[Federal Register Volume 84, Number 191 (Wednesday, October 2, 2019)]
[Proposed Rules]
[Pages 52432-52438]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-20905]


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DEPARTMENT OF TRANSPORTATION

Federal Motor Carrier Safety Administration

49 CFR Part 385

[Docket No. FMCSA-2019-0068]
RIN 2126-AC28


Incorporation by Reference; North American Standard Out-of-
Service Criteria; Hazardous Materials Safety Permits

AGENCY: Federal Motor Carrier Safety Administration (FMCSA), DOT.

ACTION: Notice of proposed rulemaking.

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SUMMARY: FMCSA proposes to amend its Hazardous Materials Safety Permits 
regulations to incorporate by reference the updated Commercial Vehicle 
Safety Alliance (CVSA) handbook. The Out-of-Service Criteria provide 
enforcement personnel nationwide, including FMCSA's State partners, 
with uniform enforcement tolerances for roadside inspections. 
Currently, the regulations reference the April 1, 2018, edition of the 
handbook. Through this document, FMCSA proposes to incorporate by 
reference the April 1, 2019, edition.

DATES: Comments on this document must be received on or before November 
1, 2019.

ADDRESSES: You may submit comments identified by Docket Number FMCSA-
2019-0068 using any of the following methods:
     Federal eRulemaking Portal: http://www.regulations.gov. 
Follow the online instructions for submitting comments.
     Mail: Docket Management Facility, U.S. Department of 
Transportation, 1200 New Jersey Avenue SE, West Building, Ground Floor, 
Room W12-140, Washington, DC 20590-0001.
     Hand Delivery or Courier: West Building, Ground Floor, 
Room W12-140, 1200 New Jersey Avenue SE, Washington, DC, between 9 a.m. 
and 5 p.m., Monday through Friday, except Federal holidays.
     Fax: 202-493-2251.
    To avoid duplication, please use only one of these four methods. 
See the ``Public Participation and Request for Comments'' portion of 
the SUPPLEMENTARY INFORMATION section for instructions on submitting 
comments, including collection of information comments for the Office 
of Information and Regulatory Affairs, OMB.

FOR FURTHER INFORMATION CONTACT: Mr. Michael Huntley, Chief, Vehicle 
and Roadside Operations Division, Federal Motor Carrier Safety 
Administration, 1200 New Jersey Avenue SE, Washington, DC 20590-0001 by 
telephone at (202) 366-9209 or by email at [email protected]. If 
you have questions on viewing or submitting material to the docket, 
contact Docket Services, telephone (202) 366-9826.

SUPPLEMENTARY INFORMATION: This notice of proposed rulemaking (NPRM) is 
organized as follows:

I. Public Participation and Request for Comments
    A. Submitting Comments
    B. Viewing Comments and Documents
    C. Privacy Act
    D. Advance Notice of Proposed Rulemaking Not Required
II. Executive Summary
III. Legal Basis for the Rulemaking
IV. Background
V. Discussion of Proposed Rulemaking
VI. International Impacts
VII. Section-by-Section Analysis
VIII. Regulatory Analyses
    A. E.O. 12866 (Regulatory Planning and Review), E.O. 13563 
(Improving Regulation and Regulatory Review), and DOT Regulatory 
Policies and Procedures
    B. E.O. 13771 Reducing Regulation and Controlling Costs
    C. Regulatory Flexibility Act (Small Entities)
    D. Assistance for Small Entities
    E. Unfunded Mandates Reform Act of 1995
    F. Paperwork Reduction Act
    G. E.O. 13132 (Federalism)
    H. E.O. 12988 (Civil Justice Reform)
    I. E.O. 13045 (Protection of Children)
    J. E.O. 12630 (Taking of Private Property)
    K. Privacy
    L. E.O. 12372 (Intergovernmental Review)

[[Page 52433]]

    M. E.O. 13211 (Energy Supply, Distribution, or Use)
    N. E.O. 13175 (Indian Tribal Governments)
    O. National Technology Transfer and Advancement Act (Technical 
Standards)
    P. Environment (National Environmental Policy Act)

I. Public Participation and Request for Comments

A. Submitting Comments

    If you submit a comment, please include the docket number for this 
NPRM (Docket No. FMCSA-2019-0068), indicate the specific section of 
this document to which each comment applies and provide a reason for 
each suggestion or recommendation. You may submit your comments and 
material online or by fax, mail, or hand delivery, but please use only 
one of these means. FMCSA recommends that you include your name and a 
mailing address, an email address, or a phone number in the body of 
your document so that FMCSA can contact you if there are questions 
regarding your submission.
    To submit your comment online, go to http://www.regulations.gov, 
put the docket number, FMCSA-2019-0068, in the keyword box, and click 
``Search.'' When the new screen appears, click on the ``Comment Now!'' 
button and type your comment into the text box on the following screen. 
Choose whether you are submitting your comment as an individual or on 
behalf of a third party and then submit.
    If you submit your comments by mail or hand delivery, submit them 
in an unbound format, no larger than 8\1/2\ by 11 inches, suitable for 
copying and electronic filing. If you submit comments by mail and would 
like to know that they reached the facility, please enclose a stamped, 
self-addressed postcard or envelope.
    FMCSA will consider all comments and material received during the 
comment period and may change this proposed rule based on your 
comments. FMCSA may issue a final rule at any time after the close of 
the comment period.
Confidential Business Information
    Confidential Business Information (CBI) is commercial or financial 
information that is both customarily and actually treated as private by 
its owner. Under the Freedom of Information Act (FOIA) (5 U.S.C. 552), 
CBI is exempt from public disclosure. If your comments responsive to 
this NPRM contain commercial or financial information that is 
customarily treated as private, that you actually treat as private, and 
that is relevant or responsive to this NPRM, it is important that you 
clearly designate the submitted comments as CBI. Please mark each page 
of your submission that constitutes CBI as ``PROPIN'' to indicate it 
contains proprietary information. FMCSA will treat such marked 
submissions as confidential under the FOIA, and they will not be placed 
in the public docket of this NPRM. Submissions containing CBI should be 
sent to Mr. Brian Dahlin, Chief, Regulatory Analysis Division, Federal 
Motor Carrier Safety Administration, 1200 New Jersey Avenue SE, 
Washington, DC 20590. Any comments FMCSA receives which are not 
specifically designated as CBI will be placed in the public docket for 
this rulemaking.

B. Viewing Comments and Documents

    To view comments, as well as any documents mentioned in this 
preamble as being available in the docket, go to http://www.regulations.gov. Insert the docket number, FMCSA-2019-0068, in the 
keyword box, and click ``Search.'' Next, click the ``Open Docket 
Folder'' button and choose the document to review. If you do not have 
access to the internet, you may view the docket online by visiting the 
Docket Management Facility in Room W12-140 on the ground floor of the 
DOT West Building, 1200 New Jersey Avenue SE, Washington, DC 20590, 
between 9 a.m. and 5 p.m., e.t., Monday through Friday, except Federal 
holidays.

C. Privacy Act

    In accordance with 5 U.S.C. 553(c), DOT solicits comments from the 
public to better inform its rulemaking process. DOT posts these 
comments, without edit, including any personal information the 
commenter provides, to www.regulations.gov, as described in the system 
of records notice (DOT/ALL-14 FDMS), which can be reviewed at 
www.dot.gov/privacy.

D. Advance Notice of Proposed Rulemaking Not Required

    Under 49 U.S.C. 31136(g), FMCSA is required to publish an advance 
notice of proposed rulemaking (ANPRM) if a proposed rule is likely to 
lead to the promulgation of a major rule, unless the Agency either 
develops the proposed rule through a negotiated rulemaking process or 
finds good cause that an ANPRM is impracticable, unnecessary, or 
contrary to the public interest. To be a major rule, a rule must result 
in or be likely to result in: (1) ``an annual effect on the economy of 
$100,000,000 or more;'' (2) ``a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions;'' or (3) ``significant adverse effects 
on competition, employment, investment, productivity, innovation, or on 
the ability of United States-based enterprises to compete with foreign-
based enterprises in domestic and export markets.'' 5 U.S.C. 804(2). 
This proposed rule does not meet the criteria of a major rule because 
it simply incorporates by reference updates to the 2018 CVSA handbook 
edition made on April 1, 2019, which, as described below, are largely 
editorial and provide clarity and guidance to inspectors and motor 
carriers transporting transuranics. Therefore, this proposed rule is 
not likely to lead to the promulgation of a major rule and does not 
require an ANPRM.

II. Executive Summary

    This rulemaking proposes to update an incorporation by reference 
found at 49 CFR 385.4 and referenced at 49 CFR 385.415(b). The 
provision at Sec.  385.4(b) currently references the April 1, 2018, 
edition of CVSA's handbook titled ``North American Standard Out-of-
Service Criteria and Level VI Inspection Procedures and Out-of-Service 
Criteria for Commercial Highway Vehicles Transporting Transuranics and 
Highway Route Controlled Quantities of Radioactive Materials as defined 
in 49 CFR part 173.403.'' The Out-of-Service Criteria, while not 
regulations, provide enforcement personnel nationwide, including 
FMCSA's State partners, with uniform enforcement tolerances for 
roadside inspections. In this rulemaking, FMCSA proposes to incorporate 
by reference the April 1, 2019 edition of the handbook.
    Thirteen (13) updates distinguish the April 1, 2019, handbook 
edition from the 2018 edition. The incorporation by reference of the 
2019 edition does not impose new regulatory requirements.

III. Legal Basis for the Rulemaking

    Congress has enacted several statutory provisions to ensure the 
safe transportation of hazardous materials in interstate commerce. 
Specifically, in provisions codified at 49 U.S.C. 5105(d), relating to 
inspections of motor vehicles carrying certain hazardous material, and 
49 U.S.C. 5109, relating to motor carrier safety permits, the Secretary 
of Transportation is required to promulgate regulations as part of a 
comprehensive safety program on hazardous materials safety permits. The 
FMCSA Administrator has been delegated authority under 49 CFR 
1.87(d)(2) to carry out the rulemaking functions vested in the 
Secretary of Transportation. Consistent with that authority, FMCSA has 
promulgated

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regulations to address the congressional mandate on hazardous 
materials. Those regulations on hazardous materials are the underlying 
provisions to which the material incorporated by reference discussed in 
this NPRM is applicable.

IV. Background

    In 1986, the U.S. Department of Energy (DOE) and CVSA entered into 
a cooperative agreement to develop a higher level of inspection 
procedures, out-of-service conditions and/or criteria, an inspection 
decal, and a training and certification program for inspectors to 
conduct inspections on shipments of transuranic waste and highway route 
controlled quantities of radioactive material. CVSA developed the North 
American Standard Level VI Inspection Program for Transuranic Waste and 
Highway Route Controlled Quantities of Radioactive Material. This 
inspection program for select radiological shipments includes 
inspection procedures, enhancements to the North American Standard 
Level I Inspection, radiological surveys, CVSA Level VI decal 
requirements, and the ``North American Standard Out-of-Service Criteria 
and Level VI Inspection Procedures and Out-of-Service Criteria for 
Commercial Highway Vehicles Transporting Transuranics and Highway Route 
Controlled Quantities of Radioactive Materials as defined in 49 CFR 
part 173.403.'' As of January 1, 2005, all vehicles and carriers 
transporting highway route controlled quantities of radioactive 
material are regulated by the U.S. Department of Transportation. All 
highway route controlled quantities of radioactive material must pass 
the North American Standard Level VI Inspection prior to the shipment 
being allowed to travel in the U.S. All highway route controlled 
quantities of radioactive material shipments entering the U.S. must 
also pass the North American Standard Level VI Inspection either at the 
shipment's point of origin or when the shipment enters the U.S.
    Section 385.415 of title 49, Code of Federal Regulations, 
prescribes operational requirements for motor carriers transporting 
hazardous materials for which a hazardous materials safety permit is 
required. Section 385.415(b)(1) requires that motor carriers ensure a 
pre-trip inspection is performed on each motor vehicle to be used to 
transport a highway route controlled quantity of a Class 7 
(radioactive) material, in accordance with the requirements of CVSA's 
handbook titled ``North American Standard Out-of-Service Criteria and 
Level VI Inspection Procedures and Out-of-Service Criteria for 
Commercial Highway Vehicles Transporting Transuranics and Highway Route 
Controlled Quantities of Radioactive Materials as defined in 49 CFR 
part 173.403.''
    According to 2012-2017 data from FMCSA's Motor Carrier Management 
Information System (MCMIS), approximately 3.5 million Level I--Level VI 
roadside inspections were performed annually. Nearly 97 percent of 
these were Level I,\1\ Level II,\2\ and Level III \3\ inspections. 
During the same period, an average of 842 Level VI inspections were 
performed annually, comprising only 0.024 percent of all roadside 
inspections. On average, out-of-service violations were cited in only 
10 Level VI inspections annually (1.19 percent), whereas on average, 
out-of-service violations were cited in 269,024 Level I inspections 
(25.3 percent), 266,122 Level II inspections (22.2 percent), and 66,489 
Level III inspections (6.2 percent) annually. Based on these 
statistics, CMVs transporting transuranics and highway route controlled 
quantities of radioactive materials are clearly among the best 
maintained and safest CMVs on the highways today, due largely to the 
enhanced oversight and inspection of these vehicles because of the 
sensitive nature of the cargo being transported.
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    \1\ Level I is a 37-step inspection procedure that involves 
examination of the motor carrier's and driver's credentials, record 
of duty status, the mechanical condition of the vehicle, and any 
hazardous materials/dangerous goods that may be present.
    \2\ Level II is a driver and walk-around vehicle inspection, 
involving the inspection of items that can be checked without 
physically getting under the vehicle.
    \3\ Level III is a driver-only inspection that includes 
examination of the driver's credentials and documents.
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V. Discussion of Proposed Rulemaking

    Section 385.4(b)(1), as amended on July 8, 2019, references the 
April 1, 2018, edition of the CVSA handbook. This rule proposes to 
amend Sec.  385.4(b)(1) by replacing the reference to the April 1, 
2018, edition date with a reference to the new edition date of April 1, 
2019.
    The changes made in the 2019 edition of the handbook are outlined 
below. It is necessary to update the materials incorporated by 
reference to ensure motor carriers and enforcement officials have 
convenient access to the correctly identified inspection criteria 
referenced in the rules. Amending Sec.  385.4(b), ensures that the 
publication is available for interested parties to view at the FMCSA's 
Washington, DC office and that the publication may be purchased from 
the CVSA's website address, mail address, and phone.

April 1, 2019, Changes

    The 2019 edition identifies (1) driver-related violations of the 
FMCSRs that are so severe as to warrant placing the CMV driver out of 
service, (2) vehicle equipment-related violations of the FMCSRs that 
are so severe as to warrant placing the CMV out of service, and (3) 
unsafe conditions in the transportation of hazardous materials. The 
purpose of the publication is to provide inspection criteria for 
Federal and State motor carrier safety enforcement personnel to promote 
uniform and consistent inspection procedures of CMVs operated in 
commerce.
    Thirteen changes to the 2019 edition of the CVSA handbook 
distinguish it from the April 1, 2018 edition. The first change amended 
Part I, Item 4(a) to clarify that a driver operating a CMV without 
complying with the requirements indicated on a Skill Performance 
Evaluation (SPE) Certificate shall be declared out of service. 
Currently, the Out-of-Service Criteria state that a driver will be 
placed out of service for ``No skill performance evaluation in 
possession, when required.'' The CVSA Driver-Traffic Enforcement 
Committee agreed that operating a CMV without complying with the 
requirements indicated on the SPE (e.g., the driver possesses an SPE 
requiring a prosthetic limb, but is not using the prosthetic limb while 
driving) is as serious as not having the SPE in possession when 
required. Part I, Item 4(a) was amended to read ``No skill performance 
evaluation in possession, when required, or when operating a commercial 
motor vehicle without complying with the requirements indicated on the 
skill performance evaluation.'' This clarification is not expected to 
have any effect on the number of out-of-service violations cited during 
Level VI inspections.
    The second change amended the Out-of-Service Criteria Part II 
Policy Statement to address a discrepancy between language in CVSA 
Operational Policy 5 and the Out-of-Service Criteria Part II Policy 
Statement regarding removing or replacing a CVSA decal. Operational 
Policy 5 states that any expired CVSA decal shall be removed before a 
new CVSA decal is affixed. However, prior to the amendment, the Policy 
Statement in Part II of the Out-of-Service Criteria stated that ``a 
current CVSA decal shall be affixed and no other CVSA decals shall be 
visible.'' As such, the language in the Out-of-Service Criteria allowed 
an existing decal to be covered up rather than removed, while

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the language in the Operation Policy does not. CVSA noted that covering 
up expired decals is problematic because colors can show on the corners 
and new decals layered on the vehicle can be easily removed. It was 
determined that removing old decals first is most appropriate, and the 
Policy Statement in Part II of the Out-of-Service Criteria was amended 
to reflect the same guidance that is in Operational Policy 5. This 
amendment will not have any effect on the number of out-of-service 
violations cited during Level VI inspections.
    The third change amended Part II, Item 1(g)(2) to clarify that a 
vehicle should be placed out of service if any rotor (disc) has a crack 
in length of more than 75 percent of the friction surface and passes 
completely through a structural support connecting the rotor friction 
surfaces. The CVSA Vehicle Committee received information from a 
Society of Engineers workgroup indicating that a collapse of the rotor 
is imminent if there is a crack through the vents, and the vehicle 
should be placed out of service. Part II, Item 1(g)(2) was amended to 
clarify that a vehicle should be placed out of service if any rotor 
(disc) has ``a crack in length of more than 75 percent of the friction 
surface and passes completely through the rotor to the center vent from 
either side, or completely through a solid rotor, or completely through 
a structural support connecting the rotor friction surfaces.'' A 
picture was added to clearly outline the condition of the rotor. FMCSA 
records indicate that no out-of-service violations have been issued 
regarding brake drums and rotors (discs) as a result of a Level VI 
inspection in the past 3 years, demonstrating that motor carriers 
transporting transuranics and highway route controlled quantities of 
radioactive materials ensure that this component is well maintained and 
in safe and proper operating condition at all times. The changes are 
intended to ensure clarity in the presentation of the out-of-service 
conditions and are not expected to affect the number of out-of-service 
violations cited during Level VI inspections.
    The fourth change amended the Cargo Securement section of the Out-
of-Service Criteria (Part II, Item 2) to add headings to subparagraphs 
(a)-(f), consistent with the other sections of the Out-of-Service 
Criteria. The new headings are intended to help with the uniformity of 
content, as well as to make it easier to distinguish between the 
different sections of the Out-of-Service Criteria. This amendment is 
editorial in nature and will not have any effect on the number of out-
of-service violations cited during Level VI inspections.
    The fifth change amended the Out-of-Service Criteria Tiedown Defect 
Table by adding language to address a new type of tiedown used in cargo 
securement applications. Doleco USA has developed a new cargo and 
equipment securement tiedown assembly comprised of synthetic chain 
links of Ultra High Molecular Weight Poly Ethylene (UHMWPE) 
Dyneema[supreg] webbing with specialized hooks and binders. The high-
performance webbing is as strong as steel chain link but weighs up to 
85 percent less. Due to the unique nature of its synthetic links, the 
manufacturer also provides product specific hooks/fittings for securing 
the tiedown ends and a specialized load tensioner for tightening. CVSA 
developed an Inspection Bulletin outlining the characteristics and use 
of the Doleco USA textile link system. The Out-of-Service Criteria 
Tiedown Defect Table was amended, consistent with the information 
provided in the CVSA Inspection Bulletin, to ensure that an inspector 
can adequately determine if the tiedown is defective once it is in use. 
Because of the sensitive nature of the cargo being transported, motor 
carriers transporting transuranics and highway route controlled 
quantities of radioactive materials are especially diligent regarding 
use of tiedowns that do not have any defects, as evidenced by the lack 
of any out-of-service violations cited for defective tiedowns during 
inspections conducted between 2012-2017. As such, this amendment is not 
expected to have any effect on the number of out-of-service violations 
cited during Level VI inspections.
    The sixth change amended Part II, Item 4(b)(3) to clarify that any 
broken bearing strap on a universal joint of a driveline/driveshaft 
would constitute the same imminent hazard as a missing, broken, or 
loose retainer bolt, and a vehicle with this condition should be placed 
out of service. Part II, Item 4(b)(3) was amended to read ``Any 
missing, broken or loose universal joint bearing cap bolt, bearing 
strap or retainer bolt,'' and a descriptive label was added to the 
current picture of a universal joint in the Out-of-Service Criteria to 
help identify and clarify a bearing strap. FMCSA records indicate that 
no out-of-service violations have been issued regarding universal 
joints as a result of a Level VI inspection in the past 3 years, 
demonstrating that motor carriers transporting transuranics and highway 
route controlled quantities of radioactive materials ensure that this 
component is well maintained and in safe and proper operating condition 
at all times. The changes are intended to ensure clarity in the 
presentation of the out-of-service conditions and are not expected to 
affect the number of out-of-service violations cited during Level VI 
inspections.
    The seventh change amended Part II of the Out-of-Service Criteria 
to add a new section regarding temporary driver seats. The CVSA Vehicle 
Committee approved the addition of a new out of service condition for 
vehicles using any temporary seating for the driver, as opposed to a 
permanent seat that is secured to the vehicle in a workmanlike manner. 
Temporary seating includes, but is not limited to, a milk crate, lawn 
chair, patio chair, folding chair, plastic step-stool, or a cooler. The 
Out-of-Service Criteria were amended to include a new item, Part II, 
Item 4. DRIVER'S SEAT, a. Temporary Seating, to read ``Any vehicle that 
has temporary seating for the driver.'' \4\ A note was also added to 
this section to provide the list of things that may constitute 
temporary seating. As noted above, CMVs transporting transuranics and 
highway route controlled quantities of radioactive materials are among 
the best maintained and safest CMVs on the highways today, due largely 
to the enhanced oversight and inspection of these vehicles because of 
the sensitive nature of the cargo being transported. FMCSA believes 
that it is highly unlikely that the CMVs transporting these sensitive 
commodities will be equipped with temporary seating for the driver, and 
as such, the Agency does not expect the addition of this item to the 
Out-of-Service Criteria to affect the number of out-of-service 
violations cited during Level VI inspections.
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    \4\ This addition results in the renumbering of all the Critical 
Vehicle Inspection Items in the Out-of-Service Criteria from 
Driveline/Driveshaft forward.
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    The eighth change amended the Exhaust Systems section of the Out-
of-Service Criteria (Part II, Item 5) to add headings to subparagraphs 
(a)-(d), consistent with the other sections of the Out-of-Service 
Criteria. The new headings are intended to help with the uniformity of 
content, as well as to make it easier to distinguish between the 
different sections of the Out-of-Service Criteria. This amendment is 
editorial in nature and will not have any effect on the number of out-
of-service violations cited during Level VI inspections.
    The ninth change amended Part II, Item 6 to include subsection (5) 
in the note that was already contained in the Out-of-Service Criteria. 
The CVSA Passenger Carrier Committee, in consultation with 
manufacturers,

[[Page 52436]]

determined that subsection (5) should not pertain to buses having 
monocoque-style frames. The note to Part II, Item 6 was amended to read 
``Items (1) and (2) apply to all buses, including those having unitized 
(monocoque) construction. Items (3), (4) and (5) apply only to buses 
having a body-on-chassis design, such as most school buses.'' As this 
change applies only to buses, it will not have any effect on the number 
of out-of-service violations cited during Level VI inspections, which 
are applicable to carriers transporting transuranics and highway route 
controlled quantities of radioactive materials.
    The tenth change amended Part II, Item 9 to add language to address 
non-manufactured holes in the drag link of the steering system. 
Following a recommendation from industry partners, the CVSA Vehicle 
Committee determined that when a drag link is sufficiently worn to 
cause a non-manufactured hole, the link could buckle and lead to the 
loss of steering control. Based on the above, if a vehicle is found to 
have a non-manufactured hole in a drag link, the vehicle should be 
placed out of service, and the Out-of-Service Criteria were amended to 
add a new subparagraph (3) to Part II, Item 9(h) to read ``When a drag 
link is so worn to cause a non-manufactured hole.'' FMCSA records 
indicate that no out-of-service violations have been issued regarding 
steering systems as a result of a Level VI inspection in the past 3 
years, demonstrating that motor carriers transporting transuranics and 
highway route controlled quantities of radioactive materials ensure 
that this component is well maintained and in safe and proper operating 
condition at all times. The changes are intended to ensure clarity in 
the presentation of the out-of-service conditions and are not expected 
to affect the number of out-of-service violations cited during Level VI 
inspections.
    The eleventh change amended the title of Part II, Item 15, 
applicable to buses, motorcoaches, passenger vans, or other passenger-
carrying vehicles, to clarify that the seating requirements in 
subparagraph (c) of that item apply to temporary and aisle seats only. 
As this change applies only to passenger-carrying vehicles, it will not 
have any effect on the number of out-of-service violations cited during 
Level VI inspections, which are applicable to carriers transporting 
transuranics and highway route controlled quantities of radioactive 
materials.
    The twelfth change amended Part III, Items (1)-(10) to make the 
formatting of this section consistent with the remainder of the Out-of-
Service Criteria, and to remove redundant language related to hazardous 
and dangerous materials inspection standards. This amendment is 
editorial in nature and will not have any effect on the number of out-
of-service violations cited during Level VI inspections.
    The thirteenth change amended the North American Standard Out-of-
Service Criteria and Level VI Inspection Procedures to add a note to 
Item 30, Trupact II Package Tiedown Assemblies. The CVSA Level VI 
Inspection Program Committee added a note to address empty packages 
that may be transported with loaded packages during a Level VI 
inspection, noting that an empty package (TRUPACT II/HALFPACT) shall be 
subject to the same tiedown requirements as those applicable to a 
loaded package when transported and inspected during a Level VI 
inspection. FMCSA records indicate that no out-of-service violations 
have been issued regarding securement of packages as a result of a 
Level VI inspection in the past 3 years, demonstrating that motor 
carriers transporting transuranics and highway route controlled 
quantities of radioactive materials ensure that packages are properly 
secured at all times. The changes are intended to ensure clarity in the 
presentation of the out-of-service conditions, and are not expected to 
affect the number of out-of-service violations cited during Level VI 
inspections.

VI. International Impacts

    The FMCSRs, and any exceptions to the FMCSRs, apply only within the 
United States (and, in some cases, United States territories). Motor 
carriers and drivers are subject to the laws and regulations of the 
countries in which they operate, unless an international agreement 
states otherwise. Drivers and carriers should be aware of the 
regulatory differences among nations.
    The CVSA is an organization representing Federal, State and 
Provincial motor carrier safety enforcement agencies in the United 
States, Canada and Mexico. The Out-of-Service Criteria provide uniform 
enforcement tolerances for roadside inspections conducted in all three 
countries.

VII. Section-by-Section Analysis

Section 385.4 Matter Incorporated by Reference

    Section 385.4(b), as amended on July 8, 2019, references the April 
1, 2018, edition of the CVSA handbook. This proposed rule would replace 
the reference to the April 1, 2018, edition date with a reference to 
the new edition date of April 1, 2019.

VIII. Regulatory Analyses

A. Executive Order (E.O.) 12866 (Regulatory Planning and Review), E.O. 
13563 (Improving Regulation and Regulatory Review), and DOT Regulatory 
Policies and Procedures

    FMCSA has determined that this action is not a significant 
regulatory action under section 3(f) of E.O. 12866, Regulatory Planning 
and Review, as supplemented by E.O. 13563 (76 FR 3821, January 21, 
2011). The Office of Management and Budget (OMB) did not, therefore, 
review this document.
    FMCSA also determined that the proposed rule does not warrant 
formal analysis of costs and benefits under DOT Policies and Procedures 
for Rulemaking [DOT Order 2100.6 dated December 20, 2018, section 
11(e)(1)]. The proposed rule, if finalized, would update an 
incorporation by reference from the April 1, 2018, edition to the April 
1, 2019, edition of CVSA's handbook titled ``North American Standard 
Out-of-Service Criteria and Level VI Inspection Procedures and Out-of-
Service Criteria for Commercial Highway Vehicles Transporting 
Transuranics and Highway Route Controlled Quantities of Radioactive 
Materials as defined in 49 CFR part 173.403.'' FMCSA reviewed its MCMIS 
data on roadside inspections performed from 2012 to 2017 and determined 
that the handbook updates would not have any effect on the number of 
out-of-service violations cited during Level VI inspections. Therefore, 
the impact of a final rule would be de minimis.

B. E.O. 13771 Reducing Regulation and Controlling Regulatory Costs

    E.O. 13771, ``Reducing Regulation and Controlling Regulatory 
Costs,'' does not apply to this action because it is not a significant 
regulatory action, as defined in section 3(f) of E.O. 12866.

C. Regulatory Flexibility Act (Small Entities)

    The Regulatory Flexibility Act of 1980 (RFA), Public Law 96-354, 94 
Stat. 864 (1980), as amended by the Small Business Regulatory 
Enforcement Fairness Act of 1996 (SBREFA) (5 U.S.C. 601 et seq.), 
requires Federal agencies to consider the effects of the regulatory 
action on small business and other small entities and to minimize any 
significant economic impact. The term ``small entities'' comprises 
small businesses and not-for-profit organizations that are 
independently owned and operated and are not

[[Page 52437]]

dominant in their fields, and governmental jurisdictions with 
populations of less than 50,000.\5\ In compliance with the RFA, FMCSA 
evaluated the effects of the proposed rule on small entities. The 
proposed rule incorporates by reference updates to the 2018 CVSA 
handbook edition made on April 1, 2019, which, as described above, are 
largely editorial and provide clarity and guidance to inspectors and 
motor carriers transporting transuranics. DOT policy requires an 
analysis of the impact of all regulations on small entities, and 
mandates that agencies strive to lessen any adverse effects on these 
entities. None of the updates from the 2018 edition imposes new 
requirements or makes substantive changes to the FMCSRs.
---------------------------------------------------------------------------

    \5\ 5 U.S.C. 601.
---------------------------------------------------------------------------

    When an Agency issues a rulemaking proposal, the RFA requires the 
Agency to ``prepare and make available an initial regulatory 
flexibility analysis'' that will describe the impact of the proposed 
rule on small entities (5 U.S.C 603(a)). Section 605 of the RFA allows 
an agency to certify a rule, instead of preparing an analysis, if the 
proposed rule is not expected to impact a substantial number of small 
entities. The proposed rule is largely editorial and provides guidance 
to inspectors and motor carriers transporting transuranics in 
interstate commerce. Accordingly, I hereby certify that if promulgated, 
this proposed rule will not have a significant economic impact on a 
substantial number of small entities. FMCSA invites comments from 
anyone who believes there will be a significant impact on small 
entities from this action.

D. Assistance for Small Entities

    In accordance with section 213(a) of the Small Business Regulatory 
Enforcement Fairness Act of 1996, FMCSA wants to assist small entities 
in understanding this rule so that they can better evaluate its 
effects. If the rule will affect your small business, organization, or 
governmental jurisdiction and you have questions concerning its 
provisions, please consult the FMCSA point of contact, Michael Huntley, 
listed in the For Further Information Contact section of this rule.

E. Unfunded Mandates Reform Act of 1995

    The Unfunded Mandates Reform Act of 1995 (2 U.S.C. 1531-1538) 
requires Federal agencies to assess the effects of their discretionary 
regulatory actions. The Act addresses actions that may result in the 
expenditure by a State, local, or tribal government, in the aggregate, 
or by the private sector, of $165 million (which is the value 
equivalent to $100,000,000 in 1995, adjusted for inflation to 2018 
levels) or more in any one year. This proposed rule will not result in 
such an expenditure.

F. Paperwork Reduction Act

    Under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.), 
Federal agencies must obtain approval from the OMB for each collection 
of information they conduct, sponsor, or require through regulations. 
FMCSA determined that no new information collection requirements are 
associated with this proposed rule.

G. E.O. 13132 (Federalism)

    A rule has implications for Federalism under Section 1(a) of 
Executive Order 13132 if it has ``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.''
    FMCSA analyzed this proposed rule and determined that it does not 
have implications for federalism.

H. E.O. 12988 (Civil Justice Reform)

    This proposed rule meets applicable standards in sections 3(a) and 
3(b)(2) of E.O. 12988, Civil Justice Reform, to minimize litigation, 
eliminate ambiguity, and reduce burden.

I. E.O. 13045 (Protection of Children)

    E.O. 13045, Protection of Children from Environmental Health Risks 
and Safety Risks (62 FR 19885, April 23, 1997), requires agencies 
issuing ``economically significant'' rules to include an evaluation of 
their environmental health and safety effects on children, if the 
agency has reason to believe that the rule may disproportionately 
affect children. The Agency determined this proposed rule is not 
economically significant. Therefore, no analysis of the impacts on 
children is required. In any event, the Agency does not anticipate that 
this regulatory action could pose an environmental or safety risk that 
could affect children disproportionately.

J. E.O. 12630 (Taking of Private Property)

    FMCSA reviewed this proposed rule in accordance with E.O. 12630, 
Governmental Actions and Interference with Constitutionally Protected 
Property Rights, and has determined it will not effect a taking of 
private property or otherwise have taking implications.

K. Privacy

    Section 522 of title I of division H of the Consolidated 
Appropriations Act, 2005, enacted December 8, 2004 (Pub. L. 108-447, 
118 Stat. 2809, 3268, 5 U.S.C. 552a note), requires the Agency to 
conduct a privacy impact assessment of a regulation that will affect 
the privacy of individuals. This proposed rule does not require the 
collection of personally identifiable information or affect the privacy 
of individuals.

L. E.O. 12372 (Intergovernmental Review)

    The regulations implementing E.O. 12372 regarding intergovernmental 
consultation on Federal programs and activities do not apply to this 
proposed rule.

M. E.O. 13211 (Energy Supply, Distribution, or Use)

    FMCSA has analyzed this proposed rule under E.O. 13211, Actions 
Concerning Regulations That Significantly Affect Energy Supply, 
Distribution, or Use. The Agency has determined that it is not a 
``significant energy action'' under that order because it is not a 
``significant regulatory action'' likely to have a significant adverse 
effect on the supply, distribution, or use of energy. Therefore, it 
does not require a Statement of Energy Effects.

N. E.O. 13175 (Indian Tribal Governments)

    This proposed rule does not have Tribal implications under E.O. 
13175, Consultation and Coordination with Indian Tribal Governments, 
because it does not have a substantial direct effect on one or more 
Indian Tribes, on the relationship between the Federal Government and 
Indian Tribes, or on the distribution of power and responsibilities 
between the Federal Government and Indian Tribes.

O. National Technology Transfer and Advancement Act (Technical 
Standards)

    The National Technology Transfer and Advancement Act (15 U.S.C. 272 
note) directs agencies to use voluntary consensus standards in their 
regulatory activities unless the agency provides Congress, through OMB, 
with an explanation of why using these standards would be inconsistent 
with applicable law or otherwise impractical. Voluntary consensus 
standards (e.g., specifications of materials, performance, design, or 
operation; test methods; sampling procedures; and related

[[Page 52438]]

management systems practices) are standards that are developed or 
adopted by voluntary consensus standards bodies. FMCSA does not intend 
to adopt its own technical standard, thus there is no need to submit a 
separate statement to OMB on this matter. The standard being 
incorporated in this proposed rule is discussed in detail in sections 
V, Discussion of Proposed Rulemaking, and VII, Section by Section 
Analysis, and is reasonably available at FMCSA and through the CVSA 
website.

P. Environment (National Environmental Policy Act)

    FMCSA analyzed this rule consistent with the National Environmental 
Policy Act of 1969 (42 U.S.C. 4321 et seq.) and determined this action 
is categorically excluded from further analysis and documentation in an 
environmental assessment or environmental impact statement under FMCSA 
Order 5610.1 (69 FR 9680, March 1, 2004), Appendix 2, paragraph (6)(b). 
This Categorical Exclusion (CE) covers minor revisions to regulations. 
The content in this proposed rule is covered by this CE, there are no 
extraordinary circumstances present, and the proposed action does not 
have any effect on the quality of the environment. The CE determination 
is available for inspection or copying in the Regulations.gov website 
listed under ADDRESSES.

List of Subjects in 49 CFR Part 385

    Administrative practice and procedure, Highway safety, 
Incorporation by reference, Mexico, Motor carriers, Motor vehicle 
safety, Reporting and recordkeeping requirements.

    In consideration of the foregoing, FMCSA proposes to amend 49 CFR 
chapter III, part 385, as set forth below:

PART 385--SAFETY FITNESS PROCEDURES

0
1. The authority citation for part 385 is revised to read as follows:

     Authority: 49 U.S.C. 113, 504, 521(b), 5105(d), 5109, 5113 
13901-13905, 13908, 31135, 31136, 31144, 31148, and 31502; Sec. 
113(a), Pub. L. 103-311, 108 Stat. 1673, 1676; Sec. 408, Pub. L. 
104-88, 109 Stat. 803, 958; Sec. 350 of Pub. L. 107-87, 115 Stat. 
833, 864; and 49 CFR 1.87.

0
2. Revise Sec.  385.4(b)(1) to read as follows:


Sec.  385.4  Matter incorporated by reference.

* * * * *
    (b) * * *
    (1) ``North American Standard Out-of-Service Criteria and Level VI 
Inspection Procedures and Out-of-Service Criteria for Commercial 
Highway Vehicles Transporting Transuranics and Highway Route Controlled 
Quantities of Radioactive Materials as defined in 49 CFR part 
173.403,'' April 1, 2019, incorporation by reference approved for Sec.  
385.415(b).
* * * * *

    Issued under authority delegated in 49 CFR 1.87 on:

    Dated: September 19, 2019.
Raymond P. Martinez,
Administrator.
[FR Doc. 2019-20905 Filed 10-1-19; 8:45 am]
 BILLING CODE 4910-EX-P