[Federal Register Volume 81, Number 120 (Wednesday, June 22, 2016)]
[Rules and Regulations]
[Pages 40528-40534]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-14571]



[[Page 40528]]

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DEPARTMENT OF TRANSPORTATION

National Highway Traffic Safety Administration

49 CFR Part 562

[Docket No. NHTSA-2016-0064]
RIN 2127-AL28


Lighting and Marking on Agricultural Equipment

AGENCY: National Highway Traffic Safety Administration (NHTSA), 
Department of Transportation (DOT).

ACTION: Final rule.

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SUMMARY: Pursuant to the Moving Ahead for Progress in the 21st Century 
Act (MAP-21), the agency is adding a new regulation to the CFR that 
sets forth requirements for lighting and marking on agricultural 
equipment to improve daytime and nighttime visibility. It standardizes 
lighting and marking requirements for agricultural equipment across the 
United States.

DATES: Effective Date: June 22, 2016.
    Compliance Date: June 22, 2017.
    The incorporation by reference of certain publications listed in 
the rule is approved by the Director of the Federal Register as of June 
22, 2016.

ADDRESSES: 
    Mail: Docket Management Facility, M-30, U.S. Department of 
Transportation, 1200 New Jersey Avenue SE., West Building, Ground 
Floor, Room W12-140, Washington, DC 20590.
    Hand Delivery: U.S. Department of Transportation, 1200 New Jersey 
Avenue SE., West Building, Ground Floor, Room W12-140, between 9 a.m. 
and 5 p.m. Eastern Time, Monday through Friday, except Federal 
holidays.
    Fax: 202-493-2251.
    Docket: For access to the docket to read background documents, go 
to http://www.regulations.gov, or the street address listed above. 
Follow the online instructions for accessing the dockets.

FOR FURTHER INFORMATION CONTACT: For technical issues: Mr. Wayne 
McKenzie, Office of Crash Avoidance Standards, NHTSA, 1200 New Jersey 
Avenue SE., West Building, Washington, DC 20590 (Telephone: (202) 366-
0098) (Fax: (202) 366-7002).
    For legal issues: Ms. Rebecca Yoon, Office of the Chief Counsel, 
NHTSA, 1200 New Jersey Avenue SE., West Building, Washington, DC 20590 
(Telephone: (202) 366-2992) (Fax: (202) 366-3820).

SUPPLEMENTARY INFORMATION: 

Table of Contents

I. Executive Summary
II. Background
III. Legislative Mandate Under the Moving Ahead for Progress in the 
21st Century Act (MAP-21)
IV. Notice and Comment Are Unnecessary
V. American Society of Agricultural and Biological Engineers (ASABE) 
Standards Development
VI. Summaries of and Availability of ASABE Standards 390.4; 
``Definitions and Classifications of Agricultural Field Equipment'' 
and 279.14; ``Lighting and Marking of Agricultural Equipment on 
Highways''
VII. NHTSA Is Incorporating ASABE Standards by Reference
VIII. Costs and Benefits
IX. Rulemaking Analyses

I. Executive Summary

    On July 6, 2012, the President signed into law the Moving Ahead for 
Progress in the 21st Century Act (MAP-21), Public Law 112-141. Section 
31601 of MAP-21 contains a non-discretionary mandate concerning daytime 
and nighttime visibility of agricultural equipment that may be operated 
on public roads.\1\ It requires NHTSA \2\ to establish lighting and 
marking standards equivalent to an existing industry standard for 
agricultural equipment that may be operated on public roads.
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    \1\ Section 31601 of MAP-21 was classified as a note to 49 
U.S.C. 30111.
    \2\ Section 31601 of MAP-21 directs the Secretary of 
Transportation to promulgate this rule. This authority is delegated 
to the National Highway Traffic Administrator at 49 CFR 1.95.
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    This rulemaking implements that mandate by adopting the American 
Society of Agricultural and Biological Engineers (ASABE) Standard 
279.14, a voluntary industry consensus standard, for originally 
manufactured agricultural equipment.

II. Background

    NHTSA has not regulated the manufacture of most agricultural 
equipment in the past, because it did not have specific authority to do 
so. Under the National Traffic and Motor Vehicle Safety Act (49 U.S.C. 
Chapter 30101 et. seq.) (Safety Act), NHTSA is authorized to regulate 
motor vehicles and items of motor vehicle equipment. NHTSA has 
interpreted most types of agricultural equipment to be outside the 
definition of ``motor vehicle'' contained in the Safety Act, and 
therefore beyond NHTSA's safety authority. As defined in the Safety 
Act, a motor vehicle means ``a vehicle driven or drawn by mechanical 
power and manufactured primarily for use on public streets, roads, and 
highways. . . .'' (49 U.S.C. 30102). We have stated that vehicles 
equipped with tracks, agricultural equipment, and other vehicles 
incapable of highway travel are not motor vehicles. We have also 
determined that certain vehicles designed and sold solely for off-road 
use (e.g., airport runway vehicles and underground mining vehicles) are 
not motor vehicles, even if they may be operationally capable of 
highway travel. Also, vehicles are not motor vehicles if they were 
designed to be used primarily at off-road job sites and, although 
capable of being operated on public roads from one job site to another, 
use roads only incidentally to the primary purpose for which they were 
manufactured (e.g., mobile cranes).\3\
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    \3\ See e.g., letter of interpretation to Ms. Melissa A. Burt on 
Jan. 12, 2005, available at http://isearch.nhtsa.gov/files/Supreme_intl.html (last accessed May 31, 2016).
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    Use of most agricultural equipment on the public roadways is 
intermittent and merely incidental to its primary off-road use. In a 
limited number of circumstances NHTSA has determined a piece of 
agricultural equipment to be a motor vehicle based on the specific 
factors listed above, such as its necessary and recurring use of public 
roads.\4\ However, NHTSA does not consider the vast majority of pieces 
of agricultural equipment to be motor vehicles within the meaning of 
the Safety Act.
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    \4\ See e.g., id. (determining that the Truck Mount Feed 
Processor was a motor vehicle based on its more-than-incidental use 
of public roads and the fact that the vehicle is constructed using a 
chassis cab, which was not altered in ways that would limit it to 
off-road use).
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    Consequently, States have been the primary sources of regulations 
for agricultural equipment lighting and marking. The result has been a 
varied landscape of regulations. NHTSA understands that this has 
created difficulties for manufacturers seeking to sell and market 
agricultural equipment that will meet all State on-road use 
requirements in multiple States. A national requirement for lighting 
and marking on agricultural equipment may reduce costs and increase 
efficiency for manufacturers selling agricultural equipment in multiple 
States.
    As discussed in greater detail in Section VI below, ASABE's 
development of voluntary standards has begun to standardize the 
requirements for agricultural equipment. Some States have adopted 
versions of ASABE Standard 279 as their requirement for lighting and 
marking on agricultural equipment.
    MAP-21 contains a non-discretionary mandate requiring NHTSA to 
establish a Federal rule for lighting and marking on agricultural 
equipment that is equivalent to the ASABE lighting and marking 
standard. NHTSA is issuing this rule in response to that mandate.

[[Page 40529]]

This creates a federal, nationwide standard for lighting and marking on 
agricultural equipment, which may reduce the burden on manufacturers 
manufacturing agricultural equipment for sale in multiple States.

III. Legislative Mandate Under MAP-21

    Section 31601 of MAP-21 contains the non-discretionary requirement 
that NHTSA establish minimum lighting and marking standards for 
agricultural equipment that may be operated on public roads. Section 
31601 requires NHTSA's standards to be equivalent to ASABE 279.14, or 
any successor standard. The term ``agricultural equipment,'' as it 
applies in this section of MAP-21, has the meaning given the term 
``agricultural field equipment'' in ASABE Standard 390.4, entitled 
``Definitions and Classifications of Agricultural Field Equipment,'' or 
any successor standard. Standard 390.4 defines ``agricultural field 
equipment'' as ``any agricultural tractor,\5\ self-propelled 
machine,\6\ implement \7\ or any combination thereof that is primarily 
designed for agricultural field operations.'' Additionally, ``public 
road'' is defined as ``any road or street under the jurisdiction of and 
maintained by a public authority and open to public travel.''
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    \5\ ASABE defines an agricultural tractor as ``A traction 
machine, intended primarily for off-road usage, designed and 
advertised primarily to supply power to agricultural implements. . . 
.'' ANSI/ASAE S390.4 JAN2005, 3.1.1-3.1.1.12.
    \6\ ASABE defines a self-propelled machine as ``a machine 
designed with an integral power unit to provide mobility, tractive 
effort, and process power for performing agricultural operations.'' 
Examples include beet harvesters, combines, cotton pickers, forage 
harvesters, cotton strippers, and forage balers. ANSI/ASAE S390.4 
JAN2005, 3.1.2-3.1.2.3.2.
    \7\ The ASABE definition further defines and lists agricultural 
implements as items that are pulled by or mounted on a tractor and 
used to perform agricultural field operations, such as planters or 
seed drills. ANSI/ASAE S390.4 JAN2005, 3.1.3-3.1.3.10.
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    Given the clear and direct language contained in section 31601, 
NHTSA does not have the discretion to choose to base its standards on 
any standard other than ASABE Standard 279.14 or an equivalent 
standard, or to set a standard that differs in any way from ASABE 
Standard 279.14 or an equivalent standard.
    NHTSA is required to promulgate the rule required by section 31601 
within two years of MAP-21's enactment. At least once every five years 
after promulgating the rule, NHTSA is required to review it and update 
it consistent with the most recent revision of ASABE Standard 279.
    Section 31601 also specifies that the promulgated rule may not 
prohibit the operation on public roads of agricultural equipment that 
is equipped with lighting and marking materials and equipment that 
comply with revisions of ASABE Standard 279 that are later than the one 
reflected in the rule. The promulgated rule also may not prohibit the 
operation on public roads of agricultural equipment that is equipped 
with lighting and marking materials and equipment in addition to those 
required by the rule.
    The promulgated rule may not require retrofitting of agricultural 
equipment manufactured before the effective date of the rule.
    Section 31601 also contains the requirement that NHTSA establish 
such standards at least one year after the date on which the rule 
establishing such standards is promulgated. Accordingly, the compliance 
date for this rule is June 22, 2017.
    Finally, section 31601(b)(1) requires that NHTSA consult with 
representatives from ASABE, appropriate Federal agencies, and with 
other appropriate persons prior to promulgating this rule. NHTSA met 
with representatives from ASABE, the Association of Equipment 
Manufacturers, and AGCO in April 2013 to consult with them regarding 
this rulemaking. We have also reached out to other agricultural 
equipment manufacturers. Additionally, NHTSA has identified the 
following appropriate Federal agencies and consulted with them 
regarding this rulemaking: the Federal Motor Carrier Safety 
Administration, the Occupational Safety and Health Administration, and 
the United States Department of Agriculture.

IV. Notice and Comment Are Unnecessary

    Generally, agencies may promulgate final rules only after issuing a 
notice of proposed rulemaking and providing an opportunity for public 
comment under procedures required by the Administrative Procedure Act 
(APA), as provided in 5 U.S.C. 553(b) and (c). However, 5 U.S.C. 
553(b)(3)(B) provides an exception to these requirements when notice 
and public comment procedures are ``impracticable, unnecessary, or 
contrary to the public interest.''
    NHTSA finds that notice and comment is unnecessary prior to 
adoption of this final rule because Congress statutorily mandated that 
NHTSA adopt specific existing lighting and agricultural marking 
standards. By incorporating these standards into federal regulation, 
NHTSA is performing a non-discretionary act.
    MAP-21 expressly requires NHTSA to establish lighting and marking 
standards for agricultural equipment that are equivalent to ASABE 
Standard 279.14, or any successor standard. NHTSA is not aware of any 
other lighting and marking standard for agricultural equipment that is 
equivalent to ASABE Standard 279.14 or any successor standard. Because 
NHTSA's statutory authority is limited to either incorporating ASABE 
Standard 279.14, or an equivalent standard, NHTSA is unable to amend 
the rule to address any comments it may receive during a comment 
period. For this reason, a notice and comment period is unnecessary for 
this rulemaking.
    Therefore, NHTSA may adopt this rule without issuing a notice of 
proposed rulemaking and receiving public comment, in accordance with 
the APA. For these same reasons, the rule will be effective on June 22, 
2016.

V. ASABE Standards Development

    Since its inception in 1907, ASABE \8\ has been an educational and 
scientific organization in the areas of agricultural, food and 
biological systems. Over the years, membership has grown to over 8,000 
members in over 100 countries. Its involvement in the industry has 
evolved to include the creation and development of its own voluntary 
standards that have become widely accepted. Many States use ASABE 
standards as the basis for their own regulations. ASABE has developed a 
comprehensive standards development process that gives its Standards 
Committee members as well as the general membership population ample 
involvement and input in the journey from proposal to final adopted 
standard.
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    \8\ ASABE was founded as the American Society of Agricultural 
Engineers. The society changed its name to the American Society of 
Agricultural and Biological Engineers in 2005 to reflect its 
representation of biological engineers. ASABE: Engineering a 
Sustainable Tomorrow, available at http://www.asabe.org/media/67573/timeline_reverse.pdf (last accessed May 31, 2016).
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    ASABE's standard creation is a 12 step process from start to finish 
that is supervised by ASABE's Standards Development and Oversight 
Committees.\9\ After making it through the proposal phase, a draft 
standard is created that is voted on by all members of the Standards 
Development Committee. In order for it to be approved, at least 50% of 
the total Standards Development Committee must vote and it must receive 
75% of those votes in favor. Upon receiving

[[Page 40530]]

approval from the Standards Development Committee, it is sent to the 
Oversight Committee, which reviews both the standard and the voting 
results of the Standards Committee. After receiving approval from the 
Oversight Committee the standard is approved and published.\10\
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    \9\ ASABE Staff. (n.d.). Standards. In Standards Development 
Tools--Standardization Procedures, available at http://www.asabe.org/standards.aspx (last accessed May 31, 2016).
    \10\ ASABE Staff. (n.d.). Standards. In Standards Development 
Tools-Flow chart of the ASABE Standards Process, available 
at http://www.asabe.org/standards.aspx (last accessed May 16, 2016).
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VI. Summaries of and Availability of ASABE Standards 390.4; 
``Definitions and Classifications of Agricultural Field Equipment'' and 
279.14; ``Lighting and Marking of Agricultural Equipment on Highways''

    ASABE initially developed Standard 279, ``Lighting and Marking of 
Agricultural Equipment on Highways,'' in 1954. Since then, the standard 
has been modified and revised numerous times. ASABE continues to update 
it. It contains voluntary standards specified for lighting and marking 
for all types of agricultural field equipment (as defined in ASABE 
Standard 390) that may be operated on public highways and roads. ASABE 
defines ``agricultural field equipment'' as ``any agricultural tractor, 
self-propelled machine, implement or any combination thereof that is 
primarily designed for agricultural field operations.'' Section 31601 
of MAP-21 defines ``agricultural equipment,'' for purposes of this 
rulemaking, to be the same as ASABE's definition for ``agricultural 
field equipment.''
    ASABE Standard 279.14 and the definition of ``agricultural field 
equipment'' at 390.4 are the versions of the standards that are 
expressly identified in MAP-21. MAP-21 states that NHTSA may establish 
a rule that is equivalent to these or any successor standards. MAP-21 
additionally states that NHTSA may not prohibit the operation on public 
roads of agricultural equipment that is equipped with lighting and 
marking in accordance with later versions of the ASABE standard than 
the one incorporated at promulgation.
    ASABE has updated both Standard 279, which is currently on version 
279.18, and the definition section, which is currently on version 
390.5, since MAP-21 became effective. Based on our review, NHTSA does 
not believe that ASABE's updates to these standards are significant for 
purposes of this rulemaking.
    ASABE Standard 390.4 defines agricultural field equipment as 
``Agricultural tractors, self-propelled machines, implements, and 
combinations thereof designed primarily for agricultural field 
operations.''
    At the present time, many States use various versions of the 
standard. States do not always incorporate the latest version of 
Standard 279 or update their standards to reflect the latest version. 
This has created a landscape with a variety of slightly differing 
standards by State. Adopting ASABE Standard 279.14, as mandated by 
Congress, may help standardize lighting and marking requirements for 
agricultural field equipment by establishing one federal requirement.
    The lighting and marking \11\ parameters of ASABE Standard 279.14 
are as follows:
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    \11\ Photometry testing, details, and limits are not reproduced 
here. To review these requirements, please see ASABE Standard 
279.14, available in the DOT reading room.

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           Category                           Requirements
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Tractors and Self-Propelled    Two head lamps, two red tail lamps and at
 Equipment.                     least two flashing amber warning lights
                                must be mounted at the same height and
                                spaced laterally as wide as possible.
                               At least two flashing amber warning
                                lights visible from both front and rear
                                must be used when the machine is at
                                least 3.7 m wide.
                               Turn signals must be provided.
                               For machines designed to exceed 40 km/h,
                                at least two red rear facing stop lamps
                                must be mounted that illuminate when
                                operator has activated the brake
                                control. If the machine is less than
                                1200 mm wide, only one stop lamp may be
                                used.
                               Machines that travel at less than 40 km/h
                                may be equipped with red rear facing
                                stop lamps. If equipped, then two red
                                tail lamps must be mounted at the same
                                height and spaced laterally as wide as
                                possible.
                               Two red retro reflective devices must be
                                visible from the rear.
                               Machines wider than 3.7 m shall have
                                conspicuity material visible from both
                                the front and rear.
                               There are requirements for rotating
                                beacons, if the agricultural equipment
                                is equipped with them.
                               One slow moving vehicle (SMV)
                                identification emblem must be installed
                                on the machine.
                               There are CAN bus terminal receptacle
                                requirements, if the agricultural
                                equipment is equipped with them.
Non Self-Propelled Equipment.  Equipment that obscures the SMV emblem of
                                the propelling machine shall be equipped
                                with an additional visible SMV emblem.
                               Equipment that extends more than 1.2 m to
                                the left or right of the propelling
                                machine shall have at least one strip of
                                yellow retro reflective material visible
                                from the front and at least one strip of
                                red retro reflective material visible
                                from the rear applied to indicate the
                                extreme projections of the equipment.
                               Equipment more than 3.7 m wide must have
                                at least two strips of yellow retro
                                reflective material visible to the front
                                and at least two strips of red retro
                                reflective material visible to the rear
                                of the machine.
                               Equipment extending more than 5 m to the
                                rear of the propelling vehicle shall be
                                equipped with at least one SMV emblem
                                and shall have yellow retro reflective
                                material visible from the left and right
                                sides.
                               Equipment that obscures the tail lamps,
                                flashing warning lamp, or stop lamp of
                                the propelling machine, shall be fitted
                                as appropriate with lighting to take the
                                place of the lamp(s) obscured.
                               Equipment that obscures the front or rear
                                flashing lamps of the propelling machine
                                shall have at least two amber flashing
                                lamps symmetrically mounted to the
                                machine, visible from the front or rear
                                of the machine.
                               Turn indicators shall be provided if
                                necessary due to obstruction of turn
                                indicators on the tow vehicle.
                               Stop lamps shall be provided for machines
                                designed to travel at speeds above 40 km/
                                h if necessary due to obstruction of
                                turn indicators on the tow vehicle.
                               All required lamps on non-self-propelled
                                equipment shall be connected to a seven
                                terminal plug conforming to SAE J560.
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[[Page 40531]]

    Both of these ASABE standards are reasonably available to the 
public. You may obtain a copy from ASABE through their Web site at 
http://www.asabe.org/publications/publications/standards.aspx and by 
mail at ASABE, 2950 Niles Road, St. Joseph, Michigan 49085-9659. 
Additionally, you may inspect a copy at the National Highway Traffic 
Safety Administration, 1200 New Jersey Avenue SE., Washington, DC 20590 
or at the National Archives and Records Administration.

VII. NHTSA Is Incorporating ASABE Standards by Reference

    To meet the statutory requirement to set standards, NHTSA is 
establishing a new standard at 49 CFR part 562. Section 31601 of MAP-21 
requires that the lighting and marking standards established under that 
section be equivalent to ASABE Standard 279.14, or any successor 
standard. In response, NHTSA is incorporating ASABE Standard 279.14 in 
part 562 in its entirety.
    NHTSA believes that it can provide a limited amount of compliance 
flexibility by incorporating version 279.14 into our standard, rather 
than the most current version of 279, because MAP-21 does not allow 
NHTSA to prevent operation on public roads of equipment meeting later 
versions of the standard. In other words, by incorporating version 
279.14, we are allowing compliance with the version identified by 
Congress or any later version. We believe this approach is consistent 
with Congress's intent, because it incorporates the version identified 
by Congress, while also providing some limited compliance flexibility.
    Section 31601 of MAP-21 gives the term ``agricultural equipment'' 
the same meaning as the term ``agricultural field equipment'' in ASABE 
Standard 390.4, or any successor standard. Accordingly, NHTSA is 
incorporating the ASABE Standard 390.4 definition of ``agricultural 
field equipment'' by reference. The ASABE definition for ``agricultural 
field equipment,'' which is the statutory definition for ``agricultural 
equipment'' under section 31601, includes tractors,\12\ self-propelled 
machines \13\ and implements.\14\ Part 562 will apply to new 
agricultural equipment that may be operated on a public road, 
specifically defined as ``any road or street under the jurisdiction of 
and maintained by a public authority and open to public travel.'' \15\ 
Personal equipment used primarily by homeowners, such as lawn tractors, 
and lawnmowers, is beyond the scope of this rulemaking.
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    \12\ ASABE defines an agricultural tractor as ``a traction 
machine, intended primarily for off-road usage, designed and 
advertised primarily to supply power to agricultural implements . . 
. .'' ANSI/ASAE S390.5 JAN2011, 3.1.1-3.1.1.12.
    \13\ ASABE defines a self-propelled machine as ``a machine 
designed with an integral power unit to provide mobility, tractive 
effort, and process power for performing agricultural operations.'' 
Examples include beet harvesters, combines, cotton pickers, forage 
harvesters, cotton strippers, and forage balers. ANSI/ASAE S390.5 
JAN2011, 3.1.2-3.1.2.3.2.
    \14\ The ASABE definition further defines and lists agricultural 
implements as items that are pulled by or mounted on a tractor and 
used to perform agricultural field operations, such as seed drills 
and planters. ANSI/ASAE S390.5 JAN2011, 3.1.3-3.1.3.10.
    \15\ This is more precise than the general description under the 
Safety Act that ``motor vehicles'' and ``motor vehicle equipment'' 
are those that are for use on ``public streets, roads, and 
highways.'' See 49 U.S.C. 30102(a)(6) and (7).
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    Section 31601 of MAP-21 also requires that NHTSA establish these 
lighting and marking standards for applicable agricultural equipment 
manufactured at least one year after the date on which the rule 
establishing such standards is promulgated. Accordingly, the date on 
which agricultural equipment subject to this rule must be compliant is 
June 22, 2017.

VIII. Costs and Benefits

    The majority of agricultural equipment that will be subject to the 
rule is produced by large, full-line equipment manufacturers, such as 
John Deere, Agco and Kubota. NHTSA believes that many of these large 
agricultural equipment manufacturers already build their products to 
comply with the latest version of ASABE Standard 279. As a result, 
NHTSA believes that the majority of pieces of agricultural equipment 
manufactured in the United States are already in compliance with ASABE 
Standard 279.14 or a successor standard.
    Those that are not already compliant with ASABE Standard 279 could 
easily be made so for a very low cost or at no cost. For example, the 
reflective conspicuity tape necessary for compliance can be purchased 
for as low as 75 cents per foot. More expensive components, such as 
head and tail lights, which are required for some pieces of equipment, 
can be sourced on the open market for less than $50.00 per set.
    NHTSA believes that manufacturers may benefit from this rulemaking 
because it seeks to federally standardize lighting and marking 
requirements for agricultural equipment that may be operated on public 
roads. We acknowledge that manufacturers may still need to equip their 
pieces of agricultural equipment with additional lighting and marking, 
as required by State laws. Equipping agricultural equipment subject to 
this rulemaking with additional lighting and marking than that required 
by part 562 is expressly allowed by section 31601 of MAP-21, and 
accordingly by NHTSA's rule.

IX. Rulemaking Analyses

A. Executive Orders 12866 and 13563 and DOT Regulatory Policies and 
Procedures

    Executive Order 12866, Executive Order 13563, and the Department of 
Transportation's regulatory policies require this agency to make 
determinations as to whether a regulatory action is ``significant'' and 
therefore subject to OMB review and the requirements of the 
aforementioned Executive Orders. Executive Order 12866 defines a 
``significant regulatory action'' as one that is likely to result in a 
rule that may:
    (1) Have an annual effect on the economy of $100 million or more or 
adversely affect in a material way the economy, a sector of the 
economy, productivity, competition, jobs, the environment, public 
health or safety, or State, local, or Tribal governments or 
communities;
    (2) Create a serious inconsistency or otherwise interfere with an 
action taken or planned by another agency;
    (3) Materially alter the budgetary impact of entitlements, grants, 
user fees, or loan programs or the rights and obligations of recipients 
thereof; or
    (4) Raise novel legal or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the Executive Order.
    We have considered the potential impact of this rulemaking under 
Executive Order 12866, Executive Order 13563, and the Department of 
Transportation's regulatory policies and procedures. This action was 
not reviewed by the Office of Management and Budget under E.O. 12866 
and E.O. 13563. The agency has considered the impact of this action 
under the Department of Transportation's regulatory policies and 
procedures (44 FR 11034; February 26, 1979) and has determined that it 
is not ``significant'' under them.
    This rule creates a standard based on a Congressional mandate for 
agricultural

[[Page 40532]]

equipment. It does not impose any additional requirements. The agency 
concludes that the impacts of the changes are not significant and that 
a preparation of a full regulatory evaluation is not required.

B. Regulatory Flexibility Act

    Pursuant to the Regulatory Flexibility Act (5 U.S.C. 601 et seq., 
as amended by the Small Business Regulatory Enforcement Fairness Act 
(SBREFA) of 1996), whenever an agency is required to publish a notice 
of proposed rulemaking or final rule, it must prepare and make 
available for public comment a regulatory flexibility analysis that 
describes the effect of the rule on small entities (i.e., small 
businesses, small organizations, and small governmental jurisdictions) 
unless the agency certifies that the rule will not have a significant 
economic impact on a substantial number of small entities. No 
regulatory flexibility analysis is required if the head of an agency 
certifies the proposal or rulemaking will not have a significant 
economic impact on a substantial number of small entities. SBREFA 
amended the Regulatory Flexibility Act to require Federal agencies to 
provide a statement of the factual basis for certifying that a proposal 
or rulemaking effort will not have a significant economic impact on a 
substantial number of small entities.
    NHTSA has considered the effects of this rule under the Regulatory 
Flexibility Act. This rule establishes lighting and marking standards 
for agricultural equipment that may be operated on public roads, by 
adopting ASABE Standard 279.14, pursuant to section 31601 of MAP-21. 
NHTSA believes that a large number of agricultural equipment 
manufacturers are already in compliance with the requirements due to 
the existing ASABE industry standard and State regulations. 
Furthermore, those that are not already compliant with the requirements 
could easily be made so for a very low cost or at no cost. For example, 
the reflective conspicuity tape necessary for compliance can be 
purchased for as low as 75 cents per foot. Slightly more expensive 
components such as head and tail lights, which are required for some 
pieces of equipment, can be sourced on the open market for less than 
$50.00 per set.
    Because the materials needed to comply with ASABE Standard 279 are 
inexpensive and the majority of the market is already in compliance, 
the cost of this rule is expected to be minimal and it should not 
adversely affect small agricultural equipment manufacturers in a 
material way. Accordingly, NHTSA certifies that this FR will not have a 
significant economic impact on a substantial number of small entities.

C. Executive Order 13132 (Federalism)

    NHTSA has examined this FR pursuant to Executive Order 13132 and 
concluded that the rulemaking will not have sufficient federalism 
implications to warrant consultation with State and local officials, 
nor the preparation of a federalism summary impact statement. The rule 
will not have ``substantial direct effects on the States, on the 
relationship between the national government and the States, or on the 
distribution of power and responsibilities among the various levels of 
government.''
    Section 31601 of MAP-21 does not have an express savings or 
preemption provision; therefore general principles of preemption apply 
to the regulation. Principles of preemption provide that State 
standards are preempted to the extent that they conflict with Federal 
regulations, and they are preempted if the State regulations frustrate 
the purpose of the Federal regulation.
    NHTSA believes that most State lighting and marking requirements 
for agricultural equipment incorporate or are based on a version of 
ASABE Standard 279. This is the standard that NHTSA is adopting in this 
rulemaking. Therefore, we do not expect that the regulation will 
significantly differ from existing lighting requirements.
    Under general principles of preemption, if it would not be possible 
to comply with the requirements of both the federal requirements and a 
State standard, the federal requirements would prevail. We believe that 
agricultural equipment operators and manufacturers will be able to 
comply with both State and federal standards in instances in which they 
differ. Moreover, as required by section 31601(d)(3) of MAP-21, this 
regulation does not prohibit the operation on public roads of 
agricultural equipment that is equipped with materials or equipment 
that are in addition to the minimum materials and equipment specified 
in this rule. ASABE Standard 279.14 provides a range of places on 
agricultural equipment for mounting lighting and marking materials and 
equipment in compliance with that standard. As a result, individuals 
may mount lighting and marking materials and equipment in addition to 
that required by this rule in order to comply with any differing State 
standard. For these reasons, the rule will not have ``substantial 
direct effects on the States, on the relationship between the national 
government and the States, or on the distribution of power and 
responsibilities among the various levels of government.''

D. Executive Order 12988 (Civil Justice Reform)

    When promulgating regulations, agencies are required by Executive 
Order 12988 to make every reasonable effort to ensure that the 
regulation, as appropriate: (1) Specifies in clear language the 
preemptive effect; (2) specifies in clear language the effect on 
existing Federal law or regulation, including all provisions repealed, 
circumscribed, displaced, impaired, or modified; (3) provides a clear 
legal standard for affected conduct rather than a general standard, 
while promoting simplification and burden reduction; (4) specifies in 
clear language the retroactive effect; (5) specifies whether 
administrative proceedings are to be required before parties may file 
suit in court; (6) explicitly or implicitly defines key terms; and (7) 
addresses other important issues affecting clarity and general 
draftsmanship of regulations.
    Pursuant to this Order, NHTSA notes as follows. The fact that this 
rulemaking will not have a preemptive effect is discussed above in 
connection with Executive Order 13132. There is no requirement that 
individuals submit a petition for reconsideration or pursue other 
administrative proceeding before they may file suit in court.

E. Executive Order 13609 (Promoting International Regulatory 
Cooperation)

    The policy statement in section 1 of Executive Order 13609 
provides, in part:
    The regulatory approaches taken by foreign governments may 
differ from those taken by U.S. regulatory agencies to address 
similar issues. In some cases, the differences between the 
regulatory approaches of U.S. agencies and those of their foreign 
counterparts might not be necessary and might impair the ability of 
American businesses to export and compete internationally. In 
meeting shared challenges involving health, safety, labor, security, 
environmental, and other issues, international regulatory 
cooperation can identify approaches that are at least as protective 
as those that are or would be adopted in the absence of such 
cooperation. International regulatory cooperation can also reduce, 
eliminate, or prevent unnecessary differences in regulatory 
requirements.

NHTSA reiterates that its discretion is very limited under section 
31601 of MAP-21. NHTSA is specifically required to adopt a standard 
equivalent to ASABE Standard 279.14 or a successor standard.

[[Page 40533]]

F. National Technology Transfer and Advancement Act

    Under the National Technology Transfer and Advancement Act of 1995 
(NTTAA) (Pub. L. 104-113), ``all Federal agencies and departments shall 
use technical standards that are developed or adopted by voluntary 
consensus standards bodies, using such technical standards as a means 
to carry out policy objectives or activities determined by the agencies 
and departments.'' Voluntary consensus standards are technical 
standards (e.g., materials specifications, test methods, sampling 
procedures, and business practices) that are developed or adopted by 
voluntary consensus standards bodies, such as SAE International (SAE).
    Per section 31601 of MAP-21, NHTSA is incorporating ASABE Standard 
279.14, in its entirety. ASABE is a voluntary consensus standards body, 
as described in Section V.

G. Unfunded Mandates Reform Act

    The Unfunded Mandates Reform Act of 1995 requires agencies to 
prepare a written assessment of the costs, benefits and other effects 
of proposed or final rules that include a Federal mandate likely to 
result in the expenditure by State, local or tribal governments, in the 
aggregate, or by the private sector, of more than $100 million annually 
(adjusted for inflation with base year of 1995). In 2010 dollars, this 
threshold is $136 million.\16\ This rule is not expected to result in 
the expenditure by State, local, or tribal governments, in the 
aggregate, of more than $136 million annually.
---------------------------------------------------------------------------

    \16\ Adjusting this amount by the implicit gross domestic 
product price deflator for the year 2010 results in $136 million 
(110.644/81.533 = 1.36).1
---------------------------------------------------------------------------

H. National Environmental Policy Act

    NHTSA has analyzed this rulemaking action for the purposes of the 
National Environmental Policy Act. The agency has determined that 
implementation of this action will not have any significant adverse 
impact on the quality of the human environment.

I. Paperwork Reduction Act

    Under the Paperwork Reduction Act of 1995 (PRA) (44 U.S.C. 3501, 
et. seq.), Federal agencies must obtain approval from the Office of 
Management and Budget (OMB) for each collection of information they 
conduct, sponsor, or require through regulations. This rulemaking does 
not establish any new information collection requirements.

J. Plain Language

    Executive Order 12866 requires each agency to write all rules in 
plain language. Application of the principles of plain language 
includes consideration of the following questions:
     Have we organized the material to suit the public's needs?
     Are the requirements in the rule clearly stated?
     Does the rule contain technical language or jargon that 
isn't clear?
     Would a different format (grouping and order of sections, 
use of headings, paragraphing) make the rule easier to understand?
     Would more (but shorter) sections be better?
     Could we improve clarity by adding tables, lists, or 
diagrams?
     What else could we do to make the rule easier to 
understand?
    NHTSA considered and applied these plain language principles in the 
drafting of this FR.

K. Regulation Identifier Number (RIN)

    The Department of Transportation assigns a regulation identifier 
number (RIN) 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. You may 
use the RIN contained in the heading at the beginning of this document 
to find this action in the Unified Agenda.

Regulatory Text

List of Subjects in 49 CFR Part 562

    Agricultural equipment, Highway safety, Incorporation by reference.


0
In consideration of the foregoing, NHTSA amends 49 CFR Chapter IV, 
Subchapter B by adding part 562 as follows:

PART 562--LIGHTING AND MARKING OF AGRICULTURAL EQUIPMENT

Sec.
562.1 Scope and purpose.
562.3 Definitions.
562.5 Applicability.
562.7 Lighting and marking requirements for new agricultural 
equipment.
562.9 Compliance not affected by addition of certain materials and 
equipment.
562.11 Incorporation by reference.

    Authority: Sec. 31601, Pub. L. 112-141, 126 Stat. 405; 49 U.S.C. 
30111 note; delegation of authority at 49 CFR 1.95.


Sec.  562.1  Scope and purpose.

    This part establishes minimum lighting and marking standards for 
new agricultural equipment as required by the Moving Ahead for Progress 
in the 21st Century Act (Sec. 31601, Pub. L. 112-141).


Sec.  562.3  Definitions.

    Agricultural equipment has the meaning given the term 
``agricultural field equipment'' in the ANSI/ASAE 390.4 JAN2005, 
``Definitions and Classifications of Agricultural Field Equipment'' 
(incorporated by reference, see Sec.  562.11).
    Public road means any road or street under the jurisdiction of and 
maintained by a public authority and open to public travel.


Sec.  562.5  Applicability.

    This standard applies to new agricultural equipment that may be 
operated on a public road.


Sec.  562.7  Lighting and marking requirements for new agricultural 
equipment.

    New agricultural equipment that may be operated on a public road 
must meet the lighting and marking standards set forth in ANSI/ASAE 
279.14 JUL2008, ``Lighting and Marking of Agricultural Equipment on 
Highways'' (incorporated by reference, see Sec.  562.11).


Sec.  562.9  Compliance not affected by addition of certain materials 
and equipment.

    (a) Successor standards. Equipping new agricultural equipment that 
may be operated on a public road with lighting and marking materials 
and equipment that comply with a revision of ANSI/ASAE Standard 279 
adopted after the version cited in Sec.  562.7 does not affect 
compliance with the requirements of this part.
    (b) Additional materials and equipment. Equipping new agricultural 
equipment that may be operated on a public road with lighting and 
marking materials and equipment that are in addition to the minimum 
requirements specified in Sec.  562.7 does not affect compliance with 
the requirements of this part.


Sec.  562.11  Incorporation by reference.

    Certain material is incorporated by reference into this part with 
the approval of the Director of the Federal Register under 5 U.S.C. 
552(a) and 1 CFR part 51. You may inspect approved material at the 
National Highway Traffic Safety Administration, 1200 New Jersey Avenue 
SE., Washington, DC 20590 or at the National Archives and Records 
Administration. For information on the availability of this material at 
NARA, call 202[hyphen]741[hyphen]6030, or go to: http://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.html.
    (a) American Society of Agricultural and Biological Engineers 
(ASABE) 2950

[[Page 40534]]

Niles Road, St. Joseph, Michigan 49085-9659, (269) 429-0300. http://www.asabe.org/publications/publications/standards.aspx.
    (1) ANSI/ASABE 279.14 JUL2008, ``Lighting and Marking of 
Agricultural Equipment on Highways,'' approved August 2008, into Sec.  
562.7.
    (2) ANSI/ASAE 390.4 JAN2005, ``Definitions and Classifications of 
Agricultural Field Equipment,'' approved February 2005, into Sec.  
562.3.
    (b) [Reserved].

    Issued on June 14, 2016, in Washington, DC, under authority 
delegated in 49 CFR 1.95 and 501.5.
Mark R. Rosekind,
Administrator.
[FR Doc. 2016-14571 Filed 6-21-16; 8:45 am]
 BILLING CODE 4910-59-P