[Federal Register Volume 61, Number 81 (Thursday, April 25, 1996)]
[Notices]
[Pages 18458-18461]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-10278]



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DEPARTMENT OF TRANSPORTATION
Office of the Secretary of Transportation
[Docket No. OST-96-1288]


Comprehensive Truck Size and Weight Study: Analytical Framework 
and Outreach Plan

AGENCY: Department of Transportation, Office of the Secretary (OST).

ACTION: Notice; request for comments.

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SUMMARY: This notice provides an update on the options analysis 
framework approved by the DOT Policy Oversight Group for the DOT 
Comprehensive TS&W Study and requests comments on this framework. Plans 
are outlined for informational focus sessions to explain how the study 
is being conducted and to obtain direct comment from constituent 
groups.

DATES: To be timely for consideration for either the analytical 
framework or outreach plans for the study, comments should be received 
on or before May 28, 1996. However, this docket will remain open until 
the study is completed. FHWA Docket No. 95-5 also will

[[Page 18459]]

remain open until completion of the study.

ADDRESSES: Submit written, signed comments to Docket No. OST-96-1288, 
the Docket Clerk, U.S. Department of Transportation, Room PL-401, C-55, 
400 Seventh Street, S.W., Washington, D.C. 20590. All comments received 
will be available for examination at the above address between 9:00 
a.m. and 5:00 p.m., ET, Monday through Friday, except Federal holidays. 
Those desiring notification of receipt of comments must include a self-
addressed, stamped envelope or postcard.

FOR FURTHER INFORMATION CONTACT: Ms. Cynthia Elliot, Office of Policy 
Development, FHWA, at (202) 366-8707; Mr. Carl Swerdloff, Office of 
Economics, Office of the Secretary, DOT, at (202) 366-5427; Ms. Jill 
Hochman, Office of Motor Carrier Information Analysis, at (202) 366-
1861; or Mr. Charles Medalen, Office of Chief Counsel, at (202) 366-
1354, FHWA, 400 Seventh Street, S.W., Washington, D.C. 20590. Office 
hours are from 7:45 a.m. to 4:15 p.m., e.t., Monday through Friday, 
except Federal holidays.

SUPPLEMENTARY INFORMATION: In June 1995, the Secretary established the 
Policy Oversight Group (POG), chaired by Assistant Secretary for 
Transportation Policy, Frank E. Kruesi, to ensure major decisions 
guiding the Comprehensive Truck Size and Weight (TS&W) Study would be 
made on an intermodal basis and to coordinate the TS&W Study with the 
Highway Cost Allocation Study. The POG includes policy level 
representatives from the offices of the Associate Deputy Secretary and 
Director of the Office of Intermodalism, the Assistant Secretary for 
Budget and Programs, and the Assistant Secretary for Governmental 
Affairs, FHWA, Federal Railroad Administration, National Highway 
Traffic Safety Administration, Maritime Administration, Federal Transit 
Administration, and Bureau of Transportation Statistics (see August, 
30, 1995 Federal Register). After extensive review and discussion, the 
POG has formulated and approved an options analysis framework for the 
TS&W Study consisting of three parts: technical building blocks, policy 
approaches, and illustrative scenarios. For further information on the 
Comprehensive Truck Size and Weight Study, please refer to the February 
2, 1995 and August 30, 1995 Federal Register notices and submissions to 
FHWA Docket No. 95-5. For information on the Highway Cost Allocation 
Study, please refer to the February 10, 1995 Federal Register notice 
and to submissions to FHWA Docket No. 95-6.
    This analytical framework is designed as a structure for gathering 
information, such as safety, environmental, economic, traffic 
operations, modal diversion, and bridge and pavement impacts, about 
significant truck configurations that have been suggested in previous 
studies (including the ``Report of the Subcommittee on Truck Size and 
Weight of the American Association of State Highway and Transportation 
Officials (AASHTO) Joint Committee on Domestic Freight Policy'' 
(AASHTO, June, 1995), ``Truck Weight Limits'' (Transportation Research 
Board (TRB), 1990), ``New Trucks for Greater Productivity and Less Road 
Wear, an Evaluation of the Turner Proposal'' (TRB, 1990), and ``Longer 
Combination Vehicle Operations in Western States'' (DOT, 1986)), or may 
emerge in the current policy environment. The framework is conceived as 
a flexible tool for examining the wide range of TS&W options, from more 
restrictive to more liberal, that may receive legislative consideration 
now or in the future. With periodic updates in data or methodologies, 
this framework will ensure that the Department can respond to 
significant TS&W proposals without embarking on a separate, new study 
for each proposal. Public comment on this framework is invited.

Building Blocks

    Technical building blocks analyzing a broad range of truck 
configurations at varying gross vehicle weights provide the foundation 
for the analytical framework. These configurations include three- and 
four-axle single unit trucks, five- and six-axle semitrailers, 28-foot 
doubles, intermediate length (31- to 33-foot) doubles, and longer 
combination vehicles. An evaluation will be conducted for each 
configuration in relation to various highway system(s)--the Eisenhower 
National System of Interstate and Defense Highways (Interstate System), 
the National Network (NN) for trucks, the National Highway System 
(NHS), and a limited system of highways tailored for the operation of 
longer combination vehicles--on which the configuration operates now or 
might be proposed to operate. Operations of each configuration also 
will be examined, as appropriate, in relation to major geographic 
considerations for that configuration--national, regional, and state. 
In addition, configurations will be analyzed at operating weights which 
vary according to different assumptions about axle weight and bridge 
formula restrictions. These analytical building blocks are represented 
in the matrix below:

                                         TS&W Analytical Building Blocks by Configuration, System, and Geography                                        
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                                                                                      Highway system                               Geography            
                                                     Maximum gross   -----------------------------------------------------------------------------------
                  Configuration                     weight range (in                           National    Limited*                                     
                                                        pounds)       Interstate   National     highway     systems    National    Regional      State  
                                                                        system      network     system     for LCV's                                    
--------------------------------------------------------------------------------------------------------------------------------------------------------
Single Unit Truck................................      54,000-68,000          X           X           X   ..........  ..........          X           X 
Semitrailer......................................      80,000-97,000          X           X           X   ..........          X           X           X 
Double 28 to 28\1/2\ ft. Trailer.................     80,000-111,000          X           X           X   ..........          X           X           X 
Intermediate Length (31-33 ft.) Double...........    105,500-128,000          X   ..........          X   ..........          X           X   ..........
Longer Combination Vehicles......................    105,500-148,000  ..........  ..........  ..........          X           X           X   ..........
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Highways on which LCV's currently operate or might be proposed to operate.                                                                            

    Evaluation of possible regulations pertaining to a variety of 
configurations, such as elimination of grandfather provisions, freezing 
weight limits on the NHS, limiting trailer and semitrailer lengths to 
53 feet, and lifting the longer combination vehicle freeze also will be 
examined.
    The inclusion of a configuration at a gross vehicle weight limit or 
on a certain network in the building blocks for analysis does not imply 
a predisposition of the DOT to its adoption. In response to 
Congressional direction to conduct a thorough and

[[Page 18460]]

comprehensive study, a wide range of configurations are being evaluated 
to understand the impacts of keeping their operations strictly at 
current limits as well as restricting or expanding their operations. As 
a result of the study, if the Department makes recommendations for 
changes in truck size and weight limitations, such recommendations 
would be submitted to Congress for legislative consideration.

Policy Analysis

    A Notice of Proposed Policy for a Freight Policy Statement setting 
forth a policy context for important decisions affecting freight 
transportation across all modes was published in the Federal Register 
on April 2, 1996. The second part of the TS&W analytical framework will 
focus directly on such major policy considerations. DOT's draft Freight 
Policy Statement presents important principles for all freight-related 
decisionmaking which must be applied to the TS&W context. The POG will 
be establishing impact measures for the study derived from the Freight 
Policy Statement, and these will be used in the Policy Analysis section 
of the overall analytical framework.
    In addition, the TS&W study will examine Federal and state role 
issues; important international concerns, such as overweight container 
movements; and potential alternative regulatory approaches. At least 
four policy approaches will receive extensive study: (1) the 
implications of the existing TS&W regulatory regime; (2) implications 
of expanding Federal controls on the NHS; (3) issues involved in 
increased state authority in TS&W regulation, and (4) international 
considerations affecting TS&W.

Illustrative Options

    When all the information required by the building block and policy 
analysis is developed, the study will examine a few initial scenarios 
to demonstrate how the full analysis framework is applied. Within each 
broad policy approach noted above, the POG has selected one or two 
illustrative scenarios for full analysis in order to demonstrate their 
full range of impacts and associated costs and benefits. The scenarios 
selected by the POG for full analysis are not DOT recommendations, but 
do illustrate proposals to which DOT might be asked to respond in the 
future. Because the TS&W analytical framework is flexible and includes 
many building blocks, other scenarios could be fully analyzed in the 
future as well.
    Illustrative scenarios selected for complete analysis include the 
following:
    1. Status Quo. This scenario serves as a baseline for other 
scenarios and retains all features of current law, including the ISTEA 
freeze. Federal size limits (102-inch maximum vehicle width, 48-foot 
minimum semitrailer length, and 28-foot minimum trailer length for 
double-trailer combinations) remain on Interstate and designated 
highways (the National Network). The size limits would not apply to NHS 
highways not already designated as NN highways under the STAA of 1982. 
Federal weight limits (20,000-pound single- and 34,000-pound tandem-
axle limits, 80,000-pound cap, and Bridge Formula B) remain on 
Interstate highways as do existing grandfather rights. Operation of 
LCV's (any combination of a truck tractor or semitrailers carrying more 
than 80,000 pounds) on the Interstate Highway System are restricted to 
what was in use as of June 1, 1991. Operation of commercial motor 
vehicle combinations with two or more cargo-carrying units on the NN is 
restricted to what was in use on June 1, 1991, subject to state 
restrictions on that date.
    2. Expanded Federal Control of TS&W on the NHS. This approach 
focuses on a special Federal role on the NHS in recognition of its 
importance for interstate and international commerce. The following 
scenarios would be examined in detail:
    a. Restrict weights on non-Interstate portions of the NHS to 
Federal limits but grandfather currently higher state weight limits on 
the NHS, and (2) restrict semitrailer lengths on the NHS to a maximum 
of 53 feet but grandfather operation of existing semitrailers greater 
than 53 feet in length on the NHS where they may now legally operate.
    b. Extend Federal STAA size limits (102-inch maximum vehicle width, 
48-foot minimum semitrailer length, and 28-foot minimum trailer length 
for double-trailer combinations) to the entire NHS. No state could 
exclude such vehicles from the NHS. The 80,000 pound GVW limit would 
remain in place on the Interstate System except where higher limits 
have been grandfathered.
    3. Increasing State Flexibility. This approach would increase state 
flexibility in controlling truck size and weight on all highway 
systems. The following illustrative scenarios would be evaluated in 
detail:
    a. Lift the Longer Combination Vehicle freeze which restricts the 
operation of LCV's on the Interstate and NN highway systems to those 
that were in use on or before June 1, 1991. All other Federal size and 
weight controls would remain. Included in the analysis are two 
different assumptions: (1) states retain authority to determine the 
extent of grandfather rights, and (2) grandfather authority is 
determined at the Federal level.
    b. Replace grandfather provisions with federally regulated, state 
voluntary permit programs for operation of combinations over 80,000 
lbs. GVW. Federal safety and infrastructure standards for operation of 
these vehicles would be established. Federal axle and bridge controls 
would remain.
    4. International Considerations. This approach focuses on 
continuing concern about overweight international container movements. 
DOT would evaluate one scenario in which states would be required to 
allow use of a six-axle tractor-semitrailer combination at a gross 
weight limit of 97,000 pounds (for this configuration only). This 
scenario assumes establishing axle weight limits to avoid over-
stressing bridges and establishing minimum Federal safety standards for 
operation of these vehicles. Two alternative systems would be examined 
requiring states to allow this vehicle on: (1) the Interstate System 
only, and (2) the entire NHS.

Outreach

    Two public meetings to obtain comment on the TS&W Study were held 
in Denver, Colorado, and Washington, D.C., in the spring of 1995. Since 
that time, public outreach has been conducted through requests for 
comment in the Federal Register and on an informal basis with the most 
readily identifiable members of TS&W constituent communities. Public 
contact has included open, informal technical briefings, meetings with 
national and regional interest groups, and Congressional briefings. To 
complement these efforts and ensure better understanding of the many 
technical and innovative elements of DOT's TS&W study activities, DOT 
will conduct four regional TS&W focus sessions. These informational 
focus sessions will highlight the wide range of efforts encompassed in 
the study and provide for greater public input. They will be aimed at 
reaching major constituencies and experts across the nation who have 
knowledge of these issues and will present information on major TS&W 
study elements and the options analytical framework. Focus sessions now 
are being planned for four geographically diverse cities. These 
sessions will be kept to a relatively small size to facilitate 
discussion and information exchange, although there will be some 
limited capacity to accommodate others who wish to attend.

[[Page 18461]]

    In addition, DOT will continue to hold open, informal technical 
briefings by specialists directly working on specific segments of the 
TS&W effort. DOT has held three such briefings--on preliminary results 
of Truck Inventory and Use Survey analysis, on intermodal diversion 
analysis and on domestic and international freight trends. Individuals 
attending these briefings have indicated that they gain useful insight 
into the methodologies being used in the study and that the briefings 
provide an opportunity to get detailed answers to their questions.
    DOT also will make available executive summaries of individual 
study reports as they are completed and brief written updates on 
progress of the study. Parties interested in being placed on a mailing 
list for technical briefing announcements, executive summaries, and 
periodic updates should provide their name and address to any of the 
DOT contacts noted above. Distribution of TS&W study report summaries 
and updates over the Internet also are being planned. DOT will continue 
to provide updates on its TS&W study at meetings and conferences held 
by government, safety, industry, research, and other groups as 
requested.

    Issued in Washington, D.C. on April 19, 1996.
Frank E. Kruesi,
Assistant Secretary for Transportation Policy.
[FR Doc. 96-10278 Filed 4-24-96; 8:45 am]
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