[Federal Register Volume 59, Number 222 (Friday, November 18, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-28490]


[[Page Unknown]]

[Federal Register: November 18, 1994]


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DEPARTMENT OF TRANSPORTATION
Federal Railroad Administration
[FRA General Docket No. H-94-6]

 

Test Program and Public Hearing Involving Remotely Controlled 
Locomotives

AGENCY: Federal Railroad Administration (FRA), Department of 
Transportation (DOT).

ACTION: Notice of test program and public hearing.

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SUMMARY: FRA is planning to conduct a test program of rail operations 
involving use of remotely controlled locomotives to evaluate the safety 
of this new technology in which a person can operate a locomotive by 
means of a radio remote-control device while not physically within the 
confines of a locomotive cab.

FOR FURTHER INFORMATION CONTACT:
Rolf Mowatt-Larssen, Chief of Motive Power and Equipment Division, 
Office of Safety (RRS-14), Federal Railroad Administration, 400 7th 
Street, SW., Washington, DC 20590 (telephone: 202-366-4094).

SUPPLEMENTARY INFORMATION: Pursuant to 49 CFR 211.51, FRA will conduct 
a nation-wide test of rail operations involving remotely controlled 
locomotives (operations in which a person located outside a locomotive 
cab operates a locomotive by means of a radio remote-control device). 
The purpose of the test is to determine under what conditions 
locomotives can be operated from outside the cab of a locomotive by 
means of one of several different types of remote-control devices, with 
the level of safety required by Sec. 2 of the Locomotive Inspection Act 
( 45 U.S.C. Sec. 23) and Sec. 229.7 of the Locomotive Safety Standards 
(49 CFR 229.7), which incorporates that statutory provision. Section 2 
of the Locomotive Inspection Act states that it is

    Unlawful for any railroad to use or permit to be used on its 
line any locomotive unless said locomotive, its boiler, tender, and 
all parts and appurtenances thereof are in proper
condition and safe to operate in the service to which they are put.

FRA considers a remote-control device used to operate a locomotive to 
be a ``part or appurtenance'' within the meaning of the Locomotive 
Inspection Act.
    In addition to raising overall safety concerns, remote-control 
operations raise issues of possible technical noncompliance with 
certain Federal railroad safety standards inasmuch as the technology in 
question was not in use when the regulations were issued.
    The Wheeling and Lake Erie Railway Company (W&LE) has submitted a 
petition to FRA requesting waivers of certain provisions of the Federal 
rail safety regulations in order to use remote-control devices in rail 
operations. FRA Docket Numbers LI-92-6 and RSOP-92-1, 59 FR 4454 
(January 14, 1993). In addition to reviewing the various regulations 
from which W&LE requested relief, FRA reviewed W&LE's remote-control 
operations in light of compliance with Sec. 2 of the Locomotive 
Inspection Act (45 U.S.C. Sec. 23) and Sec. 229.7 of the Locomotive 
Safety Standards (49 CFR 229.7), which incorporates that statutory 
provision.
    Based on an extensive FRA field investigation of the W&LE's remote-
control operations, W&LE's petition to FRA, testimony presented at a 
public hearing held on May 11, 1993, submissions to the public docket, 
as well as testing performed by the Volpe Transportation Systems Center 
under contract to FRA, FRA has conditionally granted the W&LE a 
temporary waiver. A copy of the approval letter is contained in 
Appendix A to this notice.
    While FRA has extensively reviewed the remote-control operations of 
the W&LE, other railroads throughout the country have begun to use 
remote-control technologies without similar FRA review. Because there 
are different remote-control transmitters and receivers made by a 
number of manufacturers and various railroads use those remote-control 
devices in various operational settings, conditions associated with 
W&LE's use of the devices may or may not be appropriate to other 
carriers.
    FRA needs to assure that continued use of this new technology does 
not create a safety risk to railroad employees or the public. FRA also 
does not want to hinder the development of new technologies which may 
be of benefit to the rail industry. Thus, FRA has chosen to permit 
continued use of remote control systems subject to appropriate safety 
conditions, while a two-year study of such use is underway. At the 
conclusion of the two-year period, FRA will be in a better position to 
evaluate the necessity and, if appropriate, content of permanent safety 
requirements for remote control use.
    All railroads using such remote-control systems will be permitted 
to continue using such systems only if they participate in the long-
term test, so that FRA can evaluate remote control operations in light 
of the regulatory and statutory obligations imposed upon all railroads. 
Enrollment will be necessary for waiver of those provisions of 49 CFR 
Part 229 that present technical barriers to remote-control operation.
    FRA will conduct the test in accordance with the guidelines set 
forth in Appendix B. FRA seeks the comments of all parties interested 
in the test program prior to taking final action. All interested 
parties are invited to participate in this proceeding through written 
submissions or by participating in an informal hearing to discuss the 
test has been scheduled for 9:30 a.m. on January 11, 1995 in Room 2230, 
400 Seventh Street, SW., Washington, DC 20590. All written 
communications concerning this test program should reference ``FRA 
General Docket No. H-94-6'' and should be submitted in triplicate to 
the Docket Clerk, Office of Chief Counsel, Room 8201, FRA, 400 Seventh 
Street, SW., Washington, DC 20590.
    Comments received by January 18, 1995 will be considered before 
final action is taken. All comments received will be available for 
examination during regular working hours in Room 8201, Nassif Building, 
400 Seventh Street, SW., Washington, DC 20590.

    Issued in Washington, DC on November 9, 1994.
Phil Olekszyk,
Acting Deputy Associate Administrator for Safety Comnpliance and 
Program Implementation.

Appendix A

November 9, 1994.
Arthur E. Korkosz, Esq.,
Squire, Sanders & Dempsey, 4900 Society Center, Cleveland, Ohio 
44114-1304.

Re: FRA Docket Nos. LI-92-6 and
    RSOP-92-1

    Dear Mr. Korkosz: This is in response to the petition on behalf 
of the Wheeling and Lake Erie Railway Company (W&LE) for waivers of 
various Federal Railroad Administration (FRA) rail safety 
regulations pertaining to W&LE's use of remotely controlled 
locomotives. FRA has reviewed in detail the operation of remotely 
controlled locomotives on the W&LE. That operation raises issues of 
technical noncompliance with various regulations as a result of the 
fact that the technology in question was not in use when the 
regulations were drafted.\1\ In addition, certain aspects of the 
operation raise safety concerns which are not addressed by existing 
regulations. Irrespective of the absence of regulatory provisions 
addressing specific locomotive features or appurtenances, railroads 
are required to use only locomotives and appurtenances that are safe 
to operate in the service to which they are put. Section 2 of the 
Locomotive Inspection Act, states in part:
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    \1\It has been argued that section 1 of the first Safety 
Appliance Act (45 U.S.C. Sec. 1) (hereinafter, ``Section 1'') 
prohibits use of a locomotive without an engineer physically present 
in the cab. Section 1 does not require the presence of an engineer 
on the locomotive. Section 1 does make it unlawful to run a train 
with an insufficient number of cars equipped with power or train 
brakes or to use a locomotive not equipped with an independent power 
brake and with appliances for operating the train brakes. This 
provision in Section 1, while referring to an ``engineer on the 
locomotive'' clearly does not require that an engineer be on the 
locomotive; the subjects of that provision, and the only actions 
made unlawful, are the operation of a train without an insufficient 
number of adequately equipped cars and the use of a locomotive 
unequipped with an independent power brake or appliances for 
operating the train brakes.
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    * * * it shall be unlawful for any railroad to use or permit to 
be used on its line any locomotive unless said locomotive, its 
boiler, tender, and all parts and appurtenances thereof are in 
proper condition and safe to operate in the service to which the 
same are put, that the same may be employed in the active service of 
such railroad without unnecessary peril to life or limb * * *.

45 U.S.C. Sec. 23. See also 49 CFR Sec. 229.7(a)(1).
    In making its determination regarding W&LE's petition, FRA has 
reviewed the petition, testimony presented at a public hearing held 
on May 11, 1993, and submissions to the public docket. FRA has also 
relied on its own staff of railroad safety experts as well as 
testing performed by the Volpe Transportation Systems Center under 
contract to FRA.
    Based on the above, FRA is dismissing FRA Docket No. RSOP-92-1 
inasmuch as the operation of remotely controlled locomotives does 
not by itself violate 49 CFR Part 218, Subpart B (``Blue Signal 
Protection of Workers''). FRA is granting your request for a waiver 
of rail safety regulations under FRA Docket No. LI-92-6 for a period 
of two years subject to the conditions listed in the enclosure to 
this letter. FRA reserves the right to amend or revoke this approval 
based on non-compliance or based on new information pertaining to 
the safety of the system. During this two-year period FRA will also 
be conducting a test program, and together with its contractors, 
will be reviewing remote-control operations and technology on the 
W&LE and other railroads using similar technology. A notice of the 
test program is being published in the Federal Register. In that 
notice, FRA is encouraging all other railroads presently using 
remote-control locomotives to join with FRA in evaluating these 
systems.
    At the conclusion of the test period, FRA will be in a better 
position to evaluate the necessity and, if appropriate, content of 
permanent safety requirements for use of remote-control devices.

    Sincerely,
Phil Olekszyk,
Acting Deputy Associate Administrator for Safety Compliance and Program 
Implementation, Federal Railroad Administration, U.S. Department of 
Transportation.

Wheeling & Lake Erie Railway Company

Remote-control Locomotives

    The waivers granted under FRA Docket No. LI-92-6 are subject to 
the conditions set forth in this document. FRA reserves the right to 
amend to revoke this approval based on non-compliance or based on 
new information pertaining to the safety of the system.

A. Design Requirements

    1. Each remote-control transmitter shall, at a minimum, have the 
capability of controlling the following locomotive functions:
    a. directional control;
    b. graduated throttle control;
    c. graduated independent locomotive brake application and 
release;
    d. graduated automatic train brake application and release;
    e. audible warning device control;
    f. audible bell control, if equipped;
    g. sand control; and
    h. headlight control.
    2. Each remote-control transmitter shall control only the 
locomotive equipped with a remote-control receiver assigned to that 
transmitter.
    3. Each locomotive equipped with a remote-control receiver shall 
respond only to the remote-control transmitter assigned to that 
receiver.
    4. A remote-control transmitter having the capability to control 
more than one locomotive receiver shall have a lockable selector 
switch.
    5. A service brake application by use of the remote-control 
transmitter shall cause a service application of the locomotive and 
train brakes.
    6. When a remote-control transmitter's radio signal to the 
locomotive receiver is interrupted for a set period not to exceed 
five seconds, the remote-control system shall cause:
    a. application of the locomotive and train brakes,
    b. return of the diesel engine to idle, and
    c. termination of the main generator/alternator electrical 
output.
    7. If a remote-control transmitter is equipped with an ``on'' 
and ``off'' switch, the switch, when moved from ``on'' to ``off'' 
position, shall result in:
    a. application of the locomotive and train brakes,
    b. return of the diesel engine to idle, and
    c. termination of the main generator/alternator electrical 
output.
    8. Each locomotive equipped for remote-control operation shall 
audibly or visibly indicate to nearby personnel that the locomotive 
is under active remote-control and subject to movement.
    9. Each remote-control transmitter shall be equipped with an 
active safety switch requiring manual resetting or its equivalent. 
It shall incorporate a timing sequence not to exceed 60 seconds. 
Failure to reset the switch within the timing sequence shall result 
in:
    a. application of the locomotive and train brakes,
    b. return of the diesel engine to idle,
    c. termination of the main generator/alternator electrical 
output, and
    d. sounding of the horn continuously or in short blasts.
    10. Each remote-control transmitter shall have a two-second 
delay feature that when tilted 45 degrees in any direction shall 
result in:
    a. application of the locomotive and train brakes,
    b. return of the diesel engine to idle,
    c. termination of the main generator/alternator electrical 
output, and
    d. sounding of the horn continuously or in short blasts.
    11. If the locomotive's main air reservoir pressure falls below 
80 psi when the locomotive is in remote operation, the following 
shall automatically occur:
    a. application of the locomotive and train brakes,
    b. return of the diesel engine to idle, and
    c. termination of the main generator/alternator electrical 
output.
    12. In remote operation, any attempt to apply the brakes or move 
the throttle on the locomotive control stand will automatically 
result in:
    a. application of the locomotive and train brakes,
    b. return of the diesel engine to idle, and
    c. termination of the main generator/alternator electrical 
output.
    13. When the air valves and the electrical selector switch on 
the locomotive's remote control receiver equipment are moved from 
manual to remote or remote to manual modes, an emergency application 
of the locomotive and train brakes shall be initiated.
    14. Measurements of electric and magnetic fields emitted by the 
remote-control transmitter shall conform to American National 
Standards Institute Safety Levels with Respect to Human Exposure to 
Radio-Frequency Electromagnetic Fields, 300 Khz to 100 GHz'' (ANSI/
IEEE c95.1-1991).

B. Training Requirements

    1. A training program for initial and continuing education for 
operators of remote-control locomotives shall be established. 
Training programs established in conformity with 49 CFR Part 240 
shall be modified to include appropriate training for operation of 
remote-control locomotives and systems.
    2. Each person operating a remote-control locomotive 
(irrespective of whether that locomotive service requires that the 
operator be certified in accordance with 49 CFR Part 240) shall have 
successfully completed appropriate classroom and hands-on training 
regarding safety and operations of the remote-control locomotive and 
system.

C. Standard Operating Procedures

    1. W&LE shall establish written standard operating procedures 
tailored to its remote-control operation and shall include the 
following provisions:
    a. Each defective condition in the remote-control system shall 
be immediately reported to a designated railroad official.
    b. Each defective condition in a remote-control system shall be 
corrected before the locomotive is permitted to continue or be used 
in remote-control service.
    c. Repairs, modifications, or adjustments to any component of 
the remote-control system shall be made by a qualified person.
    d. W&LE shall immediately report by telephone to the FRA 
Regional Office or, after business hours, to the National Response 
Center whenever a derailment or personal injury occurs involving the 
remote-control system. W&LE shall maintain a record of all defective 
conditions and all accidents/incidents (irrespective of the 
reporting threshold under 49 CFR Part 225) involving the remote-
control system. Such records shall be retained for at least 36 
months.
    e. Upon going off duty, each operator shall place the remote-
control locomotive in manual operation.
    f. When operating a locomotive by remote-control, the operator 
shall not:
    i. ride on a freight car;
    ii. ride on the locomotive's walkway or steps when the speed of 
the locomotive is in excess of 10 mph; or
    iii. stand or walk within the gage of the rail while in front of 
the lead car or locomotive.
    g. The maximum authorized speed of a remote-control locomotive 
being operated from outside the cab is 10 mph.
    h. When moving a group of cars for switching or placement 
purposes, the remote-control operator shall assume a position to 
observe the leading end of the movement.
    i. The operator shall operate only one remote-control locomotive 
consist from the remote-control transmitter, and shall not 
simultaneously operate any other locomotive consist.
    j. Prior to lining a switch or performing any duty that requires 
going on, under, or between cars, the operator shall fully apply the 
brakes on the locomotive and train.
    k. When operating a remote-control locomotive in the remote mode 
in road service, the operator shall at all times remain in the cab.
    l. A remotely controlled locomotive operated from outside the 
cab by a one-person crew shall not operate outside the confines of a 
geographical yard, an industry, an industrial park, or a lead into 
such facility when other railroad employees are not in close 
proximity to the train movement.
    m. A remote-control locomotive operated by a one-person crew 
shall be segregated from other locomotives or crews operating in the 
same yard or facility.
    n. Movements past any signal, through an interlocking, or over 
highway-rail crossings shall be made only when the remote-control 
operator, or another crewmember who can signal or communicate with 
the operator, has taken a position at the leading end of the 
movement.
    o. When operating a remote-control locomotive in the remote 
mode, the operator shall bring the locomotive to a full stop before 
the locomotive direction is changed.
    q. Passenger trains shall not be operated by use of a remote-
control device.
    r. Each operator of a remote-control locomotive shall be 
equipped with an operative holstered hand-held radio equipped with a 
wired remote microphone by which the operator may communicate with 
another railroad employee.
    s. In the event that a train is stopped on a grade, a sufficient 
number of handbrakes must be set to hold the train.
    2. W&LE shall adopt operating rules for remote-control 
locomotives that address:
    a. the maximum number of cars that can be handled at one time 
and
    b. how protection will be provided for maintenance-of-way and 
signal employees in locations where remote-control locomotives are 
operating.
    3. W&LE shall submit its standard operating procedures to the 
FRA.
    4. W&LE shall comply with the standard operating procedures 
listed above.

D. Security

    1. The remote-control transmitter shall be stored in a secure 
location when not in the operator's possession.
    2. The issuance of a remote-control transmitter shall be the 
responsibility of a designated railroad official who shall keep 
accurate records of the assignment of each remote-control 
transmitter.
    3. Ability to access the selector switch on a remote-control 
transmitter having the capability to control more than one 
locomotive receiver shall be limited to one designated railroad 
official during each shift.

E. Inspections and Tests

    1. Each remote-control system shall be included as part of the 
calendar day inspection required by 49 CFR 229.21.
    2. Each operator upon going on duty, or before using the 
locomotive in the remote-control mode for the first time during the 
operator's shift, shall cut out the manual operation of the 
locomotive and set up and test the remote-control transmitter to 
determine that:
    a. the control stand gauges and the load meter function properly 
in accordance with the commands from the remote-control transmitter;
    b. the locomotive responds to the transmitter controls of 
reverser and throttle;
    d. the locomotive brakes function properly from the transmitter;
    e. the headlight, horn, and bell function properly from the 
transmitter;
    f. the transmitter tilt mechanism functions properly;
    g. the transmitter tilt nullifying switch when placed in the 
``off'' position, applies the locomotive brake; and
    h. the active safety switch reset does not exceed 60 seconds.

F. Notification of Use and Protection of Workers

    1. Prior to leaving the locomotive cab to operate the locomotive 
from a position other than in or on the locomotive, the operator of 
the locomotive shall affix a clearly visible tag to the throttle or 
automatic brake value handle indicating that the locomotive is in 
remote-control operation. This tag shall be removed by the operator 
of the remote-control of the locomotive whenever the locomotive is 
no longer operated by remote-control.
    2. Whenever a worker as described in 49 CFR Part 218, Subpart B, 
Blue Signal Protection of Workers, is required to work on, under, or 
between the locomotive and/or train in remote-control operation, the 
worker shall require the remote-control operator to remove the 
remote-control tag from the throttle and restore the locomotive to 
manual operation. The worker shall then attach a blue signal to the 
throttle before commencing work.
    3. When the worker has completed work on the locomotive or 
train, the worker shall remove the blue signal and inform the 
remote-control operator that he is off the locomotive or train. The 
remote-control operator shall then comply with requirements of 
section F.1. above before commencing use of the locomotive in 
remote-control operations.

Appendix B

Test Program

    Railroads operating on the general railroad system of 
transportation using remote-control devices in which the lead 
locomotive is controlled from outside the cab by means of a radio 
transmitter are strongly encouraged to enroll in the test program:
    1. Railroads participating in the test program shall inform the 
Associate Administrator for Safety, 400 Seventh Street, SW., 
Washington, DC 20590.
    2. Participating railroads agree to conform to the same 
conditions as those contained in Appendix A.
    3. If a participating railroad is unable to conform to any of 
the conditions contained in Appendix A, it shall submit for FRA's 
review and acceptance alternative safety conditions.
    a. In the event the design of a remote-control system being used 
by the participating railroads does not permit conformity with the 
requirements contained in Appendix A, the railroad shall indicate 
(i) which design requirement is different and (ii) how an equivalent 
level of safety is achieved by the device being used by the 
railroad.
    b. In the event a participating railroad does not wish to comply 
with a condition contained in sections B through G of Appendix A), 
the railroad should specify the condition and indicate how an 
equivalent level of safety is achieved by the railroad's alternative 
condition.
    4. Acceptance by FRA for participation in this test constitutes 
a waiver of applicable Railroad Locomotive Safety Standards (49 CFR 
Part 229) subject to compliance with the above conditions.

[FR Doc. 94-28490 Filed 11-17-94; 8:45 am]
BILLING CODE 4910-06-M