Source: https://www.federalregister.gov/documents/2011/04/13/2011-8846/pilot-program-on-nafta-long-haul-trucking-provisions
Timestamp: 2017-05-27 19:48:36
Document Index: 187439608

Matched Legal Cases: ['arts 350', 'art 382', 'art 40', 'art 40', 'art 383', 'art 380', 'art 383', 'art 391']

:: Pilot Program on NAFTA Long-Haul Trucking Provisions
A Notice by the Federal Motor Carrier Safety Administration on 04/13/2011
20807-20819
https://www.federalregister.gov/d/2011-8846
You may submit comments identified by Docket Number FMCSA-2011-0097 using any one of the following methods:Start Printed Page 20808
Section 136 of the Transportation, Housing and Urban Development, and Related Agencies Appropriations Act, 2009 [Division I of the Omnibus Appropriations Act, 2009, Pub. L., 111-8, 123 Stat. 524, 932, March 11, 2009] prohibited DOT from expending funds made available in that Act to establish, implement or continue a cross-border motor carrier pilot program to allow Mexican-domiciled motor carriers to operate beyond the border commercial zones. The Transportation, Housing and Urban Development, and Related Agencies Appropriations Act, 2010 [Division A of the Consolidated Start Printed Page 20809Appropriations Act, 2010, Pub. L. 111-117, 123 Stat. 3034, December 16, 2009] did not bar DOT or FMCSA from using funds on a cross-border long-haul program, but, pursuant to section 135 (123 Stat. at 3053) did continue the requirements of section 350. FMCSA continues to operate under the terms and conditions in its fiscal year 2010 appropriations act, as extended under various short-term continuing resolutions.
Former Secretary of Transportation Mary E. Peters and Mexico's former Secretaria de Comunicaciones y Transportes (SCT) Luis Téllez Kuenzler announced a demonstration project to implement certain trucking provisions of NAFTA on February 23, 2007. The demonstration project was initiated on September 6, 2007, after the DOT complied with a number of conditions imposed by section 6901 of the U.S. Troop Readiness, Veterans' Care, Katrina Recovery, and Iraq Accountability Act, 2007, as discussed further in the “Legal Basis” section above. The demonstration project was initially expected to last 1 year (see 72 FR 23883, May 1, 2007). On August 6, 2008, FMCSA announced that the demonstration project was being Start Printed Page 20810extended from 1 year to the full 3 years allowed by section 31315(c)(2)(A) of title 49 United States Code (73 FR 45796) after Secretaries Peters and Téllez exchanged letters on the extension.
On March 11, 2009, President Obama signed into law the Omnibus Appropriations Act, 2009. Section 136 of the Transportation, Housing and Urban Development, and Related Agencies Appropriations Act, 2009 (Division I, title I of the Omnibus Appropriations Act, 2009) provides that: [N]one of the funds appropriated or otherwise made available under this Act may be used, directly or indirectly, to establish, implement, continue, promote, or in any way permit a cross-border motor carrier pilot program to allow Mexican-domiciled motor carriers to operate beyond the commercial zones along the international border between the United States and Mexico, including continuing, in whole or in part, any such program that was initiated prior to the date of the enactment of this Act.
On March 19, 2009, Mexico announced that it was exercising its rights under the 2001 NAFTA Arbitration Panel decision to impose retaliatory tariffs for the failure to allow Mexico-domiciled carriers to provide long-haul service into the United States. The tariffs affect approximately 90 U.S. export commodities at an estimated annual cost of $2.4 billion. The President directed DOT to work with the Office of the U.S. Trade Representative and the Department of State, along with leaders in Congress and Mexican officials, to propose legislation creating a new cross-border trucking project, to address the legitimate safety concerns of Congress while fulfilling our obligations under NAFTA. Secretary of Transportation Ray LaHood met with numerous members of Congress to gather their input. FMCSA tasked the Motor Carrier Safety Advisory Committee (MCSAC) with providing advice and guidance on essential elements that the Agency should consider when drafting proposed legislation to permit Mexico-domiciled trucks beyond the commercial zones along the United States-Mexico border. The MCSAC final report on this tasking is available on FMCSA's MCSAC Web page at http://mcsac.fmcsa.dot.gov/​Reports.htm. Additionally, DOT formed a team to draft principles that would guide the creation of the draft legislation.
On January 6, 2011, Secretary LaHood shared with Congress and the Government of Mexico an initial concept document for a cross-border long-haul Mexican trucking pilot program that prioritizes safety, while satisfying the U.S.' international obligations. Also, on the same day, the Department posted the concept documents on its Web site for public viewing. See http://www.dot.gov/​affairs/​2011/​dot0111.html. The initial concept document was the starting point for renewed negotiations with Mexico. Discussions with the Government of Mexico commenced on January 18, 2011. The preliminary agreement between DOT and the Secretariat of Communications and Transport is reflected in the program description and details provided below.
Reciprocity with Mexico. Consistent with section 6901(a)(3) of Public law 110-28, FMCSA will not grant operating authority to Mexico-domiciled motor carriers to operate beyond the U.S. municipalities and commercial zones along the United States-Mexico border unless the Government of Mexico simultaneously permits comparable Start Printed Page 20811authority to be granted to U.S.-domiciled motor carriers to transport international cargo in Mexico.
Measures To Protect the Health and Safety of the Public. The FMCSA has developed an extensive oversight system to protect the health and safety of the public and FMCSA will apply it to Mexico-domiciled motor carriers. These measures are outlined in 49 CFR parts 350-396 and include providing grants to States for commercial vehicle enforcement activities, regulations outlining the application procedures, regulations explaining how FMCSA will Start Printed Page 20812assess safety ratings and civil penalties as well as amounts of possible civil penalties, insurance requirements, drug and alcohol testing requirements, commercial driver's license (CDL) requirements, general operating requirements, driver qualification requirements, vehicle parts and maintenance requirements, and hours-of-service requirements. These requirements apply to Mexico-domiciled carriers operating in this pilot program, just as they do to any commercial motor vehicle, driver, or carrier operating in the United States. The description below focuses on the main features of FMCSA's system to protect the health and safety of the public that are unique to this pilot program, but is not intended to imply that all regulations outlined above do not apply at all times.
To participate in the pilot program, a Mexico-domiciled motor carrier must, pursuant to existing regulations, submit (1) Form OP-1(MX), “Application to Register Mexican Carriers for Motor Carrier Authority to Operate Beyond U.S. Municipalities and Commercial Zones on the U.S.-Mexico Border”; (2) Form MCS-150, the “Motor Carrier Identification Report”; and (3) notification of the means used to designate agents for service of legal process, either by submitting Form BOC-3, “Designation of Agents—Motor Carriers, Brokers and Freight Forwarders,” or a letter stating that the applicant will use a process agent service that will submit Form BOC-3 electronically. The forms are available on the Internet at http://www.fmcsa.dot.gov/​forms/​print/​r-l-forms.htm.
Applicant carriers would designate and identify drivers and vehicles that will perform cross-border long-haul operations in the pilot program.[1] FMCSA would verify driver qualifications, including confirming the validity of the driver's LF and review any Federal and State driver license history for traffic violations that would disqualify the driver for operations in the United States. FMCSA would also conduct an English Language Proficiency assessment of each participating driver to ensure compliance with 49 CFR 391.11(b)(2). The assessment would be conducted orally, in English, and would include a test on knowledge of U.S. traffic signs.
a. Comply with the FMVSSs; andStart Printed Page 20813
If a carrier successfully completes the PASA and FMCSA approves its application, the Agency will publish a summary of the application as a provisional grant of authority in the FMCSA Register, at http://li-public.fmcsa.dot.gov/​LIVIEW/​pkg_​html.prc_​limain. In addition, FMCSA will publish comprehensive data and information on the PASAs conducted of Mexico-domiciled motor carriers that are granted authority to operate beyond the commercial zones on the U.S. Mexico border. However, no carrier would be authorized to conduct any cross-border long-haul transportation until it has made the insurance filings required by 49 CFR 365.507(e)(1) and designated a process agent as required by 49 CFR 365.503(a)(3). Additionally, no Mexico-domiciled motor carrier will be authorized to operate beyond the commercial zones of the United States-Mexico border until this notice-and-comment procedure is completed.
After the motor carrier successfully completes a compliance review and receives a satisfactory rating within 18 Start Printed Page 20814months of beginning cross-border long-haul operations, and completes 18 months of operation with provisional operating authority, the motor carrier would be granted permanent authority. The vehicles and drivers would be inspected at the border crossings at the same rate as commercial zone carriers. CMVs operating in the United States must display current CVSA decals for 3 years from the date the carrier is granted permanent operating authority.
FMCSA is in the process of updating this MOU.[2] As part of this process, on February 17, 2011, representatives from FMCSA, CVSA and the American Association of Motor Vehicle Administrators visited a Mexican driver license facility, medical qualification facility, and test and inspection location. During these site visits FMCSA and its partner organizations observed Mexico to have rigorous requirements for knowledge and skills testing that are similar to those in the United States. In addition, Mexico requires that all new commercial drivers undergo training prior to testing and requires additional retraining each time the license is renewed. In contrast, U.S. regulations do not currently require any specific training prior to testing for, or renewal of, a U.S. CDL.
FMCSA examined the Mexican medical fitness for duty requirements and has found that the Mexican physical qualification regulations are more prescriptive, detailed, and stricter than those in the United States. For example, Mexican regulations address body mass index, cancers and tumors, skin and appendages, psychiatric and psychological disorders, and have specific standards for evaluation of the ear, nose and throat and the genitourinary system. These are all areas for which the United States has no regulatory standards. The only notable difference involves vision. Mexico only requires red color vision while the United States requires a color vision test for at least red, green, and yellow. FMCSA believes that, taken as a whole, Mexico's medical regulations are comparable to those in the United States, and provide a level of safety at least equivalent to the U.S. regulations. FMCSA also notes that Mexico's Start Printed Page 20815medical examinations are performed almost exclusively by physicians at Mexican government facilities, and when performed by private doctors, those doctors are specifically approved by the SCT.
Table 1DescriptionUnited StatesMexicoDrug and Alcohol Testing Procedures—Random Testing.• 49 CFR part 382• Reglamento del Servicio de Medicina Preventiva del Transporte. • Requires random drug testing by motor carrier at a 50 percent rate. • Government conducts random drug testing at terminals, ports of entry, and specific areas along corridors.Drug and Alcohol Testing Procedures—Collection of Samples• 49 CFR part 40• Reglamento del Servicio de Medicina Preventiva del Transporte. • Collection procedures outlined and detailed description of the custody• DGPMPT-IT-02-01; DGPMPT-PE-02-F-01. • DGPMPT-PE-02. • DGPMPT-IT-02-01 thru 08. • Collection procedures have been ISO certified. • The United States and Mexico have a Memorandum of Understanding that Mexico will, when collecting samples to satisfy U.S. drug testing regulations, use U.S. collection procedures and forms. These forms have been translated into Spanish and provided to Mexico.Drug and Alcohol Testing Procedures—Laboratory Testing• 49 CFR part 40• Reglamento del Servicio de Medicina Preventiva del Transporte. • Laboratories approved by the U.S. Department of Health and Human Services• DGPMPT-PE-01-IE-01. • Regulations and procedures are equivalent to U.S. standards. • Laboratory is not certified due to lack of proper equipment and other procedural requirements.Commercial Driver's License—Issuance• 49 CFR part 383• Ley de Caminos, Puentes y Autotransporte Federal. • Outlines the knowledge, skills and testing procedures required to obtain a commercial driver's license• Articlos 89 y 90, Reglamento de Autotransportes Federal y Servicio Auxilares. • Driver must provide proof of medical qualification, proof of address, and training (both skills and knowledge). • Must be renewed every 5 years (every 3 years for hazardous material category).Commercial Driver's License— Training• 49 CFR part 380• Articulo 36, 37, y 57 Ley de Caminos, Puentes y Autotransporte Federal. • Outlines special training requirements for longer combination vehicle drivers on basic operation, safe operating practices, advanced operations and non-driving activities training and an orientation• Articlos 89 y 90, Reglamento de Autotransportes Federal y Servicio Auxilares. • Programa Minimo de Capacitacion para Conductores del Servicios de Autotransporte Federal y Transporte Privado, Para Referendo de Carga General (Tractorcamion Quinta Rueda y Camion Utitario).Start Printed Page 20816 • Outlines special training requirements for entry level drivers on driver qualifications, hours of service, driver wellness, and whistleblower protection training• Outlines 41 hours of training requirements (theory) for new drivers transporting general cargo on General Introduction to Driving, Road Safety Education, Defensive Driving, Vehicle Operations, Preventive Maintenance and Emergency Repair, Latest Regulations, plus 100 hours of practical driving (behind the wheel), Practical Defensive driving (8 hours) and practical emergency repair (6 hours). • Outlines 58 (theory and practical) hours of continued training for returning drivers transporting general cargo on General Introduction, Health and Safety, Road Safety Education, Human Relations, Family and Lifestyle, Latest Rules and Technological Advances. • Outlines 16 hours of continuing education for drivers with a licencia federal de conductor.Commercial Driver's License—Disqualifications• 49 CFR part 383• Ley de Caminos, Puentes y Autotransporte Federal. • Outlines CDL disqualifications for major and serious traffic violations• Reglamento del Servicio de Medicina Preventiva del Transporte. • Provides for the disqualification of drivers for major and serious traffic violations. • License can be canceled by a judge. • License can be canceled for three speeding violations in a one year period. • License can be canceled for leaving the scene of an accident without notifying the closest authority or abandoning the vehicle. • License can be canceled for altering the license. • License can be canceled for failing a drug test. • License cannot be obtained after failing a drug test without proof of success completion of a rehabilitation program. • License can be suspended for failing to provide accurate information on application. • Cancellation is valid for 10 years—cannot obtain a license for 10 years.Medical Standards• 49 CFR part 391• Reglamento del Servicio de Medicina Preventiva del Transporte. • US—Requires a comprehensive physical and psychological examination• Requires a comprehensive physical and psychological examination. • Medical examination is currently separate from the CDL issuance process• Medical examination is a pre-requisite to obtaining an LF. • Medical examination may be required while the driver is “in operation” (on duty) to determine if the driver is still qualified to drive.
FMCSA is also establishing an oversight and monitoring mechanism by utilizing a Federal advisory committee. This committee would be made up of stakeholders and will be a subcommittee of the MCSAC. The monitoring group's objective is to review the implementation of the pilot program and recommend solutions to Start Printed Page 20817issues affecting the operational performance of the pilot program.
Table 2—Number of Pilot Program Carriers Required To Achieve a Target of 4,100 Inspections, by Vehicles Enrolled per Carrier and Crossings per Week per CarrierAverage Number Enrolled VehiclesAverage number of carrier crossings per week0.512311829146302914636130446536
Section 6901(b)(2)(B) of the U.S. Troop Readiness, Veterans' Care, Katrina recovery, and Iraq Accountability Appropriations Act, 2007, provides that FMCSA must request public comment on five specific aspects of the pilot program. For the convenience of the reader, these items are listed below. A complete copy of Start Printed Page 20819section 6901 is included in the docket for this notice.