[Federal Register Volume 66, Number 122 (Monday, June 25, 2001)]
[Proposed Rules]
[Pages 33657-33660]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 01-15814]


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DEPARTMENT OF TRANSPORTATION

National Highway Traffic Safety Administration

49 CFR Part 571

[Docket No. NHTSA 2001-8953]


Monitoring the Performance of Advanced Air Bags and Developing 
Data for Potential Future Air Bag Rulemakings

AGENCY: National Highway Traffic Safety Administration (NHTSA), DOT.

ACTION: Request for comments.

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SUMMARY: This document requests comments on NHTSA's plan for monitoring 
the performance of advanced air bags and developing data for potential 
future air bag rulemakings. The document presents the agency's proposed 
actions in monitoring the real-world crash performance of advanced air 
bags, performing compliance testing, conducting research to evaluate 
the performance of advanced air bags, and evaluating the costs of 
advanced air bag systems. NHTSA seeks public review and comment on the 
planning document. Comments received will be evaluated and 
incorporated, as

[[Page 33658]]

appropriate, into the planned agency activities.

DATES: Comments must be received no later than August 9, 2001.

ADDRESSES: Submit written comments to the Docket Management System, 
U.S. Department of Transportation, PL 401, 400 Seventh Street, SW., 
Washington, DC 20590-0001. Comments should refer to the Docket Number 
(NHTSA 2001-8953) and be submitted in two copies. If you wish to 
receive confirmation of receipt of your written comments, include a 
self-addressed, stamped postcard.
    Comments may also be submitted to the docket electronically by 
logging onto the Docket Management System website at http://dms.dot.gov. Click on ``Help & Information'' to obtain instructions for 
filing the comment electronically. In every case, the comment should 
refer to the docket number.
    The Docket Management System is located on the Plaza level of the 
Nassif Building at the Department of Transportation at the above 
address. You can review public dockets there between the hours of 9:00 
a.m. and 5:00 p.m., Monday through Friday, except Federal holidays. You 
can also review comments on-line at the DOT Docket Management System 
website at http://dms.dot.gov.

FOR FURTHER INFORMATION CONTACT: William H. Walsh, Office of Plans and 
Policy, NPP-01, National Highway Traffic Safety Administration, Room 
5208, 400 Seventh Street, SW, Washington, DC 20590. Telephone: 202-366-
2550.

SUPPLEMENTARY INFORMATION:

Background

    The Final Rule and Interim Final Rule for Advanced Air Bags (65 FR 
30680, May 12, 2000), amended our occupant crash protection standard to 
require that future air bags be designed to create less risk of serious 
air bag-induced injuries than current air bags, particularly for small 
statured adults and young children; and provide improved frontal crash 
protection for all occupants, by means that include advanced air bag 
technology. To achieve these goals, it added a wide variety of new 
requirements, test procedures, and injury criteria, using an assortment 
of new dummies. The rule will ensure that advanced air bag technologies 
are installed across the full spectrum of future fleets of motor 
vehicles. As a result, we expect that the air bags in these newer 
vehicles will be even more effective than the current redesigned air 
bags in saving lives. At the same time, we also expect that these newer 
air bags will be much less likely than those redesigned air bags to 
cause deaths or serious injuries.
    The provisions of this rule, particularly the maximum test speed 
for the unbelted rigid barrier test, reflect the uncertainty associated 
with simultaneously achieving the twin goals of the Transportation 
Equity Act for the 21st Century (TEA-21). This uncertainty led us to 
take an approach that best assures improved air bag protection for 
occupants of all sizes, without compromising efforts to reduce the 
risks of injury to vulnerable occupants, including children and small 
statured adults seated very close to air bags and out-of-position 
occupants. In light of that uncertainty, we selected the lower of two 
proposed speeds as the maximum test speed for the unbelted rigid 
barrier crash test and issued that part of the rule as an interim final 
rule. To resolve that uncertainty, we are planning a multi-year effort 
to obtain additional data.

Monitoring Approach

    In the Preamble for the Final Rule and Interim Final Rule, NHTSA 
discussed monitoring the performance of advanced air bags and potential 
future rulemakings. The overall goal is to monitor the performance of 
advanced air bags: (1) in low speed crashes with at-risk populations 
and (2) in high speed crashes (particularly those involving unbelted 
front seat occupants) to support future decision making on the high 
speed unbelted test requirement. This paper provides a general 
discussion of the agency's plans for accomplishing these tasks.
    In the Preamble, NHTSA identified the following approaches:
     Evaluate real-world crash performance of advanced air bags 
in both low and high speed crashes.
     Perform compliance testing to assure safe performance of 
advanced systems and consider publishing an annual compliance margin 
report.
     Conduct research to:
    (1) Evaluate the performance of advanced systems, including 
unbelted barrier tests at various speeds;
    (2) Continue research into the technology of advanced air bags; and
    (3) Conduct biomechanics research on the correlation between Injury 
Assessment Research Values (IARV) and real world injuries.
     Monitor the introduction, public acceptance, and 
effectiveness of technology to encourage seat belt use.
     Evaluate the costs of advanced air bag systems.

I. Real World Performance of Advanced Air Bags

    We are considering various approaches to monitor how well advanced 
air bags are protecting occupants of different sizes and ages, at 
different speeds, belted/child restraint and unbelted. The approach 
will be to compare the performance of advanced air bag systems with the 
performance of previous generation air bag systems. It is important to 
understand that significant introduction of vehicles certified to the 
advanced air bag standard will not occur until Model Year 2004 when 35% 
of the new vehicle fleet must be so equipped. At the end of that model 
year, less than 5% of the on-road fleet will be equipped with advanced 
air bag systems. At the end of the phase-in Model Year 2006 less than 
20% of the on-road fleet will be equipped with advanced air bag 
systems. Unless there are significant changes in the effectiveness of 
the advanced air bag systems, it will be several years later before any 
statistical understanding of system effectiveness will be possible. In 
the interim, NHTSA will continue to support special studies of crash 
experience and rely on anecdotal and engineering analysis to address 
real world performance issues.

Data Sources

     We are planning to develop a database that describes air 
bag design features by make/model/model year; registration data; and 
key performance attributes (e.g., dual speed inflators, occupant 
position sensors, deployment thresholds) of advanced air bag systems. 
Manufacturers that submit information to the agency and wish to seek 
confidential treatment for the information must submit a request for 
confidential treatment in accordance with the procedures set forth in 
the agency's regulations governing Business Confidential Information, 
49 CFR Part 512. Any information contained in this database that is 
entitled to confidential treatment will not be released to the public.
     In-depth crash data will be available from the National 
Automotive Sampling System (NASS), the Special Crash Investigation 
(SCI) Program, and the Crash Injury Research and Engineering Network 
(CIREN). These databases can be used for statistical analysis and 
engineering analysis of air bag system performance. A key initiative 
under development is to work with manufacturers to secure data from on-
board crash recorders, which would improve our understanding of crash 
severity and pre-crash maneuvers.

[[Page 33659]]

     NHTSA has already instituted two special studies related 
to air bags. The Redesigned Air Bag Special Study was begun in October 
1997 to collect data on crashes involving depowered air bags (air bags 
which have been redesigned in response to an amendment to FMVSS 208 in 
1997 that authorized certification through use of a sled test rather 
than a crash test into a rigid barrier). The objective of this study is 
to collect data on crashes of high interest (children, out of position 
occupants, high damage severity, and multiple injured occupants) 
involving vehicles equipped with a redesigned air bag system in which 
the air bag has deployed. In September 1999, the NHTSA initiated the 
Advanced Occupant Protection Special Study to collect data on crashes 
involving MY 2000 (and later) vehicles equipped with air bag systems 
with certain advanced design features (e.g., dual speed inflators, 
weight sensors, seat position sensors).
     Databases, without in-depth crash investigation data, such 
as the Fatality Analysis Reporting System (FARS) and the Crash Outcome 
Data Evaluation System (CODES) will be evaluated for statistical 
analysis of system performance.
     Industry data will be used as it becomes available. The 
automobile manufacturers have stated their intention to supplement 
NHTSA data with a significant investment in crash reconstruction data. 
Insurance industry data will also be used as available.

Analytic Agenda

     Low Speed Crashes (0-25 mph delta V): The primary interest 
in low speed crashes will be focused on out-of-position occupants. We 
will try to understand how dual speed air bags, low risk deployment air 
bags, various occupant position/size sensors, deployment thresholds, 
restraint use and overall system designs affect the occurrence and 
severity of injuries at different crash severities under 25 mph delta 
V. We will be looking at drivers and passengers considering their size 
and age and restraint usage. We will also be looking at small children 
and the type of child restraint used. We will also be evaluating in-
position occupants in a similar fashion.
     Higher Speed Crashes (25 mph delta V and greater): The 
analytic approach will be similar in the high speed regime, but the 
focus will be different. We will attempt to understand how the 
deployment threshold design, the ``power'' in the second stage of dual 
speed advanced air bags, the position of the driver/passenger, and 
restraint usage contribute to system performance. A key issue will be 
how advanced air bags protect unrestrained occupants in higher speed 
crashes. Again, we will be looking at drivers and passengers 
considering their size and age.

II. Compliance Testing

    NHTSA will conduct a significant amount of compliance testing of 
vehicles certified to the advanced air bag requirements (Model Year 
2004 when 35% of the new vehicle fleet must be certified). Data from 
this testing program will be integrated with research tests to monitor 
the performance of advanced air bag systems. We will consider 
publishing an annual report, using manufacturer test data as well as 
NHTSA compliance tests, indicating the extent to which vehicles exceed 
the performance requirements in the standard. We will first evaluate 
whether consumers could effectively use this information as an 
indicator of the relative performance of restraint systems in different 
vehicles along with other consumer information distributed by this 
agency, such as results from the New Car Assessment Program (NCAP).

Data Sources

    NHTSA routinely tests vehicles to the test procedures specified in 
the federal motor vehicle safety standards. We also routinely receive 
certification data from manufacturers as we develop our test program 
for each year. We can also request information about other testing 
conducted by manufacturers, in addition to the tests used for 
certification purposes. Manufacturers that submit information to the 
agency and wish to seek confidential treatment for the information must 
submit a request for confidential treatment in accordance with the 
procedures set forth in the agency's regulations governing Business 
Confidential Information, 49 CFR Part 512. Specific tests include:
     Low speed tests (Static Out-of-Position, Static 
Suppression).
     High speed tests (25 mph Offset Deformable Barrier--Belted 
5th female, 25 mph Rigid Barrier--Unbelted 5th female and 50th male, 30 
mph Rigid Barrier--Belted 5th female, 35 mph Rigid Barrier--Belted 50th 
male starting in MY 2007).

III. Research Related to Advanced Air Bag Systems

a. Research Testing

    We plan to conduct research to evaluate advanced air bag systems 
introduced into the fleet.
    Tests on newly introduced systems will be performed to provide data 
for potential future rulemakings and to provide information that will 
help monitor the progress of the industry in maximizing occupant 
protection. A coordinated research program will be developed which is 
complementary to the testing conducted in our New Car Assessment 
Program (NCAP) and our compliance program. We plan to evaluate how well 
advanced air bags are protecting occupants of different sizes, at 
different speeds, belted/child restraint and unbelted in both passenger 
cars and light trucks. Key issues include: (1) the appropriate speed 
for the unbelted rigid barrier test, which is currently set at 25 mph; 
(2) raising the speed for restrained testing with the 5% dummy to 35 
mph; and (3) evaluating design approaches for achieving low risk 
deployments for out-of-position occupants. This research effort will 
complement the analysis of real world performance of air bags described 
in Section I.
Data Sources
    Tests being considered include:
     15-20 mph Rigid Barrier Tests--Unbelted 5th female and 
possibly 3 and 6 year old.
     25-35 mph Rigid Barrier--Unbelted 5th female and 50th 
male.
     35 mph Rigid Barrier--Belted 5th female.
     37.5-40 mph Offset Deformable Barrier--Belted 5th female 
and 50th male.
     A variety of tests with the 95th male dummy.

B. Research Into the Technology of Future Advanced Air Bags

    The agency plans to conduct research on advanced air bag technology 
that would be considered for installation 3-5 years into the future.
     Survey suppliers for ideas about long range enhancements 
to air bag technologies and their willingness to participate in 
cooperative research agreements
     Select technologies of interest and appropriate vendors to 
develop technology; e.g. advanced sensors, dynamic suppression, 
advanced algorithms, tailored belt loading, etc.
     Test and evaluate advanced technology and compare it to 
the performance of advanced air bag systems evaluated in testing 
described in Section IIIa.

C. Biomechanics Research on Injury Assessment Research Values (IARV)

    The agency will conduct biomechanics research to confirm the 
relationship between IARVs and real world injuries. We also will 
conduct

[[Page 33660]]

additional validation of dummies/injury criteria (especially neck). We 
also plan to do further work on pediatric injury criteria through 
scaling for the full range of child dummies. Data sources include 
CIREN, NASS and computer modeling.

IV. Monitor Education Programs and Technology To Increase Seat Belt 
Use

    The agency will continue its public education campaigns. We will 
monitor the effectiveness of the campaign that children 12 years of age 
and younger should ride in the back seat. Educational information will 
be developed and disseminated on how different advanced air bag systems 
work. Consumer information will continue to be disseminated through a 
variety of media (e.g. Internet, Hotline, consumer advisories, etc.). 
We will also monitor the introduction by manufacturers of technology to 
encourage belt use.

Data Sources

     Use the National Occupant Protection Use Survey (NOPUS) 
and analyses of various crash data sources to evaluate seating position 
of children by age and air bag system;
     Monitor attitudes toward advanced air bag systems and 
misconceptions on their performance using telephone surveys, Hotline 
contacts, news articles and focus groups;
     Identify, using an industry survey, those seat belt 
systems designed to encourage belt use. Monitor seat belt use for these 
systems using observation studies and crash data.

V. Evaluate Costs of Advanced Air Bag Systems

    We plan to monitor the cost of air bag systems using market 
surveys, information from manufacturers, and special engineering cost 
studies. These data will be used in subsequent analysis of the costs 
and benefits of the advanced air bag rule.

How Do I Prepare and Submit Comments?

    Your comments must be written and in English. To ensure that your 
comments are correctly filed in the Docket, please include the Docket 
number of this document (NHTSA 2001-8953) in your comments.
    Please send two paper copies of your comments to Docket Management 
or submit them electronically. The mailing address is U.S. Department 
of Transportation Docket Management, Room PL-401, 400 Seventh Street, 
SW., Washington, DC 20590. If you submit your comments electronically, 
log onto the Docket Management System website at http://dms.dot.gov and 
click on ``Help & Information'' or ``Help/Info'' to obtain 
instructions.

How Can I Be Sure That My Comments Were Received?

    If you wish Docket Management to notify you upon its receipt of 
your comments, enclose a self-addressed, stamped postcard in the 
envelope containing your comments. Upon receiving your comments, Docket 
Management will return the postcard by mail.

How Do I Submit Confidential Business Information?

    If you wish to submit any information under a claim of 
confidentiality, send three copies of your complete submission, 
including the information you claim to be confidential business 
information, to the Chief Counsel, NCC-01, National Highway Traffic 
Safety Administration, Room 5219, 400 Seventh Street, SW., Washington, 
DC 20590. Include a cover letter supplying the information specified in 
our confidential business information regulation (49 CFR Part 512).
    In addition, send two copies from which you have deleted the 
claimed confidential business information to Docket Management, Room 
PL-401, 400 Seventh Street, SW., Washington, DC 20590.

Will the Agency Consider Late Comments?

    In our response, we will consider all comments that Docket 
Management receives before the close of business on the comment closing 
date indicated above under DATES. To the extent possible, we will also 
consider comments that Docket Management receives after that date.
    Please note that even after the comment closing date, we will 
continue to file relevant information in the Docket as it becomes 
available. Further, some people may submit late comments. Accordingly, 
we recommend that you periodically check the Docket for new material.

How Can I Read the Comments Submitted by Other People?

    You may read the comments by visiting Docket Management in person 
at Room PL-401, 400 Seventh Street, SW., Washington, DC from 10:00 a.m. 
to 5:00 p.m., Monday through Friday.
    You may also see the comments on the Internet by taking the 
following steps:
    1. Go to the Docket Management System (DMS) Web page of the 
Department of Transportation (http://dms.dot.gov).
    2. On that page, click on ``search.''
    3. On the next page (http://dms.dot.gov/search) type in the four-
digit Docket number shown at the beginning of this document (8953). 
Click on ``search.''
    4. On the next page, which contains Docket summary information for 
the Docket you selected, click on the desired comments. You may also 
download the comments.

    Authority: 49 U.S.C. 30111, 30117, 30168; delegation of 
authority at 49 CFR 1.50 and 501.8.

William H. Walsh,
Associate Administrator for Plans and Policy.
[FR Doc. 01-15814 Filed 6-22-01; 8:45 am]
BILLING CODE 4910-59-P