Interpretation ID: 8882

Mr. Michael F. Hecker Micho Industries Post Office Box 2017 Lompoc, CA 93438

Dear Mr. Hecker:

This responds to your letter concerning our June 29, 1993, letter to your associate, Mr. Michael Dunn, about the R-Bar Passenger Restraint System (R-Bar). The R-Bar, an item of motor vehicle equipment, is a padded restraining device designed to be mounted on the seat backs of school buses to fold down to restrain the passengers in the next rearward seats. You have further questions about the Federal Motor Vehicle Safety Standards (FMVSS) and NHTSA regulations, as applied to R-Bars.

In our letter to Mr. Dunn, we addressed several statements that we believed were potentially misleading that Micho made to school officials. These statements include, among other things, that NHTSA has "approved" R-Bars and that R-Bars are certified as complying with Federal safety standards. We noted that, while Micho indicated that it would refrain from suggesting that NHTSA has approved the R-Bars, we sought assurances that Micho would not continue to represent that it can "certify" the compliance of R-Bars.

You ask for clarification of that letter. You state that there "appears to be some confusion" resulting from past correspondence with this agency regarding certification of compliance with applicable FMVSSs. You believe, based on previous correspondence, that the R-Bar must comply with FMVSSs that apply to the school bus seat and "the general safety of school buses," such as school bus exits and flammability resistance. Accordingly, you believe that Micho can properly "certify" the R-Bar to these school bus FMVSSs.

I appreciate this opportunity to clarify our requirements. By way of background, the National Traffic and Motor Vehicle Safety Act of 1966, 15 U.S.C. 1381 et seq. (Safety Act), authorizes this agency to issue FMVSSs for new motor vehicles and new items of motor vehicle equipment. The Safety Act establishes a self-certification system whereby the manufacturer of the vehicle or item of equipment is responsible for exercising due care in certifying that the product will, if tested as specified in the applicable FMVSSs, meet the safety requirements in the standards applicable to the product. What constitutes "due care" in a particular case depends on all relevant facts, including such things as the limitations of current technology, the availability of test equipment, the size of the manufacturer, and above all, the diligence of the manufacturer.

Because of the self-certification system established by law, NHTSA can neither approve, disapprove, endorse, nor offer assurances of compliance for any product in advance of the manufacturer's certification of the product. Rather, this agency enforces the standards after the fact by purchasing a vehicle or item of equipment in the retail market and conducting the compliance tests specified in the pertinent standards. The agency also investigates safety-related defects. If a manufacturer or NHTSA determines that a noncompliance or safety-related defect exists, the manufacturer is responsible for notifying purchasers of its product and remedying the problem free of charge. The recall responsibility for noncomplying or defective vehicles is borne by the vehicle manufacturer in cases in which a product is installed on a new vehicle by that vehicle manufacturer.

As stated in our previous letters to your company, there are no FMVSSs specifically applicable to R-Bars. Our school bus FMVSSs apply to whole vehicles, rather than to individual items of school bus equipment. If R-Bars are installed as original equipment on a new school bus, the vehicle manufacturer is required by the Safety Act to certify that, with the devices installed, the vehicle complies with all applicable safety standards, including Standard 222, School Bus Passenger Seating and Crash Protection (49 CFR 571.222); Standard 217, Bus Window Retention and Release (571.217); Standard 302, Flammability of Interior Materials (571.302); and, with regard to small school buses, the pertinent provisions of Standard 208, Occupant Crash Protection (571.208). 15 U.S.C. 1397(a)(1), 15 U.S.C. 1403, and 49 CFR Part 567. Because these FMVSSs apply to the vehicle, there are no standards to which Micho can, or must, certify compliance.

If the R-Bars are added to a previously-certified new school bus prior to its first sale to a customer, the person who so modifies the vehicle would be an "alterer" of a previously certified new vehicle. As an alterer, the person would be required to certify that, as altered, the vehicle continued to comply with all applicable Federal motor vehicle safety standards. 49 CFR 567.7.

The vehicle manufacturer or alterer that installs an R-Bar may, in order to meet its duty to exercise due care, in part rely on information from you concerning the R-Bar's performance characteristics, to the extent such reliance is reasonable. Since compliance with Standard 222 appears to be a significant concern with respect to the installation of R-Bars, you might wish to test a bus or buses equipped with an R-Bar, using the test procedures set out in Standard 222. The results of such tests might be useful to a school bus manufacturer in determining whether it could certify a school bus equipped with R-Bars as complying with Standard 222.

If R-Bars were installed on a used school bus, the installer would not be required to attach a certification label. However, a manufacturer, dealer, distributor, or motor vehicle repair business would be required to ensure that by installing the R-Bars, the installer did not knowingly render inoperative, in whole or in part, any device or element of design installed on or in the vehicle in compliance with an applicable Federal motor vehicle safety standard. See 15 U.S.C. 1397(a)(2)(A). In this case, the installer would be responsible for ensuring that the R-Bars did not cause the school bus to fail to comply with any safety standards, including but not limited to the standards enumerated above.

This agency has addressed various compliance issues and other safety concerns applicable to R-Bars and similar devices on a number of occasions in the past. As we stated in a letter to Mr. Kenneth A. Gallo dated February 19, 1993, (copy enclosed) the agency believes that the concept of using "safety bars" as occupant restraining devices in school buses raises significant safety concerns, including whether the bar could result in excessive loads (e.g., abdominal, leg, or chest) on occupants during a crash, as a result of contact between the bar and the occupants. We explained in a July 14, 1992, letter to you (copy enclosed) that the vehicle in which R-Bars are installed must meet the requirements of Standard 222 with the device in any position in which it may be placed. We have said that if a padded restraining device similar to the R-Bar is attached to the seat back, it becomes part of the seat and the device, as folded into its position, must not intrude into the leg protection zone described in S5.3.2 of Standard 222 (NHTSA letter of January 31, 1991, to Mr. Scott Hiler, enclosed). Also enclosed are NHTSA letters of March 10, 1989, and November 3, 1988, to Mr. Joseph Nikoll, which discuss issues concerning installation of "safety bars" in small school buses in addition to or in lieu of the seat belts required by Standard 208.

You asked for our comments on two statements you intend to make to your customers. The first statement is that there are no FMVSSs directly applicable to R-Bars. As discussed above, that statement is correct. The second statement is that, when properly installed, R-Bars will not violate any standard or regulation or render inoperative any safety feature on a school bus. NHTSA lacks information on which to assess the accuracy of that statement. However, it appears unlikely that you could provide such assurances for school buses in general, since the question of whether adding R-Bars would result in a school bus no longer complying with safety standards is likely to depend, at least in part, on factors specific to a particular school bus, such as the seats, floor, etc. Accordingly, absent data to substantiate this statement for all bus configurations and potential installation procedures, we believe that is would not be proper for you to make such a statement.

I hope this resolves the issues raised in your letter.

Sincerely,

John Womack Acting Chief Counsel

Enclosures

ref:222#571#VSA d:10/15/93