[Federal Register: August 12, 2003 (Volume 68, Number 155)]
[Rules and Regulations]
[Page 47860-47875]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr12au03-12]
=======================================================================
-----------------------------------------------------------------------
DEPARTMENT OF TRANSPORTATION
Federal Motor Carrier Safety Administration
49 CFR Parts 390 and 398
[Docket No. FMCSA-2000-7017]
RIN 2126-AA52
Safety Requirements for Operators of Small Passenger-Carrying
Commercial Motor Vehicles Used In Interstate Commerce
AGENCY: Federal Motor Carrier Safety Administration (FMCSA), DOT.
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: FMCSA amends the Federal Motor Carrier Safety Regulations
(FMCSRs) to require that motor carriers operating commercial motor
vehicles (CMVs), designed or used to transport between 9 and 15
passengers (including the driver) in interstate commerce, must comply
with the applicable safety regulations when they are directly
compensated for such services and the vehicle is operated beyond a 75
air mile radius (86.3 statute miles or 138.9 kilometers) from the
driver's normal work-reporting location. The agency has revised its
proposed distance threshold to focus on the distance that the driver
operates the vehicle, as opposed to the distance that the passengers
are transported. These motor carriers, drivers, and vehicles are now,
through this rule, subject to the same safety requirements as motor
coach operators, except for the commercial driver's license, and
controlled substances and alcohol testing regulations. This rule
implements section 212 of the Motor Carrier Safety Improvement Act of
1999 (MCSIA).
DATES: This final rule is effective on September 11, 2003. Compliance
Date. Affected motor carriers must be in compliance with this rule no
later than November 10, 2003.
ADDRESSES:
Assistance for Small Entities: The Small Business Regulatory
Enforcement Fairness Act of 1996 (Pub. L. 104-121) requires the FMCSA
to comply with small entity requests for information or advice about
compliance with statutes and regulations within FMCSA's jurisdiction.
Thus, if any small entity, organization, or governmental jurisdiction
has a question regarding this document, please contact an FMCSA
Division office in your State or an FMCSA Service Center for a given
geographic area. For phone numbers and addresses, go to http://www.fmcsa.dot.gov/about_fmcsa/who_we_are/offices/fieldoffs.htm
, or call 1-800-832-5660, or Fax
(202) 366-8842, FMCSA, Attn: Commercial Passenger Carrier Safety
Division (MC-PSB), Washington, DC 20590.
Docket: For access to the docket to read background documents or
comments received, go to http://dms.dot.gov at any time or to Room PL-
401 on the plaza level of the Nassif Building, 400 Seventh Street, SW.,
Washington, DC, between 9 am and 5 pm, Monday through Friday, except
Federal Holidays.
FOR FURTHER INFORMATION CONTACT: Mr. Larry W. Minor, (202) 366-4009,
Chief, Vehicle and Roadside Operations Division (MC-PSV); or Mr. Philip
J. Hanley, (202) 366-9131, Commercial Passenger Carrier Safety Division
(MC-PSB), Federal Motor Carrier Safety Administration, 400 Seventh
Street, SW., Washington, DC 20590. Office hours are from 7:45 a.m. to
4:15 p.m., e.t., Monday through Friday, except Federal holidays.
SUPPLEMENTARY INFORMATION:
Background
Congressional Mandate to Regulate Small Passenger-Carrying Commercial
Motor Vehicles (CMVs)
Section 212 of the Motor Carrier Safety Improvement Act of 1999
(MCSIA), (Pub. L. 106-159, 113 Stat. 1748, December 9, 1999), requires
that the FMCSA make its safety regulations applicable to: (1)
Commercial vans referred to as ``camionetas,'' and (2) those commercial
vans operating in interstate commerce outside of commercial zones that
have been determined to pose serious safety risks.
Prior to enactment of the MCSIA, section 4008(a)(2) of the
Transportation Equity Act for the 21st Century (TEA-21) Public Law 105-
178, 112 Stat. 107, June 9, 1998) amended the passenger-vehicle
component of the commercial motor vehicle (CMV) definition in 49 U.S.C.
31132(1). CMV is now defined statutorily to mean a self-propelled or
towed vehicle used on the highways in interstate commerce to transport
passengers or property, if the vehicle--
(A) has a gross vehicle weight rating or gross vehicle weight of at
least 10,001 pounds, whichever is greater;
(B) is designed or used to transport more than 8 passengers
(including the driver) for compensation;
[[Page 47861]]
(C) is designed or used to transport more than 15 passengers,
including the driver, and is not used to transport passengers for
compensation; or
(D) is used in transporting material found by the Secretary of
Transportation to be hazardous under section 5103 of this title and
transported in a quantity requiring placarding under regulations
prescribed by the Secretary under section 5103.
Under section 4008(b) of the TEA-21, operators of the CMVs defined
by section 31132(1)(B) would automatically become subject to the FMCSRs
one year after the date of enactment of the TEA-21, if they were not
already covered, ``except to the extent that the Secretary [of
Transportation] determines, through a rulemaking, that it is
appropriate to exempt such operators of commercial motor vehicles from
the application of those regulations.'' Section 4008(b) of the TEA-21
is a mandate either to impose the FMCSRs on previously unregulated
smaller-capacity passenger vehicles, or to exempt through notice and
comment rulemaking some or all of the operators of such vehicles.
On September 3, 1999, the Federal Highway Administration (FHWA)
published an interim final rule to adopt the new statutory definition
of a CMV (64 FR 48510).\1\ The agency revised its regulatory definition
of CMV to be consistent with the statute, but exempted the operation of
these small passenger-carrying vehicles from all of the FMCSRs pending
the completion of a separate rulemaking in which the agency proposed
requiring operators of such vehicles to file a motor carrier
identification report, mark their CMVs with a USDOT identification
number and certain other information, and maintain an accident
register. The notice of proposed rulemaking (NPRM) for that rule was
also published on September 3, 1999, at 64 FR 48518.
---------------------------------------------------------------------------
\1\ The MCSIA established the FMCSA in the Department of
Transportation. On January 4, 2000, the Office of the Secretary
published a final rule rescinding the authority previously delegated
to the former Office of Motor Carrier Safety (OMCS) within FHWA (65
FR 220). This authority is now delegated to the FMCSA. Rulemaking,
enforcement, and other activities of the former OMCS while part of
the FHWA are now administered by the FMCSA.
---------------------------------------------------------------------------
On January 11, 2001 (66 FR 2756), the FMCSA published a final rule
that amended 49 CFR 390.5 to adopt the statutory definition of
``commercial motor vehicle'' published in the interim final rule on
September 3, 1999. The final rule also revised Sec. 390.3(f)(6) to
require that all operators of CMVs designed or used to transport
between 9 and 15 passengers for compensation (1) complete a motor
carrier identification report (Form MCS-150) (49 CFR 390.19); (2)
comply with certain provisions of the CMV marking regulation (49 CFR
390.21); and (3) maintain an accident register (49 CFR 390.15). These
actions were intended to enable the agency to monitor the operational
safety of all motor carriers operating small passenger-carrying
vehicles for compensation. In addition, the three requirements were
intended to help the agency compile information on the number of motor
carriers operating small passenger-carrying vehicles for compensation,
the location of their principal places of business, the number of
vehicles operated, and the number of drivers employed.
On January 11, 2001 (66 FR 2767), FMCSA also published an NPRM for
this proceeding. Section 212 of MCSIA required FMCSA to complete a
rulemaking to determine whether motor carriers operating motor vehicles
designed or used to transport between 9 and 15 passengers (including
the driver) for compensation should be covered by the FMCSRs. Congress
directed that, as a minimum, the regulations shall apply to (1)
commercial vans referred to as ``camionetas,'' and (2) those commercial
vans operating in interstate commerce outside of commercial zones that
have been determined to pose serious safety risks.
This final rule makes the FMCSRs applicable to all motor carriers
operating CMVs, designed or used to transport between 9 and 15
passengers (including the driver), in interstate commerce for ``direct
compensation'' when the vehicle is operated beyond a 75 air mile radius
(86.3 statute miles or 138.9 kilometers) from the driver's normal work-
reporting location. This decision is based on: (1) The FMCSA's
understanding of Congress's and the commercial passenger carrier
industry's usage of the term ``camionetas''; (2) analysis of comments
submitted in response to the agency's August 5, 1998 (63 FR 41766)
advance notice of proposed rulemaking (ANPRM) concerning the definition
of CMV; (3) analysis of comments submitted in response to the September
3, 1999 interim final rule and NPRM; (4) analysis of comments submitted
in response to the January 11, 2001 NPRM; and (5) an analysis of
accident data concerning commercial van transportation of passengers.
The agency believes that this approach will be more effective than
other alternatives for responding to congressional and public safety
concerns about the use of small passenger-carrying CMVs in long-haul
for-hire operations throughout the United States, including such
operations for compensation by foreign-based motor carriers to and from
the United States.
Covered Camioneta Operations
Furthermore, section 212 of the MCSIA requires the agency to make
the safety regulations applicable to camioneta operations. The statute
did not define the term camioneta, but Congress issued an explanatory
statement (see 145 Cong. Rec. H12868, at H12873, November 18, 1999)
that suggests camioneta operations are those that involve transporting
passengers from Mexico to the United States and vice versa.
FMCSA does not have information concerning the number of motor
carriers with CMV operations that fit the description of camioneta. The
Texas Department of Public Safety, in comments to the September 3, 1999
interim final rule and NPRM published on the same day, described
camioneta operations as those transporting passengers ``between major
cities in Texas and the other southern States to and from our borders
with Mexico.'' Based on analysis of the National Highway Traffic Safety
Administration (NHTSA) Fatality Analysis Reporting System (FARS), the
agency believes the accident data suggest that, if there are fatal
accidents involving these operators, the vast majority of vehicles
appear to be registered in the United States. While they may travel
between points in Mexico and the United States, the vehicles are not
necessarily based in Mexico.
Rather than adopting a rule that specifically targets, in part,
vehicles that actually cross the border, FMCSA continues to believe
section 212 should be implemented by focusing on the distance traveled.
The distance-based approach used in this final rule will capture CMV
operators that transport passengers from the U.S.-Mexico border to
major cities in Texas and other States. Carriers that actually cross
the border will also be covered, but only in those instances where the
driver operates the vehicle beyond a 75 air-mile radius from his or her
normal work-reporting location. The distance the driver operates could
be determined by enforcement personnel, by questioning the drivers
about their employers, and by reviewing any available paperwork
concerning the origin and the destination, regardless of which side of
the U.S.-Mexico border the trip begins or ends.
Alternatives Considered
Several alternatives or options to implement section 212 of MCSIA
were
[[Page 47862]]
considered. They included making the safety-related operational FMCSRs
applicable to: (1) All motor carriers operating small passenger-
carrying CMVs in interstate commerce for compensation (direct and
indirect), irrespective of the distance traveled; (2) all motor
carriers operating small passenger-carrying CMVs in interstate commerce
that are directly compensated, irrespective of the distance traveled;
and (3) only those motor carriers operating small passenger-carrying
CMVs across the U.S.-Mexico border for compensation. FMCSA believes the
alternative being implemented through this final rule will improve the
safety performance of for-hire motor carriers that pose a serious
safety risk to their customers and the traveling public, while avoiding
to the greatest extent practicable, the imposition of Federal safety
regulations on van operations that are local in nature and appear to
pose a significantly lower level of safety risk.
Summary of Proposed Rulemaking
In the NPRM (66 FR 2767, January 11, 2001), the FMCSA requested
public comment on making the safety regulations in parts 390, 391, 392,
393, 395 and 396, and the safety fitness rules in part 385, applicable
to motor carriers operating CMVs designed or used to transport between
9 and 15 passengers (including the driver) in interstate commerce, when
they are directly compensated for such services and the transportation
of any passenger covers a distance greater than 75 air miles (86.3
statute miles or 138.9 kilometers). The agency made clear that the
operators of these small passenger-carrying vehicles would be subject
to the same safety requirements as motorcoach operations, with the
exception of the commercial driver's license, and controlled substances
and alcohol testing regulations.
Commenters
FMCSA received 29 comments in response to the NPRM. The commenters
were: Academy Bus Co. (Academy); Advocates for Highway and Auto Safety
(Advocates); AFL-CIO Transportation Trades Department (AFL-CIO);
Amalgamated Transit Union (ATU); American Bus Association (ABA); the
Association for Commuter Transportation (ACT); California Highway
Patrol (CHP); Colorado Department of Public Safety (CDPS); the
Commercial Vehicle Safety Alliance (CVSA); Farmworkers Justice Fund
(FJF); Greyhound Lines, Inc. (Greyhound); League of United Latin
American Citizens (LULAC); Pennsylvania Bus Association (PBA); Mr. Alan
Jay Pomerance, a concerned citizen; National Association of State
Directors of Pupil Transportation Services (State Directors); National
Automobile Dealers Association (NADA); National Council of La Raza
(NCLR); National Limousine Association (NLA); National School
Transportation Association (NSTA); New Jersey Department of
Transportation (NJDOT); Taxicab, Limousine & Paratransit Association
(TLPA); Texas Bus Association (TBA); Texas Department of Public Safety
(TXDPS); United Motorcoach Association (UMA); and four college
students.
TXDPS, PBA, LULAC, NCLR and FJF fully supported the proposal as
published. ABA, TBA, Greyhound, Academy, CHP, CDPS, CVSA, Advocates,
ATU, NJDOT, AFL-CIO, NSTA, State Directors, Mr. Pomerance, and the four
students were in favor of the FMCSA's rulemaking, although they
generally believed that more remains to be done to protect public
safety and help level the playing field. Advocates and UMA opposed the
exclusion of small passenger-carrying vehicle operations within the
proposed 75 air mile range. NLA, TLPA, NADA, and ACT, on the other
hand, opposed making the safety regulations applicable to their
members.
Discussion of Comments and FMCSA Responses
Direct Compensation Criterion
Eight commenters opposed the direct compensation criterion for
determining the applicability of the safety requirements. Five
commenters supported making safety-related operational regulations
applicable to vehicles designed or used to transport between 9 and 15
passengers when the company holds itself out to the public as providers
of transportation services, or when a company is primarily engaged in
providing surface transportation. ABA suggested that the agency use the
phrase ``primarily engaged in for-hire transportation.'' ABA points out
that in applying requirements of the Americans with Disabilities Act
for over-the-road buses, DOT used the terminology ``primarily engaged
in transportation'' in 1998 regulations (63 FR 51670, 51692; September
1998).
Greyhound Stated
Greyhound's major concern is that by limiting applicability of
the FMCSRs to smaller passenger-carrying commercial motor vehicles,
the operators of which are ``directly compensated'' for their
transportation services, FMCSA may be creating unnecessary confusion
and an inappropriate loophole. We agree that only carriers that are
``compensated'' for transportation be regulated, it is the modifier,
``directly'' that causes the potential problem.
ATU Stated:
[W]e urge the agency to then adopt one of the alternative
definitions provided by Greyhound Lines, Inc. in its comments to the
proposed rule. Specifically, Greyhound suggests that the regulations
be applied to transportation for compensation in smaller vehicles
provided by entities that either ``hold themselves out to the public
as providers of transportation services'' or ``are primarily engaged
in providing surface transportation.'' We prefer the latter
formulation, but either one would provide a clearer and more precise
definition of the regulated class than the ``directly'' compensated
test, which would allow organizations to avoid regulation by masking
the transportation fee within a ``total package charge'' that
includes other incidental services.
NJDOT, CHP, and CDPS generally contend that the proposed
definition will lead to additional regulatory and enforcement
problems.
Response: FMCSA agrees with commenters that the rule should focus
first and foremost on motor carriers of passengers that offer their
services to the general public. However, the agency disagrees with
commenters' assertions that the term ``primarily engaged in providing
surface transportation'' is a better criterion for determining the
applicability of the FMCSRs to these motor carriers. The term
``primarily engaged in providing surface transportation'' requires that
both the motor carrier and enforcement officials consider all of the
motor carrier's business activities before determining whether the
safety regulations apply. Each entity that operates small passenger-
carrying vehicles for compensation in interstate commerce, regardless
of the distance traveled, is considered a motor carrier, as defined in
49 CFR 390.5. Motor carriers and enforcement officials would have to
determine whether the percentage of business that concerns the for-hire
transportation of passengers is sufficient for the motor carrier to be
primarily engaged in providing surface transportation. This may vary
from season to season, or year to year. Generally, enforcement
opportunities would be limited to carrier visits, unless enforcement
officials conducting destination inspections or similar activities
knew, or had reason to believe, that the entity responsible for the
operation of the vehicle was primarily engaged in providing surface
transportation of passengers.
[[Page 47863]]
By contrast, the approach FMCSA proposed and adopts makes the
FMCSRs applicable for each interstate trip beyond a 75 air mile radius
of the driver's normal work-reporting location, regardless of the
percentage of the motor carrier's business involving the for-hire
transportation of passengers. Motor carriers and enforcement officials
need only determine the distance that the vehicle would be operated (in
the case of the motor carrier planning a trip) or was operated (in the
case of the enforcement official), and whether the vehicle was being
operated for direct compensation. This could be accomplished by
interviewing the driver and passengers to determine the nature of the
trip. The inspector need not know about, and the motor carrier need not
estimate, the percentages of the company's business operations
involving for-hire passenger transportation in order to determine
whether the FMCSRs are applicable to the trip in question.
We believe that our approach establishes a higher standard of
safety for the operators of small passenger carrying vehicles than the
approach recommended by the commenters. FMCSA's approach makes the
rules applicable to every trip that meets the criterion, regardless of
whether the entity is primarily engaged in transportation. Conversely,
commenters would permit potentially unsafe operators to legally
continue their long-haul van operations, provided they were not
primarily engaged in the for-hire transportation of passengers. FMCSA
believes that the approach adopted by this rule achieves a higher
standard of safety.
Generally, only entities that assess a fee, monetary or otherwise,
directly for the transportation of passengers would be subject to the
safety regulations. The use of small passenger-carrying CMVs for
compensation, by such operators as hotel/motel shuttle, rental car
shuttle, and whitewater river rafter transporter services, using small
passenger-carrying CMVs, would not be subject to the safety-related
operational regulations, irrespective of the distance traveled. Since
these businesses do not hold themselves out to the public as providers
of transportation services and generally operate over short distances,
FMCSA continues to believe that it is not necessary to impose safety-
related operational regulations on them.
In response to Greyhound, the ATU, and other commenter assertions
that the proposed rule would enable some motor carriers to avoid safety
oversight by structuring their fees or fares as a total package charge,
FMCSA does not believe the nature of most of these carrier operations
is such that their identity as for-hire motor carriers of passengers
can be effectively concealed. In such instances, carriers would have to
devise a scheme wherein they would provide some other substantive
service so that the transportation by motor vehicle of the passenger is
incidental to some other function. Given that most passengers of these
motor carriers expect to depart specific locations at specific times,
and arrive at their destinations in a timely manner, it is unlikely the
motor carriers this rule is intended to cover could maintain effective
customer relationships by engaging in activities that would increase
significantly the time required to complete a trip, or the fares
customers must pay for the transportation service. In addition to
differences in the nature of the transportation service, FMCSA believes
the market forces of supply and demand and competitive pricing would
discourage a commercial operator of a small passenger-carrying vehicle
from employing this strategy to avoid regulation. Motor carriers that
employ this strategy would place themselves at an economic disadvantage
with other for-hire carriers that provide transportation services
between the same locations.
75 Air-Mile Criterion
FMCSA proposed making the safety regulations applicable when the
transportation of any passenger covers a distance greater than 75 air
miles. Greyhound and the ABA supported the 75 air-mile standard.
However, fifteen commenters opposed the standard.
The CVSA argued that commercial motor vehicles should be subject to
the FMCSRs regardless of how far they travel. The State Directors
stated a distance-based approach to applying the FMCSRs to commercial
vans is neither reasonable nor feasible. The State Directors opined
that the 37 percent of fatal van crashes at distances less than 75
miles is a substantial number and should not be ignored.
Response: FMCSA carefully analyzed accident data from the NHTSA
Fatality Analysis Reporting System (FARS). Based on this analysis,
FMCSA determined, to the greatest extent practicable, that vans most
likely to pose a safety risk were those operating at a distance
approximately 75 air miles or more from the driver's work-reporting
location. The methodology for estimating this distance is explained
below.
FMCSA reviewed the data fields in FARS to determine whether it
would be possible to estimate the distance a large van may have
traveled prior to being involved in the fatal accident, and if there
was any way to identify those accidents most likely to have involved
interstate transportation. The agency determined that FARS could
provide potentially useful information to help identify the accidents
most likely to have involved interstate transportation, based on a
comparison of data fields for the State in which the vehicle crashed,
the State in which the vehicle was registered, and the State of the
driver's license.
FMCSA estimated the approximate distance between the geographic
area of the driver's residential zip code and the county and State in
which the crash took place. The distances were computed for almost all
fatal accidents involving a large van transporting 9 or more people at
the time of the accident for calendar years 1996, 1997, and 1998. The
agency operated under the assumption that the most likely trips to be
considered interstate in nature are ones in which the State of
registration of the vehicle and State of issuance for the driver's
license differ from the State where the vehicle crashed.
There were 161 fatal accidents between 1996 and 1998 (49 crashes in
1996, 54 crashes in 1997, and 58 crashes in 1998) in which the vehicle
was transporting 9 or more passengers at the time of the crash. The
FARS information for seven of the accidents lacked one or more of the
data items needed for the analysis. Two of the accidents involved U.S.
Government vehicles and were excluded from the analysis since they
would not be covered by the rulemaking--the FMCSRs include an exception
for transportation performed by the Federal government, a State, or any
political subdivision of a State (49 CFR 390.3(f)). Five of the
accidents involved Mexico-licensed drivers operating vehicles
registered in the United States and one involved a Mexico-licensed
driver operating a vehicle for which the database did not include
registration information. It was not possible to complete the distance
analysis for those accidents.
Of the remaining 146 fatal accidents in which the large van was
transporting 9 or more people at the time of the crash, 45 of them
(approximately 31 percent) appear to have been interstate trips with
the crash taking place in a State other than the State where the driver
was licensed, and at a distance greater than 100 statute miles from the
driver's residence. The shortest distance among the likely interstate
trips was just over 100 statute miles, while the longest was more than
2,100 statute miles (a trip
[[Page 47864]]
involving a driver licensed in California, a large van registered in
Oregon, and a fatal crash in Louisiana).
Forty-seven of the 146 fatal accidents (approximately 32 percent)
appear to have been intrastate trips with the fatal accident taking
place in the State where the driver was licensed and where the vehicle
was registered, and at a distance greater than 100 statute miles from
the driver's residence. The shortest distance among the likely
intrastate trips was just over 100 statute miles, while the longest was
more than 550 statute miles (a trip involving a driver licensed in
California, a large van registered in California, and a fatal crash in
California).
Fifty-four of the accidents (37 percent) occurred within 100
statute miles of the driver's residence with only a small percentage
(seven out of 54 crashes, approximately 13 percent) involving what
appears to be an interstate trip.
Overall, approximately 63 percent of the fatal accidents involving
large vans occurred between 100 and 2,200 statute miles from the
driver's residence with the longest distances linked typically to the
trips that were most likely interstate in nature.
It is not possible to determine the distance the driver may have
traveled to get to the work-reporting location, or to determine whether
the van was operated by an individual working from home. However, FMCSA
has factored into the analysis a maximum distance of 25 statute miles
between the driver's residence and a possible work-reporting location.
The Federal Highway Administration (FHWA) ``Summary of Travel Trends
1995 Nationwide Personal Transportation Survey,'' FHWA-PL-00-006,
December 1999, discussed in the NPRM, indicates that the average
commute to work among the individuals participating in the survey was
11.63 miles. To decrease the likelihood of underestimating the average
commuting distances of drivers of small passenger-carrying CMVs, the
agency used an estimate of 25 miles, a little more than twice the
average in the nationwide survey. When the estimated 25 statute miles
for commuting to work is deducted from the estimates of the distance
between the driver's residence and the crash location, the result is an
estimate of 75 statute miles as the distance the driver may have
traveled from the work reporting location to the crash site.
For simplicity, the agency used 75 air miles, which is equivalent
to 86.3 statute miles, because the motor carrier industry and
enforcement community have experience using air-miles, and the hours-
of-service rules include an exemption from the records-of-duty status
requirement for drivers operating within a 100 air-mile radius of their
work-reporting location.
As discussed in the above analysis that was the basis for the NPRM,
the agency continues to believe a mileage threshold of 75 air miles
(86.3 statute miles or 138.9 kilometers) should be used for determining
the applicability of the safety regulations to for-hire operations of
small passenger-carrying vehicles operating in interstate commerce. The
analysis indicates that approximately 63 percent of 146 fatal
accidents, in which a large van was actually transporting 9 or more
occupants at the time of the crash, involved drivers that apparently
traveled more than 75 statute miles from their work-reporting location.
While the agency certainly agrees with commenters' concerns that the
remaining 37 percent of the fatal accidents should not be ignored, this
rule would not affect most of those accidents, given that they appear
to be primarily intrastate in nature. Section 212 of the MCSIA does not
extend FMCSA's jurisdiction to regulate intrastate passenger-carrier
operations. Accordingly, the final rule adopts a 75 air-mile threshold.
However, in this final rule, the agency is revising its proposed
distance threshold to focus on the distance that the driver operates
the vehicle, as opposed to the distance that the passengers are
transported. The agency is aware of the potential complexities involved
with the 75 air-mile standard proposed in the NPRM. In many cases, it
would be difficult to determine the distance the passengers were
transported in order to determine whether the safety-related
operational regulations apply to the motor carrier. This is especially
true when passengers are picked up or dropped off at multiple
locations. To simplify compliance and enforcement, FMCSA will apply its
safety regulations whenever a vehicle that is designed or used to
transport between 9 and 15 passengers (including the driver) for direct
compensation is operated beyond a 75 air mile radius from the driver's
normal work-reporting location. The agency believes that use of the
driver's normal work reporting location provides an easier means for
motor carriers and enforcement personnel to determine the applicability
of the safety regulations, and will help to promote greater levels of
compliance and ensure consistency in the enforcement of the rules.
State Adoption of Compatible Safety Regulations
FMCSA requested public comment on the feasibility of making the
adoption and enforcement of compatible safety regulations applicable to
small passenger-carrying CMVs operated in interstate commerce a
condition of receiving Motor Carrier Safety Assistance Program (MCSAP)
funds. The agency also requested comments on whether the variances from
the FMCSRs allowed in State laws and regulations should be amended to
require the adoption and enforcement of intrastate regulations
applicable to the intrastate operation of these types of vehicles. Six
commenters believed FMCSA should require the States to adopt compatible
safety regulations concerning the operation of small passenger carrying
commercial vehicles.
Response: Although FMCSA agrees with the commenters that States
should have compatible regulations, the agency does not believe it is
necessary to require that all States adopt intrastate requirements that
are compatible with this final rule. The agency continues to believe
that State agencies should be given flexibility in responding to unique
safety issues or concerns involving the intrastate operation of small
passenger-carrying vehicles.
The MCSAP is a Federal grant program that provides financial
assistance to States to reduce the number and severity of accidents and
hazardous materials incidents involving CMVs. The goal of the MCSAP is
to reduce CMV-involved accidents, fatalities, and injuries through
consistent, uniform, and effective CMV safety programs. The MCSAP sets
forth the conditions for participation by States and local
jurisdictions and promotes the adoption and uniform enforcement of
safety rules, regulations, and standards compatible with the FMCSRs and
Federal Hazardous Materials Regulations (HMRs) for both interstate and
intrastate motor carriers and drivers. The MCSAP rules are codified in
49 CFR parts 350 and 355.
As a condition of participation in the MCSAP, States are required
to adopt and enforce compatible regulations concerning the interstate
operation of small passenger-carrying CMVs since FMCSA is adopting
regulations applicable to these operations. The agency is not amending
the variances under Sec. 350.341, which means that the States are not
required to adopt and enforce regulations concerning the intrastate
operation of small passenger-carrying CMVs. However, FMCSA encourages
the States to adopt and
[[Page 47865]]
enforce intrastate laws and regulations concerning the operation of
these CMVs if their accident data warrants such action.
Based on the agency's analysis of the FARS data for 1996, 1997, and
1998, approximately 32 percent (51 out of 161) of all fatal crashes
involving large vans transporting 9 or more passengers at the time of
the accident during those three years occurred in just three States
(California (24 fatal accidents), Texas (15 fatal accidents), and
Florida (12 fatal accidents)). This suggests that it may not be
necessary for each State to adopt and enforce intrastate regulations
concerning small passenger-carrying CMVs. However, States such as
California, Texas, and Florida should give strong consideration to
adopting and enforcing intrastate regulations given the FARS data.
Commercial Driver's License, and Controlled Substances and Alcohol
Testing Regulations
Seven commenters supported making the commercial driver's license
(CDL), and controlled substances and alcohol testing regulations
applicable to commercial van operations.
Response: While FMCSA understands commenter concerns, section 212
of the MCSIA did not expand the agency's statutory authority concerning
the establishment and enforcement of the CDL and controlled substances
and alcohol testing rules. Congress did not amend the statutory
definition of ``commercial motor vehicle'' in chapter 313 of title 49,
United States Code, which governs the applicability of the CDL and
controlled substances and alcohol testing requirements. Therefore,
FMCSA does not have the statutory authority to apply these requirements
to commercial van operations. The passenger-carrying threshold that
Congress provided under that statutory definition remains at 16 or more
passengers, including the driver.
Applicability of Safety Fitness Procedures
The proposed rule requested comments on making the safety fitness
procedures under part 385 applicable to motor carriers operating small
passenger-carrying CMVs. The safety fitness procedures in 49 CFR part
385 provide guidance in assessing the safety management controls that
motor carriers use to ensure compliance with the FMCSRs. Five
commenters supported applicability of safety fitness procedures to such
carriers. No commenter expressed specific opposition in relation to
this proposal.
Response: FMCSA continues to believe that it is appropriate to make
the safety fitness procedures applicable to motor carriers that operate
vehicles designed or used to transport between 9 and 15 passengers,
when the carrier is directly compensated for its transportation
services, and the commercial vehicle is operated beyond a 75 air mile
radius from the driver's normal work-reporting location. Motor carriers
operating small passenger-carrying CMVs are now subject to compliance
reviews and the same safety fitness procedures and standards used to
evaluate other interstate motor carriers. Therefore, section 385.1, as
amended on May 13, 2002 (67 FR 31978), by the interim final rule
concerning new entrant motor carriers, made part 385 applicable to all
motor carriers subject to the FMCSRs, except non-business private motor
carriers of passengers. Carriers that operate small passenger-carrying
vehicles, and that receive an ``Unsatisfactory'' safety rating will be
prohibited from operating CMVs to transport passengers in interstate
commerce. In addition, these motor carriers will be ineligible to
contract or subcontract with any Federal agency for transportation of
passengers in interstate commerce.
Discussion of the Final Rule
The FMCSA is revising the FMCSRs to require that motor carriers
operating CMVs that are designed or used to transport between 9 and 15
passengers (including the driver) for direct compensation in interstate
commerce (including transportation between points in Canada or Mexico,
and points in the United States) comply with the regulations contained
in 49 CFR parts 390, 391, 392, 393, 395 and 396, and the safety fitness
procedures in part 385, when the driver of the vehicle operates it
beyond a 75 air mile radius (86.3 statute miles or 138.9 kilometers)
from his/her normal work-reporting location. This means the motor
carriers are required to ensure that each of their drivers meet all of
the minimum qualifications for interstate CMV drivers, including
physical qualifications prescribed in part 391, and maintain records to
document compliance. The driver disqualification provisions of 49 CFR
391.15 are also applicable. Motor carriers and their drivers must also
comply with the driving rules of part 392, and vehicles must meet all
applicable requirements in part 393 concerning parts and accessories
necessary for safe operation.
To avoid potential confusion, the exception under Sec. 390.3(f)(6)
has been revised to exempt the operation of CMVs designed or used to
transport between 9 and 15 passengers, not for direct compensation,
provided the vehicle does not otherwise meet the definition of a
commercial motor vehicle (emphasis added). The agency believes that the
proposed regulatory language could have been misunderstood to imply
that vehicles designed or used to transport between 9 and 15
passengers, not for direct compensation, are exempt from the FMCSRs,
even if the CMV meets the 10,001-pound weight threshold for
applicability of the safety regulations, or is used to transport
hazardous materials in a quantity requiring the use of placards.
Part 396 requires that each motor carrier must have a systematic
inspection, repair, and maintenance program for the CMVs it operates,
and must ensure that vehicles are in safe and proper operating
condition at all times. They must also maintain records to document
compliance with these rules.
In addition, motor carriers must ensure that each vehicle is
inspected at least once every 12 months by a qualified inspector/
mechanic and that any motor carrier employee responsible for the
adequacy of any brake-related inspection, repair, or maintenance work
meets certain minimum qualifications. They must also maintain records
to document compliance with these rules.
Motor carriers must ensure that their drivers comply with the
hours-of-service requirements of part 395, including reporting,
recordkeeping, verifying, and responding to law enforcement requests.
No driver of a passenger-carrying CMV may drive more than 10 hours
following 8 consecutive hours off duty. No driver may operate a
passenger-carrying CMV if the driver has been on duty more than 15
hours following 8 consecutive hours off duty (regardless of whether he
or she drove). Furthermore, drivers of passenger-carrying CMVs must not
drive after being on duty 60 hours in any seven consecutive days if the
motor carrier does not operate CMVs every day of the week (60-hour
rule), or after being on duty 70 hours in any eight consecutive days if
the motor carrier operates CMVs every day of the week (70-hour rule).
For drivers that operate passenger-carrying CMVs beyond a 100 air-mile
radius of the normal work-reporting location, a record of duty status
(log book) is required to document the number of hours on duty and the
number of hours driving.
The hours of service rules include a 100 air-mile radius exemption
from the log book requirement for drivers who operate passenger-
carrying vehicles
[[Page 47866]]
within a 100 air-mile radius of their normal work reporting location,
provided the driver: returns to the work reporting location and is
released from work within 12 consecutive hours; has at least 8
consecutive hours off duty separating each 12 hours on duty; and does
not exceed 10 hours maximum driving time following 8 consecutive hours
off duty. As an alternative to the log book, motor carriers of
passengers must maintain accurate time records showing the time the
driver reports for duty each day, the total number of hours the driver
is on duty each day, the time the driver is released from duty each
day, and the total time for the preceding 7 days for drivers used for
the first time or intermittently.
As discussed above, the agency is not (emphasis added) making the
CDL and controlled substances and alcohol testing requirements
applicable to operators of small passenger-carrying CMVs, because
neither section 4008 of the TEA-21 nor section 212 of the MCSIA amended
the statutory definition of CMV used for those regulations (49 U.S.C.
31301). Consequently, the passenger-carrying threshold for CDL, and
controlled substances and alcohol testing requirements remains at 16
(including the driver).
Compliance Schedule
After the effective date of this rule, motor carriers will have 90
days (or 120 days from the Federal Register publication date) to comply
with the safety regulations. The agency believes this is sufficient
time for the affected motor carriers to establish and implement safety
management controls to achieve compliance with the FMCSRs. Furthermore,
the agency believes that NHTSA FARS data suggest that it is in the
public interest to require compliance with the FMCSRs as soon as
practicable.
Relationship Between Final Rules and Transportation of Migrant Workers
The FMCSA has determined that some of the motor carriers covered by
this rulemaking may also be subject to the agency's rules for
transporters of migrant workers in 49 CFR part 398. The agency
prescribes certain requirements for motor carriers that transport
migrant workers a total distance of more than 75 miles in interstate or
foreign commerce. Section 398.1 defines a migrant worker as any
individual proceeding to or returning from employment in agriculture as
defined in section 3(f) of the Fair Labor Standards Act of 1938, as
amended (29 U.S.C. 203(f)) or section 3121(g) of the Internal Revenue
Code of 1986 (26 U.S.C. 3121(g)). The term ``carrier of migrant workers
by motor vehicle'' means any person, with certain limited exceptions,
who transports in interstate or foreign commerce at any one time three
or more migrant workers to or from their employment by any motor
vehicle other than a passenger automobile or station wagon.
Carriers of migrant workers that are directly compensated for their
transportation services and that operate vehicles designed or used to
transport between 9 and 15 passengers, in interstate commerce, are
covered by this final rule if the driver operates beyond a 75 air-mile
radius from their normal work reporting location. The final rule
generally establishes more stringent safety requirements than those
found in 49 CFR part 398. This is not the case, however, with Sec.
398.6, which prohibits motor carriers from permitting or requiring
drivers to operate vehicles for more than 10 hours in any 24-hour
period, unless the driver is given eight hours rest immediately
following the 10 hours driving time. This daily limit is more
restrictive than the comparable provision for drivers of larger
passenger-carrying CMVs (Sec. 395.5(a)(1)), which allows a driver to
drive up to 16 hours out of 24 under certain circumstances.
Although compliance with part 395 would result in a less
restrictive requirement in this instance, FMCSA does not believe this
deviation is significant in terms of highway safety. The restriction in
part 398 is based only on the amount of time the driver operates the
vehicle that transports the migrant workers but does not take into
account other activities that may affect the driver's fitness for duty
and level of alertness. Part 395 includes rules to prohibit driving
after being on-duty (both driving time and time spent performing other
tasks) for more than 15 hours following at least eight consecutive
hours off-duty. Part 395 also takes into account any compensated work,
irrespective of whether the work was performed for the motor carrier.
For example, if the driver has a part-time job, the time spent on the
part-time job must be factored into the calculations to determine the
available driving time. FMCSA believes that overall, part 395 is more
stringent than part 398 and that compliance with all of the
requirements of part 395 will improve safety.
FMCSA believes that it is appropriate to require more rigorous
safety standards for carriers of migrant workers if their operations
are conducted in a manner similar to intercity motorcoach businesses.
Therefore, the agency is amending Sec. 398.2, Applicability, of the
transporters of migrant worker rules to make it clear to the affected
motor carriers when they must comply with the same FMCSRs as intercity
motorcoach operations.
Applicability of Safety Fitness Procedures to Operators of Small
Passenger-Carrying CMVs
Part 385 of the FMCSRs establishes procedures to determine the
safety fitness of motor carriers, assign safety ratings, take remedial
action when required, and prohibit motor carriers receiving an
``Unsatisfactory'' safety rating from operating a CMV. As a result of
this final rule, motor carriers operating small passenger-carrying CMVs
are now covered by the same safety fitness procedures and standards
used to evaluate other interstate motor carriers. This means that motor
carriers affected by this rulemaking will be subject to compliance
reviews and receive safety ratings. Those receiving an
``Unsatisfactory'' safety rating will be prohibited from operating CMVs
to transport passengers in interstate commerce. In addition, these
motor carriers will be ineligible to contract or subcontract with any
Federal agency for transportation of passengers in interstate commerce.
The agency is amending Sec. 385.1, Purpose and scope, to reflect the
new passenger-carrying threshold for the applicability of the FMCSRs
and the safety fitness procedures.
Itemization of the Estimated Costs of Imposing Safety-Related
Requirements
FMCSA has attempted to evaluate the potential costs of the final
rule. The agency has considered currently available data concerning the
number of affected motor carriers, CMVs, and drivers. The agency
estimates that this rulemaking could affect up to 1,843 for-hire motor
carriers of passengers with active operating authority who operate only
CMVs with a seating capacity of 15 passengers or less.
Each of these motor carriers has on file with the FMCSA proof of
financial responsibility at the minimum level required for the
operation of vehicles designed to transport less than 16 passengers.
This number does not include the following: (1) motor carriers that may
have pending applications for operating authority; (2) passenger
carriers shown as inactive because their authority was revoked for
failure to maintain evidence of the required minimum levels of
financial responsibility; (3) private motor carriers of passengers; or
(4) carriers which also operate larger vehicles, as well as smaller
vehicles. This number may also
[[Page 47867]]
overstate the population of affected carriers since some of the
licensed carriers may be exclusively operating equipment carrying less
than 9 passengers.
With regard to the number of drivers and vehicles that would be
covered by the safety regulations, FMCSA does not have a definitive
source for this information at this time because for-hire small
passenger motor carriers were only recently required to complete the
Form MCS-150, Motor Carrier Identification Report, which is used to
gather information about motor carriers subject to the FMCSRs. However,
the agency is now gathering data to better estimate the number of
affected carriers, drivers, and vehicles.
In the absence of other sources of information, the agency believes
certain estimates provided by the Taxicab, Limousine & Paratransit
Association (TLPA) is useful in helping to estimate the number of
drivers and vehicles that will be covered by this final rule. In
comments submitted in response to the August 5, 1998, ANPRM (63 FR
41766) on the subject of safety requirements for the operators of small
passenger-carrying CMVs, the TLPA estimated that there are 74,000 vans
nationwide being operated for compensation. The TLPA estimated that van
fleets average less than 10 vans. In addition, the TLPA estimated that
if the agency made the FMCSRs applicable to the operation of small
passenger-carrying vehicles, approximately 14,000 companies, 125,000
vehicles, and 165,000 drivers would be covered.
FMCSA believes most of the estimates provided by the TLPA appear to
be representative of businesses that would not be covered by this rule,
because this rulemaking applies to long-haul van operations, not for-
hire operations that are local in nature. However, the agency will use
the TLPA's previous estimate of the number of vehicles per fleet (10
vans) as a baseline estimate for the number of vehicles that would be
covered. This means that approximately 18,430 small passenger-carrying
vehicles (10 vans per fleet x 1,843 for-hire operations) would be
covered under the FMCSRs.
The use of the estimates above is not intended to serve as a
determination whether the passenger-carrying operations are small
businesses. The estimates are used solely for the purpose of estimating
the potential costs of this rulemaking action. TLPA's comments
concerning the agency's estimate of the number of small businesses that
could be affected by this rulemaking are addressed in the rulemaking
analysis portion of this notice.
The agency estimates that the number of drivers affected will be a
fraction of the 165,000 drivers in the TLPA estimate since the proposal
is targeted at drivers in the long-haul segment of the small passenger
carrier industry. The agency believes the total number of drivers will
be approximately 22,000 (165,000 divided by 7.5) since the number of
motor carriers currently operating as for-hire motor carriers of
passengers with small passenger-carrying vehicles is approximately one-
seventh of the TLPA's estimate of all for-hire motor carriers.
Earnings of Commercial Van Drivers, Mechanics, and Supervisors
In order to evaluate accurately the cost implications of the
proposed rule, FMCSA reviewed earnings information from the
``Occupational Outlook Handbook,'' 2000-01 Edition, Bulletin 2520,
published by the U.S. Department of Labor. We are using the earnings
information to determine the costs of requiring motor carrier employees
and individuals who perform services for motor carriers to complete
certain records that would not otherwise be completed in the normal
course of business, and to perform certain tasks associated with
complying with the requirements.
The agency is using the earnings figures for taxi-drivers and
chauffeurs because the drivers in question generally do not meet the
qualifications requirements for intercity bus drivers. The median
hourly earnings of taxi drivers and chauffeurs, excluding tips, were
$7.48 in 1998. The middle 50 percent earned between $6.02 and $9.79 an
hour. The lowest 10 percent earned less than $5.55 and the highest 10
percent earned more than $12.44 an hour. For the purpose of preparing
cost estimates for imposing safety-related operational rules, the
agency will use $12.44 an hour to decrease the likelihood of
underestimating the impact of this rulemaking.
The ``Occupational Outlook Handbook'' shows the estimated median
hourly earnings for automotive mechanics and service technicians,
including commission, were $13.16 in 1998. The middle 50 percent earned
between $10.02 and $17.14 an hour. The lowest 10 percent earned less
than $7.44 and the highest 10 percent earned more than $21.25 an hour.
For the purpose of preparing cost estimates for this rulemaking the
agency is using $21.25 an hour.
FMCSA is using $22 an hour as the estimated earnings for
supervisors and managers of transportation. The ``Occupational Outlook
Handbook'' did not include a specific category for transportation
supervisors so the agency is operating under the assumption that these
supervisors are paid more than the individuals they supervise. The
agency estimated that the supervisors are paid $ 0.75 an hour more than
the service technicians, or $22.
Medical Examination and Certification
Drivers subject to the rule are required to obtain a medical
examiner's certificate. FMCSA estimates that the average cost of a
comprehensive medical examination is $300. This cost includes an
estimate of the driver's out-of-pocket expenses or co-payment and an
estimate of the amount the driver's health insurance company would pay
the medical examiner. Since a medical examiner's certificate is usually
valid for 24 months, the FMCSA estimates the prorated annual cost of
CMV driver medical certifications to be approximately $3,300,000 [($300
per exam per driver ) x (22,000 drivers) = $6,600,000 every two years]
based on an estimated 22,000 drivers who would be subject to the rule.
Generally, it takes a medical examiner, such as a physician, doctor
of osteopathy, physician assistant, advance practice nurse, or doctor
of chiropractic, about 20 minutes to complete a medical examination
form and one minute to fill out the medical certificate. Based on the
$132,000 median annual earning of a general/family practice physician
listed in the Department of Labor's ``Occupational Outlook Handbook''
and an estimated 2,080 hours of work per year, the earnings are equal
to approximately $63 an hour. The estimated costs to the industry for
having medical examiners complete the required paperwork would be
$485,100 ($63 an hour x (21 minutes x 1 hour per 60 minutes) x 22,000
medical exams performed for drivers). This is the cost every two years.
The cost each year would be $242,550.
Therefore, the total annual costs for the physical exam would be
approximately $3,542,550.
Driver Qualification Files
FMCSA estimates that the operators of small passenger-carrying CMVs
will have to create 22,000 driver qualifications files during the first
year and create approximately 2,860 new files (13 percent of 22,000)
each year thereafter as a result of driver turnover, retirement, etc.
The estimate of driver turnover is the same used for previous
information collection burden estimates for driver qualifications
files. This means that motor carriers will be responsible for
maintaining
[[Page 47868]]
approximately 19,140 existing files (22,000 - 2,860) every year after
the first year this rule is in effect and creating 2,860 new files per
year.
The creation of a single, complete driver qualification file
involves an annual expenditure of approximately 25 minutes, which is
the sum of 21 minutes of paperwork by a safety director, driver
supervisor, or equivalent position, and 4 minutes of paperwork by a
driver. For the first year, the cost would be $188,557 (0.35 hours per
driver employed x 22,000 drivers x $22 an hour per supervisor) plus
(0.07 hours per driver employed x 22,000 drivers x $12.44 an hour per
driver), or $169,400 for the time supervisors spend on this task and
$19,157 for drivers. For subsequent years the cost for creating new
driver qualification files would be $24,512 (0.35 hours per driver
employed x 2,860 drivers x $22 an hour per supervisor) plus (0.07 hours
per driver employed x 2,860 driver x $12.44 an hour per driver), or
$22,022 for the time supervisors spend on this task and $2,490 for
drivers.
Each driver is required by Sec. 391.27 to furnish their employing
motor carrier with a list of traffic violations. FMCSA estimates that
it takes a driver approximately 2 minutes to complete the list. Motor
carriers are required to conduct an annual review of their drivers'
records. The agency estimates that it takes approximately 5 minutes per
driver to complete this task. The cost of complying with the list of
traffic violations is $7,143 [19,140 drivers x (0.03 hours per driver)
x ($12.44 an hour for a driver)]. The cost of complying with the annual
review is $33,686 [(19,140 drivers) x (0.08 hours per driver) x ($22 an
hour for a supervisor)]. The total cost per year for the annual list of
violations and the review of the driving record is $40,829.
Therefore, the estimated cost for driver qualification files is
$188,557 for the first year carriers are required to comply with the
safety-related operational provisions of the FMCSRs, and $65,341 for
each subsequent year ($24,512 for creating new qualification files,
$7,143 for the list of traffic violations, and $33,686 for the driving
record review).
Records of Duty Status
As indicated above, FMCSA believes the final rule will apply to
22,000 drivers. It is estimated that each driver would spend
approximately 6.5 minutes per workday to complete a record of duty
status and work 240 workdays a year. The information collection burden
for completing the record of duty status would be approximately 571,999
hours [22,000 drivers x (6.5 minutes per day x 1 hour per 60 minutes) x
(240 workdays)]. The estimated total cost burden related to completing
the record of duty status is approximately $7,115,667 based on an
estimated time burden of 571,999 hours at $12.44 an hour for drivers.
This time and cost burden estimate takes into consideration two weeks
of sick/vacation leave for these drivers.
FMCSA estimates that each motor carrier, affected by this rule,
will need a supervisor responsible for reviewing its drivers' records
of duty status and that the supervisor will spend approximately three
minutes per day reviewing each driver's records to ensure compliance
with the hours-of-service rules. The information collection burden for
reviewing the record of duty status would be approximately 264,000
hours [22,000 drivers x (3 minutes per day per driver's log x 1 hour
per 60 minutes) x (240 workdays)]. Using the earnings estimate
presented above (i.e., $22 per hour for supervisors), the annual cost
would be $5,808,000.
Therefore, the total costs for requiring motor carriers to comply
with part 395 would be $12,923,667.
Vehicle Inspection, Repair, and Maintenance
FMCSA estimates the various recordkeeping requirements in part 396
related to vehicle inspection, repair, and maintenance would involve an
estimated total annual expenditure of 12 hours and 57 minutes per CMV
(48 minutes for systematic inspection, repair, and maintenance; 724
minutes for driver vehicle inspection reports; and 5 minutes for
periodic inspection). Evidence of an individual's qualifications to
perform periodic vehicle inspections must be retained by the motor
carrier. Evidence of an individual's qualifications to be a brake
inspector must also be retained. The creation of these two types of
qualification evidence involves an estimated one-time, non-recurring
expenditure of 5 minutes by a safety director, driver supervisor, or
equivalent position for each type of qualification.
The systematic inspection, repair, and maintenance records would be
completed by a mechanic. The periodic inspection records would also be
prepared by a mechanic. The estimated hourly earnings for a mechanic is
$21.25 as indicated above. If the mechanic must spend approximately 53
minutes per year per vehicle, the cost per year per vehicle for
recordkeeping would be approximately $18.77. If there are 18,430
vehicles that would be covered by the proposed rule, the total cost for
systematic inspection, repair, and maintenance, and periodic inspection
records would be $345,931.
Drivers must prepare vehicle inspection reports at the end of each
workday. It is estimated that each driver would spend 724 minutes per
year, or 12.06 hours per year completing the paperwork. Using the
earnings estimate of $12.44 an hour, the cost for having drivers
prepare vehicle inspection reports would be $150 per driver per year.
Based on an estimate of 22,000 drivers, the cost per year for the
industry would be $3,300,000.
Finally, looking at the cost for inspector qualifications, FMCSA
believes the paperwork would be completed by a supervisor. Using the
earnings estimate of $22 an hour, and an information collection burden
of 10 minutes (five minutes for each certification of qualifications),
the cost per carrier would be $3.66. The total non-recurring cost would
be approximately $6,745.
Therefore, the estimated total cost burden related to the vehicle
inspection, repair, and maintenance recordkeeping is approximately
$3,652,676 per year.
Total Costs and Qualitative Estimate of Benefits
Costs
The sum of all estimated costs of requiring operators of small
passenger-carrying CMVs to comply with parts 391, 395, and 396 is
$23,850,000 for the first year and $20,184,234 each year thereafter. A
summary of the first-year costs is presented below:
[[Page 47869]]
[GRAPHIC] [TIFF OMITTED] TR12AU03.000
Benefits
FMCSA is not able to quantify the benefits at this time because the
agency does not have detailed accident causation data. However, the
agency believes that operational safety will be improved through
compliance with the FMCSRs. Furthermore, section 212 of the MCSIA
requires that the agency make its safety regulations applicable to: (1)
Commercial vans referred to as ``camionetas,'' and (2) those commercial
vans operating in interstate commerce outside of commercial zones that
have been determined to pose serious safety risks.
The agency believes the benefits of this rulemaking outweigh the
estimated costs. The benefit of preventing as few as 8 of the 58 fatal
accidents in 1998 involving large vans transporting 9 or more
passengers at the time of the crash would outweigh the estimated costs.
This is especially the case when consideration is also given to the
prevention of injury and property-damage only accidents that occur
annually.
FMCSA has considered the accident information submitted by
commenters. The agency also considered data from the NHTSA FARS. The
data suggests that there may be serious safety management control
problems with some commercial van operations that transport passengers
for compensation in interstate commerce. Having the FMCSRs apply to
these operations should help to reduce the incidence of crashes
involving large vans thereby reducing to some extent the number of
fatalities and injuries.
Rulemaking Analyses
Privacy Act Statement
Anyone is able to search the electronic form of all comments
received into any of DOT's dockets by the name of the individual
submitting the comment (or signing the comment, if submitted on behalf
of an association, business, labor union, etc.). You may review DOT's
complete Privacy Act Statement in the Federal Register published on
April 11, 2000 (Volume 65, Number 70; Pages 19477-78) or you may visit
http://dms.dot.gov.
Regulatory Planning and Review and DOT Regulatory Policies and
Procedures
We have determined that this rulemaking action is a significant
regulatory action under Executive Order 12866, Regulatory Planning and
Review, and significant under Department of Transportation regulatory
policies and procedures because of the substantial public interest
concerning extending the FMCSRs to a larger population of for-hire
motor carriers of passengers. This final rule requires that operators
of vehicles designed or used to carry between 9 and 15 passengers
(including the driver) for direct compensation, in interstate commerce
comply with the following rules when the commercial vehicle is operated
beyond a 75 air mile radius (86.3 statute miles or 138.9 kilometers)
from the driver's normal work-reporting location: 49 CFR part 391,
Qualifications of drivers; 49 CFR part 392, Driving of commercial motor
vehicles; 49 CFR part 393, Parts and accessories necessary for safe
operation; 49 CFR part 395, Hours of service of drivers; and 49 CFR
part 396, Inspection, repair, and maintenance.
Executive Order 12866 requires that regulatory agencies assess both
the costs and benefits of intended regulations and proposed
regulations. Based upon the information above, the agency anticipates
that the economic impact associated with this rulemaking action will be
$23,850,000 for the first year, and $20,184,234 for each subsequent
year. The benefit of preventing as few as 8 of the 58 fatal accidents
in 1998 involving large vans transporting 9 or more passengers at the
time of the crash would outweigh the estimated costs. The agency
estimates that each fatality prevented would be equivalent to a benefit
of $3 million, based on the Department of Transportation's guidance
memorandum on ``Treatment of Value of Life and Injuries in Preparing
Economic Evaluations.''
[[Page 47870]]
Preventing 8 single-fatality accidents per year would result in at
least $24 million in benefits per year. Additional benefits would be
achieved through reductions in injuries and property-damage only
accidents involving small passenger-carrying CMVs.
For purposes of Executive Order 12866, this rulemaking does not
impose an economic burden greater than $100 million on these motor
carriers. Therefore, a full Regulatory Impact Statement is not
necessary.
Regulatory Flexibility Act Analysis
In compliance with the Regulatory Flexibility Act (5 U.S.C. 601-
612), FMCSA considered the effects of this regulatory action on small
entities and determined that this final rule will not affect a
substantial number of small entities that operate CMVs designed or used
to transport between 9 and 15 passengers, for compensation, in
interstate commerce. However, the agency believes the rule will have a
significant impact on some of the small entities operating such
vehicles.
FMCSA is requiring motor carriers that operate CMVs, designed or
used to transport between 9 and 15 passengers, in interstate commerce,
to be made subject to the safety-related operational FMCSRs when they
are directly compensated for such services and the vehicle is operated
beyond 75 air miles (86.3 statute miles or 138.9 kilometers) from the
driver's normal work-reporting location. These motor carriers will be
required to comply with 49 CFR parts 390, 391, 392, 393, 395, and 396.
FMCSA estimates that this rule will affect 1,843 of the estimated
14,000 entities that operate CMVs designed or used to transport between
9 and 15 passengers for compensation, and that most, if not all, of
these 14,000 businesses are small entities based on criteria
established by the Small Business Administration (SBA).\2\
---------------------------------------------------------------------------
\2\ The SBA's Office of Size Standards publishes a list of Small
Business Size Standards matched to the North American Industry
Classification System (NAICS). The U.S. Office of Management and
Budget (OMB) classifies approximately 1,000 activities as industries
under NAICS. For each industry, except those in public
administration, SBA has established a size standard. Industries are
described in detail in North American Industry Classification
System--United States, 1997. It can be found in many libraries or
purchased from the National Technical Information Service, by
calling (800) 553-6847 or (703) 605-6000. Subsector 485 of the NAICS
covers transit and ground passenger transportation. SBA has
established $6,000,000 in annual receipts as the maximum size for a
small business for all of the classifications under this subsector
(e.g., interurban and rural bus transportation, bus service, taxi
service, limousine service, charter bus industry). Gross receipts
are averaged over a firm's latest 3 completed fiscal years to
determine its average annual receipts. ``Receipts'' means the firm's
gross or total income, plus cost of goods sold, as defined by or
reported on the firm's Federal Income Tax return. Therefore, only
those motor carriers of passengers that averaged $6,000,000 or less
in annual receipts for the past 3 fiscal years would be considered
small businesses for the purposes of the regulatory flexibility
analysis.
---------------------------------------------------------------------------
The estimate of 1,843 is based on the current number of for-hire
motor carriers of passengers with active authority that operate only
CMVs with a seating capacity of 15 passengers or less. Although the
universe of for-hire motor carriers of passengers potentially subject
to this rule consists of approximately 14,000 entities, we estimate
that the final rule will apply to only the 1,843 carriers whose
operations require interstate operating authority under the FMCSA's
commercial regulations. Each of these motor carriers has on file with
the FMCSA proof of financial responsibility at the minimum level
required for the operation of vehicles designed to transport less than
16 passengers. This number may overstate the population of affected
carriers since some of the licensed carriers may be exclusively
operating equipment carrying less than 9 passengers. However, FMCSA's
estimate does not include the following: (1) Motor carriers that may
have pending applications for operating authority; (2) passenger
carriers shown as inactive because their authority was revoked for
failure to maintain evidence of the required minimum levels of
financial responsibility; (3) private motor carriers of passengers; or
(4) carriers which also operate larger vehicles, as well as smaller
vehicles. Therefore, the agency believes its estimate of 1,843 motor
carriers of passengers is a reasonable estimate of the number of
entities that will be subject to this rule.
This final rule is the last in a series of rulemaking actions
intended to improve the safety of operation of vehicles designed or
used to transport between 9 and 15 passengers, for compensation, in
interstate commerce. After reviewing the public comments received in
response to previous rulemaking notices in this series, and completing
an analysis of accident data, the agency continues to believe that it
is appropriate to limit the applicability of the rule to those motor
carriers that are most likely to have safety performance problems.
Therefore, this rule involves 1,843 out of the 14,000 small entities
that the agency is authorized to regulate under section 212 of MCSIA.
The rulemaking series mentioned above began with the August 5, 1998
(63 FR 41766) ANPRM in which the agency requested public comment from
all interested parties concerning the potential impact of amending the
definition of ``commercial motor vehicle'' to make the FMCSRs
applicable to the operation of small passenger-carrying CMVs. The
agency specifically asked for comments concerning the types and numbers
of passenger carriers that would be covered by the safety regulations
under the revised definition of CMV provided in section 4008(a) of TEA-
21. At that time, we indicated that due to the preliminary nature of
the ANPRM and the lack of information about the potential costs of the
rulemaking, the agency could not evaluate the potential regulatory
changes on small entities. The agency solicited comments, information,
and data on these potential impacts on small entities.
On September 3, 1999, the agency published an interim final rule
(64 FR 48510) and a NPRM (64 FR 48518) based on the comments received
in response to the ANPRM. The agency used the interim final rule to
adopt the statutory definition of CMV provided by TEA-21, and
temporarily exempt the operation of small passenger-carrying vehicles
from all of the FMCSRs pending completion of a companion rulemaking
that would help the agency gather additional information about the
entities operating vehicles designed or used to transport between 9 and
15 passengers. The exemption was necessary because the agency viewed
section 4008(a) of TEA-21 as a mandate either to impose the FMCSRs on
previously unregulated smaller capacity vehicles, or to exempt through
a rulemaking proceeding some or all of the operators of such vehicles.
The statute provided that operators of small passenger-carrying
vehicles would automatically become subject to the FMCSRs unless the
agency, through a rulemaking proceeding, determines that it is
appropriate to exempt such operators from the safety regulations.
While none of the commenters responded to the request for
information about potential impacts of the rulemaking on small
entities, the TLPA estimated that if the agency made the FMCSRs
applicable to the operation of small passenger-carrying vehicles,
approximately 14,000 companies, 125,000 vehicles, and 165,000 drivers
would be covered. The agency reviewed its database of for-hire
interstate motor carriers of passengers to determine whether TLPA's
estimate was reasonable. At that time, we indicated there were 1,636
for-hire motor carriers of passengers with active operating authority
that had on file with the
[[Page 47871]]
agency proof of financial responsibility at the minimum level required
for the operation of vehicles designed to transport less than 16
passengers. Recognizing that TLPA's estimate included a wide range of
passenger-carrying operations that far exceeded the limited number of
carriers with active operating authority, the agency stated that it
could not confirm the accuracy of the number.
The September 3, 1999 NPRM proposed that each motor carrier
operating small passenger-carrying vehicles submit a Motor Carrier
Identification Report (FMCSA Form MCS-150), maintain an accident
register, and mark their CMVs with the motor carrier identification
number assigned by the agency (64 FR 48518). The agency stated that
this would provide it with information about the number of passenger
carriers, their business locations, and the number of drivers employed
and vehicles operated. We believed that the proposal could affect a
substantial number of small entities, but would not have a significant
impact on them. The agency stated that if the TLPA's estimate of 14,000
interstate motor carriers operating CMVs designed or used to transport
9- to 15- passengers was accurate, and most or all of these businesses
are classified as small businesses by SBA, the rulemaking would affect
up to 14,000 small entities. The agency provided examples of the
potential costs to mark each vehicle, in accordance with 49 CFR 390.21,
with a worse case scenario of a one-time cost of $420 for a carrier
with a fleet of 20 vehicles.
With the enactment of MCSIA, the agency was required to take a more
aggressive regulatory approach and impose safety requirements on: (1)
Commercial vans referred to as ``camionetas,'' and (2) those commercial
vans operating in interstate commerce outside of commercial zones that
have been determined to pose serious safety risks. Therefore, the
agency was required to continue the series of rulemaking actions in the
absence of definitive industry characteristic and safety performance
data, including data concerning the potential impact on small
businesses that would be made subject to the FMCSRs.
On January 11, 2001, FMCSA issued a final rule adopting the
statutory definition of CMV as revised by section 4008 of TEA-21, and
requiring motor carriers operating small passenger-carrying vehicles to
submit the identification report, mark their vehicles, and maintain an
accident register (66 FR 2756). On the same day, in response to section
212 of MCSIA, the agency issued an NPRM (66 FR 2767) proposing that
motor carriers operating vehicles designed or used to transport between
9 and 15 passengers (including the driver) in interstate commerce
comply with the safety regulations when they are directly compensated
for such services, and the transportation of any of the passengers
covers a distance greater than 75 air miles (86.3 statute miles).
FMCSA indicated that in order to avoid underestimating the
potential impact of the rule on small entities, it estimated that 1,648
passenger carriers would be subject to the proposed requirements. This
estimate was based on the number of for-hire motor carriers of
passengers with active authority to operate CMVs with a seating
capacity of 15 passengers or less. The agency argued that using the
estimate of 1,648 carriers from the database of motor carriers of
passengers provided a reasonable estimate of the number of entities
that could be subject to the proposed rules. The agency estimated that
the costs per carrier would be $6,200 for the first year the
requirements are in effect, and $6,100 per year thereafter, if the
costs are distributed evenly among the carriers.
FMCSA estimated that the costs per carrier associated with the NPRM
would, on average, be 2.2 percent of their revenues based on data from
the SBA's 1997 ``Employer Firms, Employment and Estimated Receipts by
Employment Size of Firm'' tables. The agency reviewed revenues for
motor carriers in the intercity and rural bus transportation segment of
the industry. The SBA data indicated there are 145 firms in this
category with less than 20 employees--the 20-employee threshold was
chosen by FMCSA to be consistent with its estimate of the average
number of drivers likely to be employed by the 1,648 for-hire passenger
carriers. These 145 carriers had combined revenues of $41,793,000. The
average revenues were considered by dividing the combined revenues by
the total number of firms, or $288,227 in revenues per year for each
carrier.
FMCSA made a preliminary determination that the proposed rule would
not affect a substantial number of small entities because it would be
applicable to only a fraction of the 14,000 entities operating 9- to
15-passenger vehicles for compensation. However, the agency recognized
that the NPRM would have a significant impact on some of the small
entities, especially in those cases where the profit margins are
approximately 2.2 percent or less. The agency indicated that there is a
possibility for failure of some small passenger-carrying CMV
operations, especially those with profit margins of 2.2 percent or
less. Because it was limiting the applicability of the rules to only a
fraction of the universe of eligible small entities (thus minimizing
the overall impact), and the estimated costs of the rule would be 2.2
percent of the revenues of the affected small entities, the agency did
not believe that a more comprehensive analysis was needed to ensure
compliance with the Regulatory Flexibility Act. This was particularly
in view of the fact that the agency was statutorily required to
regulate operators of 9- to 15-passenger vehicles and had exercised its
discretion, as limited by MCSIA, to minimize the impact on small
entities.
After publication of the January 11, 2001 NPRM, the agency
increased its estimate of the potential costs of the rule for small
entities based on: (1) A revision of the estimated information
collection burden for driver records of duty status; (2) a correction
of the estimate of the costs for medical examinations for drivers; and
(3) consultation with SBA about the number of small businesses and
their revenues.
First, the agency revised the estimated costs associated with the
information collection burden for drivers' records of duty status, and
submitted the revised estimate to OMB for approval. The agency
estimated that the information collection burden for the records of
duty status (required by 49 CFR part 395) for the operators of 9- to
15-passenger vehicles would be 137,250 hours, based on an estimated
18,300 drivers being subject to the requirements. Using the new
estimates, approved by OMB [OMB Control No. 2126-0001] on information
collection burden for the records of duty status, and applying the
burden per driver and carrier to the entities that would operate small
passenger-carrying CMVs, the agency now believes the additional burden
would be 836,000 annual burden hours, for approximately 22,000 drivers.
The result of the increased estimate of the annual burden hours for
completing and retaining the records of duty status, and an increase in
the number of drivers that would be subject to the hours of service
rules, is an increase from $2,539 per carrier per year for such records
to $7,012 per carrier per year.
FMCSA also revised its estimates of the costs for medical
examinations of drivers. The agency's previous calculations included an
error resulting in an estimate of $1,718 per carrier per year. A
correction of the error, plus a revision of the estimate of the number
[[Page 47872]]
of drivers yields an estimate of $3,844 per carrier per year for
medical examinations.
As indicated earlier, FMCSA estimates that the sum of all estimated
costs of requiring operators of small passenger-carrying CMVs to comply
with 49 CFR parts 391, 395, and 396 is approximately $23,850,000 for
the first year and $20,184,234 per year thereafter. If the costs of the
rulemaking are distributed evenly among these 1,843 motor carriers, the
costs per carrier would be approximately $12,940 for the first year the
requirements are in effect, and a little more than $10,952 per year
thereafter.
A summary of the estimated first-year costs per motor carrier is
presented below:
[GRAPHIC] [TIFF OMITTED] TR12AU03.001
The actual costs each individual fleet would experience depend on
the number of drivers employed and the number of small passenger-
carrying CMVs operated. The above estimates are intended to serve as a
baseline of 10 CMVs per fleet and about 11 drivers per business.
Driver-related costs, such as driver qualifications and hours-of-
service, for each business would decrease or increase as the number of
drivers employed decreases below the baseline or increases above the
baseline. The same holds true for vehicle-related costs.
In order to better determine the potential impact on small
businesses, FMCSA met with representatives of SBA. As a result of that
meeting, the FMCSA reviewed the U.S. Department of Commerce's 1997
Economic Census, Transportation and Warehousing (Publication No. EC
97T48S-LS, Issued August 2000) to better determine the revenues of
businesses under the NAICS subsector 485, which covers transit and
ground transportation, and more accurately assess the number of small
entities based on SBA's $6,000,000 threshold for defining a small
business in the passenger transportation industry.
For businesses covered by NAICS code 4852, interurban and rural bus
transportation, the 1997 census data indicate there are 407 firms with
combined revenues of $1,147,432,000. For the purposes of this analysis,
the revenues for the businesses in this group were divided by the
number of firms resulting in an estimate of $2,819,243 in revenues per
year for each carrier [$1,147,432,000/407 firms = $2,819,243].
The agency also considered businesses covered by NAICS code 4853,
taxi and limousine service. The 1997 census data indicate there are
6,418 firms with combined revenues of $3,154,521,000. For purposes of
this analysis, the revenues for businesses in this group were also
divided by the number of firms resulting in an estimate of $491,511 in
revenues per year for each carrier [($3,154,521,000/6,418) = $491,511].
Based on the estimates above for the revenues per firm for
interurban and rural bus transportation businesses, and revenues per
firm for taxi and limousine service businesses, FMCSA believes that
most, if not all, of the firms in these categories appear to be small
businesses based on SBA's $6,000,000 threshold.
The costs per carrier associated with this rule would, on average,
be approximately 0.45 percent of the revenues for interurban and rural
bus services [($12,940 costs per carrier)/($2,819,243 revenues per
carrier) x 100 = 0.45 percent], and 2.6 percent of the revenues for
taxi and limousine services [($12,940 costs per carrier)/$491,511
revenues per carrier) x 100 = 2.6 percent].
For interurban and rural bus services with a profit margin greater
than 0.45 percent, the new rule will decrease their profits but the
businesses would maintain some level of profit. For bus services with
profit margins of 0.45 percent or less, the rule could result in the
failure of the business. Likewise, for taxi and limousine services with
a profit margin greater than 2.6 percent, the rule would decrease their
profits but the businesses would maintain some level of profit. For
taxi and limousine businesses with profit margins of 2.6
[[Page 47873]]
percent or less, the rule could result in failure of the business.
FMCSA does not have data on the revenues or profit margins of the
1,843 motor carriers likely to be impacted by the rule or more precise
information about their revenues. Also, the agency does not have
sufficient data about these motor carriers to determine the
distribution of drivers and vehicles, such as the number of carriers
with 1 to 5 vehicles, the number of carriers with 6 to 10 vehicles, the
number of carriers with 11 to 20 vehicles, and similar data for the
number of drivers, to make more precise its estimates concerning
revenues. However, the agency believes it is appropriate to consider
all 1,843 motor carriers of passengers likely to be affected by this
rulemaking to be small entities to avoid underestimating the impact
this rule will have on them. The agency believes the estimates
presented above are reasonable given the limited information available
about this segment of the motor carrier industry. Therefore, the agency
has made a determination that this rule would not affect a substantial
number of small entities. However, it could have a significant impact
on some of these 1,843 small entities, especially in those cases where
the profit margins are approximately 2.6 percent or less.
FMCSA has considered the comments to the previous rulemaking
documents concerning the regulation of small passenger-carrying CMVs,
and believes this group of motor carriers provides an important service
to its clients. These motor carriers provide services to individuals
for whom motor coach services are not available, those who may not be
able to afford to use motor coach operators, or individuals who choose,
for whatever reason, not to use motor coach operators for their
intercity travel. The agency believes the industry is very important to
those who rely on it. There is a possibility for failure of some small
passenger-carrying CMV operations, especially those with profit margins
of 2.6 percent or less. However, the number of failures among the
estimated 1,843 motor carriers operating small passenger-carrying CMVs
is expected to be small. Therefore, the agency believes there could be
a small degree of disruption in the services provided by small
passenger-carrying CMV operations that are not capable of putting into
place the safety management controls necessary to achieve compliance
with 49 CFR parts 390, 391, 392, 393, 395, and 396.
FMCSA has considered other regulatory alternatives as described
earlier, and determined that this action is necessary to fulfill
section 212 of the MCSIA and respond to the safety problem indicated by
the FARS and General Estimates System (GES) data. It is unlikely that a
rule establishing less stringent requirements would have the same
potential for improving the safety of operations of these CMVs.
Accordingly, FMCSA has considered the economic impacts of the
requirements on small entities and certifies that this rule will not
have a significant economic impact on a substantial number of small
entities.
Intergovernmental Review
Catalog of Federal Domestic Assistance Program Number 20.217, Motor
Carrier Safety. The regulations implementing Executive Order 12372
regarding intergovernmental consultation on Federal programs and
activities do not apply to this program.
Paperwork Reduction Act
Under the Paperwork Reduction Act of 1995 (PRA) (44 U.S.C. 3501-
3520), 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. FMCSA determined that
the requirements in this final rule will impact four currently-approved
information collections. FMCSA is requiring that motor carriers
operating CMVs designed or used to transport 9- to 15- passengers be
required to meet the recordkeeping requirements of 49 CFR parts 391,
395, and 396.
Medical Examination and Certification--OMB Control No. 2126-0006
Drivers operating CMVs designed or used to transport between 9 and
15 passengers will be required to meet the medical examination and
certification requirements at 49 CFR part 391, subpart E. The
information collection requirements related to that subpart have been
approved by the OMB under provisions of the PRA and assigned the OMB
Control No. 2126-0006, which is currently due to expire on October 31,
2003. FMCSA estimates it takes a medical examiner approximately 20
minutes to complete and document the medical examination and 1 minute
to complete the medical certificate, and that it takes a motor carrier
approximately 1 minute to make a copy of the medical certificate and
file it. Therefore, the total time associated with this information
collection, per driver, is 22 minutes. FMCSA estimates that
approximately 22,000 drivers will be subject to the final rule. The
estimated burden for the first year will be 8,067 burden hours [22,000
drivers x 22 minutes per driver, divided by 60 minutes in an hour].
Since the medical examiner's certificate is usually made valid for 24
months, the prorated annual burden will be approximately half that
amount. Therefore, the annual burden hours will be 4,034. FMCSA
submitted the amended medical qualification information collection to
the OMB for review and approval.
Driver Qualification Files--OMB Approval No. 2126-0004
Motor carriers that employ drivers of CMVs designed or used to
transport between 9 and 15 passengers will be required to maintain a
complete driver qualification file for each driver in accordance with
49 CFR 391.51. The information collection requirements related to
driver qualification files have been approved by the OMB under the
provisions of the PRA and assigned the OMB Control No. 2126-0004, which
is currently due to expire on August 31, 2004. The following components
are involved in this information collection: driver's employment
application (2 minutes for drivers), review of driver's employment
application (1 minute for motor carriers), initial inquiry of driving
record and investigation of employment (15 minutes for motor carriers),
list or certification of violations (2 minutes for drivers), and annual
review of driving record (5 minutes for motor carriers). The burden
hour estimate associated with this information collection is 25 minutes
per driver, which includes 21 minutes for motor carriers and 4 minutes
for drivers. Therefore, FMCSA estimates that the addition of the 22,000
drivers who will be subject to this final rule will increase the burden
hours of this information collection by 9,167 [22,000 drivers x 25
minutes, divided by 60 minutes in an hour]. FMCSA submitted the amended
driver qualification information collection to OMB for review and
approval.
Records of Duty Status--OMB Control No. 2126-0001
Drivers operating CMVs designed or used to transport between 9 and
15 passengers will be required to record their duty status in
accordance with 49 CFR 395.8. The information collection requirements
related to records of duty status have been approved by the OMB under
the provisions of the PRA and assigned the OMB Control No. 2126-0001,
which expires on March 31, 2005. FMCSA estimates the annual burden on
each CMV driver to be approximately 26 hours [6 minutes and 30 seconds
for each daily log x 240 workdays a year, divided by 60 minutes in an
hour]. The
[[Page 47874]]
total burden for the 22,000 drivers affected by this rule will be
572,000 [22,000 drivers x 26 hours per year]. In addition, each motor
carrier affected by this rule will have a supervisor responsible for
reviewing its driver records of duty status and that the supervisor
will spend approximately 12 hours per year reviewing these records to
ensure compliance with the hours-of-service rules [3 minutes per day to
review logs x 240 workdays]. The total burden for the supervisors of
the 22,000 drivers affected by this rule will be 264,000 [22,000
drivers x 12 hours per year]. Therefore, the total additional burden
for OMB Control No. 2126-0001 will be 836,000 annual burden hours
[572,000 + 264,000]. FMCSA submitted the amended driver records of duty
status information collection to OMB for review and approval.
Vehicle Inspection, Repair, and Maintenance--OMB Control No. 2126-0003
Motor carriers operating CMVs designed or used to transport between
9 and 15 passengers for direct compensation will be required to
maintain records of inspection, repair, and maintenance for their CMVs
in accordance with 49 CFR part 396. The information collection
requirements related to inspection, repair, and maintenance have been
approved by the OMB under the provisions of the PRA and assigned OMB
Control No. 2126-0003, which expires on May 31, 2004. FMCSA estimates
that it will take a total expenditure of 12 hours and 57 minutes (or
777 minutes) per year per CMV to complete the required recordkeeping
related to vehicular inspection, repair, and maintenance (48 minutes
per vehicle for systematic inspection, repair, and maintenance; 12
hours and 4 minutes per year per vehicle for driver vehicle inspection
reports; and 5 minutes per year per vehicle for periodic inspection).
Evidence of an individual's qualifications to perform periodic
vehicle inspections must be retained by the motor carrier. Evidence of
an individual's qualifications to be a brake inspector must also be
retained. The creation of these two types of qualification evidence
involves an estimated one-time, non-recurring expenditure of 5 minutes
by a safety director, driver supervisor, or equivalent position for
each type of inspector. Based on an estimate of 1,843 motor carriers
that will be subject to the rule and on the assumption that each motor
carrier has at least (1) one employee who is a qualified periodic
vehicle inspector and (2) one employee who is a qualified brake
inspector, the estimated total time burden related to the inspector
qualifications rules is approximately 307 annual burden hours [(5
minutes for each periodic vehicle inspector certification x 1,843 motor
carriers) + (5 minutes for each brake inspector certification x 1,843
motor carriers) = 18,430 minutes, divided by 60 minutes in an hour =
307 hours].
FMCSA estimates that the total inspection, repair, and maintenance
recordkeeping burden is approximately 238,976 burden hours per year
[18,430 CMVs x 777 minutes (or 12 hours and 57 minutes) per year per
CMV, divided by 60 minutes in an hour = 238,669, plus an additional 307
= 238,976]. FMCSA submitted the amended inspection, repair, and
maintenance information to OMB for review and approval.
The total estimated additional burden hours imposed by this rule
will be 1,088,177 [4,034 (associated with OMB Control No. 2126-0006) +
9,167 (associated with OMB Control No. 2126-0004) + 836,000 (associated
with OMB Control No. 2126-0001) + 238,976 (associated with OMB Control
No. 2126-0003)]. The following table displays this information:
------------------------------------------------------------------------
Additional
Currently- burden hours
OMB control No. approved associated
annual burden with this
hours final rule
------------------------------------------------------------------------
2126-0006............................... 1,180,792 4,034
2126-0004............................... 941,856 9,167
2126-0001............................... 161,364,492 836,000
2126-0003............................... 35,107,856 238,976
=========================================
------------------------------------------------------------------------
In the NPRM stage, we requested comments regarding the information
collection burden hour estimates. However, no comments were received
during the NPRM comment period regarding the estimated information
collection burdens.
National Environmental Policy Act
The agency has analyzed this rulemaking for purposes of the
National Environmental Policy Act of 1969 (42 U.S.C. 4321 et seq.) and
has determined that this action does not have any effect on the quality
of the environment.
Energy Effects
We have analyzed this action under Executive Order 13211, Actions
Concerning Regulations That Significantly Affect Energy Supply,
Distribution, or Use. We have determined that it is not a ``significant
energy action'' under that order because it is not economically
significant and is not likely to have a significant adverse effect on
the supply, distribution, or use of energy.
Unfunded Mandates Reform Act of 1995
This final rule does not impose an unfunded mandate, as defined by
the Unfunded Mandates Reform Act of 1995 (2 U.S.C. 1532 et seq.), that
will result in a $100 million or more expenditure (adjusted annually
for inflation) in any one year by State, local, and tribal governments,
in the aggregate, or by the private sector.
Civil Justice Reform
This rule meets applicable standards in sections 3(a) and 3(b)(2)
of Executive Order 12988, Civil Justice Reform, to minimize litigation,
eliminate ambiguity, and reduce burden.
Protection of Children
We have analyzed this action under Executive Order 13045,
Protection of Children from Environmental Health Risks and Safety
Risks. This rule is not an economically significant rule and does not
concern an environmental risk to health or safety that may
disproportionately affect children.
Taking of Private Property
This final rule will not effect a taking of private property or
otherwise have taking implications under Executive Order 12630,
Governmental Actions and Interference with Constitutionally Protected
Property Rights.
Federalism Assessment
We have analyzed this rule in accordance with the principles and
criteria of Executive Order 13132, Federalism. We have determined that
this action does not have a substantial direct effect on States or
impose additional costs or burdens on the States. Nothing in this
document limits the policymaking discretion of the States or directly
preempts any State law or regulation. Therefore, we have determined
that this final rule does not have federalism implications.
List of Subjects
49 CFR Part 390
Highway safety, Intermodal transportation, Motor carriers, Motor
vehicle safety, Reporting and recordkeeping requirements.
49 CFR Part 398
Highway safety, Migrant labor, Motor carriers, Motor vehicle
safety, Reporting and recordkeeping requirements.
0
For the reasons discussed in the preamble, the Federal Motor Carrier
Safety Administration amends title 49,
[[Page 47875]]
Code of Federal Regulations, parts 385, 390, and 398 as follows:
PART 390--FEDERAL MOTOR CARRIER SAFETY REGULATIONS; GENERAL
0
1. The authority citation for part 390 is revised to read as follows:
Authority: 49 U.S.C. 13301, 13902, 31132, 31133, 31136, 31502,
and 31504; sec. 204, Pub. L. 104-88, 109 Stat. 803, 941 (49 U.S.C.
701 note); secs. 212 and 217, Pub. L. 106-159, 113 Stat. 1748, 1766,
1767; and 49 CFR 1.73.
0
2. Amend Sec. 390.3 by revising paragraph (f)(6) to read as follows:
Sec. 390.3 General applicability.
(f) * * *
(6)(i) The operation of commercial motor vehicles designed or used
to transport between 9 and 15 passengers (including the driver), not
for direct compensation, provided the vehicle does not otherwise meet
the definition of a commercial motor vehicle, except that motor
carriers operating such vehicles are required to comply with Sec. Sec.
390.15, 390.19, and 390.21(a) and (b)(2).
(ii) The operation of commercial motor vehicles designed or used to
transport between 9 and 15 passengers (including the driver) for direct
compensation, provided the vehicle is not being operated beyond a 75
air-mile radius (86.3 statute miles or 138.9 kilometers) from the
driver's normal work-reporting location, and provided the vehicle does
not otherwise meet the definition of a commercial motor vehicle, except
that motor carriers operating such vehicles are required to comply with
Sec. Sec. 390.15, 390.19, and 390.21(a) and (b)(2).
0
3. Amend Sec. 390.5 by adding a definition for ``direct
compensation,'' in alphabetical order to read as follows:
Sec. 390.5 Definitions.
* * * * *
Direct compensation means payment made to the motor carrier by the
passengers or a person acting on behalf of the passengers for the
transportation services provided, and not included in a total package
charge or other assessment for highway transportation services.
* * * * *
PART 398--TRANSPORTATION OF MIGRANT WORKERS
0
4. The authority citation for part 398 is revised to read as follows:
Authority: 49 U.S.C. 13301, 13902, 31132, 31133, 31136, 31502,
and 31504; sec. 204, Pub. L. 104-88, 109 Stat. 803, 941 (49 U.S.C.
701 note); sec. 212, Pub. L. 106-159, 113 Stat. 1748, 1766; and 49
CFR 1.73.
0
5. Revise Sec. 398.2 to read as follows:
Sec. 398.2 Applicability.
(a) General. The regulations prescribed in this part are applicable
to carriers of migrant workers by motor vehicle, as defined in Sec.
398.1(b), but only in the case of transportation of any migrant worker
for a total distance of more than 75 miles (120.7 kilometers) in
interstate commerce, as defined in 49 CFR 390.5.
(b) Exception.
(1) The regulations prescribed in this part are not applicable to
carriers of migrant workers by motor vehicle, as defined in Sec.
398.1(b), when:
(i) The motor vehicle is designed or used to transport between 9
and 15 passengers (including the driver);
(ii) The motor carrier is directly compensated for the
transportation service; and
(iii) The vehicle used to transport mirgrant workers is operated
beyond a 75 air-mile radius (86.3 statute miles or 138.9 kilometers)
from the driver's normal work-reporting location.
(2) Carriers of migrant workers by motor vehicle that operate
vehicles, designed or used to transport between 9 and 15 passengers
(including the driver) for direct compensation, in interstate commerce,
must comply with the applicable requirements of 49 CFR parts 385, 390,
391, 392, 393, 395, and 396, when the motor vehicle is operated beyond
a 75 air-mile radius (86.3 statute miles or 138.9 kilometers) from the
driver's normal work-reporting location.
* * * * *
Issued on: August 5, 2003.
Annette M. Sandberg.
Administrator.
[FR Doc. 03-20369 Filed 8-11-03; 8:45 am]