Decision No. R18-0968 BEFORE THE PUBLIC UTILITIES COMMISSION OF THE STATE OF COLORADO PROCEEDING NO. 17R-0796TR IN THE MATTER OF THE PROPOSED RULES REGULATING INTRASTATE CARRIERS, LIMITED REGULATION CARRIERS AND THE GENERAL PROVISIONS AND SAFETY RULES, 4 CODE OF COLORADO REGULATIONS 723-6. RECOMMENDED DECISION OF HEARING COMMISSIONER FRANCES A. KONCILJA ADOPTING PROPOSED RULES Mailed Date: October 31, 2018 TABLE OF CONTENTS I. INTRODUCTION ....................................................................................................................4 II. STATEMENT ...........................................................................................................................6 III. TYPES OF REGULATORY AUTHORITY AND CURRENT STATUTORY FRAMEWORK. .......................................................................................................................9 A. PUC Authority ...................................................................................................................9 B. United States Department of Transportation and Federal Motor Carrier Safety Act. .....14 C. Denver’s Authority at Denver International Airport .......................................................15 IV. FINDINGS RELATED TO CURRENT MARKET CHALLENGES AND INSPECTION/ENFORCEMENT CHALLENGES AND DISCUSSION OF PUBLIC POLICY GOALS ....................................................................................................................17 A. Current Market Challenges ..............................................................................................17 B. Inspection/Enforcement Challenges ................................................................................18 C. Regulatory Goals .............................................................................................................20 V. POSITION OF COMMENTERS ...........................................................................................21 A. Taxi Industry ...................................................................................................................21 B. Luxury Limousine Carriers .............................................................................................24 1. Carey Limousine, Jody Cowen. ...............................................................................24 2. Colorado Limousine Association (CLA) .................................................................25 Before the Public Utilities Commission of the State of Colorado Decision No. R18-0968 PROCEEDING NO. 17R-0796TR 3. Sunset Limousine .....................................................................................................27 4. Manuel Urban—Urban Limo LLC ..........................................................................28 5. Colorado Jitney - Bradley Doran, ............................................................................28 6. Transdev on Demand ...............................................................................................29 7. NLA President—Gary Buffo; New England Livery Association; Virginia Limousine Association; Greater Atlanta Limousine Association; Tennessee Association of Chauffeured Transportation; Limousine Association of New Jersey.29 8. Prestige Worldwide Transportation (PWT) .............................................................29 9. Presidential Worldwide Transportation ...................................................................31 10. ABC Shuttle .............................................................................................................31 11. A Custom Coach Transportation ..............................................................................31 12. Hermes Worldwide ..................................................................................................32 13. Encore Limousine – Jerry Galbraith ........................................................................33 VI. RULE-BY-RULE ANALYSIS ..............................................................................................34 A. Basis, Purpose and Statutory Authority ...........................................................................36 B. General Provisions ...........................................................................................................36 1. Rule 6000. Scope and Applicability. .......................................................................36 2. Rule 6001 Definitions. .............................................................................................36 3. Rule 6002. Applications. ..........................................................................................40 4. Rule 6003 Petitions. .................................................................................................41 5. Rule 6004—UCR Registration. ................................................................................42 6. Rule 6008—“Financial Responsibility” ...................................................................46 7. Rule 6015 “Exterior Vehicle Markings, Signs, Graphics and Roof Lights”. ...........54 8. Rule 6016. Offering of Transportation Service ........................................................55 9. Civil Penalties ..........................................................................................................55 10. Rule 6017. Definitions .............................................................................................55 11. Statutory Authority ...................................................................................................56 12. Violations and Penalties in the Current Rules: .........................................................59 a. Current Rule 6017—Violations, Civil Enforcement, and Enhancement of Civil Penalties. ...........................................................................................................59 13. Current Rule 6106—Safety Violations, Civil Enforcements, and Civil Penalties. ..59 14. Current Rule 6216—Regulated Intrastate Carrier Violations, Civil Enforcement, and Civil Penalties. ...................................................................................................59 2 Before the Public Utilities Commission of the State of Colorado Decision No. R18-0968 PROCEEDING NO. 17R-0796TR 15. Current Rule 6311—Limited Regulation Carrier Violations, Civil Enforcement, and Civil Penalties ....................................................................................................60 16. Rule 6017. Violations, Civil Enforcement, and Enhancement of Civil Penalties. ...60 17. Rule 6018 Maximum Civil Penalties, Without Statutory Enhancement— Recommended ..........................................................................................................61 18. Rule 6019. Doubling and Tripling of Penalties ........................................................62 19. Rule 6020. Annual Report by Staff to Commission. ................................................62 C. Safety Rules .....................................................................................................................63 1. Rule 6100. Applicability of Safety Rules. ................................................................63 2. Rule 6101. Definitions. ............................................................................................63 3. Rule 6102. Annual Motor Vehicle Identification Fees and Vehicle Registry. ........64 4. Rule 6103. Vehicle Inspectors—Who is Authorized to Inspect a Motor Vehicle. ..67 5. Rule 6104. Safety Inspections of Motor Vehicles ....................................................67 6. Rule 6110. Hours of Service. ...................................................................................69 7. Rule 6111. Verification of Hours of Service for Carriers Operating Within and Between the Counties of Arapahoe, Adams, Boulder, Broomfield, Denver, Douglas, El Paso and Jefferson. ...............................................................................71 8. Rule 6114. Fingerprint-Based Criminal History Record Checks. ............................72 9. Rule 6115. Motor Vehicle Weight. ..........................................................................73 10. Rule 6116. Prohibitions. ...........................................................................................73 11. Rule 6117. Age and Condition of Passenger Carrying Motor Vehicles. .................73 12. Fully Regulated Intrastate Carrier Rules ..................................................................75 13. Rule 6200. Applicability. .........................................................................................75 14. Rule 6201. Definitions. ............................................................................................75 15. Rule 6202. Prohibited Operations. ...........................................................................75 16. Rule 6210. Contract Carriers. ...................................................................................80 17. Rule 6211. Refusal of Service. .................................................................................80 18. Rule 6212. Annual Reports. .....................................................................................80 19. Rule 6213. Forms of Payment ..................................................................................81 D. Taxicab Carrier Rules. .....................................................................................................81 1. Rule 6250. Applicability of Taxicab Carrier Rules.