Easter Seals Project ACTION1425 K Street, NW Suite 200 Washington, D.C. 20005

Status Report on the Use of Wheelchairs and Other Mobility Devices on Public and Private Transportation

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About Easter Seals Project ACTION

The United States Congress established Easter Seals Project ACTION (ESPA) in 1988 to promote and facilitate cooperation between transportation providers and people with disabilities. ESPA receives funding through a cooperative agreement with the U.S. Department of Transportation, Federal Transit Administration, and is administered by Easter Seals Inc.

Easter Seals Project ACTION—the acronym stands for Accessible Community Transportation In Our Nation —strives to make the Americans with Disabilities Act work for everyone in both worlds, extending resources to all that are free of charge. These include technical assistance and a toll-free number (800-659-6428 between 9 a.m.-5 p.m., Eastern Time, Monday through Friday), Web site (www.projectaction.org), and training activities at meetings and conferences. Easter Seals Project ACTION was established in 1988.

ESPA also offers more than 100 print, video and audio resources from a physical and online clearinghouse. We are pleased to add this “Status Report on the Use of Wheelchairs and Other Mobility Devices on Public and Private Transportation” to the collection.

Easter Seals Project ACTION

1425 K Street NW Suite 200

Washington, D.C. 20005

www.projectaction.org

(202)347-3066

(800)659-6428

(202) 347-7385 (TDD) (202)737-7914 (Fax)

March 2008

Status Report on the Use of Wheelchairs and Other

Mobility Devices on Public and Private Transportation

Prepared for Easter Seals Project ACTION by Nelson/Nygaard Consulting Associates San Francisco, California

Project Advisory Committee

• JanetAbelson,Oakland,Calif.,chairofAlamedaCountyTransitandBayAreaRapidTransitAccessibilityAdvisoryCommittees

• BillyAltom,PineBluff,Ark.,executivedirector,DeltaResourceCenterforIndependentLiving

• DennisCannon,Washington,D.C.,seniortransportation/facilityaccessibilityspecialist forU.S.AccessBoard

• BobCarlson,Washington,D.C.,technicalassistancespecialist,CommunityTransportationAssociationofAmerica(CTAA)

•MarilynGolden,Berkeley,Calif.,policyanalyst,DisabilityRightsEducation andDefenseFund(DREDF)

• ChrisHart,Boston,Mass.,projectcoordinator,AdaptiveEnvironments

• DonnaMcNamee,GrandRiver,Ohio,memberandimmediatepastpresident,BoardofTrustees,LAKETRAN(LakeCounty,OhioRegionalTransitAuthority)

• LarrySchneider,AnnArbor,Mich.,researchprofessor,UniversityofMichiganTransportationResearchInstitute;chair,ANSI/RESNACommitteeonWheelchairsandTransportation;co-director,RehabilitationEngineeringResearchCenterforWheelchairTransportationSafety

• SueStewart,Seattle,Wash.,transitsafetyofficer,KingCountyMetro

• LindavanRoosmalen,Ph.D.,Pittsburgh,Pa.,assistantprofessor,DepartmentofRehabilitationScienceandTechnology,SchoolofHealthandRehabilitationSciences,UniversityofPittsburgh;taskleader,RehabilitationEngineeringResearchCenterforWheelchairTransportationSafety

• TomWhelan,Longmont,Colo.,productdirector,SunriseMedical,Inc.

• AnnetteWilliams,SanFrancisco,Calif.,managerofaccessibleservices,SanFranciscoMunicipalRailwayNelson\NygaardTeam

• RichardWeiner,ConnieSoper,NormKetola,JeffFlynn,SanFrancisco,Calif.,Nelson\NygaardConsulting Associates

• DougCross,Oakland,Calif.,DouglasJ.CrossTransportationConsulting

• RoderickL.“RL”Grubbs,Atlanta,Ga.,principal,Accessible&UniversalDesignResearch &Training

• KatharineHunter-Zaworski,Ph.D.,P.E.,Corvallis,Ore.,associateprofessor,TransportationEngineering, Oregon State University

Preface

“TheStatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation”isaveryneededandinformativedocument.IwouldliketocongratulateEasterSealsProjectACTION,Nelson/Nygaard,theProjectAdvisoryCommitteeandallotherinvolvedpartiesforcreatingthisessentialpieceofwork.

TheAdvisoryCommitteeforthisreportrepresentssomeofthebestprofessionalswithdisabilities anddisabledactivistsintheUnitedStates.

OnJuly26,1990,PresidentGeorgeH.W.BushsignedtheAmericanswithDisabilitiesActintolaw. TheADAisacomprehensiveCivilRightslawthatgivespeoplewithdisabilitiesthesamerightsasallotherswhoresideintheUnitedStates.Itcoverspublicaswellasprivateentitiestoensurethatpeoplewithdisabilitiesarenotdiscriminatedagainstunfairlyinthiscountry.Thetransportationprovisionscoverbus,rapidrail,commuterrail,lightrail,ferries,paratransitservices,sidewalksandpedestrianaccessandprivatelyoperatedtransportationservices.

SincepassageoftheADA,newtechnologieshavebeenintroducedintheareasofboardingandsecurement,andnewdesignsfordifferenttypesofwheelchairshavebeendeveloped.Thisreportlooksatthecurrentissuesofseniorsandpeoplewithdisabilitiesboardingandbeingsecuredonpublictransportationvehicles.Safeboardingandpropersecurementarecriticaltoensuringasaferideforallpassengers.Ifpeoplefeelsaferandmorecomfortablewithridingtransit,theywillmorefrequentlyutilizepublictransportationservices.

Onceagain,mycongratulationstoallwhohelpedproducethisreport.Letusallworktogethertocreateanaccessibleandsaferideforeveryone.

MichaelWinter

SeniorProgramAnalyst InternationalResearchOffice FederalTransitAdministration U.S.DepartmentofTransportation

(MichaelWinter’sroleasaleaderintransportation’spublicsectorandthefieldofdisabilityrightsspanstwodecades.PriortohisarrivalattheFTAinWashington,D.C.,heservedonCaliforniatransitboardsandaspresidentoftheNationalCouncilonIndependentLiving,helpingtoleadthegrass-rootsefforttoachievetheAmericanswithDisabilitiesAct.BeforerecentlyachievinganewcareermilestoneintheFTA’sInternationalResearchOffice,heservedasdirectoroftheOfficeofCivilrights.)

Table of Contents

HowtoUsethisDocument.............................................................................................4ExecutiveSummary........................................................................................................4

Chapter 1. Background................................................................................................9ProblemStatement.......................................................................................................10AbouttheStudy............................................................................................................11

Chapter 2. Transit Vehicle and Equipment Design..................................................13DescriptionoftheIssues..............................................................................................14

Space and Maneuvering on Board Vehicles..............................................................14Lift and Ramp Boarding.............................................................................................14

BestPractices...............................................................................................................15Recommendations........................................................................................................15

Chapter 3. Wheelchair Design, Purchasing, Usage and Prescription...................17DescriptionoftheIssues..............................................................................................18

Oversized Wheelchairs..............................................................................................18Non-wheelchair Mobility Aids.....................................................................................18Other Items Carried with Mobility Devices.................................................................18

BestPractices...............................................................................................................19Recommendations........................................................................................................19

Chapter 4. Transit Operations and Training.............................................................21DescriptionoftheIssues..............................................................................................22

Securement Issues....................................................................................................22Transit Personnel Proficiency and Awareness..........................................................22Training Standards and monitoring of service performance......................................23

BestPractices...............................................................................................................23Transit System Policy Statements and Educational Information...............................24Training Program Elements.......................................................................................24Auxiliary Aids.............................................................................................................24Transit System Performance Monitoring....................................................................25

Recommendations........................................................................................................25

Chapter 5. Regulation and Policy.............................................................................27DescriptionoftheIssues..............................................................................................28

Progress in making “Transit-safe” wheelchairs available...........................................28Elements of Federal Guidance..................................................................................29

BestPractices..............................................................................................................30Recommendations........................................................................................................31

Appendix.....................................................................................................................33AppendixA:ProjectMethodology.................................................................................34AppendixB:AnnotatedListofDocumentsReviewed..................................................39AppendixC:SurveyTool..............................................................................................52AppendixD:StatisticalResultsofSurvey....................................................................60AppendixE:SummaryIssuesfromthePerspectiveofConsumers.............................68AppendixF:LinkstoRelevantRegulatorySources.....................................................72AppendixG:SamplesofInformationalBrochures.......................................................73

4 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

How to use this document

Thisreportrepresentsa“snapshot”ofcurrentissuesandpromisingpracticesregarding theUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation.

Agoalofthisstudyisforthefindingstoserveasapracticaltoolandguidanceforthefollowing typesofgroups:

• Transportationprovideragenciesandrelatedorganizations/associations

• Disabilityadvocacyandserviceorganizations

• Consumers

•Manufacturers(ofmobilitydevices,vehicles,securementequipment,etc,)

• Governmenttransportationregulatoryandfundingagencies

• Governmentandprivatehealthcarefundingagencies

Consistentwiththisgoal,thisreportincludesalistingoftopicsfordevelopmentofpotentialnewbestpractices,educational/trainingmaterials,researchanddemonstration,orpolicyguidance.Itisintendedtoserveasacatalystforadvancingtheabilityofproviderstoservetheirriderswithdisabilitiesmoreeffectivelyandsafely,andforriderstomakethebestuseoftheservicesavailabletothem.Itisalsointendedasanadvocacytooltoencouragemanufacturerstodesignsafelytransportablemobilitydevicesaswellastodesignvehiclesandequipmentthatcanaccommodateagreatervarietyofdevices.

Executive Summary

Wheelchairusageonfixed-routetransithasincreaseddramaticallyinrecentyearsasimprovementshavebeenmadetovehicledesign,andwheelchairusersbecomemoreactiveinthecommunity.Sometransitagenciesreportmorethan10,000annualwheelchairboardingsontheirbuses.Despitetheseridershiptrends,changesinwheelchairdesignsareoftenatoddswithimprovementsintransitvehiclesandsecurementequipmentthathaveoccurredsincethepassageoftheAmericanswithDisabilitiesact.Many,ifnotmost,newpowerwheelchairsandscootersdonotprovideadequatesecurementpointstoensuretheycanbesafelyaccommodatedonpublictransit.Standardsthatweredevelopedtoincludeattachmentpointsonmobilitydevices(“WC19”)arenotwellknownbyconsumersandtheirsupportservices,andthenewdesignsareavailableononlyafractionofwheelchairmodels.Otherchallengesincludetransitequipmentdesign,transitoperationsandtraining,andregulatoryandpolicyissues.

Usingtherampofalow-floorbus

HowtoUsethisDocument 5

Inresponsetoconcernswithinthetransportationindustryandthedisabilitycommunityonthis importanttopicarea,EasterSealsProjectACTION(ESPA)selectedNelson\NygaardConsultingAssociatestoprepareacomprehensivenationalreportonthestatusofthecurrentuseofwheelchairsandothermobilitydevicesonpublicand/orprivatefixed-routeandparatransitvehicles.TheNelson\Nygaardteamincluded:

• ADApolicyandpracticeexperts

• TheDirectoroftheNationalCenterforAccessibleTransportation

• Amobilitydeviceengineeringresearchanddevelopmentexpert

• AconsultantwhoisthechairoftheAmericanPublicTransportationAssociation’sWheelchairUserIssuesSubcommitteeandwhowasalsoaformertransitagencyaccessibilityandparatransitmanager

Inaddition,reportfindingswerereviewedbya12-memberadvisorycommitteerepresentingabroadrangeofperspectives,includingthoseofthetransitindustry,thedisabilityadvocacycommunity,andwheelchairandvehiclemanufacturers.Inadditiontoreportreview,committeemembersprovidedsignificantinputintothereportcontent.

Fourapproacheswereadoptedtocompletethisreport:

• Reviewofmorethan50documentsthataddresspertinentregulations,industrystandards,publictransportationindustrypoliciesandpractices,wheelchairindustryinformation,technicalresearchandsynthesisreports

• Interviewswithkeystakeholdersrepresentingdiverseperspectives:thoseofadvocates,transitagencies,wheelchairandvehiclemanufacturers

•Web-basedsurveyofmorethan100wheelchairusers

• Policyroundtableconferencecallwithkeystakeholders

Thereportsynthesizestheresultsoftheseresearcheffortsbyidentifyingthekeyissues,documentingcurrentbestpracticesinthefield,andidentifyingareasthatrequirefurtherresearchorgreaterguidancetotransportationprovidersandriderswithdisabilities.Theresearchmethodology,anannotatedbibliography,andsurveyresultsaredetailedinappendicestothereport.

Thereporthighlightskeyissuesinthefollowingareas:

Exampleofanon-traditionalwheelchair

• Oversizedwheelchairs

• Spaceandmaneuveringonboardvehicles

• Liftandrampboarding

• Issueswithoversizedwheelchairs

• Non-wheelchairmobilityaids

• Otheritemscarriedwithmobilitydevices

• Securementissues

• Transitpersonnelproficiencyandawareness

• Trainingstandardsandmonitoringofserviceperformance

• Progressinmaking“transit-safe”wheelchairsavailable

• Clarificationneededinfederalguidance

• Researchanddevelopmenttosupportindustry-widestandardsandnewdesignapproaches

• Educationanddisseminationofavailableresources

6 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Thereportthenprovidesadistillationofthebestpracticesidentifiedthroughtheteam’sresearchandconcludeswithaseriesoftopicsfordevelopmentofpotentialnewbestpractices,educational/trainingmaterials,researchanddemonstration,orpolicyguidance,assummarizedinthefollowingtable:

Issue area Issues Recommendations

TransitVehicleandEquipmentDesign

Spaceandmaneuveringonboardvehicles—constrainedspaces

Liftandrampboarding—steepangles and reliability

Formanufacturersandmobility-relatedindustries:

•Developindustrystandardsorguidelinesforwheelchairspace layouts, aisle clearances, placementofsecurementequipment,etc.;tobeusedbybothvehiclepurchasersandmanufacturers/designers.

•Increasedevelopmentand“real-world”(intransitserviceenvironment)demonstrationofnewtechnologies.

Fortransitproviders:

•Encouragestandardizedwheelchairsecurementequipmentbyretrofittingoldervehicleswithupdatedequipment,andincreaseorimprovemaintenanceprogramsforolderwheelchairlifts.

•Routinelyinvolveadvisorycommitteemembersanddriversintheselectionofnewandreplacementvehicles.

ExecutiveSummary 7

Issue area Issues Recommendations

WheelchairDesign,Purchasing,Usage and Prescription

Oversizedwheelchairs–increasingnumberofchairsthatdon’tfitintominimumADAvehiclestandards

Non-wheelchairmobilityaids—segways,strollers

Otheritemscarriedwithmobilitydevices–oxygen,largebackpacks

Forwheelchairusers:

•Learnaboutthedimensionsestablishedforwheelchairspaceaboardtransitvehicles

Forvendorsandprescribers:

•Becognizantofthedimensionsestablishedforwheelchairspaceaboardtransitvehicles,clearlyincludingthisaspectindealingswithwheelchairusers

Forwheelchairmanufacturers:

•Developguidelinesformanufacturerstouseinmakinginformationabout“transitfriendliness”ofmobilitydevicesaccessible and available to prospectivepurchasers

Issue area Issues Recommendations

Transit Operations and Training

Securementissues— customerpreferences,varietyofdevices,securementpolicies,ergonomics,time

Transitpersonnelproficiencyandawareness—sensitivity,securementskills

Trainingstandardsandmonitoringofserviceperformance—inconsistent,littledirectmonitoring

Fortheindustry:

•Developmentofa“template”typeofdocumentthatcanbeusedbytransitsystemstoeducatecustomersofaccessibilityfeaturesandmore

•Developmentanddissemination ofmodeltrainingprogramelements

•Developmentof“best-practice”policies and guidelines for accommodatingSegwaysandothernon-traditionalmobilitydevices

•Developmentofguidelinesonhowtoimplementwheelchairmarkingandtetherstrapprograms

•Disseminationofbestpractices orguidelinesformonitoringtransitsystemperformanceregardingmobilityaidaccommodations

8 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Issue area Issues Recommendations

RegulationandPolicy ProgressinmakingWC19-compliantwheelchairsavailable–limitedoutreach to users

Educationanddisseminationofavailableresources–limitedandinconsistent

Fortheindustry:

Additionalresearch

•Examinationofbarrierstomaking WC19-compliantmobilitydevicesavailabletotransitusers.

Activities:

•Developmentofguidelinesfortransitprovidersonhow/whytochoose“mandatory”vs.“optional”riderchoicepolicyforsecurement.

•Increasedcoordinationofvariousregulationsthataffectmobilitydeviceaccessibilityanddesign.

Problem Statement

About the Study

Chapter 1. Background

10 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Problem Statement

Theneedtoaccommodatetravelbypassengerswithdisabilitiesonvarioustransportationmodeshasincreaseddramaticallyinrecentyears,withsometransitagenciesreportingmorethan100,000annualwheelchairboardingsontheirbuses.Fixed-routeridershipisincreasingaswheelchairusersbecomemoreactiveinthecommunity,thenation’sfixed-routetransitbusfleetnears100percentaccessibility,andtransitagenciesimplementmoreaccurateADAparatransiteligibilityscreeningprocesses,therebyshiftingaportionofparatransitridershiptofixed-routeservice.

Wheelchairsandscootershaveevolvedintoawiderangeofvariedandcomplexdesigns,oftenwithouttraditionalframejointsthatcanacceptvehicletie-downdevices.Thishasbeenexacerbatedbythedevelopmentofnewersecurementsystemstopromotelesscumbersome,fastersecurementperformance.Thenewersystemstendtoutilizehooksinsteadoftheolderbuckleorclaspclosures,sometimesresultinginlessflexibilityforattachingtonon-traditionalwheelchairframegeometries.

InApril2000,“WC19WheelchairsUsedasSeatsinMotorVehicles”wasapprovedbytheAmericanNationalStandardsInstitute(ANSI)andtheRehabilitationEngineeringandAssistiveTechnologySocietyofNorthAmerica(RESNA)asaU.S.standard.WheelchairsthatmeetthedesignandperformancerequirementsofthisvoluntarystandardarelabeledtoshowthattheycomplywithWC19.AWC19wheelchairhasfourcrash-testedsecurementpointswheretie-downstrapsandhookscanbeeasilyattachedsothechaircanbeeffectivelysecuredtothevehicle.AlthoughanincreasingnumberofwheelchairmodelsarebeingdesignedandtestedtobeWC19-compliant,manymobilitydevicesonthemarket,especiallyscooters,arenotavailablewiththisoption.Moreover,foravarietyofreasons,thepercentageofWC19-compliantmobilitydevicesinactualuseismuchlowerthanthenumberofmodelsthatcanbepurchasedwiththisimportantfeature.

ButWC19standardsarenotwellknownbyconsumersandtheirsupportservices.Itisnotuncommonforthird-partyfundingsources,whichcovermostofthecostsofmostmobilitydevices,todenycoverageforWC19-compliantfeatures,forcingtheend-usertoeitherpayforthesefeaturesoutofpocket,orskipthem.

Anincreasingnumberofmobilityaidsarealsotoolargeordifficulttomaneuverinordertoboardtransitvehicles.Severalresearchanddevelopmentprojectsareunderwaytoimprovethesituation.SomeoftheseprojectsarebeingconductedwithintheRehabilitationEngineeringResearchCenter(RERC)onWheelchairTransportationSafety,fundedbytheNationalInstituteforDisabilityandRehabilitationResearch(NIDRR),andincludetestingofinnovativenewsecurementdesigns,evaluatingexistingsecurementdevices,occupantrestraintsandcrashtestingrequirements,andinvestigatingnewuniversal“docking”andrear-facing“compartmentalization”solutions.However,thesearelong-termprospects,andcouldrequiresignificantchangeinfederalregulationstoimplement.Meanwhile,thereisafast-growingneedtofindawayforwheelchairusers,manufacturers,dealersandmedicalfundingagenciestoofferandusedevicesthataremorereadilycompatiblewithsecurementsystemsusedonvariousmodesofpublictransportation.Inshort,themostimmediateandsignificantprogressforbothsafetyandusabilitycanbeachievedbyincreasingthenumberofWC19wheelchairsavailableandinuse.

Dialogueonwheelchair(andothermobilityaids)usageonvehiclesisneededtodetermineprioritytopicsofconcern,thekindsofstandardsthatareneeded,andhowexistingstandardscanbemoreeffectivelyimplemented.Educationisneededforwheelchairusers,manufacturers,securementequipmentandvehiclesuppliers,transitmanagers,andmedicalfundingandregulatoryentities onthebenefitsofpropersecurementand“WC19”wheelchairs.

Chapter1.Background 11

About the Study

Inresponsetoconcernswithintheindustryandthedisabilitycommunityonthisimportanttopicarea,EasterSealsProjectACTION(ESPA)selectedNelson\NygaardConsultingAssociatestoprepareacomprehensivenationalreportonthestatusofthecurrentuseofwheelchairsandothermobility devicesonpublicand/orprivatefixed-routeandparatransitvehicles.

Theprimaryfocusofthisstudyisonwheelchairuserswhoremainseatedintheirwheelchairswhentravelinginpublicandprivatevehicles.However,thestudynecessarilyencompassesaverybroadrangeofdisciplinesandstakeholders,aswellastechnical,operationalandpolicyissuesthathaveimportantrolesregardingtransportationfortravelersseatedinwheelchairs.Inordertoexplorethebreadthofissuesandgenerateareportofsubstantivevaluetokeystakeholders,theNelson\Nygaardteamemployedfourdistinctapproaches:

• literaturereview

• stakeholderinterviews

•Web-basedsurveyofwheelchairusers

• policyroundtableconferencecallwithkeystakeholders.

Thefollowingchapterspresentasynthesisofthekeyissuesthatemergedfromresearchanddocumentcurrentbestpracticesinthefield.Areasareidentifiedthatrequirefurtherresearchorgreaterguidancetotransportationprovidersandriderswithdisabilities.Theresearchmethodology,includingdetailedresultsofasurveyoftheconsumerperspective,isdetailedinaseriesofappendices.

Sincethistopichasbeenthefocusofincreasedattentionduringrecentyears,policy,practiceandregulationsareconstantlychanging.Forexample,duringthecourseofthisprojecttheU.S.AccessBoardreleasedanoticeofpotentialamendmentstotheaccessibilityrequirementsforvehiclesandsystemswhichwerenotfinalizedpriortothereleaseofthestudy.Asaresult,someoftheregulatoryguidancesoughtbystakeholderswhoprovidedinputtothereportmaywellbeaddressedinthenearfuture.Thisreportthereforerepresentsa“snapshot”ofcurrentissuesandpractice,andshouldserve asacatalystforadvancingtheabilityofproviderstoservetheirriderswithdisabilitiesmoreeffectivelyandsafely,andforriderstomakethebestuseoftheservicesavailabletothem.ConsistentwiththegoalofESPA,theobjectiveofthisstudyisultimatelytoenhancetheridershipexperienceofthosewhousewheelchairsandothermobilitydevicesonpublicandprivatetransportation.

Thefollowingchaptersrepresentasynthesisofthekeyissues,barriers,promisingpractices,andrecommendationsforfurtherresearchintheuseofmobilitydevicesonpublicandprivatetransportationthatemergedfromaliteraturereview,stakeholderinterviewsandapolicyroundtable(seeappendicesfordetailsonresearchmethodology).

Whilethislistingofissueshasbeenselectedtoreflectwhatwebelievetobethemostsalientconcernsinthefield,wehavemadenoattempttodeterminetheveracityofalloftheissuesortoquantifythedegreetowhichtheyareproblems.Suchaneffortwouldbebeyondthescopeofthisstudy,butmaywellbeappropriateforadditionalresearch.

Essentialtodiscussionistheperspectiveoftransitpassengers,andtheviewsofthosewhoparticipated in,thesurveyaredescribed.Currentbestpracticesarepresentedinthecontextofapplicableissues.

12 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Theissuesandpromisingpracticesdescribedinthefollowingchapterscover theuseofthefollowingdevices:

•Manualwheelchairs

•Powerwheelchairs

•Scooters(3–and4–wheeled)

•Walkers

•Segways

•Crutches,canesandotherassistivedevices

•Non-mobilityaiddevices(bicycles,tricycles,“go-ped”scooters,carts,gurneys,etc.)

•Oxygentanksandotherdurablemedicalequipment

Thestudyaddressesthestatusofaccommodatingandsecuringthesedevicesonvarious typesofvehicles,including:

•Publicandprivateparatransitvehicles

•Taxis

•Fixed-routeandover-the-roadbuses

3-wheeledscooter

Segway

4-wheeledscooterPowerWheelchair(rearwheeldrive)

PowerWheelchair(midwheeldrive)

Note:SomeoftheissuesidentifiedinthefollowingchapterswereincludedinthedraftguidancereleasedbytheAccessBoardonApril11,2007.Dependingonthecommentaryreceivedandfollow-upactionsbytheboard,itispossiblethatsomeoftheseissuesmaybeaddressedwithinmonthsofthereleaseofthisreport.

Description of the Issues

Space and Maneuvering on Board Vehicles

Lift and Ramp Boarding

Best Practices

Recommendations

Chapter 2. Transit Vehicle and Equipment Design

14 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Description of the Issues

Space and Maneuvering on Board Vehicles

Interiorspaceislimitedonvehicles,wheelchairsizesareincreasing,andmoreproblemsarebeingencounteredwithlessmaneuverabledevices.Thetrendtowardlow-floorlargeurbanbuseswithramps(asopposedtotraditionalhigh-floorbuseswithlifts)hasexacerbatedspaceandmaneuverabilityissues,andalsobringsmorepotentialfordifficultieswithrampboarding,especiallywheresteepanglesareencounteredduetolackofcurbs.

Maneuverabilityalsodependsonthelocationoftheramp.Arear-doorrampprovidesmoreclearancetoreachthesecurementlocationthanafront-doorramp,butitcanbemoredifficulttomaneuverthebustopositionarear-doorrampforboardingfromthecurb.Second,wheretherampmustdeploytostreet-level,theangleismeasuredfromthestreet,notfromthecurb.

Improvementshavebeenmadeinbusdesigntoalleviateproblemswiththefareboxorotherstructuresatthefrontofthebusfromimpedingawheelchairrider’smaneuverability,butsomewheelchairuserswhohaveexperienceddifficultyinthepastmaynotbeawareofsuchimprovementsandthereforemayshyawayfromusingfixed-routetransit.

Smallvehiclessuchasminivanscanpresentevenmoreseriouschallengesthanothervehiclesduetoinherentspaceconstraintsandvehiclesuspensioncharacteristics.Issuesdifferforsmaller,paratransitvehiclesthanforlarger,fixed-routebuses.Nevertheless,eachtypecanbepronetoproblemswithmobilityaidmaneuveringspaceandsecurementequipmentplacementifcarefulattentionisnotpaidindesigninginteriorlayouts.

Thereisalackofstandardizationofvehicleinteriors,relatedtothesizeofwheelchairspacesandplacement/usabilityofsecurementequipment.Poorvehiclelayoutssometimesexacerbatetheotherissues.Theproblemoccurswhennewvehiclesarepurchasedanddifferentseatinglayoutsorotherfeaturesareselected,withoutfullunderstandingoftherelationshipbetweencomponents.

Lift and Ramp Boarding

DOTADAregulationsrequiretransitpersonneltoprovideboardingassistanceasnecessary,whichcanincludepushingamanualwheelchairuparamp.Thisincludessituationsinwhicheitheramanualorpowerwheelchairuserattemptstonavigatearampthatistoosteep.Thesteepertheramp,themorelikelyitisthatboardingassistancewillbenecessary,sotransitoperatorsshouldhaveanincentivetoensurethelowestslopepossible.

Problemspersistwiththereliabilityofaccessibilityequipmentsuchasbuslifts,whicharesometimesrelatedtomaintenanceissueswitholderequipment.Variousgenerationsofoldersecurementequipmentarestillinusealongsidenewer,moremoderndevices,resultinginaconfusingarrayofequipment

Minivanwithrearramp

Exampleofapoorlyplacedshoulderbeltinasecurementsystem

Chapter2.TransitVehicleandEquipmentDesign 15

thatbusoperatorsandcustomersmustunderstandanduse.Whileliftsaresometimesreplacedandrehabilitated,theyarenotalwaysgivenhighpriorityinrelationtoothermaintenanceneedseventhoughtherearerequirementsconcerningliftmaintenanceunderDOTADAregs.

Best Practices

• Sizethewheelchairlift,ramp,aisleway,andsecurementlocationdimensionstoprovideforaccommodationofatleastthe“commonwheelchair”dimensions,aswellasmaneuverabilityandabilitytoreachandusesecurementequipment.

•Whenbusesareinearlystagesofprocurement,testwheelchairlayoutsviaa“configurationaudit.”Alongwithconsumer/disabilityadvisoryinvolvement,asurrogatecommonwheelchairissometimesusedinplaceoforinadditiontoasamplewheelchair,sometimesreferredtoasthe“boxtest”(althoughthelattercanhavetechnicallimitations).

• Havethe“firstarticle”prototypetestedbymobilityaidusersatthetransitsystem.Thisisalsohelpfultowardidentifyinganyoutstandingissuesbeforegeneralproductionbegins.(NOTE:Somesystemsaretestingarearfacingsecurementapproach,especiallyinBRT—busrapidtransit–applications.)

• Pilotthenew,innovativeboardingapproachessuchasdouble-foldingramps(tominimizetheanglethatmaycausedifficultyboardingwherethesurfaceisnotclosetothebusfloor),andrear-doorrampentry(tominimizedifficultymaneuveringtosecurementlocations).

Recommendations

For the industry:

•Developindustrystandardsorguidelinesforwheelchairspacelayouts,aisleclearances,placementofsecurementequipment,etc.,tobeusedbybothvehiclepurchasersandmanufacturers/designers.Includedcouldbethedevelopmentofsurrogatewheelchairsorothermethodsfortestingmaneuveringclearances,aswellprovidingforconsumer/disabilityadvisoryinput.

•Increasedevelopmentand“real-world”(intransitserviceenvironment)demonstrationofnewtechnologiesforinnovativesecurementsolutionsandentrydesigns,includingevaluationofapproachessuchasreardoorentry.

For transit providers:

•Encouragestandardizedwheelchairsecurementequipmentandincreaseorimprovemaintenanceprogramsforolderwheelchairlifts.Approachescouldincludetechnicalassistance,jointpurchasingprograms,andprioritizationbyfundingsources.

•Routinelyinvolveadvisorycommitteemembersanddriversintheselectionofnewand replacementvehicles.

Description of the Issues

Oversized Wheelchairs

Non-wheelchair Mobility Aids

Other Items Carried with Mobility Devices

Best Practices

Recommendations

Chapter 3. Wheelchair Design, Purchasing, Usage and Prescription

18 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Description of the Issues

Oversized Wheelchairs

Oversizedwheelchairs,meaningdevicesthatarelargerand/orheavierthantheADA’s“commonwheelchair”definition,arebeingencounteredbytransitproviders.(Insomecases,evencommonwheelchairsareencounteringdifficultiesduetofailureonthepartofvehiclemanufacturerstoprovide“adequateclearance”asrequiredunderDOTADAregs).Agencieshavedifficultytransportinglargeorheavywheelchair/usercombinations.Largerandheavierpowerwheelchairsandscooters,combinedwithpassengersize,cannotalwaysbeaccommodatedwithinexistingtransportationvehicles.Forexample,theremaybeaninabilitytomaneuverintooroutoflifts,rampsandsecurementareas;damagemaybecausedtolifts;andweightdistributionmaybeaproblemonsmallervehicles.

Significantcustomerserviceandoperationalproblemsandconfusionalsoexist,suchashowtodeterminewhenamobilityaidactuallycannotorshouldnotbeaccommodatedasopposedtomerelyfallingoutsidetheADA“commonwheelchair”parameters,andhowtodeterminewhetherthereareviablealternativesforsuchcustomers.Fixed-routetransitprovidershavevaryingresponsestocarryingoversizedmobilityaids,rangingfromallowingwhateverwillfitonvehicles,todenyingservicetoanymobilityaid/usercombinationsthatexceedtheADAdefinition.

Someparatransitagenciesare“screeningout”oversizedoroverweightwheelchairsduringthe ADAeligibilitycertificationprocess.Whiletheyarenotnecessarilyfindingtheapplicantsineligible, theeffectinsomeinstanceswheretheapplicanthasnoalternativedeviceistomakeitimpossible forthemtorideparatransit.

Non-Wheelchair Mobility Aids

Theuseofnon-traditionalmobilityaidsisincreasingandthereisconfusionandlackofuniformityin howtheyareaccommodated.Examplesarewheeledwalkerswithseats,Segways,orthopedicstrollersandotherdevices.Segways,whereencountered,poseuniquechallengessuchashowthemachinesaretobestowedonthevehicle.

Arelatedissueisthatnumerousnon-mobilityaids,suchasshoppingcarts,bicycles,babystrollersalsovieforspacesintendedforwheelchairusers.

Other Items Carried with Mobility Devices

Peoplemaycarrybackpacks,shoppingbags,oxygentanksorotherdevicesontothebus,orattachedtotheirwheelchairs.Thismayexacerbateproblemsofmaneuverabilityandaccesstosecurementpointsonthemobilitydevice,andcanalsoblocktheaislesforotherpassengers,especiallyinfixed-routebusservices.

Thereislimitedguidanceonhowbesttoaccommodatethesedevices,suchasif/howoxygentanksshouldbesecured.

Chapter3.WheelchairDesign,Purchasing,UsageandPrescription 19

Best Practices

•Manufacturers’statementsofmodelspecificationsthatincludedimensions,weight,andturningradius,aa• “RideSafe”brochureand“www.travelsafer.org”WebsitebyRERC-WTSatUniversityofMichigan,describingwheelchairtransportationsafetyandstandards;

• “WC19–YourTickettoRide”in,includingalistofWC19-compliantwheelchairsattheRERCWTSWebsitehttp://www.rercwts.org/WC19

• Floordemonstrationmodelsatwheelchairdealersthatareequippedwith“Transit”or“Transport”equipment(suchas“WC19”-compliant)

• Checklistsusedforevaluationofwheelchairpurchasers’needsinordertoconfigurethemostappropriatedevice,includingwhethertheywilltakepublictransportation.Thiscanbeprovidedbyprescribers,healthcareinsurers/funders,orwheelchairvendors,especiallythosewithtrainingandcertificationsuchasRESNA-certifiedAssistiveTechnologySuppliers(“ATS”).

•WTORSmanufacturers’trainingmaterials,includingtrainingvideos

Recommendations

For wheelchair users:

• Learnaboutthebenefitsof“transit-safe”mobilitydevices.

For vendors and prescribers

• IncreasecoordinatedeffortstoeducatewheelchairusersaboutthebenefitsofWC19-compliantmobilitydevices.Anexampleisbroadpromotionofmaterialssuchasthecurrent“RideSafe”brochureand“www.travelsafer.org”WebsitebyRERC-WTSatUniversityofMichigan,describingwheelchairtransportationsafetyandstandards,buttailoredmoreforeducatingpeopleinvolvedinmobilitydevicepurchasingdecisions(seeAppendixE).

For wheelchair manufacturers

• Developmentofguidelinesformanufacturerstouseinmakinginformationabout“transitfriendliness” ofmobilitydevicesaccessibleandavailabletoprospectivepurchasers

For funding entities

• ExtendcoverageeligibilitytoincludeWC19-compliantoptions/equipment[NOTE:Insurers/CMS/other3rdpartieswillarguethatWC19-complilantequipmentisunnecessaryfor“inthehome”use;however, itmaybeveryessentialfortransportationtomedicalappointments,etc.]

Description of the Issues

Securement Issues

Transit Personnel Proficiency and Awareness

Training Standards and monitoring of service performance

Best Practices

Transit System Policy Statements and Educational Information

Training Program Elements

Auxiliary Aids

Transit System Performance Monitoring

Recommendations

Chapter 4. Transit Operations and Training

22 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Description of the Issues

Securement Issues

Sometransitpassengersrefuseorprefertheirwheelchairnotbesecured.Lackofindependence, thestigmaofspecialattention(or“holdingupthebus”),andfearofmobilityaidsbeingdamagedare afewofthereasonscitedfornon-securement.Wheelchairusersmayalsoexperiencediscomfortwiththeinvasivephysicalcontactthatmayberequired.

Mobilitydevicesareincreasinglydifficulttosecurebecauseofalackofidentifiabletie-downattachmentpointsonwheelchairs,incompatibilityofsomenewersecurementsystemswithwheelchairframestructures,andlimitedspaceinvehicles.

Somestakeholders,includingconsumers/advocatesandtransitindustryprofessionals,indicatedapreferenceforauniversalsecurementmethod,andforwheelchairvendorstobetterinformcustomersaboutwhetherwheelchairsare“transitfriendly.”

Someconsumeradvocatesreporttheywouldnotsupportanyrequirementthatsuchfeaturesbemandatoryduetoconcernsthatthiscouldinterferewithfullmobility.

Transitpersonnelalsoexperiencedifficultywiththeergonomicsofattachmentpointsonwheelchairsthatarehardtoreach,andwithconflictsandchallengesrelatedtophysicalcontact/exposurewiththewheelchairuserwhileperformingwheelchairsecurementandpositioningoccupantrestraints.Driversandcaregiversaresometimesinjuredwhileperformingsecurement,andcustomersindicatethatthetimetakenforsecurementonbusyrouteshasbeenareasongivenforpass-upsbybusdrivers.

Bothcustomersandtransitpersonnelareannoyedbydirty,twisted,ormissingtie-downstrapsandoccupantrestraintbelts.[NOTE:Agoodpre-tripinspectionshouldincludeacheckofthesecurementequipment,aswellascyclingthelift/ramp.]

Inrailtransit,securementpoliciesanddesignsarehighlyvariableandoftennotwellexplainedorunderstood—theADAdoesnotrequiretie-downs,andavarietyofvehicleinteriorlayoutsareused,fromsimpleopenareasto“passivecompartmentalization”orbasictie-downssuch aswheelclamps.

Transit Personnel Proficiency and Awareness

Someconsumersreportthatdriversarenotsensitivetotheirneeds,anddon’tlistentohowdevicesshouldbesecured,orsaytheycan’tdoitordon’tknowhowto.Thisispartofalargerissuethatincludesongoingproblemssuchaswheelchairusersbeingpassedbyatbusstops,inoperativeliftsonvehicles,andotherbarrierstousingfixed-routetransitservices.

Itisrequiredunder49CFR37.173thateachpublicorprivateentitywhichoperatesafixed-routeordemand-responsivesystemshallensurethatpersonnelaretrainedtoproficiency,asappropriatetotheirduties,sothattheyoperatevehiclesandequipmentsafelyandproperlyassistandtreatindividualswithdisabilitieswhousetheserviceinarespectfulandcourteousway….

Exampleofamobilitydevicethatisdifficulttosecure.

Chapter4.TransitOperationsandTraining 23

Training standards and monitoring of service performance

Traininganddisabilityawarenessoftransitproviderpersonnelisvariableandsometimesinadequateorinconsistentconcerningmobilityaidaccommodations,resultinginongoingproblems.

Transitprovidertrainingonproperboardingandsecurementproceduresisnotstandardizedamongvariousnational“train-the-trainer”programs,andcanbehighlyvariableatthelocaltransitsystemlevel.Suchtrainingissometimesnotgiventoagencypersonnelwhomayneedit,suchasmanagersandcustomerservicepersonnelwhohandlepassengerissues,riskingapositionofviolatingtherequirementcitedabove.

Diligentmonitoringoftransitdriverswillhelptoensureproperperformanceandreducetheincidenceofanecdotalreportsandcustomercomplaints.Sometransitsystemsuse“secretrider”orothertypeofmonitoring,sometimesinconjunctionwithmonitoringofADAannouncements.

Best Practices

Transit System Policy Statements and Educational Information

• Serviceguides,includingprintandalternateformats,shoulddescribesystemaccessibilityfeaturesandpolicies.AvailabilityonaWebsitewillhelpmeetaccessibilityneeds.

• Policieswithclearstatementsoftransitsystemresponsibilities/limitations,aswellascustomerresponsibilities,shouldinclude:

• Statementofassistancethatwillbeprovidedbyvehicleoperators

• Sizelimitationsofvehiclemobilityaidaccommodations

• Policyonsecurement(mandatoryoroptional)

• “Caveat”languagere:transportingmobilityaidsthatcannotbesecuredorifsecurementequipmentismissingorbroken

• Statementsrecommending(butnotmandating)transferringtoaregularseat

• Useofoccupantrestraints(including“optional”onfixed-route)

•SpecialpoliciesandproceduresforSegways

• Instructionsonstowageofportableoxygen,walkers,shoppingcarts,andothernon-wheelchairitems(alsohow“orthopedicstrollers”willbetreated)

• Postingofwheelchairsecurementpoliciesinconspicuouslocationsinvehicleinteriors,suchasbydecals,advertising-typecards,posters,orothersignage

•Wheelchairsecurementpolicypostingonfixed-routebus

• Auditoryandvisualmessageboardannouncementsontransitvehiclesexplainingsecurementpolicies. Thishasbeenespeciallyusefultotransitsystemsinstitutingnewpolicies,suchasmovingfrom“optional”to“mandatory”securement.

Wheelchairsecurementpolicypostingonfixed-routebus.

24 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

• Offeringof“orientation”tovehiclefeaturesfortransitcustomers,especiallynewwheelchairusers.Thiscanbepartoftraditional“traveltraining”programs,orofferedseparately,andcanbeencouragedbytheuseof“courtesycards”handedoutbyvehicleoperatorswhentheyencounterapassengerhavingdifficulty.

• Transitsystemparticipationindisabilityconferencesandproductexpositions,ideallywithbotheducationalmaterialsandactualvehicledemonstrations

• Pressreleasesandnewscoverageofimprovementssuchasnewbussecurementequipment,trainingprograms,wheelchairmarking/tetherstrapprograms,etc.

Training Program Elements

• “How-to”guidesthatusepicturesand/orvideostodemonstratetechnicalissuesofsecurement(includingsomevideosthatshowwhatcanhappenwhensecurementisnotdoneproperly)

• Usingavarietyoftypesofwheelchairsandscootersinhands-onpracticumsessions,especiallyoneachtypeofvehicleinuse

• Visitinglocalwheelchairdealers,eithertounderstandwheelchairfeaturesortoactuallydotrainingsuchasforwheelchairmarking/tetherstraps

• Invitingwheelchair-usingtransitcustomersanddisabilityadvocatestoparticipateintraining.

• Incorporatingwheelchairboardingandsecurementintosimulateddrivingpracticethroughoutnewdrivertraining,insteadofrelegatingittoasingle“class”

• Addressingproperuseandplacementofseatbelts,notjustwheelchairsecurement,intrainingmaterials

• Sign-offsheetsthatbothtraineesandtrainerssigntodocumentsuccessfulproficiencyandunderstandingofprocedures

• Useofquiz-typeteststogaugeproficiencyinclassroominformation

•Wheelchairsecurementasacomponentof“roadeo”drivingskillcompetitions

• Tipsonproperergonomicpracticestominimizeriskofinjurywhileperformingsecurement

• Vehicleoperatorsshouldbeperiodicallyevaluatedontheirabilitytosafelyandeffectivelysecurewheelchairusers

• Staffinadditiontovehicleoperatorsreceivetraininginaccessibilityaccommodationsanddisabilityawareness(includingsupervisors,managers,andcustomerservicestaff)—again,incompliancewith49CFR37.173.

Auxiliary Aids

•Wheelchairsecurement-pointmarkingandsecurement-loopprograms

• Auxiliarystrapsorotherdevicesforsecuringoxygentanks,Segways,orothernon-wheelchairitems

• A“boardingbelt,”whichisusedbysomeparatransitproviderstosecurethepassengertotheirwheelchairandtoprovideextrasafetyandcomfortduringliftboarding

• Kneelingpads,reachingtoolsandotherequipmenttoaidinuseofsecurementequipment byvehicleoperators

• Ergonomicreviewsofexistingtransitvehicleinteriorstoidentifyspaceandequipmentissues thatmayneedtobeaddressedinordertoprovidetraininginstructionsorequipmentreplacement/retrofitguidelines

Wheelchairwithtetherstrap(front) andmarkings(rear)

Chapter4.TransitOperationsandTraining 25

Transit System Performance Monitoring

• Useof“secretrider”programsorprofessionalmonitorstoobservemobilityaidboardingandsecurementperformance,bothonarandombasisandtargetedbasedonspecificcomplaints

• Trackingofcomplaintsindetailedcategoriesthatincludemobilityaidboardingandsecurementinordertotracktrendsandidentifyissues.Statisticsshouldbesharedwithallinterestedparties–transitsystemmanagementstaff,policyboards,disabilityadvisorycommittees,andthepublic.Stakeholderperspectivesvariedonwhetherthisinformationshouldbemadeuniversallyavailable,orwhetheritshouldinitially(oronly)beprovidedtotransitagencystaff,boardsandadvisorycommittees.Reportswouldinanycasebeavailabletothepublicthroughopenrecordslegislation(“sunshinelaws”),butlimitingtheirinitialdistributioncouldensurethatlimitedstaffresourcescouldbeassignedtocorrectingdeficienciesratherthanrespondingtomediainquiries.

Recommendations

For Public Transportation Providers

• Developmentofa“template”typeofdocumentthatcanbeusedbytransitsystemstoexplain:

•Mobilityaidaccessibilityfeaturesonvehiclesandattransitfacilities,includingwhattoknowabouthowvarioussizes,weights,maneuveringcapabilities,andbaggage/medicaldevicescanbeaccommodated

•Policiesandproceduresforboardingandsecurement

• Informationaboutthebenefitsof“transit-safe”mobilitydevices

•Availabilityoftransitvehicleorientationand/ortraveltrainingformobilityaidusers

• Informationonauxiliaryaidssuchaswheelchairmarkingandtetherstrapprograms

Thisinformationcanbeusedinrider’sguides,accessibleservicesguides,Websites,brochures,posters(includingonboardvehicles).Photos,diagrams,andothergraphicpresentationmethods shouldbeusedtoillustratefeaturesandconceptsasmuchaspossible.

• Developmentanddisseminationofmodeltrainingprogramelements

• Developmentof“bestpractice”policiesandguidelinesforaccommodatingSegwaysandother non-traditionalmobilitydevices

• Developmentofguidelinesonhowtoimplementwheelchairmarkingandtetherstrapprograms,includingensuringthatparticipationisvoluntaryonthepartofridersandthatoperatingpersonnelmustperformsecurementappropriatelyforthosewhochoosenottoparticipate

• Disseminationofbestpracticesorguidelinesformonitoringtransitsystemperformanceregardingmobilityaidaccommodations

Description of the Issues

Progress in making “Transit-safe” wheelchairs available

Elements of Federal Guidance

Best Practices

Recommendations

Chapter 5. Regulation and Policy

28 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Description of the Issues

Progress in Making “Transit-safe” Wheelchairs Available

Useofwheelchairswithspecificsecurementattachmentpoints,suchasWC19-compliantwheelchairs,canimprovesafetyduringtransportationandmakesecurementeasierandfaster,butsofarthereis littleindustryimplementationorconsumer/publicunderstandingofthis“voluntaryindustrystandard”typeofapproach.

Wheelchairmanufacturersincludeinformationabout“transitoptions”or“transportationfeatures”inproductliteratureaboutmodelsthathavethesefeaturesavailable,buttheinformationisoftendifficulttofind.The“WC19–YourTickettoRide”WebpageoftheRehabilitationEngineeringResearchCenteronWheelchairTransportationSafety(RERCWTS)Website(www.rercwts.org)containsalistofavailablemodelsequippedwiththesefeatures.Atthesametime,itshouldalsobenotedthatcustomseatingconfigurationsmayaffecttheavailabilityofOEM(originalequipmentmanufacturer)WC19features,ifsuchfeaturesweredesignedintotheOEMseatinginsteadofthebase.

Thereisageneralbeliefthateducationisneededforconsumer,transitproviders,third-partypayers,andgovernmentagenciesregardingthecostsvs.benefitsof“transit-safe”wheelchairs,andthattransportationsafetyshouldbeincludedasabasicfeatureofwheelchairs.Thereissomebeliefthat“voluntary”industrystandardsarenotenough,andthatsometypeofmandatoryrequirementswillbenecessary.However,itisnotclearwhichsector(s)shouldhavesuchmandatesappliedtothem,whichagencieswouldissueandregulatesuchguidelines,andhowtheywouldbeappliedintheend,sinceonecannotunilaterallydeclareallcurrentmobilitydevicesunsuitablefortransit.

Wheelchairmanufacturershavenotseena“marketdemand”for“transit-safe”features,andvoluntaryindustrystandardscarrylessweightwhenviewedbesideallowancesunderinsuranceandotherfundingguidelines(suchasCMScoding).IssuessuchastheMedicare“in-homelimitation”presentsignificantbarriers.

TheuseofwheelchairsasseatsinmotorvehicleshasnothistoricallybeenaddressedthroughthespecificationsissuedforpurchasingwheelchairsbymajorpurchaserssuchasVeteransAdministrationandCentersforMedicareandMedicaidServices/CMS.Also,manypeoplewithdisabilitieshavespecificseatingrequirementsthatdictatecustomseatingsystemsfromafter-marketspecialistssuchasMotionConcepts,andcarewouldbeneededtoensurethattheneedforahigh-endseatingsystemwouldnotsomehowremovetransportationfromtheuser’slistof dailyactivities.Thetransportationindustrymustrememberthattheinsideofatransitbusshouldnotberegardedas

thenativeenvironmentformobilityequipment,andthattheseating,aboveallelse,mustbecompatiblewiththeindividualuser’sspecificrequirements.AddressingthisissueandincludingWC19featuresinwheelchairspecificationswouldprovideasignificantincentivetomanufacturerstodevelop“transit-safe”wheelchairs.

Mostwheelchairmanufacturers,includingthosewithproductsthatcomplywithWC19,donotadvertiseormentiontheavailabilityandimportanceofpurchasingWC19productsforpeoplewhotravelwhileseatedintheirwheelchairs.Consequently,consumersarelesslikelytobeawareofWC19wheelchairs.

Exampleofasecurementpoint

Chapter5.RegulationandPolicy 29

Mosttransitprovidersandsomevehicleandequipmentmanufacturers agreethatsometypeof“certification”ofwheelchairsandscooterscompatiblewithuseoftransitshouldbemandatory.Suchcertificationwouldincludesize,maneuverability,and“secure-ability.”However,consumeradvocatesarejustifiablyconcernedabouttheuseofthiscertificationasthebasisfordenyingaccesstonon-certifieddevices,andnoneofthefederalentitieswithADA-relatedresponsibilitieshavethestatutoryauthoritytoregulatethedesignoruseofmedicaldevicessuchaswheelchairs

Thereappearstobeagreatneedforsolutionstobesoughtthroughprocessesthatincludeallrelevantstakeholdersinacoordinatedmanner,whichdoesnotseemtohavebeendoneinthepast.Forexample,fullparticipationindiscussionsregardingWC19wheelchairs byCMSandotherhealthcarefundingagencieshasnotyetbeenapriority.

Elements of Federal Guidance

Fromthecustomer’sperspective,inconsistencyofoptionalvs.mandatorysecurementpoliciesfromcommunitytocommunitymayalsobeconfusing:Shemaybeaccustomedtohavingtheoptionofridingunsecuredonherhomesystem,andfaceservicedenialonanothercity’stransitsystemifsheattemptstoexercisethisoption.

TheU.S.AccessBoardiscurrentlyupdatingguidelinesforbusesandvans. TheupdatedguidelineswerereleasedindraftformforpubliccommentinApril2007.

Thedraftrevisionshavenotbeenintegratedintothisdocument,butmaybereviewed ontheAccessBoardWebsitealongwiththecommentsreceivedthroughthefollowing Webpage:http://www.access-board.gov/news/vehicle-comments.htm.

TheexistingADAvehiclespecificationsrequireacombinationofdesignandperformancecriteriafortie-downandoccupantrestraintdevices(inordertopreventwheelchairsfrommovingaboutinsidethevehicle).SomestakeholdersindicatedconfusionregardinghowwheelchairsshouldbeexpectedtofitormaneuverintovehiclesbasedontheADAvehiclespecifications.Forexample,theminimumrequiredwheelchairparkingspaceisthesameasthemaximumwheelchairsizethatmustbeaccommodated.Therequirementfor“sufficientclearancestopermitawheelchairorothermobilityaidusertoreachasecurementlocation”(38.23[a]–“General”)doesnotsayhowthisshouldbemeasured,asopposedtodetailedtreatmentofthisissueinthearchitecturalrequirementsoftheADAAG.

Itisalsoplacedapartfromthesectionontherequiredlocationandsizeofthesecurementspace(38.23[d]7–“Securementdevices”),eventhoughthelattersectionalsodiscussesproximitytothevehicleentrance.(NOTE–thisissueisbeingaddressedintheproposedAccessBoardrevision.)

WC19attachmentpointplacement.

30 StatusReportontheUseofWheelchairsandOtherMobilityDevicesonPublicandPrivateTransportation

Research and Development to Support Industry-Wide Standards and New Design Approaches

VoluntaryindustrystandardsandADAvehiclerequirementsarenotinharmony,andtheresult canbeless-than-idealvehicleconfigurations.Theidealsecurementsystemforlargeurbanbuses maynotbethebestapproachforsmallvehicles.Forexample,thedefacto“standard”(actuallyjust acommonpracticeintermsofequipmentdesign)offour-pointtie-downsisnotuniformlyagreeduponorfollowed.Insomecases,suchasonbusyurbanroutes,thetimeandergonomicsinvolved insecuringacustomer’swheelchairmaynotseemfeasibletoatransitoperator.

Transitmanagershaveexpressedthedesireforamoreuniversal,automatic,andlessphysicallycomplicatedanddemandingsystemforsecuringwheelchairs.Historically,however,thetransitprovidersegmentoftheindustryhasnotbeenveryinvolvedindevelopingstandards,andhasreliedmainlyon“ADAcompliance”asitsguide,ratherthanseekingoutbestpracticesthatmayexceedADArequirements.

Potentialalternativesecurementtechnologies,suchas“docking”andtheEuropean/Canadian rear-facing“passivecompartmentalization”approacharebeingstudiedbywheelchair-oriented researchbodiesforpossiblenewANSI/ISOstandards.Research,demonstrationandtestingof thesenewtechnologiesinthetransportationarenahasbeenverylimitedintheU.S.,butinterestisbeingspurredbythedevelopmentof“busrapidtransit”services,wherespeedandefficiencyofboardingarecritical.However,itshouldbenotedthattheoperatorcansimplyelectnottohaveamandatorysecurementpolicy.

Anotherpotentialdesignalternativeistheimprovementofspaceandmaneuverabilitybyusingrear(second)doorboarding,insteadoffrontdoorboarding.However,littleornoresearchanddevelopmenthasoccurredonthistopic.

Education and dissemination of available resources

InformationregardingWC19wheelchairoptionsisnotwelldisseminatedforconsumersandprescribing healthcareprofessionals,andevenwheelchairdealers(endvendors).

Transitaccessibilityinformation,includingpolicies,isinconsistentlycommunicatedtocustomersandthepublic.Informationregardingwheelchairaccommodationsandpoliciesoftransitsystemsvariesgreatlyfromcitytocity,andisnotavailableatallinmanyplaces.Some,butnotall,transitagencieshave“mandatory”securementpolicies.

Knowledgeofauxiliarysecurementaids,suchaswheelchairmarkingandtetherstrapprograms,islimited,notallsystemshavebeentestedtomeetbasicsafetystandards,andguidelinesorspecificstandardsarelacking.

Best Practices

• Auxiliarysecurementaids,suchaswheelchairmarkingandtetherstrapprogramscanpromotesafeandfastsecurementandareofferedbyanumberoftransitprovidersanddisabilityserviceorganizations.

• Transitorientationprograms(“traveltraining”and/orvehicleorientationsessionsforwheelchairusers)andmarketingmaterialsaregoodwaystotrainpassengersonhowtoboardvehiclesandtoknowwhattoexpectingtermsofsecurementandothersafetyaspects.

• AppendixGprovidesexamplesofhelpfulinformationalbrochures.

Chapter5.RegulationandPolicy 31

Recommendations

For the industry:

Additional research

• Examinationofbarrierstomaking“transit-safe”mobilitydevicesavailabletotransitusers, includingregulationsandpoliciesofhealthcarefundingprogramsandagencies.

Activities

• Developmentofguidelinesfortransitprovidersonhow/whytoaddressriderchoiceintheirpolicy forsecurement,includinganalysisofhowcivilrights(ADA)objectivesrelatetosafetyandliability issues(commoncarrierstandardofcare,tortliability,etc.),aswellashowtoenforceandeducatecustomersregarding“mandatory”securementpolicy.ItisrecommendedthatU.S.DOTcounselbeinvolvedinthiseffort.

• Increasedcoordinationofvariousregulationsthataffectmobilitydeviceaccessibility.Ashort-term measurecouldbecreationofanindexontheFTAWebsite(andforuseinrelateddocuments)thatitemizesthelocationsofvariousregulations,guidance,andinterpretationsrelatedtomobilityaidaccessibilityinpublictransit.