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

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 1

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

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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). YF 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 F

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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

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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]

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