http://jtlu.org . 5 . 2 [2012] pp. 68–76 doi: 10.5198/jtlu.v5i2.250 Impacts of low-speed vehicles on transportation infrastructure and safety K. M. Hunter-Zaworski School of Civil and Construction Engineering a Oregon State University Abstract: Increasing numbers of low-speed electric vehicles (LSVs) now operate on public roadways. These vehicles are designed to be used within protected environments and on roadways with a maximum posted speed of 25 mph. Currently, these vehicles are not subject to the same federal requirements for occupant protection as passenger cars. The research reported in this paper investigated safety standards, operat- ing regulations, and LSV manufacturer materials from sources around the world. The purpose of the research was to determine the positive and negative impacts that LSVs, including neighborhood electric vehicles (NEVs) and medium-speed electric vehicles (MSEVs), are likely to have for states such as Oregon and whether adjustments in state regulations are needed to ensure that LSVs do not negatively affect road safety and traffic operations or expose LSVs operators to undue risk. The US and Canadian federal motor vehicle safety agencies have harmonized their regulations and stipulated the maximum operating speed of these vehicles; however, state and local roadway authorities have regulated the maximum speed of roadways and intersection characteristics on which these vehicles can operate. The significant recommendations of this research are: (1) Appropriate state statues for LSVs should be amended such that LSVs are limited to public roadways with a maximum operating speed of 25 mph and are restricted to crossing higher speed roadways at four-way stop or signal-controlled intersections; and (2) Local transportation authorities should develop parallel or secondary low-speed roadway networks that connect residential neighborhoods with major activity centers. Figure 1 The GEM e2, an example of an LSV. [www.gemcar.com] 1 Introduction expected to increase significantly in the coming years due to increases in fossil fuel prices and new priorities for reducing Low-speed electric vehicles (LSVs) are becoming more com- dependence on fossil fuels, such as developing more sustainable mon on public roadways. Although small electric vehicles have transportation technologies and taking positive steps to reduce been prevalent for many years on golf courses and as mobility greenhouse gases. aids, their manufacture for use on public roadways as a short- LSVs, also referred to as neighborhood electric vehicles range alternative to fossil-fueled autos has been increasing in (NEVs), are limited to a maximum speed of 25 mph. In re- recent years. The US Energy Information Administration es- cent years manufacturers have introduced medium-speed elec- timates that the number of electric vehicles in use nationwide tric vehicles (MSEVs), which are essentially LSVs capable of has increased from 6,964 in 1999 to 53,526 in 2006—a seven- faster speeds— usually 35 mph. Both NEVs and MSEVs are fold increase in seven years (EIA 2007). While this number is expected to become more popular in the coming years for lo- still very small relative to the overall fleet of automobiles, it is cal commuting and personal errands. In this paper, NEVs that a [email protected] Copyright 2012 K. M. Hunter-Zaworski. Licensed under the Creative Commons Attribution – NonCommercial License 3.0. Impacts of Low-Speed Vehicles on Transportation Infrastructure and Safety 69 are limited to a maximum speed of 25 mph will be referred to ect results can be applied nationally. In addition, the research as low-speed vehicles (LSVs), and MSEVs will refer to NEVs explored whether adjustments in current state regulations are capable of faster speeds. It is important to note that LSVs are needed to ensure that LSVs do not negatively affect road safety not in the same vehicle classification as all-electric passenger and traffic operations or expose LSVs operators to undue risk. cars. The new all-electric passenger cars and trucks have met International and North American operating and safety prac- or exceeded the Federal Motor Vehicle Safety Standards for oc- tices that support the use of these vehicles were also investi- cupant protection, and these vehicles are not speed restricted or gated. The research was considered timely, since LSVs have the limited to low-speed roadways. Both LSVs and all-electric pas- potential to reduce greenhouse gas emissions and thus, poten- senger cars and trucks have the potential to significantly reduce tially improve the quality of community life. greenhouse gases. LSVs are already in use on many college and industrial campuses and in gated communities, such as retire- ment communities, in North America. These are the protected 3 Definitions environments that LSVs were designed for. In Europe and Asia, these vehicles are increasing in number as an extended For background purposes, federal, Oregon, and international mobility and independence option for seniors and people with definitions are presented. On June 17, 1998, the National disabilities. Worldwide these vehicles are being driven on pub- Highway Traffic Safety Administration (NHTSA) officially- in lic roadways with posted speeds in excess of 25 mph. cluded LSVs as a motor vehicle category of the Federal Motor LSVs, as a class of motor vehicles, differ from conventional Vehicle Safety Standards and defined LSVs in 49 CFR 571.3. passenger cars in significant ways. Federal Motor Vehicle Safe- According to the definition in this rulemaking, a “Low-Speed ty Standards require that LSVs be equipped with headlights, Vehicle (LSV) is a four-wheeled motor vehicle whose attainable taillights, brake lights, turn signals, seat belts, and other safety speed in 1 mile is more than 20 miles per hour and not more features, but they are nonetheless smaller and lighter than con- than 25 miles per hour on a paved level surface and has a gross ventional cars. A University of California study notes that such vehicle weight rating (GVWR) of less than 3000 lbs.” This vehicles are typically shorter in length, width, and wheelbase group includes NEVs and speed-modified golf carts with top than the American Association of State Highway and Trans- speeds of more than 20 mph but less than 25 mph (NHTSA portation Officials (AASHTO) design for passenger cars; they 1998). also have slower acceleration (Stein, et al. 1994). LSVs are not new, but the increase in their numbers and use on public road- ways has increased concerns about licensing and permitting by 4 Regulations regulatory agencies such as state and city transportation depart- ments. Consequently, LSVs have inherent safety risks associ- 4.1 Federal Motor Vehicle Safety Standards: FMVSS ated with their use on public roadways and at intersections of 500 these roadways with high-speed facilities. Thus, as LSVs con- tinue to become more numerous on public roads, the need NHTSA has a legislative mandate—under Title 49 of the arises to investigate the impacts of their use to ensure the safety United States Code, Chapter 301, Motor Vehicle Safety—to of the traveling public. A brief examination of US state regula- issue Federal Motor Vehicle Safety Standards (FMVSS) and tions shows a range of restrictions pertaining to LSV opera- regulations, to which manufacturers of motor vehicles and tions. The basis of these state regulations, however, is not clear. equipment items must conform and certify compliance. These There is a need to investigate a rational basis for regulations that federal safety standards are regulations written in terms of min- would protect the public while also providing for the use of imum safety performance requirements for motor vehicles or this energy-efficient, sustainable alternative to the conventional motor vehicle equipment. These requirements are specified in fossil-fueled passenger car for local, short-range travel. such a manner “that the public is protected against unreason- able risk of crashes occurring as a result of the design, con- struction, or performance of motor vehicles and is also pro- 2 Objectives tected against unreasonable risk of death or injury in the event crashes do occur” (NHTSA 1998). FMVSS No.500 specifies The specific goal of this research was to determine positive and the minimum equipment an LSVs must have to be compli- negative impacts that LSVs, which include NEVs and MSEVs, ant; this includes headlamps; stop lamps; turn signal lamps; are likely to have for the state of Oregon; however, the proj- tail lamps; reflex reflectors, one red on each side as far to the 70 JOURNAL OF TRANSPORT AND LAND USE 5.2 rear as practicable and one red on the rear; an exterior mirror cars (NHTSA 2008). NHTSA, however, denied the petition, mounted on the driver’s side of the vehicle; either an exterior primarily because of safety concerns. According to NHTSA, mirror mounted on the passenger’s side of the vehicle or an with its 35 mph speed limit, an MSEV would likely travel with interior mirror; a parking brake; a windshield that conforms to regular urban traffic. In such a traffic environment, NHTSA the FMVSS on glazing materials (49 CFR 571.205); a Vehicle requires the full set of FMVSS to prevent fatalities and seri- Identification Number that conforms to the requirements of ous injuries in motor vehicle collisions, which an MSEV likely part 565 VIN; and a Type 1 or Type 2 seat belt assembly con- would not have met (given the petitioners’ proposed MSEV forming to Sec. 571.209. Transport Canada has harmonized criteria). The presence of a roll cage or crushproof body the Federal Canada Motor Vehicle Safety Standards with the would not guarantee that the vehicle was crashworthy and US Motor Vehicle Safety Standards (Transport Canada 2008). would meet the FMVSS for passenger cars (NHTSA 2008). In 2005, NHTSA amended the definition of LSVs by drop- The NHTSA action does not preclude states from registering ping the restriction on trucks, and instead established a MSEVs and regulating their operation on public roadways 2,500-pound maximum gross vehicle weight rating (GVWR).