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Petition for Exemption From the Federal Motor Vehicle Theft Prevention Standard; Toyota Motor North America, Inc. Publication: Federal Register Agency: National Highway Traffic Safety Administration Byline: Raymond R. Posten Date: 9 March 2022 Subjects: American Government  , Crime
Topic: Lexus IS |
[Federal Register Volume 87, Number 46 (Wednesday, March 9, 2022)]
[Notices]
[Pages 13355-13358]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2022-04929]
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DEPARTMENT OF TRANSPORTATION
National Highway Traffic Safety Administration
Petition for Exemption From the Federal Motor Vehicle Theft
Prevention Standard; Toyota Motor North America, Inc.
AGENCY: National Highway Traffic Safety Administration (NHTSA),
Department of Transportation (DOT).
ACTION: Grant of petition for exemption.
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SUMMARY: This document grants in full the Toyota Motor North America,
Inc.'s (Toyota) petition for exemption from the Federal Motor Vehicle
Theft Prevention Standard (theft prevention standard) for its Lexus IS
vehicle line beginning in model year (MY) 2023. The petition is granted
because the agency has determined that the antitheft device to be
placed on the line as standard equipment is likely to be as effective
in reducing and deterring motor vehicle theft as compliance with the
parts-marking requirements of the theft prevention standard.
DATES: The exemption granted by this notice is effective beginning with
the 2023 model year.
FOR FURTHER INFORMATION CONTACT: Carlita Ballard, Office of
International Policy, Fuel Economy, and Consumer Programs, NHTSA, West
Building, W43-439, NRM-310, 1200 New Jersey Avenue SE, Washington, DC
20590. Ms. Ballard's phone number is (202) 366-5222. Her fax number is
(202) 493-2990.
SUPPLEMENTARY INFORMATION: Under 49 U.S.C. Chapter 331, the Secretary
of Transportation (and the National Highway Traffic Safety
Administration (NHTSA) by delegation) is required to promulgate a theft
prevention standard to provide for the identification of certain motor
vehicles and their major
[[Page 13356]]
replacement parts to impede motor vehicle theft. NHTSA promulgated
regulations at 49 CFR part 541 (theft prevention standard) to require
parts-marking for specified passenger motor vehicles and light trucks.
Pursuant to 49 U.S.C. 33106, manufacturers that are subject to the
parts-marking requirements may petition the Secretary of Transportation
for an exemption for a line of passenger motor vehicles equipped with
an antitheft device as standard equipment that the Secretary decides is
likely to be as effective in reducing and deterring motor vehicle theft
as compliance with the parts-marking requirements. In accordance with
this statute, NHTSA promulgated 49 CFR part 543, which establishes the
process through which manufacturers may seek an exemption from the
theft prevention standard.
49 CFR 543.5 provides general submission requirements for petitions
and states that each manufacturer may petition NHTSA for an exemption
of one vehicle line per model year. Among other requirements,
manufacturers must identify whether the exemption is sought under
section 543.6 or section 543.7. Under section 543.6, a manufacturer may
request an exemption by providing specific information about the
antitheft device, its capabilities, and the reasons the petitioner
believes the device to be as effective at reducing and deterring theft
as compliance with the parts-marking requirements. Section 543.7
permits a manufacturer to request an exemption under a more streamlined
process if the vehicle line is equipped with an antitheft device (an
``immobilizer'') as standard equipment that complies with one of the
standards specified in that section.\1\
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\1\ 49 CFR 543.7 specifies that the manufacturer must include a
statement that their entire vehicle line is equipped with an
immobilizer that meets one of the following standards:
(1) The performance criteria (subsections 8 through 21) of
C.R.C, c. 1038.114, Theft Protection and Rollaway Prevention (in
effect March 30, 2011), as excerpted in appendix A of [part 543];
(2) National Standard of Canada CAN/ULC-S338-98, Automobile
Theft Deterrent Equipment and Systems: Electronic Immobilization
(May 1998);
(3) United Nations Economic Commission for Europe (UN/ECE)
Regulation No. 97 (ECE R97), Uniform Provisions Concerning Approval
of Vehicle Alarm System (VAS) and Motor Vehicles with Regard to
Their Alarm System (AS) in effect August 8, 2007; or
(4) UN/ECE Regulation No. 116 (ECE R116), Uniform Technical
Prescriptions Concerning the Protection of Motor Vehicles Against
Unauthorized Use in effect on February 10, 2009.
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Section 543.8 establishes requirements for processing petitions for
exemption from the theft prevention standard. As stated in section
543.8(a), NHTSA processes any complete exemption petition. If NHTSA
receives an incomplete petition, NHTSA will notify the petitioner of
the deficiencies. Once NHTSA receives a complete petition the agency
will process it and, in accordance with section 543.8(b), will grant
the petition if it determines that, based upon substantial evidence,
the standard equipment antitheft device is likely to be as effective in
reducing and deterring motor vehicle theft as compliance with the
parts-marking requirements of part 541.
Section 543.8(c) requires NHTSA to issue its decision either to
grant or to deny an exemption petition not later than 120 days after
the date on which a complete petition is filed. If NHTSA does not make
a decision within the 120-day period, the petition shall be deemed to
be approved and the manufacturer shall be exempt from the standard for
the line covered by the petition for the subsequent model year.\2\
Exemptions granted under part 543 apply only to the vehicle line or
lines that are subject to the grant and that are equipped with the
antitheft device on which the line's exemption was based, and are
effective for the model year beginning after the model year in which
NHTSA issues the notice of exemption, unless the notice of exemption
specifies a later year.
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\2\ 49 U.S.C. 33106(d).
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Sections 543.8(f) and (g) apply to the manner in which NHTSA's
decisions on petitions are to be made known. Under section 543.8(f), if
the petition is sought under section 543.6, NHTSA publishes a notice of
its decision to grant or deny the exemption petition in the Federal
Register and notifies the petitioner in writing. Under section
543.8(g), if the petition is sought under section 543.7, NHTSA notifies
the petitioner in writing of the agency's decision to grant or deny the
exemption petition.
This grant of petition for exemption considers Toyota Motor North
America, Inc.'s (Toyota) petition for its Lexus IS vehicle line
beginning in MY 2023.
I. Specific Petition Content Requirements Under 49 CFR 543.6
Pursuant to 49 CFR part 543, Exemption from Vehicle Theft
Prevention, Toyota petitioned for an exemption for its specified
vehicle line from the parts-marking requirements of the theft
prevention standard, beginning in MY 2023. Toyota petitioned under 49
CFR 543.6, Petition: Specific content requirements, which, as described
above, requires manufacturers to provide specific information about the
antitheft device installed as standard equipment on all vehicles in the
line for which an exemption is sought, the antitheft device's
capabilities, and the reasons the petitioner believes the device to be
as effective at reducing and deterring theft as compliance with the
parts-marking requirements.
More specifically, section 543.6(a)(1) requires petitions to
include a statement that an antitheft device will be installed as
standard equipment on all vehicles in the line for which the exemption
is sought. Under section 543.6(a)(2), each petition must list each
component in the antitheft system, and include a diagram showing the
location of each of those components within the vehicle. As required by
section 543.6(a)(3), each petition must include an explanation of the
means and process by which the device is activated and functions,
including any aspect of the device designed to: (1) Facilitate or
encourage its activation by motorists; (2) attract attention to the
efforts of an unauthorized person to enter or move a vehicle by means
other than a key; (3) prevent defeating or circumventing the device by
an unauthorized person attempting to enter a vehicle by means other
than a key; (4) prevent the operation of a vehicle which an
unauthorized person has entered using means other than a key; and (5)
ensure the reliability and durability of the device.\3\
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\3\ 49 CFR 543.6(a)(3).
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In addition to providing information about the antitheft device and
its functionality, petitioners must also submit the reasons for their
belief that the antitheft device will be effective in reducing and
deterring motor vehicle theft, including any theft data and other data
that are available to the petitioner and form a basis for that
belief,\4\ and the reasons for their belief that the agency should
determine that the antitheft device is likely to be as effective as
compliance with the parts-marking requirements of part 541 in reducing
and deterring motor vehicle theft. In support of this belief, the
petitioners should include any statistical data that are available to
the petitioner and form the basis for the petitioner's belief that a
line of passenger motor vehicles equipped with the antitheft device is
likely to have a theft rate equal to or less than that of passenger
motor vehicles of the same, or a similar, line which have parts marked
in compliance with part 541.\5\
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\4\ 49 CFR 543.6(a)(4).
\5\ 49 CFR 543.6(a)(5).
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The following sections describe Toyota's petition information
provided pursuant to 49 CFR part 543, Exemption from Vehicle Theft
Prevention. To the
[[Page 13357]]
extent that specific information in Toyota's petition is subject to a
properly filed confidentiality request, that information was not
disclosed as part of this notice.\6\
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\6\ 49 CFR 512.20(a).
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II. Toyota's Petition for Exemption
In a petition dated September 16, 2021, Toyota requested an
exemption from the parts-marking requirements of the theft prevention
standard for the Lexus IS vehicle line beginning with MY 2023.
In its petition, Toyota provided a detailed description and diagram
of the identity, design, and location of the components of the
antitheft device for the Lexus IS vehicle line. Toyota stated that its
MY 2023 Lexus IS vehicle line will be installed with an engine
immobilizer device as standard equipment, as required by 543.6(a)(1).
Toyota stated that it will offer an entry and start system on its Lexus
IS vehicle line. Specifically, key components of the ``smart entry and
start'' system will include a certification engine control unit (ECU),
engine switch, security indicator, door control receiver, electrical
key, ID code box, and an engine control module (ECM). Toyota stated
that there will also be position switches installed on the vehicle to
protect the hood and doors from unauthorized tampering/opening. Toyota
further explained that locking the doors can be accomplished through
use of a key, wireless switch or its smart entry system, and that
unauthorized tampering with the hood or door without using one of these
methods will cause the position switches to trigger its antitheft
device to operate. Toyota will also incorporate an audible and visual
alarm system on its vehicle line, when unauthorized access is
attempted, the horn will sound and the lights will flash.
Pursuant to Section 543.6(a)(3), Toyota explained that its ``smart
entry and start'' system is activated when the engine switch is pushed
from the ``ON'' ignition status to any other status. The certification
ECU then performs the calculation for the immobilizer and the
immobilizer signals the ECM to activate the device. Toyota also
explained that its ``smart entry and start'' system is deactivated
after the driver pushes the engine switch and the key is verified, the
certification ECU and ID code box receives verification of a valid key,
the certification ECU allows the ECM to start the engine. Toyota stated
that in its system, a security indicator is installed notifying the
user and others inside and outside the vehicle with the status of the
immobilizer. Toyota further explained that the security indicator
flashes continuously when the immobilizer is activated, and turns off
when it is deactivated.
As required in section 543.6(a)(3)(v), Toyota provided information
on the reliability and durability of its proposed device. To ensure
reliability and durability of the device, Toyota conducted tests based
on its own specified standards. Toyota provided a detailed list of the
tests conducted (i.e., high and low temperature operation, strength,
impact, vibration, electro-magnetic interference, etc.). Toyota stated
that it believes that its device is reliable and durable because it
complied with its own specific design standards and the antitheft
device is installed on other vehicle lines for which the agency has
granted a parts-marking exemption. As an additional measure of
reliability and durability, Toyota stated that its vehicle key
cylinders are covered with casting cases to prevent the key cylinder
from easily being broken. Toyota further explained that there are
approximately 10,000 combinations for inner cut keys which makes it
difficult to unlock the doors without using a valid key because the key
cylinders would spin out and cause the locks to not operate.
Toyota stated that its Lexus IS vehicle has already been equipped
with an immobilizer since MY 2014 as standard equipment. Toyota also
stated that at the time of the petition submission, theft rate data for
the MY 2023 Lexus IS vehicle line is not available. However, Toyota
compared its proposed device to other devices NHTSA has determined to
be as effective in reducing and deterring motor vehicle theft as would
compliance with the parts-marking requirements. Toyota compared its
proposed device to that which has been installed on the Nissan Altima
vehicle line, which was granted a parts-marking exemption from 49 CFR
part 541 by the agency beginning with MY 2000 vehicles. Toyota also
referenced the NHTSA theft rate data published for the Altima before
and after being equipped with a standard immobilizer showing the
average theft rate drop to 3.0 per 1,000 vehicles (2000-2006) compared
to 5.3 per 1,000 vehicles (1996-1999). Toyota stated that the data for
the Altima represents an approximate 43% decrease in a theft rate with
an immobilizer. (see 82 FR 28246). Therefore, Toyota concluded that the
antitheft device proposed for its Lexus IS vehicle line is no less
effective than those devices on the lines for which NHTSA has already
granted full exemption from the parts-marking requirements. Toyota
stated that it believes that installing the immobilizer device as
standard equipment reduces the theft rate for the Lexus IS vehicle line
and expects it to experience comparable effectiveness and ultimately be
more effective than parts-marking labels.
III. Decision To Grant the Petition
Pursuant to 49 U.S.C. 33106 and 49 CFR 543.8(b), the agency grants
a petition for exemption from the parts-marking requirements of part
541, either in whole or in part, if it determines that, based upon
substantial evidence, the standard equipment antitheft device is likely
to be as effective in reducing and deterring motor vehicle theft as
compliance with the parts-marking requirements of part 541. The agency
finds that Toyota has provided adequate reasons for its belief that the
antitheft device for its vehicle line is likely to be as effective in
reducing and deterring motor vehicle theft as compliance with the
parts-marking requirements of the theft prevention standard. This
conclusion is based on the information Toyota provided about its
antitheft device. NHTSA believes, based on Toyota's supporting
evidence, the antitheft device described for its vehicle line is likely
to be as effective in reducing and deterring motor vehicle theft as
compliance with the parts-marking requirements of the theft prevention
standard.
The agency concludes that Toyota's antitheft device will provide
the five types of performance features listed in section 543.6(a)(3):
Promoting activation; attracting attention to the efforts of
unauthorized persons to enter or operate a vehicle by means other than
a key; preventing defeat or circumvention of the device by unauthorized
persons; preventing operation of the vehicle by unauthorized entrants;
and ensuring the reliability and durability of the device.
The agency notes that 49 CFR part 541, Appendix A-1, identifies
those lines that are exempted from the theft prevention standard for a
given model year. 49 CFR 543.8(f) contains publication requirements
incident to the disposition of all part 543 petitions. Advanced
listing, including the release of future product nameplates, the
beginning model year for which the petition is granted and a general
description of the antitheft device is necessary in order to notify law
enforcement agencies of new vehicle lines exempted from the parts-
marking requirements of the theft prevention standard.
If Toyota decides not to use the exemption for its requested
vehicle line,
[[Page 13358]]
the manufacturer must formally notify the agency. If such a decision is
made, the line must be fully marked as required by 49 CFR 541.5 and
541.6 (marking of major component parts and replacement parts).
NHTSA notes that if Toyota wishes in the future to modify the
device on which this exemption is based, the company may have to submit
a petition to modify the exemption. Section 543.8(d) states that a part
543 exemption applies only to vehicles that belong to a line exempted
under this part and equipped with the antitheft device on which the
line's exemption is based. Further, section 543.10(c)(2) provides for
the submission of petitions ``to modify an exemption to permit the use
of an antitheft device similar to but differing from the one specified
in the exemption.'' \7\
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\7\ The agency wishes to minimize the administrative burden that
section 543.10(c)(2) could place on exempted vehicle manufacturers
and itself. The agency did not intend in drafting part 543 to
require the submission of a modification petition for every change
to the components or design of an antitheft device. The significance
of many such changes could be de minimis. Therefore, NHTSA suggests
that if a manufacturer with an exemption contemplates making any
changes, the effects of which might be characterized as de minimis,
it should consult the agency before preparing and submitting a
petition to modify.
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The agency wishes to minimize the administrative burden that
section 543.10(c)(2) could place on exempted vehicle manufacturers and
itself. The agency did not intend in drafting part 543 to require the
submission of a modification petition for every change to the
components or design of an antitheft device. The significance of many
such changes could be de minimis. Therefore, NHTSA suggests that if
Toyota contemplates making any changes, the effects of which might be
characterized as de minimis, it should consult the agency before
preparing and submitting a petition to modify.
For the foregoing reasons, the agency hereby grants in full
Toyota's petition for exemption for the Lexus IS vehicle line from the
parts-marking requirements of 49 CFR part 541, beginning with its MY
2023 vehicles.
Issued under authority delegated in 49 CFR 1.95 and 501.8.
Raymond R. Posten,
Associate Administrator for Rulemaking.
[FR Doc. 2022-04929 Filed 3-8-22; 8:45 am]
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