[Federal Register Volume 67, Number 212 (Friday, November 1, 2002)]
[Rules and Regulations]
[Pages 66571-66575]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-27735]


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DEPARTMENT OF TRANSPORTATION

Research and Special Programs Administration

49 CFR Parts 172, 174, 175, 176, and 177

[Docket No. RSPA-01-10568 (HM-207B)]
RIN 2137-AC64


Hazardous Materials: Retention of Shipping Papers

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

ACTION: Final rule; response to appeals.

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SUMMARY: In this final rule, RSPA is making changes to a final rule 
published on July 12, 2002, in which RSPA amended the Hazardous 
Materials Regulations (HMR) to require shippers and carriers to retain 
a copy of each hazardous material shipping paper, or an electronic 
image thereof, for a period of 375 days after the date the hazardous 
material is accepted by a carrier. This final rule responds to five 
appeals of the July 12, 2002 final rule.

EFFECTIVE DATES: This final rule is effective on November 1, 2002. 
Voluntary compliance is authorized as of August 12, 2002.

FOR FURTHER INFORMATION CONTACT: Deborah Boothe of the Office of 
Hazardous Materials Standards, (202) 366-8553, Research and Special 
Programs Administration, U.S. Department of Transportation, 400 Seventh 
Street, SW., Washington, DC 20590.

SUPPLEMENTARY INFORMATION:

I. Background

    On July 12, 2002, The Research and Special Programs Administration 
(RSPA, we) published a final rule under Docket HM-207B (67 FR 46123) 
amending the Hazardous Materials Regulations (HMR; 49 CFR parts 171-
180) to require shippers and carriers to retain a copy of each 
hazardous material shipping paper, or an electronic image thereof, for 
a period of 375 days after the date the hazardous material is accepted 
by a carrier. The July 12, 2002 final rule incorporates into the HMR 
the requirements in the Federal hazardous material transportation law 
(Federal hazmat law) to require that, after a hazardous material ``is 
no longer in transportation,'' each offeror and carrier of a hazardous 
material must retain the shipping paper ``or electronic image thereof 
for a period of 1 year to be accessible through their respective 
principal places of business.'' 49 U.S.C. 5110(e), added by Public Law 
103-311, Title I, section 115, 108 Stat. 1678 (Aug. 26, 1994). That 
section also provides that the offeror and carrier ``shall, upon 
request, make the shipping paper available to a Federal, State, or 
local government agency at reasonable times and locations.''
    The July 12, 2002 final rule requires each person who offers or 
transports a hazardous material in commerce to retain a copy of the 
shipping paper for 375 days after the date the shipment is accepted by 
the initial carrier. To facilitate enforcement of this requirement, the 
final rule requires each

[[Page 66572]]

shipping paper copy to include the date of initial acceptance. For rail 
shipments, the date of acceptance may be the date on the shipment 
waybill or bill of lading. The final rule also requires that copies of 
shipping papers must be made immediately available, if requested, to an 
authorized government official.

II. Appeals Received in Response to the Final Rule

    We received five appeals of the July 12, 2002 final rule from the 
following industry associations involved in the transportation of 
hazardous materials: (1) American Trucking Associations (ATA), (2) 
Dangerous Goods Advisory Council (DGAC), (3) Truckload Carriers 
Association (TCA), (4) National Propane Gas Association (NPGA), and (5) 
International Vessel Operators Hazardous Materials Association (VOHMA). 
The appellants raise two major issues of concern, and they request 
clarification or revision of the final rule to provide for easier 
compliance. All the appellants expressed concern about the final rule 
requirement for shipping papers to be made ``immediately'' available, 
upon request, to an authorized official. In addition, VOHMA requests us 
to modify the final rule to permit a date on a bill of lading or 
waybill to be used as the shipment acceptance date for vessel 
shipments.

A. ``Immediately Available''

    All appellants request that we remove the words ``immediately 
available'' in Sec. Sec.  172.201(e), 174.24(b), 175.30(a)(2), 
176.24(b), and 177.817(f), as modified in the July 12, 2002 final rule. 
Appellants argue that requiring a copy of a shipping paper, or an 
electronic image thereof, to be made immediately available upon request 
could be unreasonable and burdensome. Appellants note that we did not 
define the term ``immediately''; thus, appellants expressed concern 
that enforcement personnel may be unreasonable in the way that they 
interpret the requirement. DGAC provides a definition for 
``immediately'' as taken from the American Heritage Dictionary of the 
English Language. According to DGAC, the dictionary definition ``states 
these words `* * * imply no delay whatever, as between request and 
response.' * * * The word `immediately' does not appear in 49 U.S.C. 
5110(e) * * * In fact, its use appears to conflict with the 
congressional intent for Paragraph 5110(e) * * *'' Appellants suggest 
that 48 hours is a reasonable time frame to provide an authorized 
official with requested documents for review and inspection. According 
to appellants, the final rule as written is different from the Federal 
Motor Carrier Safety Administrations's (FMCSA) definition of a 
``principal place of business'' which allows motor carriers to make 
records available for inspection at its principal place of business 
within 48 hours (excluding weekends and holidays). Therefore, they 
contend that allowing 48 hours as a time frame would more closely 
resemble the FMCSA regulations in 49 CFR 390.5 concerning the 
definition of a ``principal place of business.''
    In response to the appeals, we are revising Sec. Sec.  172.201(e), 
174.24(b), 175.30(a)(2), 176.24(b), and 177.817(f) in this final rule 
by removing the word ``immediately.'' Persons subject to the shipping 
paper retention requirement must make copies available, upon request, 
``at reasonable times and locations.'' This change aligns the language 
in the regulations with the statutory language establishing the 
shipping paper retention requirement in Sec.  5110(d) of Federal hazmat 
law. Generally, we expect that the requested documents will be made 
available to an inspector some time on the day that he or she is at the 
inspection site. However, the words ``at reasonable times and 
locations'' also take into account the fact that, in some instances, 
the principal place of business may be in a different time zone. VOHMA 
notes that ``some of the provisions of [the final rule] do not address 
international business considerations. For cargo originating at a 
terminal operated by the carrier in the Far East where the shipping 
documents are maintained in the carriers files as required by the IMDG 
code, there may be a delay of 12 or more hours due to time zones and 
international date lines.'' VOHMA, therefore, asks us to amend the 
final rule language to account for differences in time zones.
    We do not agree with appellants' suggestion to allow 48 hours for 
compliance with an authorized official's request for the shipping 
document copies. As we stated in the preamble to the July 12, 2002 
final rule, electronic capabilities such as facsimile machines and 
email permit companies to transmit copies of shipping papers from 
shipping locations to a principal place of business very quickly. We 
also do not believe that appellants have any basis for their fears 
about unreasonable enforcement of this requirement.

B. Shipment Acceptance Date

    The July 12, 2002 final rule permits rail carriers to use the date 
on the shipment waybill or bill of lading as the date of acceptance 
required to be included on shipping papers. VOHMA requests a similar 
provision for shipments by vessel: ``The interlining of freight 
containers in the intermodal transportation system and similarity in 
booking and transfer practices should mean that the acceptability of 
the last modified version of the shipping paper should extend to the 
water mode as well. The date of the booking for a voyage corresponds to 
the date of booking for rail carriage and is currently captured in the 
electronic system.'' As we stated in the preamble to the July 12, 2002 
final rule, it was not our intention to require shippers and carriers 
to implement new systems for preparing and dating shipping 
documentation. Shipping paper retention requirements should be 
sufficiently flexible to accommodate current transportation practices 
concerning acceptance dates for shipments. We understand that air 
carrier systems for completing and transmitting shipping documentation 
are similar to those for rail and vessel shipments. Therefore, in this 
final rule, we are revising Sec. Sec.  172.201, 175.30, and 176.24 to 
permit use of the date on a waybill, airbill, or bill of lading for the 
date of acceptance required on a shipping paper.

C. Miscellaneous Clarification

    VOHMA notes that a shipping paper prepared in accordance with the 
International Maritime Organization's Dangerous Goods Code (IMDG Code) 
may be used for further transportation within the United States. VOHMA 
suggests that Sec.  176.24 of the HMR should be modified to reflect the 
provisions of Sec.  171.12 authorizing transportation of shipments 
prepared in accordance with the IMDG Code. We agree, and are making the 
suggested change in this final rule.

III. Regulatory Analyses and Notices

A. Executive Order 12866 and DOT Regulatory Policies and Procedures

    This final rule is not considered a significant regulatory action 
under Executive Order 12866 and was not reviewed by the Office of 
Management and Budget. This final rule is not considered significant 
under the regulatory policies and procedures of the Department of 
Transportation (44 FR 11034).
    This final rule implements a statutory requirement that has been in 
effect since 1994. We do not anticipate any additional costs on 
offerors and carriers of hazardous materials. Therefore, preparation of 
a regulatory evaluation is not warranted.

[[Page 66573]]

B. Executive Order 13132

    This final rule has been analyzed in accordance with the principles 
and criteria contained in Executive Order 13132 (``Federalism''). 
Federal hazardous materials transportation law preempts any State, 
local, or Indian tribe requirement on the preparation, execution, and 
use of shipping documents related to hazardous materials that is not 
substantively the same as this final rule, 49 U.S.C. 5125(b)(1)(B), but 
this final rule does not have 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. 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 that are not 
substantively the same as Federal requirements on certain subjects. 
These 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 final rule addresses item 3 above and preempts State, local, 
and Indian tribe requirements not meeting the ``substantively the same 
as'' standard. This final rule is necessary to assure that the HMR 
requirements for retention of shipping papers are consistent with 
Federal hazardous materials transportation law.
    Federal hazardous materials transportation law provides at Sec.  
5125(b)(2) that, if DOT issues a regulation concerning any of these 
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 the final 
rule and not later than two years after the date of issuance. The 
effective date of federal preemption of this final rule is 90 days from 
publication of this final rule in the Federal Register.

C. Executive Order 13175

    This final rule has been analyzed in accordance with the principles 
and criteria contained in Executive Order 13175 (``Consultation and 
Coordination with Indian Tribal Governments''). Because this final rule 
does not have tribal implications, does not impose substantial direct 
compliance costs, and is required by statute, the funding and 
consultation requirements of Executive Order 13175 do not apply.

D. Regulatory Flexibility Act

    The Regulatory Flexibility Act (5 U.S.C. 601 et seq.) requires an 
agency to assess the impact of its regulations 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. This final rule 
implements a statutory requirement that has been in effect since 1994. 
This final rule will not impose additional costs on offerors and 
carriers of hazardous material. I hereby certify that, while the final 
rule applies to a substantial number of small entities, there will not 
be a significant economic impact on those small businesses.

E. Unfunded Mandates Reform Act of 1995

    This final rule imposes no mandates and thus does not impose 
unfunded mandates under the Unfunded Mandates Reform Act of 1995.

F. Paperwork Reduction Act

    Under the Paperwork Reduction Act of 1995, no person is required to 
respond to an information collection unless it displays a valid OMB 
control number. No new burdens are proposed under this final rule. RSPA 
has a current information collection approval under OMB No. 2137-0034, 
``Shipping Papers and Emergency Response Information'' which includes 
the shipping paper retention requirement in the burden estimates.

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 number contained in the heading 
of this document can be used to cross-reference this action with the 
Unified Agenda.

H. Environmental Assessment

    This final rule does not affect packaging or hazard communication 
requirements for shipments of hazardous materials transported in 
commerce. We find that there are no significant environmental impacts 
associated with this final rule.

List of Subjects

49 CFR Part 172

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

49 CFR Part 174

    Hazardous materials transportation, Radioactive materials, Railroad 
safety.

49 CFR Part 175

    Air Carriers, Hazardous materials transportation, Radioactive 
materials, Reporting and recordkeeping requirements.

49 CFR Part 176

    Hazardous materials transportation, Maritime carriers, Radioactive 
materials, Reporting and recordkeeping requirements.

49 CFR Part 177

    Hazardous materials transportation, Motor carriers, Radioactive 
materials, Reporting and recordkeeping requirements.
    In consideration of the foregoing, we are amending 49 CFR Parts 
172, 174, 175, 176, and 177, as follows:

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

    1. The authority citation for part 172 continues to read as 
follows:

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


    2. In Sec.  172.201, paragraph (e) as added in the July 12, 2002 
final rule, 67 FR 46127, is revised to read as follows:


Sec.  172.201  Preparation and retention of shipping papers.

* * * * *
    (e) Each person who provides a shipping paper must retain a copy of 
the shipping paper required by Sec.  172.200(a), or an electronic image 
thereof, that is accessible at or through its principal place of 
business and must make the

[[Page 66574]]

shipping paper available, upon request, to an authorized official of a 
Federal, State, or local government agency at reasonable times and 
locations. For a hazardous waste, the shipping paper copy must be 
retained for three years after the material is accepted by the initial 
carrier. For all other hazardous materials, the shipping paper copy 
must be retained for 375 days after the material is accepted by the 
initial carrier. Each shipping paper copy must include the date of 
acceptance by the initial carrier, except that, for rail, vessel, or 
air shipments, the date on the shipment waybill, airbill, or bill of 
lading may be used in place of the date of acceptance by the initial 
carrier. A motor carrier (as defined in Sec.  390.5 of Subchapter B of 
Chapter III of Subtitle B) that uses a shipping paper without change 
for multiple shipments of a single hazardous material (i.e., one having 
the same shipping name and identification number) may retain a single 
copy of the shipping paper, instead of a copy for each shipment made, 
if the carrier also retains a record of each shipment made, to include 
shipping name, identification number, quantity transported, and date of 
shipment.

PART 174--CARRIAGE BY RAIL

    3. The authority citation for part 174 continues to read as 
follows:

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


    4. Section 174.24(b) as added by the July 12, 2002 final rule, 67 
FR 46128, is revised to read as follows:


Sec.  174.24  Shipping papers.

* * * * *
    (b) Each person receiving a shipping paper required by this section 
must retain a copy or an electronic image thereof, that is accessible 
at or through its principal place of business and must make the 
shipping paper available, upon request, to an authorized official of a 
Federal, State, or local government agency at reasonable times and 
locations. For a hazardous waste, each shipping paper copy must be 
retained for three years after the material is accepted by the initial 
carrier. For all other hazardous materials, each shipping paper copy 
must be retained for 375 days after the material is accepted by the 
initial carrier. Each shipping paper copy must include the date of 
acceptance by the initial carrier. The date on the shipping paper may 
be the date a shipper notifies the rail carrier that a shipment is 
ready for transportation, as indicated on the waybill or bill of 
lading, as an alternative to the date the shipment is picked up, or 
accepted, by the carrier.

PART 175--CARRIAGE BY AIRCRAFT

    5. The authority citation for part 175 continues to read as 
follows:

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


    6. In Sec.  175.30, paragraph (a)(2) as amended in the July 12, 
2002 final rule, 67 FR 46128, is revised to read as follows:


Sec.  175.30  Accepting and inspecting shipments.

    (a) * * *
    (1) * * *
    (2) Described and certified on a shipping paper prepared in 
duplicate in accordance with part 172 of this subchapter or as 
authorized by Sec.  171.11 of this subchapter. Each person receiving a 
shipping paper required by this section must retain a copy or an 
electronic image thereof, that is accessible at or through its 
principal place of business and must make the shipping paper available, 
upon request, to an authorized official of a federal, state, or local 
government agency at reasonable times and locations.
    For a hazardous waste, each shipping paper copy must be retained 
for three years after the material is accepted by the initial carrier. 
For all other hazardous materials, each shipping paper copy must be 
retained for 375 days after the material is accepted by the carrier. 
Each shipping paper copy must include the date of acceptance by the 
carrier. The date on the shipping paper may be the date a shipper 
notifies the air carrier that a shipment is ready for transportation, 
as indicated on the airbill or bill of lading, as an alternative to the 
date the shipment is picked up or accepted by the carrier. Only an 
initial carrier must receive and retain a copy of the shipper's 
certification, as required by Sec.  172.204 of this subchapter.
* * * * *

PART 176--CARRIAGE BY VESSEL

    7. The authority citation for part 176 continues to read as 
follows:

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


    8. Section 176.24 as amended in the July 12, 2002 final rule, 67 FR 
46128,is revised to read as follows:


Sec.  176.24  Shipping papers.

    (a) A person may not accept a hazardous material for transportation 
or transport a hazardous material by vessel unless that person has 
received a shipping paper prepared in accordance with part 172 of this 
subchapter, or as authorized by Sec.  171.12 of this subchapter, unless 
the material is excepted from shipping paper requirements under this 
subchapter.
    (b) Each person receiving a shipping paper required by this section 
must retain a copy or an electronic image thereof, that is accessible 
at or through its principal place of business and must make the 
shipping paper available, upon request, to an authorized official of a 
Federal, State, or local government agency at reasonable times and 
locations. For a hazardous waste, each shipping paper copy must be 
retained for three years after the material is accepted by the initial 
carrier. For all other hazardous materials, each shipping paper copy 
must be retained for 375 days after the material is accepted by the 
carrier. Each shipping paper copy must include the date of acceptance 
by the carrier. The date on the shipping paper may be the date a 
shipper presents a booking for carriage with the carrier as an 
alternative to the date the shipment is picked up, accepted, or loaded 
on the vessel by the carrier.

PART 177--CARRIAGE BY PUBLIC HIGHWAY

    9. The authority citation for part 177 continues to read as 
follows:

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


    10. In Sec.  177.817, paragraph(f) as added in the July 12, 2002 
final rule, 67 FR 46128, is revised, to read as follows:


Sec.  177.817  Shipping papers.

* * * * *
    (f) Retention of shipping papers. Each person receiving a shipping 
paper required by this section must retain a copy or an electronic 
image thereof, that is accessible at or through its principal place of 
business and must make the shipping paper available, upon request, to 
an authorized official of a Federal, State, or local government agency 
at reasonable times and locations. For a hazardous waste, the shipping 
paper copy must be retained for three years after the material is 
accepted by the initial carrier. For all other hazardous materials, the 
shipping paper copy must be retained for 375 days after the material is 
accepted by the carrier. Each shipping paper copy must include the date 
of acceptance by the carrier. A motor carrier (as defined in Sec.  
390.5 of Subchapter B of Chapter III of Subtitle B) that uses a 
shipping paper without

[[Page 66575]]

change for multiple shipments of a single hazardous material (i.e., one 
having the same shipping name and identification number) may retain a 
single copy of the shipping paper, instead of a copy for each shipment 
made, if the carrier also retains a record of each shipment made, to 
include shipping name, identification number, quantity transported, and 
date of shipment.

    Issued in Washington, DC, on October 25, 2002, under authority 
delegated in 49 CFR part 1.
Ellen G. Engleman,
Administrator.
[FR Doc. 02-27735 Filed 10-31-02; 8:45 am]
BILLING CODE 4910-60-P