Status Report on the Use of Wheelchairs and Other Mobility Devices ...
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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
R
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.