Source: http://lawfilesext.leg.wa.gov/law/wsr/2001/04/01-04-026.htm
Timestamp: 2019-06-26 15:53:17
Document Index: 559520190

Matched Legal Cases: ['art 212', 'art 213', 'art 212', 'art 234', 'arts 171', 'arts 178', 'art 212', 'ART 4']

WSR 01-04-026
[ Docket No. TR-981102, General Order No. R-477 -- Filed January 30, 2001, 4:14 p.m. ]
In the matter of adopting and repealing provisions of chapter 480-62 WAC relating to Railroad companies -- Operations.
1 STATUTORY OR OTHER AUTHORITY: The Washington Utilities and Transportation Commission takes this action under Notice No. WSR 00-23-131, filed with the Office of the Code Reviser on November 22, 2000. The commission brings this proceeding pursuant to RCW 80.01.040, 81.04.160, 81.24.010, 81.28.010, 81.28.290, 81.40.110, 81.44.010, 81.44.020, 81.44.101-81.44.105, and chapters 81.48, 81.53, 81.54, 81.60, and 81.61 RCW.
2 STATEMENT OF COMPLIANCE: This proceeding complies with the Open Public Meetings Act (chapter 42.30 RCW); the Administrative Procedure Act (chapter 34.05 RCW); the State Register Act (chapter 34.08 RCW); the State Environmental Policy Act of 1971 (chapter 43.21C RCW); and the Regulatory Fairness Act (chapter 19.85 RCW).
4 CONCISE STATEMENT OF PURPOSE AND EFFECT OF THE RULE: The purpose of the proposed revisions to chapter 480-62 WAC is to provide clear, objective standards for addressing issues at highway-rail grade crossings, including maintenance and repair, modification, blocking, and safety operations. In addition, the proposed rule provides requirements regarding the reporting of operational information, and procedures for requesting changes in train speed limits.
5 The effect of the proposed revisions will be to contribute to improved safety at highway-rail grade crossings, provide greater communication between railroad companies and the communities through which they operate, as well as provide communities and railroad companies with clear procedures for requesting changes in train speed limits, and streamlined reporting requirements to allow for more efficient exchange of information with railroad companies.
6 RCW 34.05.325 requires that the commission prepare and provide to commenters a concise explanatory statement about an adopted rule. The statement must include the identification of the reasons for adopting the rule, a summary of the comments received regarding the proposed rule, and responses reflecting the commission's consideration of the comments.
7 The commission often includes a discussion of those matters in its rule adoption order. In addition, most rule-making proceedings involve extensive work by commission staff that includes summaries in memoranda of stakeholder comments, commission decisions, and staff recommendations in each of those areas.
8 In this docket, to avoid unnecessary duplications, the commission designates the discussion in this order as its concise explanatory statement, supplemented where not inconsistent by the staff memoranda presented at the adoption hearing and at the open meetings where the commission considered whether to begin a rule making and whether to propose adoption of specific language. Together, the documents provide a complete but concise explanation of the agency actions and its reasons for taking those actions.
9 REFERENCE TO AFFECTED RULES: This order adopts the following new sections of the Washington Administrative Code (WAC):
WAC 480-62-135 Additional requirements.
WAC 480-62-140 Exemptions from rules.
WAC 480-62-145 Commission proceedings.
WAC 480-62-150 Grade crossing petitions.
WAC 480-62-155 Procedure to set train speed limits.
WAC 480-62-160 Compliance policy.
WAC 480-62-165 Severability.
WAC 480-62-170 Resolving disputes about the meaning of these rules.
WAC 480-62-200 Roadway worker safety and operating rules and statutes.
WAC 480-62-205 Track safety standards.
WAC 480-62-210 Crossing signal circuitry.
WAC 480-62-220 Blockage of public grade crossing.
WAC 480-62-225 Crossing surfaces.
WAC 480-62-230 Traffic control devices.
WAC 480-62-235 Flaggers.
WAC 480-62-240 Passenger carrying vehicles -- Equipment.
WAC 480-62-245 Passenger carrying vehicles -- Operations.
WAC 480-62-250 On track equipment.
WAC 480-62-300 Annual reports.
WAC 480-62-305 Railroad community notice requirements.
WAC 480-62-310 Accident reports.
WAC 480-62-315 Miscellaneous reporting requirements.
WAC 480-62-325 Railroad police officers -- Notice.
10 This order repeals the following sections of the Washington Administrative Code (WAC):
WAC 480-62-010 Locomotive speedometers.
WAC 480-62-020 Traffic control devices.
WAC 480-62-030 Flagpersons.
WAC 480-62-040 Exemption.
WAC 480-62-050 Passenger carrying vehicles -- General.
WAC 480-62-060 Passenger carrying vehicles -- Equipment.
WAC 480-62-070 Passenger carrying vehicles -- Operation.
WAC 480-62-080 Accident reports.
WAC 480-62-085 Annual reports.
WAC 480-62-090 Hazardous materials regulations.
WAC 480-62-100 Bridge safety rules.
WAC 480-62-120 Train operations -- Tacoma.
11 PREPROPOSAL STATEMENT OF INQUIRY AND ACTIONS THEREUNDER: The commission filed a preproposal statement of inquiry (CR-101) on April 1, 1999, at WSR 99-08-053. The statement advised interested persons that the commission was considering entering a rule making on railroad company operations and would consider amending chapter 480-62 WAC in accordance with Executive Order 97-02.
12 ADDITIONAL NOTICE AND ACTIVITY PURSUANT TO PREPROPOSAL STATEMENT: The commission informed persons of the inquiry into this matter by providing notice of the subject and the CR-101 served April 1, 1999, to all railroad companies operating in the state, and to those persons who have expressed interest in related matters before the commission or appeared on lists of organizations, including: State agencies; city and county governments; labor unions; port associations; and members of the public. In addition to information about the rule making, the notice requested written responses to several issue questions and invited participation in a scheduled public workshop on May 27, 1999. The commission also issued a second notice of rule-making workshop on June 4.
13 Pursuant to the notices, commission staff held workshops on May 27, 1999 and June 17, 1999, in Olympia. The workshops were attended by representatives from railroad companies, local agencies, the law enforcement community, labor unions, and the public.
14 On September 15, 1999, the commission issued another notice of rule-making workshop that contained a discussion draft of the rules. The notice also invited comments regarding the discussion draft. The corresponding workshop, as well as an additional workshop to further discuss the draft rules, were held in Olympia, on September 28, 1999, and October 2, 2000, respectively.
15 Discussions at the first three workshops focused mainly on language, format, repealing sections that are no longer valid in the current environment, and drafting new rules regarding maintenance requirements, safety operations, and reporting. The October 2, 2000, workshop focused on identifying unresolved issues and working with interested parties to resolve those issues. At the conclusion of that workshop, unresolved issues included the draft rules relating to train speeds (WAC 480-62-155), crossing surfaces (WAC 480-62-225), flaggers (WAC 480-62-235), community notice requirements (WAC 480-62-305), and miscellaneous reporting requirements (WAC 480-62-315).
16 In compliance with chapter 19.85 RCW, on October 5, 2000, the commission sent all eighteen railroad companies operating in the state a memorandum and questionnaire concerning the potential economic effects of the draft rules on regulated companies. Only two incomplete questionnaires were returned. Due to lack of adequate data from railroad companies, it was necessary to explore and utilize data from existing literature, information reported to the commission, prior survey results from a recent railroad rule making completed under Docket No. TR-981101, and the knowledge and experience of staff. A small business economic impact statement, or SBEIS, was developed by staff based on responses to the questionnaire, and staff research.
17 On November 8, 2000, at an open meeting of the commission, the commission received a staff report and heard oral comments from railroad company representatives on the content of the draft rules. After hearing the staff report and oral comments, the commission directed the secretary to file a notice of proposed rule making (CR-102) with the Office of the Code Reviser.
18 NOTICE OF PROPOSED RULEMAKING: The commission filed a notice of proposed rule making (CR-102) and small business economic impact statement with the Office of the Code Reviser on November 22, 2000, published at WSR 00-23-131. In that notice, the commission scheduled this matter for oral comment and adoption at 9:30 a.m., Thursday, January 11, 2001, in the Commission's Hearing Room, Second Floor, Chandler Plaza Building, 1300 South Evergreen Park Drive S.W., Olympia, WA.
19 Further, on November 27, 2000, the commission issued a notice of opportunity to submit written comments on the proposed rule and notice of proposed rule adoption hearing to all interested persons on file. Written comments were requested by December 13, 2000, and the rule adoption hearing was specified as January 11, 2001.
20 COMMENTERS - WRITTEN COMMENTS: Written comments on the proposed rules were received from David Reeve, on behalf of the Burlington Northern Santa Fe Railroad Company (BNSF), Carolyn Larson, on behalf of Union Pacific Railroad Company (UP), James Slakey (Director of the Public Transportation and Rail Division), on behalf of the Washington State Department of Transportation (WSDOT), Christopher Keuss (Deputy Executive Director), on behalf of the Port of Edmonds, David Gebert (Director of Public Works), on behalf of the Town of Steilacoom, Frederick Ohly, Sr. (Associate General Counsel), on behalf of AMTRAK, and Joan Sterling (Legislative and Policy Analyst), on behalf of the Washington Military Department - Emergency Management Division.
21 BNSF, UP: All comments from BNSF and UP were submitted jointly. The railroads addressed the proposed rules relating to train speeds (proposed WAC 480-62-155), community notice requirements (WAC 480-62-305) and miscellaneous reporting requirements (WAC 380-62-315 [480-62-315]). Staff sent letters responding to the railroads' comments on January 3, 2001.
22 First, the railroads questioned the commission's authority to regulate train speeds, arguing that the regulation of train speeds is preempted by federal law, and that the proposed rule exceeds commission authority. In a written response to BNSF and UP, staff disagreed with the assertion that states were completely preempted by federal law from regulating train speeds. Staff explained that the Federal Railroad Safety Act (FRSA), 49 U.S.C. 20106, limits state authority to regulate train speeds to situations where "essentially local safety hazards" would require reduced train speeds to eliminate or reduce the hazards. Staff maintained that the proposed rule provides an objective mechanism for reviewing requests for changes in train speeds within the authority reserved to states by the FRSA.
23 BNSF and UP requested increased flexibility for railroad companies for proposed rules regarding community notice requirements (WAC 480-62-305) and miscellaneous reporting requirements (WAC 380-62-315 [480-62-315]).
24 The railroad community notice rule requires railroad companies to notify local jurisdictions and the commission "at least ten days prior to taking any planned action that may have a significant impact on a community" (e.g., reconstruction or maintenance that impedes traffic flow through a crossing, and may delay emergency response). The purpose of the proposed rule is to allow local jurisdictions to plan detours and otherwise be prepared for the closures of certain roadway routes. At the October 2, 2000, workshop, BNSF and UP explained that since actions at crossings, such as maintenance, rarely coincide with planned schedules, the proposed rule should be revised to include the phrase "best estimate of the start and completion date" for an action. This language, as well as a disclaimer stating, "This rule is not intended to include immediate safety hazards or emergencies," was incorporated to provide flexibility for the railroads. In their written comments, BNSF and UP continued to express concern about the rule being "inconsistent with maintenance practices and could result in the delays of routine, non-emergency repairs." For example, if the opportunity presented itself to replace a broken plank, the railroad would be less likely to seize that opportunity if the rule is adopted. The comments requested that the rule be modified to allow flexibility needed to perform routine maintenance.
25 In its written response, staff explained that there is no need to further change the proposed rule. Since the maintenance practices that BNSF and UP are concerned about are not planned and could prevent safety hazards, the flexibility that the railroads are requesting is already present in the proposed rule.
26 BNSF and UP expressed concern over a section of the proposed rule requiring railroad companies to provide the commission, upon request, with information in the railroad's control regarding train operations through crossings. BNSF and UP asserted that the requirement would impose an unreasonable burden on them to collect information the railroad companies do not ordinarily maintain.
27 Staff responded that the requested information is important to the commission's rail section in performing various duties. The information has been easily obtained from railroad companies in the past, and staff sees no need to require the information on a scale that would create an unreasonable burden on railroad companies. Therefore, staff did not believe the proposed rule should be modified.
28 WSDOT/AMTRAK: WSDOT and AMTRAK filed separate comments, but both focused solely on the train speed rule (proposed WAC 480-62-155). Like the railroads, WSDOT and AMTRAK questioned the commission's authority to regulate train speeds, arguing that the train speed issue is preempted by federal law, and that the proposed rule exceeds commission authority. In a written response sent to WSDOT and AMTRAK on January 2, 2001, staff disagreed with the assertion that states were completely preempted by federal law from regulating train speeds. Staff explained that the Federal Railroad Safety Act (FRSA), 49 U.S.C. 20106, limits state authority to regulate train speeds to situations where "essentially local safety hazards" would require reduced train speeds to eliminate or reduce the hazards. Staff maintained that the proposed rule provides an objective mechanism for reviewing requests for changes in train speeds within the authority reserved to states by the FRSA.
29 Port of Edmonds: The Port of Edmonds submitted comments regarding the proposed rule on crossing surfaces (WAC 480-62-225 (5)(a)). The proposed rule requires road authorities to provide ten days advance notice to railroad companies prior to performing maintenance that would affect a crossing. The Port of Edmonds recommended that road authorities also notify local jurisdictions when such work is carried out.
30 Staff incorporated this recommendation into the proposed rule due to the fact that, in some cases, the road authority at a crossing may be a separate agency than the local jurisdiction in which the crossing is located. For example, WSDOT may be the road authority for a crossing in Edmonds. The additional language would require WSDOT to notify the City of Edmonds, in addition to the railroad, when planning work that affects the crossing.
31 Town of Steilacoom: The Town of Steilacoom submitted comments regarding the proposed rule concerning train speeds (WAC 480-62-155(3)), and specifically what constitutes an "essentially local safety hazard," and the proposed rule on flaggers (WAC 480-62-235 (8)(e)).
32 Steilacoom requested that man-made conditions be considered by the commission, in addition to natural conditions, when assessing situations that constitute essentially local safety hazards. In written comments sent by staff on January 3, 2001, staff agreed that man-made conditions present applicable hazards; however, there is a qualitative difference between the two types of conditions. Man-made conditions can often be changed to eliminate dangers, while natural conditions often cannot be changed. Local discretionary actions, such as placing certain types of structures near tracks are not allowed to dictate national policy, while natural conditions predate track construction. Despite those differences, the proposed rule does allow consideration of man-made structures in the section that provides for analysis of potential for accidents. Man-made structures are simply not emphasized, because of the differences mentioned above.
33 Staff notified Steilacoom that it had decided to delete the word "natural" from proposed WAC 480-62-155 (3)(b), as it is probably too limiting to suggest that only natural (e.g., geological) conditions would meet the definition of an "essentially local safety hazard" under the state regulation savings clause of the Federal Railroad Safety Act, 49 U.S.C. 20106.
34 Other comments by Steilacoom requested that a section of the flagger rule, concerning flagger breaks, be modified to include the sentence, "during breaks, another qualified flagger must take over flagging duties."
35 In written comments, staff notified Steilacoom that the purpose of the flagger rule is to require methods for ensuring the protection of flaggers when they are used, and is not intended to suggest circumstances when flaggers should be used. However, proposed WAC 480-62-230, "Traffic control devices" states that "flaggers be provided where necessary to adequately protect the public and railroad employees," thus implicitly stating that when flaggers are appropriate for traffic control, they should be relieved by other qualified flaggers when on breaks. Therefore, there is no need to change the proposed rule.
36 Washington Military Department - Emergency Management Division: The Emergency Management Division of the Washington Military Department filed written comments supporting the proposed rule on train speeds (WAC 480-62-155), and suggested changes to the proposed rules on blocking grade crossings (WAC 480-62-220), crossing surfaces (WAC 480-62-225), railroad community notice requirements (WAC 480-62-305), and accident reports (WAC 480-62-310). Specifically the Emergency Management Division recommended that, in addition to notice to the local jurisdiction in those proposed rules, notice of the location of the affected crossing also be provided to the Public Safety Answering Point (PSAP) responsible for dispatch of necessary services.
37 In written comments sent to the Emergency Management Division on January 2, 2001, staff agreed that the recommendations were appropriate. However, staff stated that it would pursue the suggested modifications in a subsequent rule making due to the need to adopt certain proposed rules as permanent rules no later than March 1, 2001, and the fact that additional notice requirements would likely require filing an additional CR-102 with the Office of the Code Reviser.
38 RULE-MAKING HEARING: The rule proposal was considered for adoption, pursuant to the notice, at a rule-making hearing scheduled during the commission's regularly scheduled open public meeting on January 11, 2001, before Chair Marilyn Showalter and Commissioner Richard Hemstad. During the adoption hearing, the commission received a staff report and heard oral comments from representatives of BNSF, UP, and WSDOT. In addition to the staff report and stakeholder comments, Jonathan Thompson of the Attorney General's Office provided information on the issue of the commission's jurisdiction over train speeds.
39 COMMENTS AT ADOPTION HEARING: The following people provided oral comments at the January 11, 2001, adoption hearing:
40 UP and BNSF: Carolyn Larson spoke on behalf of UP, and Daniel Kinerk spoke on behalf of BNSF. In their comments, both parties reaffirmed their comments and concerns from previous written comments regarding the proposed rule concerning train speeds, and Ms. Larson repeated her concerns concerning the proposed rules on miscellaneous reporting requirements, and community notice requirement.
41 Washington State Department of Transportation: Jeff Schultz spoke on behalf of WSDOT, also reaffirming previous written comments objecting to the train speed rule.
42 SUGGESTIONS FOR CHANGE THAT ARE REJECTED: As noted above, BNSF, UP, WSDOT, and AMTRAK all suggested that the commission not adopt the proposed rule concerning train speeds (WAC 480-62-155). In addition, the Town of Steilacoom requested changes to the proposed rule concerning flaggers (WAC 480-62-235 (8)(e)), and the Emergency Management Division of the Washington Military Department requested certain changes to be made to a number of proposed notification rules, e.g., blocking grade crossings (WAC 480-62-220), crossing surfaces (WAC 480-62-225), railroad community notice requirements (WAC 480-62-305), and accident reports (WAC 480-62-310). The commission rejects the suggestions for change to these proposed rules.
43 Proposed Flagger Rule: Steilacoom requested that a section of the flagger rule, concerning flagger breaks, be modified to include the sentence, "during breaks, another qualified flagger must take over flagging duties." The commission believes the purpose of the flagger rule is to require methods for ensuring the protection of flaggers when they are used, and is not intended to suggest circumstances when flaggers should be used. However, proposed WAC 480-62-230 Traffic control devices states that "flaggers be provided where necessary to adequately protect the public and railroad employees," thus implicitly stating that when flaggers are appropriate for traffic control, they should be relieved by other qualified flaggers when on breaks. Therefore, there is no need to incorporate the suggested change.
44 Proposed Notification Rules: The Emergency Management Division of the Washington Military Department recommended changes to the proposed rules on blocking grade crossings (WAC 480-62-220), crossing surfaces (WAC 480-62-225), railroad community notice requirements (WAC 480-62-305), and accident reports (WAC 480-62-310). Specifically the Emergency Management Division recommended that, in addition to notifying the local jurisdiction in those proposed rules, notice of the location of the affected crossing also be provided to the Public Safety Answering Point (PSAP) responsible for dispatch of necessary services.
45 The commission agrees that the recommendations are appropriate, but believes that properly addressing the suggestions would require an additional round of stakeholder meetings and comments. In particular, additional notice requirements would likely require filing an additional CR-102 with the Office of the Code Reviser. Due to the need to adopt certain proposed rules in this docket as permanent rules no later than March 1, 2001, the commission believes it is best to pursue the suggested modifications in a subsequent rule making.
46 Proposed Train Speed Rule:
47 In their written and oral comments on the proposed train speed rule, BNSF, UP, WSDOT, and AMTRAK all assert that the commission is preempted by federal law from regulating train speeds and that the commission should not adopt the proposed rule. Specifically, BNSF and UP assert that the proposal to require railroad companies to obtain prior approval from the commission before modifying train speeds is "patently unconstitutional." Further, the railroads assert that the state statutes authorizing the commission to regulate train speeds, RCW 81.48.030 and 81.48.040, have been preempted by federal law.
48 The commission rejects the suggestion that the commission is preempted from adopting the proposed rule on train speeds. The federal statute addressing the issue of preemption is a section of the Federal Railroad Safety Act, appearing in 49 U.S.C. 20106. This statute provides that:
Laws, regulations, and orders related to railroad safety shall be nationally uniform to the extent practicable. A State may adopt or continue in force a law, regulation, or order related to railroad safety until the Secretary of Transportation prescribes a regulation or issues an order covering the subject matter of the State requirement. A State may adopt or continue in force an additional or more stringent law, rule, regulation, order, or standard relating to railroad safety when the law, regulation, or order-
(3) does not unreasonable [unreasonably] burden interstate commerce.
U.S.C. 20106.
49 The statue [statute] clearly provides a role for the states in determining whether an essentially local safety hazard exists that should result in a lower train speed than that set by the secretary of transportation. Given the commission's statutory authority to regulate train speeds, the commission believes it is appropriate to adopt a rule that establishes a clear procedure for reviewing whether a local safety hazard exists. That procedure requires the commission to review a proposal made by either a railroad company or other party to modify existing train speed limits, before the speed is modified.
50 Over the past several years, the railroads have made and the commission has reviewed numerous requests to increase train speed limits in the state of Washington to the limits established by the Federal Railroad Administration. Requests to modify train speed limits usually result in a strong response from local jurisdictions and members of the public requesting the commission to take action under its statutory authority. The commission believes that the process set forth in the proposed rule will provide clear guidance to the railroads, local jurisdictions and other interested parties as to the procedure before the commission when reviewing requests to modify train speed limits, as well as the commission's jurisdictional limits in setting train speed limits. For these reasons, the commission rejects the suggestions made by BNSF, UP, WSDOT, and AMTRAK.
51 COMMISSION ACTION: After considering all of the information regarding this proposal, the commission repealed the existing rules in chapter 480-62 WAC and adopted the proposed rules with the changes described below.
52 CHANGES FROM PROPOSAL: The commission adopted the proposal with the following changes from the text noticed at WSR 00-23-131. First, a number of typographical changes were made to correct grammatical or citation errors in the text. In addition, more detailed changes were made to the rules concerning train speeds (WAC 480-62-155), crossing signal circuitry (WAC 480-62-210), crossing surfaces (WAC 480-62-225), railroad community notice requirements (WAC 480-62-305), and miscellaneous reporting requirements (WAC 480-62-315).
53 Train speeds (WAC 480-62-155): In order to address some of the concerns raised by the railroads, WSDOT, and AMTRAK, the commission simplified the language of the rule heading from "Procedure to set train speed limits" to "Train speeds," to eliminate the focus on the "setting" of train speed limits.
54 Second, the commission added language to subsection (2)(a) to state more explicitly the process a railroad must follow when seeking modification of an existing limit set by the commission. This language recognizes the different information that the commission requires from a railroad company than from a person or local jurisdiction seeking to modify a train speed limit.
55 Third, the commission added a section outlining the burden of proof for the railroad and other persons when filing a petition with the commission to modify or set train speeds. This new subsection (2)(c), recognizes that the railroad will have made a prima facie case as to why the speed must be modified if the railroad includes all information required by subsection (2)(a)(ii)(A)-(E). The new subsection also recognizes that the local jurisdiction or commission staff bear the burden to show the existence of an essentially local safety hazard.
56 Finally, proposed changes to subsection (3) incorporate a suggestion made by the Town of Steilacoom concerning what constitutes an essentially local safety hazard. Specifically, the rule includes the words "at a minimum," in the first sentence, and deletes the word "natural" from subsection (3)(a).
57 Crossing signal circuitry (WAC 480-62-210): A change to proposed WAC 480-62-210(3) clarifies that the commission will enforce the rule against certain railroad companies that are not subject to the jurisdiction of the Federal Railroad Administration pursuant to the compliance policy set forth in proposed WAC 480-62-160.
58 Crossing surfaces (WAC 480-62-225): The Port of Edmonds recommended that the commission require highway authorities to notify local jurisdictions as well as railroad companies when performing maintenance on a crossing surface. The suggestion is adopted and the entire notification section is moved to WAC 480-62-305 concerning railroad community notice requirements, substituting in WAC 480-62-225 a reference to WAC 480-62-305.
59 Railroad community notice requirements (WAC 480-62-305): The commission added two new subsections to the proposed rule to clarify requirements for notice by highway authorities and railroad companies when performing maintenance on a crossing.
60 In addition, during the adoption hearing before the commission on January 11, 2001, the commission added language to address a concern raised by Ms. Larson, representing UP. The commission adds a note after subsection (1), to read "NOTE: Maintenance practices, such as replacing broken planks if the opportunity to do so is unexpectedly presented, are not considered to be planned actions and would likely prevent safety hazards. In such situations, advance notice would not be required."
61 Miscellaneous reporting requirements (WAC 480-62-315): During the adoption hearing, Ms. Larson also raised a concern with subsection (2) of the proposed rule on miscellaneous reporting requirements. The commission adds words to clarify that railroads are not required to conduct new or additional research to provide the required information on train operations.
62 STATEMENT OF ACTION; STATEMENT OF EFFECTIVE DATE: In reviewing the entire record, the commission determines that WAC 480-62-010, 480-62-020, 480-62-030, 480-62-040, 480-62-050, 480-62-060, 480-62-070, 480-62-080, 480-62-085, 480-62-090, 480-62-100 and 480-62-120 should be repealed; and WAC 480-62-125, 480-62-130, 480-62-135, 480-62-140, 480-62-145, 480-62-150, 480-62-155, 480-62-160, 480-62-165, 480-62-170, 480-62-200, 480-62-205, 480-62-210, 480-62-220, 480-62-225, 480-62-230, 480-62-235, 480-62-240, 480-62-245, 480-62-250, 480-62-300, 480-62-305, 480-62-310, 480-62-315, 480-62-320, 480-62-325, and 480-62-999 should be adopted as set forth in Appendix A, as rules of the Washington Utilities and Transportation Commission, to take effect pursuant to RCW 34.05.380(2) on the thirty-first day after filing with the Office of the Code Reviser.
Number of Sections Adopted on the Agency's Own Initiative: New 27, Amended 0, Repealed 12.
63 THE COMMISSION ORDERS:
1. WAC 480-62-010, 480-62-020, 480-62-030, 480-62-040, 480-62-050, 480-62-060, 480-62-070, 480-62-080, 480-62-085, 480-62-090, 480-62-100, and 480-62-120 are repealed, and WAC 480-62-125, 480-62-130, 480-62-135, 480-62-140, 480-62-145, 480-62-150, 480-62-155, 480-62-160, 480-62-165, 480-62-170, 480-62-200, 480-62-205, 480-62-210, 480-62-220, 480-62-225, 480-62-230, 480-62-235, 480-62-240, 480-62-245, 480-62-250, 480-62-300, 480-62-305, 480-62-310, 480-62-315, 480-62-320, 480-62-325, and 480-62-999 are adopted to read as set forth in Appendix A, as rules of the Washington Utilities and Transportation Commission, to take effect on the thirty-first day after the date of filing with the code reviser pursuant to RCW 34.05.380(2).
2. This order and the rules set out below, after being recorded in the register of the Washington Utilities and Transportation Commission, shall be forwarded to the Office of the Code Reviser for filing pursuant to chapters 80.01 and 34.05 RCW and chapter 1-21 WAC.
DATED at Olympia, Washington, this 30th day of January, 2001.
OTS-4525.2
WAC 480-62-130 Application of this chapter. The rules in this chapter apply within certain cities and to any railroad company subject to the jurisdiction of the commission under RCW 81.04.010 and chapters 81.04, 81.24, 81.28, 81.36, 81.40, 81.44, 81.48, 81.52, 81.53, 81.54, 81.60, and 81.61 RCW, as set forth below:
(2) To and within first class cities except for WAC 480-62-145, 480-62-150, 480-62-155, and 480-62-225.
(3) To and within cities with a population of more than 400,000 except for WAC 480-62-145, 480-62-150, 480-62-155, 480-62-225, 480-62-230, and 480-62-235.
WAC 480-62-135 Additional requirements. (1) These rules do not relieve any railroad company from any of its duties and obligations under the laws of the state of Washington.
(5) The commission will enter an order granting or denying the request or setting it for hearing, pursuant to chapter 480-09 WAC.
WAC 480-62-145 Commission proceedings. The commission's rules governing administrative practices and procedures are in chapter 480-09 WAC. When a rule in this chapter conflicts with a rule in chapter 480-09 WAC, the rule in this chapter applies.
WAC 480-62-150 Grade crossing petitions. (1) Whenever a railroad company, city, county, the department of transportation, the parks and recreation commission, or the commission seeks to take any of the following actions at a railroad-highway grade crossing, it must file a petition with the commission seeking approval under RCW 81.53.020 and 81.53.060:
WAC 480-62-155 Train speeds. (1) Scope of commission authority. The commission's authority to regulate the speed of trains is established in RCW 81.48.030 but limited by federal law. Under RCW 81.48.030, the commission has the power to "fix and regulate" the speed of trains within the limits of any city and town, other than a first class city and at grade crossings outside the limits of cities and towns. However, under section 205 of the Federal Railroad Safety Act, 49 U.S.C. 20106, states are limited to actions which are "necessary to eliminate or reduce an essentially local safety hazard." Accordingly, the commission will act to limit train speeds below those set by the United States Secretary of Transportation only where it finds that there exists such a local safety hazard and that reduction of the train speed is necessary to eliminate or reduce that hazard.
(2) Procedure. The commission will consider whether to set train speed limits below those authorized by the United States Secretary of Transportation either upon petition or upon its own motion.
(a) Petition process.
(i) Any person, other than a railroad company, who seeks to have the commission set a train speed limit different from the federally set speed limit or modify an existing limit set by the commission must file with the commission a petition. Such petition must contain the following information:
(B) Specific location and length of track over which the speed limit is sought;
(C) Reasons for the speed limit;
(D) If the petitioner seeks a speed limit different from the federally set speed limit, a detailed explanation of why there exists an "essentially local safety hazard" and why that speed limit is necessary to eliminate or reduce the hazard; and
(E) Any other information the petitioner deems relevant.
(ii) A railroad company that seeks to modify an existing limit set by the commission must file with the commission a petition. Such petition must contain the following information:
(A) Name and address of the railroad company, and a contact person;
(C) Class of track over which the speed limit is sought;
(D) Reason for the speed limit requested; and
(E) Any other information the railroad company deems relevant.
(iii) Upon receipt of a petition, the commission will serve the petition on the railroad company, if the railroad company did not file the petition; the governing body of any local government within which the proposed speed limit is intended to apply; and the secretary of the department of transportation. The commission will ask for responses from those persons. The commission will set the matter for consideration at a regularly scheduled or special open meeting or, in its discretion, for a formal adjudicatory proceeding under chapter 34.05 RCW.
(b) Commission-initiated process. After investigation, the commission may also initiate a proceeding to set a train speed limit. Such a proceeding will be initiated by serving a notice on the railroad company or companies; the chief executive officer of any local government within which the proposed speed limit is intended to apply; and the secretary of the department of transportation. The notice will contain the information described in (a)(i)(A) through (E) of this subsection, the time for filing responses to the notice and the date, time, and place at which the commission will consider the matter. Such consideration may be at a regular or special open meeting or, in the commission's discretion, in a formal adjudicatory proceeding under chapter 34.05 RCW.
(i) When a railroad company files a petition to modify an existing limit set by the commission to or within a federally set speed limit, including the information set forth in (a)(ii)(A) through (E) of this subsection, the railroad will be deemed to have met its burden of proof as to why the speed limit should be modified. The burden then shifts to the governing body of the local government, commission staff, or other interested persons to show that there exists "an essentially local safety hazard," and that a speed limit different from that proposed by the railroad company is necessary to eliminate or reduce the hazard.
(ii) When a person, other than a railroad company, files a petition with the commission to set a train speed limit different from the federally set speed limit or modify an existing limit set by the commission, that person bears the burden of showing that there exists "an essentially local safety hazard," and that the speed limit is necessary to eliminate or reduce the hazard.
(iii) When the commission initiates a proceeding on its own motion to set a train speed limit different from the federally set speed limit or modify an existing limit set by the commission, the commission staff bears the burden of showing that there exists "an essentially local safety hazard," and that the speed limit is necessary to eliminate or reduce the hazard.
(3) Evidence of what constitutes an "essentially local safety hazard." In determining whether a train speed limit, lower than authorized by federal law, is necessary to eliminate or reduce an essentially local safety hazard, the commission will include in its consideration, at a minimum, the following:
(a) Whether the local situation is one that is covered by or is capable of being adequately covered by uniform national standards;
(b) Whether there exist unusual local geographic or other conditions which contribute to the existence of the hazard;
(c) The history of accidents or potential for accidents at the location; and
(d) Whether there exist alternate means to reduce or eliminate any hazard that can be included as conditions to an order setting a train speed.
WAC 480-62-160 Compliance policy. (1) The commission encourages voluntary compliance with state statutes, rules, and commission orders through the following:
(ii) For compliance with Federal Railroad Administration (FRA) rules through the State Safety Participation Program, 49 CFR Part 212. Information about Title 49 CFR regarding the version adopted and where to obtain it is set out in WAC 480-62-999.
WAC 480-62-165 Severability. If any provision of this chapter or its application to any person or circumstance is held invalid, the remainder of the chapter or the application of the provision to other persons or circumstances is not affected.
WAC 480-62-170 Resolving disputes about the meaning of these rules. If the interpretation of any rule in this chapter is questioned by a railroad company, a request for clarification may be filed with the commission.
WAC 480-62-200 Roadway worker safety and operating rules and statutes. (1) The commission adopts by reference the following parts of Title 49 of the Code of Federal Regulations (CFR) and Title 49 of the United States Code (U.S.C.) and all pertinent appendices:
(l) 49 U.S.C. Chapter 211: Hours of Service.
(2) Information about Title 49 CFR and Title 49 U.S.C. regarding the version adopted and where to obtain it is set out in WAC 480-62-999.
WAC 480-62-205 Track safety standards. (1) Rules governing track safety standards are prescribed by the United States Department of Transportation in Title 49, Part 213, of the Code of Federal Regulations, along with appendices. Information about Title 49 CFR regarding the version adopted and where to obtain it is set out in WAC 480-62-999.
(2) All violations of the above incorporated rules will be submitted to the Federal Railroad Administration for enforcement action pursuant to the State Safety Participation Program, 49 CFR Part 212.
WAC 480-62-210 Crossing signal circuitry. (1) Rules governing grade crossing signal system safety are prescribed by the United States Department of Transportation in Title 49 of the Code of Federal Regulations, Part 234 along with appendices. Information about Title 49 CFR regarding the version adopted and where to obtain it is set out in WAC 480-62-999.
WAC 480-62-215 Hazardous materials regulations. (1) Rules governing hazardous materials are prescribed by the United States Department of Transportation in Title 49, Code of Federal Regulations, Parts 171 through 174, and Parts 178 and 179, and the appendices to Title 49. Information about Title 49 CFR regarding the version adopted and where to obtain it is set out in WAC 480-62-999.
(2) All violations of the above incorporated rules and statutes will be submitted to the Federal Railroad Administration for enforcement action pursuant to the State Safety Participation Program, 49 CFR Part 212.
WAC 480-62-220 Blockage of public grade crossings. (1) Railroad companies must not block a grade crossing for more than ten consecutive minutes, if reasonably possible.
WAC 480-62-225 Crossing surfaces. (1) Areas of responsibility.
WAC 480-62-230 Traffic control devices. (1) Whenever a railroad company performs any construction, maintenance or repairs at a grade crossing or grade separated crossing, the company must install and maintain traffic control devices adequate to protect the public and railroad employees. Flaggers must also be provided where necessary to adequately protect the public and railroad employees.
(2) The rules governing traffic control devices are prescribed in the Manual on Uniform Traffic Control Devices and chapter 468-95 WAC. Information about the Manual on Uniform Traffic Control Devices and chapter 468-95 WAC regarding the versions adopted and where to obtain them is set out in WAC 480-62-999.
(3) Any traffic control device must be used only as long as the device is needed or applicable. Any device that is no longer needed or applicable must be immediately removed or inactivated so as to prevent confusion.
(4) All barricades, signs, and similar devices must be constructed and installed in a workmanlike manner.
(5) Bushes, weeds, or any other material or object must not be allowed to obscure any traffic control devices.
(6) All signs, barricades, and other control devices intended for use during hours of darkness must be adequately illuminated or reflectorized, with precautions taken to protect motorists from glare.
- A high-visibility safety garment designed according to Class 2 specifications in ANSI/ISEA 107-1999, American National Standards for High-Visibility Safety Apparel, specifically, a garment containing at least seven hundred seventy-five square inches of background material and two hundred one square inches of retroreflective material; and
- A high-visibility safety garment designed according to Class 2 specifications in ANSI/ISEA 107-1999 over white coveralls, or other coveralls or trousers designed according to ANSI/ISEA 107-1999 standards; and
(c) While flagging during inclement weather, yellow rain gear, white rain gear, or rain gear designed according to ANSI/ISEA 107-1999 may be substituted for white coveralls.
(10) Information about Title 49 CFR, the Manual on Uniform Traffic Control Devices, and ANSI/ISEA 107-1999 regarding the versions adopted and where to obtain them is set out in WAC 480-62-999.
(h) Vehicles must have a first-aid kit located where it is readily accessible. The kit must contain all of the items specified in WAC 296-24-06145 and 296-24-06160, Appendix 2, adopted by the department of labor and industries. Additionally, the kit must contain gloves capable of preventing exposure to bloodborne pathogens. Items used from first-aid kits must be replaced before the next shift, and kits must be checked for compliance with this rule if the seal on the kit is broken. Information about chapter 296-24 WAC regarding the version adopted and where to obtain it is set out in WAC 480-62-999.
WAC 480-62-245 Passenger carrying vehicles -- Operation. (1) General. All passenger carrying motor vehicles must be operated in compliance with state law no matter where the vehicle is operated. Drivers must operate vehicles in a careful and prudent manner and at reasonable and proper speeds, with due regard to circumstances and to the use of highways by others.
(2) Minimum age, skill, and physical condition of drivers. Drivers of passenger carrying vehicles must be at least eighteen years old. Before being allowed to drive or operate a passenger carrying vehicle, drivers must have demonstrated the physical capability of handling the controls of the vehicle with ease. Before driving a vehicle, drivers or operators must obtain either a valid Washington state driver's license or a valid license from the state of the driver's residence. The driver must carry the license at all times while operating a vehicle. If the passenger carrying vehicle is a type for which the state of Washington requires an extraordinary license or endorsement, the driver must have such license or endorsement.
(d) Insofar as practicable, permit any other person to engage in activities that might result in a fire or explosion. Except on buses, all occupants of the vehicle, except the driver and those within the operating cab, must dismount and stand clear while the vehicle is being refueled.
(c) No driver may drink intoxicating liquors while on duty, or drive while affected by the use of intoxicating liquor or other substance which might impair the ability to drive.
(6) Loading and carrying of passengers. Drivers are in charge of the vehicle and must require passengers to observe vehicle rules. Passengers may not enter or exit from the vehicle while it is in motion, or ride on running boards, fenders, bumpers, tops of cabs, or with any part of their body projecting beyond the sides or the ends of the vehicle. When equipment or tools are carried inside the vehicle, they must be stored in enclosed racks or boxes that are secured to the vehicle in a manner that prevents employees from being struck in the event of sudden starts, stops, or turns. The driver must assure that tools and materials are properly secured before moving the vehicle.
(7) Limitation on transportation of explosives, gasoline, and other hazardous materials on passenger carrying vehicles. Explosives other than track torpedoes and fusees may not be carried in or on any vehicle while the vehicle is being used to transport crew members in a passenger compartment. If track torpedoes or fusees are carried in a passenger carrying vehicle, they must be carried in a separate compartment or container provided for that purpose. Gasoline, or other hazardous materials, must not be carried in either the cab or in the passenger compartment; however, oxygen or acetylene cylinders may be carried if gauges and regulators have been removed with caps in place before loading. Passenger carrying vehicles may be used to carry flammable materials when they are located outside of and isolated from the passenger carrying area, and are stored in containers approved by the Underwriters Laboratories, Inc. Containers for fuel must be vented in a manner that prevents the hazardous concentration of fumes. All tools and equipment, including cylinders, containers, or drums, must be properly secured where they will not interfere with the use of any exit. A passenger carrying vehicle containing hazardous materials must not be parked within three hundred feet of an open fire. Smoking is prohibited within fifty feet of a vehicle carrying explosive or flammable materials.
WAC 480-62-250 On-track equipment. (1) When approaching and passing over a railroad-highway grade crossing, operators of motor track cars, speeders, or other on track equipment must remain in complete control of the equipment, be prepared to stop for vehicular or pedestrian traffic on the highway, stop if necessary to avoid an accident, and provide effective warning for vehicular or pedestrian traffic at the crossing.
WAC 480-62-300 Annual reports. (1) The surface transportation board annual report form R1 must be used by Class I railroad companies as the annual report form for submission to the commission. Class II and Class III railroad companies must use report forms periodically published by the commission.
(2) Each year every railroad company is responsible for obtaining the proper report form from the commission. Reports must be completed for the preceding calendar year's operations. One copy of the completed annual report must be submitted to the commission no later than May 1 of the succeeding year.
WAC 480-62-305 Railroad community notice requirements. This rule is not intended to cover immediate safety hazards or emergencies.
Note: Maintenance practices, such as replacing broken planks if the opportunity to do so is unexpectedly presented, are not considered to be planned actions and would likely prevent safety hazards. In such situations, advance notice would not be required.
(g) A statement substantially as follows: "If you have questions about the regulatory process, you may contact the Washington Utilities and Transportation Commission at: WUTC, 1300 S. Evergreen Park Dr. S.W., P.O. Box 47250, Olympia, WA 98504-7250; 1-800-562-6150 (toll-free). Also, you may contact the Federal Railroad Administration at 1-800-724-5998 (toll-free)."
WAC 480-62-310 Accident reports. (1) A railroad company must make a telephone report to the commission's designee, the Washington state emergency operations center's twenty-four-hour duty officer (duty officer) at 1-800-258-5990 of any event connected to the operation of the railroad company that results in the:
WAC 480-62-315 Miscellaneous reporting requirements. (1) Within thirty days of a request from the commission, every railroad company must report to the commission on the sales, transfers or abandonments of all trackage which crosses a public road. The report must contain a description of the transaction, clear identification of the track involved in the transaction, the effective date of the transaction, and the name and address of the last known owner(s) or operator(s) of the section transferred.
WAC 480-62-320 Remote controlled operations. (1) Railroad companies, including logging and industrial railroad companies, must report their intention to use remote control devices to operate trains thirty days before operations begin. The report must include:
(b) The date operations will start;
(c) The location of the operations; and
(d) Whether trains with locomotives operated by remote control will travel over at-grade pedestrian or vehicular crossings.
(2) If remote controlled trains will be operated over crossings, the railroad company must list the affected crossings.
(3) Each railroad company using remote control devices on the effective date of this rule must submit the report within thirty days after the effective date.
WAC 480-62-325 Railroad police officers -- Notice. (1) Every railroad company that has employees who are commissioned as railroad police officers pursuant to chapter 81.60 RCW must send written notice to the commission within thirty days after the effective date of these rules.
PART 4: ADOPTION BY REFERENCE
(1) Title 49 Code of Federal Regulations, cited as 49 CFR, is published by the United States Government Printing Office.
(a) The commission adopts the version in effect on January 29, 2001.
(b) This publication is referenced in WAC 480-62-160, 480-62-200, 480-62-205, 480-62-210, 480-62-215, 480-62-235 and 480-62-240.
(b) This publication is referenced in WAC 480-62-230, 480-62-235 and 480-62-245.
(c) Copies of the MUTCD are available from the Seattle Office of the Government Printing Office and from various third-party vendors.
(b) This publication is referenced in WAC 480-62-230.
(c) Copies of the Washington state department of transportation rules are available from the department of transportation or on the internet website for the office of the code reviser (leg.wa.gov/CodeReviser).
(4) Washington state department of labor and industries rules, cited as chapter 296-24 WAC, are published by the statute law committee.
(b) This publication is referenced in WAC 480-62-240.
(c) Copies of the Washington state department of labor and industries rules are available from the department of labor and industries or on the internet website for the office of the code reviser (leg.wa.gov/CodeReviser).
(5) ANSI/ISEA 107-1999 - American National Standard for High-Visibility Safety Apparel is published by the American National Standards Institute.
(b) This publication is referenced in WAC 480-62-235.
(c) Copies of ANSI/ISEA 107-1999 - American National Standard for High-Visibility Safety Apparel are available from the American National Standards Institute, 11 West 42nd Street, NY, NY 10036 or on the internet website for the American National Standards Institute (http://web.ansi.org/).