[Federal Register Volume 64, Number 31 (Wednesday, February 17, 1999)]
[Proposed Rules]
[Pages 7849-7852]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-3839]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF TRANSPORTATION

Federal Highway Administration

49 CFR Parts 390 and 396

[FHWA Docket No. FHWA-98-3656]
RIN 2125-AE40


General Requirements Inspection, Repair, and Maintenance; 
Intermodal Container Chassis and Trailers

AGENCY: Federal Highway Administration (FHWA), DOT.

ACTION: Advance notice of proposed rulemaking (ANPRM); request for 
comments.

-----------------------------------------------------------------------

SUMMARY: In response to a petition for rulemaking filed by the American 
Trucking Associations, Inc. (ATA) and the ATA Intermodal Conference 
(the petitioners), the FHWA agreed to consider revisions to the 
requirements in parts 390 and 396 of the Federal Motor Carrier Safety 
Regulations (FMCSRs) that place upon motor carriers the responsibility 
for maintaining intermodal container chassis and trailers. The 
petitioners contend that motor carriers have no opportunity to maintain 
this equipment and that the parties who do have the opportunity often 
fail to do so. The FHWA, therefore, is seeking information on the 
extent of this problem and public comments on the solution proposed by 
petitioners, i.e., to mandate joint responsibility between the 
``equipment provider'' and the motor carrier for maintaining this type 
of intermodal equipment.

DATES: Comments must be received on or before April 19, 1999.

ADDRESSES: Signed, written comments should refer to the docket number 
that appears at the top of this document and must be submitted 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 9 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: Mr. Richard H. Singer, Office of Motor 
Carrier Research and Standards, HCS-10, (202) 366-4009; or Mr. Charles 
E. Medalen, Office of the Chief Counsel, HCC-20, (202) 366-1354, 
Federal Highway Administration, 400 Seventh Street, SW., Washington, DC 
20590. [TDD number for the hearing impaired: 1-800-699-7828] Office 
hours are from 7:45 a.m. to 4:15 p.m., e.t., Monday through Friday, 
except Federal holidays.

SUPPLEMENTARY INFORMATION:

Electronic Access

    Internet users can access all comments received by the U.S. DOT 
Dockets, Room PL-401, by using the universal resource locator (URL): 
http://dms.dot.gov. It is available 24 hours each day, 365 days each 
year. Please follow the instructions online for more information and 
help.
    An electronic copy of this document may be downloaded using a modem 
and suitable communications software from the Government Printing 
Office's Electronic Bulletin Board Service at (202) 512-1661. Internet 
users may reach the Federal Register's home page at http://
www.nara.gov/fedreg and the Government Printing Office's database at 
http://www.access.gpo.gov/nara.

Background

    The American Trucking Associations, Inc. and the ATA Intermodal 
Conference filed a petition for rulemaking on March 17, 1997, to amend 
49 CFR parts 390 and 396 of the FMCSRs.
    The petitioners asked the FHWA to require parties that tender 
intermodal equipment to motor carriers to ensure the ``roadworthiness'' 
of that equipment. The petition pointed out that:

    [t]he motor carrier--or more precisely, the driver--usually does 
not have the ability or opportunity to do a full and adequate 
inspection of each piece of intermodal equipment to ensure the 
equipment's roadworthiness or compliance with the FMCSRs when 
accepting intermodal equipment at a port or railhead. The equipment 
is owned or leased by the railroad, steamship line or other party 
tendering/interchanging it to the motor carrier. If a safety defect 
in the equipment is not immediately obvious to the truck driver, he/
she has neither the time nor facilities to conduct a more in-depth 
inspection. The standard interchange agreement adopted by most 
equipment providers, the Uniform Intermodal Interchange and 
Facilities Access Agreement (UIIA), specifically states that the 
``(p)rovider makes no express nor implied warranty as to the fitness 
of the equipment.'' Further, the typical equipment provider addendum 
to the UIIA requires the driver to warrant that the equipment is 
``roadworthy.''

    The petitioners argue that poor maintenance of intermodal equipment 
is a serious safety problem and request the FHWA to make the owner or 
operator of such equipment responsible for the roadworthiness of the 
vehicles it tenders to motor carriers.
    Motor carriers must be held responsible for the safety of their own 
equipment, but when they engage in

[[Page 7850]]

intermodal transportation this service often requires them to operate 
vehicles which they do not own, and rarely control, until just before 
the highway movement begins. It can be difficult, as the petitioners 
contend, for motor carriers to comply with the requirements of the 
FMCSRs without taking intermodal equipment out of service for 
inspection, which could cause significant delay and disruption in the 
movement of containers or trailers.

Present Requirement/ATA Proposed Amendments

    The petitioners requested that title 49 of the Code of Federal 
Regulations be amended as follows. Proposed changes are italicized:

Section 396.1  Scope

    General--Every motor carrier (and for this part any party who is 
tendering or interchanging a trailer, chassis, or container to a motor 
carrier), its officers, drivers, agents, representatives, and employees 
directly concerned with the inspection or maintenance of motor vehicles 
shall comply and be conversant with the rules of this part.

Section 396.7  Unsafe Operations Forbidden

    (a) General--A motor vehicle shall not be operated in such a 
condition as to likely cause an accident or a breakdown of the vehicle.
    (b) Intermodal--No person shall tender or interchange a 
trailer, chassis, or container in violation of section (a) to a motor 
carrier.
    (c) No motor carrier shall certify or otherwise guarantee to any 
person tendering or interchanging any trailer, chassis, or container to 
a motor carrier that such trailer, chassis, or container complies with 
this Part unless the person tendering or interchanging the trailer, 
chassis, or container has provided the motor carrier with adequate 
equipment, time, and facilities to make a full inspection and necessary 
repairs to the trailer, chassis, or container prior to the tendering or 
interchange of the trailer, chassis, or container.
    (d) Exemption--Any motor vehicle discovered to be in an unsafe 
condition while being operated on the highway may be continued in 
operation only to the nearest place where repairs can safely be 
effected. Such operation shall be conducted only if it is less 
hazardous to the public than to permit the vehicle to remain on the 
highway.

Section 396.9  Inspection of Motor Vehicles in Operation

    (a) Personnel authorized to perform inspections. Every special 
agent of the FHWA (as defined in Appendix B to this subchapter) is 
authorized to enter upon and perform inspections of motor carrier's 
vehicles in operation and any trailer, chassis, or container at an 
intermodal terminal which is intended to be tendered or interchanged to 
a motor carrier for use on the highways.

Section 390.37  Violation and Penalty

    Any person who violates the rules set forth in this subchapter or 
Part 325 of Subchapter A may be subject to civil or criminal penalties. 
When a motor carrier has been tendered a trailer, chassis, or container 
that does not meet the standards set forth in Part 393 in violation of 
section 396.1 of this subchapter, the motor carrier tendered or 
interchanged such a vehicle shall not be liable for civil or criminal 
penalties under this subchapter.

Jurisdiction

    The FHWA has jurisdiction over ``commercial motor vehicles'' 
(CMVs), ``employees'' and ``employers,'' as defined in 49 U.S.C. 
31132(1), (2) and (3), respectively. The vast majority of intermodal 
trailers and chassis-and-container combinations meet the definition of 
a CMV--a ``towed vehicle used on the highways in interstate commerce to 
transport * * * property (which) (A) has a gross vehicle weight rating 
or gross vehicle weight of at least 10,001 pounds * * * '' An employer 
is ``a person engaged in a business affecting interstate commerce that 
owns or leases a commercial motor vehicle in connection with that 
business, or assigns an employee to operate it.'' An employee is ``an 
operator of a commercial motor vehicle (including an independent 
contractor when operating a commercial motor vehicle), a mechanic, a 
freight handler, or an individual not an employer, who (A) directly 
affects commercial motor vehicle safety in the course of employment * * 
* ''
    Railroads, steamship lines, pier operators, or other parties that 
own or lease intermodal CMVs are thus ``employers'' subject to the 
jurisdiction of the FHWA. Any employee of such a business who is 
responsible for intermodal CMVs ``directly affects commercial motor 
vehicle safety'' through the inspection and maintenance program he or 
she manages and is thus an ``employee'' subject to the jurisdiction of 
the FHWA.

Request for Comments

    Although FHWA believes it may be prudent to establish joint 
responsibility between the ``equipment provider'' and the motor carrier 
for the maintenance of these intermodal container chassis and trailers, 
the agency seeks to ensure that it has considered all the pertinent 
issues that could impact any potential rulemaking changes.
    The FHWA specifically requests comments addressing the following 
questions. However, commenters are also encouraged to include 
discussion of any other issues they consider relevant to this 
rulemaking.
    1. What is the out-of-service (OOS) rate for intermodal container 
chassis or trailers inspected at roadside? If that information is not 
available, what percentage of the intermodal equipment transported by 
individual motor carriers are placed out of service? What percentage of 
OOS orders involve intermodal chassis? What percentage involve 
intermodal trailers? What percentage of OOS orders are issued within 24 
hours after the motor carrier takes possession of the intermodal 
equipment? Within 48 hours? Within 96 hours? State agencies are 
encouraged to respond to this question with information from their 
State inspection databases.
    2. What is the violation rate (the average number of equipment-
related violations of the FMCSRs found per inspection) for intermodal 
container chassis or trailers inspected at roadside? If that 
information is not available, what percentage of the intermodal 
equipment transported by individual motor carriers have defects or 
deficiencies? What percentage of inspection violations involve 
intermodal chassis? What percentage involve intermodal trailers? What 
percentage of violations are discovered within 24 hours after the motor 
carrier takes possession of the intermodal equipment? Within 48 hours? 
Within 96 hours? State agencies are encouraged to respond to this 
question with information from their State inspection databases.
    3. Why does the Uniform Intermodal Interchange and Facilities 
Access Agreement disavow all responsibility for the ``fitness'' of 
intermodal equipment?
    4. Generally, national accident databases do not provide enough 
detail for the FHWA to determine the percentage of commercial motor 
vehicle accidents that can be attributed, in whole or in part, to 
mechanical defects or deficiencies. If the FHWA decides to proceed with 
this rulemaking, it would be necessary to estimate the benefits in

[[Page 7851]]

terms of accidents and injuries prevented and lives saved. Are State 
officials and motor carriers aware of accidents attributable to 
mechanical defects or deficiencies on intermodal container chassis or 
trailers? If yes, what were the specific mechanical defects or 
deficiencies and how was (were) the cause(s) of the accident(s) 
determined? Do the States or industry sources have statistically 
reliable data on accidents of this type, or on defects or deficiencies 
that could lead to accidents? If so, please provide the information.
    5. If the FHWA were to develop regulations making certain entities 
who offer intermodal container chassis and trailers for transportation 
responsible for the mechanical condition of those vehicles, one of the 
means of enforcement would be through roadside inspections. During a 
roadside inspection, defects or deficiencies could be identified, but 
it is uncertain whether inspectors could determine when the defect or 
deficiency occurred (i.e., before or after the motor carrier took 
possession of the container chassis or trailer). How could State 
officials cite the party that tendered the intermodal CMV for defects 
or deficiencies found at the roadside if there were no proof that the 
defects or deficiencies were present before the motor carrier took 
possession of the vehicle?
    6. Should the party that tendered the intermodal CMV be held 
responsible for all defects or deficiencies irrespective of the length 
of time the motor carrier has been operating the container chassis or 
trailer? If not, at what point during the operation of the chassis or 
trailer should the responsibility for ensuring its safe operation be 
transferred from the entity offering the vehicle for transportation to 
the motor carrier?
    7. The petitioners indicated that drivers usually do not have the 
``ability or opportunity to do a full and adequate inspection of each 
piece of intermodal equipment to ensure the equipment's roadworthiness 
or compliance with the FMCSRs when accepting intermodal equipment at a 
port or railhead.'' What are the obstacles to providing drivers with 
the opportunity to perform a walk-around inspection of container 
chassis and trailers? With regard to ability, what types of training 
would drivers need to perform a walk-around inspection of the container 
chassis or trailers?
    8. If the FHWA issued regulations to make the entities who offer 
container chassis or trailers responsible for the mechanical condition 
of the vehicles, these entities would need to provide maintenance 
facilities and personnel to systematically inspect, repair, and 
maintain the vehicles. How many inspection, repair, and maintenance 
facilities and mechanics are currently used by these parties to service 
container chassis and trailers used in intermodal operations? How many 
additional facilities and employees would be needed to ensure that 
every intermodal CMV complied with the FMCSRs before being turned over 
to a motor carrier? What would be the incremental total and per-vehicle 
cost to these parties of such a rule? What operational impact would the 
rule have on intermodal transportation?
    9. Currently, Sec. 396.17 requires that all commercial motor 
vehicles operated in interstate commerce be inspected at least once 
every 12 months. Proof of inspection must be carried on the vehicle. If 
an intermodal container chassis or trailer or other vehicle being 
offered for transportation does not have proof of inspection, the 
carrier should recognize, irrespective of the appearance of the 
vehicle, that it may not be operated in interstate commerce. How often 
do equipment providers tender and motor carriers accept container 
chassis trailers or other vehicles without proof that the periodic 
inspection was performed?
    10. For cases in which vehicles have an inspection decal or other 
form of documentation indicating that the periodic inspection was 
performed within 3 months prior to the carrier accepting the container 
chassis or trailer for transportation, how often are vehicle defects or 
deficiencies found during roadside inspections?
    11. For cases in which vehicles have an inspection decal or other 
form of documentation indicating that the periodic inspection was 
performed between 3 months and 6 months of the carrier accepting the 
container chassis or trailer for transportation, how often are vehicle 
defects or deficiencies found during roadside inspections?
    12. For cases in which vehicles have an inspection decal or other 
form of documentation indicating that the periodic inspection was 
performed between 6 months and 9 months of the carrier accepting the 
container chassis or trailer for transportation, how often are vehicle 
defects or deficiencies found during roadside inspections?
    13. Could the safety objectives of this rulemaking be accomplished 
by requiring more frequent periodic inspections of container chassis 
and certain trailers (e.g., every 6 months, or 3 months) with 
documentation or proof of inspection on the vehicle and an inspection 
report made available within 48 to 72 hours of a request from a Federal 
or State official?
    14. One alternative to the FHWA issuing new regulations is for 
motor carriers and/or entities offering the container chassis or 
trailers for transportation to develop maintenance consortiums or make 
similar arrangements to ensure that routine maintenance is performed 
and repairs are made in a timely manner. What has the private sector 
done to resolve the problem of maintenance of intermodal container 
chassis and trailers?

Public Meetings

    To provide the opportunity for additional input on this rulemaking, 
the Department intends to hold three public meetings in the coming 
months. The dates, times, and specific locations of these public 
meetings have not yet been determined, but will be announced in future 
Federal Register notices and press releases. Persons desiring more 
details on these meetings can also receive direct notification by 
addressing their requests to the individuals identified in this Federal 
Register notice under the section entitled ``For Further Information 
Contact.''

Rulemaking Analyses and Notices

    All comments received before the close of business on the comment 
closing date indicated above will be considered and will be available 
for examination in the docket room at the above address. Comments 
received after the comment closing date will be filed in the docket and 
will be considered to the extent practicable. In addition to late 
comments, the FHWA will also continue to file, in the docket, relevant 
information that becomes available after the comment closing date, and 
interested persons should continue to examine the docket for new 
material.

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

    The FHWA has determined that this is a significant regulatory 
action under Executive Order 12866 and under the Department of 
Transportation's regulatory policies and procedures because of the 
substantial public interest anticipated in this action. An organization 
representing ocean common carriers wrote to the agency while this 
notice was being prepared. It disputes most of the points made by the 
ATA petition and argues that the cost and delay attendant upon shifting 
regulatory burdens onto those who tender intermodal equipment to motor 
carriers is unacceptable. The document will be placed in the public 
docket. The FHWA expects other commenters to be equally forthright in 
expressing views

[[Page 7852]]

for and against the rule requested by the ATA.
    Due to the preliminary nature of this document and lack of 
necessary information on costs and benefits, the FHWA is unable to 
evaluate the economic impact of the potential regulatory changes being 
considered in this rulemaking. Based upon the information received in 
response to this notice, the FHWA intends to carefully consider the 
costs and benefits associated with various alternatives proposed. 
Comments, information, and data are solicited on the economic impact of 
the potential changes described in this document or any alternative 
proposal submitted.

Regulatory Flexibility Act

    Due to the preliminary nature of this document and lack of 
necessary information on costs and benefits, the FHWA is unable to 
evaluate the effects of the potential regulatory changes on small 
entities. Based upon the information received in response to this 
notice, the FHWA intends, in compliance with the Regulatory Flexibility 
Act (5 U.S.C. 601 et seq.), to carefully consider the economic impacts 
of these potential changes on small entities. The FHWA solicits 
comments, information, and data on these potential impacts.

Unfunded Mandates Reform Act of 1995

    The FHWA will analyze any proposed rule to determine whether it 
would result in the expenditure by State, local, and tribal 
governments, in the aggregate, or by the private sector, of $100 
million or more in any one year, as required by the Unfunded Mandates 
Reform Act of 1995 (2 U.S.C. 1532).

Executive Order 12612 (Federalism Assessment)

    This action 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.

Executive Order 12372 (Intergovernmental Review)

    The regulations implementing Executive Order 12372 regarding 
intergovernmental consultation on Federal programs and activities do 
not apply to this program.

Paperwork Reduction Act

    This action does not contain a collection of information 
requirement for purposes of the Paperwork Reduction Act of 1995, 44 
U.S.C. 3501-3520. Should future rulemaking action result in more 
frequent (periodic) inspection requirements, with accompanying 
increases in documentation and numbers of inspection reports, then an 
information collection request will be submitted to the Office of 
Management and Budget for consideration and approval.

National Environmental Policy Act

    The agency has analyzed this action for the purpose of the National 
Environmental Policy Act of 1969, as amended (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

49 CFR Part 390

    Highway safety, Highways and roads, Motor carriers, Motor vehicle 
identification and marking, Reporting and recordkeeping requirements.

49 CFR Part 396

    Highway safety, Highways and roads, Motor carriers, Motor vehicle 
maintenance, Motor vehicle safety, Reporting and recordkeeping 
requirements.

    Authority: 49 U.S.C. 504, 31133, 31136, and 31502; and 49 CFR 
1.48.

    Issued on: February 10, 1999.
Kenneth R. Wykle,
Federal Highway Administrator.
[FR Doc. 99-3839 Filed 2-16-99; 8:45 am]
BILLING CODE 4910-22-P