[Federal Register Volume 64, Number 247 (Monday, December 27, 1999)]
[Notices]
[Pages 72373-72376]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-33474]


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DEPARTMENT OF TRANSPORTATION

Office of Motor Carrier Safety
[OMCS Docket No. OMCS-99-6579]


Hours-of-Service of Drivers; Exemption Application from Van Wyk 
Freight Lines, Inc.

AGENCY: Office of Motor Carrier Safety (OMCS), DOT.

ACTION: Notice of application for exemption and proposal to deny 
exemption; request for comments.

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SUMMARY: The OMCS is announcing its proposal to deny the application of 
Van Wyk Freight Lines, Inc. (Van Wyk) for an exemption from the records 
of duty status (log book) provisions of the hours-of-service 
regulations. Van Wyk indicated that its drivers meet all of the maximum 
driving time limitations in the Federal Motor Carrier Safety 
Regulations (FMCSRs) and that it satisfies three of the five conditions 
for using the OMCS' 100 air-mile radius driver exception to the 
requirement for log books. Van Wyk's drivers exceed the 100 air-mile 
distance, and the 12 hours on-duty limitations in the exception. Van 
Wyk believes its computerized payroll records, and compliance with the 
remaining conditions listed in the 100 air-mile radius driver exception 
would achieve a level of safety comparable to that provided under the 
exception. The OMCS proposes to deny the exemption because Van Wyk did 
not explain how it would ensure that it could achieve a level of safety 
that is equivalent to, or greater than, the level of safety that would 
be obtained by complying with the 100-air mile radius exception to the 
log book requirements. Also, Van Wyk did not describe the impacts 
(e.g., inability to test innovative safety management control systems, 
etc.) it could experience if the exemption is not granted by the OMCS. 
The exemption, if granted, would preempt inconsistent State and local 
requirements applicable to interstate commerce.

DATES: Comments must be received on or before January 26, 2000.

ADDRESSES: Submit written, signed comments with the docket number 
appearing at the top 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 from 9 a.m. to 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. Larry W. Minor, Office of Motor 
Carrier Research and Standards, HMCS-10, (202) 366-4009, Office of 
Motor Carrier Safety, 400 Seventh Street, SW., Washington, D.C. 20590-
0001; or Mr. Charles E. Medalen, Office of the Chief Counsel, HCC-20, 
(202) 366-1354, Federal Highway Administration, 400 Seventh Street, 
SW., Washington, D.C. 20590-0001. 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 may access all comments that are submitted to the 
Docket Clerk, U.S. DOT Dockets, Room PL-401, 400 Seventh Street, SW., 
Washington, DC 20590-0001, 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 Office of 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.

Creation of New Agency

    Section 338 of the FY 2000 Department of Transportation and Related 
Agencies Appropriations Act prohibits the expenditure of any funds 
appropriated by that Act ``to carry out the functions and operations of 
the

[[Page 72374]]

Office of Motor Carriers within the Federal Highway Administration'' 
(Pub. L. 106-69, October 9, 1999, 113 Stat. 986, at 1022). Section 338 
further provides that, if the authority of the Secretary of 
Transportation on which the functions and operations of the Office of 
Motor Carriers are based is redelegated outside the FHWA, the funds 
available to that Office under the Act may be transferred and expended 
to support its functions and operations.
    The Secretary has rescinded the authority previously delegated to 
the FHWA to perform motor carrier functions and operations. This 
authority has been redelegated to the Director, Office of Motor Carrier 
Safety (OMCS), a new office within the Department of Transportation (64 
FR 56270, October 19, 1999).
    The motor carrier functions of the FHWA's Resource Centers and 
Division (i.e., State) Offices have been transferred to OMCS Resource 
Centers and OMCS Division Offices, respectively. Rulemaking, 
enforcement and other activities of the Office of Motor Carrier Safety 
while part of the FHWA will be continued by the OMCS. The redelegation 
will cause no changes in the motor carrier functions and operations 
previously handled by the FHWA. For the time being, all phone numbers 
and addresses are unchanged.

Background

    On June 9, 1998, the President signed the Transportation Equity Act 
for the 21st Century (TEA-21) (Public Law 105-178, 112 Stat. 107). 
Section 4007 of TEA-21 amended 49 U.S.C. 31315 and 31136(e) concerning 
the Secretary of Transportation's (the Secretary's) authority to grant 
exemptions from the FMCSRs for a person(s) seeking regulatory relief 
from those requirements. An exemption may be granted for no longer than 
two years from its approval date, and may be renewed upon application 
to the Secretary. The Secretary must provide the public with an 
opportunity to comment on each exemption request prior to granting or 
denying the exemption.
    Section 4007 requires the OMCS to publish a notice in the Federal 
Register for each exemption requested, explaining that the request has 
been filed, and providing the public with an opportunity to inspect the 
safety analysis and any other relevant information known to the agency, 
and to comment on the request. Prior to granting a request for an 
exemption, the agency must publish a notice in the Federal Register 
identifying the person or class of persons who will receive the 
exemption, the provisions from which the person will be exempt, the 
effective period, and all terms and conditions of the exemption. The 
terms and conditions established by the OMCS must ensure that the 
exemption will likely achieve a level of safety that is equivalent to, 
or greater than, the level that would be achieved by complying with the 
regulation.
    On December 8, 1998, the FHWA published an interim final rule 
implementing section 4007 of TEA-21 (63 FR 67600). The regulations at 
49 CFR part 381 establish the procedures persons must follow to request 
waivers and to apply for exemptions from the FMCSRs, and the procedures 
used to process the requests for waivers and applications for 
exemptions.
    As indicated earlier in this notice, the Secretary has rescinded 
the authority previously delegated to the FHWA to carry out motor 
carrier functions and operations. Therefore, the regulations issued by 
the FHWA are now regulations of the OMCS. On October 29, 1999 (64 FR 
58355), the OMCS issued a final rule amending the heading for chapter 
III of title 49 of the Code of Federal Regulations to reflect the 
organizational changes.

Van Wyk's Application for an Exemption

    Van Wyk applied for an exemption from 49 CFR 395.8, which provides 
requirements concerning drivers' records of duty status or ``log 
books.'' A copy of the application is in the docket identified at the 
beginning of this notice. Generally, motor carriers must require each 
of their CMV drivers to record his/her duty status for each 24-hour 
period using the methods prescribed in the regulations. The regulation 
provides motor carriers with two options: manually recording the duty 
status in a log book, or using an automatic on-board recording device. 
Section 395.1(e) of the hours-of-service regulations provides an 
exemption to the requirements of Sec. 395.8 for certain drivers 
operating CMVs within a 100 air-mile radius of the normal work 
reporting location. The 100 air-mile radius exemption is applicable if:
    (1) The driver, except a driver salesperson, returns to the work 
reporting location and is released from work within 12 consecutive 
hours;
    (2) At least 8 consecutive hours off-duty separate each 12 hours on 
duty;
    (3) The driver does not exceed 10 hours maximum driving time 
following 8 consecutive hours off-duty; and,
    (4) The motor carrier that employs the driver maintains and retains 
for a period of six months accurate and true time records showing:
    (i) The time the driver reports for duty each day;
    (ii) The total number of hours the driver is on-duty each day;
    (iii) The time the driver is released from duty each day; and,
    (iv) The total time for the preceding seven days in accordance with 
Sec. 385.8(j)(2) 1 for drivers used for the first time or 
intermittently.
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    \1\  Section 395.8(j)(2) requires that motor carriers, when 
using a driver for the first time or intermittently, must obtain 
from the driver a signed statement giving the total time on duty 
during the immediately preceding seven days and the time at which 
the driver was last relieved from duty prior to beginning work for 
the motor carriers.
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    Van Wyk believes that its motor carrier operations meet most of the 
conditions in the 100 air-mile radius exception and that the 
differences--Van Wyk's drivers exceed the 100 air-mile distance, and 
the drivers sometimes remain on duty for 15 consecutive hours--should 
not preclude the company from obtaining relief from the log book 
requirement. Van Wyk indicated that its drivers normally work a 10-hour 
day, take at least an 8-hour break between each tour of duty; return to 
the same point of origin at the end of each shift; do not exceed 10 
hours of driving time on any given shift, and do not work on Saturday 
and Sunday. The company keeps track of drivers' hours through an 
electronic time clock that indicates the start time, number of hours 
on-duty, and the time the driver gets off work each day. The company 
can also show the last 12 months of ``activity'' through computerized 
payroll records.

Basis for Proposal to Deny the Exemption

    The OMCS has carefully reviewed Van Wyk's application and does not 
believe that it would be appropriate to grant an exemption solely on 
the basis that the applicant meets most of the conditions of an 
existing exception developed through notice-and-comment rulemaking 
procedures.
    On April 3, 1980 (45 FR 22042), as part of the FHWA's effort to 
reduce the paperwork burden on the drivers and motor carriers while 
retaining adequate controls over the hours-of-service, the agency 
published the final rule creating an exception to the log book 
requirements for drivers who operate commercial motor vehicles within a 
100 air-mile radius of the place where the driver reports for work. The 
preamble to the final rule included a discussion of commenters' 
concerns about various aspects of the rulemaking. The FHWA received 112 
responses to the notice of

[[Page 72375]]

proposed rulemaking published on October 13, 1977 (42 FR 55109). The 
agency indicated that eight respondents opposed the proposal as 
written. Fifty-eight respondents supported the proposal as written. 
Thirty respondents submitted conditionally favorable responses 
predicated on variations of one or more elements of the proposal and 16 
comments were considered beyond the scope of the proposal. The agency 
stated:
    Those respondents who submitted conditionally favorable responses 
objected to particular elements that would require:
    1. The [driver] to prepare a log every day if the driver operates 
beyond the 100-mile radius more than one day per month;
    2. The driver to return (within 12 hours) to the place the driver 
reported for work; and,
    3. Time records related to those exempt operations to be retained 
at the carrier's principal place of business unless permission is 
obtained to retain the records at another location.
    It is agreed that the one day per month limitation may be overly 
restrictive. The requirement that the motor carrier prepare and retain 
true and accurate time records, coupled with the 12-hour limitation, 
ensures that adequate records are available to determine driver 
compliance with the hours-of-service regulations.
    Therefore, the proposed exemption is being modified to require log 
preparation on a daily basis by drivers who operate beyond the 100-mile 
radius more than one time in any 7 consecutive day period. If a driver 
operates beyond the 100-mile radius more than one time in any 7 
consecutive days, a pattern of operation would be established that 
would require preparation of a log every day. If a motor carrier 
demonstrates that the driver will no longer be required to operate 
beyond the 100-mile radius, the exemption could then be reinstated for 
that particular driver. This action is in harmony with the present 
interpretation covering operations beyond the 50-mile radius (42 FR 
60078). 2
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    \2\  On November 26, 1982 (47 FR 53383) the FHWA published a 
final rule revising the requirements for recording a driver's duty 
status. Section 395.9 concerning drivers' multi-day logs, which 
included the log preparation requirements for drivers who operate 
beyond the 100-mile radius more than once in any 7 consecutive day 
period, was removed and reserved. The FHWA has since published 
regulatory guidance about drivers who fail to meet the provisions of 
the 100 air-mile radius exemption. (62 FR 16370, 16421; April 4, 
1997).
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    Many of the commenters who favored the proposal, in general, 
objected to the 12-hour limitation. Those commenters indicated that 
there are certain places such as piers, oil refineries, steel mills, 
etc., where waiting times of 6-7 hours occur frequently and a driver 
would not exceed the 10-hour driving rule, but because of the delays 
could exceed the 12-hour limit proposed in the 100-mile exemption rule 
and on those days not be entitled to the exemption. On the other hand, 
other commenters pointed out that the 12-hour limitation was fair 
considering the benefits to be gained by not having to prepare a log.
    Another argument raised by certain commenters against the 12-hour 
limit was that some drivers may now be operating within the 50-mile 
radius exemption who, under the 100-mile radius exemption, would now 
have to prepare a log. However, since FHWA is expanding the area of 
operation four-fold, a limitation is necessary to ensure that the 
hours-of-service are not violated. This limitation applies only if one 
wants to take advantage of the 100-mile log exemption. The exemption 
does not alter or should not be confused with the present hours-of-
service limitations set forth in section 395.3 of the Federal Motor 
Carrier Safety Regulations (FMCSRs). It should be clearly understood 
that once a driver exceeds that 12-hour limitation, the 100-mile 
exemption would no longer be applicable for that day and the hours-of-
service for that day would have to be recorded on a driver's log. [45 
FR 22042, 22043; April 3, 1980]
    The preamble to the 1980 final rule thus demonstrates that the FHWA 
fully considered industry concerns about the time limit for returning 
to the work-reporting location. Van Wyk has not provided any new 
information to support increasing either the time or the distance 
restrictions in the current exception. Expanding both would enable Van 
Wyk to dispatch drivers a distance of almost 300 statute miles from the 
work reporting location (if the driver averages approximately 60 miles 
per hour for 5 hours), perform non-driving tasks for almost 5 hours, 
and then return to the work-reporting location with no readily apparent 
means of ensuring that the driver does not exceed 10 hours driving 
time. The drivers could operate almost anywhere in a geographic area of 
approximately 282,600 square miles (using a radius (R) of 300 miles 
from the work reporting location, and the formula Area = 3.14 X (R)2 ) 
and not be required to present a log book to their supervisors 
documenting their total driving time, or to enforcement officials in 
any of the jurisdictions in which the vehicle operates. By contrast, 
the current exemption limits the geographic area to 41,527 square miles 
(using a radius of 115 statute miles 3 and the previous 
formula) and requires the driver to return to the terminal within 12 
hours.
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    \3\  The term ``air mile'' is internationally defined as a 
``nautical mile'' which is equivalent to 6,076 feet or 1,852 meters. 
Therefore, 100 air miles are equivalent to 115.08 statute miles or 
185.2 kilometers (62 FR 16370, 16421; April 4, 1997).
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    The OMCS believes that allowing Van Wyk to operate its vehicles in 
an area of approximately 282,600 square miles without requiring log 
books would make it difficult both for the motor carrier and 
enforcement officials to ensure compliance with the maximum driving 
time regulations. Since Van Wyk has requested that its drivers be 
allowed up to 15 hours to return to the work reporting location, 
enforcement officials who encounter Van Wyk drivers would have 
difficulty determining whether the driver has exceeded the 10-hour 
rule. The driver would not have a log book so the inspector would not 
be able to determine the time the driver started working, the total 
amount of driving time before the driver was stopped, the amount of 
time the driver spent performing non-driving tasks, or the time the 
driver was supposed to return to the work reporting location. If there 
were proof of the time the driver started working, the enforcement 
official would still be unable to determine the total driving time, and 
time spent on non-driving tasks.
    Generally, if the enforcement official contacted the motor carrier, 
it is unlikely that the carrier could state with certainty the driver's 
total driving time for the day and the time spent on non-driving tasks. 
This is especially the case if the carrier had no practicable means of 
verifying the driver's whereabouts at any given time during the day. 
The increase in the 12-hour return-to-terminal time limit would provide 
drivers with three additional hours away from the work reporting 
location with no apparent safeguards to ensure that the driver adhered 
to the driving time limitations. The current rule, by contrast, 
requires that the driver return to the work reporting location within 
12 hours. This means the 10-hour rule could be exceeded by 
substantially less than two hours, considering a 30-minute lunch break 
for the driver, loading and unloading time, etc.
    Irrespective of Van Wyk's intentions, the OMCS does not believe 
that a motor carrier should be allowed to put itself into a situation 
in which it could not effectively monitor its drivers' compliance with 
the maximum driving time restriction. Van Wyk has not indicated how, or 
even whether, it intends to carefully review drivers' assignments 
(e.g., look at the specific

[[Page 72376]]

locations the driver is dispatched to during the work day, the amount 
of time required to travel from location to location, the amount of 
time spent at each location, etc.) to supplement the electronic time 
records, which typically would only prove when the driver reported for 
work and when the driver was released from work. Therefore, the OMCS 
does not believe it is likely that Van Wyk could ensure a level of 
safety that is equivalent to, or greater than, the level of safety 
provided by complying with the hours-of-service regulations.
    On November 5, 1996 (61 FR 57252), the FHWA published an advance 
notice of proposed rulemaking (ANPRM) on all aspects of the hours-of-
service regulations. The agency indicated that it was nearing the 
completion of several research projects and was seeking the results of 
other relevant research, including research, operational tests, or 
pilot regulatory programs conducted anywhere in the world, that could 
be used in developing a revised regulatory scheme for CMV drivers' 
hours-of-service. The OMCS has reviewed all the research reports 
submitted by commenters to the rulemaking docket, and scientific 
information obtained through other sources, and is not aware of any 
data that would support creating a regulatory relief program that, if 
abused, would enable a person to drive a CMV up to 13 hours, and 
perhaps even longer. Copies of all known research reports, as well as 
all comments submitted in response to the ANRPM, are available in FHWA 
Docket No. FHWA-97-2350.

Request for Comments

    In accordance with 49 U.S.C. 31315 and 31136(e), the OMCS is 
requesting public comment from all interested persons on the exemption 
application from Van Wyk. All comments received before the close of 
business on the comment closing date indicated at the beginning of this 
notice will be considered and will be available for examination in the 
docket at the location listed under the address section of this notice. 
Comments received after the comment closing date will be filed in the 
public docket and will be considered to the extent practicable, but the 
OMCS may deny the exemption at any time after the close of the comment 
period. In addition to late comments, the OMCS will also continue to 
file, in the public docket, relevant information that becomes available 
after the comment closing date. Interested persons should continue to 
examine the public docket for new material.

    Authority: 49 U.S.C. 31136 and 31315; and 49 CFR 1.73.

    Issued on: December 21, 1999.
Julie Anna Cirillo,
Acting Director, Office of Motor Carrier Safety.
[FR Doc. 99-33474 Filed 12-23-99; 8:45 am]
BILLING CODE 4910-22-P