[Federal Register Volume 66, Number 181 (Tuesday, September 18, 2001)]
[Proposed Rules]
[Pages 48103-48107]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-23260]


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DEPARTMENT OF TRANSPORTATION

Federal Highway Administration

23 CFR Part 625

[FHWA Docket No. FHWA-2001-10077]
RIN 2125-AE89


Design Standards for Highways

AGENCY: Federal Highway Administration (FHWA), DOT.

ACTION: Notice of proposed rulemaking (NPRM); request for comments.

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SUMMARY: The FHWA is requesting comments on a proposed revision to its 
policy on the design standards which apply to highway construction and 
reconstruction projects on the National Highway System (NHS). A 2001 
revision of the American Association of State Highway and 
Transportation Officials' (AASHTO) publication entitled A Policy on 
Geometric Design of Highways and Streets has replaced the previous 
version of this policy published in 1994. If adopted by the FHWA, the 
new AASHTO publication would constitute the FHWA policy on design 
standards for highway construction and reconstruction projects on the 
NHS.

DATES: Comments must be received on or before November 19, 2001.

ADDRESSES: Mail or hand deliver comments to the U.S. Department of 
Transportation, Dockets Management Facility, Room PL-401, 400 Seventh 
Street, SW., Washington, DC 20590-0001, or submit electronically at 
http://dmses.dot.gov/submit. All comments should include the docket 
number that appears in the heading of this document. All comments 
received will be available for examination and copying 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 or you may 
print the acknowledgment page that appears after submitting comments 
electronically.

[[Page 48104]]


FOR FURTHER INFORMATION CONTACT: For technical information: Mr. Seppo 
Sillan, Office of Program Administration (HIPA), (202) 366-1327. For 
legal information: Mr. Harold Aikens, Office of the Chief Counsel (HCC-
32), (202) 366-1373, Federal Highway Administration, 400 Seventh 
Street, SW., Washington, DC 20590-0001. Office hours are from 8 a.m. to 
4:30 p.m., e.t., Monday through Friday, except Federal holidays.

SUPPLEMENTARY INFORMATION:

Electronic Access and Filing

    You may submit or retrieve comments online through the Document 
Management System (DMS) at: http://dmses.dot.gov/submit. Acceptable 
formats include: MS Word (versions 95 to 97), MS Word for Mac (versions 
6 to 8), Rich Text File (RTF), American Standard Code Information 
Interchange (ASCII)(TXT), Portable Document Format (PDF), and 
WordPerfect (versions 7 to 8). The DMS is available 24 hours each day, 
365 days each year. Electronic submission and retrieval help and 
guidelines are available under the help section of the web site.
    An electronic copy of this document may also be downloaded by using 
a computer, modem and suitable communications software from the 
Government Printing Office's Electronic Bulletin Board Service at (202) 
512-1661. Internet users may also reach the Office of the Federal 
Register's home page at: http://www.nara.gov/fedreg and the Government 
Printing Office's web page at: http://www.access.gpo.gov/nara.

Background

    The standards, policies, and standard specifications that have been 
approved by the FHWA for application on all construction and 
reconstruction projects on the NHS are incorporated by reference in 23 
CFR part 625. The current document specified in Sec. 625.4(a)(1) is the 
1994 edition of A Policy on Geometric Design of Highways and Streets 
(Policy).\1\ The AASHTO recently revised the Policy and issued the 2001 
edition which the FHWA proposes to adopt as its policy for design 
standards for all construction and reconstruction projects on the NHS. 
The primary reason for development of the new document was to update 
the previous Policy to incorporate the latest design criteria. See 
``Summary of Changes'' below for a description of the changes made in 
the 2001 edition.
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    \1\ A Policy on Geometric Design of Highways and Streets, 1994, 
is available from AASHTO by telephone (800) 231-3475, facsimile 
(800) 525-5562, mail AASHTO, P.O. Box 96716, Washington, DC 20090-
6716 or at their web site at www.transportation.org.
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    The AASHTO is an organization which represents 52 State highway and 
transportation agencies (including the District of Columbia and Puerto 
Rico). Its members consist of the duly constituted heads and other 
chief officials of those agencies. The Secretary of Transportation is 
an ex officio member, and U.S. DOT officials participate in various 
AASHTO activities as nonvoting representatives. Among other functions, 
the AASHTO develops and issues standards, specifications, policies, 
guides and related materials for use by the States for highway 
projects. Many of the standards, policies, and standard specifications 
approved by the FHWA and incorporated into 23 CFR part 625 were 
developed and issued by the AASHTO. Revisions to such documents of the 
AASHTO are independently reviewed and adopted by the FHWA before they 
are applied to NHS projects.
    The National Highway System (NHS) was established by the National 
Highway System Designation Act of 1995, Pub. L. 104-59, Nov. 28, 1995, 
109 Stat. 568. The NHS 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.
    Generally, the criteria the functional chapters of the Policy on 
local roads and streets and collectors (Chapters 5 and 6) are not 
applicable to projects on the NHS. However, if highway segments 
functionally classified as less than principal arterials are 
incorporated in the NHS by virtue of being Strategic Highway Network 
Connectors or Intermodal Connectors, the standards used may be those 
appropriate for the functional classification of the segment, taking 
into account the type of traffic using the segment.
    Although the standards contained in the Policy do apply to the 
Interstate System, additional guidance applicable to the design of 
highways on the Interstate System is included in another AASHTO 
publication, A Policy on Design Standards--Interstate System.\2\ The 
latest edition of this publication is dated July, 1991; no revisions to 
this document are proposed at this time.
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    \2\ A Policy on Design Standards--Interstate System, 1991, is 
available from AASHTO (see footnote 1).
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Summary of Changes

    The changes in the 2001 Policy were developed as the result of 
formal research projects and information contributed by the AASHTO and 
the FHWA staff experts. The formal research projects containing 
information for the 2001 Policy are shown in the following table:

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                  Research                                                  Subject
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NCHRP Report 375............................  Median Intersection Design.
NCHRP Report 383............................  Intersection Sight Distance.
NCHRP Report 395............................  Midblock Left Turn Lanes.
NCHRP Report 400............................  Stopping Sight Distance.
NCHRP Report 420............................  Access Management.
NCHRP Report 439............................  Superelevation and Transitions.
NCHRP Synthesis 241.........................  Truck Operating Characteristics.
NCHRP Synthesis 264.........................  Modern Roundabout Practice.
HCM 2000....................................  Highway Capacity Analysis.
TRB Circular 430............................  Interchange Operations.
FHWA-RD-97-135..............................  Older Driver Highway Design Handbook.
FHWA-RD-00-067..............................  Roundabouts: An Informational Guide.
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    The NCHRP is the National Cooperative Highway Research Program, a 
coordinated program of research projects administered by the 
Transportation Research Board (TRB) of the National Research Council. 
All NCHRP documents cited herein are available from the TRB by 
telephone (202) 334-3213, facsimile (202) 334-

[[Page 48105]]

2519, or at their web site www.nationalacademies.org/trb/bookstore. The 
Highway Capacity Manual (HCM) is a traffic analysis document produced 
by a combination of research projects administered by the TRB and the 
FHWA. The HCM is available from TRB as described above. The TRB 
Circular is a compendium of articles written by experts on a specific 
topic and published by the TRB. The TRB Circular is available from TRB 
as described above. The last two items in the list are research 
projects conducted by the FHWA. The FHWA documents are available from 
the National Technical Information Service by telephone (800) 553-6847, 
facsimile (703) 605-6900, or at their web site www.ntis.gov. In 
addition, the two FHWA documents may be viewed online at www.tfhrc.gov/library/library.htm.
    The following paragraphs provide a brief synopsis of the 
information that is included in each of the ten chapters of the Policy 
and, as appropriate, any significant additions, revisions or deletions 
made to the currently approved 1994 AASHTO Policy (old Policy) in the 
2001 Policy (new Policy).\3\
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    \3\ A Policy on Geometric Design of Highways and Streets, 2001, 
is available from AASHTO (see footnote 1).
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    All page numbers mentioned in this section refer to the new Policy.

General

    All dimensions used throughout the new Policy are expressed in dual 
units with the Metric value appearing first followed by the U.S. 
Customary value in square brackets. In the old Policy, only Metric 
values were given. Throughout the new Policy, pedestrians and bicycles 
are mentioned and discussed more frequently to increase emphasis on 
consideration of these transportation modes. Examples of pedestrian 
considerations can be found on pages 99, 562, and 618 of the new 
Policy. Examples of bicycle considerations can be found on pages 318, 
378, and 482 of the new Policy.

Chapter 1--Highway Functions

    In this chapter the concept of functional classification of 
highways is presented and the various components of the highway are 
described. This serves as an introduction to functional classification 
and provides an explanation of how the concept is employed in the 
Policy. There are no significant changes made in this chapter.

Chapter 2--Design Controls and Criteria

    This chapter covers those characteristics of vehicles, pedestrians, 
bicycles, and traffic that act as criteria for the design of various 
highway and street functional classes. The design vehicle 
characteristics and their turning paths (pages 15-43) have been revised 
by adding four design vehicles, upgrading dimensions to more accurately 
reflect the existing fleet, and redrawing the turning paths. 
Information from the FHWA Older Driver Highway Design Handbook \4\ has 
been added (page 47). The definition of design speed has been revised 
(page 67) to incorporate recommendations from NCHRP Report 400.\5\ The 
coverage of highway capacity (page 74) has been revised to agree with 
the Highway Capacity Manual 2000 (HCM 2000) \6\ and to eliminate 
redundancy. Access control and access management (page 88) has been 
revised based on the information contained in NCHRP Report 420.
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    \4\ The Older Driver Highway Design Handbook, January 1998, 
Publication No. FHWA-RD-97-135, is available from the National 
Technical Information Service by telephone (800) 553-6847, facsimile 
(703) 605-6900, or at their web site www.ntis.gov. In addition, the 
document may be viewed online at www.tfhrc.gov/library/library.htm.
    \5\ All NCHRP documents cited herein are available from the TRB 
(specify NCHRP Report No.) by telephone (202) 334-3213, facsimile 
(202) 334-2519, or at their web site www.nationalacademies.org/trb/bookstore.
    \6\ The Highway Capacity Manual 2000 is available from the TRB 
by telephone (202) 334-3213, facsimile (202) 334-2519, or at their 
web site www.nationalacademies.org/trb/bookstore.
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Chapter 3--Elements of Design

    This chapter covers the basic elements of design, such as sight 
distance, horizontal and vertical alignment, superelevation, widths of 
turning roadways, and grades.
    1. Stopping sight distance values in the new Policy (page 111) are 
based on vehicle deceleration rates rather than on friction between 
tires and roadway as was done in the old Policy. A single value in the 
new Policy (page 112) replaces the range in values from the old Policy. 
This incorporates recommendations from NCHRP Report 400. For example, 
given a design speed of 100 km/h, the design stopping sight distance in 
the new Policy is 185 m compared to a range of 157 to 205 m in the old 
Policy.
    2. The eye height and object height criteria for measuring sight 
distance have been revised (page 127). The eye height has been raised 
from 1070 mm in the old Policy to 1080 mm [3.5 ft] in the new 
Policy.\7\ The object height for stopping sight distance has been 
raised from 150 mm in the old Policy to 600 mm [2 ft] in the new 
Policy. The object height for passing sight distance has been lowered 
from 1300 mm in the old Policy to 1080 mm [3.5 ft] in the new Policy. 
This incorporates recommendations from NCHRP Reports 383 and 400.
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    \7\ The equivalent U.S. Customary value is not shown for the old 
Policy because it contained only Metric units.
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    3. The design criteria for horizontal curves (page 228) and 
vertical curves (page 272) has been revised to reflect the changes in 
stopping sight distance, eye height, and object height discussed in 1 
and 2 above. For example, given a design speed of 100 km/h and an 
algebraic difference in grade of 4%, the criteria for length of crest 
vertical curve (based on stopping sight distance) is 208 m in the new 
Policy compared to a range of 248 to 420 m in the old Policy.
    4. The section on Transition Design Controls (page 168) has been 
revised and additional information has been added on spiral curve 
transitions to incorporate recommendations from NCHRP Report 439.
    5. The offtracking section (page 206) has been revised by 
recalculating values for WB-15 [WB-50] vehicles and adding an exhibit 
showing adjustment values for other design vehicles.
    6. The values in the section on Traveled Way Widening on Horizontal 
Curves (page 212) have been recalculated based on the design vehicle 
dimensions specified in Chapter 2 of the new Policy.
    7. The speed-distance curves (page 237-238) have been revised for 
120 kg/kW [200 lb/hp] trucks which more closely reflect the existing 
fleet. The critical lengths of grade (page 242) have also been revised 
for this same design vehicle.
    8. A section on Sight Distance at Undercrossings (page 280) has 
been added.
    9. A section on Fencing (page 301) has been added.

Chapter 4--Cross Section Elements

    This chapter discusses the cross section elements of a highway, 
such as lane and shoulder width, pavement cross slope, medians, 
frontage roads, and roadsides. The section on curbs (page 323) has been 
revised to change the terminology from barrier and mountable curbs in 
the old Policy to vertical and sloping curbs in the new Policy. The 
discussion on parabolic cross section has been eliminated. The section 
on medians (page 341) has been

[[Page 48106]]

revised to incorporate recommendations from NCHRP Report 375. The 
section on Pedestrian Facilities (page 361) has been revised and 
expanded.

Chapter 5--Local Roads and Streets

    This chapter covers the design guidance applicable to those roads 
functionally classified as local rural roads and local urban streets. 
The chapter has been revised as appropriate to include changes 
discussed in Chapters 2, 3, 4 and 9. The new Policy points out that the 
AASHTO is currently evaluating alternative design criteria for local 
roads that carry less than 400 vehicles per day (pages 383-384).

Chapter 6--Collector Roads and Streets

    This chapter covers the design guidance applicable to those roads 
functionally classified as rural collector roads and urban collector 
streets. The chapter has been revised as appropriate to include changes 
discussed in Chapters 2, 3, 4 and 9. The new Policy points out that the 
AASHTO is currently evaluating alternative design criteria for 
collector roads that carry less than 400 vehicles per day (page 424).

Chapter 7--Rural and Urban Arterials

    This chapter presents the basis for design of the principal and 
minor arterial road systems in rural and urban areas. The chapter has 
been revised as appropriate to include changes discussed in Chapters 2, 
3, 4 and 9. The sections on medians (pages 460 and 478) have been 
revised to incorporate recommendations from NCHRP Report 375. The 
sections on access management (pages 471 and 486) have been revised 
based on the information contained in NCHRP Report 420. The section on 
Access Control Through Geometric Design (page 488) has been revised to 
incorporate recommendations from NCHRP Report 395.

Chapter 8--Freeways

    This chapter covers the various types of freeways, their design 
elements, controls, criteria and cross-sectional elements. The chapter 
has been revised as appropriate to be consistent with the changes 
discussed in Chapters 2, 3, 4 and 9.

Chapter 9--Intersections

    This chapter describes the basic types of intersections, the 
elements involved in their design, and the accommodation of turning 
movements. The chapter has been revised as appropriate to be consistent 
with the changes discussed in Chapters 2, 3, and 4. The definition of 
the functional area of an intersection has been added (page 560). A 
discussion on roundabouts has been added (page 578) to incorporate 
recommendations from NCHRP Synthesis 264\8\ and the FHWA document 
Roundabouts: An Informational Guide.\9\ The section on intersection 
sight distance (page 654) has been revised to incorporate the gap 
acceptance procedure developed in NCHRP Report 383. A discussion on 
offset left turn lanes (page 727) has been added to incorporate 
recommendations from NCHRP Report 375.
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    \8\ NCHRP Synthesis 264 is available from TRB by telephone (202) 
334-3213, facsimile (202) 334-2519, or at their web site 
www.nationalacademies.org/trb/bookstore.
    \9\ Roundabouts: An Informational Guide, June 2000, Publication 
No. FHWA-RD-00-067 is available from the National Technical 
Information Service by telephone (800) 553-6847, facsimile (703) 
605-6900, or at their web site www.ntis.gov. In addition, the 
document may be viewed online at www.tfhrc.gov/library/library.htm.
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Chapter 10--Grade Separations and Interchanges

    This chapter discusses the basic types of interchanges and grade 
separations, along with the design of their features. A discussion on 
access separations and control on the crossroad at interchanges (page 
753) has been added based on the information contained in TRB Circular 
430 \10\ and NCHRP Report 420. The sections on single point urban 
interchanges (page 787), superelevation and cross slope (page 834), and 
two lane entrance ramps (page 860) have been revised.
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    \10\ TRB Circular 430 is available from the TRB by telephone 
(202) 334-3213, facsimile (202) 334-2519, or at their web site 
www.nationalacademies.org/trb/bookstore.
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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 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 relevant information in the docket as 
it becomes available after the comment period closing date, and 
interested persons should continue to examine the docket for new 
material. A final rule may be published at any time after close of the 
comment period.

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

    The FHWA has determined preliminarily that this proposed action 
would not be a significant regulatory action within the meaning of 
Executive Order 12866 or significant within the meaning of the U.S. 
Department of Transportation regulatory policies and procedures. It is 
anticipated that the economic impact of this rulemaking would be 
minimal. Although the new Policy has been revised to incorporate the 
latest research, the basic criteria remain essentially the same. These 
proposed changes would not adversely affect, in a material way, any 
sector of the economy. In addition, these changes would not interfere 
with any action taken or planned by another agency and would not 
materially alter the budgetary impact of any entitlements, grants, user 
fees, or loan programs. Consequently, a full regulatory evaluation is 
not required.

Regulatory Flexibility Act

    In compliance with the Regulatory Flexibility Act (5 U.S.C. 601-
612), the FHWA has evaluated the effects of this proposed action on 
small entities and has determined that the proposed action would not 
have a significant economic impact on a substantial number of small 
entities. As stated above, although the new Policy has been revised to 
incorporate the latest research, the basic criteria remain essentially 
the same. For these reasons, the FHWA certifies that this action would 
not have a significant economic impact on a substantial number of small 
entities.

Unfunded Mandates Reform Act of 1995

    This proposed rule would not impose unfunded mandates as defined by 
the Unfunded Mandates Reform Act of 1995 (Pub. L. 104-4, March 22, 
1995, 109 Stat. 48). This proposed rule will not 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 (2 
U.S.C. 1531 et seq).

Executive Order 12630 (Taking of Private Property)

    This rule will not effect a taking of private property or otherwise 
have taking implications under Executive Order 12630, Governmental 
Actions and Interface with Constitutionally Protected Property Rights.

Executive Order 12988 (Civil Justice Reform)

    This action meets applicable standards in sections 3(a) and 3(b)(2) 
of Executive Order 12988, Civil Justice Reform, to minimize litigation, 
eliminate ambiguity, and reduce burden.

[[Page 48107]]

Executive Order 13045 (Protection of Children)

    We have analyzed this action under Executive Order 13045, 
Protection of Children from Environmental Health Risks and Safety 
Risks. This rule is not an economically significant rule and does not 
concern an environmental risk to health or safety that may 
disproportionately affect children.

Executive Order 13132 (Federalism Assessment)

    This proposed action has been analyzed in accordance with the 
principles and criteria contained in Executive Order 13132, dated 
August 4, 1999, and the FHWA has determined that this proposed action 
would not have sufficient federalism implications to warrant the 
preparation of a Federalism assessment. The FHWA has also determined 
that this proposed action would not preempt any State law or State 
regulation or affect the States' ability to discharge traditional State 
governmental functions.

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

    Under the Paperwork Reduction Act of 1995 (PRA) (44 U.S.C. 3501, et 
seq.), Federal agencies must obtain approval from the Office of 
Management and Budget (OMB) for each collection of information they 
conduct, sponsor, or require through regulations. The FHWA has 
determined that this proposed action does not contain collection of 
information requirements for the purposes of the PRA.

National Environmental Policy Act

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

Executive Order 13175 (Tribal Consultation)

    The FHWA has analyzed this proposal under Executive Order 13175, 
dated November 6, 2000, and believes that the proposed action will not 
have substantial direct effects on one or more Indian tribes; will not 
impose substantial direct compliance costs on Indian tribal 
governments; and will not preempt tribal law. Therefore, a tribal 
summary impact statement is not required.

Executive Order 13211 (Energy Effects)

    We have analyzed this proposed rule under Executive Order 13211, 
Actions Concerning Regulations That Significantly Affect Energy Supply, 
Distribution, or Use. We have determined that it is not a significant 
energy action under that order because it is not a significant 
regulatory action under Executive Order 12866 and is not likely to have 
a significant adverse effect on the supply, distribution, or use of 
energy. Therefore, a Statement of Energy Effects under Executive Order 
13211 is not required.

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 625

    Design standards, Grant programs--transportation, highways and 
roads, Incorporation by reference.

    Issued on: September 10, 2001.
Vincent F. Schimmoller,
Deputy Executive Director.

    In consideration of the foregoing, the FHWA proposes to amend title 
23, Code of Federal Regulations, part 625, as set forth below:

PART 625--DESIGN STANDARDS FOR HIGHWAYS

    1. The authority citation for part 625 continues to read as 
follows:

    Authority: 23 U.S.C. 109, 315, and 402; Sec. 1073 of Pub. L. 
102-240, 105 Stat. 1914, 2012; 49 CFR 1.48(b) and (n).

    2. In Sec. 625.4, revise paragraph (a)(1) to read as follows:


Sec. 625.4  Standards, policies, and standard specifications.

* * * * *
    (a) * * * (1) A Policy on Geometric Design of Highways and Streets, 
AASHTO 2001. [See Sec. 625.4(d)(1)]
* * * * *
[FR Doc. 01-23260 Filed 9-17-01; 8:45 am]
BILLING CODE 4922-10-P