[Federal Register Volume 67, Number 60 (Thursday, March 28, 2002)]
[Proposed Rules]
[Pages 14903-14905]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-7366]


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DEPARTMENT OF TRANSPORTATION

National Highway Traffic Safety Administration

49 CFR Part 571

[Docket No. NHTSA-02-11876]


Public Meeting on Motorcoach Safety Improvements

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

ACTION: Notice of public meeting; request for comments.

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SUMMARY: This notice announces that NHTSA will be holding a public 
meeting regarding improvements in passenger crash protection 
regulations for motorcoaches. Because Canada shares a common interest 
in the safety of passengers that ride in motorcoaches, this meeting is 
being held jointly in cooperation with Transport Canada. This notice 
invites persons to make presentations and submit written comments on 
the same subject.
    NHTSA and Transport Canada recognize that the occupant protection 
issues for motorcoaches differ significantly from those of passenger 
cars and trucks. Safety countermeasures that are cost effective for 
passenger vehicles may not necessarily be as effective in motorcoaches, 
particularity given travel comfort expectations associated with long 
distance travel by motorcoach. Therefore, it was decided to hold this 
public meeting to hear the views and comments from manufacturers, 
operators, users, and the public at large in order to be better 
informed of their specific needs, and to help us determine whether 
improvements in motorcoach passenger crash protection standards are 
warranted.

DATES: Public Meeting: NHTSA will hold a public meeting in Washington, 
DC on April 30, 2002, from 9:30 am until 5 pm at the below listed 
address.
    Written Comments: Written requests to speak at the public meeting, 
comments to be submitted for the public record, and suggestions for 
items to be included in the meeting agenda, should be received at 
Docket Management at the below address no later than April 29, 2002.

ADDRESSES: Public Meeting: The public meeting will be held at the 
National Transportation Safety Board's meeting room at 429 L'Enfant 
Plaza, SW., Washington, DC.
    Written Comments: Submit written comments to the DOT 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-02-11876) and two 
copies should be submitted. 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 DOT Docket Management System Web site 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.

FOR FURTHER INFORMATION CONTACT: Charles Hott, Office of 
Crashworthiness Standards, NPS-12, NHTSA, 400 7th Street, SW., 
Washington, DC 20590 (telephone 202-366-0247, Fax: 202-493-2739).

Crash Statistics

    Historically, motorcoaches (intercity buses) have been a relatively 
safe mode of transportation with about 10 fatalities per year (9 
passengers and 1 driver). However, in severe crashes and rollovers, 
motorcoach passengers may have not been provided sufficient crash 
protection against ejection from the motorcoach. Data from the Fatality 
Analysis Reporting Systems supplemented by the National Transportation 
Safety Board (NTSB) was used to obtain the following information about 
motorcoach fatalities. As shown in Table 1, during the period of 1991 
through 2000, there were 48 motorcoach crashes resulting in 101 
motorcoach fatalities (16 drivers and 85 passengers). Of the 16 driver 
fatalities, 12 percent (2) were ejected from the bus and 88 percent 
(12) were not ejected. Of the 85 passenger fatalities, 55 percent (47) 
were ejected from the bus and 45 percent (37)

[[Page 14904]]

were not ejected, (one passenger had an unknown ejection status).

                                    Table 1.--1991-2000 Motorcoach Fatalities
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                         48 Crashes                              Total       Ejected    Not ejected    Unknown
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Driver......................................................           16            2           14  ...........
Passenger...................................................           85           47           37            1
                                                             ---------------------------------------------------
      Total.................................................          101           49           51            1
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    A large number of motorcoach fatalities occur in crashes involving 
motorcoach rollover. In fact, during the 19912000 period, the 
motorcoach rolled over in 18 of the 48 fatal crashes resulting in 37 
fatalities (2 drivers and 35 passengers). Fatality data is shown in 
Table 2. Of the 35 passenger fatalities, 74 percent (26) were ejected 
from the bus and 26 percent (9) were not ejected. There were two driver 
fatalities, one ejected and one not ejected.

      Table 2.--1990-1999 Motorcoach Fatalities (Rollover Crashes)
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            18 Crashes                Total       Ejected    Not ejected
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Driver...........................            2            1            1
Passenger........................           35           26            9
                                  --------------------------------------
      Total......................           37           27           10
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    As shown in Table 3, there were 30 non-rollover crashes that 
produced 64 fatalities, 14 drivers and 50 passengers. Of the 50 
passenger fatalities, 42 percent (21) were ejected from the bus and 58 
percent (28) remained inside the bus. There were 14 driver fatalities. 
It should be noted that a single crash, where the bus did not rollover, 
produced 44 percent (22) of the passenger fatalities.

                        Table 3.--1990-1999 Motorcoach Fatalities (Non-Rollover Crashes)
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                   30 Crashes                          Total          Ejected       Not ejected       Unknown
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Driver..........................................              12               2              10  ..............
Passenger.......................................              50              21              28               1
                                                 ---------------------------------------------------------------
      Total.....................................              64              23              38               1
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National Transportation Safety Board Recommendations

    In September 1999, the National Transportation Safety Board (NTSB) 
made several safety recommendations to the agency regarding regulations 
for improvement of passenger crash protection, roof crush, and advance 
glazing research in motorcoaches. The Safety Recommendations are as 
follows:
    H-99-47--In 2 years, develop performance standards for motorcoach 
occupant protection systems that account for frontal impact collisions, 
side impact collisions, rear impact collisions, and rollovers.
    H-99-48--Once pertinent standards have been developed for 
motorcoach occupant protection systems, require newly manufactured 
motorcoaches to have an occupant crash protection system that meets the 
newly developed performance standards and retains passengers, including 
those in child restraint systems, within the seating compartment 
throughout the accident sequence for all accident scenarios.
    H-99-49--Expand your research on current advanced glazing to 
include its applicability to motorcoach occupant ejection prevention, 
and revise window glazing requirements for newly manufactured 
motorcoaches based on the results of this research.
    H-99-50--In 2 years, develop performance standards for motorcoach 
roof strength that provide maximum survival space for all seating 
positions and that take into account current typical motorcoach window 
dimensions.
    H-99-51--Once performance standards have been developed for 
motorcoach roof strength, require newly manufactured motorcoaches to 
meet those standards.
    In a March 3, 2000 letter to NTSB, the agency responded to NTSB 
with the following:
    In addressing this issue, NHTSA must also consider using its 
limited resources most efficiently. * * * The crashworthiness issues 
about motorcoaches the Safety Board raised deserve to be analyzed. 
Therefore, NHTSA will examine opportunities to share the cost of 
research with motorcoach manufacturers. The Safety Board's suggested 
time limitation of two years is not achievable given current 
resources. NHTSA asks that the Safety Board take under consideration 
that for many of the safety issues raised, appropriate industry 
standards are not in place on which to base regulations. Therefore, 
primary research needs to be performed prior to the issuance of any 
regulation.

    The motorcoach manufacturers have now formed a bus manufacturer's 
council to address safety issues regarding motorcoaches.

Issues

    This section discusses a range of issues and presents a series of 
questions for public comment to aid the agency in evaluating motorcoach 
safety protection and in determining potential improvements in 
motorcoach passenger crash protection standards.
    (1) NHTSA and Transport Canada recognize that a two-tier approach 
is needed to improve occupant protection in motorcoaches. The first 
tier is the prevention of the crash or rollover event

[[Page 14905]]

from occurring. There are technologies that are currently being 
developed for use in passenger cars, such as (i) smart cruise control, 
(ii) stability control, and (iii) equipment that warns the driver of 
inadvertent lane changes. Are there technologies being developed, or 
that can be developed, that will reduce the likelihood of a crash or 
rollover for use in motorcoaches?
    (2) The second tier is the mitigation of fatalities/injuries should 
a crash or rollover event occur. As stated earlier, passenger ejection 
appears to be a significant factor in severe motorcoach crashes and 
rollover events. Accident investigations reveal that large windows 
typically break away in a rollover, leaving large portals through which 
passengers can be ejected. We are interested in obtaining views on what 
structural changes in motorcoach design would be needed to mitigate 
ejection fatalities/injuries from motorcoach rollover events.
    (3) Mitigation of ejection fatalities/injuries can be done by 
limiting the size of the glazing materials, and also by upgrading the 
standard for window retention and emergency exits in motorcoaches so 
that the windows do not come open or break during crashes or rollover 
events. Limiting the size of the glazing would offer smaller portals 
for ejection and reduces the likelihood of ejection during a rollover 
event. What changes to the existing regulation on window retention and 
emergency exits would be necessary to limit the size of the glazing and 
upgrade the standard to make it more applicable to the type of buses 
manufactured today? Should the agency change the window retention 
requirements to require that the windows be manufactured from materials 
that will not breakaway during impacts?
    (4) Another possible improvement for motorcoaches may be to 
introduce a roof crush safety standard for motorcoaches. Such a 
standard could conceivably limit the size of the windows while 
providing additional structural support that could reduce intrusion 
into the passenger compartment during rollover events. What is the best 
approach to developing a roof crush standard that could conceivably 
maintain the size of the windows while providing additional structural 
support that could reduce intrusion into the passenger compartment 
during rollover events?
    (5) We are aware that new technology of side curtain airbags is 
currently being offered in passenger cars. Passenger car side curtains 
may reduce the likelihood of ejection of unrestrained passengers. Some 
aspects of this technology may be adaptable for use in motor coaches. 
We are interested in any comments regarding the use of this or other 
technologies to reduce motorcoach ejections.
    (6) Restraint systems are another possibility for mitigating 
ejection fatalities/injuries in motorcoach crashes. Technology was 
examined during NHTSA's school bus occupant protection research program 
to determine the feasibility for integrated lap/shoulder belts in 
school buses. What changes in the structure of the motorcoach would be 
necessary to ensure that the seats and seat belts have adequate 
strength to withstand impacts? What modifications to seat reclining 
features would be needed? What seat belt usage rates would be 
anticipated? What occupant size ranges would be necessary to 
accommodate for belt comfort and convenience?
    (7) Another area of concern is occupant fatalities/injuries that 
are caused by head impact into interior components. Motorcoaches have 
features such as seat back lap trays and television monitors that are 
not normally found in general passenger vehicles. We are seeking 
comments on how to bring about occupant interior impact safety 
improvements, while recognizing that these features are for the comfort 
of passengers on long trips.

Procedural Matters

    If you wish to make a presentation at the meeting, please contact 
Charles Hott at the above mailing address or telephone number by April 
26, 2002. If your presentation will include slides, motion pictures, or 
other visual aids, please so indicate and NHTSA will make the proper 
equipment available. Presenters should bring at least one copy of their 
presentation to the meeting so that NHTSA can readily include the 
material in the public record. Those speaking at the public meeting 
should limit the length of their presentations to 20 minutes. Due to 
time imitations, NHTSA may have to limit the number of presenters per 
organization. NHTSA will provide auxiliary aids to participants as 
necessary. Any person desiring ``auxiliary aids'' (e.g., sign language 
interpreter, telecommunications devices for deaf persons (TDDs), 
readers, taped texts, brailed materials, or large print materials and/
or a magnifying device), please contact Charles Hott.
    The agency intends to conduct the meeting informally to allow for 
maximum participation by all who attend. Interested persons may ask 
questions or provide comments during any period after a party has 
completed its presentation, on a time allowed basis as determined by 
the presiding official. If time permits, persons who have not requested 
time to speak, but would like to make a statement, will be afforded an 
opportunity to do so. The agency is interested in obtaining the views 
of its customers, both orally and in writing. An agenda for the meeting 
will be made based on the number of persons wishing to make oral 
presentations and will be available on the day of the meeting.
    If a commenter wishes to submit certain information under a claim 
of confidentiality, three copies of the complete submission, including 
purportedly confidential business information, should be submitted to 
the Chief Counsel, NHTSA, Room 5219, at the street address given above, 
and copies from which the purportedly confidential information has been 
deleted should be submitted to the Docket Section. A request for 
confidentiality should be accompanied by a cover letter setting forth 
the information specified in the agency's confidential business 
information regulation (49 CFR part 512).
    All comments received before the close of business on the comment 
closing date indicated above will be considered. Comments will be 
available for inspection in the docket. After the closing date, NHTSA 
will continue to file relevant information in the docket as it becomes 
available. It is therefore recommended that interested persons continue 
to examine the docket for new material.

    Authority: 49 U.S.C. 322, 30111, 30115, 30117, and 30166; 
delegation of authority at 49 CFR 1.50.

    Issued: March 21, 2002.
Stephen R. Kratzke,
Associate Administrator, for Safety Performance Standards.
[FR Doc. 02-7366 Filed 3-27-02; 8:45 am]
BILLING CODE 4910-59-P