Revision of the 1958 United Nations Economic Commission for Europe Agreement Regarding the Regulation of Motor Vehicle Equipment and Parts |
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Christopher A. Hart
National Highway Traffic Safety Administration
March 8, 1994
[Federal Register Volume 59, Number 45 (Tuesday, March 8, 1994)] [Unknown Section] [Page 0] From the Federal Register Online via the Government Printing Office [www.gpo.gov] [FR Doc No: 94-5181] [[Page Unknown]] [Federal Register: March 8, 1994] ----------------------------------------------------------------------- DEPARTMENT OF TRANSPORTATION National Highway Traffic Safety Administration Revision of the 1958 United Nations Economic Commission for Europe Agreement Regarding the Regulation of Motor Vehicle Equipment and Parts AGENCY: National Highway Safety Administration (NHTSA), DOT. ACTION: Notice. ----------------------------------------------------------------------- SUMMARY: This notice announces that NHTSA and the U.S. Environmental Protection Agency (EPA), on behalf of the United States Government, will participate in negotiations regarding a proposed revision to the 1958 United Nations Economic Commission for Europe (UN/ECE) Agreement Concerning the Adoption of Uniform Conditions of Approval and Reciprocal Recognition of Approval for Motor Vehicle Equipment and Parts. The Agreement provides procedures for establishing uniform regulations regarding new motor vehicles and motor vehicle equipment and for reciprocal recognition of such regulations. Regulations adopted by Contracting Parties govern the approval of motor vehicles and equipment for sale in those countries. The United States is a member of the UN/ECE, but is not a Contracting Party to the 1958 Agreement. Depending on the outcome of these negotiations, it may be appropriate for the United States to become a Contracting Party to the Agreement as it may be revised. However, a decision has not yet made regarding that course of action. Notwithstanding the revised Agreement's goal of harmonization of motor vehicle standards, were the United States to become a Contracting Party, it would not adopt a regulation that would lower the level of protection provided by current U.S. domestic safety and environmental standards. Further, there would be no change in the process by which Federal Motor vehicle regulations are adopted and put into effect in the United States. These regulations would continue to be promulgated pursuant to legislation enacted by Congress and through rulemaking proceedings conducted under the Administrative Procedure Act and any other applicable statute. Thus, a regulation under the proposed revision to the 1958 Agreement could be adopted by the United States only if the relevant Federal agency complies with these requirements. FOR FURTHER INFORMATION CONTACT: Mr. Frances J. Turpin, Director, Office of International Harmonization, National Highway Traffic Safety Administration, room 5220, 400 Seventh Street, SW., Washington, DC 20590, telephone (202) 366-2144; or Mr. Thomas M. Baines, Senior Technical Advisor, U.S. Environmental Protection Agency, 2565 Plymouth Rd., Ann Arbor, MI 48105, telephone (313) 668-4366. Copies of the 1958 Agreement and of the proposed revision to the Agreement are available from Mr. Turpin or Mr. Baines upon request. Telephone inquiries addressing safety standard issues should be directed to Mr. Turpin and those concerning environmental standard issues should be directed to Mr. Baines. SUPPLEMENTARY INFORMATION: This notice announces that NHTSA and EPA will participate, on behalf of the United States Government, in negotiations regarding a proposed revision to the 1958 United Nations Economic Commission for Europe (UN/ECE) Agreement Concerning the Adoption of Uniform Conditions of Approval and Reciprocal Recognition of Approval for Motor Vehicle Equipment and Parts (the ``1958 Agreement'' or the ``Agreement''). The Agreement is administered by the Working Party on the Construction of Vehicles (WP29), a subsidiary group of the ECE. Negotiations concerning the proposed revision of the Agreement involve countries that are Contracting Parties to the 1958 Agreement and other interested countries, such as the United States. The 1958 Agreement The 1958 Agreement provides procedures for establishing uniform regulations regarding new motor vehicles and motor vehicle equipment and for reciprocal acceptance of approvals issued under these regulations. Regulations adopted by Contracting Parties pursuant to the Agreement govern the approval of motor vehicles and motor vehicle equipment for sale in those countries. The Agreement was originally intended to address safety standards but has since been amended to encompass environmental (air and noise pollution emission) and energy standards. The United States is a member of the UN/ECE, but is not a Contracting Party to the Agreement. The goal of the Agreement and of WP29 is to promote harmonization of motor vehicle regulations and otherwise to facilitate trade in motor vehicles and motor vehicle equipment. The Agreement provides a mechanism of Contracting Parties to develop harmonized motor vehicle regulations, and for reciprocal acceptance of approvals issued under these regulations. The Agreement requires compliance with regulations through type approval (i.e., testing or witness of testing by a government-designated authority and government approval), the system generally used by European countries. Under the Agreement, any two or more Contracting Parties wishing to adopt a regulation may propose a draft regulation for annexation to the Agreement. The draft regulation enters into force as a regulation annexed to the Agreement with respect to each Contracting Party that has declared its intention to adopt it. A Contracting Party that has adopted an annexed regulation is allowed to grant type approvals for motor vehicle equipment and parts covered by the regulation and is required to accept the type approval of any other Contracting Party that has adopted the same regulation. Regulations under the Agreement are required to include test methods and conditions for granting type approvals. A Contracting Party may choose not to adopt any regulation annexed to the Agreement. The regulation would therefore have no effect on the Contracting Party. The Agreement also contains a mechanism for a Contracting Party, upon notice, to adopt a regulation after it has been annexed to the Agreement or to stop applying a regulation that it has already adopted. An amendment to an annexed regulation may be proposed by any Contracting Party that is applying the regulation. The proposed amendments may be vetoed, however, by the Contracting Party that is applying the regulation. The effectiveness of the 1958 Agreement is demonstrated by the integration of a single market in motor vehicles within the member States of the European Union (EU) and the fact that 23 European countries have become Contracting Parties, including 11 EU member States. Furthermore, the Agreement has led to the annexation of approximately 90 ECE regulations concerning passenger cars, light trucks, heavy trucks, trailers, mopeds and motorcycles, public service vehicles, and other vehicle types. These regulations have been adopted to varying degrees by the Contracting Parties. The major benefit of the Agreement has been harmonization of safety and environmental regulations relating to new motor vehicles and motor vehicle equipment in Europe. Over the past 36 years, numerous European national motor vehicle regulations have been used as the basis for establishing ECE regulations that have subsequently been adopted by the Contracting Parties pursuant to the Agreement and incorporated into their respective regulatory systems.The reciprocal recognition of type approvals among Contracting Parties applying the regulations has facilitated trade in motor vehicles and equipment throughout Europe. In recent years, the ECE/WP29 forum has been used to harmonize ECE regulations and EU Directives. The United States is a member of the ECE, and on this basis has been participating as a technical advisor in the work of WP29 and its subsidiary bodies over the past decade. By such participation, the United States has been able to keep itself informed about European motor vehicle safety and environmental regulatory developments. This participation has also encouraged a certain degree of compatibility among the technical standards contained in United States and European motor vehicle safety and environmental regulations. The United States and relevant European countries have fostered such compatibility while adhering to the substantive and procedural requirements of their respective regulatory systems. With respect to vehicle standards in the United States, these requirements include the National Traffic and Motor Vehicle Safety Act, as amended (15 U.S.C. section 1381 et seq.), the Clean Air Act, as amended (42 U.S.C. section 7401 et seq.), the Noise Control Act, as amended (42 U.S.C. section 4901 et seq.), the Motor vehicle Information and Cost Savings Act, as amended (15 U.S.C. section 2001 et seq.), and the Administrative Procedure Act, as amended (5 U.S.C. section 551 et seq.). The United States has not, however, become a Contracting Party to the 1958 Agreement because the United States has not wished to incur the Agreement's reciprocal acceptance obligations nor develop its regulations in a common European regulatory development forum. One of the reasons for this position is that the Agreement is premised on the use of a type approval system for the regulation of motor vehicles and equipment. The United States relies generally on a self-certification system to regulate motor vehicle safety and noise, pursuant to statute. Under this system, the manufacturers are responsible for compliance with the applicable standards (subject to verification testing), but need not obtain a certificate of conformity before introducing vehicles into commerce. The United States air emissions regulatory program is based on type approval, since manufacturers must obtain a government certification of conformity to introduce their vehicles into commerce. However, the U.S. air emissions regulatory program is not compatible with the European system because responsibilities and authorities are assigned differently, including responsibility for testing vehicles, interpreting regulations, and issuing certificates of conformity. In addition, the U.S. air emissions program does rely to some extent on manufacturer test data, which is characteristic of a self-certification system. Conversion of these United States regulatory programs to a European-style system would require additional legislation. Such a change would not necessarily contribute to achieving current statutorily-mandated United States vehicle regulatory goals. Neither the relevant Federal regulatory agencies nor other interested parties have sought this change. If the United States were currently a Contracting Party to the 1958 Agreement, the U.S. would have to invoke Article 1(6) of the Agreement, which allows a country to become a Contracting Party without adopting the regulations then annexed to the Agreement. This would be necessary because the United States is unable to adopt regulations under this Agreement in the absence of additional conforming legislation that resolves the conflict between the United States self-certification system and the requirement in Article 2 of the Agreement for a type approval system. Proposed Revision to the 1958 Agreement Efforts are under way to revise the 1958 Agreement in ways that might make it appropriate for the United States to consider becoming a Contracting Party. The efforts began in 1989, when WP29 issued a mission statement announcing the goal of promoting worldwide harmonization of motor vehicle regulations. Participants in WP29 agreed that serious consideration should be given to revising the Agreement given the many changes that had occurred in the field of motor vehicle regulation since 1958, including the establishment of different vehicle standards programs in various countries around the world (e.g., the United States, Canada, Japan, and Australia), the accelerated rate of change in automotive technology and design, the globalization of the motor vehicle industry and market, and the creation of an integrated market among EU member states. In 1990, WP29 decided to develop a revised Agreement which would seek to promote worldwide harmonization of motor vehicle regulations and would encourage membership by other countries, particularly the United States, Japan, Canada, and Australia. This latter goal was to be accomplished primarily by revising the Agreement so that type approval would not be mandatory for Contracting Parties. One of the most significant changes under the proposed revision to the Agreement (the ``proposed revision'') would be to limit the application of the provisions regarding type approval to those Contracting Parties who choose to promulgate motor vehicle regulations on the basis of a type approval system. Thus, a type approval regulatory system would no longer be a precondition to a country being able to become a Contracting Party and thereby participating in the Agreement. Since a number of non-European countries are members of or participate in activities of the ECE, the possibility of these countries (including the United States) becoming Contracting Parties provides an opportunity to create a forum for promoting compatibility among motor vehicle regulations on a wider scale than currently exists. As Contracting Parties, these non-European countries would gain the right to vote and to propose new regulations as well as changes in existing ones. Other major changes contained in the proposed revision involve the procedures for annexing a regulation to the Agreement and for amending an annexed regulation. WP29 views the provision in the current Agreement allowing two or more Contracting parties to add a new regulation as an impediment to harmonization because the provision makes it too easy to adopt a regulation that is to be applied by only a small number of Contracting Parties. Conversely, the current procedures for amending a regulation annexed to the Agreement are considered to be burdensome because any one Contracting Party that has adopted the regulation has the right to veto the proposed amendment. This amendment process may impede the ability of the regulatory development process to respond to technological changes in a timely manner. The proposed revision would, on the one hand, make it more difficult for a new regulation to be annexed to the Agreement and, on the other hand, make it easier to amend an already-annexed regulation. The proposed revision to the Agreement provides for an Administrative Committee composed of all Contracting Parties. A proposed regulation would be ``established'' if \2/3\ of the Committee members present at a meeting so vote. (At least half of the total number of Contracting Parties would have to be present at such meeting for the vote to be taken.) All Contracting Parties would be notified of the Committee decision. The regulation would be considered adopted as a regulation annexed to the Agreement unless, within 6 months of such notification, at least \1/3\ of the Contracting Parties have communicated their disagreement with the regulation. If the requisite number of Contracting Parties did not communicate their disagreement in a timely manner, the annexed regulation would enter into force for all Contracting Parties that did not communicate their disagreement. The proposed revision also changes the way in which an annexed regulation may be amended. An amendment to an already-annexed regulation would be ``established'' if \2/3\ of the Administrative Committee members from countries applying the regulation present at a meeting so vote. (At least half of the total number of Contracting Parties that have adopted the regulation would have to be present at such meeting for the vote to be taken.) All Contracting Parties that have adopted the regulation would be notified of the Committee decision. The amendment would be considered adopted unless, within 6 months of such notification, at least \1/3\ of the Contracting Parties that have adopted the regulation have communicated their disagreement with the amendment. If the requisite number of Contracting Parties did not communicate their disagreement in a timely manner, the amendment would be binding upon those Contracting Parties that have adopted the regulation and have not declared their disagreement with the amendment. The proposed revision also provides that, if at least 20 percent of the Contracting Parties that have adopted the regulation declare that they wish to continue applying the unamended regulation, the unamended regulation would be regarded as an option to the amended regulation and would be incorporated formally as such in the regulation. Further, the proposed revision allows countries to enforce more stringent standards than those contained in the annexed regulations by either electing not to adopt any particular regulation annexed to the Agreement, or, if the country has in fact adopted a particular regulation and has failed to have the regulation amended, by ceasing to apply the regulation upon one year's notice. In addition, while the Agreement addresses the regulation of ``motor vehicle equipment and parts,'' the proposed revision to the Agreement provides for the regulation of ``wheeled vehicles, equipment and parts.'' The proposed revision, however, does not recognize other classes of products that are mobile sources of air pollutants, such as off-highway engines. Possible U.S. Action Concerning the Proposed Revised Agreement The United States is considering whether it should become a Contracting Party to the proposed revised Agreement. In considering this option, NHTSA and EPA note that the Agreement does not explicitly recognize any regulatory and enforcement system (such as that of the United States) other than a type approval system, notwithstanding a provision of the proposed revision which implicitly gives a Party that adopts a regulation the option of electing not to implement that regulation through a type approval system. NHTSA and EPA believe that if the United States is to consider becoming a Contracting Party to the proposed revision, explicit recognition in the revised Agreement of the United States motor vehicle safety and environmental regulatory/ enforcement system is necessary so that regulations promulgated under the United States system would have a status equal to that of the European regulatory/enforcement system under the Agreement. It is unclear under the proposed revision what the relationship and obligations would be among those Contracting Parties that implement regulations through a type approval system and those Contracting Parties that implement the same regulations through other regulatory enforcement systems, such as a self-certification system. In addition, explicit recognition of non-type approval regulatory enforcement systems in the proposed revision could encourage countries that do not already have a regulatory system that addresses motor vehicle safety and environmental standards to consider adoption of one of those systems. If, as the proposed revision currently stands, only the type approval system is explicitly recognized, countries that currently do not have a regulatory system would be more likely to respond in either of two ways. They would be likely to adopt the type approval system or to develop completely novel systems. If the former occurs, the type approval system could become so widely adopted that there would be increasing pressure on countries using other regulatory/ enforcement systems to convert to a type approval system. If the latter occurs, there could be a proliferation of different novel regulatory/ enforcement systems. As with all United States regulations, a regulation under the proposed revision to the Agreement could not be adopted by any Federal agency unless there is domestic legislation to authorize such adoption and the agency follows the rulemaking procedures of the Administrative Procedure Act (APA) and any other applicable statute. Since the APA requires the appropriate Federal agency to solicit and consider public comments in promulgating regulations, the United States cannot agree in advance to adopt a proposed or annexed ECE regulation as a final rule. Thus, if the United States were to become a Contracting Party to the proposed revision, the United States could not accept a regulation proposed for annexation by other countries unless the regulation is identical to a regulation already adopted by the United States or is proposed and adopted through the United States rulemaking procedures described above. It would therefore vote against ``establishment'' of the regulation, indicate its disagreement with the annexation of the regulation, or elect not to adopt the regulation in the event of annexation. Further, notwithstanding the fact that the Agreement is being revised to promote compatibility of motor vehicle standards, the United States would not adopt a regulation that would lower the level of protection provided by current U.S. domestic safety and environmental standards. Under the revision as proposed, the United States would probably not be able to have its regulations adopted by Contracting Parties and annexed to the Agreement. The United States could not propose a regulation for annexation unless the regulation is identical to a regulation already adopted by the United States. The test procedures in United States regulations are premised partially or wholly on a self- certification system and therefore, unless a self-certification system were explicitly recognized in the proposed revision to the Agreement, a U.S. safety regulation would, in all likelihood, not be accepted by the requisite number of Contracting Parties. This is because the regulation might not be enforceable through a type approval system. However, explicit recognition of other enforcement systems could, for example, allow for different enforcement options within an annexed regulation. For air and noise pollution emissions regulations also, the regulatory systems of the current Contracting Parties are also sufficiently different from the U.S. systems so that the current Contracting Parties would not be likely to accept regulations proposed by the United States for the same reason. Issued on: March 2, 1994. Christopher A. Hart, Deputy Administrator. [FR Doc. 94-5181 Filed 3-3-94; 8:45 am] BILLING CODE 4910-59-M