HAYNSWORTH, Chief Judge:
In 1976, the National Highway Traffic Safety Administration (NHTSA) published advance notice of proposed informal rulemaking to amend Federal Motor Vehicle Safety Standard (FMVSS) 115. Promulgated in 1968, FMVSS 115 required automobile manufacturers to attach to each passenger car a unique vehicle identification number (VIN), but did not specify format or content. As finally amended through informal rulemaking in March 1979, FMVSS 115 specifies...
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