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DEPARTMENT OF TRANSPORTATION

Federal Highway Administration

23 CFR Part 655

[FHWA Docket No. FHWA- 99 -6190]
RIN 2125-AE67

Traffic Control Devices on Federal-Aid and Other Streets and
Highways; Color Specifications for Retroreflective Sign and Pavement
Marking Materials

AGENCY: Federal Highway Administration (FHWA), DOT.

ACTION: Notice of proposed rulemaking (NPRM); request for comments.

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SUMMARY: The FHWA proposes to revise its color specifications for
retroreflective signing materials. This revision would include daytime
and nighttime specifications for both assigned and unassigned colors
found in the Manual on Uniform Traffic Control Devices (MUTCD). Color
specifications for fluorescent colors and pavement marking material
would also be included.

DATES: Comments must be received on or before June 21, 2000.

ADDRESSES: Signed, written comments should refer to the docket number
that appears at the top of this document and must be submitted to the
Docket Clerk, U.S. DOT Dockets, Room PL-401, 400 Seventh Street, SW.,
Washington, DC 20590-0001. All comments received will be available for
examination at the above address between 9 a.m. and 5 p.m., e.t.,
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: Mr. Ernest Huckaby, Office of
Transportation Operations (202) 366-9064, or Mr. Raymond Cuprill,
Office of the Chief Counsel (202) 366-1377, Federal Highway
Administration, 400 Seventh Street, SW., Washington, DC 20590. Office
hours are from 7:45 a.m. to 4:15 p.m., e.t., Monday through Friday,
except Federal holidays.

SUPPLEMENTARY INFORMATION:

Electronic Access

Internet users may access all comments received by the U.S.
Dockets, Room PL-401 by using the universal resource locator (URL):
http://dms.dot.gov. It is available 24 hours each day, 365 days each
year. Please follow the instructions online for more information and
help. An electronic copy of this document may be downloaded using a
modem and suitable communications software from the Government Printing
Office's Electronic Bulletin Board Service at (202) 512-1661. Internet
users may reach the Office of the Federal Register's home page at:
http://www.nara.gov/fedreg and the Government Printing Office's
database at: http://www.access.gpo.gov/nara.

Background

The MUTCD is incorporated by reference in 23 CFR. The color
specifications found in the appendix to subpart F of part 655 of 23 CFR
are incorporated by reference in the MUTCD.
The current specifications for the color of retroreflective sign
sheeting were determined on the basis of material available more than
15 years ago. Since then, new microprismatic material has been
commercially available and the original CIE Illuminant C <SUP>1</SUP>
has been replaced with CIE Illuminant D 65. In addition, an extensive
international effort is in progress to specify the nighttime appearance
of retroreflective materials. Lastly, expanding the specifications to
include fluorescent materials is also necessary at this time. In
addition to revising the daytime color specifications for
retroreflective sign sheeting material used primarily for traffic
signs, color specifications for pavement markings and markers would be
added. The first introduction of the color specification for nighttime
use of these materials would be included in this revision.
Instrumentation for measuring retroreflectivity is now available for
in-situ measurements as well as ease in quality control and lab
measurements. Color instruments are available for daytime measurements
of traffic signs and pavement markings. New pigment formulations,
especially for pavement marking material, are now in use because of
environmental concerns. The American Traffic Safety Services
Association assisted FHWA in soliciting samples for measurement from
sign sheeting material and pavement marking material manufacturers.
Samples were received from 11 manufacturers. Several types of pavement
marking materials were received, i.e., paint, tape, epoxy, and
polyester. Polycarbonate and other signing materials were not included
in the sampling. Manufacturers of polycarbonate and other material may
provide signs that conform to the color limits stated for sign sheeting
material.
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\1\ Illuminant C is a standard from the International Commission
on Illumination (CIE) for filtered tungsten illumination that
simulates average daylight with a color temperature of 6,774 degrees
K. Illuminant D 65 is a standard representing daylight with a
correlated color temperature of 6504 K.
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Definitions

The following discussion on the procedures followed to develop this
proposed revision contains abbreviations which are defined as follows:

Material types:
eg = enclosed lens sheeting material
encp = encapsulated lens sheeting material
seg = super-engineering grade material
up = microprismatic sheeting material (or vinyl)
exp = exposed glass spheres for pavement marking materials
Measurement units:
mm = millimeter

[[Page 71355]]

nm = nanometer
Colors:
B = blue; G = green; W= white; BR = brown; BK = black; R = red; O =
orange; Y = yellow; YG = yellow-green; F as a prefix means the material
is fluorescent.

Chromaticity coordinates and luminous factors: x and y for a 2 deg.
CIE Standard Photopic Observer.
CIE Illuminant D 65 for daytime measurements and CIE Illuminant A
for nighttime measurements.
Y CIE tristimulus value for the luminous factor (total luminous
factor for fluorescent materials). Y<INF>F</INF> CIE tristimulus value
for the fluorescence luminance factor. Nighttime chromaticity
coordinates are given only for x and y as the coefficient of
retroreflection is specified elsewhere.
The color boxes are given by corner coordinates in x and y.

Measurement Equipment and Procedures

Daytime Measurements and Equipment

All of the measurements involved in this proposed revision were
performed at the FHWAs Turner-Fairbank Highway Research Center (TFHRC)
in McLean, Virginia, with the lone exception being the fluorescent
measurements made at Labsphere Corp. in North Sutton, New Hampshire.
The facility used at the TFHRC was the Visibility and Photometric
Laboratory. Daytime measurements were made in the facility using a
Hunter LabScan Model II with a serial number 14277. This instrument was
loaned to the Visibility and Photometric Laboratory by Hunter
Associates in Reston, Virginia. The instrument uses a scanning
interference filter and optics to rapidly scan the visible spectrum.
The sample port is about 30mm in diameter and is illuminated by a
filtered tungsten-halogen light source normal to the sample. The
reflected light is collected by a series of fiber optics at 45 deg.
arranged circumferentially to the sample normal. The spectral data from
380 to 780nm is then analyzed and the CIE Chromaticity Coordinates x, y
and the luminance factor Y for CIE Illuminant D 65 and the 2 deg. CIE
Standard Photopic Observer are computed and stored in memory in the
computer. This type of instrument is widely used in many material and
testing laboratories in the United States and was chosen for this
reason.

Procedure

Each sample was measured in two locations on the sample, rotating
the sample in its own plane for each measurement. The averages of the
two readings for each sample were automatically determined and are the
values used in this report. Calibration of the Labscan II was performed
using a certified white reference standard number LS-14277 with
tristimulus values of X=79.79; Y=84.47; and Z=90.59. The reference
standard was calibrated traceable to the National Institute of
Standards and Technology in August 1996. The data was taken for the
10 deg. Standard Observer and calculated for the 2 deg. observer after
collection.
For the fluorescent samples, measurement was performed on
Labspheres Bispectral Fluorescence Colorimeter Model BFC-450 Serial
Number 2. The illumination and collection geometry was 45/0. This
instrument consists of two monochromators with the irradiating one
using a Xenon light source and the other a rapid scanning array
detector type. The sample port is 32mm in diameter with the
illumination area 25mm in diameter. The excitation irradiance
wavelength range is from 300-780nm and the emission wavelength range is
from 380-780nm. Computation of the reflectance luminance factor and the
fluorescence luminance factor is automatically performed in the
software for CIE D 65 Standard Illuminant and the CIE 2 deg. Standard
Photopic Observer. The total chromaticity in 1931 coordinates is also
given. The data used in this report is the combined chromaticity
coordinates for the total luminance factor. Calibration is performed
against certified white diffuse standards.

Nighttime Measurements and Equipment

The ART Model 940D Computer Controlled Photometric Range System was
used for the nighttime measurements. The illumination source was a 150
W Oriel Xenon arc lamp projector and the collection used an Optronics,
Model 754 SN 9420-1009 Spectroradiometer. The double monochromator
model 754-0-PMT SN 94102011 was used for the spectrum analysis. The
wavelength range was set at 380-780nm with an interval of 10nm. The
high-voltage on the multiplier phototube was varied depending on the
sample size and efficiency. The absolute value of the radiance is not
required for chromaticity measurements and the coefficient of
retroreflection determination is not a part of this report. The optical
collection of the retroreflected radiant flux was obtained using a
large 65mm diameter achromat lens and quartz fiber optics circle to
line configuration as input to the double monochromator. The Xenon
light source was positioned at an angle of approximately 0.33 deg. from
the collection optics. The goniometer for the sheeting was set at
5 deg. to the optical axis of the light source. The goniometer is a
photometer for measuring the directional light distribution
characteristics of sources, media, and surfaces. For the pavement
marking materials the collection optics were raised to 1.0 deg. from
the light source and the goniometer set at 88.76 deg. approximating 30
meter geometry. Nighttime color specification limits for red and blue
pavement marking material were not included in Table 6. Samples
received from the manufacturers were too small in size to provide
reliable measurements for nighttime specifications.

Procedure

Calibration of the spectroradiometer was performed using a
certified white diffuse standard for the 100 deg. line and the zero or
dark value was obtained with the light source illuminating a black
sample. Compensation for the ambient level is automatically performed
in the software. The relative spectral reflectance data over the above
wavelength range was stored and the chromaticity computation was
automatically performed.

Rulemaking Analyses and Notices

All comments received before the close of business on the comment
closing date indicated above will be considered and will be available
for examination using the docket number appearing at the top of this
document in the docket room at the above address. The FHWA will file
comments received after the comment closing date in the docket and will
consider late comments to the extent practicable. The FHWA may,
however, issue a final rule at any time after the close of the comment
period. In addition to late comments, the FHWA will also continue to
file, in the docket, relevant information becoming available after the
comment closing date, and interested persons should continue to examine
the docket for new material.

Executive Order 12866 (Regulatory Planning and Review) and DOT
Regulatory Policies and Procedures

The FHWA has determined that this action does not constitute a
significant regulatory action within the meaning of E.O. 12866, nor is
it considered significant under the regulatory policies and procedures
of the DOT. It is anticipated that the economic impact of this
rulemaking will be minimal and

[[Page 71356]]

will not have a significant economic affect on small businesses,
industry, or highway agencies. The color revisions will not be
noticeable to the general public, however, the quality of the color in
the signs will improve. This rulemaking proposes to revise the color
specifications currently stated in 23 CFR which are also incorporated
by reference in the Manual on Uniform Traffic Control Devices.
Therefore, a full regulatory evaluation is not required.

Regulatory Flexibility Act

In compliance with the Regulatory Flexibility Act (5 U.S.C. 601-
612), the FHWA has evaluated the effects of this proposal on small
entities. Based on its evaluation of this proposal, the FHWA certifies
that this action would not have a significant economic impact on a
substantial number of small entities.

Executive Order 12612 (Federalism Assessment)

This action has been analyzed in accordance with the principles and
criteria contained in Executive Order 13132 dated August 4, 1999, and
it has been determined that this action does not have a substantial
direct effect or sufficient federalism implications on States that
would limit the policymaking discretion of the States. Nothing in this
document directly preempts any State law or regulation.

Executive Order 12988 (Civil Justice Reform)

This action meets applicable standards in sections 3(a) and 3(b)(2)
of Executive Order 12988, Civil Justice Reform, to minimize litigation,
eliminate ambiguity, and reduce burden.

Executive Order 13045 (Protection of Children)

We have analyzed this action under Executive Order 13045,
Protection of Children from Environmental Health Risks and Safety
Risks. This rule is not an economically significant rule and does not
concern an environmental risk to health or safety that may
disproportionately affect children.

Executive Order 12630 (Taking of Private Property)

This proposed revision will not effect a taking of private property
or otherwise have taking implications under Executive Order 12630,
Governmental Actions and Interference with Constitutionally Protected
Property Rights.

Executive Order 12372 (Intergovernmental Review)

Catalog of Federal Domestic Assistance Program Number 20.205,
Highway Planning and Construction. The regulations implementing
Executive Order 12372 regarding intergovernmental consultation on
Federal programs and activities apply to this program.

Paperwork Reduction Act

The proposal in this document does not contain information
collection requirements for the Paperwork Reduction Act of 1995, 44
U.S.C. 3501-3520.

National Environmental Policy Act

The agency has analyzed this action for the purpose of the National
Environmental Policy Act of 1969 (42 U.S.C. 4321 et seq.) and has
determined that this proposed revision would not have any effect on the
quality of the environment.

Unfunded Mandates Reform Act of 1995

This proposed rule would not impose a Federal mandate resulting in
the expenditure by State, local, and tribal governments, in the
aggregate, or by the private sector, of $100 million or more in any one
year (2 U.S.C. 1532).

Regulation Identification Number

A regulation identification Number (RIN) is assigned 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. The RIN contained in the heading of
this document can be used to cross reference this action with the
Unified Agenda.

List of Subjects in 23 CFR Part 655

Design standards, Grant programs--transportation, Highways and
roads, Incorporation by reference, Signs, Traffic regulations.

Issued on: December 14,1999. --
Kenneth R. Wykle,
Federal Highway Administrator.

In consideration of the foregoing, the FHWA proposes to amend title
23, Code of Federal Regulations, part 655, as set forth below:

PART 655--[AMENDED]

1. Revise the authority citation for part 655 to read as follows:

Authority: 23 U.S.C. 109(d), 114(a), 315, and 402(a); 49 CFR
1.48.

2. Revise the appendix to subpart F to read as follows:

Appendix to Subpart F of Part 655--Alternate Method of Determining
the Color of Retroreflective Sign Materials and Pavement Marking
Materials

1. Although the FHWA Color Tolerance Charts depreciate the use
of spectrophotometers or accurate tristimulus colorimeters for
measuring the daytime color of retroreflective materials, recent
testing has determined that 0/45 or 45/0 spectroradiometers and
tristimulus colorimeters have proved that the measurements can be
considered reliable.
2. The daytime color of non-fluorescing retroreflective
materials may be measured in accordance with ASTM Test Method E
1349, ``Standard Test Method for Reflectance Factor and Color by
Spectrophotometry Using Bidirectional Geometry'' or ASTM Test Method
E 1347, (Replaces E 97) ``Standard Test Method for Color and Color-
Difference Measurement by Tristimulus (Filter) Colorimetry.'' The
latter test method specifies bidirectional geometry for the
measurement of retroreflective materials. The geometric conditions
to be used in both test methods are 0/45 or 45/0 circumferential
illumination or viewing. Uniplanar geometry is not recommended for
material types IV or higher (designated microprismatic). The CIE
standard illuminant used in computing the colorimetric coordinates
shall be D65 and the 2 deg. Standard CIE Observer shall be used.
3. For fluorescent retroreflective materials ASTM E 991 may be
used to determine the chromaticity provided that the D65
illumination meets the requirements of E 991. This practice,
however, allows only the total luminous factor to be measured. The
luminescent luminous factor must be determined using bispectral
fluorescent colorimetry. Commercial instruments are available which
allow such determination. Some testing laboratories are also
equipped to perform these measurements.
4. For nighttime measurements CIE Standard Illuminant A shall be
used in computing the colorimetric coordinates and the 2 deg.
Standard CIE Observer shall be used.
5. Average performance sheeting is identified as Types I and II
sheeting and high performance sheeting is identified as Type III.
Super-high intensity sheeting is identified as Types V, VI and VII
in ASTM D 4956.
6. The following six tables depict the 1931 CIE Chromaticity
Diagram x and y coordinates for the corner points defining the
recommended color boxes in the diagram. Lines drawn between these
corner points specify the limits of the chromaticity allowed in the
1931 Chromaticity Diagram. Color coordinates of samples that lie
within these lines are acceptable. For blue and green colors the
spectrum locus is the defining limit between the corner points
located on the spectrum locus:

[[Page 71357]]

Table 1 to Part 655, Subpart F.--Daytime Color Specification Limits for Retroreflective Materials With CIE 2 deg. Standard Observer and 45/0 (0/45)
Geometry and CIE D65 Standard Illuminant
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Chromaticity coordinates (corner points) Luminance factor
------------------------------------------------------------------------ range Y in
Color 1 2 3 4 percent
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x y x y x y x y Min.\1\ Min.\2\
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White......................................................... .355 .355 .305 .305 .285 .325 .335 .375 <gr-thn <gr-thn
-35 -27
Red........................................................... .648 .351 .735 .265 .629 .281 .565 .346 <gr-thn <gr-thn
-5 -3
Orange........................................................ .562 .350 .645 .355 .570 .429 .506 .404 <gr-thn <gr-thn
-17 -12
Brown......................................................... .430 .340 .430 .390 .518 .434 .570 .382 <gr-thn <gr-thn
-3-10 -3-10
Yellow........................................................ .498 .412 .557 .442 .479 .520 .438 .472 <gr-thn <gr-thn
-27 -16
Green......................................................... .026 .399 .166 .364 .286 .446 .207 .771 <gr-thn <gr-thn
-4 -3
Blue.......................................................... .078 .171 .150 .220 .210 .160 .137 .038 <gr-thn <gr-thn
-1 -1
Lt. Blue...................................................... .180 .260 .240 .300 .270 .260 .230 .200 <gr-thn <gr-thn
-15 -15
Yellow/green.................................................. .387 .610 .460 .540 .421 .486 .368 .539 <gr-thn <gr-thn
- -50
Purple........................................................ .302 .064 .307 .202 .374 .247 .457 .136 <gr-thn <gr-thn
-3 -2
Coral *....................................................... ....... ....... ....... ....... ....... ....... ....... ....... ....... .......
Black......................................................... .355 .355 .305 .305 .285 .325 .335 .375 <gr-thn .......
-3 max.
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* No coordinates recommended for this color.
\1\ Types I and II.
\2\ Types III-VII.

Table 2 to Part 655, Subpart F.--Nighttime Color Specification Limits for Retroreflective Materials With CIE 2
deg. Standard Observer and Observation Angle = 0.33 deg., Entrance Angle = +5 deg. (beta angle 2 and epsilon = 0
deg.) and CIE Standard Illuminant A
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Chromaticity coordinates (corner points)
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Color 1 2 3 4
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x y x y x y x y
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White................................... .475 .452 .360 .415 .392 .370 .515 .409
Red..................................... .650 .348 .620 .348 .712 .255 ....... .......
Orange.................................. .643 .355 .613 .355 .565 .405 .595 .405
Brown................................... .595 .405 .540 .405 .570 .365 .643 .355
Yellow.................................. .513 .487 .500 .470 .545 .425 .572 .425
Green................................... .007 .570 .200 .500 .322 .590 .193 .782
Blue.................................... .033 .370 .180 .370 .230 .240 .091 .133
Lt Blue *............................... ....... ....... ....... ....... ....... ....... ....... .......
Coral *................................. ....... ....... ....... ....... ....... ....... ....... .......
Purple *................................ ....... ....... ....... ....... ....... ....... ....... .......
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*No coordinates recommended for this color.

Table 3 to Part 655, Subpart F.--Daytime Color Specification Limits for Fluorescent Retroreflective Material With CIE 2 deg. Standard Observer and 45/0
(0/45) Geometry and CIE D65 Standard Illuminant
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Chromaticity coordinates (corner points) Luminance
------------------------------------------------------------------------ factor limits %
1 2 3 4 -----------------
Color ------------------------------------------------------------------------ Y Y<INF>F</INF>
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x y x y x y x y Min Max
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Fluorescent Orange............................................ .562 .350 .645 .355 .570 .429 .506 .404 20 10
Fluorescent Yellow............................................ .557 .442 .498 .412 .438 .472 .479 .520 35 15
Fluorescent Yellow/Green...................................... .387 .610 .368 .539 .421 .486 .460 .540 50 20
Fluorescent Green............................................. .320 .590 .320 .682 .210 .770 .230 .670 30 15
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Table 4 to Part 655, Subpart F.--Nighttime Color Specification Limits for Fluorescent Retroreflective Material
With CIE 2 deg. Standard Observer and Observation Angle = 0.33 deg., Entrance Angle =+5 deg. (beta angle 2 and
epsilon = 0 deg.) and CIE Standard Illuminant A
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Chromaticity coordinates (corner points)
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Color 1 2 3 4
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x y x y x y x y
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Fluorescent Orange...................... .625 .375 .669 .331 .636 .330 .589 .376
Fluorescent Yellow...................... .554 .445 .610 .390 .569 .394 .526 .437

[[Page 71358]]

Fluorescent Yellow/Green................ .480 .520 .550 .449 .523 .440 .473 .490
Fluorescent Green....................... .007 .570 .200 .500 .322 .590 .193 .782
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Table 5 to Part 655, Subpart F.--Daytime Color Specification Limits for Pavement Markings Material With CIE 2
deg. Standard Observer and 45/0 (0/45) Geometry and CIE D65 Standard Illuminant
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Chromaticity coordinates (corner points) Y values %
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With Glass Without
Color Beads Glass Beads
x y x y x y x y ---------------------------
Min Max Min Max
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White....................... .355 .355 .305 .305 .285 .325 .335 .375 60 ..... 70 .....
Yellow...................... .560 .440 .460 .400 .420 .440 .490 .510 30 ..... 35 .....
Red......................... .480 .300 .690 .315 .620 .380 .480 .360 6 15 ..... .....
Blue........................ .105 .100 .220 .180 .200 .260 .060 .220 5 14 ..... .....
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Table 6 to Part 655, Subpart F.--Nighttime Color Specification Limits for Pavement Marking Retroreflective
Material With CIE 2 deg. Standard Observer and Observation Angle = 1.05 deg., Entrance Angle = 88.76 deg. (beta
angle 2 and epsilon = 0 deg.) and CIE Standard Illuminant A
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Chromaticity coordinates (corner points)
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Color 1 2 3 4
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x y x y x y x y
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White................................... .480 .410 .430 .380 .405 .405 .455 .435
Yellow.................................. .575 .425 .490 .410 .460 .440 .510 .490
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[FR Doc. 99 - 32910 Filed 12-20- 99 ; 8:45 am]
BILLING CODE 4910-22-P