[Federal Register Volume 86, Number 235 (Friday, December 10, 2021)]
[Notices]
[Pages 70575-70578]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-26794]


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DEPARTMENT OF TRANSPORTATION

Federal Motor Carrier Safety Administration

[Docket No. FMCSA-2021-0015]


Qualification of Drivers; Exemption Applications; Vision

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

ACTION: Notice of applications for exemption; request for comments.

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SUMMARY: FMCSA announces receipt of applications from 13 individuals 
for an exemption from the vision requirement in the Federal Motor 
Carrier Safety Regulations (FMCSRs) to operate a commercial motor 
vehicle (CMV) in interstate commerce. If granted, the exemptions will 
enable these individuals to operate CMVs in interstate commerce without 
meeting the vision requirement in one eye.

DATES: Comments must be received on or before January 10, 2022.

ADDRESSES: You may submit comments identified by the Federal Docket 
Management System (FDMS) Docket No. FMCSA-2021-0015 using any of the 
following methods:
     Federal eRulemaking Portal: Go to www.regulations.gov/, 
insert the docket number, FMCSA-2021-0015, in the keyword box, and 
click ``Search.'' Next, sort the results by ``Posted (Newer-Older),'' 
choose the first notice listed, and click on the ``Comment'' button. 
Follow the online instructions for submitting comments.
     Mail: Dockets Operations; U.S. Department of 
Transportation, 1200 New Jersey Avenue SE, West Building Ground Floor, 
Room W12-140, Washington, DC 20590-0001.
     Hand Delivery: West Building Ground Floor, Room W12-140, 
1200 New Jersey Avenue SE, Washington, DC, between 9 a.m. and 5 p.m., 
ET, Monday through Friday, except Federal Holidays.
     Fax: (202) 493-2251.
    To avoid duplication, please use only one of these four methods. 
See the ``Public Participation'' portion of the SUPPLEMENTARY 
INFORMATION section for instructions on submitting comments.

[[Page 70576]]


FOR FURTHER INFORMATION CONTACT: Ms. Christine A. Hydock, Chief, 
Medical Programs Division, (202) 366-4001, [email protected], FMCSA, 
DOT, 1200 New Jersey Avenue SE, Room W64-224, Washington, DC 20590-
0001. Office hours are 8:30 a.m. to 5 p.m., ET, Monday through Friday, 
except Federal holidays. If you have questions regarding viewing or 
submitting material to the docket, contact Dockets Operations, (202) 
366-9826.

SUPPLEMENTARY INFORMATION:

I. Public Participation

A. Submitting Comments

    If you submit a comment, please include the docket number for this 
notice (Docket No. FMCSA-2021-0015), indicate the specific section of 
this document to which each comment applies, and provide a reason for 
each suggestion or recommendation. You may submit your comments and 
material online or by fax, mail, or hand delivery, but please use only 
one of these means. FMCSA recommends that you include your name and a 
mailing address, an email address, or a phone number in the body of 
your document so that FMCSA can contact you if there are questions 
regarding your submission.
    To submit your comment online, go to www.regulations.gov/docket?D=FMCSA-2021-0015. Next, sort the results by ``Posted (Newer-
Older),'' choose the first notice listed, click the ``Comment'' button, 
and type your comment into the text box on the following screen. Choose 
whether you are submitting your comment as an individual or on behalf 
of a third party and then submit.
    If you submit your comments by mail or hand delivery, submit them 
in an unbound format, no larger than 8\1/2\ by 11 inches, suitable for 
copying and electronic filing. If you submit comments by mail and would 
like to know that they reached the facility, please enclose a stamped, 
self-addressed postcard or envelope.
    FMCSA will consider all comments and material received during the 
comment period.

B. Viewing Comments

    To view comments go to www.regulations.gov. Insert the docket 
number, FMCSA-2021-0015, in the keyword box, and click ``Search.'' 
Next, sort the results by ``Posted (Newer-Older),'' choose the first 
notice listed, and click ``Browse Comments.'' If you do not have access 
to the internet, you may view the docket online by visiting Dockets 
Operations in Room W12-140 on the ground floor of the DOT West 
Building, 1200 New Jersey Avenue SE, Washington, DC 20590-0001, between 
9 a.m. and 5 p.m., ET, Monday through Friday, except Federal holidays. 
To be sure someone is there to help you, please call (202) 366-9317 or 
(202) 366-9826 before visiting Dockets Operations.

C. Privacy Act

    In accordance with 5 U.S.C. 553(c), DOT solicits comments from the 
public to better inform its regulatory process. DOT posts these 
comments, without edit, including any personal information the 
commenter provides, to www.regulations.gov, as described in the system 
of records notice (DOT/ALL-14 FDMS), which can be reviewed at 
www.transportation.gov/privacy.

II. Background

    Under 49 U.S.C. 31136(e) and 31315(b), FMCSA may grant an exemption 
from the FMCSRs for no longer than a 5-year period if it finds such 
exemption would likely achieve a level of safety that is equivalent to, 
or greater than, the level that would be achieved absent such 
exemption. The statute also allows the Agency to renew exemptions at 
the end of the 5-year period. FMCSA grants medical exemptions from the 
FMCSRs for a 2-year period to align with the maximum duration of a 
driver's medical certification.
    The 13 individuals listed in this notice have requested an 
exemption from the vision requirement in 49 CFR 391.41(b)(10). 
Accordingly, the Agency will evaluate the qualifications of each 
applicant to determine whether granting an exemption will achieve the 
required level of safety mandated by statute.
    The physical qualification standard for drivers regarding vision 
found in Sec.  391.41(b)(10) states that a person is physically 
qualified to drive a CMV if that person has distant visual acuity of at 
least 20/40 (Snellen) in each eye without corrective lenses or visual 
acuity separately corrected to 20/40 (Snellen) or better with 
corrective lenses, distant binocular acuity of at least 20/40 (Snellen) 
in both eyes with or without corrective lenses, field of vision of at 
least 70[deg] in the horizontal meridian in each eye, and the ability 
to recognize the colors of traffic signals and devices showing standard 
red, green, and amber.
    On July 16, 1992, the Agency first published the criteria for the 
Vision Waiver Program, which listed the conditions and reporting 
standards that CMV drivers approved for participation would need to 
meet (57 FR 31458). The current Vision Exemption Program was 
established in 1998, following the enactment of amendments to the 
statutes governing exemptions made by Sec.  4007 of the Transportation 
Equity Act for the 21st Century, Public Law 105-178, 112 Stat. 107, 401 
(June 9, 1998). Vision exemptions are considered under the procedures 
established in 49 CFR part 381 subpart C, on a case-by-case basis upon 
application by CMV drivers who do not meet the vision standards of 
Sec.  391.41(b)(10).
    To qualify for an exemption from the vision requirement, FMCSA 
requires a person to present verifiable evidence that he/she has driven 
a commercial vehicle safely in intrastate commerce with the vision 
deficiency for the past three years. Recent driving performance is 
especially important in evaluating future safety, according to several 
research studies designed to correlate past and future driving 
performance. Results of these studies support the principle that the 
best predictor of future performance by a driver is his/her past record 
of crashes and traffic violations. Copies of the studies may be found 
at www.regulations.gov/docket?D=FMCSA-1998-3637.
    FMCSA believes it can properly apply the principle to monocular 
drivers, because data from the Federal Highway Administration's former 
waiver study program clearly demonstrated the driving performance of 
experienced monocular drivers in the program is better than that of all 
CMV drivers collectively.\1\ The fact that experienced monocular 
drivers demonstrated safe driving records in the waiver program 
supports a conclusion that other monocular drivers, meeting the same 
qualifying conditions as those required by the waiver program, are also 
likely to have adapted to their vision deficiency and will continue to 
operate safely.
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    \1\ A thorough discussion of this issue may be found in a FHWA 
final rule published in the Federal Register on March 26, 1996 and 
available on the internet at https://www.govinfo.gov/content/pkg/FR-1996-03-26/pdf/96-7226.pdf.
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    The first major research correlating past and future performance 
was done in England by Greenwood and Yule in 1920. Subsequent studies, 
building on that model, concluded that crash rates for the same 
individual exposed to certain risks for two different time periods vary 
only slightly (See Bates and Neyman, University of California 
Publications in Statistics, April 1952). Other studies demonstrated 
theories of predicting crash proneness from crash history coupled with 
other factors. These factors--such as age, sex, geographic location, 
mileage driven and conviction history--are used every day by insurance 
companies and motor vehicle bureaus to predict the

[[Page 70577]]

probability of an individual experiencing future crashes (See Weber, 
Donald C., ``Accident Rate Potential: An Application of Multiple 
Regression Analysis of a Poisson Process,'' Journal of American 
Statistical Association, June 1971). A 1964 California Driver Record 
Study prepared by the California Department of Motor Vehicles concluded 
that the best overall crash predictor for both concurrent and 
nonconcurrent events is the number of single convictions. This study 
used 3 consecutive years of data, comparing the experiences of drivers 
in the first 2 years with their experiences in the final year.

III. Qualifications of Applicants

Jacob J. Bell

    Mr. Bell, 24, has had amblyopia in his right eye since childhood. 
The visual acuity in his right eye is 20/200, and in his left eye, 20/
20. Following an examination in 2021, his optometrist stated, 
``Visually safe to operate a commercial vehicle.'' Mr. Bell reported 
that he has driven straight trucks for 5 years, accumulating 15,000 
miles, tractor-trailer combinations for 5 years, accumulating 100,000 
miles, and buses for 3 years, accumulating 3,000 miles. He holds a 
Class A CDL from Colorado. His driving record for the last 3 years 
shows no crashes and no convictions for moving violations in a CMV.

Robert F. Fullwood

    Mr. Fullwood, 35, has had glaucoma in his right eye since 2011. The 
visual acuity in his right eye is no light perception, and in his left 
eye, 20/20. Following an examination in 2021, his optometrist stated, 
``Although patient has long standing reduced vision in the right eye, 
his best corrected vision in the left eye (20/20), his full extent of 
color vision in the left eye, and his binocular field of vision are 
adequate to operate a commercial vehicle.'' Mr. Fullwood reported that 
he has driven straight trucks for 3 years, accumulating 51,000 miles. 
He holds an operator's license from Pennsylvania. His driving record 
for the last 3 years shows no crashes and no convictions for moving 
violations in a CMV.

Glen T. Garrabrant

    Mr. Garrabrant, 59, has had a prosthetic in his right eye due to a 
traumatic incident in 1980. The visual acuity in his right eye is no 
light perception, and in his left eye, 20/20. Following an examination 
in 2021, his optometrist stated, ``It is my opinion that the health and 
vision of Mr. Garrabrant's left eye at this time is good and has been 
stable for years. During this time, it did not interfere with his 
ability to operate a commercial motor vehicle.'' Mr. Garrabrant 
reported that he has driven straight trucks for 35 years, accumulating 
24,500 miles, and tractor-trailer combinations for 10 years, 
accumulating 900,000. He holds a Class A CDL from New Jersey. His 
driving record for the last 3 years shows no crashes and no convictions 
for moving violations in a CMV.

Lloyd M. Hicks

    Mr. Hicks, 52, has had a retinal detachment in his left eye since 
2006. The visual acuity in his right eye is 20/40, and in his left eye, 
hand motion. Following an examination in 2021, his optometrist stated, 
``Given the understanding that his vision is limited to primarily his 
right eye only, the right eye is impaired from a peripheral field of 
view and his central acuity is adequate to meet even basic driving 
requirements, Mr. Hicks does have sufficient visual capacity to safely 
operate his vehicle at this time.'' Mr. Hicks reported that he has 
driven straight trucks for 35 years, accumulating 1.05 million miles. 
He holds an operator's license from Arkansas. His driving record for 
the last 3 years shows no crashes and no convictions for moving 
violations in a CMV.

Kyle M. Innella

    Mr. Innella, 49, has had amblyopia in his right eye since birth. 
The visual acuity in his right eye is 20/80, and in his left eye, 20/
20. Following an examination in 2021, his ophthalmologist stated, ``It 
is my medical opinion that Mr. Innella has sufficient vision to perform 
the driving tasks required to operate a commercial vehicle.'' Mr. 
Innella reported that he has driven straight trucks for 29 years, 
accumulating 246,500 miles. He holds an operator's license from 
Pennsylvania. His driving record for the last 3 years shows no crashes 
and no convictions for moving violations in a CMV.

Tyraine Jackson

    Mr. Jackson, 47, has a central scotoma in his right eye due to a 
traumatic incident in 1991. The visual acuity in his right eye is 20/
50, and in his left eye, 20/20. Following an examination in 2021, his 
ophthalmologist stated, ``Based on the two examinations available for 
me to review done in this office on 6/3/2021 and 6/17/2021 I believe 
the patient's vision is sufficient to perform the driving tasks 
required to operate a commercial vehicle.'' Mr. Jackson reported that 
he has driven straight trucks for 3 years, accumulating 84,000 miles, 
and tractor-trailer combinations for 3 years, accumulating 84,000 
miles. He holds a Class A CDL from Virginia. His driving record for the 
last 3 years shows no crashes and no convictions for moving violations 
in a CMV.

Maris I. Kretsu

    Mr. Kretsu, 36, has had amblyopia in his left eye since childhood. 
The visual acuity in his right eye is 20/20, and in his left eye, 20/
60. Following an examination in 2021, his optometrist stated, ``All the 
testing concludes that Mr. Kretsu has sufficient vision to obtain a 
commercial driver's license and drive a commercial vehicle.'' Mr. 
Kretsu reported that he has driven straight trucks for 5 years, 
accumulating 400,000 miles. He holds an operator's license from 
Georgia. His driving record for the last 3 years shows no crashes and 
no convictions for moving violations in a CMV.

Ellis R. Martin

    Mr. Martin, 73, has retinal scarring in his right eye since 
childhood. The visual acuity in his right eye is counting fingers, and 
in his left eye, 20/20. Following an examination in 2021, his 
optometrist stated, ``In my medical opinion, patient demonstrates 
sufficient vision to perform the driving tasks required to operate a 
commercial vehicle.'' Mr. Martin reported that he has driven straight 
trucks for 40 years, accumulating 360,000 miles. He holds an operator's 
license from Maryland. His driving record for the last 3 years shows no 
crashes and no convictions for moving violations in a CMV.

Jerred R. Murray

    Mr. Murray, 32, had an enucleation of his left eye due to a 
traumatic incident in 2015. The visual acuity in his right eye is 20/
20, and in his left eye, no light perception. Following an examination 
in 2021, his optometrist stated, ``Given that his vision has been 
stable since 2015 and he has previously driven a commercial vehicle 
since the loss of his left eye, it is my opinion that he may be well 
adapted to his vision and may be able to continue to be capable of 
driving a commercial vehicle despite the restricted field.'' Mr. Murray 
reported that he has driven straight trucks for 5 years, accumulating 
112,500 miles, and tractor-trailer combinations for 1 year, 
accumulating 10,000 miles. He holds a Class A CDL from New York. His 
driving record for the last 3 years shows no crashes and no convictions 
for moving violations in a CMV.

[[Page 70578]]

Moises Perez

    Mr. Perez, 44, has had amblyopia in his right eye since birth. The 
visual acuity in his right eye is 20/200, and in his left eye, 20/20. 
Following an examination in 2021, his ophthalmologist stated, ``It is 
my opinion that his vision is sufficient to perform the driving tasks 
required to operator [sic] a commercial vehicle.'' Mr. Perez reported 
that he has driven straight trucks for 3 years, accumulating 39,000 
miles. He holds an operator's license from Illinois. His driving record 
for the last 3 years shows no crashes and no convictions for moving 
violations in a CMV.

Jake Quillen

    Mr. Quillen, 63, has ischemic optic neuropathy in his right eye due 
to a stroke in 2017. The visual acuity in his right eye is counting 
fingers, and in his left eye, 20/20. Following an examination in 2021, 
his optometrist stated, ``If these are true, Jake meets the federal 
exemptions to be able to drive a commercial vehicle because of his 
vision/field of vision in his left eye. Due to this, I can recommend 
Mr. Quillen is capable of driving a commercial vehicle.'' Mr. Quillen 
reported that he has driven straight trucks for 2 years, accumulating 
20,000 miles, and tractor-trailer combinations for 35 years, 
accumulating 3.3 million miles. He holds a Class AM CDL from Tennesse. 
His driving record for the last 3 years shows no crashes and no 
convictions for moving violations in a CMV.

David S. Rosen

    Mr. Rosen, 65, has had a macular pucker in his left eye since 2015. 
The visual acuity in his right eye is 20/30, and in his left eye, 20/
50. Following an examination in 2021, his optometrist stated, ``I 
certify patient, David Rosen, has sufficient vision to perform the 
driving tasks to operate a commercial vehicle.'' Mr. Rosen reported 
that he has driven buses for 4 years, accumulating 40,000 miles. He 
holds a Class B CDL from New Jersey. His driving record for the last 3 
years shows no crashes and no convictions for moving violations in a 
CMV.

Robert C. Rucker

    Mr. Rucker, 38, has a retinal detachment in his left eye due to a 
traumatic incident in 1996. The visual acuity in his right eye is 20/
20, and in his left eye, 20/100. Following an examination in 2021, his 
optometrist stated, ``In my medical opinion, I feel Mr. Rucker has 
sufficient vision to perform the driving tasks to operate a commercial 
vehicle.'' Mr. Rucker reported that he has driven straight trucks for 9 
years, accumulating 90,000 miles. He holds a Class B CDL from 
Tennessee. His driving record for the last 3 years shows no crashes and 
no convictions for moving violations in a CMV.

IV. Request for Comments

    In accordance with 49 U.S.C. 31136(e) and 31315(b), FMCSA requests 
public comment from all interested persons on the exemption petitions 
described in this notice. We will consider all comments and material 
received before the close of business on the closing date indicated 
under the DATES section of the notice.

Larry W. Minor,
Associate Administrator for Policy.
[FR Doc. 2021-26794 Filed 12-9-21; 8:45 am]
BILLING CODE 4910-EX-P


