[Federal Register Volume 67, Number 85 (Thursday, May 2, 2002)]
[Proposed Rules]
[Pages 22028-22035]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-10405]


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

DEPARTMENT OF TRANSPORTATION

Research and Special Programs Administration

49 CFR Parts 107, 171, 172, and 177

[Docket No. RSPA-02-12064 (HM-232)]
RIN 2137-AD66


Hazardous Materials: Security Requirements for Offerors and 
Transporters of Hazardous Materials

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

ACTION: Notice of proposed rulemaking (NPRM).

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

SUMMARY: The Research and Special Programs Administration is proposing 
new requirements to enhance the security of hazardous materials 
transported in commerce. Proposals include a requirement for motor 
carriers registered with the agency to maintain a copy of their current 
registration certificate on each motor vehicle. We further propose to 
require shipping papers to include the name and address of the 
consignor and consignee and the shipper's DOT Hazmat Registration 
number, if applicable. In addition, we propose to require shippers and 
carriers of certain highly hazardous materials to develop and implement 
security plans. We also propose to require hazardous materials shippers 
and carriers to assure that their employee training includes a security 
component.

DATES: Submit comments by June 3, 2002. To the extent possible, we will 
consider late-filed comments as we develop a final rule.

ADDRESSES: Submit comments to the Dockets Management System, U.S. 
Department of Transportation, Room PL 401, 400 Seventh Street, SW, 
Washington, DC 20590-0001. Comments should identify Docket Number RSPA-
02-12064 (HM-232) and be submitted in two copies. If you wish to 
receive confirmation of receipt of your written comments, include a 
self-addressed, stamped postcard. You may also submit comments by e-
mail by accessing the Dockets Management System web site at ``http://dms.dot.gov/'' and following the instructions for submitting a document 
electronically.
    The Dockets Management System is located on the Plaza level of the 
Nassif Building at the Department of Transportation at the above 
address. You can review public dockets there between the hours of 9:00 
a.m. and 5:00 p.m., Monday through Friday, except Federal holidays. You 
can also review comments on-line at the DOT Dockets Management System 
web site at ``http://dms.dot.gov/.''

FOR FURTHER INFORMATION CONTACT: Susan Gorsky, (202) 366-8553, Office 
of Hazardous Materials Standards, Research and Special Programs 
Administration.

SUPPLEMENTARY INFORMATION:

I. Background

    Hazardous materials are essential to the economy of the United 
States and the well-being of its people. Hazardous materials fuel cars 
and trucks, and heat and cool homes and offices. Hazardous materials 
are used for farming and medical applications and in manufacturing, 
mining, and other industrial processes. Millions of tons of explosive, 
poisonous, corrosive, flammable, and radioactive materials are 
transported every day. Hazardous materials move by plane, train, truck, 
or vessel in quantities ranging from several ounces to many thousands 
of gallons. The vast majority of hazardous materials shipments arrive 
safely at their destinations. Most incidents that do occur involve 
small releases of material and present no serious threat to life or 
property.
    RSPA's hazardous materials transportation safety program has 
historically focused on reducing risks related to the unintentional 
release of hazardous materials. The hazardous materials regulations 
(HMR; 49 CFR Parts 171-180) are designed to achieve two goals: (1) To 
ensure that hazardous materials are packaged and handled safely during 
transportation, thus minimizing the possibility of their release should 
an incident occur, and (2) to effectively communicate to carriers, 
transportation workers, and emergency responders the hazards of the 
materials being transported. The HMR specify how to classify and 
package a hazardous material. Further, the HMR prescribe a system of 
hazard communication using placards, labels, package markings, and 
shipping papers. In addition, the HMR prescribe training requirements 
for persons who prepare hazardous materials for shipment or transport 
hazardous materials. The HMR also include operational requirements 
applicable to each mode of transportation.
    In the wrong hands, hazardous materials can pose a significant 
security threat. Hazardous materials in transportation are particularly 
vulnerable to sabotage or misuse. Security of hazardous materials in 
the transportation environment poses unique challenges as compared to 
security at fixed facilities. Hazardous materials are frequently 
transported in substantial quantities. Such materials are already 
mobile and are frequently transported in proximity to large population 
centers. Further, hazardous materials in transportation are often 
clearly identified to ensure safe and appropriate handling during 
transportation and to facilitate effective emergency response in the 
event of an accidental release. While the HMR provide for a high degree 
of safety with respect to avoiding and mitigating unintentional 
releases of hazardous materials during transportation, the HMR do not 
specifically address security threats.
    As a result of the terrorist attacks of September 11, 2001, and 
subsequent threats related to biological and other hazardous materials, 
the Research and Special Programs Administration (RSPA, we) has 
undertaken a broad review of government and industry hazardous 
materials transportation safety and security programs. As part of this 
review, we established the Hazardous Materials Direct Action Group 
(Hazmat DAG). The Hazmat DAG met with representatives of the hazardous 
materials industry, emergency response community, and state governments 
to discuss transportation security issues in the wake of the September 
11 attacks and continuing terrorist threats. In addition, we created a 
DOT Intermodal Hazardous Materials Transportation Security Task Force, 
which considered attack or sabotage vulnerabilities, existing security 
measures, and potential ways to reduce vulnerabilities. The Task Force 
included representatives from the Federal Motor Carrier Safety 
Administration, Federal Railroad Administration, Federal Aviation 
Administration, U.S. Coast Guard (USCG), and Office of the Secretary.
    Based in part on discussions in the Hazmat DAG and on the results 
of the Task Force review, on February 14, 2002, we published an 
advisory notice to inform shippers and carriers of voluntary measures 
that can enhance the security of hazardous materials shipments during 
transportation (67 FR 6963). The notice addresses personnel, facility, 
and en route security issues and includes contact points for obtaining 
additional, more detailed information.

[[Page 22029]]

    In addition, we identified a number of regulatory measures that, 
when implemented, will improve the security of hazardous materials in 
transportation. In this NPRM, we are proposing to revise requirements 
in the HMR applicable to registration certificates, shipping 
documentation, and training. We also propose to establish a new 
requirement for certain hazardous materials shippers and carriers to 
have plans in place to assure the security of shipments during 
transportation.
    Many of these proposed requirements already are being implemented 
voluntarily by the hazardous materials industry, particularly by 
shippers and carriers of certain highly hazardous materials. If 
adopted, the measures proposed in this NPRM will facilitate monitoring 
and tracking of hazardous materials shipments by shippers, carriers, 
and enforcement authorities; reduce the potential for certain hazardous 
materials to be targets for terrorists or saboteurs; and increase 
security awareness for hazardous materials employees. Specific 
provisions of this NPRM are discussed below.

A. Registration Certificates

    Currently, each motor carrier transporting placarded quantities of 
certain classes or divisions of hazardous materials is required to file 
with RSPA a registration statement and pay an annual fee (49 CFR Part 
107). A Certificate of Registration (certificate), which includes a 
U.S. DOT Hazmat Registration Number, is then issued by RSPA to the 
carrier. A carrier must display its registration number on a document 
carried on each motor vehicle, but need not maintain a copy of the 
certificate itself on each vehicle.
    The registration certificate can substantially assist state and 
local law enforcement personnel in determining whether a carrier is a 
legitimate transporter of hazardous materials. Therefore, in this NPRM, 
we propose to revise 49 CFR 107.620(b) and Part 177 of the HMR to 
require each motor carrier registered with RSPA to maintain a copy of 
its current certificate on each motor vehicle used to transport 
hazardous materials.

B. Shipping Papers

    Many hazardous materials transported in commerce potentially may be 
used as weapons of mass destruction or weapons of convenience. It is 
critical to assuring the safety and security of these shipments that 
transportation of a hazardous material by an unauthorized carrier or 
vehicle operator is readily apparent to Federal, state, and local 
regulatory and law enforcement agencies. Shipping papers are an 
important tool for assisting law enforcement personnel to identify 
unusual or unauthorized activities involving drivers or vehicles.
    Currently, the HMR generally require each person who offers a 
hazardous material for transportation to describe the material on a 
shipping paper. However, there is no requirement for a shipping paper 
to include the name and address of the person offering the shipment or 
the person to whom the shipment will be delivered. Further, there is no 
requirement for a shipping paper to include the U.S. DOT Hazmat 
Registration Number of the person offering the hazardous material for 
transportation. A requirement to include this information on a shipping 
paper will assist law enforcement personnel to promptly ascertain the 
legitimacy of hazardous materials shipments during routine or random 
roadside inspections and to identify suspicious or questionable 
situations where additional investigation may be necessary.
    Therefore, in this NPRM, we propose to amend Sec. 172.201 of the 
HMR to require each shipping paper to include the name of the shipment 
consignor and the address from which the shipment originates and the 
name and address of each person to whom the shipment will be delivered. 
In addition, we propose to require each shipping paper to include the 
U.S. DOT Hazmat Registration Number, if applicable, of the person 
offering the shipment for transportation. The names and addresses of 
the consignor and each consignee may be included in an attachment to 
the shipping paper. If contained in an attachment, the attachment would 
not be subject to the one-year retention requirement of 49 U.S.C. 
5110(e). Note that the proposal requires a shipping paper to include 
the actual street address from which a shipment originates and the 
actual street address(es) to which a shipment will be delivered. A 
billing address, corporate headquarters address, or post office box 
number would not be acceptable. Moreover, each person who prepares a 
shipping paper for a given shipment must indicate the location from 
which the hazardous material will be transported and the destination to 
which the hazardous material will be delivered under that shipping 
paper. As an example, a shipment originates in New York City and is 
transported to a freight forwarder located in Baltimore to be 
consolidated with other materials and transported to Atlanta. In this 
case, the original shipper will complete a shipping paper that includes 
the origin address in New York City and the destination address in 
Baltimore. The freight forwarder will complete a new shipping paper for 
the consolidated shipment that includes the origin address in Baltimore 
and the destination address in Atlanta.
    In this NPRM, we propose to except certain shipments from the 
requirement to include consignor/consignee names and addresses and U.S. 
DOT Registration Numbers on shipping papers. The exceptions would apply 
to limited quantities of hazardous materials and to materials described 
as: Battery powered equipment; Battery powered vehicle; Carbon dioxide, 
solid; Castor bean; Castor flake; Castor meal; Castor pomace; Consumer 
commodity; Dry ice; Engines, internal combustion; Fish meal, 
stabilized; Fish scrap, stabilized; Refrigerating machine; Vehicle, 
flammable gas powered; Vehicle, flammable liquid powered; and 
Wheelchair, electric. The proposed exceptions are identical to current 
exceptions from the requirement in Subpart G of Part 172 for emergency 
response information to accompany hazardous materials shipments. The 
listed materials do not pose a security risk in transportation.

C. Security Plans

    Hazardous materials in transit are uniquely vulnerable to theft or 
attack. To assure public safety, shippers and carriers must take 
reasonable measures to plan for and implement procedures to prevent 
unauthorized persons from taking control of or attacking hazardous 
materials shipments. Therefore, in this NPRM, we propose a new Subpart 
I in Part 172 to require persons subject to the registration 
requirements in Subpart G of Part 107 and persons who offer or 
transport infectious substances listed as select agents by the Centers 
for Disease Control and Prevention (CDC) in 42 CFR Part 72 to develop 
and implement written plans to assure the security of hazardous 
materials shipments. Those persons required to register under Subpart G 
of Part 107 include persons who offer for transportation or transport: 
(1) A highway route-controlled quantity of a Class 7 (radioactive) 
material; (2) more than 25 kg (55 lbs) of a Division 1.1, 1.2, or 1.3 
(explosive) material; (3) more than 1 L (1.06 qt) per package of a 
material poisonous by inhalation in Hazard Zone A; (4) a shipment in a 
bulk packaging with a capacity equal to or greater than 13,248 L (3,500 
gal) for liquids or gases or greater than 13.24 cubic meters (468 cubic 
feet) for solids; and (5) a shipment that requires placarding. Select 
agents are infectious

[[Page 22030]]

substances identified by CDC as materials with the potential to have 
serious consequences for human health and safety if used 
illegitimately.
    The requirements for a transportation security plan are in a new 
Subpart I of Part 172. In Subpart I, we propose to establish a general 
requirement for persons who offer hazardous materials for 
transportation and persons who transport hazardous materials in 
commerce to have written security plans. At a minimum, a security plan 
should use a risk management model to assess security risks and develop 
appropriate measures to reduce or eliminate risk. To assist shippers 
and carriers to perform appropriate risk assessments, we made a Risk 
Management Self-Evaluation Framework available on our website (http://hazmat.dot.gov). A number of industry associations have also developed 
guidelines for performing security risk assessments. See our February 
14, 2002 advisory notice for a list of Federal agencies and industry 
associations and organizations that may be of help.
    For hazardous materials transportation, a security plan should 
focus not only on the potential threats posed by the material, but on 
personnel, facility, and en route security issues, as well. This NPRM 
does not include a laundry list of actions that must be included in a 
security plan. Rather, a company should implement a plan that is 
appropriate to its individual circumstances, considering the types and 
amounts of hazardous materials shipped or transported and the modes 
used for transportation.
    It is our understanding that the USCG and the International 
Maritime Organization (IMO) are considering broad, comprehensive 
security-related requirements for vessels and port facilities. The 
requirements under consideration would address all vessel and port 
facility operations, not merely those involving hazardous materials. In 
addition, the Environmental Protection Agency (EPA) is considering 
security requirements for fixed facilities that handle hazardous 
materials. It is not our intention to require shippers or carriers to 
develop several different security plans in order to comply with 
regulations that may be issued by other Federal or international 
entities. Therefore, in this NPRM, we include language to specify that 
security plans that conform to requirements issued by other Federal or 
international agencies may be used to satisfy the requirement proposed 
for the HMR, provided the security plans address the components 
specified.

D. Training

    The HMR currently require hazmat employees to be trained so they: 
(1) Are familiar with the general provisions of the HMR and can 
recognize and identify hazardous materials; (2) are knowledgeable about 
specific HMR requirements applicable to functions performed; and (3) 
are knowledgeable about emergency response information, self-protection 
measures, and accident prevention methods. A hazmat employee is one who 
directly affects hazardous materials transportation safety 
(Sec. 171.8). Hazmat employers must ensure that their hazmat employees 
are trained. For new employees, training must be completed within 90 
days after employment or a change in job function. All hazmat employees 
must receive recurrent training every three years.
    The safety training provided by hazmat employers may include the 
physical security of hazardous materials and ways to prevent vandalism 
and theft. However, such training may not be adequate to meet current 
threats. Because many hazardous materials transported in commerce may 
potentially be used as weapons of mass destruction or weapons of 
convenience, it is critical to the assurance of public safety that 
training for persons who offer and transport hazardous materials in 
commerce include a security component. Therefore, in this NPRM, we are 
proposing to add a provision to Sec. 172.704 to require the training of 
each hazmat employee to include a security component. Under this 
proposal, hazmat employees of persons required to have a security plan 
under the provisions of this NPRM must be trained in the plan's 
specifics. All hazmat employees must receive training that provides an 
awareness of the security issues associated with hazardous materials 
transportation and possible methods to enhance transportation security. 
This training must also include a component covering how to recognize 
and respond to possible security threats. As proposed in this NPRM, all 
hazmat employees would be required to be trained within three months of 
issuance of a final rule.
    As discussed above under ``Security Plans,'' we are aware that the 
USCG, IMO, and EPA are considering comprehensive security requirements 
for operations and facilities under their respective jurisdictions. To 
the extent that regulations promulgated by other agencies may include 
security training, such training may be used to satisfy the training 
requirements proposed in this NPRM, provided the training covers the 
components specified in this NPRM.

II. Comments on the NPRM

    The threat to this Nation's security posed by possible intentional 
misuse of hazardous materials in transportation in commerce is ongoing 
and significant. Those responsible for the September 11 attacks on the 
World Trade Center and the Pentagon are affiliated with an organization 
possessing a near-global terrorist network. The leaders of the groups 
constituting this organization have publicly stated that they will 
attack the United States for incarcerating their members. These groups 
are also vehemently opposed to U.S. foreign policy and presence in the 
Middle East. They appear to be willing to and may well be capable of 
conducting bombings, hijackings, and suicide attacks against domestic 
U.S. targets. Hazardous materials shippers and carriers must take 
action to enhance hazardous materials transportation security. 
Therefore, we are issuing this NPRM with a very short comment period. 
We encourage persons to participate in this rulemaking by submitting 
comments containing relevant information, data, or views. We also 
invite comments concerning the costs and benefits that may result from 
the provisions of this NPRM and particularly the costs that may be 
incurred by small businesses. We will consider all comments received on 
or before the closing date for comments. We will consider late-filed 
comments to the extent practicable.

III. Regulatory Analyses and Notices

A. Executive Order 12866 and DOT Regulatory Policies and Procedures

    This NPRM is not considered a significant regulatory action under 
Executive Order 12866 and, therefore, was not reviewed by the Office of 
Management and Budget. This NPRM is not considered significant under 
the regulatory policies and procedures of the Department of 
Transportation (44 FR 11034). The costs and benefits associated with 
the proposals in this NPRM are discussed below.
    Although many hazardous materials shippers and carriers have 
already implemented many of the actions proposed in this NPRM, we 
recognize that the proposals may impose additional costs on them. Most 
compliance costs resulting from this NPRM will result from the new 
requirements for certain shippers and carriers to develop and implement 
security plans and for hazmat employee training to include a security 
component.
    Security plans. The proposed security plan requirement applies to 
shippers

[[Page 22031]]

and carriers who are required to register with RSPA under Subpart G of 
49 CFR part 107 or persons who offer or transport infectious substances 
listed as select agents by the Centers for Disease Control and 
Prevention (CDC) in 42 CFR part 72. Those persons required to register 
under Subpart G of Part 107 include persons who offer for 
transportation or transport: (1) A highway route-controlled quantity of 
a Class 7 (radioactive) material; (2) more than 25 kg (55 lbs) of a 
Division 1.1, 1.2, or 1.3 (explosive) material; (3) more than 1 L (1.06 
qt) per package of a material poisonous by inhalation in hazard zone A; 
(4) a shipment in a bulk packaging with a capacity equal to or greater 
than 13,248 L (3,500 gal) for liquids or gases or greater than 13.24 
cubic meters (468 cubic feet) for solids; and (5) a shipment that 
requires placarding. Select agents are infectious substances identified 
by CDC as materials with the potential to have serious consequences for 
human health and safety if used illegitimately.
    About 43,000 shippers and carriers are registered with DOT under 
the provisions of 49 CFR Part 107 (FY 2000, most recent year 
available). In addition, about 1,000 shippers apply to CDC each year 
for permission to transport select agents (OMB Control No. 0920-0199). 
We estimate that development of a security plan from the ground up 
would require about 40 hours for all persons (management and technical 
personnel) involved. However, many industry associations have developed 
guidance and model security plans for use by their members. As a 
result, most companies already have implemented many of the elements of 
a security plan either as part of their standard operating procedures 
or in response to the events of September 11. Further, to assist 
hazardous materials shippers and transporters in evaluating risks and 
implementing measures to reduce those risks, we designed a security 
template for the Risk Management Self-Evaluation Framework (RMSEF). 
RMSEF is a tool we developed through a public process to assist 
regulators, shippers, carriers, and emergency response personnel to 
examine their operations, and consider how they assess and manage risk. 
The security template illustrates how risk management methodology can 
be used to identify points in the transportation process where security 
procedures should be enhanced within the context of an overall risk 
management strategy. The RMSEF security template is posted on our 
website at http://hazmat.dot.gov/rmsef.htm.
    We estimate that most companies would require about 20 hours to 
develop and implement a security plan that conforms to the new 
regulatory requirements. Maintaining and updating the plan as necessary 
would require about 1 hour each year after the plan is implemented. 
Using Bureau of Labor Statistics information on employee compensation 
(March 2001), we estimate that the cost per hour of developing and 
updating a security plan is $30.00. The industry would thus incur an 
estimated $26,400,000 in first-year compliance costs, or about $600 per 
entity (44,000 affected entities  x  20 hrs  x  $30.00/hr = 
$26,400,000). In subsequent years, we estimate that 200 new entrants 
would be subject to the security plan requirement, incurring compliance 
costs estimated at $120,000. Companies required to update and maintain 
security plans would incur compliance costs of about $1,320,000, or $30 
per entity.
    Security training. The proposed requirement for security training 
applies to all hazmat employees, defined in Sec. 171.8 of the HMR as 
persons employed by a company that offers or transports hazardous 
materials in commerce (hazmat employer) that directly affect hazardous 
materials safety. Based on information in the 1997 Economic Census, we 
estimate that firms involved with the transportation of hazardous 
materials employ a total of 6 million individuals. Of these, perhaps 5 
percent are hazmat employees, as defined in the HMR. Thus, about 
300,000 hazmat employees will be subject to the new requirement for 
security training.
    The training requirements in the HMR can be met in a number of 
ways--classroom instruction, self-instruction, on-the-job training, 
etc. This flexibility helps to minimize the cost to hazmat employers 
and allows use of the most efficient, effective training methods to 
meet the basic requirements. To assist hazmat employers to meet any new 
security training requirements, we are developing a Hazardous Materials 
Transportation Security Awareness Training Module directed at law 
enforcement, industry, and the hazmat community. The training module 
will be web-based, posted on the HMS website, and presented at 
multimodal seminars.
    We estimate that, on average, a hazmat employee would require one 
hour of security training to meet the new requirements. The costs of 
training would vary, depending on the method used. For example, the 
security training module we are developing will be provided free of 
charge. The current cost of CDROM hazmat training modules is $25 per 
module. Classroom training may cost as much as $75 per hour. We 
estimate that the average training cost for one hour of security 
training will be $15. Thus, the industry would incur costs of about 
$4,500,000 in first-year compliance costs (300,000 hazmat employees  x  
one hour of training  x  $15/hour = $4,500,000). Hazmat employees must 
be trained at least once every three years. Thus, in subsequent years 
the industry would incur about $1,500,000 in recurrent training costs.
    The benefits of the security programs proposed in this NPRM are 
difficult to quantify. However, the cost of one devastating terrorist 
attack caused by a crude bomb made from commonly available hazardous 
materials is illustrative. On April 19, 1995, Timothy McVeigh blew up 
the Murrah Federal Building in Oklahoma City with a bomb made from 
fertilizer and fuel oil. The bomb killed 168 people, including 19 
children, injured 500 more people, and caused more than $1 billion in 
property and economic damage. If the measures proposed in this NPRM 
prevent even one such terrorist act, the potential costs industry will 
incur will be more than offset by the benefits.

B. Regulatory Flexibility Act

    The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires an 
agency to review regulations to assess their impact on small entities 
unless the agency determines that a rule is not expected to have a 
significant impact on a substantial number of small entities. We have 
determined that, while the requirements in this NPRM apply to a 
substantial number of small entities, there will not be a significant 
economic impact on those small entities.
    Need for the NPRM. RSPA's hazardous materials transportation safety 
program has historically focused on reducing risks related to the 
unintentional release of hazardous materials. The HMR have provided a 
high degree of safety with respect to incidents that occur during 
transportation. However, in the wake of September 11, we face a 
heightened security environment. The risk of hazardous materials 
falling into the wrong hands poses a significant security challenge.
    Description of Actions. In this NPRM, we propose to amend the HMR 
to:
     Require motor carriers registered with DOT to maintain a 
copy of their current registration certificate on each motor vehicle.
     Require shipping papers to include the name and address of 
the shipment consignor and consignee and the

[[Page 22032]]

shipper's DOT Hazmat Registration Number, if applicable.
     Require shippers and carriers of certain highly hazardous 
materials to develop and implement security plans.
     Require hazardous materials shippers and carriers to 
assure that employee training includes a security component.
    Identification of potentially affected small entities. Businesses 
likely to be affected by the proposals in this NPRM are persons who 
offer and transport hazardous materials in commerce. We estimate there 
are approximately 400,000 persons who offer or transport hazardous 
materials in commerce subject to requirements in the HMR who will be 
affected by the proposals involving shipping documentation and security 
training. Approximately 44,000 entities will be subject to the proposed 
requirement for security plans.
    Unless alternative definitions have been established by the agency 
in consultation with the Small Business Administration (SBA), the 
definition of ``small business'' has the same meaning as under the 
Small Business Act. Since no such special definition has been 
established, we employ the thresholds published by SBA for industries 
subject to the HMR. Based on data for 1997 compiled by the U.S. Census 
Bureau, it appears that upwards of 95 percent of firms subject to the 
requirements proposed in this NPRM are small businesses.
    Reporting and recordkeeping requirements. This NPRM proposes 
several new or modified recordkeeping requirements. These are detailed 
in the section of this preamble entitled ``Paperwork Reduction Act.'' 
We have built flexibility into the proposed requirements, so that 
entities can choose the method by which they comply with the proposals. 
For example, there is no prescribed form for shipping papers. Shippers 
are permitted to use waybills, bills of lading, and other types of 
shipping documents provided they include the information required in 
the HMR. Similarly, there is no form prescribed for security plans. 
Entities can assess their own situations and tailor the requirements to 
fit them.
    Related Federal rules and regulations. With respect to the security 
of hazardous materials transported in commerce, there are no related 
rules or regulations issued by other departments or agencies of the 
Federal government. However, it is our understanding that certain 
Federal agencies (such as the USCG and EPA) and international 
standards-setting organizations (such as IMO) are considering 
comprehensive security requirements for the entities under their 
jurisdiction. This NPRM includes language to permit programs 
implemented in conformance with other Federal or international 
requirements to be used to comply with the requirements in this NPRM, 
provided the specific components in this NPRM are covered.
    Alternate proposals for small businesses. The Regulatory 
Flexibility Act directs agencies to establish exceptions and differing 
compliance standards for small businesses, where it is possible to do 
so and still meet the objectives of applicable regulatory statutes. In 
the case of the security of hazardous materials transported in 
commerce, it is not possible to establish exceptions or differing 
standards and still accomplish the objectives of Federal hazmat law.
    We developed this NPRM under the assumption that small businesses 
make up the overwhelming majority of entities that will be subject to 
its provisions. Thus, we considered how to minimize expected compliance 
costs as we developed this NPRM.
    Conclusion. Based on the discussion of the potential costs of this 
NPRM in the section of this preamble entitled ``Executive Order 12866 
and DOT Regulatory Policies and Procedures,'' we conclude that, while 
this NPRM applies to a substantial number of small entities, there will 
not be a significant economic impact on those small entities. We 
estimate the cost of developing and implementing a security plan to be 
about $600 per company. Updating and maintaining a security plan would 
cost about $30 per entity. The costs incurred for providing security 
training to hazmat employees would be about $15 per employee.

C. Executive Order 13132

    This NPRM has been analyzed in accordance with the principles and 
criteria contained in Executive Order 13132 (``Federalism''). This NPRM 
preempts state, local, and Indian tribe requirements but does not 
propose any regulation with substantial direct effects on the states, 
the relationship between the national government and the states, or the 
distribution of power and responsibilities among the various levels of 
government. Therefore, the consultation and funding requirements of 
Executive Order 13132 do not apply.
    Federal hazardous materials transportation law, 49 U.S.C. 5101-
5127, contains an express preemption provision (49 U.S.C. 5125(b)) 
preempting state, local, and Indian tribe requirements on certain 
covered subjects. Covered subjects are:
    (1) The designation, description, and classification of hazardous 
materials;
    (2) The packing, repacking, handling, labeling, marking, and 
placarding of hazardous materials;
    (3) The preparation, execution, and use of shipping documents 
related to hazardous materials and requirements related to the number, 
contents, and placement of those documents;
    (4) The written notification, recording, and reporting of the 
unintentional release in transportation of hazardous material; or
    (5) The design, manufacture, fabrication, marking, maintenance, 
recondition, repair, or testing of a packaging or container 
represented, marked, certified, or sold as qualified for use in 
transporting hazardous material.
    This NPRM addresses covered subject item 3 above and preempts 
state, local, and Indian tribe requirements not meeting the 
``substantively the same'' standard. This NPRM is necessary to assure 
the security of hazardous materials transported in commerce.
    Federal hazardous materials transportation law provides at 
Sec. 5125(b)(2) that, if DOT issues a regulation concerning any of the 
covered subjects, DOT must determine and publish in the Federal 
Register the effective date of Federal preemption. The effective date 
may not be earlier than the 90th day following the date of issuance of 
a final rule and not later than two years after the date of issuance. 
We propose that the effective date of Federal preemption will be 90 
days from publication of a final rule in the Federal Register.
    We invite comments on whether, and to what extent, state or local 
governments or Indian tribes should be permitted to impose similar 
additional requirements to those proposed in this rulemaking. For 
example, should a state be allowed to require all shippers and carriers 
of hazardous materials to have security plans?

D. Executive Order 13175

    This NPRM has been analyzed in accordance with the principles and 
criteria contained in Executive Order 13175 (``Consultation and 
Coordination with Indian Tribal Governments''). Because this NPRM does 
not significantly or uniquely affect the communities of the Indian 
tribal governments and does not impose substantial direct compliance 
costs, the funding and consultation requirements of Executive Order 
13175 do not apply.

[[Page 22033]]

E. Unfunded Mandates Reform Act of 1995

    This NPRM does not impose unfunded mandates under the Unfunded 
Mandates Reform Act of 1995. It does not result in costs of $100 
million or more, in the aggregate, to any of the following: state, 
local, or Indian tribal governments, or the private sector. This rule 
is the least burdensome alternative to achieve the objective of the 
rule.

F. Paperwork Reduction Act

    We submitted the information collection and recordkeeping 
requirements contained in this NPRM to the Office of Management and 
Budget (OMB) for approval under the provisions of the Paperwork 
Reduction Act of 1995, Section 1320.8(d). Title 5, Code of Federal 
Regulations requires us to provide interested members of the public and 
affected agencies an opportunity to comment on information collection 
and recordkeeping requests. Under the Paperwork Reduction Act, no 
person is required to respond to an information collection unless it 
has been approved by OMB and displays a valid OMB control number.
    RSPA currently has an approved information collection under OMB 
Control No. 2137-0034, ``Hazardous Materials Shipping Papers & 
Emergency Response Information'' with 6,500,000 burden hours and 
$6,500,000 cost. There will be an increase in the burden for OMB 
Control No. 2137-0034 due to additional information this NPRM requires 
to be included on shipping papers. In addition, there will be a new 
information collection burden for a new requirement for a security 
plan. This new information collection, ``Hazardous Materials Security 
Plans'', will be assigned an OMB control number after review and 
approval by OMB.
    We estimate that the new total information collection and 
recordkeeping burden resulting from the additional information required 
on shipping papers and for the development and maintenance of security 
plans under this rule are as follows.

Hazardous Materials Shipping Papers & Emergency Response 
Information

[OMB No. 2137-0034]

    Total Annual Number of Respondents: 250,000.
    Total Annual Responses: 260,000,000.
    Total Annual Burden Hours: 6,861,111.
    Total Annual Burden Cost: $6,929,722.11.

Hazardous Materials Security Plans

[OMB No. 2137-xxxx]

First Year Annual Burden:

    Total Annual Number of Respondents: 44,000.
    Total Annual Responses: 44,000.
    Total Annual Burden Hours: 880,000.
    Total Annual Burden Cost: $26,400,000.00.

Subsequent Year Burden:

    Total Annual Number of Respondents: 44,200.
    Total Annual Responses: 44,200.
    Total Annual Burden Hours: 48,000.
    Total Annual Burden Cost: $1,440,000.00.
    Requests for a copy of this information collection should be 
directed to Deborah Boothe, Office of Hazardous Materials Standards 
(DHM-10), Research and Special Programs Administration, Room 8422, 400 
Seventh Street, SW, Washington, DC 20590-0001. Telephone (202) 366-
8553. Written comments should be addressed to the Dockets Unit as 
identified in the ADDRESSES section of this rulemaking. We will publish 
a notice advising interested parties of the OMB control number for this 
information collection when assigned by OMB.

G. Regulation Identifier Number (RIN)

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

H. Environmental Assessment

    There are no significant environmental impacts associated with this 
NPRM.

List of Subjects

49 CFR Part 107

    Administrative practice and procedure, Hazardous materials 
transportation, Packaging and containers, Penalties, Reporting and 
recordkeeping requirements.

49 CFR Part 171

    Exports, Hazardous materials transportation, Hazardous waste, 
Imports, Incorporation by reference, Reporting and recordkeeping 
requirements.

49 CFR Part 172

    Hazardous materials transportation, Hazardous waste, Labeling, 
Packaging and containers, Reporting and recordkeeping requirements.

49 CFR Part 177

    Hazardous materials transportation, Motor vehicle safety, Packaging 
and containers, Reporting and recordkeeping requirements.

    In consideration of the foregoing, we propose to amend Title 49, 
Chapter I, Subchapters A and C, of the Code of Federal Regulations, as 
follows:

PART 107--HAZARDOUS MATERIALS PROGRAM PROCEDURES

    1. The authority citation for part 107 would continue to read as 
follows:

    Authority: 49 U.S.C. 5101-5127, 44701; Sec. 212-213, Pub. L. 
104-121, 110 Stat. 857; 49 CFR 1.45, 1.53.

    2. In Sec. 107.620, paragraph (b) would be revised to read as 
follows:


Sec. 107.620  Recordkeeping requirements.

* * * * *
    (b) Each motor carrier subject to the requirements of this subpart 
must carry a copy of its current Certificate of Registration issued by 
RSPA on board each truck and truck tractor (not including trailers and 
semi-trailers) used to transport hazardous materials subject to the 
requirements of this subpart. The Certificate of Registration must 
immediately be made available, upon request, to enforcement personnel.
* * * * *

PART 171--GENERAL INFORMATION, REGULATIONS, AND DEFINITIONS

    3. The authority citation for part 171 would continue to read as 
follows:

    Authority: 49 U.S.C. 5101-5127; 49 CFR part 1.

    4. In Sec. 171.11, paragraph (d)(18) would be added to read as 
follows:


Sec. 171.11  Use of ICAO Technical Instructions.

* * * * *
    (d) * * *
    (18) The shipping paper must include the name of the consignor and 
the complete address from which the shipment originates, and the name 
and complete address of each person to whom the hazardous material will 
be delivered (consignee), in accordance with Sec. 172.201(e) of this 
subchapter. If the person offering the hazardous material for 
transportation is subject to the requirements of subpart G of 49 CFR 
part 107, the shipping paper must include the person's current 
registration number, identified as ``U.S. DOT Hazmat Reg. No.'' in 
accordance with Sec. 172.201(f) of this subchapter. The

[[Page 22034]]

requirements of this paragraph (d)(18) do not apply to shipments 
excepted under Sec. 172.201(g) of this subchapter.
    5. In Sec. 171.12, paragraph (b)(21) would be added to read as 
follows:


Sec. 171.12  Import and export shipments.

* * * * *
    (b) * * *
    (21) The shipping paper must include the name of the consignor and 
the complete address from which the shipment originates, and the name 
and complete address of each person to whom the hazardous material will 
be delivered (consignee), in accordance with Sec. 172.201(e) of this 
subchapter. If the person offering the hazardous material for 
transportation is subject to the requirements of subpart G of 49 CFR 
part 107, the shipping paper must include the person's current 
registration number, identified as ``U.S. DOT Hazmat Reg. No.'' in 
accordance with Sec. 172.201(f) of this subchapter. The requirements of 
this paragraph (b)(21) do not apply to shipments excepted under 
Sec. 172.201(g) of this subchapter.
* * * * *
    6. In Sec. 171.12a, paragraph (b)(19) would be added to read as 
follows:


Sec. 171.12a  Canadian shipments and packagings.

* * * * *
    (b) * * *
    (19) The shipping paper must include the name of the consignor and 
the complete address from which the shipment originates, and the name 
and complete address of each person to whom the hazardous material will 
be delivered (consignee), in accordance with Sec. 172.201(e) of this 
subchapter. If the person offering the hazardous material for 
transportation is subject to the requirements of subpart G of 49 CFR 
part 107, the shipping paper must include the person's current 
registration number, identified as ``U.S. DOT Hazmat Reg. No.'' in 
accordance with Sec. 172.201(f) of this subchapter. The requirements of 
this paragraph (b)(19) do not apply to shipments excepted under 
Sec. 172.201(g) of this subchapter.

PART 172--HAZARDOUS MATERIALS TABLE, SPECIAL PROVISIONS, HAZARDOUS 
MATERIALS COMMUNICATIONS, EMERGENCY RESPONSE INFORMATION, AND 
TRAINING REQUIREMENTS

    7. The authority citation for part 172 would continue to read as 
follows:

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

    8. In Sec. 172.201, paragraphs (e), (f), and (g) would be added to 
read as follows:


Sec. 172.201  General entries.

* * * * *
    (e) Consignor and consignee name and address. After [date 20 days 
after effective date of final rule], a shipping paper must include the 
name of the consignor and the complete address from which the shipment 
originates, and the name and complete address of each person to whom 
the hazardous material will be delivered (consignee). The names and 
addresses may be included on an attachment to the shipping paper.
    (f) Registration number. After [date 20 days after effective date 
of final rule], if the person offering a hazardous material for 
transportation is subject to the requirements of subpart G of 49 CFR 
part 107, the shipping paper must include the person's current 
registration number, identified as ``U.S. DOT Hazmat Reg. No.''
    (g) Exceptions. The requirements of paragraphs (e) and (f) of this 
section do not apply to--
    (1) Hazardous materials that are offered for transportation under 
the provisions of this subchapter applicable to limited quantities; and
    (2) Materials properly described under the following shipping 
names:

    Battery powered equipment
    Battery powered vehicle
    Carbon dioxide, solid
    Castor bean
    Castor flake
    Castor meal
    Castor pomace
    Consumer commodity
    Dry ice
    Engines, internal combustion
    Fish meal, stabilized
    Fish scrap, stabilized
    Refrigerating machine
    Vehicle, flammable gas powered
    Vehicle, flammable liquid powered
    Wheelchair, electric

Sec. 172.203  [Amended]

    9. In Sec. 172.203, paragraph (i)(4) would be removed, and 
paragraphs (i)(5) and (i)(6) would be redesignated as paragraphs (i)(4) 
and (i)(5), respectively.
    10. In Sec. 172.704, paragraph (a) introductory text would be 
revised and paragraph (a)(4) would be added, and paragraph (b) would be 
revised to read as follows:


Sec. 172.704  Training requirements.

    (a) Hazmat employee training must include the following:
* * * * *
    (4) Security training. By [date three months after effective date 
of final rule], each hazmat employee must receive training on how to 
assure the security of hazardous materials that are transported in 
commerce.
    (i) For each hazmat employee, security training must provide an 
awareness of the security issues associated with hazardous materials 
transportation and methods designed to assure transportation security. 
This training must also include a component covering how to recognize 
and respond to possible security threats.
    (ii) Each hazmat employee of a person required to have a security 
plan that conforms to Sec. 173.14 of this subchapter must be familiar 
with the security plan and its implementation. Security training must 
include company security objectives, specific security procedures, 
employee responsibilities, actions to take in the event of a security 
breach, and the organizational security structure.
    (b) OSHA, EPA, and other training. Training conducted by employers 
to comply with the hazard communication programs required by the 
Occupational Safety and Health Administration of the Department of 
Labor (29 CFR 1910.120 or 1910.1200) or the Environmental Protection 
Agency (40 CFR 311.1), or training conducted by employers to comply 
with security training programs required by other Federal or 
international agencies, may be used to satisfy the training 
requirements in paragraph (a) of this section to the extent that such 
training addresses the training components specified in paragraph (a) 
of this section.
* * * * *
    11. Subpart I would be added to read as follows:

Subpart I--Security Plans

Sec.
172.800  Purpose and applicability.
172.802  Components of a security plan.
172.804  Relationship to other Federal requirements.


Sec. 172.800  Purpose and applicability.

    (a) Purpose. This subpart prescribes requirements for shippers and 
carriers to develop and implement plans to assure the security of 
hazardous materials transported in commerce.
    (b) Applicability. Each person subject to the registration 
requirements of subpart G of 49 CFR part 107 and each person who offers 
for transportation or transports in commerce a Division 6.2 material, 
other than a diagnostic specimen, listed as a select agent in 42 CFR 
part 72 must develop and adhere to a security plan that conforms to the 
requirements of this subpart.


Sec. 172.802  Components of a security plan.

    A security plan must be written, and must be retained for as long 
as it remains in effect. Copies of the security

[[Page 22035]]

plan must be available to the employees who are responsible for 
implementing it. When the security plan is updated or revised, all 
copies of the plan must be maintained as of the date of the most recent 
revision. The security plan must include an assessment of possible 
transportation security risks and appropriate measures to reduce or 
eliminate the risks. Specific operational details of the security plan 
may vary commensurate with the level of threat at a particular time. At 
a minimum, a security plan must include the following elements:
    (a) Personnel security. A process to verify the information 
provided by job applicants on application forms or resumes.
    (b) Unauthorized access. A process to assure that unauthorized 
personnel do not have access to hazardous materials or transport 
conveyances being prepared for transportation of hazardous materials.
    (c) En route security. A process to assure the security of 
hazardous materials shipments en route from origin to destination, 
including shipments stored incidental to movement. This process may 
include one or more of the following elements, as appropriate:
    (1) An assessment of the transportation modes or combinations of 
modes available for transporting specific materials and selection of 
the most appropriate method of transportation to assure efficient and 
secure movement of product.
    (2) A system for verifying that the carriers used to transport 
hazardous materials have an on-going transportation security program.
    (3) For highway shipments, a system to verify the identity of the 
carrier and driver prior to releasing a hazardous material for 
transportation in commerce.
    (4) Identification of preferred and alternative routing, including 
acceptable deviations. Routes should minimize product exposures to 
populated areas and avoid tunnels and bridges, where possible. 
Transportation of a shipment to its destination should be accomplished 
without unnecessary delays or layovers.
    (5) A system for communicating with a transport vehicle or its 
operator.
    (6) A system for a customer to alert the shipper if a hazardous 
material is not received when expected.


Sec. 172.804  Relationship to other Federal requirements.

    To avoid unnecessary duplication of security requirements, security 
plans that conform to regulations issued by other Federal or 
international agencies may be used to satisfy the requirements in this 
subpart, provided such security plans address the requirements 
specified in this subpart.

PART 177--CARRIAGE BY PUBLIC HIGHWAY

    12. The authority citation for part 177 would continue to read as 
follows:

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

    13. In Sec. 177.817, paragraph (e) introductory text would be 
revised to read as follows:


Sec. 177.817  Shipping papers.

* * * * *
    (e) Shipping paper accessibility--accident or inspection. A driver 
of a motor vehicle containing a hazardous material, and each carrier 
using such a vehicle, must ensure that the shipping paper required by 
this section, including an attachment prepared in accordance with 
Sec. 172.201(e) of this subchapter, is readily available to, and 
recognizable by, authorities in the event of accident or inspection. 
Specifically, the driver and carrier must:
* * * * *
    14. In subpart A, Sec. 177.820 would be added to read as follows:


Sec. 177.820  Certificates of registration.

    Each motor carrier subject to the requirements of subpart G of part 
107 of this chapter must carry a copy of its current Certificate of 
Registration issued by RSPA on board each truck and truck tractor (not 
including trailers and semi-trailers) used to transport hazardous 
materials subject to the requirements of this subchapter. The 
Certificate of Registration must immediately be made available, upon 
request, to enforcement personnel.

    Issued in Washington, DC on April 23, 2002 under authority 
delegated in 49 CFR part 106.
Frits Wybenga,
Deputy Associate Administrator for Hazardous Materials Safety, Research 
and Special Programs Administration.
[FR Doc. 02-10405 Filed 5-1-02; 8:45 am]
BILLING CODE 4910-60-P