[Federal Register Volume 85, Number 142 (Thursday, July 23, 2020)]
[Notices]
[Pages 44571-44575]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-15906]


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DEPARTMENT OF TRANSPORTATION

Federal Transit Administration

[Docket No. FTA-2018-0010]


National Transit Database Reporting Changes and Clarifications 
AGENCY: Federal Transit Administration (FTA), Transportation (DOT).

ACTION: Final notice; response to comments.

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SUMMARY: This notice responds to comments received and finalizes 
proposed changes and clarifications to the National Transit Database 
(NTD) reporting requirements published in the Federal Register on April 
9, 2019 (ID: FTA-2018-0010).

DATES: FTA will implement some changes and clarifications in Report 
Year 2019 and will implement other changes in Report Year 2020 or 
Report Year 2021.

FOR FURTHER INFORMATION CONTACT: John D. Giorgis, FTA Office of Budget 
and Policy, (202) 366-5430 or [email protected].

SUPPLEMENTARY INFORMATION:

Table of Contents

A. Background and Overview
B. Additional Types of Service
    a. New Type of Service To Distinguish Demand Response Taxi 
Service
    b. New Type of Service Classification for Demand Responsive 
Service Provided by Transportation Network Companies
C. Changes to the A-30--Revenue Vehicle Asset Forms
    a. Add New Data Element To Identify Automated Vehicles
    b. New Reporting on Safety Equipment on Rail Transit Vehicles
D. Changes to the A-20--Adjust the Reporting Categories for Special 
Trackwork
E. Changes to the D-10--New Reporting on the Use of Automatic 
Passenger Counters
F. Changes to the FFA-10--New Reporting on Vehicle Revenue Miles by 
State for Urbanized Area Reporters
G. Changes to Safety Event Reporting
    a. Clarification of Reportable Attempted Suicides
    b. Modified Data Collection on Vehicles Involved in Reportable 
Safety Events
    c. Additional Information on Drug and Alcohol Post-Accident 
Testing
H. Clarification on Reporting Service Information on a Temporary Bus 
Bridge
I. Clarification of Incidental Use for Transit Asset Reporting
J. Establish Separate Mode Reporting for Geographically and Resource 
Separated Modes
K. Clarification on Commuter Service Survey Standards
L. Clarification on Reporting Linear Miles and Track Miles to the 
Asset Inventory
M. Clarification of Rural Financial Data Reporting Requirement

A. Background and Overview

    Pursuant to 49 CFR 630.4(a), each applicant for and beneficiary of 
FTA assistance must comply with the applicable National Transit 
Database (NTD) reporting requirements, as set forth in the current 
editions of the NTD Reporting Manuals and Uniform System of Accounts 
(USOA) (https://www.transit.dot.gov/ntd/uniform-system-accounts-usoa). 
These reference documents are subject to periodic revision.
    Pursuant to 49 CFR 630.4(b), the Federal Transit Administration 
(FTA) published a notice in the Federal Register on April 9, 2019 (84 
FR 14189) seeking public comment on several changes and clarifications 
to the NTD reporting requirements contained in these reference 
documents. The comment period closed on June 10, 2019. FTA received 
seventy-three (73) comments from twenty-nine (29) unique commenters.
    FTA intended to implement the proposed changes in Report Year 2019; 
however, due to the timing of the notice's publication, FTA will 
implement some changes finalized in this Federal Register notice in 
Report Year 2019, and will defer others to Report Years 2020 or 2021. 
Implementation details are included within the responses. Following is 
a summary of the comments received with FTA responses.
    This document on its own does not have the force and effect of law 
and is not meant to bind the public in any way. This document is 
intended to provide clarity to the public regarding existing 
requirements under the law. In addition, FTA will update the NTD Policy 
Manual to include appropriate guidance disclaimer language, pursuant to 
49 CFR 5.29.

B. Additional Types of Service

a. New Type of Service To Distinguish Demand Response Taxi Service

    Two comments expressed concern about how the new proposed types of 
service would impact Americans with Disabilities Act (ADA) or 
paratransit reporting. Both commenters stated that the new taxi type of 
service must account for ADA/paratransit taxi trips. One commenter 
stated that ``the definition of taxi service in the proposed changes. . 
.must be clarified to ensure that taxi paratransit trips. . .can 
continue to be reported through the NTD.'' Another commenter expressed 
concern that the ``proposed revisions suddenly eliminates [sic] 
transit-sponsored taxi-based subsidy programs'' for ADA paratransit 
customers from reporting to the NTD.
    FTA Response: FTA reiterates that it is not changing any reporting 
eligibilities or requirements. If a transit system uses a partnership 
with a taxi company to provide ADA complimentary paratransit service, 
then that service can be reported to the NTD through the new type of 
service. However, taxi-based subsidy programs are already excluded from 
the NTD, as they do not meet the definition of public transportation, 
as they are not shared-ride.

b. New Type of Service Classification for Demand Responsive Service 
Provided by Transportation Network Companies

    FTA received 19 comments on the proposal to create two new types of 
service. Five commenters supported the changes as proposed. One 
commenter stated that collecting these data will help all levels of 
government develop a better understanding of the role transportation 
network companies (TNCs) play in transit service, how effective they 
are in delivering first mile/last mile service, and whether TNCs 
augment or compete with traditional public transit service.

[[Page 44572]]

    Three commenters directly opposed the inclusion of service provided 
by TNCs in the NTD. All three commenters expressed concerns about the 
impact on FTA's formula funding programs. One commenter expressed 
``serious concerns that the FTA is setting the table to normalize the 
use of transportation network companies in cooperation with or as a 
substitute for public transportation without fully considering the 
effects of this policy on safety, the fair distribution of federal 
funds, and ensuring a level playing field for workers.'' The commenter 
further stated that FTA should not implement this change ``without 
accounting for the limitations of the service (TNCs) provide and the 
true costs of those services when compared to transit buses.'' Two 
commenters stated that the vehicle revenue miles provided by TNCs 
should not be counted in the same way as bus vehicle revenue miles in 
the federal formula programs. The commenters further asserted that FTA 
should not implement this change until Congress deliberates 
reauthorization of the surface transportation programs.
    Six comments were submitted related to the proposed data structure. 
One commenter suggested that service provided by a TNC should be 
reported as a new mode rather than as a new type of service. Two 
commenters suggested that the two proposed types of service should be 
consolidated into one new type of service. Three commenters recommended 
including microtransit such as scooters and bikeshares in NTD 
reporting. Two commenters suggested that microtransit should be added 
as a new type of service.
    FTA Response: In response to comments opposing the proposal, FTA 
clarifies that it did not propose changing the reporting eligibility 
for demand response services. Rather, FTA proposed a new data structure 
for collecting information on demand response services that are already 
eligible to be reported to the NTD under existing law. The NTD collects 
data on services that meet the definition of public transportation in 
Federal law (49
    U.S.C. 5302(14)). These data on public transportation services are 
then used in the apportionment of formula grants by FTA. FTA intends to 
permit service provided by TNCs that meets the statutory definition of 
public transportation to be reported to the NTD and included in the 
data sets used for the apportionment of formula grants. Likewise, 
because all public transportation service funded through the Urbanized 
Area Formula Program must be reported to the NTD pursuant to 49 U.S.C. 
5335(b), FTA cannot prohibit these services from being reported to the 
NTD without also prohibiting the use of Urbanized Area Formula Program 
funds on these services. Thus, FTA does not believe that it is prudent 
to defer this issue until Congress debates a new surface transportation 
reauthorization bill. These services are being provided now, and FTA 
believes that the NTD must have an appropriate means of accounting for 
these services in the present.
    Further, there is no statutory basis for including microtransit 
services in the NTD for inclusion in the formula programs, as they do 
not meet the statutory definition of public transportation as they are 
not shared-ride services. Additional information about demand response 
services provided by TNCs that meet the definition of public 
transportation, and thus may be reported to the NTD, can be found in 
Appendix E of the NTD Policy Manual. (https://www.transit.dot.gov/ntd/manuals).
    FTA does not have the statutory authority to count TNC vehicle 
revenue miles different from other bus vehicle revenue miles. Current 
law divides all public transportation vehicle revenue miles into either 
``bus vehicle revenue miles'' or ``fixed guideway vehicle revenue 
miles.'' See 49 U.S.C. 5336. The category of ``bus vehicle revenue 
miles'' already includes miles operated by the fixed-route bus mode, as 
well as the demand response mode and the vanpool mode. FTA doesn't have 
a statutory basis for treating a demand response vehicle revenue mile 
operated through an agreement with a TNC any differently than a demand 
response vehicle revenue mile operated by a transit agency's own 
employees.
    After considering the comments received, FTA continues to believe 
that creating two new types of service is the best way to collect and 
track service provided by taxi companies and TNCs. Creating two new 
types of service will allow data users to quickly identify and compare 
these services across transit agencies and will also provide a clear 
basis for comparison among traditional directly-operated and contracted 
demand response services. These two new types of service will be 
implemented in report year 2020 (beginning in September 2020).
    Two commenters requested additional clarification on when TNC-
provided service is considered public transportation and may be 
reported to the NTD. One commenter stated that NTD reporting should 
continue to be done by the transit agencies and not by the TNCs.
    FTA Response: FTA reiterates that it is not changing any reporting 
eligibilities or requirements. When a transit agency enters into a 
purchased transportation agreement with a TNC, it is the transit agency 
that reports the service. If the TNC is providing public transportation 
service on its own, without a purchased transportation agreement with a 
transit agency, then the TNC reports the service on its own. The 
definition of a purchased transportation agreement can be found in the 
existing NTD Policy Manual.
    FTA also received several comments that were related to this 
proposal but were not directly relevant to the request. In several 
cases, these comments misstated current NTD reporting requirements. For 
the sake of clarity, a summary of these comments and any necessary 
clarifications are included in this response.
    Three commenters expressed concerns over differing safety 
requirements for TNC providers versus traditional public transit 
providers. One commenter expressed concern that the taxi exemption will 
``create an environment in which transit operators are held to a 
different safety standard than operators contracted under TNC 
service.'' A second commenter requested clarification on the taxi 
exemption as it relates to drug testing for TNC services. The commenter 
further asserted that when TNCs ``clearly stand in the shoes of the 
transit provider, they should be subject to Part 655 requirements.''
    FTA Response: This notice does not impact safety standards or 
requirements. FTA is not providing an ``exemption'' to TNC providers. 
This notice simply articulates how a transit agency that partners with 
a TNC to provide public transportation service can meet its NTD 
reporting obligation for that service.
    One commenter challenged FTA's current interpretation of ``shared-
ride'' service. FTA currently requires all demand response modes to use 
a dispatch service to attempt to share all ride requests. 49 CFR 
630.4(a). The commenter argued that FTA should ``adopt a more holistic 
approach . . . for demand responsive services by designating the 
performed services, rather than the potential for sharing of the 
dispatch system, as the fundamental standard for evaluating NTD 
reporting eligibility.'' In other words, all trips sponsored by a 
public transit agency should be reportable to the NTD even if they are 
trips on a subsidized single-occupancy taxi service used for first-
mile/last-mile service.
    FTA Response: FTA disagrees. FTA has a long-standing policy that 
vouchers

[[Page 44573]]

or subsidies for single-person taxi service are not public 
transportation because they are not shared-ride services, even when 
provided by an operator of public transportation services. The same 
principle would apply to vouchers of subsidies for single-person TNC 
service. Public transportation is defined in Section 5302(14) as being 
``shared-ride'' service, and FTA cannot change this definition 
administratively.
    After considering the comments received, FTA will adopt the 
proposed changes to create the two new types of service. These changes 
will be implemented in Report Year 2020 (beginning in September 2020).

C. Changes to the A-30 Revenue Vehicle Asset Forms

a. Add New Data Element To Identify Automated Vehicles

    FTA received four comments related to reporting automated vehicles. 
Two commenters supported this change as proposed. One commenter noted 
that the SAE standard referenced in the notice is ``copyrighted by SAE 
and distribution within an organization is prohibited without special 
license.'' The commenter suggested that FTA should provide a more 
comprehensive definition in the NTD glossary to ``avoid 
misinterpretation.'' A final commenter stated that automated bus 
service should only be reported as ``fixed guideway'' service to the 
NTD if it is operated in dedicated right-of-way.
    FTA Response: FTA concurs that the use of an automated vehicle does 
not impact whether the fixed-route bus service should be reported as 
``fixed guideway'' or not. In response to the comment noting that the 
SAE standard is under copyright by SAE, FTA amends the definition of 
automated vehicle to align with the description of SAE Level 4 
automation provided by the National Highway Traffic Safety 
Administration (NHTSA): A vehicle that can itself perform all driving 
tasks and monitor the driving environment in certain circumstances. FTA 
will adopt these changes effective in Report Year 2019; effective 
August 31, 2019.

b. New Reporting on Safety Equipment on Rail Transit Vehicles

    FTA received three comments related to reporting on safety 
equipment on rail transit vehicles. One commenter asked for a 
clarification on whether these reporting criteria apply to commuter 
rail modes regulated by the Federal Railroad Administration (FRA). A 
second commenter stated that this reporting would be a significant 
burden because their data is not currently kept at this level of 
detail. The third commenter noted that the American Public 
Transportation Association (APTA) Standards identified in the notice 
have changed. The commenter requested clarification on how FTA will 
account for changing standards for NTD reporting in the future.
    FTA Response: FTA clarifies that these reporting requirements will 
not apply to rail modes that are regulated by the FRA.
    In response to the request for clarification regarding changing 
APTA Standards, FTA will clarify in each edition of the NTD Reporting 
Manual the date of the APTA Standard that is in effect at the time the 
NTD Reporting Manual is published. Transit systems can then report 
whether their vehicles carry this equipment based on the date of the 
APTA Standard listed in the Reporting Manual. FTA believes that keeping 
track of the safety equipment present on rail vehicles is a sound 
business practice and believes that that the cost of tracking safety 
equipment will ultimately be de minimis, as the NTD will retain this 
information year after year. FTA will implement these changes to the 
asset inventory for the 2020 Report Year.

D. Changes to the A-20--Adjust the Reporting Categories for Special 
Trackwork

    FTA received three comments related to adjusting the reporting 
categories for special trackwork. All commenters supported updating the 
special trackwork categories. One agency requested clarification on 
whether special trackwork reporting only applies to main line track. A 
second commenter requested that special trackwork categories be 
modified to align with the naming conventions used by their agency.
    FTA Response: FTA clarifies that all special trackwork, including 
main line, yard, and pocket track, are reportable to the NTD.
    After consultation with industry experts, FTA believes that the 
proposed categories represent the most common track-naming conventions 
used in the industry. FTA will implement this change, as proposed, 
effective immediately.

E. Changes to the D-10--New Reporting on the Use of Automatic Passenger 
Counters

    FTA did not receive any comments on the proposed change regarding 
reporting on the use of automatic passenger counters (APC). FTA will 
implement its proposal and begin capturing the use of APCs on the D-10 
effective immediately.

F. Changes to the FFA-10--New Reporting on Vehicle Revenue Miles by 
State for Urbanized Area Reporters

    FTA received two comments on the proposal to collect vehicle 
revenue miles (VRM) by state for urbanized area reporters. One transit 
agency expressed concern that reporting VRM by state may impact its 
funding. The commenter further stated that reporting in this manner 
would require a route by route analysis and requested that this 
reporting be considered ``optional.''
    A second agency stated that reporting VRM by state would be a 
significant burden because most of its service is operated within a 
single state. The agency requested that FTA provide an exemption for 
agencies that are primarily operating within a single state with only a 
negligible amount of service in a second state.
    FTA Response: FTA is sensitive to concerns about increasing 
reporting burden. Both respondents indicated that reporting their 
service by state would require them to change their current data 
collection methods. As such, FTA withdraws this proposal and will not 
implement it. Therefore, FTA will not revise reporting to include VRM 
by state.

G. Changes to Safety Event Reporting

a. Clarification of Reportable Attempted Suicide

    FTA received four comments on the proposed clarification of the 
definition of reportable attempted suicides. One agency expressed 
concern about the requirements that both the attempt and the intent 
must be verified by a third party. It stated that it is ``unlikely to 
have a police report to provide in a timely manner.'' A second agency 
recommended including ``apparent'' or ``perceived'' before 
``intention'' and ``intent'' in the clarification of attempted suicide. 
A third commenter stated that an agency ``may not even notice, 
rendering it difficult if not impossible to report'' on events 
resulting in an individual being transported for mental health 
evaluation. A fourth commenter stated that attempted suicides should 
only be reported if there is an injury; incidents of an individual 
being transported for mental health evaluation should not be reported 
to the NTD.
    FTA Response: FTA clarifies that under this proposal, a major event 
report is only necessary for an attempted suicide that results in a 
physical injury. 49 CFR 630.4(a). FTA further clarifies that third-
party

[[Page 44574]]

verification of the event may be in the form of eyewitness statements; 
a police report is not required.
    In response to the request to include ``apparent'' or ``perceived'' 
before ``intention'' and ``intent,'' FTA amends the definition of 
attempted suicide as follows: Self-inflicted physical harm where death 
does not occur, but the intention of the person was to cause a fatal 
outcome. Per regulation, the person's attempt and intent, whether 
perceived or stated, must be accounted for by a third party in the form 
of police reports, security personnel reports, or other eyewitness 
statements. The NTD report should identify the actions of the person in 
carrying out the apparent suicide attempt.
    If a person is transported away from the scene for mental health 
evaluation following an event meeting this definition of attempted 
suicide, then per regulation a major event report in the NTD is 
required, even if the physical injuries alone were not sufficient to 
require medical transportation away from the scene. On the other hand, 
if a person is transported away from the scene for mental health 
evaluation without any self-inflicted physical harm occurring, then per 
regulation the event only needs to be reported on the Non-Major Monthly 
Summary Report. FTA will implement this change effective immediately.

b. Modify Data Collection on Vehicles Involved in Reportable Safety 
Events

    FTA received two comments related to modifying data collection on 
vehicles involved in reportable safety events. One agency supported 
this proposal but suggested that individual vehicles should not be 
identified. A second agency noted that it would be unable to link 
vehicles that have not yet been included in the asset inventory.
    FTA Response: FTA clarifies that this change would not necessarily 
identify individual vehicles. Rather, this change would indicate the 
reported vehicle fleet that contains the vehicle involved in a major 
safety event. The individual vehicle would be identifiable only if the 
reported vehicle fleet in the vehicle inventory only contains a single 
active vehicle. In instances where a vehicle is involved in a major 
safety event, but the fleet has not yet been added to the asset 
inventory, agencies would indicate that the fleet does not yet exist in 
the inventory, and they would be prompted to enter the basic vehicle 
information currently captured in the major events safety form. FTA 
will implement this change effective immediately.

c. Add Information on Drug and Alcohol Post-Accident Testing

    FTA received four comments related to the proposal to include 
information on drug and alcohol post-accident testing. Only three of 
these comments are directly salient to this proposal and are included 
in this response. One professional association stated that this 
proposal is duplicative and burdensome. One agency supported this 
proposal so long as no personal information is included. One agency 
stated that the burden to report this data would be negligible.
    FTA Response: FTA recognizes that this reporting is duplicative 
with existing drug and alcohol post-accident testing reporting 
requirements and will not implement this change.

H. Clarification on Reporting Service Information on a Temporary Bus 
Bridge

    FTA received two comments related to reporting on temporary bus 
bridge service. One commenter restated the requirement and noted how it 
may apply to its agency. The second commenter stated that this proposal 
is too burdensome and that it does not support this change.
    FTA Response: FTA restates that the proposed clarification of 
reporting a temporary bus bridge is not a change to current policy. 
Rather, it is a clarification of existing policy. The policy is 
intended to reduce the burden of reporting temporary bus bridge service 
by allowing agencies the option to report this information as a capital 
cost rather than creating a new mode or type of service for temporary 
bus bridge service. FTA will implement this clarification effective 
immediately.

I. Clarification of Incidental Use for Transit Asset Reporting

    FTA received four comments on the clarification of incidental use 
for reporting administrative and maintenance facilities to the NTD. All 
four commenters agreed that FTA should define incidental as meaning 
less than 50 percent of the space. One commenter requested that this 
definition should also be applied to passenger facilities.
    FTA Response: FTA disagrees with the suggestion that the 50 percent 
definition should be applied to passenger facilities. FTA confirms that 
all passenger facilities used in public transportation are reportable 
to the NTD asset inventory. Agencies must only conduct a condition 
assessment of passenger facilities for which they have direct capital 
replacement responsibility. See 49 CFR 625.25(b); 49 U.S.C. 5335(c). 
Accordingly, the definition of incidental use does not apply to the 
reporting of passenger facilities. FTA will implement this 
clarification effective immediately.

J. Allow Separate Mode Reporting for Geographically and Resource 
Separated Modes

    FTA did not receive any comments on the proposal to begin 
collecting separate mode reporting for geographically and resource-
separated modes. After further analysis, FTA has decided to postpone 
implementation of this change until the 2021 Report Year, to allow for 
the necessary time to update the online reporting system to accommodate 
this change.

K. Clarification on Commuter Service Survey Standards

    FTA received three comments related to the proposed clarification 
of commuter service survey standards. Only two of the comments were 
relevant to the proposal. One agency requested additional clarification 
on how many times a survey must be conducted over a 12-month period to 
satisfy the requirement of accounting for seasonal variations. An 
industry association stated that it would not support a policy defining 
services of more than 90 minutes of one-way travel time as intercity 
services. The same association also sought clarification on whether 
this policy applies to new entrants or existing services.
    FTA Response: FTA clarifies that there is no policy stating that 
services of more than 90 minutes will be irrefutably considered 
intercity service. Under existing policy, FTA will generally presume 
that services with a one-way trip time of less than 90 minutes are 
commuter services. Although FTA will generally presume that a service 
with a one-way travel time of less than 90 minutes is commuter service, 
FTA may still request that this presumption be confirmed by passenger 
survey data. FTA will generally not presume that service with a one-way 
travel time of more than 90 minutes is commuter service. In these 
cases, FTA will consider such a service to be intercity service until 
survey data establishes that more than 50% of the riders make a same 
day return trip. These standards apply to any new services entering the 
NTD, as well as to any existing services that FTA chooses to examine in 
accordance with the NTD Policy Manual.
    In response to the request for additional clarification on how many 
times a survey should be conducted to

[[Page 44575]]

account for seasonal variations, FTA clarifies that the survey 
methodology must be approved by a qualified statistician. 49 CFR 
630.4(a). To ensure that a survey methodology is compliant with the 
requirement for 95% confidence, FTA further clarifies that per 
regulation, the survey methodology and evidence of an approval by a 
qualified statistician must be reviewed and approved by FTA prior to 
conducting the survey. A statistically valid survey will give every 
passenger on the service for the year an equal chance of selection or 
will use sample stratification to give every passenger a representative 
chance of selection. FTA will implement this change effective 
immediately.

L. Clarification on Reporting Linear Miles and Track Miles to the Asset 
Inventory

    FTA received three comments related to the proposed definitions of 
linear miles and track miles. One agency supported the clarification as 
written. One agency suggested that FTA should require the collection of 
both linear miles and track miles to allow for comparisons across 
systems. A third agency expressed continued confusion over the 
distinction between linear miles and track miles.
    FTA Response: In response to comments, and to simplify reporting in 
the future, FTA will remove linear miles from the reporting system. All 
reporters should report their guideway using the definition of track 
miles provided in this notice: The cumulative length in miles of all 
track--including multiple track railways over the same area. This 
should represent the total length of all laid track. FTA will implement 
this change in Report Year 2020.

M. Clarification of Rural Financial Data Reporting Requirement

    FTA received one comment requesting that the clarification of the 
rural financial data reporting requirement should be applied to all 
non-dedicated providers of demand response rides.
    FTA Response: FTA clarifies that per 49 CFR 630.4(a), all modes and 
types of service must be reported to the NTD consistent with the 
Uniform System of Accounts (USOA), which requires agencies to report 
the total cost of delivering each mode of transit service, including 
both direct and shared costs of providing service. FTA will implement 
this clarification effective immediately.

K. Jane Williams,
Acting Administrator.
[FR Doc. 2020-15906 Filed 7-22-20; 8:45 am]
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