[Federal Register Volume 79, Number 127 (Wednesday, July 2, 2014)]
[Rules and Regulations]
[Pages 37664-37669]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-15336]
[[Page 37664]]
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DEPARTMENT OF TRANSPORTATION
Federal Railroad Administration
49 CFR Part 233
[Docket No. FRA-2012-0104, Notice No. 2]
RIN 2130-AC44
Signal Systems Reporting Requirements
AGENCY: Federal Railroad Administration (FRA), Department of
Transportation (DOT).
ACTION: Final rule.
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SUMMARY: FRA is issuing this final rule as part of a paperwork
reduction initiative. The final rule eliminates the regulatory
requirement that each railroad carrier file a signal system status
report with FRA every five years. FRA believes the report is no longer
necessary because FRA receives more updated information regarding
railroad signal systems through alternative sources. Separately, FRA is
amending the criminal penalty provision in the Signal Systems Reporting
Requirements by updating two outdated statutory citations.
DATES: This final rule is effective on September 2, 2014. Petitions for
reconsideration must be received by August 21, 2014. Comments in
response to petitions for reconsideration must be received by October
6, 2014.
ADDRESSES: Petitions for reconsideration and comments on petitions for
reconsideration: Any petitions for reconsideration or comments on
petitions for reconsideration related to this Docket No. FRA-2012-0104,
Notice No. 2 may be submitted by any of the following methods:
Federal eRulemaking Portal: Go to www.Regulations.gov.
Follow the online instructions for submitting comments.
Mail: Docket Management Facility, U.S. Department of
Transportation, Room W12-140, 1200 New Jersey Avenue SE., Washington,
DC 20590-0001.
Hand Delivery: Docket Management Facility, U.S. Department
of Transportation, West Building, Ground floor, Room W12-140, 1200 New
Jersey Avenue SE., Washington, DC, between 9 a.m. and 5 p.m. ET, Monday
through Friday, except Federal holidays.
Fax: (202) 493-2251. Instructions: All submissions must
include the agency name and docket number or Regulatory Identification
Number (RIN) for this rulemaking.
Please note that all petitions for reconsideration of this final
rule and comments on the petitions that are received will be posted
without change to www.Regulations.gov, including any personal
information provided. Please see the discussion under the Privacy Act
heading in the SUPPLEMENTARY INFORMATION section of this document.
Docket: For access to the docket to read background documents or
comments received, go to www.Regulations.gov at any time or visit the
Docket Management Facility, U.S. Department of Transportation, West
Building, Ground floor, Room W12-140, 1200 New Jersey Avenue SE.,
Washington, DC between 9 a.m. and 5 p.m. ET, Monday through Friday,
except Federal holidays.
FOR FURTHER INFORMATION CONTACT: Sean Crain, Electronic Engineer,
Signal and Train Control Division, Office of Railroad Safety, FRA, W35-
226, 1200 New Jersey Avenue SE., Washington, DC 20590 (telephone: (202)
493-6257), [email protected], or Stephen N. Gordon, Trial Attorney,
Office of Chief Counsel, FRA, W31-209, 1200 New Jersey Avenue SE.,
Washington, DC 20590 (telephone: (202) 493-6001),
[email protected].
SUPPLEMENTARY INFORMATION:
I. Explanation of Regulatory Action
A. Elimination of the Signal System Five-[Y]ear Report
On May 14, 2012, President Obama issued Executive Order (E.O.)
13610--Identifying and Reducing Regulatory Burdens, which seeks ``to
modernize our regulatory system and to reduce unjustified regulatory
burdens and costs.'' See 77 FR 28469. The E.O. directs each executive
agency to conduct retrospective reviews of its regulatory requirements
to identify potentially beneficial modifications to regulations.
Executive agencies are to ``give priority, consistent with the law, to
those initiatives that will produce significant quantifiable monetary
savings or significant quantifiable reductions in paperwork burdens
while protecting public health, welfare, safety and our environment.''
See id. at 28470.
FRA initiated a review of its existing regulations in accordance
with E.O. 13610 and the Paperwork Reduction Act of 1995, 44 U.S.C. 3501
et seq., with the goal of identifying regulations that can be amended
or eliminated, thereby reducing the paperwork and reporting burden on
railroad carriers (railroads) that are subject to FRA jurisdiction. One
area where FRA believes it can help reduce the railroad industry's
reporting burden is by eliminating the requirement to file a ``Signal
System Five-Year Report.'' 49 CFR 233.9 (Sec. 233.9). Accordingly, FRA
proposed to do so in a notice of proposed rulemaking (NPRM) published
June 19, 2013. See 78 FR 36738.
Having considered the public comments on the NPRM, FRA is issuing
this final rule, which eliminates the requirement in Sec. 233.9 that
each carrier subject to the Signal Systems Reporting Requirements at 49
CFR part 233 (part 233) complete and submit a ``Signal System Five-Year
Report'' (Form FRA F6180.47) in accordance with the instructions and
definitions on the form. Part 233 applies to railroads that operate on
standard gage track that is part of the general railroad system of
transportation, except for rail rapid transit operations conducted over
track that is used exclusively for that purpose and that is not part of
the general railroad system of transportation. See 49 CFR 233.3,
Application; see also 49 CFR part 209, app. A, and part 211, app. A,
for discussions of the term ``general railroad system of
transportation[.]''
The information reported on FRA Form F6180.47 is intended to update
FRA on the status of the railroad's signal system. It provides a
snapshot of each reporting railroad's signal system every five years,
and FRA has historically used the report as a source to monitor changes
to signal systems among the Nation's railroads. In particular, the
report provides information such as the total road and track mileage
for each method of train operation on the reporting railroad (i.e.,
traffic control, automatic block, timetable and train orders, and non-
automatic block) and the total number of interlockings, controlled
points, and switch arrangements maintained by the reporting railroad.
The report also provides information on the total road and track
mileage and the total number of locomotives and motor cars (including
multiple unit cars) with automatic train stop, train control, and cab
signal systems on the line of the reporting railroad, including foreign
locomotives and ``motor cars'' that operate over these installations.
Prior to April 1, 1997, carriers were required to submit a ``Signal
System Annual Report'' by April 15 of each year. However, based on a
regulatory review, FRA extended the reporting requirement to every five
years rather than annually. See 61 FR 33871 (July 1, 1996). FRA
determined that a five-year reporting period would significantly
[[Page 37665]]
reduce the reporting burden on the railroads while still meeting the
informational needs of the government. Therefore, in July 1996, FRA
amended Sec. 233.9 to require that ``[n]ot later than April 1, 1997
and every 5 years thereafter, each carrier shall file with FRA a signal
system status report `Signal System Five-[Y]ear Report' on a form to be
provided by FRA in accordance with instructions and definitions
provided on the report.''
For the 2012 reporting period, FRA transitioned the ``Signal System
Five-Year Report'' form into an electronic format. The electronic form
required all of the same information as the paper form but could be
submitted via the Internet. The form was due to be submitted by no
later than April 1, 2012, and pertained to signal systems in service on
or after January 1, 2012. The next five-year report is not due until
April 2017. The present rulemaking eliminates the reporting requirement
in its entirety for April 2017 and thereafter.
FRA is eliminating the requirement to file a ``Signal System Five-
Year Report'' because the report is no longer necessary. The data
collected in the ``Signal System Five-Year Report'' quickly becomes
outdated. Railroads normally modify signal systems far more frequently
than once every five years. Indeed, FRA has generally found that signal
system modifications occur with such frequency under 49 CFR 235.5 and
235.7, that the ``Signal System Five-Year Report'' often is out-of-date
by the time it is received by FRA.
Moreover, FRA has other viable means to monitor a carrier's signal
system. It is better able to monitor the status of a railroad signal
system through the use of more frequently collected agency data--such
as the Block Signal Application (BSAP), see 49 CFR 235.5, and positive
train control (PTC) filings, see 49 CFR part 236, subparts H and I--
which provide the agency much more detailed and useful information. The
development and expansion of electronic reporting methods also allow
railroads to more frequently report to FRA information similar to that
which is captured in the ``Signal System Five-Year Report.'' This
ability gives FRA a better ``real-time'' understanding of a carrier's
signal system than the agency can get from a report that is filed once
every five years. As a result, FRA currently relies on the more up-to-
date sources for signal system data and has little use for the
information collected in the ``Signal System Five-Year Report.''
Finally, the railroad industry and the general public do not appear
to derive any useful benefit or information from the requirement to
submit a ``Signal System Five-Year Report.'' The responses FRA has
received from the industry and the general public indicate that, as
expected, the data contained in the report does not provide up-to-date
information about railroad signal systems. As a result, FRA is
confident that eliminating the report will not result in the railroad
industry's or the general public's being less informed about railroad
signal systems.
B. Updating Statutory Citations in Part 233
Administrative amendments are sometimes necessary to address
citations that have become outdated due to the actions of Congress.
This is particularly true when the statutory authority for a regulatory
provision is moved to a different title, chapter, or section of the
U.S. Code or if the statutory authority is redesignated as an entire
section of the U.S. Code instead of just a subsection of the U.S. Code.
Federal regulations do not ``auto-correct'' for these types of changes.
Therefore, it is incumbent on agencies to monitor their regulations and
make appropriate changes whenever feasible. FRA has identified two
citations in 49 CFR 233.13(b)--referencing ``section 209(e) of the
Federal Railroad Safety Act of 1970, as amended (49 U.S.C. 438(e))''
and ``49 U.S.C. 522(a)''--that should be amended for this reason, and
is making those amendments in this rulemaking.
The first of the subject statutory citations is to a section of the
former Federal Railroad Safety Act of 1970 (FRSA), as amended. See
Public Law 91-458 (October 16, 1970). Section 209 of the FRSA, as
originally enacted, contained a civil penalty provision that was
codified at 45 U.S.C. 438. Although the statute did not contain a
criminal penalty provision when it was first enacted, Congress
eventually determined that there may be situations where criminal
penalties are warranted for violations of the law. Accordingly, the
FRSA was amended on October 10, 1980. See Public Law 96-423. Among
other things, the 1980 amendment added subsection (e) to section 209 of
the FRSA, establishing that criminal penalties may be assessed against
any person who knowingly and willfully makes a false entry in a record
or report required to be made or preserved under the FRSA; destroys,
mutilates, changes, or otherwise falsifies such a record or report;
fails to enter required specified facts or transactions in such a
record or report; makes, prepares, or preserves such a record or report
in violation of a regulation or order issued under the FRSA; or files a
false record or report with the Secretary of Transportation. This
revision to the FRSA was codified at 45 U.S.C. 438(e).
In 1984, FRA amended its signal and train control regulations,
including 49 CFR part 233. See 49 FR 3374 (Jan. 26, 1984). Section
233.13(b) was amended at this time to read ``[w]hoever knowingly and
willfully--[f]iles a false report or other document required to be
filed by this part is subject to a $5,000 fine and 2 years imprisonment
as prescribed by 49 U.S.C. 522(a) and section 209(e) of the Federal
Railroad Safety Act of 1970, as amended (45 U.S.C. 438(e)).'' (Emphasis
added.) The italicized language reflected the added statutory authority
to impose certain criminal penalties that Congress provided in its 1980
amendment to the FRSA, which applied because FRSA was part of the
statutory basis for the requirements in part 233. See 49 FR 3378-79.
Subsequently, Congress made additional changes that applied to section
209(e) of the FRSA. In 1994, Congress enacted a law to ``revise,
codify, and enact without substantive change certain general and
permanent laws, related to transportation'' under title 49 of the U.S.
Code. See Public Law 103-272 and H.R. Rep. 103-180. As a result, the
general and permanent Federal railroad safety laws were repealed, and
their provisions were revised without substantive change, enacted, and
moved from title 45 (generally) to title 49. This 1994 law, commonly
referred to as ``recodification,'' included the FRSA as a whole, which
was recodified primarily in 49 U.S.C. chapter 201-213, including the
criminal penalty provision at section 209(e) (45 U.S.C. 438(e)), which
was recodified at 49 U.S.C. 21311. Recodification rendered this
statutory citation in 49 CFR 233.13(b) outdated, and FRA had not sought
to amend the regulatory provision prior to the NPRM in this rulemaking.
Given that FRA has begun the present rulemaking addressing part 233,
the agency views now as an appropriate time to update this citation in
paragraph (b) of Sec. 233.13.
The second of the statutory citations being updated is ``49 U.S.C.
522(a),'' which provides an additional statutory authority for criminal
penalties for violations of Sec. 233.9. Before the enactment of the
FRSA in 1970, part 233 had been issued pursuant to section 25(h) of the
Interstate Commerce Act (then codified at 49 U.S.C. 26(h)), the Signal
Inspection Act of 1937, commonly referred to as the Signal
[[Page 37666]]
Inspection Act,\1\ as well as other statutory provisions.\2\ In
particular, criminal penalties for violations of reporting requirements
established by part 233 were available under the predecessor of 49
U.S.C. 522,\3\ which reads as follows: ``A person required to make a
report to the Secretary of Transportation . . . under section 504 of
this title about transportation by rail carrier, that knowingly and
willfully (1) makes a false entry in the report . . . or (5) files a
false report . . . with the Secretary, shall be fined not more than
$5,000, imprisoned for not more than 2 years, or both.'' In turn, 49
U.S.C. 504 authorizes the Secretary to require periodic reports from
rail carriers containing answers to questions asked by the Secretary,
and is part of the statutory authority for part 233.
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\1\ The Signal Inspection Act of 1937 was repealed in the 1994
recodification of the rail safety laws, and its provisions were
revised and reenacted without substantive change, codified at 49
U.S.C. chapters 205 and 213. Public Law 103-272.
\2\ See final rule amendments to 49 CFR part 233 at 37 FR 7096-
97 (Apr. 8, 1972) citing the following: ``AUTHORITY: The provisions
of this Part 233 issued under secs. 12, 20, 24 Stat. 383, 386, as
amended, sec. 441, 41 Stat. 498, as amended, secs. 6(e), (f), 80
Stat. 937, 49 U.S.C. 12, 20, 26, 1655.''
\3\ Section 522 of title 49, U.S. Code was previously codified
at 49 U.S.C. 1655(f)(2) (section 6(f)(2) of the former Department of
Transportation Act, Public Law 89-670 (Oct. 15, 1966)), which gave
the same administrative powers exercised by the Interstate Commerce
Commission under certain sections of title 49 to carry out duties
transferred to the Secretary of Transportation by 49 U.S.C. 1655(e).
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In 1998, Public Law 105-178, sec. 4015(c), 112 Stat. 412, struck
the designation ``(a)'' for the first subsection of 49 U.S.C. 522 and
struck former subsection (b) in its entirety. Accordingly, the current
citation for the provision cited as ``49 U.S.C. 522(a)'' in paragraph
(b) of Sec. 233.13 is being corrected to read as ``49 U.S.C. 522''
instead.
FRA identified the need for this update to the citation to ``49
U.S.C. 522(a)'' after the NPRM in this rulemaking was issued and is
incorporating this change to Sec. 233.13(b) in this final rule. For
clarity FRA is also updating the authority citation for part 233 by
adding explicit citations to 49 U.S.C. 504 and 522. FRA is proceeding
to a final rule without providing an NPRM or an opportunity for public
comment on this aspect of the final rule. Public comment is unnecessary
because, in making this revision, FRA is not exercising discretion in a
way that could be informed by public comment. Therefore notice and
comment procedures are ``impracticable, unnecessary, or contrary to the
public interest'' within the meaning of the Administrative Procedure
Act. 5 U.S.C. 553(b)(3)(B).
C. Responses to Public Comments
FRA received comments in response to the NPRM from a single entity,
the Brotherhood of Railroad Signalmen (BRS), which were submitted on
August 19, 2013. Essentially, BRS questions the basis for eliminating
the requirement for each railroad to file a ``Signal System Five-Year
Report.'' BRS suggests that--rather than eliminating the five-year
reporting requirement--FRA should be shifting its regulatory focus in
the opposite direction by reverting back to an annual report, as was
required prior to 1997.
FRA currently receives more information about the signal systems of
the Nation's railroads than it has ever received in the past. The
agency regularly receives and reviews signal system reports through
methods such as BSAPs and the various PTC plans, like the PTC
Development Plan (PTCDP) and the PTC Implementation Plan (PTCIP). The
receipt of this information makes FRA more knowledgeable than ever, and
it also renders certain types of other information superfluous. Given
the signal system information reported to FRA through these methods,
FRA does not see a need to rely on the information in the ``Signal
System Five-Year Report'' to further its safety mission. As a result,
there is not a sufficient safety justification to continue requiring
each railroad to file a ``Signal System Five-Year Report'' with FRA.
Returning to a yearly reporting requirement would add even more
regulatory costs without an offsetting safety benefit. Such a move
would increase the reporting burden on the railroads, and conflict with
the goals of E.O. 13610 and the Paperwork Reduction Act.
BRS also questions FRA's statement in the NPRM that the feedback
from the railroad industry and the general public indicated that the
data contained in the ``Signal System Five-Year Report'' is not useful
in providing up-to-date information about railroad signal systems. BRS
contends that FRA's statement in the NPRM was not supported by
documentation.
The support for FRA's view of the apparent usefulness of the
``Signal System Five-Year Report'' comes directly from the Signal
Division of FRA's Office of Railroad Safety, which is responsible for
handling the reports. Over the course of the last ten years, FRA has
received exactly two requests for data from the report. One of these
requests came from an attorney, and the other came from a signal
supplier. The attorney took a copy of the ``Signal System Five-Year
Report'' for a railroad. The attorney later called the FRA employee
responsible for handling the report and said that the information in
the report was out-of-date and not useful. The signal supplier had a
similar reaction when FRA explained the contents of the report and did
not even bother to take a copy of the data. The supplier further
informed FRA that the data collected was not specific enough to be
helpful.
Finally, BRS argues that FRA should collect each railroad's signal
system status in real time because it is necessary for FRA to keep
abreast of upcoming technologies railroads intend to use. FRA
recognizes the importance of staying current with the changing
technologies. The agency is increasingly using electronic reporting
methods to gather information in a more efficient and timely manner.
And, as noted above, with the various reporting requirements of PTC
(both subparts H and I of part 236), FRA is being informed more
frequently than ever about the latest railroad signal systems with
railroads filing Product Safety Plans (PSPs), PTCDPs, PTCIPs, and PTC
Safety Plans (PTCSPs) about the upcoming PTC technologies the railroads
plan to use and any signal system upgrades and/or changes that are
being implemented to support the installation of PTC. As technology
moves forward and resources change, there may be additional
opportunities for FRA to take advantage real-time information
collection provided that there is a legal basis for such information
collection, but that does not have any bearing on the efficacy of
continuing to require railroads to file the ``Signal System Five-Year
Report.''
In FRA's view, the ``Signal System Five-Year Report'' has a very
limited usefulness. The feedback from the public tends to support FRA's
view. Therefore, FRA has made a determination that the railroads that
are subject to the Signal Systems Reporting Requirements in part 233
should not have to commit resources to the time and expense of
collecting the information required by the report.
II. Section-by-Section Analysis
PART 233--SIGNAL SYSTEMS REPORTING REQUIREMENTS
Section 233.9 Reports
FRA is eliminating the ``Signal System Five-Year Report'' required
by this section and reserving the section for future use. As stated in
the NPRM, eliminating this reporting requirement will reduce the
railroad industry's paperwork burden in a way that does
[[Page 37667]]
not endanger the public health, welfare, and safety or our environment.
There are three specific reasons that support FRA's elimination of this
reporting requirement. First, the information contained in the ``Signal
System Five-Year Report'' quickly becomes obsolete. Second, FRA is
better able to determine the status of a railroad's signal system
through other more frequently collected types of information. Third,
the ``Signal System Five-Year Report'' has limited usefulness to the
railroad industry or the general public.
Section 233.13 Criminal Penalty
After receiving no comments on this proposed amendment, FRA is
making an administrative change to paragraph (b) of this section to
correct two out-of-date statutory citations. Current paragraph (b)
provides that it is unlawful to knowingly and willfully file a false
report or other document required by part 233. Such conduct is
punishable with a fine of $5,000 and up to two years of imprisonment.
The paragraph cites to ``section 209(e) of the Federal Railroad Safety
Act of 1970 (45 U.S.C. 438(e))'' as statutory authority for the
criminal penalties; however, this statutory provision was repealed,
revised without substantive change, reenacted, and recodified under a
different title of the U.S. Code as part of a reorganization of the
Federal railroad safety statutes by Congress. The provision is
currently housed at 49 U.S.C. 21311. This final rule corrects the
outdated citation in paragraph (b) by replacing ``45 U.S.C. 438(e)''
with the current citation, which is ``49 U.S.C. 21311.'' Paragraph (b)
also cites to ``49 U.S.C. 522(a)''; however, this provision has been
redesignated as simply ``49 U.S.C. 522'' instead. The references in
paragraph (b) are updated accordingly to reflect the current statutory
citations. These updates also are reflected in changes to the
``Authority'' listed for part 233 to accurately state the statutory
bases for this regulatory provision.
Appendix A to Part 233--Schedule of Civil Penalties
FRA is amending appendix A to part 233, which contains a schedule
of civil penalties for use in connection with this part, in this final
rule to remove and reserve the entry for Sec. 233.9, in accordance
with other amendments being prescribed in this rulemaking.
III. Regulatory Impact
A. Executive Orders 12866 and 13563 and DOT Regulatory Policies and
Procedures
This rulemaking eliminates the requirement in Sec. 233.9 that each
railroad subject to part 233 file with FRA a ``Signal System Five-Year
Report.'' The final rule has been evaluated in accordance with existing
policies and procedures. It is not considered a significant regulatory
action under E.O. 12866 and E.O. 13563. This rule also is not
significant under the DOT Regulatory Policies and Procedures. 44 FR
11034 (Feb. 26, 1979). A regulatory impact analysis addressing the
economic impact of this final rule has been prepared and placed in the
docket.
As part of the regulatory evaluation, FRA has explained the
benefits of this final rule and provided monetized assessments of the
value of such benefits. The final rule eliminates the cost associated
with submitting a ``Signal System Five-Year Report.'' Each railroad
currently expends approximately one hour of labor to prepare and submit
the report to FRA every five years. For the 20-year period analyzed,
the estimated cost savings will be $234,265. The present value of this
is $121,904 (using a 7 percent discount rate). This regulation only
reduces the burden on railroads; it does not impose any additional
costs. Therefore, the net benefit of this final rule will be $121,904
(present value, 7 percent).
B. Regulatory Flexibility Act and Executive Order 13272
The Regulatory Flexibility Act (RFA), Public Law 96-354, as
amended, and codified as amended at 5 U.S.C. 601-612, and E.O. 13272--
Proper Consideration of Small Entities in Agency Rulemaking, 67 FR
53461 (Aug. 16, 2002), require agency review of proposed and final
rules to assess their impact on ``small entities'' for purposes of the
RFA. An agency must prepare a final regulatory flexibility analysis
unless it determines and certifies that a rule is not expected to have
a significant impact on a substantial number of small entities.
Pursuant to the RFA, 5 U.S.C. 605(b), the Administrator of FRA
certifies that this final rule will not have a significant economic
impact on a substantial number of small entities. This final rule will
affect all railroads, including small railroads. However, the effect on
these railroads will be purely beneficial and not significant, as it
will reduce their labor burden by eliminating the need to file a
``Signal System Five-Year Report.''
The term ``small entity'' is defined in 5 U.S.C. 601. Section
601(6) defines ``small entity'' as having the same meaning as ``the
terms `small business', `small organization' and `small governmental
jurisdiction' defined in paragraphs (3), (4), and (5) of this
section.'' In turn, section 601(3) defines a ``small business'' as
generally having the same meaning as ``small business concern'' under
Section 3 of the Small Business Act. This includes any a small business
concern that is independently owned and operated, and is not dominant
in its field of operation. Next, section 601(4) defines ``small
organization'' as generally meaning any not-for-profit enterprises that
is independently owned and operated, and not dominant in its field of
operations. Additionally, section 601(5) defines ``small governmental
jurisdiction'' in general to include governments of cities, counties,
towns, townships, villages, school districts, or special districts with
populations less than 50,000.
The U.S. Small Business Administration (SBA) stipulates ``size
standards'' for small entities. It provides that the largest that a
for-profit railroad business firm may be (and still be classified as a
``small entity'') is 1,500 employees for ``Line-Haul Operating''
railroads, and 500 employees for ``Short-Line Operating'' railroads.
See ``Size Eligibility Provisions and Standards,'' 13 CFR part 121
subpart A.
Under exceptions provided in section 601, Federal agencies may
adopt their own size standards for small entities in consultation with
SBA, and in conjunction with public comment. Pursuant to the authority
provided to it by SBA, FRA has published a ``Final Policy Statement
Concerning Small Entities Subject to the Railroad Safety Laws,'' which
formally establishes small entities as including, among others, the
following: (1) The railroads classified by the Surface Transportation
Board as Class III; and (2) commuter railroads ``that serve populations
of 50,000 or less.'' \4\ See 68 FR 24891 (May 9, 2003)
[[Page 37668]]
codified at appendix C to 49 CFR part 209. Currently, the revenue
requirements are $20 million or less in annual operating revenue,
adjusted annually for inflation. The $20 million limit (adjusted
annually for inflation) is based on the Surface Transportation Board's
threshold of a Class III railroad, which is adjusted by applying the
railroad revenue deflator adjustment.\5\ For further information on the
calculation of the specific dollar limit, please see 49 CFR part 1201.
FRA is using this definition of ``small entity'' for this final rule.
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\4\ ``In the Interim Policy Statement [62 FR 43024 (Aug. 11,
1997)], FRA defined `small entity,' for the purpose of communication
and enforcement policies, the Regulatory Flexibility Act, 5 U.S.C.
601 et seq., and the Equal Access for Justice Act 5 U.S.C. 501 et
seq., to include only railroads which are classified as Class III.
FRA further clarified the definition to include, in addition to
Class III railroads, hazardous materials shippers that meet the
income level established for Class III railroads (those with annual
operating revenues of $20 million per year or less, as set forth in
49 CFR 1201.1-1); railroad contractors that meet the income level
established for Class III railroads; and those commuter railroads or
small governmental jurisdictions that serve populations of 50,000 or
less.'' 68 FR 24892 (May 9, 2003). ``The Final Policy Statement
issued today is substantially the same as the Interim Policy
Statement.'' 68 FR 24894.
\5\ In general, under 49 CFR 1201.1-1, the class into which a
railroad carrier falls is determined by comparing the carrier's
annual inflation-adjusted operating revenues for three consecutive
years to the following scale after the dollar figures in the scale
are adjusted by applying the railroad revenue deflator formula:
[cir] Class I--$250 million or more;
[cir] Class II--more than $20 million, but less than $250
million; and
[cir] Class III--$20 million or less.
49 CFR 1201.1-1(a), (b)(1). STB's General Instructions at 1-1
state that carriers are grouped into three classes for purposes of
accounting and reporting. The three classes are as follows:
Class I: Those carriers having annual carrier operating revenues
of $250 million or more after applying STB's railroad revenue
deflator formula shown in Note A.
Class II: These carriers have annual carrier operating revenues
of less than $250 million but in excess of $20 million after
applying STB's railroad revenue deflator formula.
Class III: These carriers have annual carrier operating revenues
of $20 million or less after applying STB's railroad revenue.
The STB Web site indicates that the scale for 2011 is as
follows:
[cir] Class I--$433,211,345 or more;
[cir] Class II--more than $34,656,908, but less than
$433,211,345; and
[cir] Class III--$34,656,908 or less.
See also 78 FR 21007 (Apr. 8, 2013). It should be noted that
there are some exceptions to this general definition of the three
classes of carriers. As one important example, ``[f]amilies of
railroads operating within the United States as a single, integrated
rail system will be treated as a single carrier for classification
purposes.'' 49 CFR 1201-1.1(b)(1). As another example, ``[a]ll
switching and terminal companies, regardless of their operating
revenues, will be designated Class III carriers.'' 49 CFR 1201-
1.1(d).
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FRA estimates that there are 763 railroads that operate on standard
gage track that is part of the general railroad system of
transportation and therefore subject to part 233, see 49 CFR 233.3, all
of which will be affected by this final rule. Of those railroads, 44
are Class I freight railroads, Class II freight railroads, commuter
railroads serving populations of 50,000 or more, or intercity passenger
railroads (i.e., the National Railroad Passenger Corporation (Amtrak),
a Class I railroad, and the Alaska Railroad, a Class II railroad). The
remaining 719 railroads are therefore assumed to be small railroads for
the purpose of this assessment, all of which will be impacted by this
final rule. However, the impact on these small railroads will not be
significant. No other small entities will be affected by this final
rule. FRA estimates that each report takes approximately one labor hour
to prepare and submit to FRA. The elimination of this reporting
requirement will save each railroad one hour of labor every five years.
Therefore, this final rule will have a positive effect on these
railroads, saving each railroad approximately $307 (non-discounted) in
labor costs over the 20-year analysis. Since this amount is extremely
small and entirely beneficial, FRA concludes that this final rule will
not have a significant impact on these railroads.
Pursuant to the RFA, FRA certifies that this final rule will not
have a significant impact on a substantial number of small entities.
Although a substantial number of small railroads will be affected by
the final rule, none of these entities will be significantly impacted.
C. Federalism
Executive Order 13132, ``Federalism,'' 64 FR 43255 (Aug. 10, 1999),
requires FRA to develop an accountable process to ensure ``meaningful
and timely input by State and local officials in the development of
regulatory policies that have federalism implications.'' ``Policies
that have federalism implications'' are defined in the E.O. to include
regulations that have ``substantial direct effects on the States, on
the relationship between the national government and the States, or on
the distribution of power and responsibilities among the various levels
of government.'' Under E.O. 13132, the agency may not issue a
regulation with federalism implications that imposes substantial direct
compliance costs and that is not required by statute, unless the
Federal government provides the funds necessary to pay the direct
compliance costs incurred by State and local governments, the agency
consults with State and local governments, or the agency consults with
State and local government officials early in the process of developing
the regulation. Where a regulation has federalism implications and
preempts State law, the agency seeks to consult with State and local
officials in the process of developing the regulation.
This final rule has been analyzed in accordance with the principles
and criteria contained in E.O. 13132. FRA has determined that the final
rule will not have substantial direct effects on the States, on the
relationship between the national government and the States, or on the
distribution of power and responsibilities among the various levels of
government. In addition, FRA has determined that this final rule will
not impose substantial direct compliance costs on State and local
governments. Therefore, the consultation and funding requirements of
E.O. 13132 do not apply.
However, this final rule could have preemptive effect by operation
of law under certain provisions of the Federal railroad safety statutes
authorizing part 233, including specifically the former FRSA, repealed
and recodified at 49 U.S.C 20106, and the former Signal Inspection Act
of 1937, repealed and recodified at 49 U.S.C. 20501-20505. See Public
Law 103-272 (July 5, 1994). The former FRSA provides that States may
not adopt or continue in effect any law, regulation, or order related
to railroad safety or security that covers the subject matter of a
regulation prescribed or order issued by the Secretary of
Transportation (with respect to railroad safety matters) or the
Secretary of Homeland Security (with respect to railroad security
matters), except when the State law, regulation, or order qualifies
under the ``local safety or security hazard'' exception to section
20106.
In sum, FRA has analyzed this final rule in accordance with the
principles and criteria contained in E.O. 13132. As explained above,
FRA has determined that this final rule has no federalism implications,
other than the possible preemption of State laws under the Federal
statutes authorizing part 233, including the former FRSA and the former
Signal Inspection Act of 1937. Accordingly, FRA has determined that
preparation of a federalism summary impact statement for this final
rule is not required.
D. International Trade Impact Assessment
The Trade Agreement Act of 1979, Public Law 96-39, 93 Stat. 144
(July 26, 1979), prohibits Federal agencies from engaging in any
standards or related activities that create unnecessary obstacles to
the foreign commerce of the United States. Legitimate domestic
objectives, such as safety, are not considered unnecessary obstacles.
The statute also requires consideration of international standards and
where appropriate, that they be the basis for U.S. standards. This
rulemaking is purely domestic in nature and is not expected to affect
trade opportunities for U.S. firms doing business overseas or for
foreign firms doing business in the United States.
[[Page 37669]]
E. Paperwork Reduction Act
Under the Paperwork Reduction Act of 1995 (PRA), 44 U.S.C. 3501 et
seq., Federal agencies must obtain approval from the Office of
Management and Budget for each collection of information they conduct,
sponsor, or require through regulations. FRA has carefully reviewed the
final rule and any potential PRA implications. Since the present
rulemaking will eliminate the reporting requirement associated with
Sec. 233.9 in its entirety for April 2017 and thereafter, there is no
change to the currently approved burden under OMB No. 2130-0006.
Organizations and individuals desiring to obtain a copy of the
above currently approved collection of information should contact Mr.
Robert Brogan or Ms. Kimberly Toone via mail at FRA, 1200 New Jersey
Ave. SE., Third Floor, Washington, DC 20590. Copies may also be
obtained by telephoning Mr. Brogan at (202) 493-6292 or Ms. Toone at
(202) 493-6132. (These numbers are not toll-free.) Additionally, copies
may be obtained via email by contacting Mr. Brogan or Ms. Toone at the
following addresses: [email protected]; [email protected].
F. Compliance With the Unfunded Mandates Reform Act of 1995
Pursuant to Section 201 of the Unfunded Mandates Reform Act of
1995, Public Law 104-4, 2 U.S.C. 1531, each Federal agency ``shall,
unless otherwise prohibited by law, assess the effects of Federal
regulatory actions on State, local, and tribal governments, and the
private sector (other than to the extent that such regulations
incorporate requirements specifically set forth in law).'' Section 202
of the Act, see 2 U.S.C. 1532, further requires that ``before
promulgating any general notice of proposed rulemaking that is likely
to result in the promulgation of any rule that includes any Federal
mandate that may result in expenditure by State, local, and tribal
governments, in the aggregate, or by the private sector, of
$100,000,000 or more (adjusted annually for inflation) in any 1 year,
and before promulgating any final rule for which a general notice of
proposed rulemaking was published, the agency shall prepare a written
statement'' detailing the effect on State, local, and tribal
governments and the private sector. The final rule will not result in
the expenditure, in the aggregate, of $100,000,000 or more (adjusted
for inflation) in any one year, and thus preparation of such a
statement is not required.
G. Environmental Assessment
FRA has evaluated this final rule in accordance with its
``Procedures for Considering Environmental Impacts'' (FRA's
Procedures), 64 FR 28545 (May 26, 1999), as required by the National
Environmental Policy Act, 42 U.S.C. 4321 et seq., other environmental
statutes, executive orders, and related regulatory requirements. FRA
has determined that this final rule is not a major FRA action
(requiring the preparation of an environmental impact statement or
environmental assessment) because it is categorically excluded from
detailed environmental review pursuant to section 4(c)(20) of FRA's
Procedures. See 64 FR 28547 (May 26, 1999).
In accordance with section 4(c) and (e) of FRA's Procedures, the
agency has further concluded that no extraordinary circumstances exist
with respect to this regulation that might trigger the need for a more
detailed environmental review. As a result, FRA finds that this final
rule is not a major Federal action significantly affecting the quality
of the human environment.
H. Energy Impact
E.O. 13211 requires Federal agencies to prepare a Statement of
Energy Effects for any ``significant energy action.'' See 66 FR 28355
(May 22, 2001). Under the E.O., a ``significant energy action'' is
defined as ``any action by an agency (normally published in the Federal
Register) that promulgates or is expected to lead to the promulgation
of a final rule or regulation, including notices of inquiry, advance
notices of proposed rulemaking, and notices of proposed rulemaking:
(1)(i) [t]hat is a significant regulatory action under E.O. 12866 or
any successor order, and (ii) is likely to have a significant adverse
effect on the supply, distribution, or use of energy; or (2) that is
designated by the Administrator of the Office of Information and
Regulatory Affairs as a significant energy action.'' FRA has evaluated
this final rule in accordance with E.O. 13211. FRA has determined that
this final rule is not likely to have a significant adverse effect on
the supply, distribution, or use of energy. Consequently, FRA has
determined that this final rule is not a ``significant energy action''
within the meaning of E.O. 13211.
I. Privacy Act
FRA wishes to inform all potential petitioners for reconsideration
of the final rule or commenters on any petition for reconsideration of
the final rule that anyone is able to search the electronic form of all
comments received into any agency docket 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, see 65 FR 19477-78, or you may visit http://www.regulations.gov/#!privacyNotice.
List of Subjects in 49 CFR Part 233
Penalties, Railroad safety, Reporting and recordkeeping
requirements.
The Final Rule
For the reasons discussed in the preamble, FRA amends part 233 of
chapter II, subtitle B of title 49 of the Code of Federal Regulations
as follows:
PART 233--[AMENDED]
0
1. The authority citation for part 233 is revised to read as follows:
Authority: 49 U.S.C. 504, 522, 20103, 20107, 20501-20505,
21301, 21302, 21311; 28 U.S.C. 2461, note; and 49 CFR 1.89.
Sec. 233.9 [Removed and Reserved]
0
2. Section 233.9 is removed and reserved.
0
3. Paragraph (b) of Sec. 233.13 is revised as follows:
Sec. 233.13 Criminal penalty.
* * * * *
(b) Files a false report or other document required to be filed by
this part is subject to a $5,000 fine and 2 years imprisonment as
prescribed by 49 U.S.C. 522 and 49 U.S.C. 21311.
Appendix A to Part 233--[Amended]
0
4. Appendix A is amended by removing and reserving the entry for
``233.9 Annual reports''.
Issued in Washington, DC, on June 24, 2014.
Joseph C. Szabo,
Administrator.
[FR Doc. 2014-15336 Filed 7-1-14; 8:45 am]
BILLING CODE 4910-06-P