Use of Rear-Facing Position for Common Wheelchairs on Transit Buses (2003)

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14 CHAPTER THREE CURRENT PRACTICE: CANADIAN TRANSIT SYSTEMS, INTERNATIONAL REGULATIONS AND STANDARDS, AND NEW DEVELOPMENTS IN NORTH AMERICA SURVEY OF CANADIAN PRACTICE Survey of Canadian Transit Systems Using the Rear- Facing Position During the summer of 2002, transit systems in Canada that had adopted the rear-facing system were surveyed concern- ing their experiences. The questionnaire was also translated into French for the benefit of transit systems in Québec (see Appendix A). Responses were received from 100% of transit systems in Canada known to use the rear-facing po- sition in accessible low-floor buses. The respondents were • BC Transit (including Victoria and the municipal transit systems in the province of British Columbia), • Grand River Transit (Kitchener, Ontario), • Hamilton Street Railway (Hamilton, Ontario), • Mississauga Transit (Mississauga, Ontario), • Société de Transport de Montréal (STM) (Montréal, Quebec), and • Ottawa–Carleton Regional Transit Commission (OC Transpo) (Ottawa, Ontario). BC Transit and Grand River Transit had buses with forward-facing systems before adopting the rear-facing system. They will continue to operate those buses. BC Transit has recently adopted a “combi” design as its stan- dard design for all future buses. This design involves a combination of both rear- and forward-facing positions and will be discussed in more detail later in this chapter. The other four Canadian transit systems adopted the rear-facing position from the outset of their deployment of wheelchair-accessible buses. In addition, the Edmonton Transit System has decided to adopt the rear-facing approach on its next bus order. It was learned that other transit systems in the province of Quebec operate low-floor buses, but they have yet to provide accessibility for wheelchairs. They plan to adopt the rear-facing system, similar to the one used in Montréal. Basic information concerning the six Canadian transit systems that have adopted the rear-facing position is provided in Table 2. The majority of survey respondents provide two positions for wheelchairs on low-floor buses. The exception is STM (Montréal), which provides only one. Rear-Facing System Floor Dimensions The length of rear-facing space (measured along the longi- tudinal axis of the bus) varies from 1.3 to 1.52 m (52 to 60 in.) for a single rear-facing space, and up to 2.41 m (96.4 in.) for combined contiguous rear- and front-facing spaces. These dimensions equal or exceed the European standard of 1.3 m (52 in.). TABLE 2 INFORMATION ON TRANSIT SYSTEMS WITH REAR-FACING POSITION Primary System Information Transit System Total Bus Fleet Low-Floor Bus Fleet % of Accessible Fleet with Rear Facing Position Length Width BC Transit 491 399 41* 1.41 m (56.4 in.) 0.79 m (31.6 in.) GRT 143 78 90 2 m (80 in.) 1 m (40 in.) HSR 191 80 100 1.42–1.75 m (57–70 in.) 0.65–0.75 m (26–30 in.) MT 327 101 100 1.3 m (52 in.) 1.2 m (48 in.) STM 1,565 545 100 1.6 m (64 in.) 0.98 m (39 in.) OC Transpo 900 330 100 1.52 m (60 in.) 0.75 m (29 in.) *BC Transit has now adopted the rear-facing position as part of it’s combi design for all future bus orders. BC Transit, British Columbia Rapid Transit (Victoria and British Columbia municipalities); GRT, Grand River Transit (Waterloo region); HSR, Hamilton Street Railway; MT, Mississauga Transit, STM, Société de Transport de Montréal; OC Transpo, Ottawa–Carleton Regional Transit Commission.

15 The width of the rear-facing position varies from 0.65 to 1.2 m (26 to 48 in.). The majority of respondents reported that they equal or exceed the European standard of 0.75 m (30 in.), with the exception of Hamilton, which was the first transit system to adopt the rear-facing position. Back and Head Support All respondents provide a rear-facing system with a padded combined head and back support that allows proximity of a passenger’s back to the back panel. This arrangement re- quires that wheelchair wheels and handlebars be able to straddle the backrest. Aisle Stanchions All respondents use an aisle stanchion as a means of pre- venting wheelchairs and scooters from tipping or moving into the aisle. Wheelchair Securement One-half of the transit systems are using an additional strap to prevent tipping, but with the exception of Mississauga, its use is generally not mandatory. Flip Seats in Wheelchair Location All respondents provide flip seats in the area of the wheel- chair position. Some seats are always in the up position when not in use (i.e., European style), but others are not. Priority Seats in Wheelchair Location Two-thirds of survey respondents have their priority seats in the area of the wheelchair position. Priority seats are dedi- cated for use by seniors or other passengers with disabilities. Stop Request Button All survey respondents provide a separate stop request but- ton, mounted in the area of the wheelchair position, with a different audio tone to distinguish it from the general stop request. On the dash at the bus operator’s position there is also a light indicator that is distinct from the general stop request indicator. Stop Request Signs Only one of the survey respondents, BC Transit, provides a visual next stop display that is visible for rear-facing pas- sengers, who cannot view the upcoming stop and must rely on audio announcements from the driver. This sec- ond stop request sign, visible for rear-facing passengers, is not included as a standard feature on new BC Transit bus orders. Other Rear-Facing Seats One-third of respondents provide other rear-facing seats in their low-floor buses. These are typically in the rear section of the bus in a club (face-to-face) seating arrangement over the rear wheel wells. Installation of Rear-Facing Systems Rear-facing systems are currently being installed by the bus manufacturers who assume responsibility for their de- sign. This was not the case initially; the first transit sys- tems adopting the rear-facing position were obliged to in- stall the equipment themselves because of liability concerns on the part of bus manufacturers. There are four manufacturers currently providing standard transit buses to Canadian transit systems, of which three are domestic. Boarding Systems Boarding and Alighting Door Two-thirds of respondents use the front door for access by passengers using a wheelchair or scooter. The Montréal and Hamilton bus systems use the rear door for access. Boarding Equipment The majority of respondents use a flip or hinged ramp, a few use a sliding ramp, and one-half use both designs in their fleet, depending on the bus model. Bus Operator Assistance and Training Two-thirds of respondents noted that the bus operator pro- vides assistance in positioning and securing a passenger with a wheelchair or scooter, whereas one-third said that they do not. All transit systems provide their bus operators with awareness and hands-on training for assisting passen- gers with disabilities. Accessibility Committee and Focus Groups Most transit systems have an accessibility committee and previewed the rear-facing system with the committee.

16 66 33 0 10 20 30 40 50 60 70 Less then 1 minute 1 - 2 minutes Dwell Time in Minutes P er ce nt ag e of O pe ra to rs FIGURE 10 Dwell times with rear-facing systems. Two-thirds have also reviewed the system with a focus group before implementation. Operation Transportation of Wheelchairs per Day The number of passengers using a wheelchair or scooter transported by transit systems generally varies from 0.1 to 2 per day per accessible bus in the fleet. Dwell Times Two-thirds of respondents reported a dwell time of 1 to 2 min, with one-third reporting less then 1 min. One transit system that is also using forward-facing systems indicated that the average dwell time for forward facing is 3 to 4 min (Figure 10). Customer Safety All but two transit systems reported having had no safety incidents involving wheelchairs using the rear-facing posi- tion. One respondent reported that there had been one inci- dent when the passenger turned the power back on to his scooter, thus releasing the brakes. As a result, the scooter rolled and tipped onto another passenger after the bus turned left. A second transit system reporting safety incidents keeps detailed accident logs by date, bus number, and description and location of action. The following is a summary of the only three pertinent on-board incidents identified: 1. A wheelchair passenger ran over the toe of another passenger while maneuvering inside the bus. 2. A scooter and passenger tipped over when the bus cornered (in a bus without an aisle stanchion). 3. A wheelchair tipped over when the bus cornered (in a bus without an aisle stanchion). Transit System Acceptance According to respondents’ comments, transit systems pre- fer the rear-facing systems on low-floor buses for the fol- lowing reasons: • The bus operator does not have to be involved in de- ploying tie-downs and belts—only for operating the ramp. • There is little need to maintain and replace straps. • The system adapts easily to most common wheel- chairs and scooters. • The time required for passengers using wheelchairs and scooters to position themselves in place is minimized, reducing dwell time and disruption to schedules. Conversely, there are drawbacks. Components that are currently used to prevent wheelchairs and scooters from

17 moving into the aisle require further study, for the follow- ing reasons: • Fixed stanchions can take up space in aisles and in- terfere with passenger flow, • Movable flip-up armrests cannot be operated by some passengers in wheelchairs, and • The deployment of straps used to prevent tipping may require the assistance of other persons. Customer Acceptance Some respondents indicated that there had been some ap- prehension from the wheelchair user community concerning the rear-facing position before its implementation. However, informal feedback received by respondents suggests that, af- ter implementation, consumer acceptance is positive. • The rear-facing position provides great independence to the user and usually does not force them to rely on the assistance of other persons. • There is usually no need for physical contact between the passenger and the bus operator to attach and re- move straps. • Very few passengers have indicated that they cannot ride facing to the rear. • Freedom of choice has been enhanced with the intro- duction of BC Transit’s combi design systems that allow the use of either the forward- or rear-facing position. However, rear-facing positions tend to be preferred by wheelchair users even when they have the choice. Customer Suggestions Respondents received the following feedback and sugges- tions for enhancing the rear-facing design: • Provide a visual display of the next stop for rear- facing passengers; often oral announcements by bus operators are inaudible. • Advise the bus operator not to start moving the bus before the wheelchair or scooter passenger is prop- erly positioned. • Do not place “priority” seats in the wheelchair area, because it creates conflicts with persons with other disabilities. INTRODUCTION OF THE COMBI DESIGN BY BC TRANSIT Profile of BC Transit System BC Transit is the provincial Crown corporation charged with providing public transportation throughout the prov- ince of British Columbia, outside of the Greater Vancouver area. BC Transit plans, funds, manages, markets, and con- tracts for transit systems in 50 British Columbia munici- palities. In total, BC Transit serves some 1.6 million peo- ple, providing more than 34 million unlinked revenue trips annually. BC Transit has a fleet 491 buses, of which 399 are low- floor. BC Transit in Victoria, the capital of the province, has a fleet of 200 buses, of which 158 are low-floor. This case study was carried out in Victoria, the headquarters of BC Transit. The provincial fleet of low-floor buses consists of • Fifty-one 9-m (30-ft) low-floor buses equipped with two rear-facing systems in tandem, • Eighty-four 10.8-m (35-ft) low-floor buses equipped with one combi system (i.e., combined rear- and for- ward-facing in one position), • Twenty-nine 12-m (40-ft) double-decker buses equipped with one rear-facing and one combi system on opposite sides, and • Two hundred and thirty-five 12-m (40-ft) standard buses equipped with two forward-facing systems. BC Transit currently is using a variety of wheelchair se- curement systems and configurations in its fleet. The fol- lowing are some of the features: • Rear-facing system with fixed aisle stanchion and op- tional straps; • Rear-facing system with straps only [on 12-m (40-ft) double-deckers]; • Combi 1 with one forward- and one rear-facing sys- tem in the same location, which can be used by only one wheelchair passenger at a time; • Combi 2 with one forward- and one rear-facing sys- tem in the same location, but which can be used by two wheelchair passengers at the same time (this is to become the standard system); and • Forward-facing system with two rear straps, plus one additional front strap for scooters. Access to all buses for passengers using a wheelchair or scooter is by means of the front door over a ramp. The demand for wheelchair transportation in British Co- lumbia varies according to demographics. BC Transit in Victoria transports on average one wheelchair passenger per accessible bus per day. On some routes that cover areas where more persons with mobility disabilities live or need transportation to hospitals, shopping, etc., up to four wheelchairs per bus are transported on any given day. Vic- toria has a mild climate that is attractive as a retirement community. Its aging population creates a steady increase

18 of demand for accessible transportation services. In addi- tion to accessible low-floor buses, BC Transit provides specialized door-to-door service for those with mobility impairments who cannot use public transportation. An ac- cessible taxi service is also available for people who are not mobility impaired but have other impairments and can- not use fixed-route public transportation; for example, per- sons with Alzheimer’s disease, mentally impaired persons, and persons with heart and stamina problems. Trends re- lated to the use of wheelchairs and scooters seem to indi- cate an increase in the number of scooters, especially by older seniors. Some designs exceed the standard wheelchair enve- lope [1.22 m (48 in.) long and 0.75 m (30 in.) wide] and cannot be accommodated within the bus, primarily because their limited turning radius prevents making the maneuver from the ramp into the aisle. BC Transit, in cooperation with its consumers, has provided decals for those wheel- chairs and scooters that fit the available bus envelope and thus are certain that they can access any low-floor bus. Initial Forward-Facing Design and Issues In 1992, BC Transit in Victoria became the first Canadian transit system to equip its fleet with accessible low-floor buses. Because severe incidents are extremely rare on ur- ban transit buses, BC Transit decided to develop its own forward-facing securement system, one that provided more flexibility than did prevailing systems at the time. This de- sign is still used in BC Transit’s 12-m (40-in.) low-floor buses. It consists of a horizontal wheel stop under a flip-up seat bench that is slightly angled toward the aisle to allow for easier getting in and out of the position. Two rear tie- downs, anchored to the wheel stop, are attached to the wheelchair to prevent forward and sideway movements. In the case of scooters, an additional strap is placed over the footrest, which prevents the scooter from tipping and slid- ing when the bus is cornering under regular and severe op- erating conditions (Figure 11). An additional passenger re- straint is available; however, its use is not mandatory. This innovative forward-facing design is less laborious for the bus operator, who has only to attach two straps, or three in case of a scooter. Although this innovative forward-facing design was ef- fective, it nonetheless created a number of problems for the transit system and its passengers. • To maneuver into the forward-facing position, the passenger must turn 180˚ in front of the position, re- quiring extensive swept floor space, and interfering with other passengers, especially when the bus is full. • The dwell time is from 2 to 4 min per wheelchair passenger, with most of the time taken up by maneu- vering into position and the attaching of straps by the bus operator. FIGURE 11 Forward-facing position in combi design, with two rear tie-downs and one strap over the footrest of the scooter. • The operator must leave his or her position and de- ploy straps and hooks to the wheelchair or scooter; alternatively, this function can be performed by a companion. • Close physical contact between the operator and pas- senger is unavoidable and detrimental to a dignified procedure. • The passenger depends completely on another per- son—operator or companion—to assist in securing the wheelchair or scooter. • Straps require cleaning maintenance and are often lost or damaged, thus creating additional cost for the operator. • There is a lack of designated attachment points on most wheelchairs and scooters, and this can result in damages or injuries if the straps cannot be properly attached. • There is the risk of injury for operators when attach- ing or removing the straps, because of the awkward position they must assume, often on their knees, twisting behind the wheelchair. Such injuries can re- sult in additional health costs and loss of productive labor for the transit system. BC Transit’s Experience with Rear-Facing Systems To solve the previously mentioned problems, BC Transit opted in the late 1990s to introduce the rear-facing system on its new low-floor buses. BC Transit’s own crash testing and experience, along with experiences from European op- erators and research, as reported in CUTA’s STRP research, indicated that • Large urban buses, with a larger mass, experience smaller forces at severe acceleration and deceleration then smaller vehicles with smaller masses. • Collisions and crashes in urban buses are extremely rare.

19 • Generally, passengers in urban buses, especially those standing, are not provided with any safety pro- visions, except for handholds and stanchions. Pas- sengers who are seated are not required to wear seat belts. The overall safety level provided is based on the regular operating conditions of the bus, or possi- bly for severe braking in the worst case. • Passengers in wheelchairs are more protected than other passengers on the bus and possibly are singled out. • The solution of the rear-facing position had been developed in the mid-1980s in Germany and the United Kingdom, based on the foregoing rationale and research for unsecured wheelchairs. FIGURE 12 Transit double-decker bus. BC Transit, responsible for vehicle procurement in mu- nicipal transit operations in British Columbia except for those in the Vancouver area, introduced the first rear-facing system on its new 9-m (30-ft) low-floor buses in 2000. These buses were deployed in 16 municipalities. They en- abled the introduction of accessible conventional service in several communities. BC Transit held open houses at its facilities to introduce the new accessible service (and on- board design) to its passengers using wheelchairs and scooters. Disability trainers and new low-floor bus models, equipped with rear-facing systems, were made available so that passengers could practice boarding and alighting. This effort helped to reduce dwell times once passengers be- came familiar with the system. It also helped passengers to evaluate their own skills, abilities, and mobility aid for ac- cessing a bus, which was especially helpful for those per- sons with oversized mobility aids or who have very wide turning radii as commonly found in the new four-wheel scooters. In 2001, BC Transit introduced two new low-floor bus models: the 10.6-m (35-ft) model and the 12-m (40-ft) double-decker (Figure 12). The 35-ft model was equipped with one combi system, and the double-decker with one combi and one rear-facing system. The combi design con- sists of one forward-facing and one rear-facing system in the same location. The reason for providing a combi sys- tem was threefold: 1. To provide those passengers who have difficulties traveling in the rear-facing position with a choice; 2. To make more effective use of the space available, because the maneuvering for forward- and rear- facing positions is shared; and 3. To make the transition easier for passengers who are used to the forward-facing system. The 9-m (30-ft) low-floor bus is equipped with two rear-facing positions in a tandem configuration at curbside (Figure 13). Both positions have an aisle stanchion to pre- vent the tipping and moving of wheelchairs or scooters into FIGURE 13 Two rear-facing systems in tandem at curbside in 9-m (30-ft) BC Transit low-floor bus. the aisle. There are additional retractable straps to carry out the same function, but their use is optional, and not man- dated. The straps provide additional safety, especially for passengers who lack the upper body strength to hold on to the handrails and stanchions provided. Both positions have a flip seat at each back panel, but no flip seats along the wall. This allows for the placement of stanchions as close as possible to the wall, to minimize interference with pas- senger flow in the aisle. Rear-facing flip seats for other passengers also help to minimize the negative image asso- ciated with wheelchair passengers’ being the only passen- gers facing to the rear. Combi Design The combi design was first introduced by BC Transit in Victoria in 2001, but only recently installed in its low-floor buses (Figure 14). It is based on the principle for choice, giving passengers who cannot travel facing the rear the op- portunity to use the forward position instead. Currently, several BC Transit buses are equipped with the combi sys- tem in a variety of design configurations. To date, BC

20 Transit is the only transit system in Canada to have ex- perimented with and adopted this design. Currently, the combi design is used in two variations. 1. As a combination of one forward- and rear-facing system in the same position, with the possibility of a passenger in a wheelchair or scooter using either sys- tem, but not the two at the same time, owing to space limitations (Combi 1); and 2. As a combination of one forward- and rear-facing system in the same position, but using both systems at the same time (Combi 2), which is the preferred configuration where space allows. The forward-facing component in the combi design is based on the previously described forward-facing design developed by BC Transit. The rear-facing system consists of a combined padded back and head panel, a horizontal handrail on the bus wall, and an aisle stanchion (Combi 2) or a retractable strap (Combi 1). The back panel incorporates a flip-down seat that can be used when no wheelchair or scooter is using this position. Combi 1 The Combi 1 design is used by BC Transit on its 12-m (40- ft) double-decker low-floor buses (Figure 15). Because of space limitations, it has no aisle stanchion to provide maximum space for wheelchairs to maneuver in and out of position. Instead, the rear-facing position has one retract- able strap mounted at the vertical back panel aisle support at about seat height, and another retractable strap mounted at the wheel stop on the wall side. The two straps are hooked together to prevent the wheelchair from tipping or moving into the aisle, or they are connected directly to the wheelchair. The use of the straps is optional. The system was tested and meets or exceeds a dynamic force of 3 g toward the front and a recoil force of up to 1 g toward the rear. The same hooked strap system is used on the single rear-facing position on the opposite wall (Figure 16). The longitudinal distance between the forward- and rear-facing FIGURE 14 Combi system of forward and rear facing in one location, 10.6-m (35-ft) BC Transit low-floor bus (future standard for all buses). FIGURE 15 Combi 1 design on BC Transit double-decker bus with front- and rear- facing design in same position, and hooked straps to prevent tipping.

21 FIGURE 16 Two straps hooked together wrap around scooter in rear-facing position to prevent tipping, moving into the aisle, or rearward movement on BC Transit bus. FIGURE 17 Combi 2 design for two travelers in the same position on BC Transit bus. systems is 1.41 m (56.4 in.). There are no additional flip seats in the wheelchair area. Combi 2 The Combi 2 design is installed in 10.6-m (35-ft) low-floor buses, roadside. On the opposite side are aisle-facing flip- up seats, allowing for generous maneuvering room for wheelchairs and scooters. Combi 2 consists of one for- ward- and one rear-facing system, with both systems capa- ble of being used at the same time for two travelers in wheelchairs and scooters (Figure 17). In this configuration, the longitudinal distance between the two systems is 2.02 m (80 in.). On the wall adjacent to the forward-facing sys- tem are flip seats. The rear-facing system has a flip seat in- corporated into its back panel, and it has a fixed aisle stan- chion. There are also two retractable straps for use by FIGURE 18 Double-decker BC Transit low-floor bus: Combi system roadside, one rear-facing system curbside. FIGURE 19 Combi system roadside in double-decker BC Transit low-floor bus. wheelchairs and scooters in this position. Examples of the Combi 2 system are shown in Figures 18 and 19. Experience with Combi Design Depending on the layout restrictions, seat arrangements, and size of the bus, either the Combi 1 or Combi 2 design is used. Because the combi design has been only recently installed in the BC Transit fleet, there is little information available on its use. However, BC Transit staff were pleased to receive a complimentary personal letter from the vice president of the Action Committee of People with Disabilities. The author of that letter is a strong advocate of rights for persons with disabilities and has often challenged BC Transit to do more. However, the author finds that the new rear-facing combi design in the double-decker buses is a great improvement. He writes This is to tell you that after two trips in one of the double- deckers, this is the best bus for people in wheelchairs! No more waiting for the operator to find the hooks. The operator does not even have to leave his seat. Also, the entrance is more generous, and I think there’s more room to turn.

22 Although he believes there is room for even more im- provement, he continues: “Thank you very much for having brought this double decker, which is the most accessible bus so far, to our region” (From the Vice President of the Action Committee of People with Dis- abilities, Victoria, BC, personal communication to Mr. Dale Lapointe, Vice President, Fleet & Facilities, BC Transit, November 17, 2000). Other reports from operators indicate that the rear- facing position is generally preferred and occupied as a first choice in buses with combi designs, because it pro- vides greater independence. Transit staff also see the combi design as a transition for those travelers who are not yet used to the rear-facing system. One remaining issue is that there still is no ideal solu- tion to prevent the mobility aid from tipping or moving into the aisle within the rear-facing system, without assis- tance given to passengers with limited upper mobility. Wheelchair passengers with good upper mobility can at- tach the straps on their own; for those requesting it, as- sistance is provided by the bus operator. The use of straps is only recommended, not mandatory. Passengers in wheelchairs for the most part do not use the straps, which may result in the tipping of their wheelchair or scooter if they do not use the handrails or stanchions for support. Incidents BC Transit keeps a detailed log of incidents involving pas- sengers using mobility aids, as well as for other passengers who have interacted with passengers using mobility aids or boarding equipment. The following are examples from the log of April 2000 to February 2002, covering 22 months. During that time, a total of 22 incidents in- volving wheelchairs or scooters were reported, of which 3 involved on-board incidents. However, the log does not distinguish between rear- and forward-facing positions in- volved in the incident. The three on-board incidents were as follows: 1. A wheelchair passenger ran over the toe of another passenger while maneuvering inside the bus. 2. A scooter and passenger tipped over when the bus cornered (in a bus without aisle stanchions). 3. A wheelchair tipped over when the bus cornered (in a bus without aisle stanchions). The majority of safety incidents involving wheelchairs and scooters found in the safety log occurred while loading or offloading, outside the bus, etc., and were unrelated to the rear-facing position design. Benefits Several benefits of adopting the rear-facing design have been reported by BC Transit staff, including the following for the transit system: • There is less demand for the specialized parallel HandyDART service (specialized vans equipped with lifts for door-to-door service). The growth in demand is down to 2% to 3%, compared with 8% to 9% in previous years. • Dwell times have been lowered to about 1 min from the previous 2 to 4 min for the BC Transit’s forward- facing securement system (which is considerably less complex than systems designed to meet the ADA standard). • There is little involvement by bus operators for se- curement of wheelchairs and scooters. • No injuries to bus operators have occurred. • There is less cost for maintenance and replacement of straps. • Liability for the transit system has been minimized. Benefits to wheelchair passengers included the follow- ing: • They experience a dignified and independent use of the system, not having to rely on other persons for assistance. • There is little close physical contact with operators or other persons for attaching and removing straps. • Freedom of choice is found in the combi system. • There is more rapid boarding and disembarking, re- sulting in less time holding up other passengers, which can be a source of embarrassment AC TRANSIT: A LEADER IN ADOPTING THE REAR- FACING SYSTEM FOR BUS RAPID TRANSIT IN THE UNITED STATES The Alameda–Contra Costa Transit District (AC Transit), in the East Bay area of the San Francisco region, has been proactive in enhancing the access of wheelchair users to their transit system. Some of the initiatives that AC Transit has undertaken have included • Wheelchair marking/tether strap program—This pro- gram encourages tape marking of appropriate at- tachment points on the wheelchairs or, if not avail- able, the permanent attachment of fabric webbing tether straps. • Newer securement equipment—There is procurement of enhanced systems as they become available, in- cluding remote release levers, automatic tensioning, and innovative stowage.

23 • Improved employee training and customer educa- tion—These programs use retired buses that are re- tained as “Securement Training Buses.” • Cleveland Clinic Foundation Securement Proto- type—AC Transit was one of three transit systems to test the prototype of this new universal design sys- tem. AC Transit recently purchased new standard and articu- lated buses for new BRT service, with limited stops and fast boarding by means of multiple doors. This new service and its vehicles provide an opportunity to deploy the rear- facing position common in Europe and Canada. The proto- type vehicles for this new service were displayed at the 2002 APTA Exposition. Wheelchairs are accommodated by the use of a combi design involving one forward-facing position and one rear-facing position. Both positions are equipped with ADA-compliant tie-down strap securement systems, some with automatic retractable straps that are neatly stowed in compartments when not in use. The following is a description by AC Transit’s Accessi- ble Services Manager Doug Cross from a 2003 paper (24) and a recent interview: Two securement stations are located on the same side of the bus, with easy access via a ramp in the second door. This eliminates the entry area constrictions common to traditional front boarding designs. The forward-facing securement area uses traditional strap-type securements (Figure 20). The adjacent rear-facing station features a padded backrest with grab rails, and seat belts (Figure 21). This design is intended to provide “con- tainment” in the event of sudden stops or crashes, instead of relying solely on straps to hold the wheelchair in place. FIGURE 21 Rear-facing position (combi design) on prototype AC Transit BRT service bus. The rear-facing station is configured to also use ADA-style securement straps, and to be used as an optional forward- facing station in cases where passengers are not able to ride “backward” for health reasons. In this instance, strap-type frame securements are to be clipped into the floor for ADA- compliant securement. Time will tell whether this option is necessary. The regular seating areas throughout the bus feature rear- facing seating in opposing pairs. Therefore, “stigmatization” of the wheelchair user being forced to ride backward should not be an issue. The vehicles will be delivered to Oakland during 2003. Initial rides by wheelchair users on two prototype models in late 2002 were very positive, after some consumer apprehension about how such a different new layout would work. In addition to carrying out the efforts made to develop an appropriate layout configuration, staff at AC Transit has focused efforts on how to articulate and communicate local policy with respect to securement on the new buses. They opted for the following wording, at the rear-facing wheel- chair restraint location, on the buses: 1. Back up to padded backrest as close as possible. Make sure chair handles or backpacks don’t prevent backing up all the way. 2. Set wheelchair brakes and/or turn off power. 3. IMPORTANT: Pull black lap belt around and clip low across your lap (underneath armrests if possible; also at- tach shoulder belt if desired). Ask driver for assistance if necessary. FIGURE 20 Forward-facing position (combi design) on prototype AC Transit BRT service bus.

24 4. Let the driver know you are set and ready to go! • Wheelchair user may request, or driver may require, frame securements (red straps) or facing forward, for additional safety. • If using this location facing forward, frame securements are required, and lap/shoulder (black) belts are at pas- senger’s option. • If possible, 3-wheeled scooter users should transfer to a regular seat. It is clear that the choices made are a first effort to ad- dress several different and sometimes conflicting objec- tives. AC Transit has played a pioneering role in trying to adapt the rear-facing position to ADA-compliant systems. Doing so has involved some complexity and uncertainty. First, European and Canadian use of the rear-facing posi- tion does not have to accommodate ADA-compliant se- curement systems. Second, ADA securement systems were designed for use in a forward-facing position. Third, there is inadequate knowledge of applicable dynamic forces. The choices made therefore involve compromises. AC Transit staff believe that it will sometime be necessary to review the rear-facing position design in light of experience at AC Transit or other transit systems that adopt it. Such review should be done after there has been more research to gain a better under- standing concerning dynamic forces, design requirements, and appropriate system designs (Interview with Doug Cross, Accessible Services Manager, AC Transit). REGULATORY STATUS—EUROPE, CANADA, AND AUSTRALIA The principle of the rear-facing position as a safe means to accommodate wheelchairs on board standard transit buses is now fully accepted and has become the norm in Euro- pean transit systems. This approach is also becoming ac- cepted practice in Canada and Australia. The research has identified a number of standards and legal regulations that include a rear-facing system. • French regulation on the Construction of Public Transportation Vehicles (1992), • U.K. Disability Discrimination Act (1995) and the 1997 recommended specifications for the U.K. Disabled Per- sons Transport Advisory Committee (DPTAC), • European Directives for Urban Buses (2001), • Australian Disability Standards for Accessible Trans- port Guidelines (2002), and • CSA Standard D435-02 for Accessible Transit Buses (2002). French Regulation on the Construction of Public Transportation Vehicles The French Ministerial Directive Concerning the Construc- tion of Public Transportation Vehicles of 1982 was amended in July 1992 to specifically permit a rear-facing posi- tion. The amendment allows for a rear-facing position including • One wheelchair position; • A back panel that must be able to retain a wheelchair (without brakes applied) when the bus is submitted to a deceleration force of 5 m/s2 (0.5 g); • A handrail on the bus wall; • A retractable rail (or other means) to limit any lateral movement of the wheelchair; • Anti-slip material on the floor; and • A label designating that the space is reserved for a wheelchair and a second label indicating that the wheelchair should face the rear of the vehicle, be backed up to the back panel, and have the brakes ap- plied. U.K. Disability Discrimination Act (1995) and the 1997 Recommended Specifications for the U.K. Disabled Persons Transport Advisory Committee In 1993 in the United Kingdom, the DPTAC issued an ini- tial statement of recommended specifications that focused on increasing accessibility for elderly and ambulatory dis- abled persons (25). The introduction of low-floor bus tech- nology in the early 1990s led to pilot projects, such as that conducted by London Transport in 1994 in Hounslow. In turn, there was the gradual introduction of low-floor buses in regular service and widespread discussions within the DPTAC, the government, and the transit industry as to the best approach to accommodate wheelchairs on standard buses. The Disability Discrimination Act of 1995 required improved access to land-based transport (26). This was fol- lowed in 1997 by the DPTAC’s Recommended Specifica- tion for Low-Floor Buses (27). The formal Public Service Vehicles Accessibility Regulations (Statutory Instrument 2000 No. 1970) were promulgated in 2000 (28). The regu- lations require the following: • A wheelchair space not less than – 1.3 m (52 in.) measured in the longitudinal plane of the vehicle, – 0.75 m (30 in.) measured in the transverse plane of the vehicle, and – 1.5 m (60 in.) measured vertically from any part of the floor of the wheelchair space. • A backrest with the following dimensions: – The bottom edge of a backrest shall be at a height of not less than 0.35 m (14 in.) and not more than 0.48 m (19.2 in.) measured vertically from the floor of the wheelchair space. – The top edge of a backrest shall be at a height of not less than 1.3 m (52 in.) measured vertically from the floor of the wheelchair space.

25 – The backrest should have a width of ¾ not less than 0.27 m (10.8 in.) and not more than 0.42 m (16.8 in.) up to a height of 0.83 m (33.2 in.) measured vertically from the floor of the wheelchair space, and ¾ not less than 0.27 m (10.8 in.) and not more than 0.3 m (12 in.) at heights exceeding 0.83 m (33.2 in.) measured vertically from the floor of the wheelchair space. – The backrest shall be fitted at an angle of not less than 4° and not more than 8° to the vertical width. • The backrest shall be capable of bearing a load of 2000 N applied for 2 s [This implies that the back panel must withstand an acceleration force of 0.75 g given the standard weight of a common wheelchair]. • A horizontal handrail, as specified. • A clear lateral space of not less than 0.75 m (30 in.) shall be maintained. • To restrict the lateral movement of the wheelchair, there shall be a distance not greater than 900 mm be- tween any two of the following adjacent means of support fitted on each side of the wheelchair space: – A vertical stanchion, – A retractable rail, – A partition, or – The equipment fitted to the side wall. • Any stanchion, retractable rail, partition, or side wall shall be capable of bearing a load of 1000 N. • A sign stating “Please give up this seat for a wheel- chair user” or equivalent. Draft of European Directives for Urban Buses In Europe, Guideline 2001/85/EG 01, relating to special provisions for vehicles used for the carriage of passengers and comprising more than eight seats in addition to the driver’s seat, was adopted in November 2001. All member states have an obligation to provide detailed guidelines for their countries for rear-facing systems on low-floor buses by 2003. Provisions are similar to those discussed previously, ex- cept that the back panel must resist a force of 250 daN ± 20 daN for 1.5 s (paragraph VII, 3.8.3 d). This represents an acceleration force of just under 1 g. Australian Disability Standards for Accessible Transport Guidelines In August 2002, the Disability Standards for Accessible Public Transport and accompanying Guidelines, which were developed under the Disability Discrimination Act of 1992 [Subsection 31 (1)], were passed into law by the Aus- tralian Parliament. These standards and guidelines set out for the first time the formal requirements for accessibility to all modes of public transport in Australia. The Australian Disability Standards for Accessible Transport Guidelines require that buses with more than 32 seats provide 2 allocated spaces for wheelchairs. The dis- ability standards use the minimum 0.8 by 1.3 m (32 by 52 in.) dimensions for the allocated space. Division 9.2 of the Guidelines addresses Restraints. Division 9.5 (Active and Passive Restraining Systems) states that “The Disability Standards recognise the use of both active and passive re- straining systems.” In addition, Division 9.7 (Passive Restraining Systems) defines the rear-facing system in the following terms: (1) A passive restraining system contains movement of a wheelchair to within an allocated space. A vertical surface that restricts the movement of a wheelchair is an example of a pas- sive restraint. (2) An operator may rely on the sides of a conveyance, or a padded rail, to act as passive restraints against excessive side- ways movement of a mobility aid. The allocated space could be located behind a bulkhead to prevent forward movement. The passive restraints bounding an area of this kind would then prevent a wheelchair from rolling or tipping. Canadian Standards Association Standard D435-02 for Accessible Transit Buses In Canada, there are no formal regulations governing wheelchair securement systems on public transportation vehicles. However, the CSA, the main standards develop- ment organization in Canada, had developed in 1984, and then revised in 1992, a standard (CAN/CSA D409-92) to protect passengers using mobility aids when being trans- ported in small vans, and special paratransit vehicles [of less than 7000 kg (15,400 lb)], used in specialized transit service (29). However, the introduction of low-floor buses in urban transit has enhanced the ability to make conven- tional public transit accessible for persons with mobility impairments, particularly to persons using mobility aids. The CSA was in the process of updating its 1992 accessi- ble vehicle standard; however, it opted to develop a new, separate standard for large conventional transit buses, es- pecially as a result of the significantly different accelera- tion forces experienced by small and large vehicles. After lengthy consultations and discussions among rep- resentatives of the various stakeholders (transit systems, wheelchair user community, bus and component suppliers, etc.), in August 2002, the CSA published a new standard, Accessible Transit Buses (CSA D435-02) (23). It marked the first time in North America that a very detailed stan- dard was developed for a rear-facing system for use on large urban buses. The CSA standards development proc- ess accepted that

26 • Acceleration forces experienced by large transit buses with a GVWR of 7000 kg or more are much smaller than on lighter vehicles (e.g., small buses, vans, special vehicles), owing to their larger mass and lower operating speeds. • This standard is supported by evidence from transit systems on how well the practices have worked on large accessible transit buses both in Europe and in Canada. • On large transit buses, mobility aid users can travel safely in a rear-facing position without securement systems, provided that adequate provision is made for the location and positioning of their mobility aids and they have operable brakes. Section 7 of the CSA addresses rearward-facing se- curement systems. The following are highlights of this sec- tion: • In a transit bus, an area should be made available that allows accommodation of a wheelchair and its user to face to the rear of the bus. • The area for the wheelchair should have a back panel located at the end of the area facing the front of the bus, with the padded part facing the rear, and cen- tered laterally in the area. • A horizontal handrail should be provided along the bus wall at a height of from 28 to 39.4 in. (700 to 1000 mm), not protruding horizontally more than 3.5 in. (90 mm) from the wall; have a diameter of 1.6 in. (40 mm); and have a clear space between the handrail and the bus wall of at least 1.4 in. (35 mm). • A padded back panel should have a width between 10.5 and 16.5 in. (270 to 420 mm), a total height from floor to the top of the panel of 51 in. (1300 mm), and a clear dimension from floor to panel of between 13.8 and 19 in. (350 and 480 mm). • The back panel should be angled in the vertical plane between 4˚ and 8˚, with the top of the panel toward the front of the vehicle. • The back panel should be flat within 1 in. (25 mm) and padded with closed-cell foam of at least 2 in. (50 mm). • The back panel should not detach or show fractures when a force of 8000 N (1800 lbf) is applied for 30 s. This implies that the back panel must withstand a de- celeration force of 3 g, given the design, weight of the wheelchair, and weight of the passenger. • To prevent a wheelchair or scooter from moving or tipping into the aisle, a fixed aisle stanchion, a pivot- ing arm, a wall partition, or other means should be used. • A clear envelope should be provided in the area of the wheelchair that is at least 29.5 in. (750 mm) wide laterally, when measured vertically from 28 to 39.4 in. (700 to 1000 mm) from the floor. To prevent lat- eral movement of the wheelchair or scooter, the lat- eral width of 35.5 in. (900 mm) should not be ex- ceeded. • Specific measurements for stanchions, retractable rails, partitions, and the side wall are provided in the standards. Any of these devices should be built to withstand a force of 1325 N (300 lbf) for 30 s through a block of 8 × 8 in. (200 × 200 mm) in the transverse direction at a vertical height of between 23.6 and 31.5 in. (600 and 800 mm), with a deflec- tion of not more than 2 in. (50 mm), or deformation or damage.