Passenger Train Exterior Side Door Safety, 76117-76149 [2015-30488]

Agencies

• Federal Railroad Administration
• DEPARTMENT OF TRANSPORTATION

[Federal Register Volume 80, Number 234 (Monday, December 7, 2015)]
[Rules and Regulations]
[Pages 76117-76149]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2015-30488]



[[Page 76117]]

Vol. 80

Monday,

No. 234

December 7, 2015

Part III





Department of Transportation





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Federal Railroad Administration





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49 CFR Part 238





Passenger Train Exterior Side Door Safety; Final Rule

Federal Register / Vol. 80 , No. 234 / Monday, December 7, 2015 / 
Rules and Regulations

[[Page 76118]]


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DEPARTMENT OF TRANSPORTATION

Federal Railroad Administration

49 CFR Part 238

[Docket No. FRA-2011-0063, Notice No. 2]
RIN 2130-AC34


Passenger Train Exterior Side Door Safety

AGENCY: Federal Railroad Administration (FRA), Department of 
Transportation (DOT).

ACTION: Final rule.

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SUMMARY: This final rule will improve the integrity of passenger train 
exterior side door safety systems and promote passenger train safety 
overall through new safety standards for the safe operation and use of 
passenger train exterior side doors. This final rule will limit the 
number and severity of injuries involving passenger train exterior side 
doors and enhance the level of safety for passengers and train 
crewmembers.

DATES: This final rule is effective February 5, 2016. The incorporation 
by reference of certain publications listed in the rule is approved by 
the Director of the Federal Register as of February 5, 2016. Petitions 
for reconsideration must be received on or before February 5, 2016. 
Comments in response to petitions for reconsideration must be received 
on or before March 21, 2016.

ADDRESSES: Petitions for reconsideration and comments on petitions for 
reconsideration: Petitions for reconsideration or comments on petitions 
for reconsideration related to Docket No. FRA-2011-0063, Notice No. 2, 
may be submitted by any of the following methods:
     Web site: The Federal eRulemaking Portal, 
www.regulations.gov. Follow the Web site's online instructions for 
submitting comments, to include petitions for reconsideration.
     Fax: 202-493-2251.
     Mail: Docket Management Facility, U.S. Department of 
Transportation, 1200 New Jersey Avenue SE., Room W12-140, Washington, 
DC 20590.
     Hand Delivery: Docket Management Facility, U.S. Department 
of Transportation, 1200 New Jersey Avenue SE., Room W12-140 on the 
Ground level of the West Building, between 9 a.m. and 5 p.m., Monday 
through Friday, except Federal holidays.
    Instructions: All submissions must include the agency name and 
docket number or Regulatory Identification Number (RIN) for this 
rulemaking (2130-AC34). Note that all comments received will be posted 
without change to https://www.regulations.gov, including any personal 
information provided. Please see the Privacy Act heading in the 
SUPPLEMENTARY INFORMATION section of this document for Privacy Act 
information for any submitted comments, petitions, or materials.
    Docket: For access to the docket to read background documents, any 
petition for reconsideration submitted, or comments received, go to 
https://www.regulations.gov at any time or visit the Docket Management 
Facility, U.S. Department of Transportation, 1200 New Jersey Avenue 
SE., Room W12-140 on the Ground level of the West Building, between 9 
a.m. and 5 p.m., Monday through Friday, except Federal holidays.

FOR FURTHER INFORMATION CONTACT: Pete Lapr[eacute], Railroad Safety 
Specialist, Passenger Rail Division, U.S. Department of Transportation, 
Federal Railroad Administration, Office of Railroad Safety, Mail Stop 
25, West Building 3rd Floor, 1200 New Jersey Avenue SE., Washington, DC 
20590 (telephone: 845-216-5794); or Brian Roberts, Trial Attorney, U.S. 
Department of Transportation, Federal Railroad Administration, Office 
of Chief Counsel, Mail Stop 10, West Building 3rd Floor, 1200 New 
Jersey Avenue SE., Washington, DC 20590 (telephone: 202-493-6052).

SUPPLEMENTARY INFORMATION:

Table of Contents for Supplementary Information

I. Executive Summary
II. Statutory and Regulatory Background
    A. Passenger Equipment Safety Standards Background
    B. The Need for New Design Standards and Operating Practices for 
Exterior Side Doors on Passenger Train Equipment
    C. RSAC Overview
    D. Passenger Safety Working Group and General Passenger Safety 
Task Force
III. Discussion of Specific Comments and Conclusions
IV. Technical Background
    A. Overview
    B. Scope of FRA Safety Assessment of Passenger Railroads
    C. Uses of Passenger Car Exterior Side Doors
    D. Types of Passenger Car Exterior Side Doors
    E. Exterior Side Door Configurations and Operation
    F. Assessment Findings
    1. Door Position
    2. Door Control Panels
    3. FMECA
    4. Power Door Status
    5. No-Motion Circuit
    6. End-of-Train Circuit
    7. Door Safety Features
    8. Traction Inhibit
    9. Malfunctioning Equipment and Door Lock-Out
    10. Malfunctioning Equipment and Door By-Pass
    11. Effects of Throttle Use on Powered Exterior Side Doors
    12. Mixed Consist Operation
    13. Operating Rules
V. Section-by-Section Analysis
VI. Regulatory Impact and Notices
    A. Executive Orders 12866 and 13563 and DOT Regulatory Policies 
and Procedures
    B. Regulatory Flexibility Act and Executive Order 13272; 
Certification of No Significant Economic Impact on a Substantial 
Number of Small Entities
    C. Paperwork Reduction Act
    D. Federalism Implications
    E. International Trade Impact Assessment
    F. Environmental Impact
    G. Executive Order 12898 (Environmental Justice)
    H. Executive Order 13175 (Tribal Consultation)
    I. Unfunded Mandates Reform Act of 1995
    J. Energy Impact
    K. Privacy Act
    L. Analysis Under 1 CFR Part 51

I. Executive Summary

    Having carefully considered the public comments in response to 
FRA's March 26, 2014, proposed rule on passenger train exterior side 
door safety, see 79 FR 16978, FRA issues this final rule amending the 
Passenger Equipment Safety Standards, 49 CFR part 238. This final rule 
establishes new requirements to improve the integrity of passenger 
train exterior side door safety systems and promote passenger train 
safety overall through new safety standards for the safe operation and 
use of passenger train exterior side doors (also sometimes referred to 
in this rulemaking as ``doors'' and ``side doors''). Through the new 
requirements in this final rule, FRA intends to limit the number and 
severity of injuries associated with the use and operation of passenger 
train exterior side doors and increase the overall level of safety for 
passengers and train crewmembers.
    This final rule is based on recommended language developed by the 
Railroad Safety Advisory Committee's (RSAC) General Passenger Safety 
Task Force (Task Force) and includes new requirements for both powered 
and manual exterior side doors and door safety systems on passenger 
trains. Operating rules for train crews relating to exterior side doors 
and their safety systems on passenger trains and new definitions for 
this part are also included in this final rule. In addition, this final 
rule incorporates by reference American Public Transportation 
Association (APTA) Standard PR-M-S-18-10, ``Standard for Powered 
Exterior Side Door System Design for New Passenger Cars'' (February 11, 
2011), which contains a set of minimum

[[Page 76119]]

standards for powered exterior side door systems and door system 
functioning on new rail passenger cars and locomotives used in 
passenger service.
    Other requirements established by this final rule include, but are 
not limited to: Equipping new passenger cars with powered exterior side 
doors with an obstruction detection system; connecting new passenger 
cars (with either manual or powered exterior side doors) to a door 
summary circuit to prohibit the train from developing tractive power if 
any of the exterior side doors are open; requiring safety briefings for 
train crews to identify crewmember responsibilities for the safe 
operation of exterior side doors; operating passenger trains with their 
exterior side doors and trap doors closed when in motion between 
stations, except in limited circumstances or with FRA prior approval; 
and requiring railroads to develop operating rules on how to safely 
operate the exterior side doors of a passenger train with incompatible 
exterior side door safety systems and how to safely override a door 
summary circuit or a no-motion system, or both, when an exterior side 
door failure or malfunction occurs.
    FRA analyzed the economic impacts of this final rule against a ``no 
action'' baseline that reflects what would happen in the absence of 
this final rule. FRA expects the requirements for the operating rules 
and adopted APTA standard for new equipment to prevent on average about 
19 injuries and 0.20 fatalities per year in the future based on similar 
incidents in the past. The estimated benefits from these prevented 
casualties over a 20-year period total $83.9 million undiscounted; 
these estimated benefits have a present value of $43.3 million 
calculated using a 7-percent discount rate, and a present value of 
$61.7 million calculated using a 3-percent discount rate. Given that 
some procedural and equipment errors may still occur in the future, the 
analysis assumes a 50-percent effectiveness rate in preventing these 
types of injuries and fatalities when estimating monetary benefits. In 
addition, there may be other benefits from the final rule, such as 
fewer passenger claims for personal property damage, maintaining 
passenger goodwill and trust, and by lowering future maintenance costs 
(by encouraging the replacement of older equipment with new passenger 
cars equipped with more reliable door safety systems).
    FRA also quantified the incremental burden of the final rule upon 
commuter and intercity passenger railroads. The primary contributor to 
the estimated costs is the train crew's task of verifying that the door 
by-pass devices on the train are sealed in the normal non-by-pass mode, 
an operating rule requirement. The door by-pass devices are used to 
override door safety systems in certain circumstances, for example, 
allowing a train to develop tractive power and complete its route. The 
second greatest cost factor is the estimated cost to implement some of 
the door safety features on new passenger cars with either powered or 
manual doors and locomotives used in passenger service. The estimated 
costs over the 20-year period of analysis total $15.2 million 
undiscounted, with a present value of about $8.3 million calculated 
using a 7-percent discount rate, and a present value of about $11.5 
million calculated using a 3-percent discount rate. The rule incurs 
relatively small costs because most of the initial burdens are expected 
from changes to railroad operating rules. The design standards for door 
safety systems apply to new passenger cars and locomotives used in 
passenger service where they can be installed cost-effectively.
    These costs and benefits result in net positive benefits over 20 
years of about $68.7 million undiscounted, with a present value of 
$35.0 million calculated using a 7-percent discount rate, and present 
value of $50.2 million calculated using a 3-percent discount rate.

II. Statutory and Regulatory Background

A. Passenger Equipment Safety Standards Background

    In September 1994, the U.S. Secretary of Transportation (Secretary) 
convened a meeting of representatives from all sectors of the rail 
industry with the goal of enhancing rail safety. As one of the 
initiatives arising from this Rail Safety Summit, the Secretary 
announced that DOT would begin developing safety standards for rail 
passenger equipment over a five-year period. In November 1994, Congress 
adopted the Secretary's schedule for implementing rail passenger 
equipment safety regulations and included it in the Federal Railroad 
Safety Authorization Act of 1994 (Act), Public Law 103-440, 108 Stat. 
4619, 4623-4624 (November 2, 1994). Congress also authorized the 
Secretary to consult with various organizations involved in passenger 
train operations for purposes of prescribing and amending these 
regulations and issuing orders under them. Section 215 of the Act 
(codified at 49 U.S.C. 20133). The Secretary has delegated such 
responsibilities to the Administrator of FRA. See 49 CFR 1.89.
    FRA formed the Passenger Equipment Safety Standards Working Group 
to provide FRA with advice in developing the regulations Congress 
mandated, and on May 12, 1999, published a final rule containing a set 
of comprehensive safety standards for railroad passenger equipment. See 
64 FR 25540. After publication of the final rule, interested parties 
filed petitions seeking FRA's reconsideration of certain requirements 
in the rule and on June 25, 2002, FRA completed its response to the 
petitions for reconsideration. See 67 FR 42892. The product of that 
rulemaking was codified primarily at 49 CFR part 238 and secondarily at 
49 CFR parts 216, 223, 229, 231, and 232.
    One of the purposes of the Passenger Equipment Safety Standards is 
protecting the safety of passenger train occupants in an emergency, 
including providing for emergency egress and rescue access through 
exterior side doors. See 49 CFR 238.235 and 238.439. FRA has engaged in 
rulemaking to amend the Passenger Equipment Safety Standards, and 
notably, on February 1, 2008, FRA published a final rule on Passenger 
Train Emergency Systems addressing: Emergency communication, emergency 
egress, and rescue access. See 73 FR 6370. FRA has also established 
additional requirements for passenger train emergency systems, 
including doors used for emergency egress and rescue access. See 
Passenger Train Emergency Systems II final rule published on November 
29, 2013, 78 FR 71785. However, these subsequent proceedings have not 
focused on the safety of doors systems in non-emergency situations.

B. The Need for New Design Standards and Operating Practices for 
Exterior Side Doors on Passenger Train Equipment

    FRA's principal reason for issuing this final rule is to reduce the 
number and severity of injuries caused by exterior side doors striking 
or trapping passengers as they board or alight from passenger trains in 
non-emergency situations. FRA has observed that incidents involving 
exterior side doors in routine use on passenger trains have previously 
resulted in casualties and serious injuries.
    For example, on November 21, 2006, a New Jersey Transit Rail 
Operations (NJT) train was departing a station in Bradley Beach, New 
Jersey, when the closing exterior side doors of the train caught and 
held a passenger attempting to exit the train. The passenger was then 
dragged by the train along the station

[[Page 76120]]

platform as the train was leaving the station. The passenger died as a 
result of his injuries.
    Through its investigation of the incident, FRA found that the 
train's assistant conductor was not in the proper position to monitor 
all the train's exterior side doors as they were closing. Specifically, 
the assistant conductor could not see the passenger exit through a door 
behind where the assistant conductor was located. The assistant 
conductor also did not observe the door-indicator lights on the door 
control panel which indicated that the exterior side doors on the 
passenger car were not all closed as intended. In addition, FRA learned 
the train was being operated with its door by-pass switch activated, 
negating the passenger car's door safety system, which was designed to 
reopen the exterior side doors after detecting an obstruction.
    As a result of this incident, NJT reviewed its operating rules and 
limited the use of the door by-pass feature in its passenger train 
operations. Contemporaneously, FRA issued Safety Advisory 2006-05, 
``Notice of Safety Advisory: Passenger Train Safety--Passenger Boarding 
or Alighting from Trains'' (71 FR 69606, Dec. 1, 2006). The safety 
advisory recommended that passenger railroads reassess their rules and 
procedures to make certain that trains do not depart a station until 
all passengers have successfully boarded or alighted from the train. 
The safety advisory also noted the important role of passenger train 
crews in the safe operation of a train after a door by-pass switch has 
been activated. FRA encouraged passenger railroads to voluntarily 
implement the recommendations of the safety advisory.
    Subsequently, there have been other instances where passengers have 
become trapped in the exterior side doors of trains. In one instance, 
on February 2, 2007, a local police officer witnessed a passenger stuck 
between the exterior side doors of a moving Long Island Rail Road 
(LIRR) train at a station in New York City, New York. As a result, the 
passenger's right leg was dragged on the tactile strip of the station 
platform, causing abrasions to the passenger's leg. The police officer 
stopped the train and pulled the passenger free from the exterior side 
doors.
    Other instances were ``close calls'' in which passengers narrowly 
avoided injury. On March 4, 2011, in La Grange, Illinois, a passenger's 
arm and cane got caught in the closing exterior side doors of a 
Northeast Illinois Regional Commuter Railroad Corporation (Metra) train 
while attempting to board the train. A fellow passenger inside the 
train was able to flip the door's emergency switch just as the train 
began to move. As a result, the trapped passenger was released and 
avoided being dragged down the station platform. A similar incident 
occurred on a Metra train on December 19, 2009, when a four-year-old 
boy's boot became caught in the exterior side doors when alighting from 
the train. The child's mother had to pull the child's leg free from the 
train doors as the train was leaving the station.
    As a result of these types of incidents, Metra changed its 
operating rules to require a ``second look'' up and down each train 
before departing a station. This operating rule requires the conductor 
to close all exterior side doors on the train, except the door in which 
he or she is standing, to take a second look up and down the station 
platform to make sure all the train's exterior side doors are closed 
and clear of passengers. After the second look, the conductor may then 
close his or her open door and signal to the train's engineer to depart 
the station.
    Since the issuance of the NPRM for this rulemaking in March 2014, 
there have been other injuries involving passengers and exterior side 
doors. The Massachusetts Bay Transportation Authority (MBTA) reported 
to FRA that in June 2014 an MBTA passenger got his luggage stuck in the 
closing exterior side doors of the train and was subsequently injured 
when the train started to move. When the train started to leave the 
station platform, the passenger sustained injuries after he was dragged 
by the train a total of 30 to 40 feet before falling.
    In addition, Peninsula Corridor Joint Powers Board (Caltrain) 
reported to FRA an incident that occurred in October 2014 where a 
passenger was injured after she put her hand in the closing exterior 
side door of a passenger train at the Burlingame Station in San Mateo, 
California. The train's passenger door safety system did not work as 
intended and the passenger got her hand caught in the closing door and 
it did not re-open. As a result, the passenger was dragged by the train 
approximately 10 feet.
    Based on these types of incidents, and other findings and concerns, 
including initial findings from assessing the safety of exterior side 
door systems on passenger railroads in the northeast region of the 
United States, FRA tasked RSAC to review Safety Advisory 2006-5 and 
develop recommendations for new safety standards to improve passenger 
and crewmember safety for the operation and use of exterior side doors. 
The Task Force, a subgroup of the RSAC Passenger Safety Working Group 
(Working Group), was assigned to develop these recommendations.
    The Task Force was already reviewing passenger station gap issues 
in April 2007 when it was assigned this task. The Task Force then 
assembled the Passenger Door Safety Subgroup (Door Safety Subgroup) to 
develop recommended regulatory language to improve the safety of 
exterior side door systems on passenger trains. FRA shared with RSAC 
its initial findings that many passenger railroads in the Northeast 
were not operated with fully-functional passenger train exterior side 
door safety systems, and FRA then conducted in-person assessments of 
the exterior side door safety systems on a total of 24 passenger 
railroads throughout the Nation. During those assessments, FRA reviewed 
many different models of passenger equipment and gained important 
information about the risks to passengers and train crews associated 
with the operation and use of passenger train exterior side doors. FRA 
shared this information with the Door Safety Subgroup, which met a 
total of nine times from 2008 to 2011.
    Through its meetings, the Door Safety Subgroup developed proposed 
regulatory language to improve the safe use and operation of exterior 
side doors on passenger trains. The Task Force approved the consensus 
language on February 25, 2011, which was then adopted by the Working 
Group and full Committee on March 31, 2011, and May 20, 2011, 
respectively.
    While the Door Safety Subgroup was developing proposed regulatory 
language, APTA developed and approved Standard SS-M-18-10, ``Standard 
for Powered Exterior Side Door System Design for New Passenger Cars.'' 
Subsequent to RSAC's approval of the consensus recommendations that 
form the basis of this final rule, APTA changed its numbering 
nomenclature for its safety standards, which resulted in the numbering 
of this standard changing from SS-M-18-10 to PR-M-S-18-10 without 
changing the substantive content of the standard. Thus, this standard 
is identified as PR-M-S-18-10 in this final rule. This APTA standard 
contains minimum standards for powered exterior side door systems and 
door system function on new rail passenger cars because APTA designed 
it to be used in specifications for the procurement of new passenger 
cars. The standard addresses door system design requirements at the 
door level, car level, and train level. Non-powered doors and other 
types of doors on passenger cars that are not exterior side doors are 
not

[[Page 76121]]

covered by APTA's standard. This final rule incorporates by reference 
this APTA standard for powered exterior side door safety systems on new 
passenger cars and connected door safety systems on new locomotives 
used in passenger service. A copy of this APTA standard is included in 
the docket of this rulemaking for public review.

C. RSAC Overview

    In March 1996, FRA established RSAC as a forum for collaborative 
rulemaking and program development. RSAC includes representatives from 
all of the agency's major stakeholder groups, including railroads, 
labor organizations, suppliers and manufacturers, and other interested 
parties.\1\ To the maximum extent practicable, FRA utilizes RSAC to 
provide consensus recommendations with respect to both proposed and 
final agency action. When appropriate, FRA assigns a task to RSAC, and 
after consideration and debate, RSAC may accept or reject the task. If 
RSAC accepts the task, it establishes a working group with the 
appropriate expertise and representation of interests to develop 
recommendations to FRA for action on the task. These recommendations 
are developed by consensus. A working group may establish one or more 
task forces to develop facts and options on a particular aspect of a 
given task. The individual task force then provides that information to 
the working group for consideration. When a working group comes to 
unanimous consensus on recommendations for action, the package is 
presented to the full Committee for a vote. If RSAC is unable to reach 
consensus on a recommendation for action, the task is withdrawn and FRA 
determines the best course of action. If the proposal is accepted by a 
simple majority of RSAC, the proposal is formally recommended to the 
Administrator of FRA. FRA then determines what action to take on the 
recommendation. Because FRA staff members play an active role at the 
working group level discussing the issues and options and drafting the 
language of the consensus proposal, FRA is often favorably inclined 
toward the RSAC recommendation. However, FRA is not bound to follow the 
recommendation and the agency exercises its independent judgment on 
whether the recommended rule achieves the agency's regulatory goal(s), 
is soundly supported, and is consistent with policy and legal 
requirements. Often, FRA varies in some respects from the RSAC 
recommendation when developing the actual regulatory proposal or final 
rule. FRA notes and explains any such variations in the rulemaking it 
issues
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    \1\ A list of RSAC member groups includes the following: 
American Association of Private Railroad Car Owners (AAPRCO); 
American Association of State Highway and Transportation Officials 
(AASHTO); American Chemistry Council; American Petroleum Institute; 
American Short Line and Regional Railroad Association (ASLRRA); 
American Train Dispatchers Association (ATDA); APTA; Association of 
American Railroads (AAR); Association of Railway Museums; 
Association of State Rail Safety Managers (ASRSM); Brotherhood of 
Locomotive Engineers and Trainmen (BLET); Brotherhood of Maintenance 
of Way Employes Division (BMWED); Brotherhood of Railroad Signalmen 
(BRS); Chlorine Institute; Federal Transit Administration (FTA); * 
Fertilizer Institute; High Speed Ground Transportation Association; 
Institute of Makers of Explosives; International Association of 
Machinists and Aerospace Workers; International Brotherhood of 
Electrical Workers; Labor Council for Latin American Advancement; * 
League of Railway Industry Women; * National Association of Railroad 
Passengers (NARP); National Association of Railway Business Women; * 
National Conference of Firemen & Oilers; National Railroad 
Construction and Maintenance Association (NRCMA); National Railroad 
Passenger Corporation (Amtrak); National Transportation Safety Board 
(NTSB); * Railway Supply Institute (RSI); Safe Travel America (STA); 
Secretaria de Comunicaciones y Transporte; * Sheet Metal Workers 
International Association (SMWIA); Tourist Railway Association, 
Inc.; Transport Canada; * Transport Workers Union of America (TWU); 
Transportation Communications International Union/BRC (TCIU/BRC); 
Transportation Security Administration (TSA); * and United 
Transportation Union (UTU).
    * Indicates associate, non-voting membership.
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D. Passenger Safety Working Group and General Passenger Safety Task 
Force

    In May 2003, RSAC established the Working Group to handle the task 
of reviewing passenger equipment safety needs and programs as well as 
developing recommendations for specific actions to advance the safety 
of rail passenger service.\2\
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    \2\ Members of the Working Group, in addition to FRA, include 
the following: AAR, including members from BNSF Railway Company 
(BNSF), CSX Transportation, Inc. (CSXT), and Union Pacific Railroad 
Company (UP); AAPRCO; AASHTO; Amtrak; APTA, including members from 
Bombardier, Inc., Herzog Transit Services, Inc., Interfleet 
Technology, Inc. (Interfleet, formerly LDK Engineering, Inc.), LIRR, 
Maryland Transit Administration (MTA), Metro-North Commuter Railroad 
Company (Metro-North), Metra, Southern California Regional Rail 
Authority (Metrolink), and Southeastern Pennsylvania Transportation 
Authority (SEPTA); ASLRRA; BLET; BRS; FTA; NARP; NTSB; RSI; SMWIA; 
STA; TCIU/BRC; TSA; TWU; and UTU.
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    In September 2006, the Working Group established the Task Force 
principally to examine the following issues: (1) Exterior side door 
securement; (2) passenger safety in train stations; and (3) system 
safety plans.\3\ After being assigned its task by the Working Group, 
the Task Force assembled the Door Safety Subgroup to develop 
recommended regulatory language to improve the safety of exterior side 
door systems on passenger trains. The Door Safety Subgroup consisted of 
Task Force members who were interested in addressing the risks 
associated with the operation and use of exterior side doors on 
passenger equipment. The Door Safety Subgroup met during scheduled Task 
Force meetings.\4\
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    \3\ Members of the Task Force include representatives from 
various organizations that are part of the larger Working Group and, 
in addition to FRA, include the following: AAR, including members 
from BNSF, CSXT, Norfolk Southern Railway Co., and UP; AASHTO; 
Amtrak; APTA, including members from Alaska Railroad Corporation, 
Caltrain, LIRR, MBTA, Metro-North, MTA, NJT, New Mexico Rail Runner 
Express, Port Authority Trans-Hudson, SEPTA, Metrolink, and Utah 
Transit Authority; ASLRRA; ATDA; BLET; FTA; NARP; NRCMA; NTSB; 
Transport Canada; and UTU.
    \4\ The Task Force met on the following dates and in the 
following locations to discuss passenger train exterior side door 
safety: April 23-24, 2008, in San Diego, CA; July 29-30, 2008, in 
Cambridge, MA; December 2, 2008, in Cambridge, MA; March 3, 2009, in 
Arlington, VA; April 21, 2009, in Washington, DC; May 27-28, 2009, 
in Cambridge, MA; July 7-8, 2009, in Philadelphia, PA; October 6-8, 
2009, in Orlando, FL; and February 24-25, 2011, in Washington, DC.
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    To aid the Task Force with its delegated task, FRA's Office of 
Chief Counsel, in conjunction with FRA's Office of Railroad Safety, 
typically drafted proposed regulatory text for discussion purposes at 
Door Safety Subgroup meetings. Door Safety Subgroup members would then 
offer suggested changes to this proposed draft text. Staff from DOT's 
John A. Volpe National Transportation System Center also attended these 
meetings and contributed to the discussions. Minutes of each meeting 
are part of the docket in this proceeding and are available for public 
inspection.
    Through these various discussions, the Door Safety Subgroup 
developed proposed regulatory language which the Task Force accepted as 
a recommendation to the Working Group on February 25, 2011. The Task 
Force's consensus language was then subsequently approved by the 
Working Group on March 31, 2011. The consensus language was then 
presented before the full Committee on May 20, 2011, where it was 
approved by unanimous vote. Thus, the Working Group's recommendation 
was adopted by the full Committee as the recommendation to FRA.
    In the March 26, 2014 NPRM, FRA proposed adding some regulatory 
text that was not expressly part of the RSAC's consensus 
recommendation. For instance, for the benefit of the regulated 
community, in proposed Sec.  238.131(c), FRA identified other sections 
in part

[[Page 76122]]

238 that include substantive door safety requirements. FRA also 
clarified that all exterior side doors on new intercity passenger train 
cars--in addition to new commuter train cars--would be subject to the 
requirements of Sec.  238.131.
    In addition, FRA made changes to the RSAC recommended language to 
clarify the proposed requirements in the NPRM. For example, FRA 
clarified that the provisions of the NPRM applied to full-sized 
exterior side doors besides those used for the boarding and alighting 
of passengers at train stations, such as baggage doors, but did not 
apply to small hatches of compartment-sized doors and the exterior side 
doors on private cars. FRA also decided not to include in the NPRM an 
RSAC recommendation that powered, exterior side passenger doors be 
connected to a manual override device capable of opening the exterior 
side doors when the doors are locked out, because this design 
requirement was already covered under existing regulations at Sec.  
238.112(a) and (b). FRA also moved an RSAC consensus item proposed 
under existing Sec.  238.305 (``Interior calendar day mechanical 
inspection of passenger cars'') to new proposed Sec.  238.133(g)(2) in 
the NPRM, so the requirement would apply to all tiers of passenger 
cars, including conventional locomotives used in passenger service.
    FRA specifically asked for comment on these areas of the proposal. 
However, FRA did not receive any comments on these or other areas of 
the NPRM where FRA specifically invited comment.

III. Discussion of Specific Comments and Conclusions

    Overall, FRA received four comments in response to the NPRM from 
the following parties: Sensotech Inc. (Sensotech), the Southeastern 
Pennsylvania Transportation Authority (SEPTA), Veolia Transportation 
(Veolia), and an anonymous commenter. The comment from Veolia was 
initially received as an email to an FRA staff director asking whether 
one of Veolia's procedures conflicted with a proposal in the NPRM. FRA 
has included the email and an attachment received by the staff director 
in the public docket for this rulemaking and is treating the email and 
its attachment as a comment on this rulemaking.
    FRA appreciates and carefully considered all comments it received 
regarding this rulemaking. The comments raised issues on what type of 
technology FRA considered when developing this rulemaking, whether FRA 
would modify its proposal in Sec.  238.135(b) that exterior side doors 
and trap doors must be closed between stations, and whether a specific 
safety procedure would be an allowable exception to the proposed 
requirement to keep the doors closed. FRA also received one comment 
that was not germane and outside the scope of this rulemaking. FRA did 
not change any of the regulatory text in this final rule based on the 
comments it received but addresses each comment below. The full text of 
every comment FRA received on the NPRM is in the public docket for this 
rulemaking at www.regulations.gov. Please note that the order in which 
the comments are discussed in this document is not intended to reflect 
the significance of the comment raised or the standing of the 
commenter.
    Sensotech submitted a comment commending FRA for its efforts to 
improve passenger safety and comfort. However, Sensotech stated it did 
not see in the NPRM any information about the use of acoustic 
technology to support passenger door safety. According to Sensotech, 
``[a]coustic technology is the most suitable technology for remote 
sensing for rail doors'' because it is not sensitive to metallic carbon 
dust created by moving trains and brake pads, and the technology is 
programmed to distinguish between outdoor elements (like hail, snow, 
and rain) versus a person or other hard objects. As a result, according 
to Sensotech, acoustic technology is more reliable in supporting 
passenger door safety than other technologies. Sensotech described an 
acoustic technology door sensor system it developed for transit bus 
doors implemented in buses. In addition, Sensotech described an 
application it developed specifically for passenger rail door 
application, stating that it has been installed more recently on a 
commuter rail system.
    FRA thanks Sensotech for providing information about the use of 
acoustic technology to promote door safety. However, FRA did not 
specify in the NPRM, and declines to specify in this final rule, what 
specific type of technology railroads must use to comply with the 
requirements of this final rule. FRA sought to develop requirements 
that are performance-based. FRA believes that allowing railroads the 
freedom to decide how best to comply with the requirements in this 
final rule allows railroads to make the most efficient decisions to 
meet FRA's safety requirements and minimize the costs of the rule.
    SEPTA submitted a comment expressing concern regarding the proposed 
requirement that all exterior side doors and trap doors be closed when 
a train is in motion between stations. (See the Technical Background, 
Section IV.A, for an overview of trap doors). SEPTA noted that, in a 
letter to FRA's Associate Administrator for Railroad Safety/Chief 
Safety Officer dated February 17, 2010, SEPTA committed to operating 
all its trains with two or fewer cars in passenger service with all 
their side doors closed between stations. In addition, SEPTA noted that 
any train with three or more cars in passenger use would be required to 
operate with its side doors closed between stations depending on the 
number of crewmembers assigned to the train. SEPTA added these 
requirements to its operating manual as a crew responsibility.
    However, since sending this letter to FRA in 2010, SEPTA replaced 
its Silverliner II and Silverliner III cars with manual doors and trap 
doors with new Silverliner V cars. According to SEPTA, these 
Silverliner V cars have power-operated doors with manual trap doors 
located inside the cars. SEPTA specifically raised concern about the 
requirement proposed in Sec.  238.135(b) that trap doors must be closed 
between stations. SEPTA stated that when the trap doors are open and 
the side doors are closed, a passenger could not fall out of the car 
from the passenger compartment. Therefore, according to SEPTA, the cars 
can move safely between stations with the cars' side doors closed and 
its trap doors open. However, SEPTA noted that the proposed language in 
Sec.  238.135(b) does not make an allowance for this car design. SEPTA 
also stated that as part of its capital program it estimates that in 
2020 it will begin to replace its current Silverliner IV fleet with new 
Silverliner VI cars, which it anticipates will be fully compliant with 
the requirements of 49 CFR 238.135. In the meantime, SEPTA suggested 
FRA allow an exception ``[w]hen the open trap [door] is located within 
the car allowing the side door to completely close over the opening 
preventing any access to the outside of the car from the passenger 
compartment.''
    In its comment to FRA, Veolia also expressed concern about the 
requirement that exterior side doors and trap doors be closed when a 
train is in motion between stations in proposed Sec.  238.135(b). 
Veolia described a ``redundant safety procedure'' at a particular 
interlocking where it requires conductors to verify the signal 
indication. Veolia believed this procedure may necessitate opening a 
door while the train is moving and sought to continue this practice. In 
addition, Veolia noted that some conductors open their workstation door 
as their train approaches the limits of its

[[Page 76123]]

authority, red signals, or other areas of particular concern. Veolia 
sought clarification on whether these practices would violate the 
requirements proposed in Sec.  238.135(b).
    After carefully considering the SEPTA and Veolia comments, FRA has 
decided not to change the language proposed in Sec.  238.135(b). 
However, as discussed further below, FRA is providing additional time 
for railroads to comply with the requirement that exterior side doors 
and trap doors remain closed when a train is in motion between 
stations. The exceptions to this requirement apply when a train is 
departing or arriving at a station and a crewmember needs to observe 
the station platform and the open door is attended by a crewmember, and 
when a crewmember must perform on-ground functions, such as, but not 
limited to, lining switches, making up or splitting trains, providing 
crossing protection, or inspecting the train.
    While the scenarios described by SEPTA and Veolia in their separate 
comments do not fall under either of these defined exceptions, Sec.  
238.135(c) allows a railroad to apply for special approval from FRA's 
Associate Administrator for Railroad Safety/Chief Safety Officer to 
operate passenger trains with exterior side doors or trap doors, or 
both, open between stations. Any request for relief must include a 
written justification, a detailed hazard analysis, and be signed by the 
railroad's chief executive officer or equivalent. FRA believes this 
approval process is the appropriate way to handle issues involving 
railroads that may need relief from the requirement in Sec.  
238.135(b), rather than establish additional, generally-applicable 
exceptions that are better addressed on a case-by-case basis. By 
requiring passenger railroads to conduct a safety analysis and apply to 
FRA for approval for a special exception, FRA will be able to make 
individualized determinations that tailor any such exception to the 
specific circumstances involved and the safety of the affected 
passengers and train crews.
    FRA received an additional anonymous comment regarding hours of 
service issues involving the trucking industry and a Federal Motor 
Carrier Safety Administration proposal. Since the comment is not 
germane to passenger door safety issues or this rulemaking, and its 
scope is not within FRA's jurisdiction, FRA did not address this 
comment in this final rule.
    With the exception of the issues the commenters raised and FRA 
discussed above, FRA did not receive any comments on the proposed rule. 
Therefore, unless specifically noted, FRA has adopted the requirements 
proposed in the NPRM in this final rule.

IV. Technical Background

A. Overview

    Passenger railroads have responded to growth in ridership by 
expanding rail service, investing in new rail equipment, and 
incorporating new technologies into their passenger equipment. This has 
resulted in the varied arrangements of powered exterior side doors in 
passenger trains today. Many types of these power door systems have 
safety features to alert train crewmembers of an obstruction in a door.
    These power door systems are complex. They employ components and 
electrical circuits to open and close the exterior side doors, contain 
door status indicators, and provide a means to determine motion and the 
end of the train. Power door systems operate electrically from commands 
given by train crews through signals from door switches, sensors, 
relays, and other devices that interface with and monitor the exterior 
side doors individually and throughout the entire trainline circuit. 
These various appurtenances typically act to provide a warning when 
exterior side doors are closing, respond to obstructions to closing 
doors, and prevent the doors from opening when a train is in motion. 
When connected to the propulsion system, these devices will inhibit the 
development of tractive power if an exterior side door is prevented 
from closing. Lock-out and by-pass systems are also employed to allow 
trains to operate even when equipment related to the exterior side 
doors is malfunctioning.
    However, not all passenger cars are equipped with powered exterior 
side door systems. In fact, for those passenger railroads with cars 
equipped with manually operated exterior side doors or trap doors, some 
have allowed the doors to remain open between train stations to 
increase operating efficiency. Trap doors are metal plates that, when 
raised, reveal a fixed or moveable stairwell to facilitate low-level 
boarding. To provide high-level platform boarding, the train crew 
closes (or keeps closed) the trap to cover the stairwell. Trap doors 
are not exterior side doors, but are manually operated by the train 
crew to enable boarding and alighting through the exterior side doors.

B. Scope of FRA Safety Assessment of Passenger Railroads

    FRA reviewed accident data involving passenger train exterior side 
doors immediately following the incident in Bradley Beach, New Jersey, 
discussed in Section II.B., above. From its review, FRA determined that 
while accidents were infrequent they could have severe consequences. 
FRA identified numerous factors, conditions, and components that could 
adversely impact the safe operation or the integrity of the door safety 
system of a passenger train. These include door position, controls, and 
status indicators, no-motion and end-of-train circuits, power failure, 
traction-inhibit, throttle movement, mixed consist operation, 
malfunctioning equipment, door operating rules, and employee knowledge 
of the door safety system(s) on the train he or she is operating.
    As noted above, FRA decided to perform a safety assessment of 24 
railroads operating passenger trains utilizing many different models of 
equipment in the United States. These assessments were performed to 
identify the risks endangering passenger and crew safety, specifically 
when passengers were riding upon, boarding, or alighting from trains. 
FRA employed analytical techniques to identify any limitations of the 
safety features engineered into the trains' exterior side doors and of 
the railroads' rules governing their employees who operate them. Each 
of the passenger railroads was assessed individually, and exterior side 
door safety concerns were found with virtually all the railroads 
surveyed. However, the door safety concerns varied among the railroads 
in nature and degree.
    There are various types of trains that are designed for particular 
purposes. The type and sequence of locomotives and cars assembled or 
coupled together to form a train is referred to as the train consist. A 
train consist can typically be changed frequently at the railroad's 
discretion. As part of its assessment, FRA reviewed the predominant 
types of passenger train service utilized in the United States to 
determine the risks posed to passengers and train crews by exterior 
side door safety systems.
    One type of service involves passenger trains with conventional 
locomotives in the lead pulling consists of passenger coaches and 
sometimes other types of cars such as baggage cars, dining cars, and 
sleeping cars. Such trains are common on long-distance, intercity rail 
routes operated by Amtrak.
    Most passenger rail service in the Nation is provided by commuter 
railroads, which typically operate one or both of the two most common 
types of service: Push-pull service and multiple-unit (MU) locomotive 
service. Push-pull service is passenger train service

[[Page 76124]]

typically operated in one direction of travel with a conventional 
locomotive in the rear of the train pushing the consist (the ``push 
mode'') and with a cab car in the lead position of the train. The train 
can then transition into the opposite direction of travel, where the 
service is operated with the conventional locomotive in the lead 
position of the train pulling the consist (the ``pull mode'') with the 
cab car in the rear of the train. A cab car is both a passenger car and 
a locomotive. The car has both seats for passengers and a control cab 
from which the engineer can operate the train. Control cables (or 
electric couplers) run the length of the train to facilitate commands 
between the control cab, passenger cars, and the conventional 
locomotive. These control cables make up an electric circuit called the 
trainline circuit. Electrical cables also run the length of the train 
to provide power for heat, light, and other purposes.
    Self-propelled electric or diesel MU locomotives may operate 
individually in passenger train service, but typically operate semi-
permanently coupled together as a pair or triplet with a control cab at 
each end of the train consist. During peak commuting hours, multiple 
pairs or triplets of MU locomotives are combined and operated together 
to form a single passenger train.
    In Amtrak's Northeast Corridor, high-speed Acela Express passenger 
train service is provided using trainsets. Acela Express trainsets are 
train consists of specific types of passenger cars such as first class, 
business class, and caf[eacute] cars that are semi-permanently coupled 
between power cars located at each end of the consist. These trainsets 
virtually never change as the power cars and passenger cars are semi-
permanently coupled and integrated together with computer controls. The 
power cars provide tractive power to both ends simultaneously and have 
a control cab from which the engineer can operate the train, but do not 
carry passengers.

C. Uses of Passenger Car Exterior Side Doors

    Passenger car exterior side doors are designed for various purposes 
on passenger trains. Most exterior side doors are used for passenger 
boarding and alighting at train stations. However, exterior side doors 
also have other uses. For example, exterior side doors can be used for 
emergency responder access and passenger egress during emergency 
situations, whether or not the doors are normally used for passenger 
boarding or alighting. As previously stated, exterior side doors can 
also be used for non-passenger functions such as loading baggage or 
stocking dining car supplies. Exterior side doors that serve these 
purposes often vary greatly in size and dimension. In some instances, 
these exterior side doors are full-sized doors, while on other 
equipment the doors are essentially just small hatches or are 
compartment-sized.

D. Types of Passenger Car Exterior Side Doors

    Through its safety assessment of exterior side door safety systems 
on passenger trains, FRA reviewed several generations of equipment. FRA 
found a wide range of doors and corresponding door safety features with 
varying levels of sophistication. The level of sophistication was 
generally limited by the technology that was available at the time that 
the passenger car was manufactured and the railroad's ability to 
purchase, or retrofit, equipment with more sophisticated door safety 
features.
    There are three types of exterior side doors in service today: 
Hinged, sliding, and plug. Hinged doors on a passenger car operate like 
a door in a home entranceway. They swing inward into the car, to open, 
and back towards the exterior of the car, to close. Exterior sliding 
doors on a passenger car are moving panels of various sizes that 
retract into pockets within the side walls of the passenger car when 
opening. Sliding doors can be designed with one panel or leaf that 
slides open and closed. Sliding doors can also consist of two bi-
parting panels or leafs, which open by retracting from each other into 
the side wall and close by joining together in the center of the 
doorway. Plug doors on a passenger car are comprised of a sliding panel 
which opens and slides along the side of the car to open the exterior 
side door. However, the sliding panel does not retract into a pocket 
like a sliding door; instead, when closed, the door conforms to the 
side of the passenger car to seal out environmental noise and minimize 
aerodynamic resistance.

E. Exterior Side Door Configurations and Operation

    Passenger railroads use a variety of configurations for the 
exterior side doors on the passenger cars in their fleets. FRA reviewed 
passenger cars with exterior side doors located at multiple locations 
along the sides of the cars: At each end, at their quarter points, and 
in the middle.
    Passenger car exterior side doors may be operated manually, or with 
either electro-mechanical or electro-pneumatic power. Manually operated 
exterior side doors are simple hinged or sliding doors that are 
manually operated by passengers or crewmembers at each station stop. 
Powered electro-mechanical doors are doors that employ an electric 
motor to drive a mechanical operator for opening and closing. Powered 
electro-pneumatic doors, like electro-mechanical doors, employ a 
mechanical operator for opening and closing. However, powered electro-
pneumatic doors use compressed air to drive the mechanical operator 
instead of an electric motor. The mechanical operators provide opening 
and closing force to each door panel or leaf through mechanical linkage 
and a gearbox or similar device. All powered door systems require 
mechanical door operators.

F. Assessment Findings

    FRA identified a number of key factors, conditions, and components 
that could impact passenger and crew safety from the use and operation 
of passenger train exterior side doors. These are addressed, 
individually, in detail below.
1. Door Position
    FRA reviewed the risk posed by the open position of exterior side 
doors while passenger trains were in motion. FRA determined that 
railroads operating passenger trains with manually operated exterior 
side doors cannot control whether an individual door is opened or 
closed unless a crewmember is present at each door. When a crewmember 
is not present, passengers themselves can open the exterior side doors 
of the cars and exit or enter the train. Therefore, the potential 
exists for passengers to jump off or on moving trains at stations. At 
the same time, FRA found that other passenger trains were purposefully 
run with their manually operated exterior side doors in an open 
position even though train crewmembers sometimes were not stationed at 
the doors.
    Passenger trains with powered exterior side doors are normally 
operated with the doors closed between stations. However, some 
passenger railroads operated trains with their doors open between 
stations. These passenger stations are in close proximity to each other 
and alternate between high- and low-level platforms for passenger 
boarding and alighting. The operation of passenger trains with open 
exterior side doors presents significant safety concerns as passengers 
and crewmembers could potentially fall out of an open door while the 
trains are moving. Due to the safety hazards arising from operating a 
passenger train with open exterior side doors, FRA has determined that, 
with limited exceptions for crew use only, passenger

[[Page 76125]]

trains should have their exterior side doors closed when they are 
moving between stations.
2. Door Control Panels
    Powered exterior side doors on passenger cars are controlled and 
operated by door control panels, which are usually located on both 
sides of each car. These panels provide an interface between the 
train's door system and the train crew, and typically require 
activation with a door key. The door key is inserted into the control 
panel and is then used to turn the panel on or off. Once the panel is 
turned on, a conductor can issue commands to open or close exterior 
side doors by pressing buttons on the panel. Some passenger trains have 
door control panels that allow only local control of the exterior side 
doors. This means the conductor can operate the exterior side doors 
only in the same car as the door control panel. Other passenger trains 
allow their door control panels to operate all exterior side doors on 
the side of the train where the panel is activated. This allows the 
door control panel in any passenger car to open simultaneously all the 
exterior side doors on one side of the train. The conductor also can 
open or close only those doors forward of the activated panel, those 
doors rearward of the activated panel, or simply the single door 
directly adjacent to the activated panel.
    FRA found many instances in which door control panels were left 
energized after the door control panel key was removed. This can occur 
when the keyhole for the door control panel key is worn or not 
maintained and the conductor removes the key without actually turning 
off the door control panel. With the door control panel energized, 
passengers can press the door-open button on the panel and open one or 
more exterior side doors on the train even when the train is still 
moving. This situation can occur on many different types of equipment.
3. Failure Modes, Effects, and Criticality Analysis (FMECA)
    As part of its assessment, FRA evaluated how the door systems on 
various passenger trains responded to a loss of door control power by 
de-energizing the door control circuit breaker. FRA found significantly 
different responses on various railroads when door control systems 
experienced a circuit failure causing a loss of power. Some exterior 
side doors closed, some did not close at all, and others simply stopped 
where they were if they were moving at the time of the failure. 
Additionally, in a number of instances, the train could still produce 
tractive power even though the door control circuit failure allowed the 
exterior side doors to remain open.
    Employees who operate the exterior side doors of a passenger train 
should understand how a safety system for a door they control will 
respond to a loss of power. Employees can then take steps to safeguard 
against any safety hazards raised by the loss of power. This final rule 
requires all door systems on new passenger cars, and connected door 
systems on new locomotives used in passenger service, to be subject to 
a formal safety analysis that includes a FMECA before being placed into 
service. By requiring new passenger cars and locomotives used in 
passenger service to be subjected to this analysis before being placed 
into service, railroads will help ensure that the failure of a single 
component of a door safety system will not create an unsafe condition 
for passengers and train crewmembers.
4. Power Door Status
    Power door status is monitored by door position switches and can be 
conveyed locally or through the trainline circuit using various 
arrangements of lights to relay the condition of the doors to the train 
crew. On most passenger trains, one or more lights illuminate on the 
interior or exterior of a passenger car above the exterior side door 
that is open. The lights then extinguish when the exterior side doors 
are closed.
    If the train's door status is configured with a door summary 
circuit for trainline display, one or more lights illuminate on the 
active door control panel when all the doors are closed on that side of 
the train. Therefore, if a power door did not close, the external and 
internal lights would remain illuminated and the trainline door status 
light on the door control panel would not illuminate. This door status 
trainline circuit is often, but not always, displayed to the engineer 
as a door closed light in the locomotive cab. When the light is 
illuminated it tells the engineer that the exterior side doors on both 
sides of the train are closed and the train is ready to safely leave 
the station.
    FRA found that all trains with powered exterior side door systems 
had some type of door status indicators train crews could use to 
determine if there was an obstruction in the exterior side doors. 
However, in many instances on-board personnel were not using the door 
status indicators as intended. In some cases, crewmembers did not use 
these indicators because the indicators' lens color was not maintained 
properly and, therefore, the indicators were not reliable. In other 
cases, FRA found that train crews looked in the general location of an 
indicator light on a door control panel, but at times mistakenly read a 
different indicator as the door status indicator because the lens color 
was not uniformly maintained. Door status indicators need to be 
maintained properly for ready and reliable reference by crewmembers 
tasked with safely operating the door systems. If properly maintained, 
these indicators should alert train crewmembers about a possible 
obstruction in an exterior side door.
5. No-Motion Circuit
    No-motion is an electric circuit the door safety system uses to 
determine if a passenger car or train is moving or not. This circuit is 
designed to prevent the exterior side doors of a train from opening 
while the train is in motion, except for a crew access door. A crew 
access door can be any exterior side door on a passenger train that a 
crewmember opens for his or her use with a door control power key. No-
motion circuitry will also cause the exterior side doors to close when 
the train accelerates above a pre-determined speed. If the no-motion 
circuit (also referred to as a ``no-motion system'' in this document) 
malfunctions, the conductor cannot open the exterior side doors using 
trainline commands since the circuit is designed to fail safely and the 
door system assumes that the train is in motion. However, if such a 
malfunction occurs, many passenger cars are equipped with a by-pass 
switch that can override the no-motion circuit and enable the exterior 
side doors to open.
    During its assessment, FRA discovered that some railroads train 
crews actually used the no-motion circuit to close the exterior side 
doors when departing stations. In these instances, train crewmembers 
were not closing the exterior side doors using a door control panel, 
but instead were using the throttle to accelerate the train and close 
the exterior side doors through the no-motion circuit. The assessment 
also identified that passenger and train crew safety was at risk on 
many railroads because safety-sensitive switches that could impact the 
door system, such as the no-motion by-pass switch, were not properly 
positioned or protected. An improperly positioned no-motion by-pass 
switch presents the risk of an undesired opening of an exterior side 
door while the train is in motion, which could go undetected by the 
train's crew.

[[Page 76126]]

    Exterior side doors should be closed only after the train crew 
determines it is safe for the train to depart the station. To protect 
passenger and train crew safety, the no-motion by-pass switch should be 
secured or sealed. This will mitigate the potential of an accidental 
activation of this safety-critical device.
6. End-of-Train Circuit
    The end-of-train circuit is part of the door safety system. The 
circuit is used to identify the last passenger car in the train 
consist, or the physical end of the train, or both. Door control system 
manufacturers have utilized various ways to identify and convey the end 
of the train to the door safety system. The end of the train is 
identified on different passenger cars by using jumpers, manual or 
automatic switches, circuitry in electric couplers, marker lights, or 
other devices. Door safety circuits can become compromised when the end 
of the train is established somewhere other than the last car of the 
train. This situation can occur by the unintentional activation of the 
end-of-train circuit. For example, some passenger cars toggle switches, 
which are readily accessible to passengers, are used to establish the 
end of the train. If improperly positioned and activated by a passenger 
or train crewmember at a location that is not at the end of the train, 
all passenger cars rearward of the car with the activated end-of-train 
circuit would not be recognized by the door safety system. Because the 
door safety features in those cars would not function, this would 
increase the risk of a passenger becoming entangled in a door and 
dragged when the train departs the station.
    FRA's assessment identified eight railroads on which end-of-train 
circuit switches were not properly positioned or protected. These 
switches should be secured and protected to prevent access by 
unauthorized personnel and unintentional activation which could 
compromise the safety of the door control system and go undetected by 
the train crew.
7. Door Safety Features
    As touched on above, the sophistication of passenger car door 
safety features is just as varied as the arrangement of the exterior 
side doors themselves. Hinged-type manually operated exterior side 
doors do not utilize any specific door system safety features. Yet, FRA 
found that all but one model of passenger cars with manual or powered 
sliding-type doors employed a flexible, rubber-like strip of varying 
widths on the leading edge of the door. This flexible strip runs from 
the floor to the ceiling along the edge of the door to seal the car 
interior from environmental conditions. Although not necessarily 
intended for a door system safety purpose, this flexible strip or seal 
on the edge of the door is pliable and bends, which aids in pulling an 
obstruction free from the door. In addition, FRA found that some power 
door systems added a door push-back feature intended