Source: http://www.access-board.gov/prowac/assessment.htm
Timestamp: 2013-05-23 10:19:12
Document Index: 723497023

Matched Legal Cases: ['art 41', '§603', '§12204', '§792', 'art 36', 'art 37', 'art 27', 'art 102', 'art 36', 'art 37', 'art 4', 'art4', 'art 35']

Regulatory Assessment of Proposed Accessibility Guidelines for Pedestrian Facilities in the Public Right-of-Way
Statutory and Regulatory Background Need for Rulemaking Rulemaking History Overview of Proposed Guidelines Governmental Jurisdictions Affected Baseline Detectable Warning Surfaces on Curb Ramps and Blended Transitions Accessible Pedestrian Signals and Pedestrian Pushbuttons Newly Constructed Tabled Intersections That Contain Pedestrian Street Crossings with Yield or Stop Control Pedestrian Activated Signals at Roundabouts with Multi-Lane Pedestrian Street Crossings Benefits Impacts on Small Governmental Jurisdictions Conclusion Notes
Appendix: Comparison of Proposed Guidelines and DOJ 2010 ADA Standards for Accessible Design
Proposed Guidelines Contain Same Requirements as in DOJ 2010 Standards for Pedestrian Facilities in the Public Right-of-Way Proposed Guidelines Adapt Requirements in DOJ 2010 Standards Proposed Guidelines Contain Requirements Not in DOJ 2010 Standards Executive Summary
This report assesses the potential costs and benefits of proposed accessibility guidelines issued by the Access Board for pedestrian facilities in the public right-of-way. The report also analyzes the potential impacts of the proposed guidelines on small governmental jurisdictions with populations less than 50,000. The Access Board is responsible for developing accessibility guidelines for the design, construction, and alteration of facilities to ensure that the facilities are readily accessible to and usable by individuals with disabilities. The Access Board's guidelines play an important part in the implementation of three laws that require newly constructed and altered facilities to be accessible to individuals with disabilities: the Americans with Disabilities Act, Section 504 of the Rehabilitation Act, and the Architectural Barriers Act. These laws require other federal agencies to issue regulations which include accessibility standards for the design, construction, and alteration of facilities that are consistent with the Access Board's guidelines. The regulations issued by the other federal agencies adopt, with or without additions and modifications, the Access Board's guidelines as accessibility standards and establish the effective dates for compliance with the accessibility standards. In the Americans with Disabilities Act, Congress directed the Access Board to issue accessibility guidelines to eliminate the discriminatory effects of architectural, transportation, and communication barriers experienced by individuals with disabilities. The Access Board's current accessibility guidelines were developed primarily for building and facilities on sites. The proposed guidelines are developed specifically for pedestrian facilities in the public right-of-way, and address conditions and constraints that exist in the public right-of-way. The guidelines ensure that sidewalks, pedestrian street crossings, pedestrian signals, and other facilities for pedestrian circulation and use constructed or altered in the public right-of-way by state and local governmental units are readily accessible to and usable by pedestrians with disabilities. For ease of reference, these state and local governmental units are referred to as "state and local transportation departments" in this report but may go by different names (e.g., public works departments, or highway or streets departments) in their respective jurisdictions.
All state transportation departments and most local transportation departments maintain design manuals and standard drawings for improvements in the public right-of-way. The local transportation department design manuals and standard drawings are generally consistent with their state transportation department design manuals and standard drawings. State and local transportation departments use publications issued by the American Association of State and Highway Transportation Officials (AASHTO) in their design manuals and standard drawings, including the "Policy on Geometric Design of Highways and Streets" (2004) (commonly referred to as the "AASHTO Green Book") and the "Guide for the Planning, Design, and Operation of Pedestrian Facilities" (2004) which incorporate accessibility in the design of sidewalks and pedestrian street crossings. The Federal Highway Administration as part of its stewardship and oversight responsibilities has also worked with state transportation departments to incorporate accessibility in their design manuals and standards drawings. The Federal Highway Administration has issued guidance that the accessibility standards in the Department of Justice regulations implementing Title II of the Americans with Disabilities Act and the Department of Transportation regulations implementing Section 504 of the Rehabilitation Act are to be used to the extent feasible for the design of pedestrian facilities in the public right-of-way until new accessibility standards are adopted for these facilities. In the absence of the proposed guidelines, the regulatory assessment assumes that state and local transportation departments will use the 2010 Standards in the Department of Justice regulations implementing Title II of the Americans with Disabilities Act ( "DOJ 2010 Standards") to the extent feasible when designing, constructing, or altering pedestrian facilities in the public right-of-way, consistent with the guidance issued by the Federal Highway Administration, as well as other applicable standards and industry practices. An analysis of the proposed guidelines compared to the DOJ 2010 Standards, other applicable standards, and industry practices is included in the appendix to the regulatory assessment. The analysis identified four requirements in the proposed guidelines that will have more than minimal impacts on state and local transportation departments. The factors used to identify whether the requirements in the proposed guidelines will have more than minimal impacts are discussed in this report under the Baseline. The four requirements in the proposed guidelines that will have more than minimal impacts on state and local transportation departments are summarized in the table below, along with a description of the governmental units affected by proposed requirements and questions in the preamble to the proposed guidelines that seek additional information on the governmental units affected.
Will affect state and local transportation departments that do not currently provide detectable warning surfaces on curb ramps Governmental Units Affected: All state transportation departments currently specify detectable warning surfaces on curb ramps in their standard drawings; most local transportation departments maintain standard drawings that are consistent with standard drawings maintained by their state transportation departments
Questions 4, 5, and 6 in preamble seek information on state and local transportation departments that do not currently provide detectable warning surfaces on curb ramps Requirement: Accessible pedestrian signals and pushbuttons required when pedestrian signals newly installed or replaced at signalized intersections (R209) Governmental Units Affected: Will affect state and local transportation departments that do not currently provide accessible pedestrian signals and pedestrian pushbuttons when pedestrian signals are newly installed or replaced at signalized intersections
Question 14 in preamble seeks information on the current design policies and practices of state and local transportation departments with respect to tabling newly constructed intersections in hilly urban areas, particularly with respect to extending the tabling to pedestrian street crossings with yield or stop control Requirement: Pedestrian activated signals required at roundabouts with multi-lane pedestrian crossings (R206 and R306.3.2)
$48 to $240 for detectable warning materials for typical curb ramp Question 8 in preamble seeks additional information on costs for detectable warning materials and installation of the materials on typical curb ramp
$2.4 million to $6.2 million
The Access Board will analyze the information received in response to the questions in the preamble to the proposed guidelines and revise the regulatory assessment when the final guidelines are issued.
Americans with Disabilities Act The Americans with Disabilities Act (42 U.S.C. 12101 et seq.) is a federal civil rights law that prohibits discrimination against individuals with disabilities. Title II of the Americans with Disabilities Act covers state and local governments.2 The Department of Justice is responsible for issuing regulations to implement Title II of the Americans with Disabilities Act, except for the public transportation parts.3 The regulations issued by the Department of Justice include accessibility standards for the design, construction, and alteration of facilities (other than facilities used in the provision of public transportation covered by regulations issued by the Department of Transportation).4 The Department of Justice's accessibility standards adopt, with additions and modifications, the Access Board's current guidelines, which are discussed below under the Need for Rulemaking.5 See 28 CFR 35.104 and 35.151.
Section 504 of the Rehabilitation Act Section 504 of the Rehabilitation Act (29 U.S.C. 794) (hereinafter referred to as "Section 504") prohibits discrimination against individuals with disabilities under any program or activity receiving federal financial assistance. The term "program or activity" includes all the operations of a state or local government entity that receives federal financial assistance directly or indirectly from the federal government. See 29 U.S.C. 794 (b). Each federal agency that provides federal financial assistance is responsible for issuing regulations to implement Section 504 that are consistent with requirements established by the Department of Justice. See Executive Order 12250 in Appendix A to 28 CFR part 41. The Department of Justice requires facilities designed, constructed, or altered by recipients of federal financial assistance to be accessible to individuals with disabilities. See 28 CFR 41.58.
Architectural Barriers Act The Architectural Barriers Act (42 U.S.C. 4151 et seq.) requires certain facilities financed with federal funds to be accessible to individuals with disabilities. The Architectural Barriers Act covers facilities financed in whole or part by a federal grant or loan where the federal agency that provides the grant or loan is authorized to issue standards for the design, construction, or alteration of the facilities.8 See 42 U.S.C. 4151 (3). The General Services Administration is required to issue accessibility standards for facilities covered by the Architectural Barriers Act.9 See 42 U.S.C. 4156. The accessibility standards issued by the General Services Administration adopt, without any additions or modifications, the Access Board's current guidelines, which are discussed below under the Need for Rulemaking. See 41 CFR 102-76.65.
Congressional Findings of Discrimination The Americans with Disabilities Act was enacted in 1990 by overwhelming bipartisan majorities in the House of Representatives (377 – 28) and in the Senate (91 – 6).10 Congress compiled an extensive record of the discrimination experienced by individuals with disabilities in critical areas such as employment, public accommodations, state and local government services, and transportation. Congress found that "despite some improvements such forms of discrimination against individuals with disabilities continue to be a serious and pervasive social problem." 42 U.S.C. 12101 (a) (2). Among the forms of discrimination that Congress found to be a continuing problem are "the discriminatory effects of architectural, transportation, and communication barriers." 42 U.S.C. 12101 (a) (5). Congress found that "the continuing existence of unfair and unnecessary discrimination and prejudice denies people with disabilities the opportunity to compete on an equal basis and to pursue those opportunities for which our free society is justifiably famous, and costs the United States billions of dollars in unnecessary expenses resulting from dependency and nonproductivity." 42 U.S.C. 12101 (a) (9). Congress declared that "the Nation's proper goals regarding individuals with disabilities are to ensure equality of opportunity, full participation, independent living, and economic self-sufficiency for such individuals." 42 U.S.C. 12101 (a) (8). The purpose of the Americans with Disabilities Act is "to provide a clear and comprehensive national mandate for the elimination of discrimination against individuals with disabilities" and "to provide clear, strong, and consistent, enforceable standards addressing discrimination against individuals with disabilities." 42 U.S.C. 12101 (b) (1) and (2). Congress directed the Access Board to supplement the accessibility guidelines developed earlier for the Architectural Barriers Act to include "additional requirements, consistent with this Act, to ensure that buildings, facilities, rail passenger cars, and vehicles are accessible in terms of architecture and design, transportation, and communication, to individuals with disabilities." 42 U.S.C. 12204 (b).
Current Guidelines Developed Primarily for Buildings and Facilities on Sites The Access Board's current accessibility guidelines were issued in 2004 and are known as the Americans with Disabilities Act and Architectural Barriers Act Accessibility Guidelines (hereinafter referred to as "2004 ADA and ABA Accessibility Guidelines").11 69 FR 44083 (July 23, 2004). The 2004 ADA and ABA Accessibility Guidelines revised and updated the Americans with Disabilities Act Accessibility Guidelines, which were issued by the Access Board in 1991 (hereinafter referred to as "1991 ADAAG"). 56 FR 35408 (July 26, 1991). The requirements in the 1991 ADAAG and 2004 ADA and ABA Accessibility Guidelines were developed primarily for buildings and facilities on sites.12 Some of the requirements can be readily applied to pedestrian facilities in the public right-of-way. However, other requirements need to be adapted for pedestrian facilities in the public right-of-way.
The proposed guidelines are developed specifically for pedestrian facilities in the public right-of-way and address conditions and constraints that exist in the public right-of-way. The requirements in the proposed guidelines make allowances for typical roadway geometry and permit flexibility in alterations to existing facilities where existing physical constraints make it impractical to fully comply with new construction requirements. The proposed guidelines also include requirements for elements and facilities that exist only in the public right-of-way such as pedestrian signals and roundabouts.
Overview of Proposed Guidelines The proposed guidelines apply to pedestrian facilities in the public right-of-way. The proposed guidelines define the public right-of-way to mean "public land or property, usually in interconnected corridors, that is acquired for or dedicated to transportation purposes" (see R105.5). The proposed guidelines ensure that the following facilities for pedestrian circulation and use located in the public right-of-way are readily accessible to and usable by pedestrians with disabilities:
Pedestrian street crossings at multi-lane channelized turn lanes at roundabouts and at other signalized intersections, including requirements for pedestrian activated signals;
Pedestrian at-grade rail crossings, including requirements for flangeway gaps;
Pedestrian signs, including requirements for visible characters on signs and alternative requirements for audible sign systems and other technologies;
The proposed guidelines require a pedestrian access route to be provided within sidewalks and other pedestrian circulation paths, pedestrian street crossings, and pedestrian overpasses or underpasses (see R204).18 A pedestrian access route is a continuous and unobstructed path of travel provided for pedestrians with disabilities within or coinciding with a pedestrian circulation path in the public right-of-way (see R105.5). Pedestrian access routes in the public right-of-way ensure that the transportation network used by pedestrians is accessible to pedestrians with disabilities. Pedestrian access routes in the public right-of-way are analogous to accessible routes on sites in that they connect to accessible elements, spaces, and facilities in the public right-of-way, including accessible pedestrian signals and pedestrian pushbuttons, accessible street furniture, accessible transit stops and transit shelters, accessible on-street parking spaces and parking meters and parking pay stations serving those parking spaces, and accessible passenger loading zones. Pedestrian access routes in the public right-of-way also connect to accessible routes at building and facility site arrival points.19
The proposed guidelines were developed for new construction work. However, most of the improvements in the public right-of-way involve alterations to existing facilities. Where elements, spaces, or facilities are altered, each altered element, space or facility within the scope of the project is required to comply the applicable requirements for new construction (see R202.3). 20 The proposed guidelines permit flexibility in alterations to existing facilities. Where existing physical constraints make it impracticable for altered elements, spaces, or facilities to fully comply with the requirements for new construction, compliance is required to the extent practicable within the scope of the project (see R202.3.1). Existing physical constraints include, but are not limited to, underlying terrain, right-of-way availability, underground structures, adjacent developed facilities, drainage, or the presence of a notable natural or historic feature.
Local Governments Number Population 100,000 or More Population 50,000 to 99,999 Population Less than 50,000 Source: US Census Bureau 2002 Census of Governments available at: http://www.census.gov/prod/2003pubs /gc021x1.pdf. There are 743 special highway districts but the report does not provide population data for the districts. County
3,034 473 383 2,178 Municipal 19,429 241 364 18,824 Town or Township 16,504 36 97 16,371 Total 38,967 750 844 37,375 The proposed guidelines will not affect all local governments the same. Local governments within areas classified by the US Census Bureau as urban have higher population densities and generally construct more pedestrian facilities in the public right-of-way. Local governments within areas classified by the US Census Bureau as rural have lower population densities and generally construct fewer pedestrian facilities in the public right-of-way.22
Table 1. Proposed Guidelines Contain Same Requirements as in DOJ 2010 Standards Table 1 analyzes requirements in the proposed guidelines that are the same as requirements in the DOJ 2010 Standards.28 The requirements in the proposed guidelines in Table 1 will have no impacts on state and local transportation departments compared to the requirements in the DOJ 2010 standards because the requirements are the same.
Table 2. Proposed Guidelines Adapt Requirements in DOJ 2010 Standards Table 2 analyzes requirements in the proposed guidelines that adapt requirements in the DOJ 2010 Standards to allow for conditions and constraints in the public right-of-way.29 The requirements in the proposed guidelines in Table 2 do not establish greater requirements for accessibility in the public right-of-way than the requirements in the DOJ 2010 Standards and industry practices. Some of the requirements in the proposed guidelines in Table 2 establish lesser requirements for accessibility in the public right-of-way than the requirements in the DOJ 2010 Standards. For example, where the pedestrian access route in a sidewalk is contained within the street or highway right-of-way, the grade of the pedestrian access route is permitted to equal the general grade established for the adjacent street or highway to allow for typical roadway geometry instead of the running slope requirements for accessible routes on sites. The requirements in the proposed guidelines in Table 2 will have no impacts on state and local transportation departments compared to the requirements in the DOJ 2010 Standards and industry practices, except for the 2 percent maximum cross slope requirement for pedestrian access routes contained within pedestrian street crossings with stop or yield control where vehicles slow or stop before proceeding through the intersection (see R204.3 and R302.6). This requirement will have more than minimal impacts on the design and construction of new tabled intersections in hilly urban areas that contain pedestrian street crossings with stop or yield control. The impacts are analyzed in this report.
Table 3. Proposed Guidelines Contain Requirements Not in DOJ 2010 Standards Table 3 analyzes requirements in the proposed guidelines for which there are no corresponding requirements in the DOJ 2010 Standards.30 The requirements in the proposed guidelines in Table 3 are compared to other applicable accessibility standards and the 2009 edition of Manual on Uniform Traffic Control Devices for Streets and Highways (MUTCD). Where the requirements in the proposed guidelines in Table 3 are the same as the requirements in other applicable accessibility standards or the MUTCD, the requirements will have no impacts on state and local transportation departments. Where a requirement in the proposed guidelines in Table 3 differs from a corresponding requirement in other applicable accessibility standards or there is no corresponding requirement in other applicable accessibility standards, the analysis used the following factors to identify whether the requirement will have more than minimal impacts on state and local transportation departments:
The impacts of these requirements are analyzed in this report. Questions 1 and 2 in the preamble to the proposed guidelines requests comments on whether other requirements in the proposed guidelines will have more than minimal impacts on state and local transportation departments, in addition to the requirements identified in Tables 2 and 3, and whether the requirements in the proposed guidelines will have any unintended positive or negative consequences. Detectable Warning Surfaces on Curb Ramps and Blended Transitions
Current Requirements for Detectable Warning Surfaces on Curb Ramps When the Access Board issued the 1991 ADAAG, the guidelines contained a requirement for detectable warning surfaces on curb ramps. The requirement was temporarily suspended between 1994 and 2001 pending additional research and review of issues relating to requirement. The Access Board deferred addressing detectable warning surfaces on curb ramps in the 2004 ADA and ABA Accessibility Guidelines pending completion of the guidelines for pedestrian facilities in the public right-of-way. As a result of these actions, there are different requirements for detectable warning surfaces on curb ramps in the accessibility standards included the regulations issued by the Department of Justice implementing Title II of the Americans with Disabilities Act and by the Department of Transportation implementing Section 504.
Governmental Units Affected State and local transportation departments are divided into four groups for the purpose of evaluating the impacts of the requirement in the proposed guidelines for detectable warning surfaces on curb ramps:
Group 1 consists of state and local transportation departments that use UFAS for curb ramps as currently permitted by the Department of Justice and Department of Transportation regulations implementing Title II of the Americans with Disabilities Act and Section 504. UFAS did not contain a requirement for detectable warning surfaces on curb ramps. The Access Board is not aware of any state and local transportation departments that use UFAS. The Department of Justice regulations do not permit the use of UFAS on or after March 15, 2012. See 28 CFR 35.151 (c) (3). Thus, Group 1 will cease to exist as of March 15, 2012, and any state and local transportation departments currently in Group 1 will fall into one of the other groups. Group 2 consists of state and local transportation departments that receive federal financial assistance directly or indirectly from the Department of Transportation. State and local transportation departments in Group 2 are required to comply with the accessibility standards in the Department of Justice regulations implementing Title II of the Americans with Disabilities Act and the Department of Transportation regulations implementing Section 504. Where the requirements in the accessibility standards in the Department of Justice and Department of Transportation regulations differ, the more stringent requirement must be used. Excluding any state and local transportation departments in Group 1, state and local transportation departments in Group 2 must comply with the requirement for detectable warning surfaces on curb ramps in the Department of Transportation regulations because it is the more stringent requirement. All state transportation departments and most local transportation departments are in Group 2 and specify detectable warning surfaces on curb ramps in their standard drawings. The requirement in the proposed guidelines for detectable warning surfaces on curb ramps will not have any impacts on state and local transportation departments in Group 2.
Thus, local transportation departments in Group 3 were required to provide detectable warning surfaces on curb ramps before September 15, 2010; may or may not be required to provide detectable warning surfaces on curb ramps between September 15, 2010 and March 14, 2012 depending on the accessibility standard they use (DOJ 1991 Standards or DOJ 2010 Standards); and are not required to provide detectable warning surfaces on curb ramps on or after March 15, 2012 pending the future adoption of accessibility standards for pedestrian facilities in the public right-of-way by the Department of Justice. Group 4 consists of state and local transportation departments that do not comply with accessibility standards for curb ramps in the public right-of-way. The Department of Justice and Federal Highway Administration have provided guidance on the accessibility standards that apply to curb ramps in the public right-of-way, including the requirement for detectable warning surfaces.35 Despite the guidance provided by the Department of Justice and Federal Highway Administration on the accessibility standards that apply to curb ramps in the public right-of-way, there may be state and local transportation departments that do not comply with the standards.
Impacts: Not aware of any state and local transportation departments in Group 1
Group 2 consists of state and local transportation departments that receive federal financial assistance directly or indirectly from the Department of Transportation
No impacts on state and local transportation departments in Group 2 compared to standards currently used Group 3*
Standards Used: Standards in Department of Justice regulations implementing Title II of the Americans with Disabilities Act
Between September 15, 2010 and March 14, 2012: DOJ 1991 Standards – contains requirement for detectable warning surfaces on curb ramps; or DOJ 2010 Standards – does not contain requirement for detectable warning surfaces on curb ramps
Administration, “Information on Detectable Warnings” (May 6, 2002) at: http://www.fhwa.dot.gov/environment/ bikeped/dwm.htm. Costs to Provide Detectable Warning Surfaces on Curb Ramps Detectable warning surfaces are available in a variety of materials. The Volpe Center gathered data from local transportation departments and vendors on various detectable warning materials and estimated the costs of 8 square feet of the materials for a typical curb ramp as shown in the table below. The estimates do not include installation costs.
Detectable Warning Materials Costs for Typical Curb Ramp (Installation Costs Not Included) Concrete pavers $48 to $80 Brick pavers $128 Polymer and composite materials $120 to $200 Stainless steel or cast iron products $240 Questions 7 and 8 in the preamble to the proposed guidelines seek additional information on the costs for detectable warning materials and installation of the materials on a typical curb ramp, and the number of curb ramps that are constructed or altered on an annual basis in the public right-of-way by state and local transportation departments.
An accessible pedestrian signal and pedestrian pushbutton is an integrated device that communicates information about the WALK and DON'T WALK intervals at signalized intersections in non-visual formats (i.e., audible tones and vibrotactile surfaces) to pedestrians who are blind or have low vision. The pedestrian pushbutton has a locator tone for detecting the device and a tactile arrow to indicate which pedestrian street crossing is served by the device. The MUTCD contains standards for accessible pedestrian signals and pedestrian pushbuttons, but does not require that they be provided. The proposed guidelines require accessible pedestrian signals and pedestrian pushbuttons to be provided when new pedestrian signals are installed (see R209.1). For existing pedestrian signals, the proposed guidelines require accessible pedestrian signals and pedestrian pushbuttons to be provided when the signal controller and software are altered, or the signal head is replaced (see R209.2). Accessible pedestrian signals and pedestrian pushbuttons must comply with the referenced standards in the MUTCD and the technical requirements for operable parts in Chapter R4.
Governmental Units Affected The Transportation Equity Act for the 21st Century (TEA-21) directed that audible traffic signals be included in transportation plans and projects where appropriate. See 23 U.S.C. 217 (g). Some state and local transportation departments currently provide accessible pedestrian signals and pedestrian pushbuttons when pedestrian signals are newly installed or replaced at signalized intersections. The requirement in the proposed guidelines for accessible pedestrian signals and pedestrian pushbuttons will have impacts on state and local transportation departments that do not currently provide accessible pedestrian signals and pedestrian pushbuttons when pedestrian signals are newly installed or replaced at signalized intersections.
Question 9 in the preamble to the proposed guidelines seeks information on how many state and local transportation departments currently provide accessible pedestrian signals and pedestrian pushbuttons when pedestrian signals are newly installed or replaced at signalized intersections. Costs to Provide Accessible Pedestrian Signals and Pedestrian Pushbuttons The Volpe Center estimated the additional cost for an accessible pedestrian pushbutton compared to conventional pushbutton is $350 per unit. For a typical intersection with four crosswalks, two accessible pedestrian pushbuttons would be required at each corner for a total of eight units per intersection and a total additional cost of $2,800 for the eight units. The cost of the units is expected to decrease as a result of the proposed guidelines due to greater standardization of customer requirements and increased orders. The total additional cost to provide accessible pedestrian signals and pedestrian pushbuttons, including labor and other equipment such as stub poles and conduit, will vary by location. The Volpe Center estimated that the total additional costs are $3,600 per intersection based on a published cost study and interviews with local transportation departments.
Question 10 in the preamble to the proposed guidelines seeks information from state and local transportation departments that currently provide accessible pedestrian signals and pedestrian pushbuttons on the additional costs to provide the accessible pedestrian signals and pedestrian pushbuttons. The Volpe Center estimated that pedestrian signals are newly installed or replaced at 13,095 signalized intersections on an annual basis based on the following assumptions:
Question 11 in the preamble to the proposed guidelines requests comments on the assumptions used to estimate the total annual costs for requiring accessible pedestrian signals and pushbuttons when pedestrian signals are newly installed or replaced at signalized intersections.
Governmental Units Affected The 2 percent maximum cross slope requirement for pedestrian access routes in the proposed guidelines will affect state and local transportation departments that do not extend the tabling of newly constructed intersections to pedestrian street crossings with yield or stop control.
Question 14 in the preamble to the proposed guidelines seeks information on the current design policies and practices of state and local transportation departments with respect to the tabling newly constructed intersections in hilly urban areas, particularly with respect to extending the tabling to pedestrian street crossings with yield or stop control. Costs to Extend Tabling to Pedestrian Street Crossings with Yield or Stop Control In new construction, extending the tabling of intersections to pedestrian street crossings with yield or stop control involves additional costs for site preparation, grading, and earthwork. The Volpe Center roughly estimated the additional costs for extending the tabling to pedestrian street crossings with yield or stop control are $60,000 per intersection based on information provided by a transportation official to the Access Board. The costs will vary by site.
Governmental Units Affected The requirement for pedestrian activated signals at roundabouts with multi-lane pedestrian street crossings will affect state and local transportation departments that construct new roundabouts with multi-lane pedestrian street crossings. The Volpe Center estimated that state and local transportation departments construct 27 new roundabouts with multi-lane pedestrian street crossings on an annual basis.38
Costs to Provide Pedestrian Activated Signals at Roundabouts with Multi-Lane Pedestrian Street Crossings The Volpe Center estimated the cost to provide pedestrian activated signals at new roundabouts with multi-lane pedestrian street crossings to range from $90,000 to $230,000 per roundabout, and the total annual costs for requiring pedestrian activated signals at new roundabouts with multi-lane pedestrian street crossings to range from $2.4 million to $6.2 million. Questions 18 and 19 in the preamble to the proposed guidelines seek additional information on the number of roundabouts with multi-lane pedestrian street crossings that are newly constructed on an annual basis by state and local transportation departments, and the costs to provide pedestrian activated signals at newly constructed roundabouts with multi-lane pedestrian street crossings.
The proposed guidelines will benefit pedestrians with disabilities. The U.S. Census Bureau reports that 54.4 million Americans, about one in five U.S. residents, reported some level of disability in 2005.39 The number of individuals with disabilities is almost equal to the combined total population of California and Florida. The U.S. Census Bureau provides this breakdown of the population of people aged 15 and older:
22.6 million people (9.8 percent) had difficulty walking a quarter of a mile;
3.3 million (1.4 percent) used a wheelchair or other wheeled mobility device; and
7.8 million (3 percent) had difficulty seeing words or letters in ordinary newspaper print, including 1.8 million who are completely unable to see.
Executive Order 13563 states that to the extent permitted by law federal agencies must "propose or adopt a regulation only upon a reasoned determination that its benefits justify its costs (recognizing that some benefits and costs are difficult to quantify)" and that "where appropriate and permitted by law, each agency may consider and (discuss qualitatively) values that are difficult or impossible to quantify, including equity, human dignity, fairness, and distributive impacts." The proposed guidelines promote important societal values that are difficult or impossible to quantify. As discussed above under the Need for Rulemaking, when enacting the Americans with Disabilities Act, Congress found "the discriminatory effects of architectural, transportation, and communication barriers" to be a continuing problem that "denies people with disabilities the opportunity to compete on an equal basis and to pursue those opportunities for which our free society is justifiably famous, and costs the United States billions of dollars in unnecessary expenses resulting from dependency and nonproductivity." 42 U.S.C. 12101 (a) (5) and (9). Congress declared that "the Nation's proper goals regarding individuals with disabilities are to assure equality of opportunity, full participation, independent living, and economic self-sufficiency." 42 U.S.C. 12101 (a) (8). The proposed guidelines promote the goals declared by Congress by eliminating the discriminatory effects of architectural, transportation, and communication barriers in the design and construction of pedestrian facilities in the public right-of-way. The proposed guidelines are also important to achieving the benefits of the other parts of the Americans with Disabilities Act. As the House Report for the Americans with Disabilities Act stated, "[t]he employment, transportation, and public accommodation sections . . . would be meaningless if people who use wheelchairs were not afforded the opportunity to travel on and between the streets." H.R. 485, 101st Cong., 2d Sess. 84 (1990). Impacts on Small Governmental Jurisdictions
The impacts of the proposed guidelines on small governmental jurisdictions with a population of less than 50,000 are discussed below. This information is required by the Regulatory Flexibility Act (5 U.S.C. §603).
Reasons for issuing proposed accessibility guidelines The Access Board's current accessibility guidelines, the 2004 ADA and ABA Accessibility Guidelines, were developed primarily for buildings and facilities on sites. Some of the requirements in the 2004 ADA and ABA Accessibility Guidelines can be readily applied to pedestrian facilities in the public right-of-way, but other requirements need to be adapted for pedestrian facilities in the public right-of-way. The proposed guidelines are developed specifically for pedestrian facilities in the public right-of-way and address conditions and constraints that exist in the public right-of-way.
Objectives of, and legal basis for, proposed accessibility guidelines The Access Board is required to issue accessibility guidelines by the Americans with Disabilities Act (42 U.S.C. §12204) and Section 502 of the Rehabilitation Act (29 U.S.C. §792) to ensure that newly constructed and altered facilities are readily accessible to and usable by pedestrians with disabilities.
Small governmental jurisdictions affected by proposed accessibility guidelines
The number of small governmental jurisdictions with a population less than 50,000 affected by the proposed guidelines is shown in the table below.
Source: US Census Bureau 2002 Census of Governments available at: http://www.census.gov/prod/2003pubs/gc021x1.pdf. County 2,178 Municipal 18,824 Town or Township 16,371 Total 37,375 Almost 70 percent of municipal governments (13,038) and more than 75 percent of towns and townships (12,331) have a population of less than 2,500. Many of these small governmental jurisdictions are located in rural areas, which generally do not construct pedestrian transportation networks (e.g., sidewalks, pedestrian street crossings, and pedestrian signals).
Compliance requirements The proposed accessibility guidelines address the design, construction, and alteration of pedestrian facilities in the public right-of-way, including sidewalks, pedestrian street crossings, pedestrian overpasses and underpasses, curb ramps and blended transitions at pedestrian street crossings, pedestrian signals, street furniture (i.e., drinking fountains, public toilet facilities, tables, counters, and benches), pedestrian signs, transit stops and transit shelters for buses and light rail vehicles, on-street parking that is marked or metered, and passenger loading zones. The Section-by-Section Analysis of the preamble describes the proposed accessibility guidelines. Compliance with the proposed accessibility guidelines is not mandatory until they are adopted, without or without additions and modifications, as accessibility standards by other federal agencies. There are no reporting or recordkeeping requirements.
Other federal rules The Department of Justice, Department of Transportation, and General Services Administration are responsible for issuing accessibility standards that are consistent with the accessibility guidelines issued by the Access Board and are expected to conduct rulemaking to adopt the proposed guidelines, with or without additions and modifications, as accessibility standards in regulations implementing Title II of the Americans with Disabilities Act (28 CFR part 36 and 49 CFR part 37), Section 504 of the Rehabilitation Act (49 CFR part 27), and the Architectural Barriers Act (41 CFR part 102). Additional information on these laws and regulations is provided under the Statutory and Regulatory Background in the preamble to the proposed guidelines.
Significant alternatives which minimize any significant economic impacts on small entities The regulatory assessment analyzes the following four requirements in the proposed guidelines that will have more than minimal impacts on state and local transportation departments:
Detectable warning surfaces required on newly constructed and altered curb ramps and blended transitions at pedestrian street crossings (see R208.1 and R305). Detectable warning surfaces consist of small truncated domes that are detectable underfoot. Where curb ramps or blended transitions are provided at pedestrian street crossings, detectable warning surfaces indicate the boundary between a pedestrian route and a vehicular route for pedestrians who are blind or have low vision in place of the missing curb. Accessible pedestrian signals and pedestrian pushbuttons required when pedestrian signals newly installed or replaced at signalized intersections (see R209). Accessible pedestrian signals and pedestrian pushbuttons communicate the information about the WALK and DON'T WALK intervals at signalized intersections in non-visual formats (i.e., audible tones and vibrotactile surfaces) to pedestrians who are blind or have low vision.
Maximum cross slope of 2 percent required on pedestrian access routes, including within pedestrian street crossings with yield or stop control. Cross slope is the slope perpendicular to the direction of pedestrian travel. Cross slope impedes travel by pedestrians who use wheeled mobility devices since energy must be expended to counteract the perpendicular force of the cross slope. The 2 percent maximum cross slope required on pedestrian access routes has more than minimal impacts on the construction of new tabled intersections in hilly urban areas that contain pedestrian street crossings with yield or stop control where vehicles slow or stop before proceeding through the intersection. Pedestrian activated signals at roundabouts with multi-lane pedestrian street crossings. A roundabout is a circular intersection with yield control at entry, which permits a vehicle on the circulatory roadway to proceed, and with deflection of the approaching vehicle counter-clockwise around a central island. Pedestrian activated signals are required at roundabouts with multi-lane pedestrian street crossings to facilitate crossing by pedestrians who are blind or have low vision. Small governmental jurisdictions with a population less than 50,000 are not likely to construct roundabouts with multi-lane pedestrian street crossings and will not be affected by this requirement.
There are no significant alternatives that will minimize any significant impacts of these requirements on small governmental jurisdictions and achieve the objectives of the Americans with Disabilities Act, Section 504 of the Rehabilitation Act, and the Architectural Barriers Act to eliminate the discriminatory effects of architectural, transportation, and communication barriers in the design and construction of pedestrian facilities in the public right-of-way.
3 Title II of the Americans with Disabilities Act contains two subtitles. Subtitle A applies to all state and local government programs, services, and activities. Subtitle B contains two parts. Subtitle B, Part I applies to designated public transportation provided by state and local governments by bus, rail, or other conveyance (other than aircraft or intercity or commuter rail) as a general or special service (including charter service) to the general public on a regular and continuing basis. Subpart B, Part II applies to public transportation provided by the National Railroad Passenger Corporation and commuter authorities by intercity and commuter rail. The Department of Justice is responsible for issuing regulations to implement Subtitle A of Title II, except for matters within the scope of authority of the Department of Transportation under Parts I and II of Subtitle B of Title II. See 42 U.S.C. 12134. The Department of Transportation is responsible for issuing regulations to implement Parts I and II of Subtitle B of Title II. See 42 U.S.C. 12149 and 12164. 4 Subtitle A of Title II of the Americans with Disabilities Act requires that the regulations issued by the Department of Justice include accessibility standards that are "consistent with the minimum guidelines and requirements issued by the Architectural and Transportation Barriers Compliance Board." 42 U.S.C. 12134(c). The accessibility standards issued by the Department of Justice can include additional or modified requirements provided they are consistent with the Access Board's guidelines.
7 See Department of Transportation "Policy Statement on Bicycle and Pedestrian Accommodation Regulations and Recommendations" at: http://www.dot.gov/affairs/2010/bicycle-ped.html. 8 The Architectural Barriers Act also covers facilities constructed, altered, or leased by federal agencies; and facilities constructed or altered by the Washington Metropolitan Area Transit Authority. See 42 U.S.C. 4151 (1), (2), and (4).
Appendix E contains the index of terms and list of figures included in the guidelines; and Appendix F contains additions and modifications to the guidelines issued by the Department of Transportation.
http://www.access-board.gov/prowac/index.htm. 14 The following organizations were members of the advisory committee: AARP, America Walks, American Association of State Highway and Transportation Officials, American Council of the Blind, American Institute of Architects, American Public Transit Association, American Public Works Association, Association for Education and Rehabilitation of the Blind and Visually Impaired, Bicycle Federation of America, Californians for Disability Rights, Canadian Standards Association (Technical Committee on Barrier-Free Design), City of Birmingham (Department of Planning, Engineering and Permits), Council of Citizens with Low Vision International, Disability and Business Technical Assistance Centers, Disability Rights Education and Defense Fund, Federal Highway Administration, Hawaii Commission on Persons with Disabilities, Hawaii Department of Transportation, Institute of Traffic Engineers, Los Angeles Department of Public Works (Bureau of Street Services), Massachusetts Architectural Access Board, Municipality of Anchorage, National Center for Bicycling and Walking, National Council on Independent Living, National Federation of the Blind, New York State Department of Transportation, Paralyzed Veterans of America, Portland Office of Transportation, San Francisco Mayor's Office on Disability, State of Alaska, TASH, Texas Department of Transportation, and The Seeing Eye.
15 The advisory committee report is available on the Access Board website at: http://www.access-board.gov/prowac/commrept/index.htm. 16 The 2002 and 2005 draft guidelines and comments submitted on the 2002 draft guidelines are available on the Access Board website at: http://www.access-board.gov/prowac/commrept/index.htm. 17 See Volpe Center, "Cost Analysis of Public Rights-of-Way Accessibility Guidelines" (November 29, 2010). The document is available in the rulemaking docket (ATBCB-2011-0004) at: http://www.regulations.gov.
22 The US Census Bureau criteria for classification of urban and rural areas are available on the web at: http://www.census.gov/geo/www/ua/ua_2k.html. 23 Links to the design manuals and standard drawings maintained by state transportation departments are available on the Federal Highway Administration website at: http://www.fhwa.dot.gov/programadmin/statemanuals.cfm and http://www.fhwa.dot.gov/programadmin/statestandards.cfm. 24 The AASHTO "Policy on Geometric Design of Highways and Streets" and "Guide for the Planning, Design, and Operation of Pedestrian Facilities" incorporate accessibility in the design of sidewalks, including minimum clear width, passing spaces, grade, cross slope, protruding objects, and surface treatments; curb ramps, including detectable warning surfaces; pedestrian overpasses and underpasses; and transit stops and transit shelters.
25 See Federal Highway Administration, Office of Program Administration, "Pedestrians and Accessible Design" at: http://www.fhwa.dot.gov/programadmin/pedestrians.cfm. When the guidance was issued, the applicable accessibility standards in the Department of Justice regulations implementing Title II of the Americans with Disabilities Act and the Department of Transportation regulations implementing Section 504 adopted the 1991 ADAAG and permitted the Uniform Federal Accessibility Standards to be used.
33 Links to each state transportation department's standard drawings that specify detectable warning surfaces on curb ramps are available on the Access Board website at: http://www.access-board.gov/prowac/index.htm. 34 The DOJ 1991 Standards require detectable warning surfaces to extend the full width and depth of the curb ramp (see 4.7.7, Appendix E to 28 CFR part 36). The Department of Transportation standards require detectable warning surfaces to extend the full width of the curb ramp (exclusive of flared sides) and either the full depth of the curb ramp or 24 inches deep minimum measured from the back of the curb on the ramp surface (see 406.8, Appendix A to 49 CFR part 37). Guidance issued by the Department of Justice permits the use of the Department of Transportation standards for detectable warning surfaces on curb ramps. See Department of Justice, "ADA Best Practices Tool Kit for State and Local Governments, Curb Ramps and Pedestrian Crossings" (May 7, 2006) at: http://www.ada.gov/pcatoolkit/toolkitmain.htm.
35 See Department of Justice, "ADA Best Practices Tool Kit for State and Local Governments, Curb Ramps and Pedestrian Crossings" (May 7, 2006) at: http://www.ada.gov/pcatoolkit/toolkitmain.htm; and Federal Highway Administration, "Information on Detectable Warnings" (May 6, 2002) at: http://www.fhwa.dot.gov/environment/bikeped/dwm.htm. 36 See MUTCD "Frequently Asked Questions – Part 4 – Highway Traffic Signals" at: http://mutcd.fhwa.dot.gov/knowledge/faqs/faq_part4.htm. 37 Pedestrian access routes within pedestrian street crossings without yield or stop control where vehicles can proceed through the intersection without slowing or stopping are permitted to have a 5 percent maximum cross slope (see R302.6.1). 38 The Volpe Center used the roundabout database at: http://roundabout.kittelson.com/ to estimate the number of new roundabouts with multi-lane pedestrian street crossings that are constructed on an annual basis. During the five year period between 2005 and 2009, 435 roundabouts were constructed, of which 117 were multi-lane. The data was adjusted for a small number of roundabouts that are listed in the database as having an "unknown" number of lanes and for roundabouts that do have any pedestrian facilities (i.e., sidewalks and pedestrian street crossings).
39 "Americans with Disabilities: 2005" (2008) available on the web at: http://www.census.gov/prod/2008pubs/p70-117.pdf. Appendix to Regulatory Assessment Comparison of Proposed Accessibility Guidelines for Pedestrian Facilities in the Public Right-Of-Way and DOJ 2010 ADA Standards for Accessibile Design Introduction
assessment prepared by the Access Board for the proposed accessibility
guidelines for pedestrian facilities in the public right-of-way assumes that,
in the absence of the proposed accessibility guidelines, state and local
transportation departments will use the DOJ 2010 ADA Standards for Accessible
Design (hereinafter referred to as “DOJ 2010 Standards”) in the Department of
Justice regulations implementing Title II of the Americans with Disabilities
Act (28 CFR part 35) to the extent feasible when designing, constructing, or
altering pedestrian facilities in the public right-of-way, consistent with the
guidance issued by the Federal Highway Administration.1 The DOJ 2010 Standards are available on the Department of Justice website at: http://www.ada.gov/2010ADAstandards_index.htm. The proposed accessibility
guidelines for pedestrian facilities in the public right-of-way are compared to
DOJ 2010 Standards, other applicable standards, and industry practices in the
Table 1. Proposed
Guidelines Contain Same Requirements as in DOJ 2010 Standards
Table 1 analyzes
requirements in the proposed guidelines that are the same as requirements in
the DOJ 2010 Standards.2 The requirements in the proposed guidelines in Table 1 will have no impacts on
state and local transportation departments compared to the requirements in the DOJ
2010 Standards because the requirements are the same.
Table 2. Proposed
Guidelines Adapt Requirements in DOJ 2010 Standards Table 2 analyzes requirements in the proposed
guidelines that adapt requirements in DOJ
2010 Standards to allow for conditions
and constraints in the public right-of-way.3 The requirements in the proposed guidelines in Table 2 do not establish greater
requirements for accessibility in the public right-of-way than the requirements
in the DOJ 2010 Standards and industry practices. Some of the requirements in
the proposed guidelines in Table 2 establish lesser requirements for
accessibility in the public right-of-way than the requirements in the DOJ 2010 Standards. For example, where the pedestrian access route in a sidewalk is contained
within the street or highway right-of-way, the grade of the pedestrian access
route is permitted to equal the general grade established for the adjacent
street or highway to allow for typical roadway geometry instead of the running
slope requirements for accessible routes on sites. The requirements in the
proposed guidelines in Table 2 will have no impacts on state and local
transportation departments compared to the requirements in the DOJ 2010 Standards and industry practices, except for the 2 percent maximum cross slope
requirement for pedestrian access routes contained within pedestrian street
crossings with stop or yield control where vehicles slow or stop before
proceeding through the intersection (see R204.3 and R302.6). This requirement
will have more than minimal impact on the design and construction of new tabled
intersections in hilly urban areas that contain pedestrian street crossings
with stop or yield control. Table 3. Proposed Guidelines Contain Requirements Not in DOJ 2010 Standards
Table 3 analyzes
requirements in the proposed guidelines for which there are no corresponding
requirements in the DOJ 2010 Standards.4 The requirements in the proposed guidelines in Table 3 are compared to other
applicable accessibility standards and the 2009 edition of Manual on Uniform
Traffic Control Devices for Streets and Highways (MUTCD). Where the
requirements in the proposed guidelines in Table 3 are the same as the requirements
in other applicable accessibility standards or the MUTCD, the requirements will
have no impacts on state and local transportation departments. Where a
requirement in the proposed guidelines in Table 3 differs from a corresponding
requirement in other applicable accessibility standards or there is no
corresponding requirement in other applicable accessibility standards, the
analysis used the following factors to identify whether the requirement will
have more than minimal impacts on state and local transportation departments: Whether the requirement can be
easily incorporated into the design of the element or facility? Whether the requirement adds
features to the element or facility? Whether the requirement reduces
space needed for other purposes? What are the additional costs due
to the requirement compared to the total design and construction costs for the
element or facility? A requirement that can be easily incorporated into the
design of an element or facility, and does not add features to the element or
facility or reduce space needed for other purposes will have minimal impacts on
state and local transportation departments. A requirement that cannot be
easily incorporated into the design of an element or facility, adds features to
the element or facility, or reduces space needed for other purposes and that
results in additional costs compared to the total design and construction costs
of the element or facility which are not negligible (i.e., are worth
considering) will have more than minimal impacts on state and local
The analysis identified three requirements in the
proposed guidelines in Table 3 that will have more than minimal impacts on
state and local transportation departments:
Detectable warning surfaces on
curb ramps and blended transitions at pedestrian street crossings (see R208.1 and R305); Accessible pedestrian signals and
pedestrian pushbuttons (see R209); and Pedestrian activated signals at
roundabout intersections with multi-lane pedestrian street crossings (see R206
and R306.3.2). [1] See Federal Highway Administration, Office of Program Administration,
“Pedestrians and Accessible Design” at: http://www.fhwa.dot.gov/programadmin/pedestrians.cfm. [2] The requirements analyzed in Table 1include: drinking fountains, public toilet
facilities, tables, counters, passenger loading zones, ramps, stairways,
handrails, doors, doorways, gates, operable parts, clear spaces, knee and toe
clearance, and reach ranges.
[3] The requirements analyzed in Table 2 include: sidewalks and other pedestrian
circulation paths, pedestrian street crossings, pedestrian overpasses and
underpasses, pedestrian at-grade rail crossings, curb ramps and blended
transitions, protruding objects, transit stops and transit shelters used by
buses and light rail vehicles, on-street parking, and escalators. The
requirements for transit stops and transit shelters used by buses and light
vehicles are compared to the accessibility standards in the Department of
Transportation regulations implementing the public transportation parts of
Title II of the Americans with Disabilities Act. [4] The requirements analyzed in Table 3 include: alternate pedestrian access
routes, pedestrian signal phase timing, accessible pedestrian signals and
pedestrian pushbuttons, pedestrian street crossings at roundabouts, detectable
warning surfaces on curb ramps and blended transitions at pedestrian street crossings,
detectable warning surfaces on pedestrian at-grade rail crossings not located
within a street or highway, pedestrian signs, and benches.
Table 1: Proposed Guidelines Contain Same Requirements as in DOJ 2010 Standards for Pedestrian
Facilities in the Public Right-of-Way
Element or Facility DOJ 2010 Standards Proposed Guidelines Analysis Drinking Fountains
211 Requires drinking fountains to comply with 602.
602.1 to 602.6 Contains requirements for clear space, operable
parts, spout height and location, and water flow.
R212.2 Requires drinking fountains to comply with 602.1 to
602.6 of DOJ 2010 Standards.
Public Toilet Facilities 206.2.4 Requires accessible routes within facilities.
213 Requires toilet facilities to comply with 603 to
610. Where multiple single-user portable units are clustered at a location,
at least 5 percent required to comply with 213.
603 to 610 Contains requirements for toilet rooms, water
closets and toilet compartments, urinals, lavatories and sinks, bathtubs,
shower compartments, grab bars, and seats. R212.3 Requires public toilet facilities to comply with
206.2.4 and 603 to 610 of DOJ 2010 Standards. Where multiple single-user
units are clustered at a location, at least 5 percent required to comply with
R212.3.
226 Requires at least 5 percent of tables to comply with
902 Contains requirements for clear space and height.
R212.4 Requires at least 5 percent of tables to comply with
902 of DOJ 2010 Standards.
Counters 227 Requires counters to comply with 904.
904 Contains requirements for approach.
R212.5 Requires counters to comply with 904 of DOJ 2010
209 Requires one accessible passenger loading zone complying
with 503 for each 30 m (100.0 ft) of continuous loading zone space.
503 Contains requirements for vehicle pull-up space and
R216 Requires one accessible passenger loading zone complying
with R310 for each 30 m (100.0 ft) of continuous loading zone space.
R310 Contains requirements for vehicle pull-up space and
405 Contains requirements for running and cross slopes,
width, rise, landings, surfaces, handrails, and edge protection for ramps
that are part of accessible routes. R407 Contains requirements for running and cross slopes,
that are part of pedestrian access routes.
210 Requires stairways that are part of means of egress
to comply with 504.
504 Contains requirements for treads and risers,
nosings, and handrails. R216 Requires stairways provided on pedestrian
circulation paths to comply with R408.
R408 Contains requirements for treads and risers,
nosings, and handrails. No impacts compared to DOJ 2010 Standards.
403.6 Requires handrails provided on walking surfaces to
comply with 505.
405.8 Requires handrails complying with 505 on ramp runs
with rise greater than 150 mm (6 in).
504.6 Requires handrails complying with 505 on stairways.
505 Contains requirements for sides, continuity, height,
clearance, gripping surface, cross section, surfaces, fittings, and
extensions. Requirements for sides, continuity, and extensions apply only to
ramps and stairways. R217 Requires handrails provided on pedestrian
circulation paths to comply with R409.
R407.8 Requires handrails complying with R409 on ramp runs
R408.6 Requires handrails complying with R409 on stairways.
R409 Contains requirements for sides, continuity, height,
ramps and stairways. No impacts compared to DOJ 2010 Standards.
Doors & Doorways, Gates 206.5 Requires doors, doorways, and gates providing user
passage to comply with 404.
404 Contains requirements for manual, automatic, and
power-assisted doors and gates, including clear width, maneuvering
clearances, thresholds, doors and gates in series, hardware, closing speed,
opening force, surfaces, vision lights, controls, and break out opening. R218 Requires doors, doorways, and gates at pedestrian
facilities to comply with 404 of DOJ 2010 Standards.
205 Requires operable parts on accessible elements and
accessible routes, and in accessible rooms and spaces to comply with 309.
309 Contains requirements for clear space, height, and
R403 Contains requirements for clear space, height, and
operation for operable parts on pedestrian pushbuttons at accessible
pedestrian signals, and parking meters and parking pay stations at accessible
Clear Spaces, Knee & Toe Clearance 305, 306 Contains requirements for surfaces, size, position,
approach, maneuvering space, and knee and toe clearance for clear floor or
ground spaces required at operable parts and accessible elements. R404, R405 Contains requirements for surfaces, size, position,
approach, maneuvering space, and knee and toe clearance for clear spaces
required at operable parts (see R403), benches, and transit shelters.
308 Contains requirements for forward and side reach to
operable parts and accessible elements. R406 Contains requirements for forward and side reach to
operable parts (see R403).
Element or Facility DOJ 2010 Standards Proposed Guidelines Analysis * DOT Standards apply to transportation facilities
used in the provision of dedicated transportation services and intercity and
commuter rail services.
Sidewalks & Other Pedestrian Circulation Paths 206.2.2 Requires accessible routes complying with 401 to 410
within sites. 106.5 Site defined to include “parcel of land bounded by a
property line or a designated portion of a public right-of-way.” R204.2 Requires pedestrian access routes complying with
R302 within sidewalks and other pedestrian circulation paths located in
public right-of-way. 105.5 Public right-of-way defined to include “public land
or property, usually in interconnected corridors, that is acquired for or
dedicated to transportation purposes.”
No impacts compared to DOJ 2010 Standards and
industry practices. Adapts accessible route requirements to sidewalks and
other pedestrian circulation paths in public right-of-way. In alterations
where existing physical constraints make it impracticable to fully comply
with new construction requirements, compliance is required to extent
practicable (see R202.3.1).
403.5.1 915 mm (3.0 ft) minimum
R302.3 1.2 m (4.0 ft) minimum
Industry practice is to design sidewalks 1.2 m (4.0
ft) wide minimum so two people can walk side-by-side and pass a third person
comfortably. In commercial areas, sidewalks are wider than 1.2 m (4.0 ft). See AASHTO Green Book (p. 398); AASHTO Pedestrian Facilities Guide (p. 58). Passing Spaces
403.5.3 Where clear width less than 1.5 m (5.0 ft) wide, requires
passing spaces 1.5 m (5.0 ft) by 1.5 m (5.0 ft) minimum at intervals of 61 m
(200.0 ft) maximum.
R302.4 Where clear width less than 1.5 m (5.0 ft) wide, requires
403.4 Walking Surfaces 5 percent maximum 405.2 Ramps 8.3 percent maximum
R302.5 Where pedestrian access route is contained within
street or highway right-of-way, permits grade to equal general grade
established for adjacent street or highway. Where pedestrian access route is
not contained within street or highway right-of-way, requires 5 percent
Grade requirements modified to allow for typical
403.3 2 percent maximum R302.6 2 percent maximum
302.1, 403.2 Firm, stable, and slip resistant
R302.7 Firm, stable, and slip resistant
403.4 Requires changes in level to comply with 303.
R302.7.1 Requires vertical alignment within pedestrian access
routes to be generally planar, and grade breaks to be flush.
Adapts requirement for level surfaces to pedestrian
access routes in the public right-of-way.
303 Permits vertical surface discontinuities up to 13 mm
(0.5 in) maximum. Requires vertical surface discontinuities between 6.4 mm
(0.25 in) and 13 mm (0.5 in) to be beveled.
R302.7.2 Permits vertical surface discontinuities up to 13 mm
(0.25 in) and 13 mm (0.5 in) to be beveled across the entire vertical surface
Same as DOJ 2010 Standards, except bevel required
across entire vertical surface discontinuity.
Horizontal Openings in
Gratings & Joints
302.3, 403.2 Must not allow passage of sphere more than 13 mm
(0.5 in) in diameter.
R302.7.3 Must not allow passage of sphere more than 13 mm
Apply pedestrian access route requirements with
R302.3.1 Width at Medians & Pedestrian Refuge
Islands 1.5 m (5.0 ft) minimum
R302.5.1 Grade 5 percent maximum
R302.6.1 Cross Slope at Crossings Without Yield or
Stop Control 5 percent maximum at crossings without yield or stop
control (i.e., where vehicles proceed thru intersection without slowing or
R302.6.2 Cross Slope at Midblock Crossings Permits cross slope to equal street or highway grade.
No impacts compared to DOJ 2010 Standards, except as
noted below. Adapts accessible route requirements to pedestrian street
crossings to allow for typical roadway geometry. In alterations where
existing physical constraints make it impracticable to fully comply with new
construction requirements, compliance is required to the extent practicable
(see R202.3.1). 2 percent maximum cross slope will have more than
minimal impact on new construction of tabled intersections in hilly urban
areas that contain pedestrian street crossings with yield or stop control
where vehicles slow or stop before proceeding thru the intersection. Impact
is analyzed in regulatory assessment. Pedestrian Overpasses & Underpasses
R204.4 Where overpass, underpass, bridge, or similar
structure is designed for pedestrian use only and approach slope to structure
exceeds 5 percent, requires ramp, elevator, limited use/limited application
elevator, or platform lift. Where overpass, underpass, bridge, or similar
structure is designed for both pedestrian and vehicle use and pedestrian
access route is contained within street or highway right-of-way, grade of pedestrian
access route is permitted to equal general grade established for adjacent
No impacts compared to DOJ 2010 Standards. Design
of new pedestrian overpasses and underpasses currently required to include
ramps. See FHWA Policy on Accessible Design at: http://www.fhwa.dot.gov/program admin/pedestrians.cfm. Allows use of ramps, elevators, or platform lifts
to access overpasses and underpasses designed for pedestrians only. Adapts
accessible route requirements to pedestrian overpasses and underpasses
designed for both pedestrian and vehicle use.
402, 810.10 Requires pedestrian at-grade rail crossings to
comply with accessible route requirements. Permits flangeway gaps to be 64
mm (2.5 in) maximum. R302.7.1, R302.7.4 Requires pedestrian access route to be level and
flush with top of rail at outer edges of rail. Requires surface between
rails to be aligned with top of rail. Permits flangeway gaps to be 64 mm
(2.5 in) maximum on non-freight rail track, and 75 mm (3 in) on freight rail
track. No impacts compared to DOJ 2010 Standards. Permits
wider flangeway gaps for freight railway track.
28 CFR 35.151 (c) (i) Requires curb ramps or other sloped areas at
pedestrian street crossings on newly constructed or altered streets, roads,
highways, and street level pedestrian walkways.
206.2.2, 402.2 Requires accessible routes within sites. Curb ramps
are components of accessible routes.
406 Contains requirements for perpendicular curb ramps,
including location, landings, flared sides, and counter slope. Permits
diagonal curb ramps.
R207.1 Curb ramps, blended transitions, or combination of
curb ramps and blended transitions required to connect pedestrian access
routes at each pedestrian street crossing (i.e., sidewalk level and street
R207.2 Permits single diagonal curb ramp to serve both
pedestrian street crossings in alterations, where existing physical
constraints prevent compliance with R207.1.
R304 Contains requirements for perpendicular curb ramps
(turning space, running slope, and flared sides); parallel curb ramps
(turning space and running slope); blended transitions (running slope); and common
requirements applicable to curb ramps and blended transitions (width, grade
breaks, cross slope, counter slope, and clear space).
No impacts compared to DOJ 2010 Standards. Adapts
curb ramp requirements to public right-of-way. Includes additional designs
for parallel curb ramps and blended transitions. Permits cross slope of curb
ramps and blended transitions at pedestrian street crossings without yield or
stop control where vehicles do not slow or stop before proceeding thru the
intersection and at midblock pedestrian street crossings to equal street or
highway grade.
204, 307.5 Requires protruding objects on circulation paths to
comply with 307 and not reduce clear width required for accessible routes.
307 Contains requirements for protrusion limits,
post-mounted objects, and vertical clearance.
R210 Requires protruding objects along or overhanging
pedestrian circulation paths to comply with R402 and not reduce clear width
required for pedestrian access routes.
R402 Contains requirements for protrusion limits,
MUTCD. Limits posted-mounted objects that are 685 mm (2.25 ft) minimum and
2030 mm (6.7 ft) maximum above sidewalk from projecting into pedestrian
circulation paths 100 mm (4 in) maximum measured horizontally from post or
pylon base. MUTCD requires bottom of signs installed on sidewalks to be
2030 mm (6.7 ft) minimum above sidewalk, and bottom of secondary signs mounted
below another sign that are lower than 2030 mm (6.7 ft) above sidewalk to
project not more than 100 mm (4 in) into sidewalk.
Transit Stops, Boarding & Alighting Areas 218, 810.2* Contains requirements for bus boarding and alighting
areas, including surfaces, dimensions, slope, and accessible route
R213, R308.1.1, R308.1.3 Contains requirements for boarding and alighting
areas at sidewalk or street level transit stops, including surfaces, dimensions,
grade, and pedestrian access route connections. Where transit stops serve
vehicles with more than one car, requires boarding and alighting area serving
each car to comply with requirements,
No impacts compared to DOT Standards and current
industry practices.* Adapts boarding and alighting area requirements to
transit stops in public right-of-way used by buses and light rail vehicles. Boarding Platforms
218, 810.5* Contains requirements for rail boarding platforms,
including platform and vehicle floor coordination and slope.
R213, R308.1.2, R308.1.3 Contains requirements for boarding platforms at
transit stops, including platform and vehicle floor coordination, slope,
surfaces, and pedestrian access route connections. No impacts compared to DOT Standards and current
industry practices.* Adapts boarding platform requirements to transit stops
in public right-of-way used by buses and light rail vehicles. Detectable Warning
218, 810.5.2* Requires detectable warning surfaces on boarding
platforms at rail stations.
705* Contains requirements for dome size and spacing,
contrast, size, and placement of detectable warning surfaces.
R208 Requires detectable warning surfaces at boarding
platforms at transit stops for buses and rail vehicles, and at boarding and
alighting areas at sidewalk or street level transit stops for rail vehicles.
R305 Contains requirements for dome size and spacing,
industry practices.* Adapts requirements for detectable warning surfaces on
boarding platforms to transit stops in public right-of-way used by buses and
light rail vehicles. Route Signs
218, 703, 810.4, 810.6.2* Requires signs that identify routes served by bus
stops and rail stations to comply with requirements for visual characters on
signs. Bus route signs required to comply with requirements for character
height to maximum extent practicable. Bus route signs not required to comply
with requirements for height from ground and line spacing. Permits use of
audible signs as an alternative means of compliance for signs at rail
R211.3, R410 Requires signs that identify routes served by
transit stops to comply with requirements for visual characters on signs. Permits use of audible sign systems and other technologies to provide
equivalent information as an alternative means of compliance.
industry practices.* Adapts requirements for route signs to transit stops in
public right-of-way used by buses and light rail vehicles. Transit Shelters
218, 810.3* Requires clear space within bus shelters, and
accessible route connections.
R213, R308.2 Requires clear space within transit shelters, and
pedestrian access route connections. Requires environmental controls to be
proximity-actuated, and protruding objects to comply with R402.
industry practices.* Adapts requirements for transit shelters to transit
stops in public right-of-way used by buses and light rail vehicles. Requires
environmental controls to be proximity-actuated instead of complying with
requirements for operable parts (see R403). Clarifies that requirements for
protruding objects applies to transit shelters. On-Street Parking
208 Where parking is provided, requires minimum number
of accessible parking spaces complying with 502.
502 Contains requirements for vehicle spaces and
adjoining access aisles.
216.5, 502.6, 703.7.2.1 Requires accessible parking spaces to be identified
by signs displaying International Symbol of Accessibility.
R214 Where on-street parking is provided and is marked or
metered, requires minimum number of accessible parking spaces complying with
R309.
R309.2 Requires access aisles at accessible parallel
parking spaces, where width of adjacent sidewalk or available right-of-way
exceeds 4.3 m (14.0 f). In alterations (e.g., parallel parking spaces marked
or parking meters installed on existing street), access aisles not required
where street or sidewalk adjacent to parking spaces is not altered. Where
access aisles not provided, requires accessible parallel parking spaces to be
located at end of block face.
R309.3 Requires access aisles at perpendicular and angled
parking spaces. Permits two accessible parking spaces to share common access
R309.4 Requires curb ramps or blended transitions to
connect access aisles to pedestrian access routes. Permits curb ramps or
blended transitions at pedestrian street crossings to serve parking spaces
R309.5 Requires parking meters and parking pay stations
serving accessible parking spaces to be located at head or foot of parking
space, and displays and information to be visible to person seated in
wheelchair. Requires operable parts to comply with R403.
R211.4, R411 Requires accessible parking spaces to be identified
parking requirements to public right-of-way. Accessible parallel parking
spaces located adjacent to no parking zones will not result in loss of
parking spaces. Loss of perpendicular and angled parking spaces is same as
compared to DOJ 2010 Standards (1 parking space per 50 marked or metered
parking spaces on the block perimeter). Impacts on alterations that do not
involve changes to street or sidewalk are minimal since access aisles not
810.9 Requires escalators in rail stations to comply with
ASME A17.1 Safety Code for Elevators and Escalators sections on steps, and
entrance and egress ends.
R216 Requires escalators on pedestrian circulation paths
to comply with ASME A17.1 Safety Code for Elevators and Escalators sections
on steps, and entrance and egress ends.
No impacts compared to ASME A17.1 Safety Code for
Elevators and Escalators. Escalators comply with ASME A17.1 Safety Code for
Elevators and Escalators as standard of care for industry.
Table 3: Proposed Guidelines Contain Requirements Not in DOJ 2010 Standards for Pedestrian Facilities
Element or Facility Proposed Guidelines Other Applicable Standards Analysis Alternate Pedestrian Access Routes
R205, R303 Requires alternate pedestrian access routes to comply
with referenced MUTCD standard statements when pedestrian access routes are
temporarily closed by construction, alterations, maintenance operations, or
other conditions. Referenced MUTCD standard statements require
alternate pedestrian routes to be accessible and detectable when pedestrian
routes are temporarily closed by construction, alterations, maintenance
operations, or other conditions.
Compliance with referenced MUTCD standard statements
is mandatory (see MUTCD, section 1A.13). No impacts compared to MUTCD.
Pedestrian Street Crossings — Pedestrian Signal
R206, R306.2 Requires pedestrian signal phase timing to comply
with referenced MUTCD standard statements.
Referenced MUTCD standard statements contain
requirements for pedestrian signal phase timing.
Pedestrian Street Crossings — Accessible Pedestrian
Signals and Pedestrian Pushbuttons
R209, R307 Requires pedestrian signals to include accessible
pedestrian signals and pedestrian pushbuttons that comply with referenced
MUTCD standard statements. Requires operable parts to comply with R403.
R206, R306.5 At signalized intersections, requires pedestrian activated
signals complying with R209 at multi-lane channelized turn lanes.
requirements for installation of accessible pedestrian signals and pedestrian
pushbuttons. However, MUTCD does not require pedestrian signals to include
accessible pedestrian signals and pedestrian pushbuttons.
Transportation Equity Act for 21st Century (TEA-21) requires audible pedestrian signals to be included in
transportation plans and projects, where appropriate (23 U.S.C. (g)).
Accessible pedestrian signals and pushbuttons add
features to pedestrian signals. Additional costs due to requirement compared
to total design and construction costs for pedestrian signals are not
negligible. Impact will be more than minimal and is analyzed in Regulatory
R206, R306.2 Requires detectable edge treatment (e.g., grass
strip) between sidewalk and curb at roundabouts with pedestrian facilities
where pedestrian street crossing is not intended.
R206, R306.3 Requires pedestrian activated signals at roundabouts
with multi-lane pedestrian street crossings.
R206, R306.4 Requires pedestrian activated signals at roundabouts
with pedestrian street crossings at multi-lane channelized turn lanes. None
Detectable edge treatment can be easily incorporated
into design of roundabouts with pedestrian facilities. Any additional costs due
to requirement compared to total design and construction costs for
roundabouts are negligible. Impact will be minimal.
Pedestrian activated signals add features to
roundabouts. Additional costs due to requirement compared to total design
and construction costs for roundabouts are not negligible. Impact will be
more than minimal and is analyzed in Regulatory Assessment.
Pedestrian Street Crossings — Detectable Warning
Surfaces on Curb Ramps, Blended Transitions, and Pedestrian Refuge Islands
R208 Requires detectable warning surfaces on curb ramps,
blended transitions, and pedestrian refuge islands at pedestrian street
crossings. Detectable warning surfaces not required at pedestrian refuge
islands that are cut-trough at street level and are less than 1.8 m (6.0 ft)
in length in direction of pedestrian travel.
DOJ 1991 Standards require detectable warning
surfaces on curb ramps. DOJ 1991 Standards can be used until March 15, 2012.
DOJ 2010 Standards do not require detectable warning
surfaces on curb ramps. DOJ 2010 Standards effective on March 15, 2012, but DOJ
permits use before this date.
DOT Section 504 Standards require detectable warning
surfaces on curb ramps. DOJ and DOT permit use of UFAS. UFAS does not
require detectable warning surfaces on curb ramps. DOJ does not permit use
of UFAS on or after March 15, 2012.
Design manuals issued by all state transportation
departments require detectable warning surfaces on curb ramps.
AASHTO Green Book (p. 100) and Pedestrian Facilities
Guide (p. 85) recommend detectable warning surfaces on curb ramps.
The DOJ 2010 Standards and UFAS do not require detectable
warning surfaces on curb ramps. The requirement adds features to curb
ramps. Additional costs due to requirement compared to total design and
construction costs for curb ramps are not negligible. Impact will be more
than minimal and is analyzed in Regulatory Assessment.
Pedestrian At-Grade Rail Crossings Not Located Within
Street or Highway — Detectable Warning Surfaces R208 Requires detectable warning surfaces at pedestrian
at-grade rail crossings not located within street or highway.
Few pedestrian at-grade rail crossings not located
within street or highway are constructed or altered in any year. Additional
costs due to requirement are negligible compared to total design and
construction costs for pedestrian at-grade rail crossings. Impact will be
R211.2, R410 Requires signs, other than transit signs, that
provide directions, warnings, or other information for pedestrians only to
comply with requirements for visual characters on signs. Permits use of
audible sign systems and other technologies to provide equivalent information
as an alternative means of compliance.
Requirements for visual characters on signs are same
as in DOJ 1991 and 2010 Standards. Sign designers are familiar with
requirements, and they can be easily incorporated into design of signs. Any
additional costs due to the requirement are negligible compared to total
design and construction costs for signs. Impact will be minimal.
R212.6 Requires clear space adjacent to at least 50 percent
of benches at each location. Does not apply to benches at tables.
Clear space can be easily incorporated into design
of benches and the adjacent pedestrian circulation path. Any additional
costs due to the requirement are negligible compared to total design and
construction costs for benches and adjacent pedestrian circulation path. Impact