[Federal Register Volume 63, Number 168 (Monday, August 31, 1998)]
[Notices]
[Pages 46274-46278]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-23376]


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DEPARTMENT OF TRANSPORTATION

Federal Railroad Administration


Petition for Waiver of Compliance

    In accordance with Title 49. Code of Federal Regulations (CFR), 
Sections 211.9 and 211.41, notice is hereby given that the Federal 
Railroad Administration (FRA) received a request for a waiver of 
compliance from certain requirements of Federal railroad safety 
regulations. The individual petition is described below, including the 
party seeking relief, the regulatory provisions involved, the nature of 
the relief being requested, and the petitioner's arguments in favor of 
relief.

CSX Transportation, Incorporated (Waiver Petition Docket Number H-
98-6)

    CSX Transportation, Incorporated (CSXT) seeks a waiver of 
compliance from certain sections of 49 CFR Parts 216, Special Notice 
and Emergency Order Procedures: Railroad Track, Locomotive and 
Equipment; 217, Railroad Operating Rules; 218, Railroad Operating 
Practices; 229, Railroad Locomotive Safety Standards; 233, Signal 
Systems Reporting Requirements; 235, Instructions Governing 
Applications for Approval of a Discontinuance or Material Modification 
of a Signal System or Relief from the Requirements of Part 236; 236, 
Rules, Standards, and Instructions Governing the Installation, 
Inspection, Maintenance, and Repair of Signal and Train Control 
Systems, Devices, and Appliances; and 240, Qualification and 
Certification of Locomotive Engineers, under Part 211.51, Tests, to 
allow them to develop, implement, and test technology designed to 
prevent train collisions and overspeed violations and to protect track 
maintenance personnel from trains. The program will enable CSXT to 
demonstrate and validate the technology, referred to as CBTM (for 
Communications Based Train Management), before it is implemented on a 
larger scale.
    CBTM is a non-vital safety overlay that works in conjunction with 
the existing method of operation in DTC (Direct Traffic Control) 
territory to protect against the consequences of human error. This 
approach provides a ``safety net'' for train operations while retaining 
the existing method of operation as the primary means of control.
    CBTM's safety enhancements are achieved through a distributed, 
communication-based system that enforces movement authority and speed 
restrictions for CBTM-equipped trains. Five CBTM segments work together 
to provide this enforcement: office server, zone logic controller, 
wayside, locomotive, and communications. The office server receives the 
DTC authority and train message information from CADS (Computer Aided 
Dispatching System). This information is passed down to the appropriate 
zone logic controller. The zone logic controller sends this information 
through the communications segment down to the locomotive, as targets. 
The locomotive segment enforces a train's movement and speed limits by 
monitoring the train's location and speed in relation to the targets. 
The system will apply a penalty brake application to stop the train, if 
necessary, to prevent a violation. The wayside segment will communicate 
switch position information to the zone logic controller and the 
locomotive. Two Differential Global Positioning System sites will be 
utilized to provide train location information, one being at Savannah 
Beach, Georgia, and the other located at either Knoxville, Tennessee, 
or Greensboro, North Carolina.
    The CBTM pilot is designed to develop, test and demonstrate PTS 
(Positive Train Separation) technology. As a pilot program, it will 
focus on proving the CBTM concepts and technology and on laying the 
groundwork for a production system. While the purpose of CBTM is to 
enhance safety, the pilot program itself is not expected to yield 
immediate

[[Page 46275]]

safety benefits. The program will focus on testing the technology 
without adversely affecting the safety of operations under the existing 
method of operations, which will remain in effect.
    The CBTM pilot program will be implemented on 126.6 miles of CSXT 
track in the Southeast. The pilot will include all of the territory on 
two subdivisions, Spartanburg and McCormick, of the Florence Service 
Lane. Relief is sought for CBTM test operations on all tracks of all 
types included in the pilot territory. The pilot territory includes 
single main track, sidings, and branch lines. It will also include the 
self restoring, power operated switch located at M.P. AK 557.9, 
normally positioned for straightaway movement to CSXT's CN&L 
subdivision. The following are the waiver requests and their 
justifications:
    Section 216.13  Special notice for repairs--locomotive. Waiver is 
requested for CBTM-equipped locomotives to the extent that non-
operation of CBTM equipment installed on board (whether through 
malfunction or deactivation) shall not be construed as an unsafe 
condition requiring special notice for repairs; waiver is sought for 
non-CBTM-equipped locomotives operating in the CBTM pilot territory to 
the extent that the absence of CBTM equipment on board shall not be 
construed as an unsafe condition requiring special notice for repairs.
    Justification: With or without CBTM equipment operating on board 
the controlling locomotive, a train remains subject to existing method 
of operation. (CBTM is an overlaid system, enhancing current safety 
without affecting the operation of existing systems). CBTM tests 
require flexibility in installing, removing, turning on, and turning 
off the on-board equipment. The CBTM pilot will equip only six 
locomotives, which is a small subset of locomotives operating in the 
pilot territory.
    Section 217.9  Program of operational tests and inspections; 
recordkeeping. Waiver is requested exempting operation of CBTM 
equipment and procedures from the requirements for operational tests 
and inspections and associated recordkeeping.
    Justification: The CBTM pilot is a test program during which 
procedures for using CBTM equipment and functions will be refined and 
modified. Until such procedures are defined, they cannot be addressed 
in the code of operating rules, timetables, and timetable special 
instructions to which this section applies.
    Section 217.11  Program of instruction on operating rules; 
recordkeeping; electronic recordkeeping. Waiver is requested exempting 
operation of CBTM equipment and procedures from the requirements for 
instruction and associated recordkeeping.
    Justification: The CBTM pilot is a test program during which 
procedures for using CBTM equipment and functions will be refined and 
modified. Until such procedures are defined, they cannot be addressed 
in the code of operating rules to which this section applies. In any 
case, CBTM is expected to have minimal impact on the code of operating 
rules.
    Part 218  [Subpart D] Prohibition Against Tampering With Safety 
Devices. Waiver is requested exempting on-board CBTM equipment from the 
requirements of all sections under Subpart D of Part 218 (Sections 51, 
53, 55, 57, 59, and 61) to the extent that CBTM equipment on board a 
locomotive shall not be considered a ``safety device'' according to the 
provisions of this subpart at any time during the pilot program.
    Justification: The CBTM pilot is a test program. CBTM tests require 
flexibility in installing, removing, turning on and turning off the on-
board equipment. CSXT tests require the flexibility to permanently 
disable or remove CBTM equipment in the event that a production system 
is not implemented.
    Section 229.7  Prohibited acts. Waiver is requested to the extent 
that CBTM equipment on board a locomotive shall not be considered 
``appurtenances'' rendering the locomotive subject to the constraints 
of this section.
    Justification: The CBTM pilot is a test program. CBTM tests require 
flexibility in installing, removing, turning on and turning off the on-
board equipment. CSXT also requires the flexibility to temporarily or 
permanently disable on-board CBTM equipment. Whether or not CBTM 
equipment on board a locomotive is functioning, the train remains 
subject to the safety provisions of the existing method of operation.
    Section 229.135  Event recorders. Waiver is requested to the extent 
that CBTM equipment on board a locomotive shall not be considered an 
``event recorder'' subject to the provisions of this section.
    Justification: CBTM equipment by design will operate intermittently 
during the pilot program. CBTM tests require flexibility in installing, 
removing, turning on and turning off the on-board equipment. CSXT also 
requires the flexibility to temporarily or permanently disable on-board 
CBTM equipment.
    Section 233.9  Reports. Waiver is requested exempting CBTM 
operations in the pilot program from the reporting requirement of this 
section.
    Justification: While a CBTM production system may belong to the 
category of ``other similar appliances, methods, and systems'' 
specified in Sec. 233.1, this requirement would impose an unnecessary 
paperwork burden for a test program.
    Section 235.5  Changes requiring filing of application. Waiver is 
requested exempting the CBTM pilot program from the filing requirements 
of this section.
    Justification: The CBTM pilot is a test program. It is an overlay 
system that can enhance the safety of train operations without 
affecting the existing method of operation. CBTM tests require 
flexibility in installing, removing, modifying, turning on and turning 
off the on-board equipment. CSXT also requires the flexibility to 
permanently disable or remove CBTM equipment in the event that a 
production system is not implemented.
    Section 236.4  Interference with normal functioning of device. 
Waiver is requested to the extent that CBTM equipment shall be excluded 
from this requirement during the pilot program.
    Justification: The CBTM pilot is a test program through which the 
``normal functioning'' of CBTM will be defined and refined. CBTM tests 
require flexibility in installing, removing, turning on and turning off 
the on-board equipment. With or without CBTM equipment operating on 
board the controlling locomotive, the train remains subject to the 
safety provisions of existing method of operation.
    Section 236.5  Design of control circuits on closed circuit 
principle. Waiver is requested excepting CBTM equipment from the closed 
circuit design requirement.
    Justification: CBTM is an overlay system using solid-state 
components. It will enhance railroad safety while in no way interfering 
with the operation of existing safety devices.
    Section 236.6  Hand-operated switch equipped with switch circuit 
controller. Waiver is requested exempting the CBTM pilot program from 
the maintenance requirements of this section.
    Justification: CBTM is an overlay system in non-signaled territory. 
The installation of circuit controllers on the manual switches and the 
information they convey are for use by the CBTM pilot only, the 
maintenance of which will not affect the safety of train operations. 
CSXT requires the flexibility to temporarily or permanently disable or

[[Page 46276]]

remove CBTM related equipment in the event that a production system is 
not implemented.
    Section 236.8  Operating characteristics of electromagnetic, 
electronic, or electrical apparatus. Waiver is requested exempting CBTM 
equipment from the requirements of this section.
    Justification: CBTM consists of devices which are not signal 
apparatus. The functioning of these devices are not essential to the 
safety of train operations. The CBTM pilot is a test program during 
which the limits within which these devices are designed to operate 
will be defined.
    Section 236.11  Adjustment, repair, or replacement of component. 
Waiver is requested exempting CBTM components on board a locomotive 
from the requirements of this section.
    Justification: CBTM is an overlay system designed to enhance safety 
while in no way affecting the operation of existing method of 
operation. Failure of a CBTM component will not jeopardize the safety 
of train operations.
    Section 236.15  Timetable instructions. Waiver is requested 
exempting the CBTM pilot territory from the timetable designation 
requirement of this section.
    Justification: Since the pilot program will consist of tests and 
demonstrations, identifying the test territory in the timetable as 
``CBTM'' (or some similar label) would be both premature and an 
unnecessary paperwork burden.
    Section 236.23  Aspects and indications. Waiver is requested to the 
extent that the CBTM display on board an equipped locomotive shall not 
be construed to represent or correspond to signal aspects or 
indications and shall therefore be exempt from the requirements of this 
section.
    Justification: CBTM is an overlay system in non-signaled territory. 
Its design excludes any visual display of signal aspects or 
indications. CBTM enforceable authorities will not be derived from 
signal indications. Only CBTM status information will be displayed to 
the crew. Trains will remain subject to the existing method of 
operation. Text information regarding authorities, speed restrictions, 
or work zones will be displayed to the crew only after enforcement. 
This information will in no way represent or qualify the authority 
conveyed by the dispatcher.
    Section 236.76  Tagging of wires and interference of wires or tags 
with signal apparatus. Waiver is requested exempting CBTM equipment 
from the wire tagging requirement.
    Justification: CBTM hardware consists of computers, computer 
peripherals, and communication devices. While the inapplicability of 
this section to circuit boards, connectors, and cables would appear 
obvious, waiver is sought for clarification.
    Section 236.101  Purpose of inspection and tests; removal from 
service of relay or device failing to meet test requirements. Waiver is 
requested exempting CBTM equipment from the requirement for removal of 
failed equipment from service.
    Justification: The CBTM pilot is a test program. CBTM tests require 
flexibility in installing, removing, turning on and turning off the on-
board equipment. With or without CBTM equipment operating on board, a 
train remains subject to the safety provisions of the existing method 
of operation.
    Section 236.107  Ground tests. Waiver is requested exempting CBTM 
equipment in the pilot program from the requirement for ground testing.
    Justification: CBTM hardware consists of computers, computer 
peripherals, and communication devices. Ground tests would serve no 
purpose in ensuring safety and could be damaging to this equipment.
    Section 236.109  Time releases, timing relays and timing devices. 
Waiver is requested exempting CBTM equipment in the pilot program from 
the annual testing requirement.
    Justification: The timing devices in CBTM equipment are software-
driven, have no moving parts, and are far more reliable than the 
devices for which this regulation was promulgated.
    Section 236.110  Results of tests. Waiver is requested exempting 
CBTM tests from the recordkeeping requirements of this section.
    Justification: The CBTM pilot is a test program during which the 
types of tests needed to ensure appropriate levels of maintenance will 
be defined.
    Section 236.202  Signal governing movements over hand-operated 
switch. Waiver is requested exempting CBTM tests from the requirements 
of this section.
    Justification: The CBTM pilot is a test program during which the 
operational parameters will be defined.
    Section 236.501  Forestalling device and speed control. Waiver is 
requested exempting CBTM from the requirement for low or medium-speed 
restriction in paragraphs (1) and (2) under provision (b).
    Justification: CBTM is a safety enhancement system that will apply 
a penalty brake application to enforce the maximum permissible speed 
based on permanent or temporary speed restrictions issued by the 
dispatcher, not signal indications.
    Section 236.502  Automatic brake application, initiation by 
restrictive block conditions stopping distance in advance. Waiver is 
requested exempting CBTM automatic brake applications from the 
requirement tying brake applications to restrictive block conditions.
    Justification: As an overlay system, CBTM applies enforcement 
braking with reference to CBTM enforceable targets generated from 
dispatcher issued movement authorities, not signal indications. As for 
the signal indication at the self-restoring power operated switch 
location, CBTM enforceable targets are generated based on switch 
position and dispatcher issued authorities; they may or may not 
correspond to a restrictive signal indication at this location.
    Section 236.504  Operation interconnected with automatic block-
signal system. Waiver is requested exempting CBTM from the requirement 
of interconnection with an automatic block-signal system.
    Justification: CBTM is an overlay system in non-signaled territory 
with no connection to a signal system.
    Section 236.511  Cab signals controlled in accordance with block 
conditions stopping distance in advance. Waiver is requested exempting 
any CBTM on-board display from the cab-signal requirements in this 
section.
    Justification: CBTM is not an automatic cab signal system and will 
have no direct connection with the signal system.
    Section 236.512  Cab signal indication when locomotive enters block 
where restrictive conditions obtain. Waiver is requested exempting any 
CBTM on-board display from the cab-signal requirements in this section.
    Justification: CBTM is not an automatic cab signal system. Since 
CBTM is an overlay system, the train crew will maintain the primary 
responsibility for adherence to the movement authorities issued 
verbally by the train dispatcher.
    Section 236.514  Interconnection of cab signal system with roadway 
signal system. Waiver is requested exempting CBTM from the requirement 
of interconnection with the roadway signal system.
    Justification: CBTM is an overlay system in non-signaled territory 
with no connection to a signal system except for the self-restoring 
power operated switch where CBTM will indirectly receive switch 
position information only.
    Section 236.515  Visibility of cab signals. Waiver is requested 
exempting any CBTM display from the visibility requirement of this 
section.

[[Page 46277]]

    Justification: CBTM is not an automatic cab signal system. The CBTM 
design excludes any visual representation of signal aspects or 
indications.
    Section 236.528  Restrictive condition resulting from open hand-
operated switch; requirement. Waiver is requested exempting any CBTM 
display from the requirements of this section.
    Justification: CBTM is a test program in non-signaled territory. 
The installation of circuit controllers on the manual switches and the 
information they convey are for use by the CBTM pilot only. Trains will 
continue to be governed by the existing method of operation, therefore 
the functioning of these devices is not essential to the safety of 
train operations. The limits within which these devices will be 
required to operate under a restrictive condition will be defined as 
part of the CBTM pilot program.
    Section 236.534  Entrance to equipped territory; requirements. 
Waiver is requested exempting the CBTM pilot program from the 
requirements of this section.
    Justification: The CBTM pilot is a test program. CBTM tests will 
require flexibility in installing, removing, turning on and turning off 
the on-board equipment.
    Section 236.551  Power supply voltage; requirement. Waiver is 
requested exempting the on-board CBTM power supply from the voltage 
requirement in this section.
    Justification: The CBTM pilot is a test program during which the 
limits within which the power supply voltage must be maintained, will 
be defined.
    Section 236.552  Insulation resistance; requirement. Waiver is 
requested exempting CBTM equipment from the insulation resistance 
requirement in this section.
    Justification: CBTM on-board equipment consists of computers, 
computer peripherals, and communications equipment. Insulation 
resistance tests could be damaging to such components.
    Section 236.553  Seal, where required. Waiver is requested 
exempting CBTM equipment from the seal requirement in this section.
    Justification: The CBTM system will allow the crew to inhibit the 
CBTM functions and equipment through an on-board manual function. Use 
of the on-board inhibit function will be electronically monitored and 
archived.
    Section 236.563  Delay time. Waiver is requested exempting CBTM 
from the delay time requirement in this section.
    Justification: The CBTM braking algorithm continuously computes 
braking distance to the next target where a stop is required based on 
dispatcher issued authorities, not signals.
    Section 236.564  Acknowledging time. Waiver is requested exempting 
CBTM from the acknowledging time requirement in this section.
    Justification: The CBTM pilot is a test program during which these 
types of parameters will be refined and modified.
    Section 236.566  Locomotive of each train operating in train stop, 
train control or cab signal territory; equipped. Waiver is requested to 
the extent that the equipment requirements in this section shall not 
apply to CBTM during the test period.
    Justification: The CBTM pilot is a test program. A small subset of 
locomotives operating in the test territory will be CBTM-equipped; the 
majority of trains will not be equipped. CBTM tests require flexibility 
in installing, removing, turning on and turning off the on-board 
equipment. CSXT requires the flexibility to permanently disable or 
remove CBTM equipment.
    Section 236.567  Restrictions imposed when device fails and/or is 
cut out en route. Waiver is requested exempting CBTM operations from 
the restrictions associated with device failure or cutout.
    Justification: The CBTM pilot is a test program requiring 
flexibility in installing, removing, turning on and turning off the on-
board equipment. Since CBTM is a safety overlay, a failure or 
deactivation of CBTM equipment has the effect only of suspending the 
safety enhancements associated with CBTM without compromising the 
underlying safety provisions of existing method of operation. If a CBTM 
device fails, operations will continue in a normal mode. The dispatcher 
will be immediately notified before CBTM equipment is inhibited. 
Moreover, the dispatcher is immediately notified if CBTM equipment 
fails, eliminating any need for a reduction in speed.
    Section 236.586  Daily or after trip test. Waiver is requested 
exempting the CBTM pilot program from the test requirements of this 
section.
    Justification: The CBTM pilot is a test program during which 
requirements for a daily or after-trip test, if necessary, will be 
defined. CBTM equipment is many times more reliable than the equipment 
for which this regulation was promulgated.
    Section 236.587  Departure test. Waiver is requested exempting the 
CBTM pilot program from the test requirements of this section.
    Justification: The CBTM pilot is itself a test program during which 
the requirements for a departure test will be defined. Further, it is 
likely the departure test will be made without human intervention and/
or outside CBTM territory.
    Section 236.588  Periodic test. Waiver is requested exempting the 
CBTM pilot program from the test requirements of this section.
    Justification: The CBTM pilot is itself a test program during which 
the requirements for periodic testing will be defined.
    Section 236.703  Aspect. Clarification is requested exempting the 
CBTM display from this definition.
    Justification: CBTM is not an automatic cab signal system. CBTM is 
an overlay system designed for non-signaled territory and does not 
include any visual representation of signal aspects or indications.
    Section 236.805  Signal, cab. Clarification is requested exempting 
the CBTM display from this definition.
    Justification: CBTM is not an automatic cab signal system. CBTM is 
an overlay system designed for non-signaled territory and does not 
include any visual representation of signal aspects or indications.
    Section 240.127  Criteria for examining skill performance. Waiver 
is requested exempting the CBTM pilot program from the testing 
procedures in this section.
    Justification: The CBTM pilot is itself a test program. Criteria 
and procedures for CBTM performance evaluation do not yet exist; they 
will be determined during the program. Since CBTM is a limited test 
program, there is not justification for including it in our engineer 
certification procedures. A training program will be developed and 
implemented for engineers operating CBTM-equipped locomotives.
    Section 240.129  Criteria for monitoring operational performance of 
certified engineers. Waiver is requested exempting the CBTM pilot 
program from the performance monitoring procedures in this section.
    Justification: The CBTM pilot is itself a test program. Criteria 
and procedures for CBTM performance evaluation do not yet exist; they 
will be determined during the program.
    Interested parties are invited to participate in these proceedings 
by submitting written views, data, or comments. FRA does not anticipate 
scheduling a public hearing in connection with these proceedings since 
the facts do not appear to warrant a hearing. If any interested party 
desires an opportunity for oral comment, they should notify FRA, in 
writing, before

[[Page 46278]]

the end of the comment period and specify the basis for their request.
    All communications concerning these proceedings should identify the 
appropriate docket number (e.g., Waiver Petition Docket Number H-98-6) 
and must be submitted in triplicate to the Docket Clerk, Office of 
Chief Counsel, FRA, Nassif Building, 400 Seventh Street, S.W., Mail 
Stop 10, Washington, D.C. 20590. Communications received within 45 days 
of the date of this notice will be considered by FRA before final 
action is taken. Comments received after that date will be considered 
as far as practicable. All written communications concerning these 
proceedings are available for examination during regular business hours 
(9:00 a.m.--5:00 p.m.) at FRA's temporary docket room located at 1120 
Vermont Avenue, N.W., Room 7051, Washington, D.C. 20005.

    Issued in Washington, D.C. on August 24, 1998.
Grady C. Cothen, Jr.,
Deputy Associate Administrator for Safety Standards and Program 
Development.
[FR Doc. 98-23376 Filed 8-28-98; 8:45 am]
BILLING CODE 4910-06-P