81_FR_16323 81 FR 16265 - Qualification of Drivers; Exemption Applications; Vision

81 FR 16265 - Qualification of Drivers; Exemption Applications; Vision

DEPARTMENT OF TRANSPORTATION
Federal Motor Carrier Safety Administration

Federal Register Volume 81, Issue 58 (March 25, 2016)

Page Range16265-16267
FR Document2016-06794

FMCSA announces its decision to exempt 40 individuals from the vision requirement in the Federal Motor Carrier Safety Regulations (FMCSRs). They are unable to meet the vision requirement in one eye for various reasons. The exemptions will enable these individuals to operate commercial motor vehicles (CMVs) in interstate commerce without meeting the prescribed vision requirement in one eye. The Agency has concluded that granting these exemptions will provide a level of safety that is equivalent to or greater than the level of safety maintained without the exemptions for these CMV drivers.

Federal Register, Volume 81 Issue 58 (Friday, March 25, 2016)
[Federal Register Volume 81, Number 58 (Friday, March 25, 2016)]
[Notices]
[Pages 16265-16267]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-06794]


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DEPARTMENT OF TRANSPORTATION

Federal Motor Carrier Safety Administration

[Docket No. FMCSA-2015-0072]


Qualification of Drivers; Exemption Applications; Vision

AGENCY: Federal Motor Carrier Safety Administration (FMCSA), DOT.

ACTION: Notice of final disposition.

-----------------------------------------------------------------------

SUMMARY: FMCSA announces its decision to exempt 40 individuals from the 
vision requirement in the Federal Motor Carrier Safety Regulations 
(FMCSRs). They are unable to meet the vision requirement in one eye for 
various reasons. The exemptions will enable these individuals to 
operate commercial motor vehicles (CMVs) in interstate commerce without 
meeting the prescribed vision requirement in one eye. The Agency has 
concluded that granting these exemptions will provide a level of safety 
that is equivalent to or

[[Page 16266]]

greater than the level of safety maintained without the exemptions for 
these CMV drivers.

DATES: The exemptions were granted December 15, 2015. The exemptions 
expire on December 15, 2017.

FOR FURTHER INFORMATION CONTACT: Christine A. Hydock, Chief, Medical 
Programs Division, (202) 366-4001, [email protected], FMCSA, 
Department of Transportation, 1200 New Jersey Avenue SE., Room W64-113, 
Washington, DC 20590-0001. Office hours are 8:30 a.m. to 5 p.m., e.t., 
Monday through Friday, except Federal holidays. If you have questions 
regarding viewing or submitting material to the docket, contact Docket 
Services, telephone (202) 366-9826.

SUPPLEMENTARY INFORMATION:

I. Electronic Access

    You may see all the comments online through the Federal Document 
Management System (FDMS) at http://www.regulations.gov.
    Docket: For access to the docket to read background documents or 
comments, go to http://www.regulations.gov and/or Room W12-140 on the 
ground level of the West Building, 1200 New Jersey Avenue SE., 
Washington, DC, between 9 a.m. and 5 p.m., Monday through Friday, 
except Federal holidays.
    Privacy Act: In accordance with 5 U.S.C. 553(c), DOT solicits 
comments from the public to better inform its rulemaking process. DOT 
posts these comments, without edit, including any personal information 
the commenter provides, to www.regulations.gov, as described in the 
system of records notice (DOT/ALL-14 FDMS), which can be reviewed at 
www.dot.gov/privacy.

II. Background

    On November 12, 2015, FMCSA published a notice of receipt of 
exemption applications from certain individuals, and requested comments 
from the public (80 FR 70060). That notice listed 40 applicants' case 
histories. The 40 individuals applied for exemptions from the vision 
requirement in 49 CFR 391.41(b)(10), for drivers who operate CMVs in 
interstate commerce.
    Under 49 U.S.C. 31136(e) and 31315, FMCSA may grant an exemption 
for a 2-year period if it finds ``such exemption would likely achieve a 
level of safety that is equivalent to or greater than the level that 
would be achieved absent such exemption.'' The statute also allows the 
Agency to renew exemptions at the end of the 2-year period. 
Accordingly, FMCSA has evaluated the 40 applications on their merits 
and made a determination to grant exemptions to each of them.

III. Vision and Driving Experience of the Applicants

    The vision requirement in the FMCSRs provides:
    A person is physically qualified to drive a commercial motor 
vehicle if that person has distant visual acuity of at least 20/40 
(Snellen) in each eye without corrective lenses or visual acuity 
separately corrected to 20/40 (Snellen) or better with corrective 
lenses, distant binocular acuity of a least 20/40 (Snellen) in both 
eyes with or without corrective lenses, field of vision of at least 
70[deg] in the horizontal meridian in each eye, and the ability to 
recognize the colors of traffic signals and devices showing red, green, 
and amber (49 CFR 391.41(b)(10)).
    FMCSA recognizes that some drivers do not meet the vision 
requirement but have adapted their driving to accommodate their vision 
limitation and demonstrated their ability to drive safely. The 40 
exemption applicants listed in this notice are in this category. They 
are unable to meet the vision requirement in one eye for various 
reasons, including amblyopia, aphakia, chronic optic neuropathy, 
complete loss of vision, corneal scar, macular scar, macular 
toxoplasmosis, optic atrophy, optic nerve atrophy, phthisical cornea, 
prosthetic eye, refractive amblyopia, retinal detachment, and 
strabismic amblyopia. In most cases, their eye conditions were not 
recently developed. Thirty of the applicants were either born with 
their vision impairments or have had them since childhood.
    The 10 individuals that sustained their vision conditions as adults 
have had it for a range of 6 to 41 years.
    Although each applicant has one eye which does not meet the vision 
requirement in 49 CFR 391.41(b)(10), each has at least 20/40 corrected 
vision in the other eye, and in a doctor's opinion, has sufficient 
vision to perform all the tasks necessary to operate a CMV. Doctors' 
opinions are supported by the applicants' possession of valid 
commercial driver's licenses (CDLs) or non-CDLs to operate CMVs. Before 
issuing CDLs, States subject drivers to knowledge and skills tests 
designed to evaluate their qualifications to operate a CMV.
    All of these applicants satisfied the testing requirements for 
their State of residence. By meeting State licensing requirements, the 
applicants demonstrated their ability to operate a CMV, with their 
limited vision, to the satisfaction of the State.
    While possessing a valid CDL or non-CDL, these 40 drivers have been 
authorized to drive a CMV in intrastate commerce, even though their 
vision disqualified them from driving in interstate commerce. They have 
driven CMVs with their limited vision in careers ranging for 3 to 51 
years. In the past three years, 1 driver was involved in a crash, and 1 
driver was convicted of a moving violation in a CMV.
    The qualifications, experience, and medical condition of each 
applicant were stated and discussed in detail in the November 12, 2015 
notice (80 FR 70060).

IV. Basis for Exemption Determination

    Under 49 U.S.C. 31136(e) and 31315, FMCSA may grant an exemption 
from the vision requirement in 49 CFR 391.41(b)(10) if the exemption is 
likely to achieve an equivalent or greater level of safety than would 
be achieved without the exemption. Without the exemption, applicants 
will continue to be restricted to intrastate driving. With the 
exemption, applicants can drive in interstate commerce. Thus, our 
analysis focuses on whether an equal or greater level of safety is 
likely to be achieved by permitting each of these drivers to drive in 
interstate commerce as opposed to restricting him or her to driving in 
intrastate commerce.
    To evaluate the effect of these exemptions on safety, FMCSA 
considered the medical reports about the applicants' vision as well as 
their driving records and experience with the vision deficiency.
    To qualify for an exemption from the vision requirement, FMCSA 
requires a person to present verifiable evidence that he/she has driven 
a commercial vehicle safely with the vision deficiency for the past 3 
years. Recent driving performance is especially important in evaluating 
future safety, according to several research studies designed to 
correlate past and future driving performance. Results of these studies 
support the principle that the best predictor of future performance by 
a driver is his/her past record of crashes and traffic violations. 
Copies of the studies may be found at Docket Number FMCSA-1998-3637.
    FMCSA believes it can properly apply the principle to monocular 
drivers, because data from the Federal Highway Administration's (FHWA) 
former waiver study program clearly demonstrate the driving performance 
of experienced monocular drivers in the program is better than that of 
all CMV drivers collectively (See 61 FR 13338, 13345, March 26, 1996). 
The fact that experienced monocular drivers

[[Page 16267]]

demonstrated safe driving records in the waiver program supports a 
conclusion that other monocular drivers, meeting the same qualifying 
conditions as those required by the waiver program, are also likely to 
have adapted to their vision deficiency and will continue to operate 
safely.
    The first major research correlating past and future performance 
was done in England by Greenwood and Yule in 1920. Subsequent studies, 
building on that model, concluded that crash rates for the same 
individual exposed to certain risks for two different time periods vary 
only slightly (See Bates and Neyman, University of California 
Publications in Statistics, April 1952). Other studies demonstrated 
theories of predicting crash proneness from crash history coupled with 
other factors. These factors--such as age, sex, geographic location, 
mileage driven and conviction history--are used every day by insurance 
companies and motor vehicle bureaus to predict the probability of an 
individual experiencing future crashes (See Weber, Donald C., 
``Accident Rate Potential: An Application of Multiple Regression 
Analysis of a Poisson Process,'' Journal of American Statistical 
Association, June 1971). A 1964 California Driver Record Study prepared 
by the California Department of Motor Vehicles concluded that the best 
overall crash predictor for both concurrent and nonconcurrent events is 
the number of single convictions. This study used 3 consecutive years 
of data, comparing the experiences of drivers in the first 2 years with 
their experiences in the final year.
    Applying principles from these studies to the past 3-year record of 
the 40 applicants, 1 driver was involved in a crash, and 1 driver was 
convicted of a moving violation in a CMV. All the applicants achieved a 
record of safety while driving with their vision impairment, 
demonstrating the likelihood that they have adapted their driving 
skills to accommodate their condition. As the applicants' ample driving 
histories with their vision deficiencies are good predictors of future 
performance, FMCSA concludes their ability to drive safely can be 
projected into the future.
    We believe that the applicants' intrastate driving experience and 
history provide an adequate basis for predicting their ability to drive 
safely in interstate commerce. Intrastate driving, like interstate 
operations, involves substantial driving on highways on the interstate 
system and on other roads built to interstate standards. Moreover, 
driving in congested urban areas exposes the driver to more pedestrian 
and vehicular traffic than exists on interstate highways. Faster 
reaction to traffic and traffic signals is generally required because 
distances between them are more compact. These conditions tax visual 
capacity and driver response just as intensely as interstate driving 
conditions. The veteran drivers in this proceeding have operated CMVs 
safely under those conditions for at least 3 years, most for much 
longer. Their experience and driving records lead us to believe that 
each applicant is capable of operating in interstate commerce as safely 
as he/she has been performing in intrastate commerce. Consequently, 
FMCSA finds that exempting these applicants from the vision requirement 
in 49 CFR 391.41(b)(10) is likely to achieve a level of safety equal to 
that existing without the exemption. For this reason, the Agency is 
granting the exemptions for the 2-year period allowed by 49 U.S.C. 
31136(e) and 31315 to the 40 applicants listed in the notice of 
November 12, 2015 (80 FR 70060).
    We recognize that the vision of an applicant may change and affect 
his/her ability to operate a CMV as safely as in the past. As a 
condition of the exemption, therefore, FMCSA will impose requirements 
on the 40 individuals consistent with the grandfathering provisions 
applied to drivers who participated in the Agency's vision waiver 
program.
    Those requirements are found at 49 CFR 391.64(b) and include the 
following: (1) That each individual be physically examined every year 
(a) by an ophthalmologist or optometrist who attests that the vision in 
the better eye continues to meet the requirement in 49 CFR 
391.41(b)(10) and (b) by a medical examiner who attests that the 
individual is otherwise physically qualified under 49 CFR 391.41; (2) 
that each individual provide a copy of the ophthalmologist's or 
optometrist's report to the medical examiner at the time of the annual 
medical examination; and (3) that each individual provide a copy of the 
annual medical certification to the employer for retention in the 
driver's qualification file, or keep a copy in his/her driver's 
qualification file if he/she is self-employed. The driver must have a 
copy of the certification when driving, for presentation to a duly 
authorized Federal, State, or local enforcement official.

V. Discussion of Comments

    FMCSA received no comments in this proceeding.

IV. Conclusion

    Based upon its evaluation of the 40 exemption applications, FMCSA 
exempts the following drivers from the vision requirement in 49 CFR 
391.41(b)(10):

John W. Adams (TN)
David R. Alford (UT)
Randy S. Asher (NE)
Steven W. Barrows (OR)
Steven A. Blinco (MT)
Charles W. Bradley (SC)
Ricky A. Bray (AR)
Ryan M. Coelho (RI)
Travis R. Cook (KS)
Larry P. Davis (MO)
Donald S. Fries (PA)
Kerrie K. Furbish (ME)
Jerry W. Gibson (TX)
Trevor H. Hilton (IL)
Michael D. Judy (KS)
Karen L. Kelly (DE)
Joel H. Kohagen (IA)
Kelly K. Kremer (OR)
Edward R. Lockhart (MS)
Joshua L. Marasek (TX)
Rodolfo Martinez, Jr. (TX)
Arthur J. McClintic (MI)
Dale A. McCoy (ME)
Gregory G. Miller (OH)
Zack E. Minielly (GA)
Tobias G. Olsen (NY)
Elroy Perkins (MS)
Roy C. Rogers (WV)
Michael P. Rydzinski (MI)
Dale L. Schneider (IA)
Keith R. Seabaugh (MO)
Robert G. Seils (NY)
Randall C. Stephens (TN)
Dale L. Stewart (MI)
Warren S. Supulski (NC)
Paul J. Vines (AL)
Hany A. Wagieh (NJ)
Charles W. Williamson (OK)
Gregory A. Woodward (OR)
Alton R. Young III (MS)

    In accordance with 49 U.S.C. 31136(e) and 31315, each exemption 
will be valid for 2 years unless revoked earlier by FMCSA. The 
exemption will be revoked if: (1) The person fails to comply with the 
terms and conditions of the exemption; (2) the exemption has resulted 
in a lower level of safety than was maintained before it was granted; 
or (3) continuation of the exemption would not be consistent with the 
goals and objectives of 49 U.S.C. 31136 and 31315.
    If the exemption is still effective at the end of the 2-year 
period, the person may apply to FMCSA for a renewal under procedures in 
effect at that time.

    Issued on: March 16, 2016.
Larry W. Minor,
Associate Administrator for Policy.
[FR Doc. 2016-06794 Filed 3-24-16; 8:45 am]
 BILLING CODE 4910-EX-P



                                                                                    Federal Register / Vol. 81, No. 58 / Friday, March 25, 2016 / Notices                                                16265

                                                    Counsel, Federal Motor Carrier Safety                   vehicle in a condition likely to cause an             affected vehicles should not be
                                                    Administration, 1200 New Jersey Ave.                    accident or a breakdown. Today’s notice               operated, and the operation of an
                                                    SE., Washington, DC 20590, by                           formalizes that determination and                     unrepaired affected vehicle will
                                                    telephone at 202–366–3551 or via email                  clarifies that FMCSA and its state                    therefore subject the operator to an out-
                                                    at charles.fromm@dot.gov. FMCSA                         partners under the MCSAP program will                 of-service order under federal or
                                                    office hours are from 9 a.m. to 5 p.m.,                 place a vehicle out-of-service if the                 compatible state regulations.
                                                    Monday through Friday, except Federal                   necessary repair or replacement has not                  FMCSA is directing its investigators
                                                    holidays.                                               been made, based on the identified out-               and state partners conducting roadside
                                                    SUPPLEMENTARY INFORMATION: On                           of-service defect under 49 CFR                        inspections to perform a Level IV
                                                    February 16, 2016, Volvo Trucks                         393.209(c), which requires that a                     inspection on any unrepaired affected
                                                    initiated a safety recall affecting nearly              steering column to be securely fastened.              vehicles and to place the vehicle out of
                                                    16,000 Class 8 motor vehicles in the                      The Secretary of Transportation has                 service based on the violation of 49 CFR
                                                    United States. According to Volvo, a                    statutory authority to set minimum                    393.209(c). Level IV inspections, which
                                                    condition exists which could lead to                    standards for commercial motor vehicle                are typically performed on a one-time
                                                    separation of the steering shaft from the               safety, including ensuring that                       basis on a particular item as a special
                                                    junction block. Also, the bolt connecting               commercial motor vehicles ‘‘are                       inspection, are not included in
                                                    the upper steering shaft to the lower                   maintained, equipped, loaded, and                     FMCSA’s Safety Measurement System
                                                    steering shaft may not have been                        operated safely’’ and to prescribe                    (SMS), and therefore the out-of-service
                                                                                                            requirements for the ‘‘safety of operation            declaration will not affect a motor
                                                    properly tightened. Volvo’s report to
                                                                                                            and equipment of, a motor carrier.’’ (49              carrier’s SMS score.
                                                    NHTSA states that either condition can
                                                                                                            U.S.C. 31136(a)(1) and 49 U.S.C.                         Placing the vehicle out-of-service
                                                    lead to separation of the steering shaft                                                                      under this Notice is not intended to
                                                                                                            31502(b)). The Secretary also has broad
                                                    and immediate loss of steering ability                                                                        provide a basis for further enforcement
                                                                                                            power in carrying out motor carrier
                                                    and control, which could lead to a                                                                            action and seeks only the immediate
                                                                                                            safety statutes and regulations to, among
                                                    crash. Volvo Trucks issued a Safety                                                                           cessation of the operation of vehicles
                                                                                                            other things, ‘‘inspect the equipment of
                                                    Recall Alert on March 10, which                                                                               that have been deemed to be in an
                                                                                                            a carrier or lessor’’ and ‘‘perform other
                                                    directed all owners of the affected                                                                           unsafe condition. Operators of vehicles
                                                                                                            acts the Secretary considers
                                                    vehicles to take the vehicles out of                                                                          declared out-of-service, however, must
                                                                                                            appropriate.’’ (49 U.S.C. 504(c)(1) and
                                                    operation as soon as possible and                       49 U.S.C. 31133(a)(10)). The                          comply with an out-of-service order.
                                                    cautioned that the separation can occur                 Administrator of FMCSA has been                       Motor carrier operators who violate an
                                                    without warning and amended its safety                  delegated authority under 49 CFR                      out-of-service order will be subject to
                                                    recall on March 15, alerting NHTSA of                   1.87(f), (i) and (j) to carry out the                 civil penalties and other enforcement as
                                                    the more serious hazard. Volvo Trucks                   functions vested in the Secretary of                  provided in the Federal Motor Carrier
                                                    strongly recommends that these vehicles                 Transportation by 49 U.S.C. chapter                   Safety Regulations.
                                                    remain out of service until repairs are                 311, subchapter III, 49 U.S.C. chapter
                                                    made. NHTSA is overseeing Volvo                                                                                 Issued under the authority delegated in 49
                                                                                                            315, and 49 U.S.C. 504. This delegation               CFR 1.87 on: March 22, 2016.
                                                    Truck’s recall efforts to ensure prompt                 of authority includes the authority to
                                                    notification of the defect to vehicle                                                                         T. F. Scott Darling, III,
                                                                                                            declare unsafe vehicles out-of-service                Acting Administrator.
                                                    owners and that vehicles are not                        under 49 CFR 396.9. Under 49 U.S.C.
                                                    operated in a defective condition.                                                                            [FR Doc. 2016–06880 Filed 3–23–16; 11:15 am]
                                                                                                            31102, MCSAP State partners agree to
                                                    Volvo’s Safety Recall Report is available               conduct roadside inspections. In 49 CFR               BILLING CODE 4910–EX–P
                                                    on its Web site at: http://www-odi.nhtsa.               part 350, MCSAP state partners agree to
                                                    dot.gov/owners/SearchDetails?search                     adopt state safety laws and regulations
                                                    Criteria.prod_ids=1991310&search                                                                              DEPARTMENT OF TRANSPORTATION
                                                                                                            that are compatible with 49 CFR parts
                                                    Criteria.model_yr=2016&searchCriteria.                  390–397.                                              Federal Motor Carrier Safety
                                                    make=VOLVO&searchCriteria.model=
                                                                                                            Out-of-Service Determination                          Administration
                                                    VNL&activeTab=0&searchType=PROD&
                                                    prodType=V&targetCategory=A&cmpl                           FMCSA has determined that                          [Docket No. FMCSA–2015–0072]
                                                    Count=1&rclCount=3&invCount=1&                          commercial motor vehicles subject to
                                                    tsbCount=0.                                             Volvo Trucks’ Safety Recall (NHTSA                    Qualification of Drivers; Exemption
                                                       Additionally, to assist with                         Part 573 Safety Recall Report No. 16V–                Applications; Vision
                                                    notification efforts, on March 18, 2016,                097000), that have not already received               AGENCY: Federal Motor Carrier Safety
                                                    FMCSA posted an Inspection Bulletin                     the interim or permanent recall remedy                Administration (FMCSA), DOT.
                                                    on its Web site. https://www.fmcsa.dot.                 repair specified by Volvo in the above-               ACTION: Notice of final disposition.
                                                    gov/newsroom/urgent-inspection-                         referenced recall, are likely to cause an
                                                    bulletin-safety-recall-issued-volvo-                    accident or breakdown and are therefore               SUMMARY:    FMCSA announces its
                                                    trucks. The Inspection Bulletin advised                 in an unsafe condition. The condition of              decision to exempt 40 individuals from
                                                    FMCSA inspectors and state partners                     the steering column is also a violation               the vision requirement in the Federal
                                                    under the Motor Carrier Safety                          of 49 CFR 393.209(c) which requires the               Motor Carrier Safety Regulations
                                                    Assistance Program (MCSAP) of the                       steering column to be securely fastened.              (FMCSRs). They are unable to meet the
                                                    condition of the affected vehicles and                  Because of the potential consequences                 vision requirement in one eye for
asabaliauskas on DSK3SPTVN1PROD with NOTICES




                                                    requested inspectors to direct the                      associated with continued operation of                various reasons. The exemptions will
                                                    operators of such vehicles to contact                   these vehicles, through this notice                   enable these individuals to operate
                                                    Volvo Customer Service before                           FMCSA is declaring unsafe the                         commercial motor vehicles (CMVs) in
                                                    continuing in operation. The Inspection                 operation of any unrepaired vehicle                   interstate commerce without meeting
                                                    Bulletin also noted that continued                      affected by the Volvo Trucks recall                   the prescribed vision requirement in
                                                    operation of the affected vehicles could                under NHTSA Campaign No.                              one eye. The Agency has concluded that
                                                    be considered a violation of 49 CFR                     16V097000 and declaring such vehicles                 granting these exemptions will provide
                                                    396.7, which prohibits operation of a                   to be in an out-of-service condition. The             a level of safety that is equivalent to or


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                                                    16266                           Federal Register / Vol. 81, No. 58 / Friday, March 25, 2016 / Notices

                                                    greater than the level of safety                        made a determination to grant                           While possessing a valid CDL or non-
                                                    maintained without the exemptions for                   exemptions to each of them.                           CDL, these 40 drivers have been
                                                    these CMV drivers.                                                                                            authorized to drive a CMV in intrastate
                                                                                                            III. Vision and Driving Experience of
                                                    DATES: The exemptions were granted                                                                            commerce, even though their vision
                                                                                                            the Applicants
                                                    December 15, 2015. The exemptions                                                                             disqualified them from driving in
                                                    expire on December 15, 2017.                               The vision requirement in the                      interstate commerce. They have driven
                                                    FOR FURTHER INFORMATION CONTACT:
                                                                                                            FMCSRs provides:                                      CMVs with their limited vision in
                                                    Christine A. Hydock, Chief, Medical                        A person is physically qualified to                careers ranging for 3 to 51 years. In the
                                                    Programs Division, (202) 366–4001,                      drive a commercial motor vehicle if that              past three years, 1 driver was involved
                                                    fmcsamedical@dot.gov, FMCSA,                            person has distant visual acuity of at                in a crash, and 1 driver was convicted
                                                    Department of Transportation, 1200                      least 20/40 (Snellen) in each eye                     of a moving violation in a CMV.
                                                                                                            without corrective lenses or visual                     The qualifications, experience, and
                                                    New Jersey Avenue SE., Room W64–
                                                                                                            acuity separately corrected to 20/40                  medical condition of each applicant
                                                    113, Washington, DC 20590–0001.
                                                                                                            (Snellen) or better with corrective                   were stated and discussed in detail in
                                                    Office hours are 8:30 a.m. to 5 p.m., e.t.,                                                                   the November 12, 2015 notice (80 FR
                                                    Monday through Friday, except Federal                   lenses, distant binocular acuity of a least
                                                                                                            20/40 (Snellen) in both eyes with or                  70060).
                                                    holidays. If you have questions
                                                    regarding viewing or submitting                         without corrective lenses, field of vision            IV. Basis for Exemption Determination
                                                    material to the docket, contact Docket                  of at least 70° in the horizontal meridian
                                                                                                            in each eye, and the ability to recognize               Under 49 U.S.C. 31136(e) and 31315,
                                                    Services, telephone (202) 366–9826.                                                                           FMCSA may grant an exemption from
                                                                                                            the colors of traffic signals and devices
                                                    SUPPLEMENTARY INFORMATION:                                                                                    the vision requirement in 49 CFR
                                                                                                            showing red, green, and amber (49 CFR
                                                                                                                                                                  391.41(b)(10) if the exemption is likely
                                                    I. Electronic Access                                    391.41(b)(10)).
                                                                                                                                                                  to achieve an equivalent or greater level
                                                       You may see all the comments online                     FMCSA recognizes that some drivers
                                                                                                                                                                  of safety than would be achieved
                                                    through the Federal Document                            do not meet the vision requirement but
                                                                                                                                                                  without the exemption. Without the
                                                    Management System (FDMS) at http://                     have adapted their driving to
                                                                                                                                                                  exemption, applicants will continue to
                                                    www.regulations.gov.                                    accommodate their vision limitation                   be restricted to intrastate driving. With
                                                       Docket: For access to the docket to                  and demonstrated their ability to drive               the exemption, applicants can drive in
                                                    read background documents or                            safely. The 40 exemption applicants                   interstate commerce. Thus, our analysis
                                                    comments, go to http://                                 listed in this notice are in this category.           focuses on whether an equal or greater
                                                    www.regulations.gov and/or Room                         They are unable to meet the vision                    level of safety is likely to be achieved by
                                                    W12–140 on the ground level of the                      requirement in one eye for various                    permitting each of these drivers to drive
                                                    West Building, 1200 New Jersey Avenue                   reasons, including amblyopia, aphakia,                in interstate commerce as opposed to
                                                    SE., Washington, DC, between 9 a.m.                     chronic optic neuropathy, complete loss               restricting him or her to driving in
                                                    and 5 p.m., Monday through Friday,                      of vision, corneal scar, macular scar,                intrastate commerce.
                                                    except Federal holidays.                                macular toxoplasmosis, optic atrophy,                   To evaluate the effect of these
                                                       Privacy Act: In accordance with 5                    optic nerve atrophy, phthisical cornea,               exemptions on safety, FMCSA
                                                    U.S.C. 553(c), DOT solicits comments                    prosthetic eye, refractive amblyopia,                 considered the medical reports about
                                                    from the public to better inform its                    retinal detachment, and strabismic                    the applicants’ vision as well as their
                                                    rulemaking process. DOT posts these                     amblyopia. In most cases, their eye                   driving records and experience with the
                                                    comments, without edit, including any                   conditions were not recently developed.               vision deficiency.
                                                    personal information the commenter                      Thirty of the applicants were either born               To qualify for an exemption from the
                                                    provides, to www.regulations.gov, as                    with their vision impairments or have                 vision requirement, FMCSA requires a
                                                    described in the system of records                      had them since childhood.                             person to present verifiable evidence
                                                    notice (DOT/ALL–14 FDMS), which can                        The 10 individuals that sustained                  that he/she has driven a commercial
                                                    be reviewed at www.dot.gov/privacy.                     their vision conditions as adults have                vehicle safely with the vision deficiency
                                                                                                            had it for a range of 6 to 41 years.                  for the past 3 years. Recent driving
                                                    II. Background                                             Although each applicant has one eye                performance is especially important in
                                                       On November 12, 2015, FMCSA                          which does not meet the vision                        evaluating future safety, according to
                                                    published a notice of receipt of                        requirement in 49 CFR 391.41(b)(10),                  several research studies designed to
                                                    exemption applications from certain                     each has at least 20/40 corrected vision              correlate past and future driving
                                                    individuals, and requested comments                     in the other eye, and in a doctor’s                   performance. Results of these studies
                                                    from the public (80 FR 70060). That                     opinion, has sufficient vision to perform             support the principle that the best
                                                    notice listed 40 applicants’ case                       all the tasks necessary to operate a CMV.             predictor of future performance by a
                                                    histories. The 40 individuals applied for               Doctors’ opinions are supported by the                driver is his/her past record of crashes
                                                    exemptions from the vision requirement                  applicants’ possession of valid                       and traffic violations. Copies of the
                                                    in 49 CFR 391.41(b)(10), for drivers who                commercial driver’s licenses (CDLs) or                studies may be found at Docket Number
                                                    operate CMVs in interstate commerce.                    non-CDLs to operate CMVs. Before                      FMCSA–1998–3637.
                                                       Under 49 U.S.C. 31136(e) and 31315,                  issuing CDLs, States subject drivers to                 FMCSA believes it can properly apply
                                                    FMCSA may grant an exemption for a 2-                   knowledge and skills tests designed to                the principle to monocular drivers,
                                                    year period if it finds ‘‘such exemption                evaluate their qualifications to operate a            because data from the Federal Highway
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                                                    would likely achieve a level of safety                  CMV.                                                  Administration’s (FHWA) former waiver
                                                    that is equivalent to or greater than the                  All of these applicants satisfied the              study program clearly demonstrate the
                                                    level that would be achieved absent                     testing requirements for their State of               driving performance of experienced
                                                    such exemption.’’ The statute also                      residence. By meeting State licensing                 monocular drivers in the program is
                                                    allows the Agency to renew exemptions                   requirements, the applicants                          better than that of all CMV drivers
                                                    at the end of the 2-year period.                        demonstrated their ability to operate a               collectively (See 61 FR 13338, 13345,
                                                    Accordingly, FMCSA has evaluated the                    CMV, with their limited vision, to the                March 26, 1996). The fact that
                                                    40 applications on their merits and                     satisfaction of the State.                            experienced monocular drivers


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                                                                                    Federal Register / Vol. 81, No. 58 / Friday, March 25, 2016 / Notices                                                 16267

                                                    demonstrated safe driving records in the                and vehicular traffic than exists on                  IV. Conclusion
                                                    waiver program supports a conclusion                    interstate highways. Faster reaction to                  Based upon its evaluation of the 40
                                                    that other monocular drivers, meeting                   traffic and traffic signals is generally              exemption applications, FMCSA
                                                    the same qualifying conditions as those                 required because distances between                    exempts the following drivers from the
                                                    required by the waiver program, are also                them are more compact. These                          vision requirement in 49 CFR
                                                    likely to have adapted to their vision                  conditions tax visual capacity and                    391.41(b)(10):
                                                    deficiency and will continue to operate                 driver response just as intensely as
                                                    safely.                                                                                                       John W. Adams (TN)
                                                                                                            interstate driving conditions. The                    David R. Alford (UT)
                                                       The first major research correlating                 veteran drivers in this proceeding have
                                                    past and future performance was done                                                                          Randy S. Asher (NE)
                                                                                                            operated CMVs safely under those                      Steven W. Barrows (OR)
                                                    in England by Greenwood and Yule in                     conditions for at least 3 years, most for
                                                    1920. Subsequent studies, building on                                                                         Steven A. Blinco (MT)
                                                                                                            much longer. Their experience and                     Charles W. Bradley (SC)
                                                    that model, concluded that crash rates
                                                                                                            driving records lead us to believe that               Ricky A. Bray (AR)
                                                    for the same individual exposed to
                                                                                                            each applicant is capable of operating in             Ryan M. Coelho (RI)
                                                    certain risks for two different time
                                                    periods vary only slightly (See Bates                   interstate commerce as safely as he/she               Travis R. Cook (KS)
                                                    and Neyman, University of California                    has been performing in intrastate                     Larry P. Davis (MO)
                                                    Publications in Statistics, April 1952).                commerce. Consequently, FMCSA finds                   Donald S. Fries (PA)
                                                    Other studies demonstrated theories of                  that exempting these applicants from                  Kerrie K. Furbish (ME)
                                                    predicting crash proneness from crash                   the vision requirement in 49 CFR                      Jerry W. Gibson (TX)
                                                    history coupled with other factors.                     391.41(b)(10) is likely to achieve a level            Trevor H. Hilton (IL)
                                                    These factors—such as age, sex,                         of safety equal to that existing without              Michael D. Judy (KS)
                                                    geographic location, mileage driven and                 the exemption. For this reason, the                   Karen L. Kelly (DE)
                                                    conviction history—are used every day                   Agency is granting the exemptions for                 Joel H. Kohagen (IA)
                                                    by insurance companies and motor                        the 2-year period allowed by 49 U.S.C.                Kelly K. Kremer (OR)
                                                    vehicle bureaus to predict the                          31136(e) and 31315 to the 40 applicants               Edward R. Lockhart (MS)
                                                    probability of an individual                            listed in the notice of November 12,                  Joshua L. Marasek (TX)
                                                    experiencing future crashes (See Weber,                 2015 (80 FR 70060).                                   Rodolfo Martinez, Jr. (TX)
                                                    Donald C., ‘‘Accident Rate Potential: An                                                                      Arthur J. McClintic (MI)
                                                                                                               We recognize that the vision of an                 Dale A. McCoy (ME)
                                                    Application of Multiple Regression                      applicant may change and affect his/her
                                                    Analysis of a Poisson Process,’’ Journal                                                                      Gregory G. Miller (OH)
                                                                                                            ability to operate a CMV as safely as in              Zack E. Minielly (GA)
                                                    of American Statistical Association,                    the past. As a condition of the
                                                    June 1971). A 1964 California Driver                                                                          Tobias G. Olsen (NY)
                                                                                                            exemption, therefore, FMCSA will                      Elroy Perkins (MS)
                                                    Record Study prepared by the California                 impose requirements on the 40
                                                    Department of Motor Vehicles                                                                                  Roy C. Rogers (WV)
                                                                                                            individuals consistent with the                       Michael P. Rydzinski (MI)
                                                    concluded that the best overall crash                   grandfathering provisions applied to
                                                    predictor for both concurrent and                                                                             Dale L. Schneider (IA)
                                                                                                            drivers who participated in the                       Keith R. Seabaugh (MO)
                                                    nonconcurrent events is the number of
                                                                                                            Agency’s vision waiver program.                       Robert G. Seils (NY)
                                                    single convictions. This study used 3
                                                    consecutive years of data, comparing the                   Those requirements are found at 49                 Randall C. Stephens (TN)
                                                    experiences of drivers in the first 2 years             CFR 391.64(b) and include the                         Dale L. Stewart (MI)
                                                    with their experiences in the final year.               following: (1) That each individual be                Warren S. Supulski (NC)
                                                       Applying principles from these                       physically examined every year (a) by                 Paul J. Vines (AL)
                                                    studies to the past 3-year record of the                an ophthalmologist or optometrist who                 Hany A. Wagieh (NJ)
                                                    40 applicants, 1 driver was involved in                 attests that the vision in the better eye             Charles W. Williamson (OK)
                                                    a crash, and 1 driver was convicted of                  continues to meet the requirement in 49               Gregory A. Woodward (OR)
                                                    a moving violation in a CMV. All the                    CFR 391.41(b)(10) and (b) by a medical                Alton R. Young III (MS)
                                                    applicants achieved a record of safety                  examiner who attests that the individual                 In accordance with 49 U.S.C. 31136(e)
                                                    while driving with their vision                         is otherwise physically qualified under               and 31315, each exemption will be valid
                                                    impairment, demonstrating the                           49 CFR 391.41; (2) that each individual               for 2 years unless revoked earlier by
                                                    likelihood that they have adapted their                 provide a copy of the ophthalmologist’s               FMCSA. The exemption will be revoked
                                                    driving skills to accommodate their                     or optometrist’s report to the medical                if: (1) The person fails to comply with
                                                    condition. As the applicants’ ample                     examiner at the time of the annual                    the terms and conditions of the
                                                    driving histories with their vision                     medical examination; and (3) that each                exemption; (2) the exemption has
                                                    deficiencies are good predictors of                     individual provide a copy of the annual               resulted in a lower level of safety than
                                                    future performance, FMCSA concludes                     medical certification to the employer for             was maintained before it was granted; or
                                                    their ability to drive safely can be                    retention in the driver’s qualification               (3) continuation of the exemption would
                                                    projected into the future.                                                                                    not be consistent with the goals and
                                                                                                            file, or keep a copy in his/her driver’s
                                                       We believe that the applicants’                                                                            objectives of 49 U.S.C. 31136 and 31315.
                                                    intrastate driving experience and history               qualification file if he/she is self-
                                                                                                            employed. The driver must have a copy                    If the exemption is still effective at the
                                                    provide an adequate basis for predicting
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                                                                                                            of the certification when driving, for                end of the 2-year period, the person may
                                                    their ability to drive safely in interstate                                                                   apply to FMCSA for a renewal under
                                                    commerce. Intrastate driving, like                      presentation to a duly authorized
                                                                                                            Federal, State, or local enforcement                  procedures in effect at that time.
                                                    interstate operations, involves
                                                    substantial driving on highways on the                  official.                                               Issued on: March 16, 2016.
                                                    interstate system and on other roads                                                                          Larry W. Minor,
                                                                                                            V. Discussion of Comments
                                                    built to interstate standards. Moreover,                                                                      Associate Administrator for Policy.
                                                    driving in congested urban areas                          FMCSA received no comments in this                  [FR Doc. 2016–06794 Filed 3–24–16; 8:45 am]
                                                    exposes the driver to more pedestrian                   proceeding.                                           BILLING CODE 4910–EX–P




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Document Created: 2018-02-02 15:18:20
Document Modified: 2018-02-02 15:18:20
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionNotices
ActionNotice of final disposition.
DatesThe exemptions were granted December 15, 2015. The exemptions expire on December 15, 2017.
ContactChristine A. Hydock, Chief, Medical Programs Division, (202) 366-4001, [email protected], FMCSA, Department of Transportation, 1200 New Jersey Avenue SE., Room W64-113, Washington, DC 20590-0001. Office hours are 8:30 a.m. to 5 p.m., e.t., Monday through Friday, except Federal holidays. If you have questions regarding viewing or submitting material to the docket, contact Docket Services, telephone (202) 366-9826.
FR Citation81 FR 16265 

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