspect of the amended regulation and the nonregulatory appendices. 
Depending on the nature and extent of the comments, the FHWA will 
consider subsequent revisions to either the regulation or the 
nonregulatory appendices. The FHWA will also publish a notice in the 
Federal Register to summarize any comments received and any actions the 
agency has taken, or plans to take, with regard to the comments. 
Therefore, the FHWA is proceeding directly to an interim final rule, 
which is effective 30 days from its date of publication.

Executive Order 12866 (Regulatory Planning and Review) and DOT 
Regulatory Policies and Procedures

    The FHWA has determined that this action is neither a significant 
action within the meaning of Executive Order 12866 nor significant 
under the Department of Transportation's regulatory policies and 
procedures. This rule establishes procedures for State highway agencies 
to request modifications of established Federal-aid highway systems.
    This interim final rule provides States with criteria for proposed 
system modifications, route numbering, and signing. This rule will not 
result in a major increase in costs or prices for State or local 
governments. The rule will not have an adverse effect on competition, 
employment, investment, productivity, innovation, or on the ability to 
compete with foreign enterprises. It is anticipated that the economic 
impact of this rulemaking will

[[Page 33354]]

be minimal, as the rule is not altering the amount of Federal-aid funds 
made available, nor is it substantially changing the administrative 
processing requirements for State transportation agencies. Therefore, a 
full regulatory evaluation is not required. Nevertheless, the FHWA is 
providing an opportunity for interested parties to comment upon the 
possible economic consequences of the rule.

Regulatory Flexibility Act

    In compliance with the Regulatory Flexibility Act (Pub.L. 96-354, 5 
U.S.C. 601-612), the FHWA has preliminarily determined that this 
rulemaking will have virtually no economic impact on small entities. 
The rulemaking is directed toward State governments. Although the 
regulation being amended continues to require the States to cooperate 
with responsible local officials in conjunction with certain highway 
classification and system actions, the States will bear the 
responsibility for initiating and completing this cooperation. The 
States will coordinate with responsible local officials through 
existing organizational mechanisms as a part of the ongoing statewide 
and metropolitan transportation planning processes required by 23 CFR 
part 450. Therefore, no unique or special arrangements are required, 
nor expected, to accomplish the necessary cooperation.
    The regulation clarifies, streamlines, and simplifies Federal-aid 
highway systems policies for modification and management of the 
systems. The primary impact of this rulemaking action, therefore, will 
be a reduction in the administrative burden on the States associated 
with Federal-aid system actions. Based on this evaluation, the FHWA 
hereby certifies that this action will not have a significant economic 
impact on a substantial number of small entities.

Executive Order 12612 (Federalism Assessment)

    This rulemaking has been analyzed in accordance with the principles 
and criteria contained in Executive Order 12612, and it has been 
determined that this action does not have sufficient federalism 
implications to warrant the preparation of a federalism assessment. The 
purpose of this rule is to eliminate many administrative procedures and 
recordkeeping requirements related to the Federal-aid highway system 
actions that have been in place for many years, and to limit State 
actions to those specifically required by Federal statute. The rule 
will reduce costs and burdens on the States. It will not affect the 
ability of the States to discharge traditional State governmental 
functions. The rule relies on existing mechanisms--those established 
through the statewide and metropolitan planning processes for the 
involvement of local and metropolitan agencies in the management of the 
Federal-aid highway systems. An overriding objective of the FHWA in 
developing this rule is to minimize the regulatory requirements and 
rely heavily on nonregulatory guidance in the management of proposed 
changes to Federal-aid highway systems.

Executive Order 12372 (Intergovernmental Review)

    Catalog of Federal Domestic Assistance Program Number 20.205, 
Highway Planning and Construction. The regulations implementing 
Executive Order 12372 regarding intergovernmental consultation on 
Federal programs and activities apply to this program.

Paperwork Reduction Act

    The Paperwork Reduction Act of 1995 (PRA) concerns the 
responsibility of Federal agencies in developing proposed collections 
of information. The PRA is designed ``to reduce, minimize, and control 
burdens and maximize the practical utility and public benefit of the 
information created, collected, disclosed, maintained, used, shared, 
and disseminated by or for the Federal Government.'' 23 CFR 1320.1. 
Thus, the FHWA has a responsibility to determine if the PRA applies to 
this rulemaking proceeding.
    For many years, States and State transportation agencies have 
operated pursuant to current regulations at 23 CFR part 470 that 
contain criteria to request modifications of established Federal-aid 
highway systems. Before enactment of the ISTEA, the Federal-aid highway 
systems consisted of the Interstate, Primary, Secondary, and Urban 
Systems. The ISTEA, however, restructured the Federal-aid highway 
systems by rescinding the Federal-aid Primary, Secondary, and Urban 
Systems and requiring the establishment of the NHS. The ISTEA also 
required a functional reclassification of all public roads and streets 
to determine eligibility for inclusion on the NHS and eligibility for 
funding under the Surface Transportation Program. Another piece of 
legislation, the NHS Act, designated the NHS and authorized the 
Secretary to approve any modifications to the NHS. To assist States 
with their system modifications, the FHWA previously issued interim 
guidance establishing procedures for use by the States in proposing 
modifications to the Interstate System and the NHS, and for signing and 
numbering routes identified as future parts of the Interstate System. 
Thus, the purpose of this interim final rule is to incorporate the 
legislative changes mandated by the ISTEA and the NHS Act, as well as 
the nonregulatory guidance material that the FHWA issued previously to 
assist States in their efforts to modify the Federal-aid highway 
systems. Only a few States have indicated that they are interested in 
such signing.
    The interim final rule specifies that States and State 
transportation agencies can submit proposals for modifying the Federal-
aid highway systems by submitting certain information to the FHWA and, 
in the case of Interstate route numbering proposals, to the American 
Association of State Highway and Transportation Officials route 
numbering committee. As indicated above, the FHWA intends to include, 
as appendices to the regulation at part 470, nonregulatory guidance 
material issued previously by the agency to assist States in their 
system modification efforts. Under 5 CFR 1320.3(c)(2), the public 
disclosure of information originally supplied by the Federal Government 
to the recipient for the purpose of disclosure is not a collection of 
information. Thus, the FHWA's consolidation of this nonregulatory 
guidance material in the interim final rule does not violate the PRA.
    It is also important to note that, under the PRA, a State agency is 
not required to obtain approval of the Office of Management and Budget 
(OMB) to undertake on its own initiative to collect information. 
However, in instances where the State agency's collection of 
information is being ``conducted or sponsored'' by a Federal agency, 
then the Federal agency would need to obtain OMB approval for any 
collection of information. Thus, another inquiry to be made in this 
rulemaking would be whether a State's proposal to modify the Federal-
aid highway system is a collection of information ``conducted or 
sponsored'' by the FHWA. The FHWA believes that it is not.
    First, under 49 CFR 1320.3(d), a collection of information 
undertaken by a recipient (here the State) of a Federal grant is 
considered to be ``conducted or sponsored'' by an agency only if: (1) 
The recipient of a grant is conducting the collection of information at 
the specific request of the agency; or (2) the terms and conditions of 
the grant require specific approval by the agency of the collection of 
information or collection procedures. In this interim final rule,

[[Page 33355]]

the FHWA is not requesting the States to collect information to modify 
the Federal-aid highway systems. Nor is the State's submittal of a 
proposed modification a prerequisite for a Federal grant. Presumably, 
the FHWA must first approve a State's proposal to modify the Federal-
aid highway systems before a route can be added to the Interstate 
System or the NHS, but the FHWA is not requesting this collection of 
information. States that seek to modify the Interstate System and the 
NHS can follow the criteria set forth at part 470 to accomplish 
requested system modifications. This interim final rule merely provides 
the States with revised regulations to assist them in their efforts.
    Second, the FHWA does not believe that this action constitutes a 
collection of information under the PRA because the interim final rule 
does not impose requirements on ``ten or more persons.'' 49 CFR 
1320.(3)(c). The phrase ``ten or more persons'' refers to the persons 
to whom a collection of information is addressed by the agency within 
any 12-month period, and to any independent entities to which the 
initial addressee may reasonably be expected to transmit the collection 
of information during that period, including independent State, 
territorial, tribal or local entities and separately incorporated 
subsidiaries or affiliates. 49 CFR 1320.3(c)(4). Because the FHWA does 
not expect to address more than 10 requests by States to modify route 
designations during any 12-month period, it does not constitute a 
``collection of information'' covered by the PRA.
    Accordingly, the FHWA is amending its regulation on Federal-aid 
highway systems to incorporate statutory changes made by the ISTEA and 
the NHS Act, and to include in this amended regulation all relevant 
appendices of nonregulatory guidance previously issued in FHWA policy 
memoranda and the ``Federal-aid Policy Guide'' to assist States in 
proposing modifications to the Interstate System and the NHS. The 
interim final rule will provide States and State transportation 
agencies with criteria for proposed system modifications, route 
numbering, and signing. This action will also reduce regulatory 
requirements, simplify administrative procedures and recordkeeping 
requirements, and provide flexibility to accomplish State-requested 
system actions.

National Environmental Policy Act

    The agency has analyzed this section for the purpose of the 
National Environmental Policy Act of 1969 (42 U.S.C. 4321 et seq.) and 
has determined that this action would not have any effect on the 
quality of the environment.

Regulation Identification Number

    A regulation identification 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 contained in the heading of 
this document can be used to cross reference this action with the 
Unified Agenda.

List of Subjects in 23 CFR Part 470

    Grant programs--transportation, Highway planning, Highways and 
roads.

    In consideration of the foregoing, the FHWA is amending title 23, 
CFR, chapter I, by revising subpart A of part 470 as set forth below.

    Issued on: June 11, 1997.
Jane F. Garvey,
Acting Administrator for the Federal Highway Administration.

PART 470--HIGHWAY SYSTEMS

    1. The authority citation for part 470 is revised to read as 
follows:

    Authority: 23 U.S.C. 103(b)(2), 103 (e)(1), (e)(2), and (e)(3), 
103(f), 134, 135, and 315; and 49 CFR 1.48(b)(2).

Subpart A--[Revised]

    2. Subpart A of part 470 is revised to read as follows:

Subpart A--Federal-aid Highway Systems

Sec.
470.101  Purpose.
470.103  Definitions.
470.105  Urban area boundaries and highway functional 
classification.
470.107  Federal-aid highway systems.
470.109  System procedures--General.
470.111  Interstate System procedures.
470.113  National Highway System procedures.
470.115  Approval authority.
Appendix A--Guidance Criteria for Evaluating Requests for Interstate 
System Designations under 23 U.S.C. 139 (a) and (b).
Appendix B--Designation of Segments of Section 332(a)(2) Corridors 
as Parts of the Interstate System.
Appendix C--Policy for the Signing and Numbering of Future 
Interstate Corridors Designated by Section 332 of the NHS 
Designation Act of 1995 or Designated under 23 U.S.C. 139(b).
Appendix D--Guidance Criteria for Evaluating Requests for 
Modifications to the National Highway System.

Subpart A--Federal-aid Highway Systems


Sec. 470.101  Purpose.

    This part sets forth policies and procedures relating to the 
identification of Federal-aid highways, the functional classification 
of roads and streets, the designation of urban area boundaries, and the 
designation of routes on the Federal-aid highway systems.


Sec. 470.103  Definitions.

    Except as otherwise provided in this part, terms defined in 23 
U.S.C. 101(a) are used in this part as so defined.
    Consultation means that one party confers with another identified 
party and, prior to taking action(s), considers that party's views.
    Cooperation means that the parties involved in carrying out the 
planning, programming and management systems processes work together to 
achieve a common goal or objective.
    Coordination means the comparison of the transportation plans, 
programs, and schedules of one agency with related plans, programs, and 
schedules of other agencies or entities with legal standing, and 
adjustment of plans, programs, and schedules to achieve general 
consistency.
    Federal-aid highway systems means the National Highway System and 
the Dwight D. Eisenhower National System of Interstate and Defense 
Highways (the ``Interstate System'').
    Federal-aid highways means highways on the Federal-aid highway 
systems and all other public roads not classified as local roads or 
rural minor collectors.
    Governor means the chief executive of the State and includes the 
Mayor of the District of Columbia.
    Metropolitan planning organization (MPO) means the forum for 
cooperative transportation decisionmaking for the metropolitan planning 
area in which the metropolitan transportation planning process required 
by 23 U.S.C. 134 and 49 U.S.C. 5303-5305 must be carried out.
    Responsible local officials means--
    (1) In urbanized areas, principal elected officials of general 
purpose local governments acting through the Metropolitan Planning 
Organization designated by the Governor, or
    (2) In rural areas and urban areas not within any urbanized area, 
principal elected officials of general purpose local governments.
    State means any one of the fifty States, the District of Columbia, 
Puerto Rico, or, for purposes of functional classification of highways, 
the Virgin Islands, American Samoa, Guam, or the

[[Page 33356]]

Commonwealth of the Northern Marianas.


Sec. 470.105  Urban area boundaries and highway functional 
classification.

    (a) Urban area boundaries. Routes on the Federal-aid highway 
systems may be designated in both rural and urban areas. Guidance for 
determining the boundaries of urbanized and nonurbanized urban areas is 
provided in the ``Federal-Aid Policy Guide,'' Chapter 4 [G 4063.0], 
dated December 9, 1991.1
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    \1\ The ``Federal-aid Policy Guide'' is available for inspection 
and copying as prescribed in 49 CFR part 7, Appendix D.
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    (b) Highway Functional Classification. (1) The State transportation 
agency shall have the primary responsibility for developing and 
updating a statewide highway functional classification in rural and 
urban areas to determine functional usage of the existing roads and 
streets. Guidance criteria and procedures are provided in the FHWA 
publication ``Highway Functional Classification--Concepts, Criteria and 
Procedures.'' 2 The State shall cooperate with responsible 
local officials, or appropriate Federal agency in the case of areas 
under Federal jurisdiction, in developing and updating the functional 
classification.
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    \2\ This publication, revised in March 1989, is available on 
request to the FHWA, Office of Environment and Planning, HEP-10, 400 
Seventh Street, SW., Washington, DC 20590.
---------------------------------------------------------------------------

    (2) The results of the functional classification shall be mapped 
and submitted to the Federal Highway Administration (FHWA) for approval 
and when approved shall serve as the official record for Federal-aid 
highways and the basis for designation of the National Highway System.


Sec. 470.107  Federal-aid highway systems.

    (a) Interstate System. (1) The Dwight D. Eisenhower National System 
of Interstate and Defense Highways (Interstate System) shall consist of 
routes of highest importance to the Nation, built to the uniform 
geometric and construction standards of 23 U.S.C. 109(h), which 
connect, as directly as practicable, the principal metropolitan areas, 
cities, and industrial centers, including important routes into, 
through, and around urban areas, serve the national defense and, to the 
greatest extent possible, connect at suitable border points with routes 
of continental importance in Canada and Mexico.
    (2) The portion of the Interstate System designated under 23 U.S.C. 
103 (e)(1), (e)(2), and (e)(3) shall not exceed 69,230 kilometers 
(43,000 miles). Additional Interstate System segments are permitted 
under the provisions of 23 U.S.C. 139 (a) and (c) and section 
1105(e)(5)(A) of the Intermodal Surface Transportation Efficiency Act 
of 1991 (ISTEA), Pub. L. 102-240, 105 Stat. 1914, as amended.
    (b) National Highway System. (1) The National Highway System shall 
consist of interconnected urban and rural principal arterials and 
highways (including toll facilities) which serve major population 
centers, international border crossings, ports, airports, public 
transportation facilities, other intermodal transportation facilities 
and other major travel destinations; meet national defense 
requirements; and serve interstate and interregional travel. All routes 
on the Interstate System are a part of the National Highway System.
    (2) The National Highway System shall not exceed 286,983 kilometers 
(178,250 miles).
    (3) The National Highway System shall include the Strategic Highway 
Corridor Network (STRAHNET) and its highway connectors to major 
military installations, as designated by the Administrator in 
consultation with appropriate Federal agencies and the States. The 
STRAHNET includes highways which are important to the United States 
strategic defense policy and which provide defense access, continuity, 
and emergency capabilities for the movement of personnel, materials, 
and equipment in both peace time and war time.
    (4) The National Highway System shall include all high priority 
corridors identified in section 1105(c) of the ISTEA.


Sec. 470.109  System procedures--General.

    (a) The State transportation agency, in consultation with 
responsible local officials, shall have the responsibility for 
proposing to the Federal Highway Administration all official actions 
regarding the designation, or revision, of the Federal-aid highway 
systems.
    (b) The routes of the Federal-aid highway systems shall be proposed 
by coordinated action of the State transportation agencies where the 
routes involve State-line connections.
    (c) The designation of routes on the Federal-aid highway systems 
shall be in accordance with the planning process required, pursuant to 
the provisions at 23 U.S.C. 135, and, in urbanized areas, the 
provisions at 23 U.S.C. 134(a). The State shall cooperate with local 
and regional officials. In urbanized areas, the local officials shall 
act through the metropolitan planning organizations designated for such 
areas under 23 U.S.C. 134.
    (d) In areas under Federal jurisdiction, the designation of routes 
on the Federal-aid highway systems shall be coordinated with the 
appropriate Federal agency.


Sec. 470.111  Interstate System procedures.

    (a) Proposals for system actions on the Interstate System shall 
include a route description and a statement of justification. Proposals 
shall also include statements regarding coordination with adjoining 
States on State-line connections, with responsible local officials, and 
with officials of areas under Federal jurisdiction.
    (b) Proposals for Interstate or future Interstate designation under 
23 U.S.C. 139(a) or (b), as logical additions or connections, shall 
consider the criteria contained in appendix A of this subpart. For 
designation as a part of the Interstate system, 23 U.S.C. 139(a) 
requires that a highway meet all the standards of a highway on the 
Interstate System, be a logical addition or connection to the 
Interstate System, and have the affirmative recommendation of the State 
or States involved. For designation as a future part of the Interstate 
System, 23 U.S.C. 139(b) requires that a highway be a logical addition 
or connection to the Interstate System, have the affirmative 
recommendation of the State or States involved, and have the written 
agreement of the State or States involved that such highway will be 
constructed to meet all the standards of a highway on the Interstate 
System within twelve years of the date of the agreement between the 
FHWA Administrator and the State or States involved. Such highways must 
also be on the National Highway System.
    (c) Proposals for Interstate designation under 23 U.S.C. 139(c) 
shall pertain only to Alaska or Puerto Rico. For designation as parts 
of the Interstate System, 23 U.S.C. 139(c) requires that highway 
segments be in States which have no Interstate System; be logical 
components to a system serving the State's principal cities, national 
defense needs and military installations, and traffic generated by 
rail, water, and air transportation modes; and have been constructed to 
the geometric and construction standards adequate for current and 
probable future traffic demands and the needs of the locality of the 
segment. Such highways must also be on the National Highway System.
    (d) Routes proposed for Interstate designation under section 
332(a)(2) of the NHS Designation Act of 1995 (NHS Act) shall be 
constructed to Interstate standards and connect to the Interstate

[[Page 33357]]

System. Proposals shall consider the criteria contained in appendix B 
of this subpart.
    (e) Proposals for Interstate route numbering shall be submitted by 
the State transportation agency to the Route Numbering Committee of the 
American Association of State Highway and Transportation Officials.
    (f) Signing of corridors federally designated as future Interstate 
routes can follow the criteria contained in appendix C of this subpart. 
No law, rule, regulation, map, document, or other record of the United 
States, or of any State or political subdivision thereof, shall refer 
to any highway under 23 U.S.C. 139, nor shall any such highway be 
signed or marked, as a highway on the Interstate System until such time 
as such highway is constructed to the geometric and construction 
standards for the Interstate System and has been designated as a part 
of the Interstate System.


Sec. 470.113  National Highway System procedures.

    (a) Proposals for system actions on the National Highway System 
shall include a route description, a statement of justification, and 
statements of coordination with adjoining States on State-line 
connections, with responsible local officials, and with officials of 
areas under Federal jurisdiction.
    (b) Proposed modifications to the National Highway System shall 
enhance the national transportation characteristics of the National 
Highway System and shall follow the criteria listed in Sec. 470.107. 
Proposals shall also consider the criteria contained in appendix D of 
this subpart.


Sec. 470.115  Approval authority.

    (a) The Federal Highway Administrator will approve Federal-aid 
highway system actions involving the designation, or revision, of 
routes on the Interstate System, including route numbers, future 
Interstate routes, and routes on the National Highway System.
    (b) The Federal Highway Administrator will approve functional 
classification actions.

Appendix A to Part 470, Subpart A--Guidance Criteria for Evaluating 
Requests for Interstate System Designations Under 23 U.S.C. 139 (a) and 
(b)

    Section 139 (a) and (b), of title 23, U.S.C., permits States to 
request the designation of National Highway System routes as parts 
or future parts of the Interstate System. The FHWA Administrator may 
approve such a request if the route is a logical addition or 
connection to the Interstate System and has been, or will be, 
constructed to meet Interstate standards. The following are the 
general criteria to be used to evaluate 23 U.S.C. 139 requests for 
Interstate System designations.
    1. The proposed route should be of sufficient length to serve 
long-distance Interstate travel, such as connecting routes between 
principal metropolitan cities or industrial centers important to 
national defense and economic development.
    2. The proposed route should not duplicate other Interstate 
routes. It should serve Interstate traffic movement not provided by 
another Interstate route.
    3. The proposed route should directly serve major highway 
traffic generators. The term ``major highway traffic generator'' 
means either an urbanized area with a population over 100,000 or a 
similar major concentrated land use activity that produces and 
attracts long-distance Interstate and statewide travel of persons 
and goods. Typical examples of similar major concentrated land use 
activities would include a principal industrial complex, government 
center, military installation, or transportation terminal.
    4. The proposed route should connect to the Interstate System at 
each end, with the exception of Interstate routes that connect with 
continental routes at an international border, or terminate in a 
``major highway traffic generator'' that is not served by another 
Interstate route. In the latter case, the terminus of the Interstate 
route should connect to routes of the National Highway System that 
will adequately handle the traffic. The proposed route also must be 
functionally classified as a principal arterial and be a part of the 
National Highway System system.
    5. The proposed route must meet all the current geometric and 
safety standards criteria as set forth in 23 CFR part 625 for 
highways on the Interstate System, or a formal agreement to 
construct the route to such standards within 12 years must be 
executed between the State(s) and the Federal Highway 
Administration. Any proposed exceptions to the standards shall be 
approved at the time of designation.
    6. A route being proposed for designation under 23 U.S.C. 139(b) 
must have an approved final environmental document (including, if 
required, a 49 U.S.C. 303(c) [Section 4(f)] approval) covering the 
route and project action must be ready to proceed with design at the 
time of designation. Routes constructed to Interstate standards are 
not necessarily logical additions to the Interstate System unless 
they clearly meet all of the above criteria.

Appendix B to Part 470, Subpart A--Designation of Segments of Section 
332(a)(2) Corridors as Parts of the Interstate System

    The following guidance is comparable to current procedures for 
Interstate System designation requests under 23 U.S.C. 139(a). All 
Interstate System additions must be approved by the Federal Highway 
Administrator. The provisions of section 332(a)(2) of the NHS Act 
have also been incorporated into the ISTEA as section 1105(e)(5)(A).
    1. The request must be submitted through the appropriate FHWA 
Division and Regional Offices to the Associate Administrator for 
Program Development (HEP-10). Comments and recommendations by the 
division and regional offices are requested.
    2. The State DOT secretary (or equivalent) must request that the 
route segment be added to the Interstate System. The exact location 
and termini must be specified. If the route segment involves more 
than one State, each affected State must submit a separate request.
    3. The request must provide information to support findings that 
the segment (a) is built to Interstate design standards and (b) 
connects to the existing Interstate System. The segment should be of 
sufficient length to provide substantial service to the travelling 
public.
    4. The request must also identify and justify any design 
exceptions for which approval is requested.
    5. Proposed Interstate route numbering for the segment must be 
submitted to FHWA and the American Association of State Highway and 
Transportation Officials Route Numbering Committee.

Appendix C to Part 470, Subpart A--Policy for the Signing and Numbering 
of Future Interstate Corridors Designated by Section 332 of the NHS 
Designation Act of 1995 or Designated Under 23 U.S.C. 139(b)

Policy

    State transportation agencies are permitted to erect 
informational Interstate signs along a federally designated future 
Interstate corridor only after the specific route location has been 
established for the route to be constructed to Interstate design 
standards.

Conditions

    1. The corridor must have been designated a future part of the 
Interstate System under section 332(a)(2) of the NHS Designation Act 
of 1995 or 23 U.S.C. 139(b).
    2. The specific route location to appropriate termini must have 
received Federal Highway (FHWA) environmental clearance. Where FHWA 
environmental clearance is not required or Interstate standards have 
been met, the route location must have been publicly announced by 
the State.
    3. Numbering of future Interstate route segments must be 
coordinated with affected States and be approved by the American 
Association of State Highway and Transportation Officials and the 
FHWA at Headquarters. Short portions of a multistate corridor may 
require use of an interim 3-digit number.
    4. The State shall coordinate the location and content of 
signing near the State line with the adjacent State.
    5. Signing and other identification of a future Interstate route 
segment must not indicate, nor imply, that the route is on the 
Interstate System.
    6. The FHWA Regional Office must confirm in advance that the 
above conditions have been met and approve the general locations of 
signs.

[[Page 33358]]

Sign Details

    1. Signs may not be used to give directions and should be away 
from directional signs, particularly at interchanges.
    2. An Interstate shield may be located on a green informational 
sign of a few words. For example: Future Interstate Corridor or 
Future I-00 Corridor.
    3. The Interstate shield may not include the word 
``Interstate.''
    4. The FHWA Division Office must approve the signs as to design, 
wording, and detailed location.

Appendix D to Part 470, Subpart A--Guidance Criteria for Evaluating 
Requests for Modifications to the National Highway System

    Section 103(b), of title 23, U.S.C., allows the States to 
propose modifications to the National Highway System (NHS) and 
authorizes the Secretary to approve such modifications provided that 
they meet the criteria established for the NHS and enhance the 
characteristics of the NHS. In proposing modifications under 23 
U.S.C. 103(b), the States must cooperate with local and regional 
officials. In urbanized areas, the local officials must act through 
the metropolitan planning organization (MPO) designated for such 
areas under 23 U.S.C. 134. The following guidance criteria should be 
used by the States to develop proposed modifications to the NHS.
    1. Proposed additions to the NHS should be included in either an 
adopted State or metropolitan transportation plan or program.
    2. Proposed additions should connect at each end with other 
routes on the NHS or serve a major traffic generator.
    3. Proposals should be developed in consultation with local and 
regional officials.
    4. Proposals to add routes to the NHS should include information 
on the type of traffic served (i.e., percent of trucks, average trip 
length, local, commuter, interregional, interstate) by the route, 
the population centers or major traffic generators served by the 
route, and how this service compares with existing NHS routes.
    5. Proposals should include information on existing and 
anticipated needs and any planned improvements to the route.
    6. Proposals should include information concerning the possible 
effects of adding or deleting a route to or from the NHS might have 
on other existing NHS routes that are in close proximity.
    7. Proposals to add routes to the NHS should include an 
assessment of whether modifications (adjustments or deletions) to 
existing NHS routes, which provide similar service, may be 
appropriate.
    8. Proposed modifications that might affect adjoining States 
should be developed in cooperation with those States.
    9. Proposed modifications consisting of connections to major 
intermodal facilities should be developed using the criteria set 
forth below. These criteria were used for identifying initial NHS 
connections to major intermodal terminals. The primary criteria are 
based on annual passenger volumes, annual freight volumes, or daily 
vehicular traffic on one or more principal routes that serve the 
intermodal facility. The secondary criteria include factors which 
underscore the importance of an intermodal facility within a 
specific State.

Primary Criteria

Commercial Aviation Airports

    1. Passengers--scheduled commercial service with more than 
250,000 annual enplanements.
    2. Cargo--100 trucks per day in each direction on the principal 
connecting route, or 100,000 tons per year arriving or departing by 
highway mode.

Ports

    1. Terminals that handle more than 50,000 TEUs (a volumetric 
measure of containerized cargo which stands for twenty-foot 
equivalent units) per year, or other units measured that would 
convert to more than 100 trucks per day in each direction. (Trucks 
are defined as large single-unit trucks or combination vehicles 
handling freight.)
    2. Bulk commodity terminals that handle more than 500,000 tons 
per year by highway or 100 trucks per day in each direction on the 
principal connecting route. (If no individual terminal handles this 
amount of freight, but a cluster of terminals in close proximity to 
each other does, then the cluster of terminals could be considered 
in meeting the criteria. In such cases, the connecting route might 
terminate at a point where the traffic to several terminals begins 
to separate.)
    3. Passengers--terminals that handle more than 250,000 
passengers per year or 1,000 passengers per day for at least 90 days 
during the year.

Truck/Rail

    1. 50,000 TEUs per year, or 100 trucks per day, in each 
direction on the principal connecting route, or other units measured 
that would convert to more than 100 trucks per day in each 
direction. (Trucks are defined as large single-unit trucks or 
combination vehicles carrying freight.)

Pipelines

    1. 100 trucks per day in each direction on the principal 
connecting route.

Amtrak

    1. 100,000 passengers per year (entrainments and detrainments). 
Joint Amtrak, intercity bus and public transit terminals should be 
considered based on the combined passenger volumes. Likewise, two or 
more separate facilities in close proximity should be considered 
based on combined passenger volumes.

Intercity Bus

    1. 100,000 passengers per year (boardings and deboardings).

Public Transit

    1. Stations with park and ride lots with more than 500 vehicle 
parking spaces, or 5,000 daily bus or rail passengers, with 
significant highway access (i.e., a high percentage of the 
passengers arrive by cars and buses using a route that connects to 
another NHS route), or a major hub terminal that provides for the 
transfer of passengers among several bus routes. (These hubs should 
have a significant number of buses using a principal route 
connecting with the NHS.)

Ferries

    1. Interstate/international--1,000 passengers per day for at 
least 90 days during the year. (A ferry which connects two terminals 
within the same metropolitan area should be considered as local, not 
interstate.)
    2. Local--see public transit criteria above.

Secondary Criteria

    Any of the following criteria could be used to justify an NHS 
connection to an intermodal terminal where there is a significant 
highway interface:
    1. Intermodal terminals that handle more than 20 percent of 
passenger or freight volumes by mode within a State;
    2. Intermodal terminals identified either in the Intermodal 
Management System or the State and metropolitan transportation plans 
as a major facility;
    3. Significant investment in, or expansion of, an intermodal 
terminal; or
    4. Connecting routes targeted by the State, MPO, or others for 
investment to address an existing, or anticipated, deficiency as a 
result of increased traffic.

Proximate Connections

    Intermodal terminals, identified under the secondary criteria 
noted above, may not have sufficient highway traffic volumes to 
justify an NHS connection to the terminal. States and MPOs should 
fully consider whether a direct connection should be identified for 
such terminals, or whether being in the proximity (2 to 3 miles) of 
an NHS route is sufficient.

[FR Doc. 97-16081 Filed 6-18-97; 8:45 am]
BILLING CODE 4910-22-P