[Federal Register Volume 70, Number 168 (Wednesday, August 31, 2005)]
[Proposed Rules]
[Pages 51707-51719]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 05-17245]


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DEPARTMENT OF TRANSPORTATION

National Highway Traffic Safety Administration

49 CFR Part 571

[DOT Docket No. NHTSA-2005-22242]
RIN 2127-AJ57


Federal Motor Vehicle Safety Standards; Cargo Carrying Capacity

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

ACTION: Notice of proposed rulemaking (NPRM).

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SUMMARY: In this notice of proposed rulemaking (NPRM), we (NHTSA) seek 
to address the problem of motor home and travel trailer overloading by 
proposing to amend the Federal motor vehicle safety standard (FMVSS) on 
tire selection and rims for motor vehicles other than passenger cars. 
We are also proposing a related amendment to our safety standard for 
tire selection and rims for light vehicles.
    We propose to require manufacturers of motor homes and travel 
trailers over 4,536 kilograms (10,000 pounds) GVWR to provide 
information to consumers in a label that is intended to inform the 
consumer about the vehicle's cargo carrying capacity (CCC). This 
information would be helpful both at the time the consumer is making a 
purchase decision and also as the consumer uses his or her vehicle. We 
also propose to require that the size of tires on the same motor homes 
and travel trailers be the same as the size of the tires listed on the 
tire information label required by the standard on tire selection and 
rims for motor vehicles other than passenger cars.
    We are limiting our CCC label to motor homes and travel trailers 
with a GVWR greater than 4,536 kilograms (10,000 pounds) as these are 
the vehicles that have large open interior areas that consumers fill 
with cargo. Recreational vehicles (RV) with GVWRs equal to or less than 
4,536 kilograms (10,000 pounds) will be required to have less detailed 
CCC information as a result of an amendment to the FMVSS on tire 
selection and rims, which becomes effective September 1, 2005. It 
should be noted that on June 1, 2007, the FMVSS on tire selection and 
rims for motor vehicles other than passenger cars will apply to 
vehicles with a GVWR greater than 4,536 kilograms (10,000 pounds) and 
the FMVSS on tire selection and rims will apply to vehicles with a GVWR 
equal to or less than 4,536 kilograms (10,000 pounds).
    It is our belief that this proposed rule complements the efforts of 
the recreational vehicle industry to provide consumers with information 
in order to help reduce overloading motor homes and travel trailers. 
This rulemaking responds to a petition from Ms. Justine May.
    In addition, this proposed rule would provide regulatory relief for 
dealers from a labeling requirement in the safety standard on tire 
selection and rims for light vehicles. The standard's requirement may 
currently require dealers which add even small amounts of weight to re-
label the vehicles. Under the proposed amendment, dealers that add 
weight in excess of 0.5 percent of the vehicles' gross vehicle weight 
ratings would be required to disclose this extra weight on labels 
affixed to the vehicles. Dealers could add lesser amounts of weight 
without needing to change or add labels.

DATES: You should submit your comments early enough to ensure that 
Docket Management receives them not later than October 31, 2005.

ADDRESSES: You may submit your comments in writing to: Docket 
Management, Room PL-401, 400 Seventh Street, SW., Washington, DC, 
20590. Alternatively, you may submit your comments electronically by 
logging onto the Docket Management System Web site at http://dms.dot.gov. Click on ``Help & Information'' or ``Help/Info'' to view 
instructions for filing your comments electronically. Regardless of how 
you submit your comments, you should mention the docket number of this 
document.

[[Page 51708]]

    You may call the Docket at 202-366-9324. You may visit the Docket 
from 10 a.m. to 5 p.m., Monday through Friday, except for Federal 
holidays.

FOR FURTHER INFORMATION CONTACT: For non-legal issues, you may call Mr. 
William D. Evans, Office of Crash Avoidance Standards at (202) 366-
2272. His FAX number is (202) 366-7002.
    For legal issues, you may call Ms. Dorothy Nakama, Office of the 
Chief Counsel at (202) 366-2992. Her FAX number is (202) 366-3820.
    You may send mail to both of these officials at National Highway 
Traffic Safety Administration, 400 Seventh St., SW., Washington, DC 
20590.

SUPPLEMENTARY INFORMATION:

Table of Contents

I. How Did This Rulemaking Begin?--May Petition
II. What is the Safety Need for the Proposed Rule?--Helping to 
Prevent Motor Home and Travel Trailer Overloading
    A. Background
    B. Motor Homes
    C. Travel Trailers
    D. How Motor Homes and Travel Trailers Can Become Overloaded
III. Previous NHTSA Rulemaking on Cargo Load Information
IV. Cargo Carrying Capacity-Related Consumer Information and Labels 
Currently Required by NHTSA
    A. 49 CFR Part 567, Certification
    B. 49 CFR 571.120 (FMVSS No.120) Tire selection and rims for 
motor vehicles other than passenger cars
    C. 49 CFR 571.110 (FMVSS No. 110) Tire selection and rims
    D. 49 CFR 575.6 Consumer Information Requirements
    E. 49 CFR 575.103, Truck-camper loading
V. Cargo Carrying Capacity Consumer Information and Labels Currently 
Required by Others
VI. Notice of Proposed Rulemaking
    A. Definitions
    B. GVWR, GAWR and Tire Load Information for Motor Homes and 
Travel Trailers
    C. Determining Occupant Capacity Weight
    D. Location of Labels
    E. Proposed Label Format and Content
    F. Addition of Weight to FMVSS No. 110 Vehicles and FMVSS No. 
120 Motor Homes and Travel Trailers Between Vehicle Certification 
and First Retail Sale of the Vehicle
    1. FMVSS No. 110
    2. FMVSS No. 120
VII. Leadtime
VIII. Regulatory Analyses and Notices
    A. Executive Order 12866 and DOT Regulatory Policies and 
Procedures
    B. Executive Order 13132 (Federalism)
    C. Executive Order 13045 (Economically Significant Rules 
Affecting Children)
    D. Executive Order 12988 (Civil Justice Reform)
    E. Regulatory Flexibility Act
    F. National Environmental Policy Act
    G. Paperwork Reduction Act
    H. National Technology Transfer and Advancement Act
    I. Unfunded Mandates Reform Act of 1995
    J. Plain Language
    K. Regulation Identifier Number (RIN)

Proposed Regulatory Text

I. How Did This Rulemaking Begin?--The May Petition

    In a petition dated January 21, 2000, Ms. Justine May petitioned 
NHTSA to amend Federal Motor Vehicle Safety Standard (FMVSS) Number 
120, Tire selection and rims for motor vehicles other than passenger 
cars. Ms. May requested that FMVSS No. 120 be revised in such a way 
that motor vehicles would be equipped with tires that meet maximum load 
standards when the vehicle is loaded with a reasonable amount of 
luggage and the total number of passengers the vehicle is designed to 
carry. The petition suggested that the language added to FMVSS No. 120 
be sufficient to allow for enforcement and for appropriate penalties 
when non-compliance exists. Ms. May's stated reason for her petition is 
her family's personal experience with a fifth-wheel travel trailer. She 
stated that there was no information provided with her trailer stating 
its cargo carrying capacity (CCC). Ms. May believes that loading her 
vehicle with cargo for a trip placed it in an overloaded condition, 
resulting in tire blowouts.
    We granted Ms. May's petition for rulemaking.

II. What Is the Safety Need for the Proposed Rule?--Helping To Prevent 
Motor Home and Travel Trailer Overloading

    A. Background--Over the years, the agency has received inquiries 
and complaints from the public about problems resulting from motor home 
and travel trailer overloading. Many overloading problems surface in 
the form of complaints about poor handling, reduced braking 
capabilities, tire failure and the premature failure of suspension 
components. NHTSA believes that this proposal will address the problem 
of overloading, by helping consumers have a better idea of when the 
cargo carrying capacities of their motor homes and travel trailers are 
being met, and exceeded.
    This proposed rule addresses motor homes and travel trailers. Based 
on NHTSA staff's discussions with motor home/travel trailer owners, 
representatives of the recreational vehicle industry and other 
recreational vehicle groups, the agency has tentatively concluded that 
many motor home and travel trailer owners are unaware of their 
vehicle's cargo carrying capacity until a problem becomes apparent. 
State laws do not require motor homes and travel trailers to use 
roadside weighing stations as they do for heavy commercial vehicles. 
NHTSA believes that consumer information in the form of a required 
label will reinforce existing efforts by the industry to inform 
consumers of a motor home or travel trailer's cargo carrying capacity.
    The Recreation Vehicle Industry Association (RVIA) (http://www.rvia.org) reports that the sales of recreational vehicles (motor 
homes, travel trailers, fifth wheel trailers, truck campers, and 
folding camping trailers) totaled approximately 325,000 units in 2003, 
an increase of approximately 2.5 percent over the previous year. The 
RVIA cited a 2001 University of Michigan study that shows there are a 
record 7.2 million recreational vehicles on the roads in the United 
States and an estimated 30 million recreational vehicle enthusiasts, 
including renters. Long-term signs indicate substantial recreational 
vehicle market growth because of favorable demographic trends. As baby 
boomers enter their prime recreational vehicle buying years over the 
next decade, the RVIA estimates that the number of recreational 
vehicle-owning households will rise by 15 percent to nearly 8 million 
in 2010.
    Data published in November 2003 by the Recreation Vehicle Safety 
Education Foundation (RVSEF)(http://www.rvsafety.org) provides an 
indication of the size of the overloading problem. Although not a 
random sample for all recreational vehicles,\1\ the following data are 
somewhat representative of motor home and travel trailer-type 
recreational vehicles. The following numbers were extracted from the 
RVSEF 2003 Annual Report to the Industry:
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    \7\ The RVSEF tends to weigh heavier vehicles.
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    <bullet> 60 percent of 14,606 motor homes weighed since 1993 were 
overloaded.
    <bullet> 56 percent of 2,533 fifth wheel travel trailers weighed 
since 1993 were overloaded.
    <bullet> 51 percent of 827 non-fifth wheel travel trailers weighed 
since 1993 were overloaded.
    <bullet> 54 percent of 2,460 motor homes weighed in 2003 were 
overloaded.
    <bullet> 47 percent of 334 fifth wheel travel trailers weighed in 
2003 were overloaded.
    <bullet> 47 percent of 108 non-fifth wheel travel trailers weighed 
in 2003 were overloaded.

The data presented above appear to show that the problem of overloading 
has persisted over a ten-year period. As

[[Page 51709]]

earlier indicated, overloaded recreational vehicles can cause tire 
failures and blowouts, which can lead to loss of control, extensive 
vehicle damage, injuries, and fatalities.
    To help address this problem, in this NPRM, NHTSA proposes a 
consumer-information safety label that would adopt the recommended 
practices of an industry-sponsored organization, the Recreation Vehicle 
Industry Association (RVIA).
    Since this rulemaking addresses motor homes and travel trailers, 
the following describes characteristics of these vehicles, and explains 
how they may become overloaded.
    B. Motor Homes--Motor homes are usually manufactured in two or more 
stages, with the final stage manufacturer using a pass-through 
certification of the chassis manufacturer by staying within the 
guidelines of the incomplete vehicle document specified by the chassis 
manufacturer. In some cases, a final stage manufacturer may complete a 
vehicle so that its unloaded vehicle weight (UVW) plus occupant 
capacity weight (OCW) is just under the GVWR certified by the chassis 
manufacturer. The GVWR is the value specified by the manufacturer as 
the maximum loaded weight of the vehicle.
    NHTSA's present certification label requirement (49 CFR 567.4) 
specifies that the GVWR include the ``rated cargo load,'' but it does 
not provide criteria for determining the rated cargo load or specify a 
minimum required cargo load. The rated cargo load may be very low or 
even zero. Motor homes have large, open interior spaces that owners may 
erroneously believe can safely be used for large amounts of cargo. If 
the rated cargo load is low, when a consumer loads even a small amount 
of cargo such as clothing, food, water and small appliances, the 
vehicle may become overloaded. We believe that better consumer 
information can help avoid this situation.
    C. Travel Trailers--Travel trailers are built on trailer chassis 
that can have one axle or multiple axles. The GVWR of the trailer 
chassis, the size of body that is built onto it and the number of 
options put into the trailer determine how much rated cargo load 
remains. Without information from the manufacturer, the consumer cannot 
determine a particular model's rated cargo load. Like motor homes, 
travel trailers also have large, open interior spaces that consumers 
may believe can safely be used to carry large amounts of cargo. The 
lack of consumer information indicating the travel trailer's rated 
cargo load can lead to overloading situations.
    D. How Motor Homes and Travel Trailers Can Become Overloaded--There 
are several ways in which vehicles such as motor homes and travel 
trailers can become overloaded. A vehicle becomes overloaded when any 
of its tire load ratings, GAWRs or GVWRs are exceeded. Overloading 
places stress on the vehicle's chassis, suspension components, axles, 
tires, brakes, and other vehicle systems.
    In certain cases, non-uniform side-to-side and/or non-uniform 
forward/aft overloading occurs. In some cases, overloading may occur 
when a final stage manufacturer installs furniture, appliances, room 
extensions, and other fixtures or accessories in a non-symmetrical 
fashion and/or when consumers place cargo in a non-uniform fashion. 
Although the GVWR may not be exceeded, individual tires or axles may 
become overloaded as a result of non-uniform loading.
    At present, NHTSA does not regulate the load applied to individual 
tires on any vehicle. FMVSS No. 120, which at present applies to all 
vehicles except passenger cars,\2\ states that the sum of the maximum 
load ratings of the tires fitted to an axle shall not be less than the 
GAWR. If the load is non-uniform, an individual tire can be overloaded 
without exceeding the GAWR, and FMVSS No. 120 requirements would still 
be met. Overloaded, unbalanced vehicles, especially large vehicles such 
as motor homes and travel trailers, are difficult to maneuver and may 
require longer stopping distances. When a vehicle is unbalanced and 
overloaded, the chances of a crash caused by poor handling or component 
failure increase. Components subject to failure include springs, shock 
absorbers, brakes, frame components, steering components, axles, rims 
and tires.
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    \2\ On June 1, 2007, FMVSS No. 120 will apply only to vehicles 
with GVWRs greater than 4,536 kilograms (10,000 pounds).
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    The consumer information label we are proposing would also advise 
recreational vehicle owners to distribute cargo appropriately in order 
to prevent non-uniform loading.

III. Previous NHTSA Rulemaking on Cargo Load Information

    On April 16, 1991, NHTSA published an NPRM (56 FR 15315) to require 
the disclosure of information about a vehicle's rated cargo load. The 
NPRM responded to a petition filed by Mr. Stephen Durkovich on May 22, 
1990. NHTSA proposed amending the labeling requirements in FMVSS No. 
120, concerning tire selection and rims for vehicles other than 
passenger cars, to require information about the vehicle capacity 
weight and designated seating capacity. The agency further proposed to 
modify the definition of vehicle capacity weight to clarify that the 
rated cargo load includes luggage.
    All the public comments in response to the NPRM opposed the 
proposal to require labeling of vehicle capacity weight and designated 
seating capacity. Additionally, commenters stated that there was a lack 
of statistical data and demonstrated safety need, and that providing 
information about vehicle capacity weight and designated seating 
capacity would not be useful to consumers.
    In the Federal Register of March 4, 1992 (57 FR 7712), NHTSA 
terminated the rulemaking.

IV. Cargo Carrying Capacity-Related Consumer Information and Labels 
Currently Required by NHTSA

    The following FMVSSs and other NHTSA regulations currently require 
vehicle manufacturers to provide information to the public on labels or 
tags affixed to vehicles.
    A. 49 CFR Part 567, Certification--Part 567 requires motor vehicle 
manufacturers to affix to each vehicle, a certification label 
containing the following information: the manufacturer's name; the 
month and year of manufacture; the Gross Vehicle Weight Rating (GVWR) 
(which cannot be less than the sum of the unloaded vehicle weight, 
rated cargo load, and 68 kg (150 lb) times the number of designated 
seating positions in the vehicle); the Gross Axle Weight Rating (GAWR) 
for each axle (the value specified by the vehicle manufacturer as the 
load carrying capacity of a single axle system, as measured at the 
tire/ground interface); a statement that the vehicle conforms to 
applicable Federal motor vehicle safety standards; the vehicle 
identification number; and the vehicle type classification.
    B. 49 CFR 571.120 (FMVSS No. 120), Tire selection and rims for 
motor vehicles other than passenger cars--FMVSS No. 120 requires 
manufacturers of applicable vehicles to include certain information on 
either the Part 567 vehicle certification label or on a separate tire 
information label on the vehicle. The required information includes the 
GVWR, GAWR, the appropriate tire and rim combination and the 
recommended cold inflation pressure.
    The information is intended to provide the consumer with a 
recommended tire size, rim size and cold inflation tire pressure 
appropriate for the vehicle certified GAWRs. FMVSS

[[Page 51710]]

No. 120 also requires that the sum of the maximum load ratings of the 
tires fitted to an axle shall not be less than the GAWR of the axle 
system. However, it presently does not require that when delivered to 
the customer, the size of the tires on the vehicle be the same as the 
tire size on the tire information label. On June 1, 2007, an amendment 
to FMVSS No. 120 will take effect, which will change its applicability 
from ``tire selection and rims for motor vehicles other than passenger 
cars'' to ``tire selection and rims for motor vehicles with a GVWR of 
more than 4,536 kilograms (10,000 pounds).'' It is anticipated that, if 
made final, this proposed rule will take effect on or after June 1, 
2007, and therefore, the labeling in this proposed rule will apply to 
motor homes and travel trailers with GVWRs greater than 4,536 kilograms 
(10,000 pounds).
    C. 49 CFR 571.110 (FMVSS No. 110), Tire selection and rims, 
requires passenger cars to have a label affixed to the glove 
compartment door or an equally accessible location that contains the 
following information: vehicle capacity weight; designated seating 
capacity; vehicle manufacturer's recommended cold tire inflation 
pressure; and vehicle manufacturer's recommended tire size designation. 
FMVSS No. 110 also requires that the maximum load on each tire at 
vehicle GVWR shall not be greater than the applicable maximum load 
rating as marked on the sidewall of the tire.
    On September 1, 2005, an amendment will take effect that will 
require a placard to be affixed to the vehicle's driver side B-pillar 
(on the edge of the driver's door if no B-pillar exists) that adds the 
following information: the vehicle capacity weight expressed as ``The 
combined weight of occupants and cargo should never exceed XXX 
kilograms or XXX pounds.'' S4.3.5 Requirements for trailers, states 
that each trailer must on its placard contain a cargo capacity 
statement expressed as ``The weight of cargo should never exceed XXX 
kilograms or XXX pounds'' in the same location on the placard specified 
for the ``vehicle capacity weight'' statement required by this 
standard.
    On June 1, 2007, FMVSS No. 110 will apply to all motor vehicles 
with a GVWR of 4,536 kilograms (10,000 pounds) or less, except 
motorcycles.
    D. 49 CFR 575.6 Consumer Information Requirements--49 CFR 575.6 
requires manufacturers to provide consumers with written information on 
tire labeling, tire care, vehicle load limits and explanations of the 
information provided. Manufacturers must also provide a discussion and 
sample calculation for determining the cargo and luggage load capacity.
    E. 49 CFR 575.103, Truck-camper loading requires manufacturers of 
slide-in campers to affix to each camper, a label that contains 
information relating to the identification and proper loading of the 
camper, and to provide more detailed loading information in the owner's 
manual. The label must state the maximum weight of the slide-in camper, 
which must include the weight of water, bottled gas, and the 
refrigerator or ice box. In addition, it requires truck manufacturers 
that would accommodate slide-in campers to specify the cargo weight 
ratings and the longitudinal limits within the center of gravity for 
where the cargo weight should be located.

V. Cargo Carrying Capacity Consumer Information and Labels Currently 
Required or Recommended by Others

    A. Transport Canada--Transport Canada amended its motor vehicle 
safety regulations on April 1, 1999 by requiring manufacturers to 
provide additional information on their certification labels or on a 
separate label. The amendment addresses the inadvertent overloading of 
altered vehicles, recreational vehicles, and those vehicles built in 
stages (including multipurpose passenger vehicles, buses, and trailers) 
by different manufacturers. The amendment requires:
    <bullet> Alterers and intermediate/final stage manufacturers to 
respect the gross axle weight ratings and gross vehicle weight ratings 
determined by the original manufacturer.
    <bullet> Manufacturers of multipurpose passenger vehicles or buses 
manufactured from cutaway chassis, motor homes and recreational 
trailers, to state the cargo-carrying capacity and designated seating 
capacity as required on the compliance label or on a separate label 
placed beside the compliance label.
    <bullet> Information on motor homes and recreational trailers, 
which specifies the mass of the fresh water, hot water and waste tank, 
when full, and which states that the cargo-carrying capacity of the 
vehicle was determined when fresh-water and hot water tanks were full 
and the waste water tanks empty.
    <bullet> The number of seat belts installed to be no less than the 
number of sleeping positions.
    B. Recreation Vehicle Industry Association (RVIA)--RVIA has 
established provisions for labels that provide motor home and 
recreational trailer weight information. To qualify as members in good 
standing, manufacturers must post the label information on their 
vehicles. According to the RVIA, over 95 percent of recreational 
vehicle manufacturers are RVIA members and comply with their labeling 
requirements. RVIA visits their members several times per year to 
verify that the RVIA labels are placed on recreational vehicles. The 
following information is required on the RVIA label for motor homes and 
recreational vehicle trailers:
    <bullet> Vehicle Identification Number (VIN) or serial number.
    <bullet> Definitions of Gross Vehicle Weight Rating (GVWR), 
Unloaded Vehicle Weight (UVW), Sleeping Capacity Weight Rating (SCWR) 
[for motor homes only] and Cargo Carrying Capacity (CCC).
    <bullet> The weights in pounds (and kilograms) for GVWR, UVW, fresh 
water, propane, SCWR [for motor homes only] and CCC.
    <bullet> An advisory that dealer installed equipment will reduce 
the CCC. [Motor homes must include ``and towed vehicle tongue weight'' 
after ``equipment.'']
    <bullet> An advisory to consult the owner's manual for specific 
weighing instructions and towing guidelines.

VI. Notice of Proposed Rulemaking

    A. Definitions--This proposed rule would apply to motor homes and 
travel trailers. A definition of ``motor home'' is already included in 
49 CFR 571.3. In this NPRM, we propose to revise the definition of 
``motor home'' (to refer to ``propane'' rather than ``LP gas supply'') 
and to propose to define ``travel trailer'' as follows:

    Motor home means a multi-purpose vehicle with motive power that 
is designed to provide temporary residential accommodations, as 
evidenced by the presence of at least four of the following 
facilities: cooking; refrigeration or ice box; self-contained 
toilet; heating and/or air conditioning; a potable water supply 
system including a faucet and a sink; and a separate 110-125 volt 
electrical power supply and/or propane.
    Travel trailer means a trailer designed to be drawn by a vehicle 
with motive power by means of a bumper or frame hitch or a special 
hitch in a truck bed and is designed to provide temporary 
residential accommodations, as evidenced by the presence of at least 
four of the following facilities: cooking; refrigeration or ice box; 
self-contained toilet; heating and/or air conditioning; a potable 
water supply system including a faucet and a sink; and a separate 
110-125 volt electrical power supply and/or propane.

    If it should be made final, the definition of ``travel trailer'' 
will be placed in 49 CFR 571.3.
    B. GVWR, GAWR and Tire Load Information for Motor Homes and

[[Page 51711]]

Travel Trailers--In this NPRM, we propose to amend FMVSS No. 120 to 
require that the sum of the GAWRs of all the axles on a motor home and 
that the sum of the GAWRs of all the axles on a travel trailer plus the 
tongue load rating, must not be less than the GVWR of each respective 
vehicle. We note that the proposed requirement would not prevent 
individual tires on motor homes and travel trailers from being 
overloaded.
    NHTSA is concerned about the issue of individual tire overloading, 
as some of the complaints we receive concern tire safety issues such as 
premature tire failure and blowouts. In FMVSS No. 110, the vehicle 
maximum load on an individual tire is determined by distributing to 
each axle its share of the maximum loaded vehicle weight and dividing 
by two. This vehicle maximum load on the tire shall not be greater than 
the maximum load rating marked on the sidewall of the tire. In FMVSS 
No. 120, the sum of the maximum load ratings of the tires fitted to an 
axle shall not be less than the GAWR. (Neither standard requires that 
the actual load on an individual tire not exceed the installed tire 
load rating.) While we are not proposing to address individual tire 
loading in this NPRM, we are seeking data on the magnitude of the 
safety problem. In some cases, new vehicles can have an overloaded axle 
or tire caused by unbalanced loading, without passengers or cargo. In 
some cases, individual axles or tires may not be overloaded; in this 
situation, however, when passengers and cargo are loaded, a tire or 
axle may become overloaded.
    NHTSA plans to monitor complaint and crash data resulting from 
reported overloading of individual tires and axles on motor homes and 
travel trailers. The agency requests input from manufacturers and other 
commenters regarding the issue of regulating tire and axle loads on 
motor homes and travel trailers.
    In this proposed rulemaking, NHTSA proposes to require that the 
size of the tires that are on motor homes and travel trailers at the 
time of first retail sale be the same size as the tires on the tire 
label required by FMVSS No. 120. Since inflation tire pressure is 
critical to tire loading, the tire label provides the recommended tire 
size and cold inflation pressure for the vehicle. If a different tire 
is placed on the vehicle, it may require a different tire inflation 
pressure. Consumers generally refer to the tire label for inflation 
pressures. If the size of the tire on the label and the size of the 
tire on the vehicle are not the same, the consumer may inflate the 
vehicle's tires to the wrong pressure. In some cases, inflating vehicle 
tires to the wrong pressure can intensify the effects of overloading.
    The proposed rule would also require manufacturers to disclose CCC 
of motor homes and travel trailers. It is anticipated that consumers 
will use this information both to purchase vehicles with CCCs that will 
meet their needs and as guidance for how they may subsequently load 
their vehicles in a safe manner. This proposed rule would not specify a 
minimum required CCC for any motor home or travel trailer.
    C. Determining Occupant Capacity Weight--In order to determine the 
CCC of a motor home, the occupant capacity weight (OCW) must be 
determined. The OCW is then grouped with the other weight factors (such 
as weight of full fresh water, propane and the unloaded vehicle weight) 
that must be subtracted from the vehicle's GVWR in order to determine 
the portion of the GVWR available for carrying cargo.
    The RVIA uses sleeping capacity weight rating (SCWR) on its label 
to account for OCW. SCWR is the number of sleeping positions times 68 
kilograms (150 pounds). The premise is that the motor home will usually 
not be carrying more passengers than there are places for the 
passengers to sleep. However, the number of safety belt equipped 
positions, which are seating positions equipped with type 1 or type 2 
safety belts, can be greater than the number of sleeping positions used 
in the CCC calculation. If these seating positions are all occupied, 
there may be an overload condition, as there then may be occupants in 
the vehicle not included in the CCC calculation.
    Another method of determining OCW would be to simply use the total 
number of safety belt-equipped seating positions. However, simply 
requiring that the total number of safety belt-equipped seating 
positions be used when calculating CCC may encourage manufacturers to 
reduce the number of safety belt-equipped seating positions. Fewer 
safety belt-equipped seating positions means that a motor home or 
travel trailer may have greater CCC.
    In this NPRM, NHTSA proposes that the greater of the total number 
of safety belt-equipped seating positions or the total number of 
sleeping positions be multiplied by 68 kilograms (150 pounds) to 
determine the OCW.
    D. Location of Labels--The RVIA requires that labels be affixed to 
the vehicle in a conspicuous location. Motor home labels are sometimes 
found in the driver's compartment and trailer labels are sometimes 
found on the inside of kitchen cabinet doors. Nonuniform label 
locations may cause consumers to miss the label when shopping for a 
vehicle. Also, the label should be in a location where consumers can 
repeatedly see it, so the label serves as a reminder of CCC and 
overloading issues. In order to promote a consistent label location, 
which may increase the number of times consumers see the label and 
thus, increase label effectiveness, in this NPRM, we propose that the 
label be affixed to the interior of the forwardmost exterior passenger 
door on the right side of the vehicle. Such a door is used repeatedly 
when entering, exiting, and loading the vehicle. In addition, such a 
door will have the surface area to accommodate the size of the required 
label.
    E. Proposed Label Format and Content--NHTSA seeks to provide 
purchasers of motor homes and travel trailers with information of the 
vehicles' CCC. NHTSA believes the labels should also provide consumers 
with a detailed explanation of how the CCC is calculated, thus enabling 
each consumer to adjust the values according to their particular 
applications. For example, if there are only two occupants riding in a 
motor home designed for six occupants, there would be more capacity for 
cargo. NHTSA's proposed label is similar to the RVIA label that is 
currently used by many companies on a voluntary basis.
    NHTSA also believes the proposed label formats have information 
consumers can use while comparison shopping for motor homes or travel 
trailers. The labels would also serve as a reference to recreational 
vehicle owners when the owners are loading cargo.
    The proposed label for travel trailers would include the trailer 
tongue load rating and the statement: ``The weight of cargo should 
never exceed XXX kilograms (XXX pounds)'' in black lettering on yellow 
background. The travel trailer manufacturer would be responsible for 
determining the trailer tongue load rating and the cargo carrying 
capacity of its travel trailer, and for providing this information on 
its travel trailer label.
    The proposed label for motor homes would include the statement: 
``The combined weight of occupants and cargo should never exceed XXX 
kilograms (XXX pounds)'' in black lettering on yellow background. This 
statement is the same as will be required for vehicles with GVWRs of 
4,536 kilograms (10,000 pounds) or less under the required FMVSS No. 
110 vehicle placard, which becomes effective on September 1, 2005. The 
proposed motor home label would use the greater of the total number of 
safety belt-equipped

[[Page 51712]]

seating positions or sleeping positions times 68 kilograms (150 pounds) 
to determine OCW. The motor home manufacturer would be responsible for 
determining the cargo carrying capacity of its motor home, and for 
providing this information on its motor home label.
    All information on each of the proposed motor home and travel 
trailer labels would be required to be a minimum print size of 2.4 
millimeters (\3/32\ inches) high and be printed on a contrasting 
background. The weights on the label would be required to be displayed 
to the nearest kilogram (with conversion to the nearest pound in 
parentheses) and must reflect the particular weight specifications of 
the motor home or travel trailer to which it is affixed as the vehicle 
leaves the factory. Both labels will advise the purchaser that the 
weight of any dealer-installed equipment must be subtracted from the 
manufacturer's value of CCC and will advise consumers to load cargo 
appropriately to prevent non-uniform side-to-side and forward-aft 
loading. In the case of motor homes, the label will contain the weight 
of the maximum hitch load and the purchaser will be advised that the 
tongue weight of trailers or vehicles being towed also subtracts from 
the manufacturer's value of CCC. If the motor home is not delivered 
with a hitch, this block will be left blank.
    While the proposed label will not refer to the owner's manual, the 
standard would not prohibit manufacturers from adding references on the 
label that refer to specific information that is included in the 
owner's manual. NHTSA believes that the labels will be helpful to 
consumers in making purchasing decisions and can also be used by 
recreational vehicle owners to calculate the amount of cargo that can 
be carried in situations where there may be a reduced number of 
passengers and/or reduced quantities of water or propane.
    F. Addition of Weight to FMVSS No. 110 Vehicles and to FMVSS No. 
120 Motor Homes and Travel Trailers Between Vehicle Certification and 
First Retail Sale of the Vehicle.
    1. FMVSS No. 110--September 1, 2005 is the effective date of an 
amendment to FMVSS 110, Tire selection and rims, which will require 
manufacturers to affix a tire placard to the vehicle's driver-side B-
pillar or to the edge of the driver's door (if no B-pillar exists) 
which adds the statement: ``The combined weight of occupants and cargo 
should never exceed XXX kg or XXX lbs.'' to the information previously 
required on the existing tire placard. Vehicle manufacturers will be 
required to disclose the amount of weight carrying capacity that is 
available on the vehicle for passengers and cargo. The vehicle 
manufacturer installs this label when the vehicle is certified.
    Recently, manufacturers and dealers have inquired as to what must 
be done when optional equipment and accessories are added to a vehicle 
before first retail sale, which increases the vehicle's weight and 
decreases the weight allotted for passengers and cargo. NHTSA's 
response to such inquiries has been that the label must be replaced as 
necessary so that the vehicle has a label with accurate information. 
NHTSA believes, however, that small increases in weight are 
insignificant. Moreover, requiring dealers to reprint labels with new 
information each time a small amount of weight is added to a vehicle is 
unnecessarily burdensome.
    To address the issues, in this NPRM, NHTSA proposes that for FMVSS 
No. 110 vehicles, if weight equal to or less than 0.5 percent of gross 
vehicle weight rating (GVWR) is added by the dealer before first retail 
sale, no additional action is required. If weight greater than 0.5 
percent of GVWR is added by the dealer before first retail sale, the 
dealer must add the following label to the vehicle within 25 
millimeters (1 inch) of the FMVSS No. 110 tire placard, which discloses 
the total weight of added items to the nearest kilogram (pound). The 
characters of this label must have a minimum print size of 2.4 
millimeters (\3/32\ inches) high and be black printed on a yellow 
background. The label must be visible when the FMVSS No. 110 tire 
placard is read:

    ``Caution--Cargo Carrying Capacity Reduced'' Modifications to 
this vehicle have reduced the original cargo carrying capacity ----
-- by kilograms (------ pounds)

This label may be printed as shown above and the value for total added 
weight is provided by the dealer when it installs optional accessories 
and equipment in excess of 0.5 percent of the vehicle's GVWR. To fill 
out the additional label, dealers need to know only the total weight 
effect of added items. Dealers can provide the information without 
weighing vehicles. The following is the proposed regulatory text at 
S4.3(a) of FMVSS No. 110.
    (a) Vehicle capacity weight:
    (1) If weight greater than 0.5 percent GVWR is added to a vehicle 
between vehicle certification and first retail sale, of the vehicle, 
the following label meeting the following criteria shall be affixed to 
the vehicle within 25 millimeters (1 inch) of the tire placard such 
that it is visible when the tire placard is read.

    ``Caution--Cargo Carrying Capacity Reduced'' Modifications to 
this vehicle have reduced the original cargo carrying capacity ----
-- by kilograms (------ pounds)

    (2) The label must disclose to the nearest kilogram (pound), the 
total weight added.
    (3) The characters of the label must be presented in the English 
language, have a minimum print size of 2.4 millimeters (\3/32\ inches) 
high, and be black printed on a yellow background. The label must be 
moisture resistant and permanently affixed to the vehicle.
    2. FMVSS No. 120--NHTSA believes the proposed changes to FMVSS No. 
110 concerning additional dealer-added weight are also appropriate for 
FMVSS No. 120. As previously discussed, the proposed language for FMVSS 
120 requires an RVIA type label, which includes a statement similar to 
the cargo carrying capacity statement that appears on the FMVSS No. 110 
label. The proposed FMVSS No. 120 motor home label would state: ``The 
combined weight of occupants and cargo should never exceed XXX 
kilograms (XXX pounds).'' The proposed FMVSS No. 120 travel trailer 
label would state: ``The weight of cargo should never exceed XXX 
kilograms (XXX pounds).'' For motor homes and travel trailers, cargo 
carrying capacity will be determined by the final stage vehicle 
manufacturer and will be printed on the FMVSS No. 120 cargo carrying 
capacity label for motor homes and travel trailers. If the weight of 
optional accessory items and equipment installed by dealers is not 
disclosed, the cargo carrying capacity value on the manufacturer's 
label may be incorrect.
    Therefore, in this NPRM, NHTSA proposes that the same method 
proposed for FMVSS No. 110 vehicles above also be used for motor homes 
and travel trailers in FMVSS No. 120. If weight equal to or less than 
0.5 percent of GVWR is added by the dealer to a FMVSS No. 120 motor 
home or travel trailer between certification and first retail sale, no 
additional action is required. If weight greater than 0.5 percent of 
GVWR is added by the dealer to a FMVSS No. 120 motor home or travel 
trailer between certification and first retail sale, the dealer must 
add the following label within 25 millimeters (1 inch) of the FMVSS No. 
120 motor home or travel trailer cargo carrying capacity label which 
discloses the total weight of added items to the nearest kilogram 
(pound). The characters of this label must have a minimum print size of 
2.4 millimeters (\3/32\ inches) high and

[[Page 51713]]

be black printed on a yellow background. The label must also be visible 
when the FMVSS No. 120 motor home or travel trailer cargo carrying 
capacity label is read.

    ``Caution--Cargo Carrying Capacity Reduced'' Modifications to 
this vehicle have reduced the original cargo carrying capacity by --
---- kilograms (------ pounds)

This label may be printed as shown above and the value of total weight 
added may be written on the label by the dealer when optional 
accessories and equipment are installed. To fill out the additional 
label, dealers need only know the total weight effect of added items. 
Dealers can provide the information without weighing vehicles. The 
following regulatory text for FMVSS No. 120 on dealer-added weight 
between certification and first retail sale is proposed:
    S10.4.5 Weight added to motor homes and travel trailers between 
vehicle certification and first vehicle sale.
    (a) If weight greater than 0.5 percent of GVWR is added to a motor 
home or travel trailer between vehicle certification and first retail 
sale, a label as shown in Figure 3 and meeting the following criteria 
shall be affixed to the vehicle within 25 millimeters of the cargo 
carrying capacity label required by S10.3.3 or S10.3.4 such that it is 
visible when reading the cargo carrying capacity label.
    (1) The label must disclose the total weight added to the nearest 
kilogram (pound).
    (2) The characters of the label must be presented in the English 
language, have a minimum print size of 2.4 millimeters (\3/32\ inches) 
high, be black printed on a yellow background and the label must be 
moisture resistant and permanently affixed to the vehicle.

VII. Leadtime

    We propose to make the amendments effective 180 days (approximately 
six months) after the final rule is published but, as discussed above, 
not before June 1, 2007. We note that the proposed labeling 
requirements would not require manufacturers to collect or provide any 
information other than that already voluntarily provided by motor home 
and travel trailer manufacturers that are members of the Recreational 
Vehicle Industry Association. Public comment is sought whether 180 days 
would be enough lead time for industry to comply with the NHTSA's new 
requirements.
    In addition, the provisions in the proposed rule to amend FMVSS No. 
110 are intended to provide regulatory relief to dealers that may add 
weight less than 0.5 percent of gross vehicle weight rating after 
certification of vehicles and before first retail sale of the vehicles. 
Thus, we propose, for the FMVSS No. 110 provisions, if made final, that 
dealers be given the option of immediate compliance.

VIII. Regulatory Analyses and Notices

A. Executive Order 12866 and DOT Regulatory Policies and Procedures

    Executive Order 12866, ``Regulatory Planning and Review'' (58 FR 
51735, October 4, 1993), provides for making determinations whether a 
regulatory action is ``significant'' and therefore subject to Office of 
Management and Budget (OMB) review and to the requirements of the 
Executive Order. The Order defines a ``significant regulatory action'' 
as one that is likely to result in a rule that may:
    (1) Have an annual effect on the economy of $100 million or more or 
adversely affect in a material way the economy, a sector of the 
economy, productivity, competition, jobs, the environment, public 
health or safety, or State, local, or Tribal governments or 
communities;
    (2) Create a serious inconsistency or otherwise interfere with an 
action taken or planned by another agency;
    (3) Materially alter the budgetary impact of entitlements, grants, 
user fees, or loan programs or the rights and obligations of recipients 
thereof; or
    (4) Raise novel legal or policy issues arising out of legal 
mandates, the President's priorities, or the principles set forth in 
the Executive Order.
    We have considered the impact of this rulemaking action under 
Executive Order 12866 and the Department of Transportation's regulatory 
policies and procedures. This rulemaking document was not reviewed by 
the Office of Management and Budget under E.O. 12866, ``Regulatory 
Planning and Review.'' The rulemaking action is also not considered to 
be significant under the Department's Regulatory Policies and 
Procedures (44 FR 11034; February 26, 1979).
    For the following reasons, we believe that this proposal, if made 
final, would not have any quantifiable cost effect on manufacturers of 
motor homes or travel trailers. If made final, this rule would have no 
substantive effect on 95 percent of motor homes and travel trailers 
that are already manufactured for the U.S. market. As discussed 
earlier, the labeling requirements in this proposed rule parallels the 
labels already required by the Recreational Vehicle Industry 
Association (RVIA) for RIVA members. Approximately 95 percent of 
affected motor home and travel trailer manufacturers are RVIA members. 
Thus, if made final, the proposed rule would in effect impose new 
requirements on only approximately 5 percent of recreational vehicle 
manufacturers.
    In addition, this proposed rule would provide regulatory relief for 
dealers from an existing labeling requirement in the safety standard on 
tire selection and rims. Dealers that add items to covered vehicles in 
excess of 0.5 percent of the vehicles' gross vehicle weight ratings 
would be required to disclose this extra weight on labels affixed to 
the vehicles. No labels would be required for the addition of lesser 
weight.
    Because the economic impacts of this proposal are so minimal, no 
separate regulatory evaluation is necessary.

B. Executive Order 13132 (Federalism)

    Executive Order 13132 requires us 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'' is 
defined in the Executive Order 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 
Executive Order 13132, we 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, or unless we consult with State and local 
governments, or unless we consult with State and local officials early 
in the process of developing the proposed regulation. We also may not 
issue a regulation with federalism implications and that preempts State 
law unless we consult with State and local officials early in the 
process of developing the proposed regulation.
    This proposed rule would 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, as specified in Executive Order 13132. 
The reason is that this proposed rule, if made final, would apply to 
motor home manufacturers and to travel trailer manufacturers, not to 
the States or local governments. Thus, the requirements of

[[Page 51714]]

Section 6 of the Executive Order do not apply to this proposed rule.

C. Executive Order 13045 (Economically Significant Rules Affecting 
Children)

    Executive Order 13045 (62 FR 19885, April 23, 1997) applies to any 
rule that: (1) Is determined to be ``economically significant'' as 
defined under E.O. 12866, and (2) concerns an environmental, health or 
safety risk that NHTSA has reason to believe may have a 
disproportionate effect on children. If the regulatory action meets 
both criteria, we must evaluate the environmental health or safety 
effects of the planned rule on children, and explain why the planned 
regulation is preferable to other potentially effective and reasonably 
feasible alternatives considered by us.
    This proposed rule is not subject to the Executive Order because it 
is not economically significant as defined in E.O. 12866 and does not 
involve decisions based on environmental, health or safety risks that 
disproportionately affect children. This proposed rule, if made final, 
would make changes affecting only motor home manufacturers and travel 
trailer manufacturers.

D. Executive Order 12988 (Civil Justice Reform)

    Pursuant to Executive Order 12988, ``Civil Justice Reform,'' we 
have considered whether this proposed rule would have any retroactive 
effect or any preemptive effect. We conclude that it would have no 
retroactive effect.
    Under 49 U.S.C. 30103, whenever a Federal motor vehicle safety 
standard is in effect, a State may not adopt or maintain a safety 
standard applicable to the same aspect of performance which is not 
identical to the Federal standard, except to the extent that the state 
requirement imposes a higher level of performance and applies only to 
vehicles procured for the State's use. 49 U.S.C. 30161 sets forth a 
procedure for judicial review of final rules establishing, amending or 
revoking Federal motor vehicle safety standards. That section does not 
require submission of a petition for reconsideration or other 
administrative proceedings before parties may file suit in court.
    For this proposed rule, we propose a definition of ``travel 
trailer.''

E. Regulatory Flexibility Act

    Pursuant to the Regulatory Flexibility Act (5 U.S.C. 601 et seq., 
as amended by the Small Business Regulatory Enforcement Fairness Act 
(SBREFA) of 1996) whenever an agency is required to publish a notice of 
rulemaking for any proposed or final rule, it must prepare and make 
available for public comment a regulatory flexibility analysis that 
describes the effect of the rule on small entities (i.e., small 
businesses, small organizations, and small governmental jurisdictions). 
However, no regulatory flexibility analysis is required if the head of 
an agency certifies the rule would not have a significant economic 
impact on a substantial number of small entities. SBREFA amended the 
Regulatory Flexibility Act to require Federal agencies to provide a 
statement of the factual basis for certifying that a rule would not 
have a significant economic impact on a substantial number of small 
entities.
    The Administrator considered the effects of this rulemaking action 
under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.) and 
certifies that this proposal would not have a significant economic 
impact on a substantial number of small entities. The factual basis for 
this certification is that this proposal, if made final, would 
minimally affect small U.S. motor home manufacturers or small U.S. 
travel trailer manufacturers. The U.S. Small Business Administration's 
regulations at 13 CFR 121.201 defines a small ``motor home 
manufacturer'' (NAICS Code 336213) as a ``business entity organized for 
profit, with a place of business located in the United States, and 
which operates primarily within the United States or which makes a 
significant contribution to the U.S. economy through payment of taxes 
or use of American products, materials or labor.'' (See 13 CFR 121.105) 
that employs fewer than 1,000 employees. Travel trailer and camper 
manufacturers (NAICS Code 336214) on the other hand, have a size 
standard of fewer than 500 employees.
    NHTSA believes that most RVIA members are small businesses. As 
earlier discussed, 95 percent of RVIA members are already providing to 
their customers, labeling information that parallel the information 
specified in this NPRM. Thus, if made final, this proposed rule would 
impose new labeling information requirements on only 5 percent of small 
businesses that manufacture motor homes or travel trailers.

F. National Environmental Policy Act

    We have analyzed this proposal for the purposes of the National 
Environmental Policy Act and determined that it would not have any 
significant impact on the quality of the human environment.

G. Paperwork Reduction Act

    Under the Paperwork Reduction Act of 1995, a person is not required 
to respond to a collection of information by a Federal agency unless 
the collection displays a valid Office of Management and Budget (OMB) 
control number. This proposal introduces new information collection 
requirements in that the new regulation would require certain 
disclosures to third parties. Our estimates of the burden that this 
rulemaking imparts on motor home and travel trailer manufacturers are 
given below. There is no burden to the general public. These estimates 
are based on the fact that approximately 95% of motor home and travel 
trailer manufacturers currently belong to RVIA and apply the RVIA label 
to the vehicles they produce. The physical make-up of the RVIA label, 
as well as the information it provides are similar to the label 
required by this proposed regulation. Therefore, the cost and hour 
burden for making/purchasing and applying the RVIA label is essentially 
the same as the cost and hour burden for the label proposed in this 
rulemaking. When this rulemaking becomes a final rule, all 
manufacturers will be using the label specified by this NHTSA 
regulation. We expect that the NHTSA label will replace a current label 
of the same cost for most RVs. This rule does not prohibit 
manufacturers from adding any information, such as references to the 
owner's manual, that appear on present labels to the NHTSA label. 
Therefore, we do not believe the rule will cause the need for an 
additional label on those vehicles.
    Because 95% of manufacturers are currently using a similar label 
(the RVIA label), which has a similar cost and hour burden, the only 
additional burden imparted by this rulemaking would be the cost of the 
remaining 5% of manufacturers to comply. The following are the hour 
burden and cost estimates, which will result when the remaining 5% of 
motor home and travel trailer manufacturers had to comply with labeling 
requirements.
    This proposal also introduces an additional label to be applied by 
dealers in cases where weight totaling more than 0.5 percent of the 
vehicle's GVWR is added between vehicle certification by the 
manufacturer and first retail sale. Such added weight is usually in the 
form of equipment or accessories added by the dealer at the request of 
the purchaser. If weight in excess of 0.5 percent of GVWR is added the 
dealer would write on the label the total weight of added items and 
apply the label next to the cargo carrying capacity label. This being a 
new label would

[[Page 51715]]

apply to 100 percent of the RVs to which this proposed rulemaking 
applies. The estimated cost of labels are based on costs obtained from 
a leading label manufacturer.
    The following information and hardware are already available to 
manufacturers and therefore would not impose additional cost or burden.
    [cir] VIN or serial number
    [cir] Definitions of GVWR, UVW, OCW, CCC
    [cir] Value of GVWR
    [cir] Value of UVW
    [cir] Value of the maximum quantity of fresh water and its weight
    [cir] Value of the maximum quantity of propane and its weight
    [cir] Value of OCW
    [cir] Value of CCC
    [cir] Advisory statements at the bottom of the label
    [cir] Scale system for weighing vehicles as practically all 
manufacturers own or have access to a scale system in order to monitor 
the load of the body verses the GVWR of the chassis. Scale systems 
usually cost between $10,000 and $15,000.
    Estimated annual burden to motor home and travel trailer 
manufacturers to determine the Unloaded Vehicle Weight (UVW).

Motor Homes

    [cir] Estimated labor hours to weigh a motor home = .10 hours
    [cir] Approximately 61,527 motor homes shipped in 2003
    [cir] It is estimated that 95% currently use the RVIA label and 
weigh their motor homes which leaves 5% or 3076 additional motor homes 
per year to be weighed as a result of this rulemaking
    [cir] 3076 additional motor homes/year x .10 hours/motor home = 308 
hours/year

Travel Trailers

    [cir] Estimated hours to weigh a travel trailer = .16 hours
    [cir] Approximately 264,109 travel trailers shipped in 2003
    [cir] It is estimated that 95% currently use the RVIA label and 
weigh their travel trailers which leaves 5% or 13,205 additional travel 
trailers per year to be weighed
    [cir] 13,205 additional travel trailers/year x .16 hours/travel 
trailer = 2113 hours/year
    Total estimated additional hour burden to weigh additional vehicles 
per year as a result of this rulemaking = 308 hours + 2113 hours = 2421 
hours/year.
    Estimated annual burden and cost to motor home and travel trailer 
manufacturers to produce/purchase and install the label.
    [cir] Estimated cost to produce the label = $0.10 per label
    [cir] Estimated labor hours to install label = .02 hours per label
    [cir] Approximately 61,527 motor homes and 264,109 travel trailers 
were shipped in 2003 for a total of 325,636 units/year.
    [cir] It is estimated that 95% of these vehicles are currently 
shipped with the RVIA label, which leaves 5% or 16,282 motor homes, and 
travel trailers/year that will require labels.
    Total estimated additional hour burden per year to install the 
labels = 16,282 labels/year x .02 hours/label = 326 hours/year.
    Total estimated additional cost of labels per year = 16,282 labels/
year x $0.10/label = $1,628/year.
    Estimated annual burden and cost to motor home and travel trailer 
dealers to produce/purchase and install the label identifying 
additional weight added.
    [cir] Estimated cost to produce the label = $0.02 per label
    [cir] Estimated labor hours to install label = .02 hours per label
    [cir] Approximately 61,527 motor homes and 264,109 travel trailers 
were shipped in 2003 for a total of 325,636 units/year.
    [cir] It is estimated that 50% of these vehicles will receive 
enough additional weight before first retail sale to require them to 
bear the additional label. The number of vehicles would be 50% of 
325,636 vehicles, which equals 162,818 vehicles that will require the 
additional label.
    Total estimated additional hour burden per year to install the 
additional labels = 162,818 labels/year x .02 hours/label = 3256 hours/
year.
    Total estimated additional cost of additional labels per year = 
162,818 labels/year x $0.02/label = $3256/year.
    Total annual hour burden and cost to the industry as a result of 
this proposal is 6003 hours and $4,884 per year.
    NHTSA will consider comments by the public on this proposed 
collection of information in evaluating:
    <bullet> Whether the proposed collection of information is 
necessary for the safe use of motor homes and travel trailers,
    <bullet> The accuracy of the agency's estimate of the burden of the 
proposed collection of information,
    <bullet> The quality, utility, and clarity of the information to be 
collected, and
    <bullet> The opportunities to minimize the information collection 
burden.

H. National Technology Transfer and Advancement Act

    Section 12(d) of the National Technology Transfer and Advancement 
Act of 1995 (NTTAA), Public Law 104-113, section 12(d) (15 U.S.C. 272) 
directs us to use voluntary consensus standards in our regulatory 
activities unless doing so would be inconsistent with applicable law or 
otherwise impractical. Voluntary consensus standards are technical 
standards (e.g., materials specifications, test methods, sampling 
procedures, and business practices) that are developed or adopted by 
voluntary consensus standards bodies, such as the Society of Automotive 
Engineers (SAE). The NTTAA directs us to provide Congress, through OMB, 
explanations when we decide not to use available and applicable 
voluntary consensus standards.
    After conducting a search of available sources, we have decided to 
propose labels similar to that used by the Recreational Vehicle 
Industry Association, advising consumers of cargo carrying capacity for 
motor homes and travel trailers, and providing advisories.

I. Unfunded Mandates Reform Act

    Section 202 of the Unfunded Mandates Reform Act of 1995 (UMRA) 
requires Federal agencies to prepare a written assessment of the costs, 
benefits and other effects of proposed or final rules that include a 
Federal mandate likely to result in the expenditure by State, local or 
tribal governments, in the aggregate, or by the private sector, of more 
than $100 million in any one year (adjusted for inflation with base 
year of 1995). Before promulgating a NHTSA rule for which a written 
statement is needed, section 205 of the UMRA generally requires us to 
identify and consider a reasonable number of regulatory alternatives 
and adopt the least costly, most cost-effective or least burdensome 
alternative that achieves the objectives of the rule. The provisions of 
section 205 do not apply when they are inconsistent with applicable 
law. Moreover, section 205 allows us to adopt an alternative other than 
the least costly, most cost-effective or least burdensome alternative 
if we publish with the final rule an explanation why that alternative 
was not adopted.
    This proposal would not result in costs of $100 million or more to 
either State, local, or tribal governments, in the aggregate, or to the 
private sector. Thus, this proposal is not subject to the requirements 
of sections 202 and 205 of the UMRA.

J. Plain Language

    Executive Order 12866 requires each agency to write all rules in 
plain language. Application of the principles of plain language 
includes consideration of the following questions:

[[Page 51716]]

--Have we organized the material to suit the public's needs?
--Are the requirements in the rule clearly stated?
--Does the rule contain technical language or jargon that is not clear?
--Would a different format (grouping and order of sections, use of 
headings, paragraphing) make the rule easier to understand?
--Would more (but shorter) sections be better?
--Could we improve clarity by adding tables, lists, or diagrams?
--What else could we do to make this rulemaking easier to understand?
    If you have any responses to these questions, please include them 
in your comments on this NPRM.

K. Regulation Identifier Number (RIN)

    The Department of Transportation assigns a regulation identifier 
number (RIN) to each regulatory action listed in the Unified Agenda of 
Federal Regulations. The Regulatory Information Service Center 
publishes the Unified Agenda in April and October of each year. You may 
use the RIN contained in the heading at the beginning of this document 
to find this action in the Unified Agenda.

Comments

How Do I Prepare and Submit Comments?

    Your comments must be written and in English. To ensure that your 
comments are correctly filed in the Docket, please include the docket 
number of this document in your comments.
    Your comments must not be more than 15 pages long. (49 CFR 553.21). 
We established this limit to encourage you to write your primary 
comments in a concise fashion. However, you may attach necessary 
additional documents to your comments. There is no limit on the length 
of the attachments.
    Please submit two copies of your comments, including the 
attachments, to Docket Management at the address given above under 
ADDRESSES.
    You may also submit your comments to the docket electronically by 
logging onto the Dockets Management System Web site at http://dms.dot.gov. Click on ``Help & Information'' or ``Help/Info'' to obtain 
instructions for filing the document electronically.

How Can I Be Sure That My Comments Were Received?

    If you wish Docket Management to notify you upon its receipt of 
your comments, enclose a self-addressed, stamped postcard in the 
envelope containing your comments. Upon receiving your comments, Docket 
Management will return the postcard by mail.

How Do I Submit Confidential Business Information?

    If you wish to submit any information under a claim of 
confidentiality, you should submit three copies of your complete 
submission, including the information you claim to be confidential 
business information, to the Chief Counsel, NHTSA, at the address given 
above under FOR FURTHER INFORMATION CONTACT. In addition, you should 
submit two copies, from which you have deleted the claimed confidential 
business information, to Docket Management at the address given above 
under ADDRESSES. When you send a comment containing information claimed 
to be confidential business information, you should include a cover 
letter setting forth the information specified in our confidential 
business information regulation. (49 CFR Part 512.)

Will the agency consider late comments?

    We will consider all comments that Docket Management receives 
before the close of business on the comment closing date indicated 
above under DATES. To the extent possible, we will also consider 
comments that Docket Management receives after that date. If Docket 
Management receives a comment too late for us to consider it in 
developing a final rule (assuming that one is issued), we will consider 
that comment as an informal suggestion for future rulemaking action.

How can I read the comments submitted by other people?

    You may read the comments received by Docket Management at the 
address given above under ADDRESSES. The hours of the Docket are 
indicated above in the same location.
    You may also see the comments on the Internet. To read the comments 
on the Internet, take the following steps:
    1. Go to the Docket Management System (DMS) Web page of the 
Department of Transportation (http://dms.dot.gov/).
    2. On that page, click on ``search.''
    3. On the next page (http://dms.dot.gov/search/), type in the four-
digit docket number shown at the beginning of this document. Example: 
If the docket number were ``NHTSA-1998-1234,'' you would type ``1234.'' 
After typing the docket number, click on ``search.''
    4. On the next page, which contains docket summary information for 
the docket you selected, click on the desired comments. You may 
download the comments. Although the comments are imaged documents, 
instead of word processing documents, the ``pdf'' versions of the 
documents are word searchable.
    Please note that even after the comment closing date, we will 
continue to file relevant information in the Docket as it becomes 
available. Further, some people may submit late comments. Accordingly, 
we recommend that you periodically check the Docket for new material.

How does the Federal Privacy Act apply to my public comments?

    Anyone is able to search the electronic form of all comments 
received into any of our 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.

List of Subjects in 49 CFR Part 571

    Imports, Motor vehicle safety, Motor vehicles, Rubber and rubber 
products, Tires.

    In consideration of the foregoing, it is proposed that the Federal 
Motor Vehicle Safety Standards (49 CFR Part 571), be amended as set 
forth below.

PART 571--FEDERAL MOTOR VEHICLE SAFETY STANDARDS

    1. The authority citation for part 571 would continue to read as 
follows:

    Authority: 49 U.S.C. 322, 30111, 30115, 30117, and 30166; 
delegation of authority at 49 CFR 1.50.

    2. Section 571.3(b) of title 49, Code of Federal Regulations, would 
be amended by revising the definition of ``motor home'' and adding a 
definition of ``travel trailer,'' in the appropriate alphabetical 
order, to read as follows:


Sec.  571.3  Definitions.

* * * * *
    (b) * * *
    Motor Home means a multi-purpose vehicle with motive power that is 
designed to provide temporary residential accommodations, as evidenced 
by the presence of at least four of the following facilities: cooking; 
refrigeration or ice box; self-contained toilet; heating and/or air 
conditioning; a potable water supply system including

[[Page 51717]]

a faucet and a sink; and a separate 110-125 volt electrical power 
supply and/or propane.
* * * * *
    Travel Trailer means a trailer designed to be drawn by a vehicle 
with motive power by means of a bumper or frame hitch or a special 
hitch in a truck bed and is designed to provide temporary residential 
accommodations, as evidenced by the presence of at least four of the 
following facilities: cooking; refrigeration or ice box; self-contained 
toilet; heating and/or air conditioning; a potable water supply system 
including a faucet and a sink; and a separate 110-125 volt electrical 
power supply and/or propane.
* * * * *
    3. Section 571.110 of title 49, Code of Federal Regulations, would 
be amended by revising S4.3(a) to read as follows:


Sec.  571.110  Tire selection and rims.

* * * * *
    S4.3 * * *
    (a) Vehicle capacity weight:
    (1) If weight greater than 0.5 percent of the gross vehicle weight 
rating (GVWR) is added to a vehicle between vehicle certification and 
the first retail sale of the vehicle, the following label meeting the 
following criteria shall be affixed to the vehicle within 25 
millimeters (one inch) of the tire placard such that it is visible when 
the tire placard is read.

    ``Caution--Cargo Carrying Capacity Reduced'' Modifications to 
this vehicle have reduced the original cargo carrying capacity by--
----kilograms (------pounds)

    (2) The label must disclose the total weight added to the nearest 
kilogram with conversion to the nearest pound in parentheses.
    (3) The characters of the label must be presented in the English 
language, have a minimum print size of 2.4 millimeters (\3/32\ inches) 
high, and be black printed on a yellow background. The label must be 
moisture resistant and permanently affixed to the vehicle.
* * * * *
    3. Section 571.120 of title 49, Code of Federal Regulations, would 
be amended by revising the section heading, by revising S1, by revising 
S2, by adding S10, and by adding Figures 1, 2, and 3 to read as 
follows:


Sec.  571.120  Tire selection and rims for motor vehicles with GVWRs of 
more than 4,536 kilograms (10,000 pounds).

    S1. This standard specifies tire and rim selection requirements, 
rim marking requirements and motor home/travel trailer cargo carrying 
capacity information.
    S2. The purpose of this standard is to provide safe operational 
performance by ensuring that vehicles to which it applies are equipped 
with tires of adequate size and load rating and with rims of 
appropriate size and type designation, and ensuring that consumers are 
informed of motor home/travel trailer cargo carrying capacity.
* * * * *
    S10. Each motor home and travel trailer must meet the applicable 
requirements in S10.
    S10.1 On motor homes, the sum of the GAWRs of all axles on the 
vehicle must not be less than the GVWR.
    S10.2 On travel trailers, the sum of the GAWRs of all axles on the 
vehicle plus the tongue load rating must not be less than the GVWR.
    S10.3 The tires on each motor home and travel trailer at first 
retail sale must be the same size as the tire size on the labeling 
required by S5.3.
    S10.4 Each motor home and travel trailer final stage manufacturer 
must affix a cargo carrying capacity label to its vehicles that meets 
the following criteria:
    S10.4.1 The label must be moisture resistant, and must be 
permanently affixed to the interior of the forward most exterior 
passenger door on the right side of the vehicle.
    S10.4.2 The label must be presented in the English language with a 
minimum print size of 2.4 millimeters (\3/32\ inches high).
    S10.4.3 The label for motor homes must contain the following 
information in accordance with Figure 1:
    (a) The statement: ``THE COMBINED WEIGHT OF OCCUPANTS AND CARGO 
SHOULD NEVER EXCEED XXX kilograms (XXX pounds)'' in block letters with 
appropriate values included in place of ``XXX''. The letters shall be 
black and the block in which the statement is located shall have a 
yellow background.
    (b) The Vehicle Identification Number (VIN) of the motor home.
    (c) Definitions of GVWR, UVW, OCW, and CCC as specified in Figure 
1.
    (d) The weights for the GVWR, UVW, fresh water, propane, OCW, CCC 
and maximum hitch load.
    Weights must be provided to the nearest kilogram with conversion to 
the nearest pound in parentheses. Weights must be measured with scales 
that have a minimum accuracy of plus or minus one percent of the actual 
reading. Label weights must reflect the weights of the motor home as 
configured for delivery to the dealer.
    (e) The following advisory statements must appear verbatim on the 
label:
    (1) ``Dealer installed equipment and towed vehicle tongue weight 
will reduce the CCC.''
    (2) ``Distribute cargo appropriately to prevent non-uniform side-
to-side and/or forward/aft loading.''
    S10.4.4 The label for travel trailers must contain the following 
information in accordance with Figure 2:
    (a) The statement: ``THE WEIGHT OF CARGO SHOULD NEVER EXCEED XXX 
kilograms (XXX pounds)'' in block letters, with the travel trailer 
manufacturer providing the appropriate values in place of ``XXX.'' The 
letters shall be black and the block in which the statement is located 
shall have a yellow background.
    (b) The VIN of the travel trailer.
    (c) Definitions for GVWR, UVW, and CCC as specified in Figure 2.
    (d) The tongue load rating.
    (e) The weights for the GVWR, UVW, fresh water, propane, and CCC.
    Weights must be provided to the nearest kilogram, with conversion 
to the nearest pound in parentheses. Weights must be accurate within a 
tolerance of plus or minus one percent. Label weights must reflect the 
weights of the travel trailer as configured for delivery to the dealer.
    (f) The following advisory statements must appear verbatim on the 
label:
    (1) ``Dealer installed equipment will reduce the CCC.''
    (2) ``Distribute cargo appropriately to prevent non-uniform side-
to-side and/or forward/aft loading.''
    S10.4.5 Weight added to motor homes and travel trailers between 
vehicle certification and first retail sale of the vehicle.
    (a) If weight greater than 0.5 percent of gross vehicle weight 
rating (GVWR) is added to a motor home or travel trailer between 
vehicle certification and first retail sale of the vehicle, a label as 
shown in Figure 3 and meeting the following criteria shall be affixed 
to the vehicle within 25 millimeters of the cargo carrying capacity 
label required by S10.4.3 or S10.4.4 such that the label specified in 
Figure 3 is visible when reading the cargo carrying capacity label.
    (1) The label must disclose the total weight added to the nearest 
kilogram with conversion to the nearest pound in parentheses.
    (2) The characters of the label must be presented in the English 
language, have a minimum print size of 2.4 millimeters (\3/32\ inches) 
high, and be black printed on a yellow background. The label must be 
moisture resistant and permanently affixed to the vehicle.
BILLING CODE 4910-59-P

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* * * * *

    Issued on: August 25, 2005.
Stephen R. Kratzke,
Associate Administrator for Rulemaking.
[FR Doc. 05-17245 Filed 8-30-05; 8:45 am]
BILLING CODE 4910-59-C