[Federal Register: December 21, 1999 (Volume 64, Number 244)] [Proposed Rules] [Page 71354-71358] From the Federal Register Online via GPO Access [wais.access.gpo.gov] [DOCID:fr21de99-28] ======================================================================= ----------------------------------------------------------------------- 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. ----------------------------------------------------------------------- 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. --------------------------------------------------------------------------- \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. --------------------------------------------------------------------------- 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 -------------------------------------------------------------------------------------------------------------------------------------------------------- Chromaticity coordinates (corner points) Luminance factor ------------------------------------------------------------------------ range Y in Color 1 2 3 4 percent ----------------------------------------------------------------------------------------- x y x y x y x y Min.\1\ Min.\2\ -------------------------------------------------------------------------------------------------------------------------------------------------------- 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. -------------------------------------------------------------------------------------------------------------------------------------------------------- * 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 ---------------------------------------------------------------------------------------------------------------- Chromaticity coordinates (corner points) ----------------------------------------------------------------------- Color 1 2 3 4 ----------------------------------------------------------------------- x y x y x y x y ---------------------------------------------------------------------------------------------------------------- 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 *................................ ....... ....... ....... ....... ....... ....... ....... ....... ---------------------------------------------------------------------------------------------------------------- *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 -------------------------------------------------------------------------------------------------------------------------------------------------------- Chromaticity coordinates (corner points) Luminance ------------------------------------------------------------------------ factor limits % 1 2 3 4 ----------------- Color ------------------------------------------------------------------------ Y Y<INF>F</INF> ----------------- x y x y x y x y Min Max -------------------------------------------------------------------------------------------------------------------------------------------------------- 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 -------------------------------------------------------------------------------------------------------------------------------------------------------- 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 ---------------------------------------------------------------------------------------------------------------- Chromaticity coordinates (corner points) ----------------------------------------------------------------------- Color 1 2 3 4 ----------------------------------------------------------------------- x y x y x y x y ---------------------------------------------------------------------------------------------------------------- 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 ---------------------------------------------------------------------------------------------------------------- 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 ---------------------------------------------------------------------------------------------------------------- Chromaticity coordinates (corner points) Y values % ----------------------------------------------------------------------------------- With Glass Without Color Beads Glass Beads x y x y x y x y --------------------------- Min Max Min Max ---------------------------------------------------------------------------------------------------------------- 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 ..... ..... ---------------------------------------------------------------------------------------------------------------- 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 ---------------------------------------------------------------------------------------------------------------- Chromaticity coordinates (corner points) ----------------------------------------------------------------------- Color 1 2 3 4 ----------------------------------------------------------------------- x y x y x y x y ---------------------------------------------------------------------------------------------------------------- White................................... .480 .410 .430 .380 .405 .405 .455 .435 Yellow.................................. .575 .425 .490 .410 .460 .440 .510 .490 ---------------------------------------------------------------------------------------------------------------- [FR Doc. 99-32910 Filed 12-20-99; 8:45 am] BILLING CODE 4910-22-P