[Federal Register Volume 69, Number 60 (Monday, March 29, 2004)]
[Proposed Rules]
[Pages 16188-16190]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-6827]


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

ENVIRONMENTAL PROTECTION AGENCY

40 CFR Chapter I

[OAR-2003-0214, FRL-7640-3]


Petition to Amend Fuel Economy Testing and Calculation 
Procedures; Request for Comments

AGENCY: Environmental Protection Agency (EPA).

ACTION: Notice of petition for rulemaking.

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

SUMMARY: EPA has received a petition from Bluewater Network requesting 
rulemaking to ``revise the test procedures, calculation methods and/or 
correction factors employed in the calculations used to determine the 
fuel economy information relayed to consumers and policy makers so that 
they more accurately reflect the actual, real-world fuel economy that 
vehicles are achieving on the road.'' Bluewater Network contends that 
EPA's fuel economy estimates do not accurately reflect results achieved 
in actual on-road operation; more accurate estimates would benefit both 
consumers and those involved in setting national energy policy. Before 
acting on the petition, EPA would like to solicit information and 
comments from other interested parties.

DATES: In order to receive full consideration, comments should be 
submitted by July 27, 2004.

ADDRESSES: Comments may be submitted electronically, by mail, or 
through hand delivery/courier. Follow the detailed instructions as 
provided in the SUPPLEMENTARY INFORMATION section below.

FOR FURTHER INFORMATION CONTACT: Holly Pugliese, 2000 Traverwood DR, 
Ann Arbor MI 48105. (734) 214-4288; [email protected].

SUPPLEMENTARY INFORMATION:

I. General Information

A. How Can I Get Copies Of Related Information ?

    EPA has established an official public docket for this action under 
Docket ID No. OAR-2003-0214. The official public docket is the 
collection of materials that is available for public viewing at the Air 
and Radiation Docket in the EPA Docket Center, (EPA/DC) EPA West, Room 
B102, 1301 Constitution Ave., NW., Washington, DC. The EPA Docket 
Center Public Reading Room is open from 8:30 a.m. to 4:30 p.m., Monday 
through Friday, excluding legal holidays. The telephone number for the 
Public Reading Room is (202) 566-1744, and the telephone number for the 
Air and Radiation Docket is (202) 566-1744.
    An electronic version of the public docket is available through 
EPA's electronic public docket and comment system, EPA Dockets. You may 
use EPA Dockets at http://www.epa.gov/edocket/ to submit or view public 
comments, access the index listing of the contents of the official 
public docket, and to access those documents in the public docket that 
are available electronically. Once in the system, select ``search,'' 
then key in the appropriate docket identification number.
    Certain types of information will not be placed in the EPA Dockets. 
Information claimed as CBI and other information whose disclosure is 
restricted by statute, which is not

[[Page 16189]]

included in the official public docket, will not be available for 
public viewing in EPA's electronic public docket. EPA's policy is that 
copyrighted material will not be placed in EPA's electronic public 
docket but will be available only in printed, paper form in the 
official public docket. Although not all docket materials may be 
available electronically, you may still access any of the publicly 
available docket materials through the docket facility identified 
above.
    For public commenters, it is important to note that EPA's policy is 
that public comments, whether submitted electronically or in paper, 
will be made available for public viewing in EPA's electronic public 
docket as EPA receives them and without change, unless the comment 
contains copyrighted material, CBI, or other information whose 
disclosure is restricted by statute. When EPA identifies a comment 
containing copyrighted material, EPA will provide a reference to that 
material in the version of the comment that is placed in EPA's 
electronic public docket. The entire printed comment, including the 
copyrighted material, will be available in the public docket.
    Public comments submitted on computer disks that are mailed or 
delivered to the docket will be transferred to EPA's electronic public 
docket. Public comments that are mailed or delivered to the Docket will 
be scanned and placed in EPA's electronic public docket. Where 
practical, physical objects will be photographed, and the photograph 
will be placed in EPA's electronic public docket along with a brief 
description written by the docket staff.

B. How and to Whom Do I Submit Comments?

    You may submit comments electronically, by mail, or through hand 
delivery/courier. To ensure proper receipt by EPA, identify the 
appropriate docket identification number in the subject line on the 
first page of your comment. Please ensure that your comments are 
submitted within the specified comment period. Comments received after 
the close of the comment period will be marked ``late.'' EPA is not 
required to consider these late comments.
    1. Electronically. If you submit an electronic comment as 
prescribed below, EPA recommends that you include your name, mailing 
address, and an e-mail address or other contact information in the body 
of your comment. Also include this contact information on the outside 
of any disk or CD-ROM you submit, and in any cover letter accompanying 
the disk or CD-ROM. This ensures that you can be identified as the 
submitter of the comment and allows EPA to contact you in case EPA 
cannot read your comment due to technical difficulties or needs further 
information on the substance of your comment. EPA's policy is that EPA 
will not edit your comment, and any identifying or contact information 
provided in the body of a comment will be included as part of the 
comment that is placed in the official public docket, and made 
available in EPA's electronic public docket. If EPA cannot read your 
comment due to technical difficulties and cannot contact you for 
clarification, EPA may not be able to consider your comment.
    Your use of EPA's electronic public docket to submit comments to 
EPA electronically is EPA's preferred method for receiving comments. Go 
directly to EPA Dockets at http://www.epa.gov/edocket, and follow the 
online instructions for submitting comments. Once in the system, select 
``search,'' and then key in Docket ID No. OAR-2003-0214. The system is 
an ``anonymous access'' system, which means EPA will not know your 
identity, e-mail address, or other contact information unless you 
provide it in the body of your comment.
    Comments may be sent by electronic mail (e-mail) to [email protected], Attention Docket ID No. OAR-2003-0214. In 
contrast to EPA's electronic public docket, EPA's e-mail system is not 
an ``anonymous access'' system. If you send an e-mail comment directly 
to the Docket without going through EPA's electronic public docket, 
EPA's e-mail system automatically captures your e-mail address. E-mail 
addresses that are automatically captured by EPA's e-mail system are 
included as part of the comment that is placed in the official public 
docket, and made available in EPA's electronic public docket.
    You may submit comments on a disk or CD-ROM that you mail to the 
mailing address identified below. These electronic submissions will be 
accepted in WordPerfect or ASCII file format. Avoid the use of special 
characters and any form of encryption.
    2. By Mail. Send your comments to: Air and Radiation Docket, 
Environmental Protection Agency, Mailcode: 6102T, 1200 Pennsylvania 
Ave., NW., Washington, DC 20460], Attention: Docket ID No. OAR-2003-
0214.
    3. By Hand Delivery or Courier. Deliver your comments to: Air and 
Radiation Docket in the EPA Docket Center, (EPA/DC) EPA West, Room 
B102, 1301 Constitution Ave., NW., Washington, DC, Attention: Docket ID 
No. OAR-2003-0214. Such deliveries are only accepted during the 
Docket's normal hours of operation as identified above.

C. How Should I Submit CBI to the Agency?

    Do not submit information that you consider to be CBI 
electronically through EPA's electronic public docket or by e-mail. You 
may claim information that you submit to EPA as CBI by marking any part 
or all of that information as CBI. If you submit CBI on disk or CD-ROM, 
mark the outside of the disk or CD-ROM as CBI and then identify 
electronically within the disk or CD-ROM the specific information that 
is CBI. Information so marked will not be disclosed except in 
accordance with procedures set forth in 40 CFR part 2.
    In addition to one complete version of the comment that includes 
any information claimed as CBI, a copy of the comment that does not 
contain the information claimed as CBI must be submitted for inclusion 
in the public docket and EPA's electronic public docket. If you submit 
the copy that does not contain CBI on disk or CD-ROM, mark the outside 
of the disk or CD-ROM clearly that it does not contain CBI. Information 
not marked as CBI will be included in the public docket and EPA's 
electronic public docket without prior notice. If you have any 
questions about CBI or the procedures for claiming CBI, please consult 
the person identified in the FOR FURTHER INFORMATION CONTACT section.

D. What Should I Consider as I Prepare My Comments for EPA?

    You may find the following suggestions helpful for preparing your 
comments:
    1. Explain your views as clearly as possible.
    2. Describe any assumptions that you used.
    3. Provide any technical information and/or data you used that 
support your views.
    4. If you estimate potential burden or costs, explain how you 
arrived at your estimate.
    5. Provide specific examples to illustrate your concerns.
    6. Offer alternatives.
    7. Make sure to submit your comments by the comment period deadline 
identified.
    8. To ensure proper receipt by EPA, identify the appropriate docket 
identification number in the subject line on the first page of your 
response. It would also be helpful if you provided

[[Page 16190]]

the name, date, and Federal Register citation related to your comments.

II. History of EPA's Fuel Economy Program

    The Federal Government began regulating vehicle exhaust emissions 
in the late 1960's. At that time, fuel economy was not considered an 
area of concern. However, the fuel shortage crisis in 1973 placed an 
urgent focus on fuel efficiency, and created a new demand for accurate 
and comparable fuel economy information.
    In evaluating how to accomplish this, it was determined that the 
data collected during EPA's vehicle emission test could be used to 
calculate a ``city'' fuel economy estimate. The same methods for 
calculating vehicle emission, involving determining the volume and 
composition of various components in the exhaust, could be used to 
calculate the quantity of fuel consumed. At the time of the 1973 fuel 
shortage crisis, the emission test data from 1974 models had already 
been collected by EPA. Thus, it was relatively simple to use that data 
to calculate the fuel economy for those vehicles and compile that 
information into the first ``Fuel Economy Guide''. Because the data was 
collected under tightly controlled laboratory conditions, it allowed 
for comparisons amongst the different vehicle models. Moreover, it was 
an efficient method for vehicle manufacturers, since a single test 
could serve two purposes--emission and fuel economy measurements.
    The downside of using the data collected for regulation of exhaust 
emissions was that it encompassed only one type of driving: urban stop-
and-go at lower average speeds. Higher speed highway driving was not 
simulated for the emissions test. EPA responded to this concern by 
establishing a separate ``highway'' driving test that simulated 
sustained moderate speed operation typical of an urban highway.
    In 1975 Congress passed the Energy Policy and Conservation Act 
(EPCA), Public Law 94-163. EPCA established fuel economy labeling 
information requirements and Corporate Average Fuel Economy 
(CAF[Eacute]) standards, and was based on EPA's voluntary program. It 
also codified the use of the--``highway'' driving cycle. For vehicle 
labeling, it required that EPA's fuel economy test results be posted on 
a label affixed to all new cars and light trucks, and that the label 
values for those vehicles be published in an annual consumer booklet, 
which is known as the Fuel Economy Guide. (Fuel Economy Guides for the 
present and past model years are available at www.fueleconomy.gov; the 
fuel economy estimates are also included in EPA's Green Vehicle Guide, 
www.epa.gov/greenvehicles.)
    Shortly after the fuel economy labeling program was established, 
EPA began receiving consumer complaints that they were not achieving 
their ``city'' and ``highway'' fuel economy label values during actual 
on-road operation. EPA determined that the label values allowed 
relative comparisons from one vehicle to another but were less 
effective at estimating the actual mileage of in-use vehicles. This was 
due to the differences between the strictly controlled laboratory 
conditions and the real-world conditions that could impact individual 
experiences with fuel economy (e.g. extreme climate conditions, driving 
habits, lack of proper maintenance, higher driving speeds, severe 
traffic congestion, etc.). Many of these factors tend to lower fuel 
economy compared to the laboratory test conditions used by EPA when 
measuring vehicle fuel economy. In response to this concern, EPA 
evaluated the data available at the time on in-use fuel economy and 
established adjustment factors which reduced the ``city'' estimate by 
10 percent and the ``highway'' estimate by 22 percent. (49 FR 13832, 
April 6, 1984). The number of consumer complaints declined 
significantly after the adjustment factors became effective. These 
adjusted results are currently used for the fuel economy values posted 
on vehicle labels and in the Fuel Economy Guide.

III. Bluewater Network's Petition

    The petition submitted to EPA from Bluewater Network, San Francisco 
CA, concerns the accuracy of fuel economy label values. Bluewater 
Network believes that despite the adjustments made to the city and 
highway fuel economy values, EPA's fuel economy label values still 
overstate what consumers actually achieve. Bluewater Network contends 
that the primary causes for this discrepancy are increased highway 
speeds, a higher proportion of urban driving and greater city traffic 
congestion which have occurred since EPA's procedures and adjustment 
factors were established. They have requested that EPA issue a 
rulemaking to revise its test procedures to more accurately reflect 
what the average consumer will achieve.
    The Bluewater Network petition was addressed to both EPA and the 
Department of Transportation (DOT). Both EPA and the DOT's National 
Highway Traffic Safety Administration (NHTSA) have specific statutorily 
defined roles regarding vehicle fuel economy. (See Energy Policy and 
Conservation Act, 49 U.S.C. 32901 et seq.) By this Notice, EPA is 
soliciting comment on the petition, specifically on the accuracy of 
fuel economy label values.
    Bluewater Network's complete petition is available from their Web 
site, the docket or from the individual listed under FOR FURTHER 
INFORMATION CONTACT above.

Request for Comments

    EPA is soliciting comments on Bluewater Network's petition 
regarding fuel economy information in order to assist EPA in 
determining whether to grant or deny the petition. Comments from all 
interested parties are requested concerning EPA regulations 
implementing the fuel economy program as discussed in the petition and 
other related fuel economy information issues.
    EPA is specifically requesting comments on whether current national 
driving patterns have changed in a manner that directionally impacts 
fuel economy. We also request the submission of any recent data that 
compares in-use fuel economy with the EPA city and highway label 
values, including data from vehicles operated on gasoline, diesel, and 
alternative fuels (such as CNG and LPG), and hybrid electric vehicles. 
Diesel and alternative fuel passenger cars and light trucks were not 
common in the early 1980's and therefore were not represented in the 
data used to determine the existing adjustment factors. Similarly, 
hybrid vehicles did not exist at that time. Also requested is 
information and/or data about how any specific conditions that may have 
an impact on fuel economy, such as air conditioning usage, road 
conditions, driving patterns, driving habits, etc., may have changed 
over time. Finally, we request information on why any changes in those 
conditions could have an impact on fuel economy. Please send all 
comments to the address indicated above under SUPPLEMENTARY INFORMATION 
above.

    Dated: March 17, 2004.
Robert Brenner,
Acting Assistant Administrator for Air and Radiation.
[FR Doc. 04-6827 Filed 3-26-04; 8:45 am]
BILLING CODE 6560-50-P