Should Intercity Bus Drivers Be Allowed To Use CB Radios? Special Report 205 (1984) / Chapter Skim
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Commiftee for the Study of Safety Benefits and Costs of Using Citizens Band Radios on Intercity Buses B
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Preface Whether the use of citizens band (CB) radios by drivers of intercity buses would enhance or decrease public safety has been debated by bus company officials and drivers' union representatives for more than a decade.
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vi Probability that CB radios would distract bus drivers and reduce operating safety; Likelihood that passengers would be annoyed by the noise and chatter, especially obscene language, coming over the CB radio; Effectiveness of CB radios in relaying emergency calls; and Existence of cost-effective alternative communications devices. Each of these seven areas is addressed in a separate chapter of this report.
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vii Some Committee members-believed that the available evidence supported the need for a federal rule requiring bus companies to allow drivers to use CB radios aboard buses. Indeed, some Committee members saw the need for improved communications among all highway users to be a dothinant question, of which the question of CB radios on intercity buses is but a specialized aspect.
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Contents EXECUTIVE SUMMARY . 1 Background, 1 Study Approach, 2 Findings, 2 1 INTRODUCTION..................................5 Divergent Views on CB Radios, 6 Previous Attempts to Resolve the Dispute, 7 Questions Addressed, 11 2 ON-BOARD INCIDENTS............................14 Driver Testimony, 15 Interviews with CB-Permitting Bus Company Management and.
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ix 5 DRIVER DISTRACTION AND STIMULATION . 49 Methodology, 49 Findings on Distraction, 50 Findings on Enhanced Alertness, 53 Summary, 53 6 ANNOYANCE AND CONVENIENCE.....................55 Methodology, 55 Findings on Annoyance, 55 Findings on Passenger Convenience, 58 Summary, 59 7 EFFECTIVENESS OF CS RADIOS AS COMMUNICATIONSDEVICES......................60 Methodology, 61 Findings on Likelihood of Response, 62 Findings on Response Time, 64 Technical Characteristics of CB Radios, 66 Summary, 67 8 ALTERNATIVE COMMUNICATIONS DEVICES.................
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x APPENDIXES AOwners of Buses Ridden..........................85 B Interview Questions for Jefferson Lines, Boise Winnemucca Stages, and Peerless Stages Personnel.....................................86 Representative Motor Vehicle Injuries by Abbreviated Injury Scale Level................88 Study Committee Biographical Information.............90
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Executive Summary The nation's principal intercity bus operators, Greyhound Lines, Inc., and Trailways Lines, Inc., enforce a policy that forbids drivers to bring citizens band (CB) radios on board their buses.
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2 have a number of technical limitations that make them unreliable and, therefore, inappropriate as a safety device. STUDY APPROACH A Committee of 12 individuals with expertise in a number of areas relevant to the questions raised by this study was formed to evaluate the claims and counterclaims.
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3 The Committee also found that intercity buses are involved annually in about 400 accidents in which someone is killed or seriously injured, or property damage exceeds $2,000. Fatalities are usually pedestrians or occupants of other vehicles, not bus passengers.
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policy prohibiting CB radios. The Committee did not address the broader issue of the need for improved highway communications.
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Introduction For more than a decade, Greyhound Lines, Inc., and Trailways Lines, Inc., the nation's largest intercity bus companies, have been at odds with their drivers over whether the drivers should be allowed to use citizen band (CB) radios on buses.
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6 accidents involving other vehicles where faster emergency vehicle response times could affect the outcome. The question is whether highway bus travel can and should be made safer through the increased use of CB radios.
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7 • on-board emergencies are relatively rare; Operation of CB radios would distract drivers from their primary task of operating the vehicle; Chatter and frequent obscenities coming over the CB would annoy passengers; Drivers would use the radios to evade police speed enforcement; CB radios are subject to range and other limitations that make them unreliable; Drivers could damage company equipment by attempting to install their own CB radios; and Setting rules for driver conduct, including prohibiting CB radio use, is simply a management prerogative. PREVIOUS ATTEMPTS TO RESOLVE THE DISPUTE Since 1974 this issue has been aired in several different arenas, but it has not been resolved.
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8 U.S. Department of Transportation Hearings The drivers turned to the federal government and requested that a rule be enacted that would require bus companies to allow drivers to bring personal CB radios on board buses.
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State and Federal Legislation The issue gained renewed life in 1980 when Greyhound suspended a driver who used a CB radio to thwart a passenger attempting to hijack a bus. The punishment of a bus driver whose actions were otherwise heroic infuriated many drivers, and the incident rallied CB proponents.
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10 state Commerce Commission under subchapter II of chapter 105 of title 49, United States Code, by the operators of such vehicles. Such study shall determine, at a minimum, the following: the effect on safety if such operators are authorized to use such radios; and the effect on safety, health, and convenience of the passengers of such vehicles if such operators are authorized to use such radios.
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11 Thus, Congress asked for an objective evaluation of the arguments advanced by proponents and opponents of CB radio use on intercity buses. A committee comprised of a dozen individuals with backgrounds in a number of areas pertinent to the questions raised was formed to study the issues and develop recommendations based on their findings.
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12 their vehicles and to compare their behavior with that of drivers who are not CB equipped. Thirty buses of nine different carriers were ridden (see Appendix A)
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13 bus company policy and perceptions that are made throughout this report. The following chapters present the evidence offered in support of the main arguments of both proponents and opponents of the use of CB radios.
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2 On-Board Incidents Many bus drivers maintain that they need CB radios to protect themselves and the bus-riding public in emergency situations. Operators of all other modes of intercity passenger transport are able to communicate with the outside world, they argue, and bus drivers should be no exception.
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15 they wish. In that case the charter group leader operates the device.
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16 The lady took sick at Echo, Utah. She had been reported sick when she transferred from a South Dakota bus at Cheyenne.
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17 INTERVIEWS WITH CB-PERMITTING BUS COMPANY MANAGEMENT AND EMPLOYEES Although Greyhound and Trailways prohibit CB radios, a number of intercity bus companies allow their drivers to bring CBS on board. The Committee thought that the experience of these firms with CB radios might indicate how the devices would be used if Greyhound and Trailways drivers had access to them.
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18 ANALYSIS OF INCIDENT FILES Although interviews, testimony, and newspaper accounts provide a rough indication of the types of situations encountered by drivers, they do little to establish the prevalence of such situations. To determine how often various kinds of on-board incidents occur, the Committee asked several bus companies to make their incident files available for review.
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19 attended Committee meetings on October 21, 1983, and June 12, 1984, discussed his company's efforts to locate the missing data. Greyhound sent letters to regional offices in areas where few or no incidents were reported, requesting that incident reports not already submitted to Phoenix be forwarded; only a handful of additional cases were produced.
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20 files, although more complete than Greyhound's, might not adequately reflect the industry-wide frequency of on-board incidents. Trailways' incident file for 1983 occupies approximately 4 feet of shelf space.
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21 have been used)
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22 Potential Incident CB Use Narrative she asked me to have someone to call. So one of the ticket agents called from the bus station.
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23 Incident Rates Incident rates were calculated to determine how frequently a driver would have occasion to use a CB radio in an emergency situation. In 1983 Trailways buses traveled 137 million miles in regular-route service, with individual drivers averaging 60,000 miles.
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24 a CB radio probably would not have been used, and in 98 incidents (57 percent) it is unclear if a driver would have chosen to use a CB radio had it been available.
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25 TABLE 2 Incidents on Trailways Buses in 1983 by Type of Incident and Potential Use of CS Radio Potential CB-Use Dontt Type of Incident Yes No Know Total Inside bus Drugs, drunk, disorderly 7 67 98 172 Assault or fight Knife 1 3 4 8 Gun _a - 1 1 No weapon - 6 12 18 Medical problem Seizure 1 22 17 40 Stroke, heart attack, chest pains 3 5 13 21 Hemorrhage 1 - 1 2 Fainting - - 2 2 Other 2 19 22 43 Theft or robbery - 28 2 30 Outside bus Rendering aid - - 3 3 Objects thrown at bus 1 10 27 38 Mechanical problems - 5 10 15 Other 1 - 7 8 Total 17 165 219 401 a Dash indicates no incident reported. drive between 10 and 134 years between opportunities to use CS radios for reporting an on-board emergency.
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26 TABLE 3 Expected Driver-Years per Incident on TraliwayS Buses Based on 1983 Experience Incident Rates Type of (driver-years Type of Incident Estimation per incident) Inside bus Drugs, drunk, disorderly Low 326 Middle 140 High 22 Assult or fight Low 2,283 Middle 846 High 127 Medical Low 326 Middle 160 High 37 Theft or robbery Low Middle 1,142 High 1,142 Outside bus Low 1,142 Middle 303 High 40 All Types Low 134 Middle 61 High 10 aTh S rate cannot be calculated because no incidents were recorded for "theft or robbery." Incidents classified as "drugs, drunk, and disorderly" would occur 860 times per year throughout the industry.
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27 would be derived from the use of a CB radio. Finally, operators of regular-route, intercity buses might expect to encounter 320 external incidents (e.g., rocks thrown at a bus)
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28 are most likely to encounter bad road or weather conditions or other emergency situations would also be most likely to take along a CB radio. Even if the bus driver has a CB radio on board and uses it, it does not necessarily follow that a call for help will be answered or that the appropriate response will result.
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3 CB Radios and Highway Accidents Approximately 44,000 people died in 1983 on U.S. highways, and 1.6 million more suffered disabling injuries (1)
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30 intercity buses (Table 4)
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TABLE 4 Accidents Involving Class I Carriers Engaged in Regular-Route, Intercity Service (2,3) Deaths Injuries Accidents Occupants Occupants Per of Other of Other No.
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32 accrue if the number of vehicles on the road with communications capabilities was increased by equipping intercity buses with CB radios. The Committee did not attempt to assess directly the probability that a real benefit would result, but rather sought to estimate the probability that the opportunity for producing such a benefit would be enhanced if CB radios were allowed on the buses of companies that now prohibit them.
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33 TABLE 5 Rural Vehicle-Miles Traveled (1981) Million Vehicle Class Vehicle-Miles Proportion Buses (Class I, intercity operations)
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34 encounter approximately 8 fatal accidents on other rural roads. Second, it should be noted that a large proportion of fatal and injury-producing motor-vehicle accidents occur on weekends and between the hours of midnight and 4 a.m.
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35 that were valid in 1979, then about 10 percent of passenger cars might have been equipped with CB radios (6)
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36 TABLE 7 Estimates of the Number of Rural Fatal Accidents per Year Where a CB-Equipped Bus Would Be the First CB-Equipped Vehicle at the Scene Probability of CB Availability on Buses Probability of CB Avail- ability on Other Vehicles Probability of CB Availability on Combination Trucks .50 .60 .70 .80 .90 .25 .05 71 66 61 57 54 .10 44 42 40 38 37 .15 32 31 30 29 28 .20 25 24 24 23 23 .50 .05 141 131 122 115 108 .10. 88 84 80 77 74 .15 64 61 59 58 56 .20 50 49 47 46 45 .75 .05 211 196 183 172 162 .10 131 125 120 115 110 .15 95 92 89 86 84 .20 75 73 .71 69 67 their policy is to require their drivers to report accidents they come upon but not to stop.
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37 TABLE 8 Estimates of the Number of Rural, Serious-Injury Accidents per Year Where a CB-Equipped Bus Would Be the First CB-Equipped Vehicle at the Scene Probability of CB Availability on Buses Probability of CB Avail- ability on Other Vehicles Probability of CB Availability on Combination Trucks .50 .60 .70 .80 .90 .25 .05 177 165 154 144 135 .10 110 105 100 96 92 .15 80 77 75 72 70 .20 63 61 59 58 56 .50 .05 354 328 306 287 270 .10 220 210 200 192 184 .15 159 154 149 144 140 .20 125 122 119 116 113 .75 .05 529 491 459 430 405 .10 329 314 300 288 276 .15 239 231 223 216 210 .20 187 182 178 173 169 conditions was their primary reason for bringing CB radios on board. Several drivers said that they use the radios only when expected weather or road conditions warrant.
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38 TABLE 9 Midpoint Estimates of the Number of Times CB-Equipped Vehicles of Different Classes Would Be the First CB-Equippped Vehicle at the Scene of an Accident (1981) Accident Severity Probability Serious- of CB on Injury Vehicle Class Board Fatal Injury Accidents Buses (Class I, intercity 0.50 operations Combination trucks 0.70 All other vehicles 0.10 Total 80 2,006 200 7,554 191,378 18,929 17,108 433,467 42,871 24,742 626,851 62,000 winter, vehicles are routinely required to use chains on this road.
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39 oncoming pickup truck was weaving its way down the highway. Even with these warnings, however, the Jefferson bus driver was unable to avoid a head-on collision with the truck.
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40 TABLE 10 Estimates of the Number of Times per Year CB Radios Might Be Used for Purposes of Safety During Regu1ar-Route,. Intercity Service Estimated Situation Number Source of Estimate Inside Bus Drugs, drunk, disorderly 81 Assault or fight 14 Medical 71 Theft or robbery 0 Outside Bus 38 Subtotal 204 Trailways incident file Bus-involved accidents 226 BMCS file Other accidentsa Fatal accidents 80 Serious-injury 200 accidents Subtotal 280 FUWA and ABA reports- Total 710 aCases where a CB-equipped bus would be the first CBequipped vehicle to arrive at the scene assuming 50 percent of buses have CB radios and 70 percent and 10 percent of combination trucks and all other vehicles, respectively, have CB radios.
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41 Highway Statistics 1982.
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4 CB Radios and Bus Speeds Spokespersons for Greyhound and Trailways claim that one reason bus drivers want CB radios is to evade speed law enforcement. It is commonly believed that many motorists use the radios to locate highway patrols and adjust their speeds accordingly.
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TABLE 11 ,Speeds of CR-Equipped and Non-CB-Equipped Vehicles in North Carolina (1) Weekend 1 Weekend 2 Percentage Percentage Complying Complying No.
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44 Another study focusing on Texas motorists found a small (usually less than 1 mph) but statistically significant difference between CB-equipped and non-CBequipped vehicles when no patrol cars were present.
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45 The decision to ride buses, therefore, was not made to generate a random sample of bus speeds for formal statistical analysis. If such an effort had been possible it would have quickly exhausted Committee resources.
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TABLE 12 Results of On-Board Monitoring of Individual Intercity Bus Speeds Range CB-Permit- CB-Prohibit- of Stan- No. of ting Co.
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47 TABLE 13 Summary of Results of On-Board Monitoring Range of No. of Mean Speed Standard Obser- Trip Spead (mph)
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48 indicate that slower highway travel speeds as a result of the 55 mph speed limit have reduced the highway fatality rate and saved thousands of lives. However, it is not obvious that a small increase in average bus speeds will result in more highway accidents.
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5 Driver Distraction and Stimulation The possibility that operating a CBradio might distract bus drivers and reduce safety is the most serious negative consequence that could result from allowing drivers to have CB radios on intercity buses. On the other hand, CB radios might enhance highway safety if they help stimulate intercity bus drivers who might otherwise become tired on long, tedious, overnight trips.
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50 FINDINGS ON DISTRACTION Not only has there been no previous research on how CB radios affect driving, there have been surprisingly few studies on how any type of in-vehicle communications system affects driving performance. What little research there is in the public domain relates to cellular radio telephone and its impact on driving control.
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51 TABLE 14 Mean Responses to Bell Laboratory Task Difficulty Questions (1) Activity Difficulty Conversing with other people in the vehicle 1.3 Hearing the mobile telephone ring 1.3 Conversing on the mobile telephone 1.8 Answering a call on a mobile telephone 1.8 Adjusting a car heater or air conditioner 2.2 Looking for a landmark on the road 2.6 Talking into a tape recorder 2.7 Tuning a car radio 2.8 Drinking coffee or other beverage 3.5 Getting change from pocket or purse to pay toll 4.3 Dialing a mobile telephone 4.6 Lighting and smoking a cigarette 4.7 Writing something down 7.7 Reading a map 7•9 perception of the difficulty of operating in-vehicle communications equipment and is far from definitive.
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52 or steering wheel) and on the time taken to complete the preselected circuit.
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53 attempt to stimulate the effect of CB radios on driving performance would be unproductive. FINDINGS ON ENHANCED ALERTNESS The issue of increased alertness is somewhat different from that of distraction, especially as it affects safety.
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54 Electrical and Electronics Engineers Transactions, Vol.
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6 Annoyance and Convenience Constant chatter and obscene language or other illegal uses of CB radios might offend many bus passengers, according to management. Bus drivers counter that earpieces effectively eliminate any potential for passenger annoyance.
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56 instances when intercity bus drivers use a CB radio, they also wear an earpiece over one ear. Although one driver who did not use an earpiece was observed, the noise from the air conditioning system and the bus drive train, as well as ambient highway noise, overwhelmed the audio transmissions.
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57 tional evidence that indicates a substantial number of CB radio users believe that obscenity on theairwaves is a problem (1)
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58 were permitted on board buses -- does not appear to be well founded. FINDINGS ON PASSENGER CONVENIENCE The bus drivers contend that there are a number of instances when having CB radios on board would promote passenger convenience.
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59 allow the driver and passengers to wait out a storm in more comfortable surroundings. Many drivers at CB-permitting companies told TRB staff that they only brought their CB radios along when they believed that there was a high probability of encountering weatherrelated problems.
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7 Effectiveness of CB Radios as Communications Devices The need for an effective system of mobile communications has been recognized by the Federal Highway Administration and other government agencies for a number of years. Considerable effort has been spent trying to identify the characteristics of such a service and.
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61 way safety. Among the features essential for a reliable System are Base station control over use, Minimal use of voice transmissions, Digital communications to minimize the, need for voice, Adequate capacity, Multiple channels, Complete coverage, and Low-cost mobile units.
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62 radios affect emergency vehicle response times (5,6)
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63 TABLE 15 REACT Membership (1977-1984)
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64 there is no way of knowing how many calls go unanswered. Supporters of CB radios point out that even though CB coverage is not complete, it is still widespread and better than no system at all.
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65 Physical response time -- time elapsed from the time the driver of the emergency vehicle started to respond to the time the vehicle arrived at the scene of the incident. This study found that notification time and physical response time were both significantly reduced by police monitoring of CB transmissions.
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66 intercity buses would probably result in some emergency calls being handled faster than otherwise, but how frequently this would be the case and how often it would make a difference are still open to debate. TECHNICAL CHARACTERISTICS OF CB RADIOS The effectiveness of CB radios in emergencies is limited by some of the technical characteristics of the equipment.
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67 the emergency channel at the scene of an accident, thus impeding emergency assistance. Equipment abuse -- Some CB radio users connect amplifiers or power microphones to their units.
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68 REFERENCES J.J. Renner and A.D.
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8 Alternative Communications Devices Recently, interest in mobile telecommunications systems has surged, largely because of the well-publicized inauguration of cellular radio telephone service in several markets. The Committee investigated a number of these systems to ascertain whether they are effective alternatives to CB radio.
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70 The alternative two-way communications technologies were reviewed taking into account the following questions: Does the alternative mitigate any of the problems associated with the use of CB radios on intercity buses? What is the cost of the alternative compared with that of CB radio?
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TABLE 16 Mobile Communicationsa Radio Legal Equipment Service Service Application Eligibility Cost (B) Cost Range' comments Personal radio Short-range mobile Unlimited Communications COmmunications; service (PRCS)
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72 users send a signal from their radios to the nearest repeater station. The repeater then signals the MTX, which activates the telephone interconnection and starts the billing timer.
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73 NASA's proposal emphasized that its LMSS would meet emergency medical, law enforcement, interstate transportation, and other needs relating to long-distance, land-mobile services throughout the United States rather than just in major markets. The system would use the MSAT spacecraft in geostationary orbit 22,300 miles above the equator.
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74 PERSONAL RADIO COMMUNICATIONS SERVICE Personal radio communications service (PRCS) , proposed by General Electric and now awaiting FCC approval, has been dubbed "a poor man's cellular." This characterization is based on an estimated capital cost of $400 to $450 for base and mobile units together and a $10 per month service fee.
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75 Personal use is prohibited. Radio prices are generally more than $500 for portable units and $1,000 for mobile units.
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76 ciency are several advantages of ACSB. However, use of the system would require a series of base stations and repeaters to provide the geographic coverage necessary.
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77 no restrictions on content of conununications, but DPLMR is primarily a business service because of cost//arid scarcity of spectrum. Users pay $100 and more5 per month plus $1,000 to $2,000 for equipment.
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9 Conclusions and Recommendation After reviewing the available evidence on the probable impacts of permitting drivers of intercity buses to bring CS radios aboard, the Committee considered a number of possible courses of action to recommend to the Secretary of Transportation. Because of uncertainties in the data concerning several key issues, the Committee had to exercise considerable judgment in interpreting the available information.
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79 of both Greyhound and Trailways agreed that Trailways' experience is probably typical of the industry as a whole, although some Committee members questioned this as sump t ion. When the Trailways data are extrapolated to the entire industry, it appears that there are about 2,000 medical, disruptive behavior, or other incidents aboard intercity buses throughout the United States each year.
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80 average speeds. The use of CB radios might have some effect on speeds, but it is probably small.
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81 guarantee that the radios will promote bus passenger convenience. Cost CB equipped is inexpensive compared with other forms of two-way mobile communications.
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82 widely available today for use by the motoring public. For the relatively near future, CB radios constitute the only viable means of mobile communications for the intercity bus industry as a whole.
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83 industry (management and labor) explore means by which in-vehicle communications can be made to serve as an even more effective device to improve highway safety.
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84 but in these cases the event, were it to occur, could have catastrophic consequences and the rule is more directly and more certainly related to affecting the outcome. Requiring flotation devices for airline passengers is a good example.
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Appendix A Owners of Buses Ridden Firm Headquarters Routes Airport Service,' Anaheim, Los Angeles-Anaheim Inc. California Anaheim-Costa Mesa Boise Winnemucca Boise, Idaho Boise-Banks, Idaho Stages, Inc.
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Appendix B Interview Questions for Jefferson Lines, Boise Winnemucca Stages, and Peerless Stages Personnel Managers Why did your company decide to allow drivers to use CBs? Is CB use now or was it ever part of a labor contract?
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87 Do you use an earpiece? Is operating or listening to a CB ever distracting to you?
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Appendix C Representative Motor Vehicle Injuries by Abbreviated Injury Scale Level1 AIS Injury-Severity Representative Code Level Injuries 1 Minor injury Superficial abrasion or laceration of skin; digit sprain; first-degree burn; head trauma with headache or dizziness (no other neurological signs)
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89 Appendix C continued AIS Injury-Severity Representative Code Level Injuries 6 Maximum injury (cur- Decapitation; torso tran- rently untreatable, section; massively crushed immediately fatal) chest.
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Study Committee Biographical Information B.J. CAMPBELL, Chairman, is a psychologist who specializes in vehicle, road, and human factors in crashes and crash injuries.
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91 ROBERT BRANDWEIN, a consulting economist, is President of Policy and Management Associates, Inc. A specialist in public policy in transportation, environmental planning,and communications, Mr.
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92 ROBERT L HESS is Professor of Applied Mechanical Engineering at the Universitiy of Michigan.
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93 ROBERT A MOLOFSKY has been Legislative Director of the Amalgamated Transit Union dince 1981.
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The Transportation Research Board is a unit of the National Research Council, which serves the National Academy of Sciences and the National Academy of Engineering. The Board's purpose is to stimulate research concerning the nature and performance of transportation systems, to disseminate the information produced by the research, and to encourage the application of appropriate research findings.
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