U.S. Department of Transportation 1200
New Jersey Avenue, S.E. Washington, D.C. 20590
The Honorable Raymond Martinez Administrator
,
Federal Motor Carrier Safety Administration
1200 New Jersey Avenue, S.E., Suite 600 Washington, D.C. 20590
Dear
Secretary Chao and Administrator Martinez,
The
live animal hauling community thanks you for the chance to share our comments
and views on issues impacting the trucking industry as a whole. It is our hope
that we can provide needed nuance with respect to how changes to transportation
regulations would impact and even possibly benefit our various industries.
We
appreciate the Federal Motor Carrier Safety Administration’s (FMCSA) ongoing
effort to work collaboratively with the larger trucking industry to find
opportunities for meaningful flexibilities that can be used in safe and
effective ways. Yet another step in this journey of collaboration is this
Notice of Proposed Rulemaking (NPRM) process and the solicitation of feedback
on the five areas of concentration enumerated in the NPRM. Although the
modifications proposed in the NPRM are generally positive for the trucking
industry, they still do not address the unique needs of livestock haulers. However,
certain changes proposed below would provide assistance to some of these
drivers.
The
members of the signing organizations below have teamed up as a coalition of
livestock, fish, and insect (collectively livestock) producers and haulers. Our
members raise, produce, and market animals across the country and, despite a
variety of diverse needs, are all supportive of FMCSA’s interest in finding
ways to help our communities find flexibilities when hauling live animals.
Below, we respond to two particular issues
raised by the NPRM: the split sleeper berth program and the definition of an
adverse driving condition.
Background:
Livestock
haulers comprise a small subset of all CMV drivers. Livestock haulers boast a
long record of safely transporting live animals across the country in a
statistically safe manner, due to prudent route planning, specialized
equipment, safe driving practices, and driver training addressing fatigue
management.
Livestock
auction markets, farmers, and ranchers are particularly impacted by
transportation laws and regulations. Livestock are trucked to market for sale
and then hauled again to the country’s highest quality grazing lands and
feedyards in the central and southern plains. Livestock do not travel
frequently in their lifetimes, but when they do, they can travel significant
distances across constantly changing weather patterns and diverse terrain. For
example, according to a survey conducted as part of the Beef Quality Assurance
program, the mean distance traveled by feeder calves to Texas and Nebraska
feedyards was approximately 467.89 miles. This is a significant average given
the immense quantity of “local” cattle raised within Texas, Nebraska, and their
neighboring states, which need not travel significant distances to arrive at a
feedyard. However, livestock traveling
from Florida, California, the Northwest, and the Carolinas, to the Midwest or Southwest,
travel significantly longer distances. Where animals travel to and from depends
on who is buying and selling the animals as well as the time of year and market
conditions.
The key to safely hauling live animals, especially in times of great heat and humidity, is to stop as infrequently as possible and to keep the trailer moving to provide ventilation. The trailer environment has been identified as having the greatest effect on animal welfare during transport. (Mitchell and Kettlewell, 2008). In North America, livestock transport trailers are ventilated by perforations in the aluminum walls of the trailer as well as openings in the roof. Consequently, the potential to have poor welfare outcomes is significant if the trailer is not moving, especially under extreme weather conditions. The association between decreased animal welfare and increased transport duration is well established and includes greater in-transit weight loss, lameness, incidence of non-ambulatory animals, and death, as well as increased morbidity upon arrival. Many livestock hauls can be concluded within the time frame outlined by the Hours of Service without significant stops which limit airflow. Unfortunately for livestock located in or heading to states outside the center of the country, this is simply not the case. When a driver “runs out of time” while hauling live animals, they are given the grim prospects of unloading the livestock or leaving them on the trailer for a 10-hour stretch with deadly high ambient temperatures and humidity.
Split Sleeper Berth:
Producers,
marketers, and shippers of live animals are greatly interested in roadway
safety and mitigating driver fatigue. We support a split sleeper berth program
that would allow our haulers to break up their rest period in commonsense ways.
The needs of livestock haulers are dictated not only by the rest needed by the
driver, but also the needs of the live animals they haul. A split sleeper
program as currently envisioned by the NPRM will not work for many of our
haulers. Weather, type, age of livestock, and other environmental factors all
play a role in determining when and how haulers move their livestock, which is
why flexibility is so important.
Although
a 10 hour stop with live animals onboard is almost never appropriate, allowing
livestock haulers to use their professional judgment to determine when weather
conditions are right to stop for a break of a few hours will allow drivers to
use their rest periods more productively and safely. For some drivers, hauling
certain animals in certain climates, the proposed 7 and 3 and 6 and 4 hour
splits may prove to be helpful, however, for most haulers these long breaks may
not be appropriate. Feedback from our stakeholders indicates that a few shorter
rest periods during the haul followed by a longer “full rest” at the end of the
drive may be more helpful. This would allow the driver to evaluate humidity and
temperature and determine if a stop is tolerable for the animals they are
hauling, which will allow them to rest to avoid traffic or other roadway
hazards. The livestock hauling industry sees allowing three splits of time with
a longer “full rest” at the end of the drive (perhaps of 5 or 6 hours) with two
shorter nap periods of 2 or 3 hours during the haul as a possibly viable solution
for certain drivers. This would be more likely to allow our haulers to
participate in the split sleeper berth program while maintaining our high
standard of highway safety, but also looking out for the welfare of the
livestock on board.
Adverse Driving Conditions:
We
also encourage FMCSA to evaluate the definition of an “adverse driving
condition” in an expansive and useful way specific to livestock haulers. It
seems logical that blizzards, hurricanes, and unexpected traffic accidents are
adverse driving conditions. But to livestock haulers, humidity and hot weather
can create equally detrimental adverse hauling conditions that force drivers to
reconfigure their route and rest plans because they simply cannot stop with
animals onboard. Defining “adverse driving conditions” in a way that is broad
enough that livestock haulers find it useful will encourage these drivers to
maintain roadway safety and animal welfare.
Our
organizations would support a definition of “adverse driving conditions” that
includes the following language: “including- for live animal haulers only-
ambient temperatures and humidity that the live animal hauler reasonably
believes will be detrimental to the live animals onboard if the driver were to
stop for any significant period of time.” We would also support guidance to
roadside enforcement that advises them of the dangers of temperature and
humidity swings on the morbidity and mortality of live animals and instructs
them as to the impact time of year may have on unseasonable but otherwise not
normally “extreme” weather (e.g. a 50-degree day in January on mature animals
with a full winter coat).
Conclusion:
We
appreciate our ongoing partnership with FMCSA in our continued effort to
safeguard the well-being of the nation’s livestock during interstate transport.
We hope that the agency will continue to evaluate changes to the HOS framework
with livestock haulers in mind. At the end of the day, the modifications
proposed in the NPRM are a net positive for the trucking industry, but still do
not address the unique needs of livestock haulers. However, the changes
proposed by these comments would be a welcome first step toward the agency
providing assistance to this subset of drivers.
Sincerely,
Alabama Cattlemen’s Association
American
Beekeeping Federation
American
Farm Bureau Federation
American
Goat Federation
American Honey Producers Association
American National CattleWomen
American Sheep Industry Association
American Sheep Shearers Council
Arizona
Cattle Feeders’ Association
California Cattlemen’s Association
California Wool Growers Association
Colorado Cattlemen’s Association
Colorado
Livestock Association
Cooper
Horse Transportation
Florida
Cattlemen’s Association
Georgia
Cattlemen's Association
Idaho
Cattle Association
Idaho
Wool Growers Association
Illinois
Beef Association
Indiana
Beef Cattle Association
Indiana Sheep Association
Iowa Cattlemen's Association
Iowa
Sheep Industry Association
Kansas
Livestock Association
Kentucky
Cattlemen's Association
Livestock
Marketing Association
Louisiana Cattlemen’s Association
Maryland
Cattlemen's Association
Maryland
Sheep Breeders Association
Michigan Cattlemen’s Association
Michigan Sheep Producers Association
Minnesota
Lamb and Wool Producers
Minnesota State Cattlemen's Association
Mississippi Cattlemen's Association
Missouri
Cattlemen’s Association
Montana
Stockgrowers Association
Montana
Wool Growers Association
National
Aquaculture Association
National Cattlemen’s Beef Association
Nebraska Cattlemen Association
Nevada
Cattlemen's Association
New
Mexico Cattle Growers Association
New
Mexico Wool Growers, Inc.
North
American Meat Institute
North Carolina Cattlemen’s Association
North
Dakota Sheep and Lamb Producers Assn
North Dakota Stockmen’s Association
Ohio Cattlemen’s Association
Oklahoma Cattlemen’s Association
Oregon
Cattlemen’s Association
Pennsylvania
Cattlemen's Association
Professional
Rodeo Cowboys Association
South
Dakota Cattlemen’s Association
South
Dakota Sheep Growers Association
Southwest
Meat Association
Tennessee
Cattlemen’s Association
Texas
and Southwestern Cattle Raisers Association
Texas
Cattle Feeders Association
Texas
Sheep and Goat Raisers Association
United
States Cattlemen’s Association
Utah
Cattlemen’s Association
Utah Wool Growers Association
Virginia
Cattlemen's Association
Washington
Cattle Feeders Association
West
Virginia Cattlemen’s Association
Wyoming Stock Growers Association
Wyoming Wool Growers Association
Posted: October 21, 2019