[Federal Register Volume 84, Number 247 (Thursday, December 26, 2019)]
[Proposed Rules]
[Pages 70916-70927]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-27210]


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DEPARTMENT OF TRANSPORTATION

National Highway Traffic Safety Administration

49 CFR Part 572

[Docket No. NHTSA-2019-0023]
RIN 2127-AM13


Anthropomorphic Test Devices, HIII 5th Percentile Female Test 
Dummy; Incorporation by Reference

AGENCY: National Highway Traffic Safety Administration (NHTSA), 
Department of Transportation (DOT).

ACTION: Notice of proposed rulemaking (NPRM).

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SUMMARY: This document proposes to revise the chest jacket and spine 
box specifications for the Hybrid III 5th Percentile Female Test Dummy 
(HIII-5F) set forth in Part 572, Anthropomorphic Test Devices. The 
proposed jacket revisions would resolve discrepancies between the 
jacket specifications in Subpart O and jackets available in the field, 
and ensure a sufficiently low level of variation between jackets 
fabricated by different manufacturers. The spine box revisions would 
eliminate a source of signal noise caused by fasteners within the box 
that may become loose. This rulemaking responds to a petition for 
rulemaking from the Alliance of Automobile Manufacturers.

DATES: You should submit your comments early enough to be received not 
later than February 24, 2020. Proposed effective date: 45 days 
following date of publication of a final rule.

ADDRESSES: You may submit comments to the docket number identified in 
the heading of this document by any of the following methods:
     Federal eRulemaking Portal: Go to http://www.regulations.gov. Follow the online instructions for submitting 
comments.
     Mail: Docket Management Facility, M-30, U.S. Department of 
Transportation, West Building, Ground Floor, Rm. W12-140, 1200 New 
Jersey Avenue SE, Washington, DC 20590.
     Hand Delivery or Courier: West Building, Ground Floor, 
Room W12-140, 1200 New Jersey Avenue SE, between 9 a.m. and 5 p.m. 
Eastern Time, Monday through Friday, except Federal holidays.
     You may also call the Docket at 202-366-9826.
    Regardless of how you submit your comments, please mention the 
docket number of this document.
    Instructions: For detailed instructions on submitting comments and 
additional information on the rulemaking process, see the Public 
Participation heading of the Supplementary Information section of this 
document. Note: All comments received, including any personal 
information provided, will be posted without change to http://www.regulations.gov.
    Privacy Act: Anyone is able to search the electronic form of all 
comments received in any of our dockets by the name of the individual 
submitting the comment (or signing the comment, if submitted on behalf 
of an association, business, labor union, etc.). You may review DOT's 
complete Privacy Act Statement in the Federal Register published on 
April 11, 2000 (65 FR 19477-78).
    Confidential Business Information: If you wish to submit any 
information under a claim of confidentiality, you should submit three 
copies of your complete submission, including the information you claim 
to be confidential business information, to the Chief Counsel, NHTSA, 
at the address given under FOR FURTHER INFORMATION CONTACT. In 
addition, you should submit two copies, from which you have deleted the 
claimed confidential business information, to the Docket at the address 
given above. When you send a comment containing information claimed to 
be confidential business information, you should include a cover letter 
setting forth the information specified in our confidential business 
information regulation (49 CFR part 512).

FOR FURTHER INFORMATION CONTACT: 
    For technical issues, you may contact Mr. Peter G. Martin, Office 
of Crashworthiness Standards (telephone: 202-366-5668). For legal 
issues, you may contact Mr. John Piazza, Office of Chief Counsel 
(telephone: 202-366-2992) (fax: 202-366-3820). Address: National 
Highway Traffic Safety Administration, U.S. Department of 
Transportation, 1200 New Jersey Avenue SE, West Building, Washington, 
DC 20590.

SUPPLEMENTARY INFORMATION:

Table of Contents

I. Executive Summary
II. Chest Jacket
    a. Background
    b. Existing Jackets do not Meet the Current Part 572 
Specifications
    c. Development of the SAE J2921 Jacket Specifications (SAE 
Jacket)
    d. NHTSA Enforcement Policy To Address Chest Jacket Issues
    e. Proposed Modifications To Adopt the SAE Jacket
    f. Other Issues
    1. Mandrel
    2. Dummy Refurbishment and Tuning of Ribs
III. Spine Box
    a. Background
    b. Proposed Modifications
IV. Testing of the SAE Jacket and Spine Box
    a. Chest Jacket
    1. NHTSA Evaluation
    2. Industry Evaluation
    b. Spine Box
V. Lead Time
VI. Housekeeping Amendments
VII. Regulatory Analyses and Notices
VIII. Public Participation

I. Executive Summary

    This document proposes changes to the Hybrid III 5th percentile 
adult female (HIII-5F) anthropomorphic test device (crash test dummy). 
The HIII-5F is used in frontal compliance crash tests and air bag 
static deployment tests, certification to which is required for certain 
vehicles by Federal Motor Vehicle Safety Standard (FMVSS) No. 208, 
``Occupant crash protection.'' The dummy is described in 49 CFR part 
572 Subpart O.

[[Page 70917]]

    Among other things, Subpart O incorporates by reference several 
documents that specify the physical make-up of the dummy. This document 
proposes changes to the chest jacket and spine box specifications to 
address issues with the fit and availability of the jacket and a noise 
artifact from the spine box. Neither change is intended to impose new 
requirements on vehicle manufacturers.

Chest Jacket

    The chest jacket is a sleeveless foam-filled vinyl zippered jacket 
that represents human flesh, including female breasts. The chest jacket 
may need to be replaced because it can shrink or otherwise fall out of 
specification or wear out with age. Since the introduction of the HIII-
5F into Part 572 in 2000, none of the jackets that were manufactured 
met the jacket specifications specified in Part 572. Since around 2006, 
NHTSA, in its own compliance tests, has used the brand of dummy and 
jacket (either First Technology Safety Systems (FTSS) or Denton ATD 
(Denton)) used by the vehicle manufacturer to certify the vehicle. 
However, these FTSS and Denton jackets are no longer being 
manufactured; manufacturers (or test laboratories) and NHTSA have, or 
will soon, run out of these jackets. In 2013, SAE \1\ published an 
information report for the HIII-5F chest jacket, SAE J2921 JAN2013, H-
III5F Chest Jacket Harmonization, describing a new jacket compatible 
with FTSS and Denton dummies.
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    \1\ The Society of Automotive Engineers (now SAE International). 
SAE is an organization that develops technical standards based on 
best practices.
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    This NPRM proposes to adopt the jacket specifications described in 
J2921, as well as a few additional specifications. We believe that 
chest jackets that have been and are being manufactured to the SAE 
J2921 design would also conform to the proposed specifications but seek 
comment on whether this is accurate. NHTSA also believes that 
additional specifications are necessary to ensure a sufficient level of 
uniformity between jackets produced by different manufacturers when 
other manufacturers enter the market, and to prevent the variances in 
jacket designs that were problematic in the past from reoccurring.
    We recognize that when the proposed jacket is used on an existing 
dummy, the dummy may require some amount of re-tuning or refurbishment 
to pass the Part 572 Subpart O qualifications tests, but this is 
commonplace when worn parts are replaced. NHTSA tentatively concludes 
that the proposed jacket specification would assure uniformity in the 
form, fit, and function of the HIII-5F. A benefit of this is that the 
agency would no longer have to maintain chest jackets of different 
designs and take steps to match the compliance test jacket with that 
specified by the vehicle manufacturers, thereby providing more 
objective test results. We also tentatively conclude that dummies 
fitted with chest jackets that satisfy the proposed specifications 
would perform equivalently to dummies fitted with the FTSS or Denton 
jackets that were previously used. We seek comment on all of these 
tentative conclusions.

Spine Box

    The spine box is the dummy's steel backbone. It is located in the 
dummy's thorax, which consists of six bands that simulate human ribs. 
Since the mid-2000s, industry and NHTSA have been aware of a signal 
noise artifact in the signals from the accelerometers in the thorax 
during sled and crash tests originating in the spine box. The source of 
the noise is fasteners that become loose during normal use. In 2011 SAE 
published an information report for a spine box modification (SAE J2915 
AUG2011, HIII5F Spine Box Update to Eliminate Noise).
    We propose to adopt the SAE modification, details of which are 
specified within engineering drawings provided in the J2915 information 
report. The proposed revisions would add plates to the side of the 
spine box, with bolts countersunk into the plate to remove any play 
from the assembly. The modification does not affect or change the 
dummy's performance in any way (other than eliminate the potential for 
noise). The improved spine box addresses a shortcoming in the ATD's 
design that had to be addressed by end users disassembling the dummy, 
re-torqueing the relevant fasteners by hand before each test, and re-
qualifying the dummy as needed. The improved spine box increases the 
quality of data and reduces maintenance and testing time.

Lead Time

    NHTSA proposes a 45-day effective date following date of 
publication of a final rule to make available ATDs with the new chest 
jacket and spine box for use in agency testing. Manufacturers wishing 
to test with the proposed jacket and spine box should have no 
difficulty obtaining the necessary parts. We believe that the chest 
jackets that are currently being manufactured to meet the SAE J2921 
specifications would also meet the proposed specifications. We also 
believe that the parts to implement the spine box fix are available, as 
are newly-manufactured replacement spine boxes that incorporate the 
fix.

Petition for Rulemaking

    In 2014, the Alliance of Automobile Manufacturers (Alliance) 
petitioned NHTSA to incorporate the new SAE jacket into Part 572 per 
SAE Information Report J2921 and revise the spine box as described in 
SAE Information Report J2915.\2\ NHTSA subsequently sent a letter to 
the Alliance asking for clarification on several points. The Alliance 
responded to NHTSA's request with a supplemental letter dated May 11, 
2015.\3\ The contents of this response are discussed in more detail in 
subsequent sections of this notice. NHTSA has granted this petition and 
today's NPRM commences rulemaking on the issues presented by the 
petition.
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    \2\ Letter from Scott Schmidt, Alliance, to NHTSA (Feb. 21, 
2014). The Alliance consisted of: BMW Group; Chrysler Group LLC, 
Ford Motor Company; General Motors Company; Jaguar Land Rover; 
Mazda; Mercedes-Benz USA; Mitsubishi Motors; Porsche; Toyota; 
Volkswagen Group of America and Volvo Cars.
    \3\ Letter from Scott Schmidt, Alliance, to NHTSA (May 11, 
2015).
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II. Chest Jacket

a. Background

    Today's NPRM proposes changes to the Hybrid III 5th percentile 
small female (HIII-5F) test dummy. The HIII-5F was added to Part 572 in 
2000.\4\ The HIII-5F is used in frontal compliance crash tests and air 
bag static deployment tests, certification to which is required for 
certain vehicles by FMVSS No. 208, ``Occupant crash protection.'' The 
dummy is described in 49 CFR part 572 Subpart O. This subpart contains 
regulatory text describing the qualification procedures and 
requirements for the dummy. Subpart O also incorporates several other 
documents by reference. Those documents describe the physical make-up 
of the dummy, and include a parts list, a set of engineering drawings, 
and a document entitled, ``Procedures for Assembly, Disassembly, and 
Inspection'' (PADI). These documents can be found in Docket NHTSA-2000-
6940 (available at www.regulations.gov).
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    \4\ 65 FR 10968 (Mar. 1, 2000).
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    The HIII-5F chest jacket is a sleeveless foam-filled vinyl zippered 
jacket that represents human flesh, including female breasts. The chest 
jacket is zipped onto the dummy and covers the entire thorax, including 
the shoulder assembly. It is currently specified in the parts and 
drawings document in drawings 880105-355-E, 880105-356, 880105-423, and 
880105-

[[Page 70918]]

424, with a call-out to it in drawing 880105-300.
    This NPRM proposes changes to the chest jacket specifications to 
address known issues with the shape and availability of the jacket.

b. Existing Jackets Do Not Meet the Current Part 572 Specifications

    The chest jacket, along with the HIII-5F, was developed under the 
auspices of SAE.\5\ At the time Subpart O was created in 2000, jackets 
were being produced by FTSS. Soon thereafter, Applied Safety 
Technologies Corporation, which later became Denton, began to 
manufacture HIII-5F dummies and jackets.
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    \5\ The Society of Automotive Engineers (now SAE International). 
SAE is an organization that develops technical standards based on 
best practices.
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    The jackets FTSS and Denton produced did not conform to all aspects 
of the Part 572 specifications; in addition, jackets produced by each 
manufacturer also differed from each other. Both Transport Canada and 
the Alliance found dimensional differences between the two brands of 
jackets. In particular, the breast location differed, and the Denton 
jacket was longer.\6\ Transport Canada's research also found that 
neither jacket matched the Part 572 specifications, though the Denton 
jacket dimensions were generally closer.\7\ For example, the breasts on 
the FTSS jacket were lower than in the codified specifications.\8\ Both 
Transport Canada and the Alliance concluded that the codified jacket 
specifications did not contain sufficient information about the shape 
and placement of the breasts to assure uniformity in the production of 
jackets between jacket manufacturers.\9\
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    \6\ Letter from the Alliance to NHTSA (Jan. 31, 2006) (Alliance 
letter), p. 8; Suzanne Tylko et al., 2006, The Effect of Breast 
Anthropometry on the Hybrid III 5th Female Chest Response, Stapp Car 
Crash Journal, Vol. 50 (Nov. 2006), p. 390.
    \7\ Tylko et al. 2006, supra, p. 392.
    \8\ Id. at p. 392.
    \9\ Id., Alliance letter, p. 6.
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    The differences between the FTSS and Denton jackets, and between 
those jackets and the Part 572 specifications, are the result of a 
variety of factors. For one, the Subpart O jacket drawing, which 
consists of two sheets, contains errors and ambiguities. The dimensions 
for the breast locations are not consistent between the two sheets, and 
the overall shape is not consistent, either. These inconsistences and 
ambiguities contributed to dimensional differences between the FTSS and 
Denton jackets.
    In addition, design choices by FTSS and Denton also contributed to 
the discrepancies. When NHTSA added the dummy and jacket to Part 572 in 
2000, the engineering drawings for the jacket came from SAE. However, 
the jacket specifications did not match the actual jacket that FTSS was 
making. During the dummy development period, FTSS made a manufacturing 
decision to lower the breasts to change the lay of the shoulder 
belt.\10\ FTSS later informed NHTSA that it had also increased the 
jacket depth by \1/2\ inch to improve fit.\11\ These changes were not 
reflected in the specifications that were ultimately incorporated by 
reference in Part 572 in 2000 (8801054-355-E, Rev. D). With respect to 
the Denton jacket, discrepancies between it and the Part 572 
specifications arose after Subpart O was established, when Denton began 
producing dummies and jackets using their own molding processes. The 
Denton jacket more closely matched the Subpart O drawing than FTSS's, 
but did not conform wholly to it.
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    \10\ 71 FR 45427 (Aug. 9, 2006) (notice of denial of petition 
for rulemaking).
    \11\ Letter from FTSS to NHTSA (Aug. 28, 2006) (responding to 
NHTSA's notice of denial).
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    In 2003, FTSS submitted a petition for rulemaking to revise the 
jacket dimensions to correspond to the dimensions of the jackets then 
being produced by FTSS.\12\ NHTSA denied this petition.\13\ The agency 
stated that while dummies with the FTSS and Denton jackets performed 
somewhat differently than dummies with jackets that conformed with the 
Part 572 specifications, the dimensional differences did not have a 
significant effect on dummy performance as long as the seat belt was 
properly positioned.\14\
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    \12\ Letter from FTSS to NHTSA (dated December 30, 2003).
    \13\ 71 FR 45427 (Aug. 9, 2006).
    \14\ Id. See also letter from FTSS to NHTSA (Aug. 28, 2006).
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    However, studies of the jacket by Transport Canada and the Alliance 
in the mid-2000s found that FTSS and Denton dummies performed 
differently in the types of testing specified in FMVSS No. 208.\15\ 
FMVSS No. 208 specifies a variety of different dynamic (crash) and 
static (out-of-position) requirements using the HIII-5F.\16\ Transport 
Canada's research found that the FTSS and Denton dummies performed 
differently with respect to chest deflection in both full-scale rigid 
barrier crash tests and in out-of-position testing. It concluded that 
the dimensional differences between the FTSS and Denton jackets 
``influences belt placement and affects contact with airbag modules 
during out-of-position testing . . . these differences confound the 
interpretation of chest response and adversely affect the validity of 
the test instrument.'' \17\ The Alliance in a 2006 letter to NHTSA 
similarly reported research by vehicle manufacturers demonstrating that 
``significant variations in chest jacket dimensions between the Denton 
and FTSS ATD[s] . . . may produce different test results when evaluated 
in the NHTSA-1 & NHTSA-2 Out-of-Position Driver FMVSS 208 Tests.'' \18\
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    \15\ Tylko et al. (Nov. 2006), supra, p. 390; letter from the 
Alliance (Jan. 31, 2006), supra, p. 8. See also Tylko et al., 2006, 
A Comparison of Hybrid III 5th Female Dummy Chest Responses in 
Controlled Sled Trials, SAE Technical Paper Series, 2006-01-0455.
    \16\ See, e.g., S15 (rigid barrier test requirements); S25 (out-
of-position requirements).
    \17\ Tylko et al. 2006, The Effect of Breast Anthropometry on 
the Hybrid III 5th Female Chest Response, Stapp Car Crash Journal, 
Vol. 50 (Nov. 2006), supra, p. 393.
    \18\ Alliance letter to NHTSA (Jan. 31, 2006), supra, pp. 1, 9. 
In 2005 the Alliance presented these issues to NHTSA and documented 
them in a 2006 letter.
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c. Development of the SAE J2921 Jacket Specifications (SAE Jacket)

    These differences between the FTSS and Denton jackets led SAE, in 
2006, to establish a task force to develop a harmonized jacket (for 
ease of reference, referred to in this document as the ``SAE jacket''). 
The main goal of the task force was to develop a jacket design such 
that both FTSS and Denton could produce a single, interchangeable 
jacket compatible with both companies' versions of the HIII-5F. The 
task force also developed a device (referred to as a mandrel) to check 
jacket fit as the jacket ages (it is known that the jacket shrinks over 
time).
    In 2010, FTSS and Denton merged to form Humanetics. Humanetics 
continued the jacket harmonization work of its predecessor companies. 
However, the merger meant that Humanetics was the only dummy 
manufacturer involved with drafting the SAE information report. 
Therefore, what began as an effort to specify the design of a 
``harmonized'' jacket that could be produced by any manufacturer became 
an effort for Humanetics to simply design and produce a jacket that 
could fit existing Denton and FTSS dummies as well as newly 
manufactured Humanetics dummies.
    During jacket development, Humanetics (under the auspices of SAE) 
refined the jacket design to account for various issues. NHTSA testing 
of early iterations of the jacket showed that an HIII-5F dummy fitted 
with it did not pass the Part 572 Subpart O torso flexion qualification 
test. (The results of this testing are discussed below in Section IV.) 
Humanetics addressed this issue by tapering the thickness of the

[[Page 70919]]

jacket around the lower circumference where it interacts with the 
pelvis flesh.
    SAE published an information report for the jacket in 2013 (SAE 
J2921 JAN2013 supra). The SAE jacket is intended to be compatible with 
all existing dummy brands (although, as explained later in this 
preamble, a dummy might need some tuning or refurbishing to meet 
Subpart O qualification requirements with the jacket). The J2921 jacket 
is currently offered for sale by Humanetics and JASTI-USA, Inc., the 
U.S. affiliate of JASTI Co., LLC, a manufacturer of dummies and test 
equipment headquartered in Japan.

d. NHTSA Enforcement Policy To Address Chest Jacket Issues

    Since the introduction of the HIII-5F in 2000, the available 
jackets brands (principally from FTSS and Denton) did not match each 
other, and neither exactly matched the Part 572 specifications. Such 
differences can lead to different compliance test results with 
different jackets.
    In 2006, the Alliance requested that NHTSA, in its compliance 
testing program, use the same dummy brand (Denton or FTSS) the vehicle 
manufacturer used in its certification of a particular make/model. 
NHTSA adopted this requested practice by maintaining qualified dummies 
(and jackets) from both FTSS and Denton and has tracked which brand was 
used in the certification of vehicles the agency tests.
    Recent events render this approach obsolete and necessitate further 
action by NHTSA. After the merger of FTSS and Denton, Humanetics 
indicated that it would maintain production of the FTSS and Denton 
brand versions of the jackets so that they could be used as spare parts 
on the existing FTSS and Denton dummies.\19\ However, in 2015 
Humanetics discontinued production of the original FTSS and Denton 
chest jacket designs. According to its product catalog, Humanetics now 
sells only the SAE jacket, identified as part number 880105-355-H.\20\ 
This is the part number of the engineering drawing of the jacket that 
appears in SAE J2921.
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    \19\ The Brand Harmonization of the Hybrid III 5th Small Female 
Crash Test Dummy 880105-000, The ATD Harmonization Task Group, 
Humanetics Innovative Solutions, Inc., July 2012.
    \20\ Hybrid-III 5th Small Female Dummy, 880105-000-H Brand 
Harmonized Parts Catalog, Humanetics Innovative Solutions, Inc., 
August 2018.
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    Over the past few years, NHTSA has received requests from several 
vehicle manufacturers for NHTSA to conduct its compliance tests using 
the SAE jacket. NHTSA did not agree to these requests, and instead 
required manufacturers to identify an FTSS or Denton jacket for NHTSA 
to use in its compliance testing. However, because chest jackets shrink 
or otherwise fall out of specification or wear out with age, NHTSA's 
stock of FTSS and Denton jackets is running out, and NHTSA has only a 
limited supply. The Alliance has informed NHTSA that its members are 
facing the same issue. Thus, the issues of jacket availability and 
which jacket designs are acceptable for use in compliance tests have 
become more urgent.
    Today's proposal is intended to resolve these issues by commencing 
amending the Part 572 specifications for the jacket to include the 
specifications set out in J2921. The proposal also includes a few 
specifications we developed that are intended to ensure that jackets 
produced by different manufacturers perform equivalently on all dummy 
brands. We believe that new jackets currently produced by Humanetics 
meet both the specifications in J2921 and the additional 
specifications.

e. Proposed Modifications To Adopt the SAE Jacket

    We propose to amend the chest jacket specifications in Subpart O. 
The proposed changes reflect the J2921 jacket design in which the 
breast contours are blended more gradually into the torso, compared to 
the current Subpart O design where the breast contours are more sharply 
defined.
    We propose to adopt the specifications in SAE J2921 (Figures 4-6, 
which are engineering drawings of the SAE jacket design). However, we 
also propose adding additional specifications for the jacket's contour 
that are not contained in SAE J2921. Our proposed additional 
specifications for the jacket's contour adds breadth, depth, and 
circumference dimensions at different section levels of the jacket on 
the main assembly drawing of the dummy (880105-000, Rev. J, Sheet 5). 
Dimensions are specified for a jacket worn on a dummy, i.e., 
measurements would be recorded on the jacket as worn on a dummy 
positioned on the same flat-back bench as what is currently shown on 
800105-000, Rev. J, Sheet 5. The additional dimensional specifications 
are intended to define the outer shape of the thorax and to preclude 
belt routing discrepancies. The information includes additional views 
of the chest jacket at various cross sections.
    We tentatively believe these additional specifications are 
necessary to ensure a sufficiently low level of variation between 
jackets produced by different manufacturers. We note that the jacket 
drawing contained within SAE J2921 JAN2013 has less specificity than 
the current Subpart O drawing, 880105-355-E, Rev. D. In the final J2921 
report, there are no dimensions, reference or otherwise, defining the 
breast size or the arm hole size and location. Also, the taper shown in 
J2921 (added after the 2011 draft to mitigate binding in the torso 
flexion test) is pictorial only, with no dimensions. The SAE report 
also does not indicate whether the specifications are for the jacket on 
its own or as fitted on a dummy. The agency is concerned that this 
overall lack of specificity could result in the production of jackets 
of vastly different shapes, but still meeting the drawing 
specifications of J2921. As was the case with the old FTSS and Denton 
jackets and the current Part 572 specifications, this lack of 
specificity could lead to differences in performance between dummies, 
which this proposal intends to resolve.
    We also tentatively conclude that the proposed jacket 
specifications would encompass existing jackets that have been built to 
the SAE J2921 specifications; the proposed specifications were 
developed in light of such existing jackets. However, we believe that 
the older FTSS or Denton jackets would not conform to the proposed 
specifications (for example, the circumference at the different section 
levels).
    NHTSA proposes to amend the Subpart O regulatory text to 
incorporate by reference new versions of the drawing package, parts 
list and PADI. These changes are described in more detail in a separate 
document being placed in the docket for this rulemaking.\21\ That 
document also includes the engineering drawings identified above.
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    \21\ Engineering Change Proposal, Revision K, Hybrid III 5th 
Percentile Female Test Dummy, Part 572, Subpart O, Changes to: Parts 
List, Engineering Drawing Package, Procedure for the Assembly, 
Disassembly, and Inspection (PADI), Subpart O Regulatory Text, 
National Highway Traffic Safety Administration, November 2019.
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    To summarize the changes to the new drawing package, the drawings 
in which the chest jacket is currently specified (880105-355-E, 880105-
356, 880105-423, and 880105-424) would be replaced with:

 880105-355-H, Rev B, Chest Flesh Assembly, Sheet 1
 880105-355-H, Rev B, Chest Flesh Assembly, Sheet 2
 880105-356-H, Rev C, Sternum Pad

    The Chest Flesh Assembly (880105-355-H, Sheets 1 and 2) and the 
Sternum

[[Page 70920]]

Pad (880105-356-H) are derived from the reprints of drawings contained 
in SAE J2921 (Jan 2013). We would also revise drawing 800105-000, 
Complete Assembly, 5th Female, Rev J, Sheet 5 to add jacket dimensions 
at various cross sections, and revise the call-out to the jacket in 
drawing 880105-300 to reference the new drawing. We would also make 
some corresponding changes to the PADI.
    NHTSA tentatively concludes that the proposed jacket specification 
will assure uniformity in the form, fit, and function of the HIII-5F. 
Based on testing the agency conducted with the SAE chest jacket (see 
section IV below, Testing of the SAE jacket and spine box), NHTSA 
tentatively concludes that dummies fitted with jackets built to the 
proposed specifications would pass the Subpart O qualification tests 
and would not result in different compliance test outcomes. This 
applies to both newly manufactured dummies as well as older, existing 
dummies fitted with the new jacket. When a new jacket is fitted to an 
existing (old) dummy (made by either FTSS and Denton), we believe there 
will be no significant change in performance in static out-of-position 
air bag deployment tests and in full scale vehicle crash tests, 
assuming the Subpart O qualification requirements are met. (Although, 
as discussed in the section below, when an existing FTSS or Denton 
dummy is fitted with a new jacket, the dummy may need to be re-tuned or 
refurbished in order to conform to all Subpart O qualification 
requirements. Such retuning or refurbishing is expected when fitting a 
new part to an existing dummy generally.)
    We seek comment on the proposed specifications, including the 
proposed additional specifications. We seek information and data on 
whether existing jackets built to SAE J2921 on existing dummies will 
meet the proposed specifications. NHTSA also seeks comment on what (if 
any) additional information, such as tolerance specifications, is 
needed to fully specify the jacket in order to ensure that jackets 
produced by different manufacturers perform equivalently. We also seek 
comment on the proposed approach of specifying dimensions for the 
jacket as fitted on a dummy, including whether additional Subpart O 
qualification tests are necessary.
    We will continue to collect measurement data on newly purchased 
jackets to check whether the dimensions and tolerances specified herein 
(including those derived from J2921 drawings and the new section 
dimensions added by NHTSA) are being met by SAE jackets already in the 
field. We will also examine all measurement data provided to us. For 
the final rule, we may adjust the dimensions and tolerances to assure 
that jackets in the field achieve an acceptable degree of conformity 
while still assuring a high level of uniformity.

f. Other Issues

1. Mandrel
    SAE J2921 describes a mandrel to assess the fit of the jacket 
(because jackets tend to shrink over time, the mandrel was developed to 
assess jacket fit as it ages). There are reference marks on the back, 
bottom, and top of the mandrel that serve as indicators that the jacket 
has shrunk to the point where a replacement is recommended.
    Use of the mandrel, if implemented in Subpart O, would constitute a 
new qualification requirement with a new test procedure. However, J2921 
does not provide a test protocol or an objective fit criterion. Also, 
while J2921 depicts a drawing of the mandrel, it does not provide 
details or dimensions on the shape of the mandrel.
    In its supplemental submission to NHTSA, the Alliance clarified 
that it was not requesting that the agency specify use of the mandrel; 
instead, the mandrel is an optional inspection device for test labs and 
is not intended for inclusion in Subpart O. NHTSA has considered the 
need for the mandrel and has tentatively decided not to incorporate the 
mandrel or the fit check procedure outlined in J2921. We seek comment 
on this.
2. Dummy Refurbishment and Tuning of Ribs
    When a new jacket is introduced, a dummy on which it is installed 
may need some amount of refurbishment or tuning in order to pass the 
Subpart O qualification tests.
    The degree to which the dummy needs refurbishment may vary. 
Refurbishment refers to replacing damaged parts with new parts. Some 
individual dummies require more new parts than others to pass the 
qualification tests with the SAE jacket. In its testing, NHTSA replaced 
parts such as the upper leg flesh, the thorax bib, and the molded 
pelvis. NHTSA found that FTSS dummies required more frequent 
refurbishment than Denton dummies. In addition, Information Report SAE 
J2921 states that when a new jacket is fitted to an older dummy, the 
thickness of rib damping material may need to be re-tuned for the dummy 
to conform to the Part 572 thorax assembly qualification requirements. 
In its supplemental submission, the Alliance describes a procedure for 
tuning the ribs by shaving off damping material. The amount of tuning 
varies depending on the dummy brand and the specific jacket.
    In its own testing, rather than shaving damping material, NHTSA 
simply replaced the ribs (along with other parts) when the agency 
retrofitted the J2921 jacket to one of its older dummies. Nonetheless, 
under certain conditions, shaving the damping material remains an 
option if end-users so desire. Shaving off damping material acts to 
lower the force generated in the torso impact qualification test. 
Because there is no easy way for end-users to add damping material, 
ribs must be replaced if the force is too low. A replacement rib must 
have an ample thickness of damping material in order to be shaved.
    The need to refurbish or tune existing dummies to obtain passing 
qualification results is not out of the ordinary. To put this in 
perspective, whenever a dummy of any type is assembled (not just a 
HIII-5F) it must usually be adjusted to some degree in order to conform 
to all Part 572 qualification requirements. After repeated use in full 
scale vehicle tests, a part may need to be replaced if it has become 
worn or damaged. When a new part is introduced (such as the jacket of 
the HIII-5F), replacement of other parts is sometimes needed so that 
the dummy can pass all qualification requirements.

III. Spine Box

a. Background

    The spine box of the HIII-5F is the dummy's steel backbone. It is 
located in the dummy's thorax, which consists of six bands that 
simulate human ribs. The bands are made of spring steel, and a thick 
layer of graphite is bonded to each band to provide damping when the 
bands are deflected, thus giving them humanlike properties. On the 
posterior aspect of the thorax, the bands are affixed to the spine box. 
The spine box is currently specified in the parts and drawings document 
in drawings 880105-1000, and SA572-S28 with call-outs in 880105-300 and 
the PADI (pg. 21).
    In the mid-2000s, the SAE Task Force began an effort--in parallel 
with its efforts on the chest jacket--to find and eliminate a source of 
signal noise that sometimes emanated from the HIII-5F spine box. 
Alliance members determined that the noise was caused by loosening of 
six socket head cap screws attaching the spine box to the lower spine. 
Due to a design shortcoming, repeated crash testing loosened the

[[Page 70921]]

screws so that they rattled against the inner walls of the through 
holes. This led to artifacts in the signals of the accelerometers in 
the thorax during sled and crash tests. The problem affected FTSS and 
Denton units alike. Testing laboratories have been addressing this 
problem by disassembling the dummy and inspecting and tightening the 
screws routinely.
    As a long-term solution, SAE developed an alteration to improve the 
spine box. Specifically, it recommended adding plates to the side of 
the spine box, with bolts countersunk into the plate to remove any play 
from the assembly. The alteration prevents the screws from loosening 
and eliminates the signal noise. NHTSA and others tested the new spine 
box fix as it was being developed. (This research is discussed below.) 
In 2011 SAE published an information report for the spine box 
modification (SAE J2915 AUG2011, supra).

b. Proposed Modifications

    We propose to change the spine box specifications to permanently 
fix the signal noise problem. The new versions of the drawing package, 
parts list and PADI proposed for incorporation by reference include the 
SAE J2915 specifications for the improved spine box. The proposed 
revisions would add plates to the side of the spine box, with bolts 
countersunk into the plate to remove any play from the assembly. We 
propose to replace the current spine box drawings with the following:

 880105-1045, Rev C, Hybrid III 5th Female Thoracic Spine 
Upgrade, Sheets 1-3.
 880105-1047, HIII-5F Plate, Thoracic Spine Upgrade
 SID-070-6, Rev B, DOT-SID, Modified 5/16-18x5/8'' SHCS

    All three drawings are derived from the reprints of drawings 
contained within SAE J2915 (Jan 2011). We discuss the changes in detail 
in the document docketed for this NPRM, supra.\22\
---------------------------------------------------------------------------

    \22\ Engineering Change Proposal, Revision K, Hybrid III 5th 
Percentile Female Test Dummy, Part 572, Subpart O, Changes to: Parts 
List, Engineering Drawing Package, Procedure for the Assembly, 
Disassembly, and Inspection (PADI), Subpart O Regulatory Text, 
National Highway Traffic Safety Administration, November 2019.
---------------------------------------------------------------------------

    The modification would increase the quality of data and reduce 
maintenance and testing time. The modification does not affect or 
change the dummy's performance in any way (other than eliminate the 
potential for noise).\23\
---------------------------------------------------------------------------

    \23\ We note that the current Subpart O ATD can be a valid test 
dummy without installing the new spine box, i.e., users can address 
the signal noise problem by disassembling the dummy and inspecting 
and tightening the screws by hand on a routine basis. However, NHTSA 
believes that these efforts must be taken regularly to ensure that 
the ATD's thoracic data are not affected by the spine box signal 
noise, and that test evaluators should carefully review test data 
for signs of artifacts in the signals of the thorax accelerometers. 
As an alternative to checking bolt tightness on existing units or 
replacing the entire spine box, end-users, at their discretion, may 
opt to modify (rather than replace) their dummy's spine box as 
prescribed by SAE J2915. However, NHTSA's proposal does not include 
specifications for the modification.
---------------------------------------------------------------------------

IV. Testing of the SAE Jacket and Spine Box

    NHTSA and others tested the SAE jacket and spine box to assess ATD 
performance with the new components. NHTSA's evaluation of the jacket 
and spine box was presented at the 2011 ESV Conference and in a 2011 
paper. The agency conducted several types of tests using HIII-5F 
dummies retrofitted with jackets built to the then-most current version 
of the SAE specifications being developed (SAE J2921 was still in draft 
status); one jacket was made by FTSS, and one was made by Denton). 
Industry also evaluated the jacket and spine box. The results of this 
research are briefly summarized below.

a. Chest Jacket

1. NHTSA Evaluation
    In 2011 NHTSA published a study that evaluated preliminary versions 
of the SAE jacket produced by FTSS and Denton.\24\ It compared the 
dimensions of the jackets and evaluated the performance of dummies 
fitted with the jackets in sled tests, out-of-position tests, and some 
of the Subpart O qualification tests. It found that dummies fitted with 
jackets built to the SAE design under development performed essentially 
the same as dummies fitted with pre-existing FTSS and Denton (non-SAE) 
jackets with respect to dummy injury metrics and other responses (with 
one exception).
---------------------------------------------------------------------------

    \24\ McFadden J.D., Striklin J.L. (2011), Evaluation of the 
Hybrid III 5th female modified chest jacket and spine box, Paper No. 
11-0334, 2011 ESV Conference.
---------------------------------------------------------------------------

    The study found that the two brands of preliminary SAE jackets were 
identical in appearance (with some slight variations) and compared well 
to a draft version of the SAE drawings.
    Qualification tests prescribed in Subpart O, including those most 
likely to be influenced by the jacket (the thorax impact test and the 
quasi-static torso flexion test) were also carried out. All of those 
Subpart O qualification requirements were met for all dummy 
configurations with one exception: When either an FTSS dummy or a 
Denton dummy was fitted with the SAE jacket, the dummy did not meet the 
pull force requirement for the torso flexion test. During the flexion 
test, the jacket tended to bind at the waist when the dummies were 
pitched forward into the 45-degree test position. The added resistance 
due to the binding caused the pull force to exceed the specified limit 
of 390 N. The study concluded that further work on the jacket was 
needed to address the torso flexion test results. The SAE jacket was 
subsequently redesigned to address this.
    NHTSA also conducted sled tests similar in severity to a frontal 
rigid barrier crash test (35 mph, peak acceleration of 28 Gs) and 
static, low-risk out-of-position air bag deployments. NHTSA found that 
dummies fitted with the jackets built to the SAE design under 
development performed essentially the same as dummies fitted with pre-
existing FTSS and Denton jackets with respect to dummy injury metrics 
and other responses, including those most likely to be affected by the 
chest jacket (chest deflection and acceleration).
    When SAE finalized the jacket design and issued SAE J2921 in 2013, 
NHTSA purchased new jackets (from Humanetics and JASTI-USA) to ensure 
they would fit properly on the agency's existing FTSS and Denton HIII-
5F dummies, and that ``passing'' results could be obtained in the torso 
flexion and thorax impact qualification tests. In all instances, the 
agency was able to demonstrate passing results for both these 
qualification tests (some dummy refurbishment was needed to pass the 
test, but as noted above, refurbishment of an ATD when a new part is 
fitted is a common operating procedure). See Table 2.

[[Page 70922]]



                                                                           Table 2--NHTSA Torso Flexion Tests, 2013-14
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                                             Return angle   Max force
                                              Dummy                                                                               Initial     difference,    @45 deg      Rotation
                Dummy mfg                   serial No.             Jacket                Trial              Test site           angle (deg)  final--init.   during 10    rate (deg/   Test date
                                                                                                                                                 (deg)       sec (N)        sec)
                                                                                                                                  [1 to 20]    [-8 to +8]      [320 to      [0.5 to
                                                                                                                                                                  390]         1.5]
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
FTSS refurb..............................         F416  HIS DM9396                              1  VRTC                                15.4           3.6          331         1.03    5/28/2013
                                                                                                2  VRTC                                15.3           3.8          325         0.98    5/28/2013
                                                                                                3  VRTC                                16.4           2.7          352         0.96    5/28/2013
FTSS refurb..............................         F416  HIS DM9432                              1  VRTC                                15.3           3.8          324         0.97    5/28/2013
                                                                                                2  VRTC                                16.1           3.1          345         0.95    5/28/2013
                                                                                                3  VRTC                                15.8           3.4          346         0.98    5/28/2013
FTSS refurb..............................         F416  JASTI 129                               1  VRTC                                14.7           4.5          363         0.97    5/28/2013
                                                                                                2  VRTC                                15.2           4.2          355         0.94    5/28/2013
                                                                                                3  VRTC                                15.5           4.1          355         0.99    5/29/2013
FTSS refurb..............................         F515  JASTI 129                               1  TRC                                 16.3           2.8          326         0.94     5/6/2014
                                                                                                2  TRC                                 16.4           3.0          324         0.96     5/6/2014
                                                                                                3  TRC                                 16.4           3.6          343         0.91     5/6/2014
FTSS refurb..............................         F515  HIS DM9369                              1  TRC                                 15.6           4.1          389         0.91     5/6/2014
                                                                                                2  TRC                                 15.8           4.1          352         0.92     5/7/2014
                                                                                                3  TRC                                 15.9           3.9          337         0.88     5/7/2014
Denton refurb............................         D137  HIS DM9432                              1  TRC                                 13.7           3.5          374         1.04    7/15/2014
                                                                                                2  TRC                                 14.1           3.5          377         1.02    7/15/2014
                                                                                                3  TRC                                 14.0           3.6          367         1.01    7/15/2014
Denton refurb............................         D137  JASTI 129                               1  TRC                                 12.7           5.1          360         0.87    7/16/2014
                                                                                                2  TRC                                 13.3           4.5          359         0.94    7/17/2014
                                                                                                3  TRC                                 14.2           3.9          353         0.96    7/18/2014
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Note: Jackets reflect the design described in the final version of SAE J2921 (2013).

    In summary, these tests demonstrated that old dummies (FTSS and 
Denton versions) that were fitted with the SAE jacket would pass the 
Subpart O qualification requirements. Once an older dummy was 
retrofitted with a new J2921 jacket, all parts on the dummy conformed 
dimensionally to the proposed Subpart O engineering drawings.
    NHTSA did not perform re-tests of the sled and out-of-position test 
series performed for the 2011 study with the final version of the SAE 
jacket. The final revision only reduced the length of the sternal pad 
and tapered the lower portion of the jacket. These changes affect the 
dummy response in extreme thorax flexion as seen in the torso flexion 
qualification test. Because this condition was not manifested in either 
the sled or out-of-position test series, NHTSA believes the effects of 
the taper and shorter sternal pad would have been negligible. 
Nonetheless, NHTSA believes that the revisions to the jacket design 
were necessary; when extreme flexion does occur, the torso response 
must be preserved.
2. Industry Evaluation
    The Alliance's supplement to its rulemaking petition and SAE J2921 
also indicate that the SAE jacket performs equivalently to the Denton 
and FTSS jackets.
    The SAE report shows that the SAE jacket has not affected thorax 
biofidelity. It shows that the force vs. deflection plots for the 6.7 
m/s thorax impact tests with the SAE jackets were within the 
biofidelity corridors that served as design targets for the original 
dummy design. The plots demonstrate that the SAE jacket has not 
affected dummy response.
    The Alliance submitted information in its supplemental letter 
demonstrating that the SAE jacket can pass the Subpart O thorax impact 
tests. However, we note that both the Alliance and SAE J2921 indicate 
that the thickness of rib damping material may need to be adjusted for 
the dummy to conform to the Part 572 qualification requirement for the 
thorax assembly when a new SAE jacket is placed on an old dummy. The 
Alliance, in its supplemental submission, clarified how and why this 
adjustment is made. Due to high batch-to-batch variability of the rib 
damping material, the dynamic performance of the rib is specified and 
not the thickness. New ribs are shipped with the expectation that some 
tuning (shaving down some rib damping material) is required to bring 
the dummy into acceptable performance corridors depending upon the 
chest jacket used. The interchangeability varies with the brand and 
dummy condition, so adjustments may be necessary when switching 
jackets.
    The testing also indicated that the final version of the SAE jacket 
could pass the Subpart O torso flexion test. Testing by both SAE and 
Alliance members found, as did NHTSA, that the first iteration of the 
SAE jacket (made in 2011) registered high pull forces in the torso 
flexion test. Testing of the final version of the jacket showed, 
however, that it was able to pass the torso flexion test. Both SAE 
J2921 and the Alliance's supplemental submission indicate that when a 
new SAE jacket is fitted to an older dummy, some refurbishment of the 
dummy may be needed in order for it and the new jacket to perform 
properly.

b. Spine Box

    NHTSA's 2011 study showed that the spine modification had 
completely eliminated the noise emanating from the chest without 
affecting the response of the dummy in any other way. The study found 
that the spine boxes manufactured by different manufacturers were 
identical, suggesting that the spine box alterations are sufficiently 
specified. The study also concluded that the spine box was durable.
    Testing undertaken for the SAE task force and reported in SAE J2915 
also showed that the new spine box had equivalent performance to the 
existing spine box and did not loosen over repeated testing.

V. Lead Time

    NHTSA proposes to make the changes effective 45 days after 
publication of a final rule. This means that Subpart O--the 
specifications for the chest jacket and spine box--will be changed on 
that date. FMVSS No. 208 specifies that NHTSA is to use the Subpart O 
dummy in its compliance tests. Thus, starting on the effective date of 
the final rule, under FMVSS No. 208 the HIII 5th percentile adult 
female dummy would be used

[[Page 70923]]

with the new SAE jacket and spine box in NHTSA's tests.\25\
---------------------------------------------------------------------------

    \25\ In its February 21, 2014 petition, the Alliance recommended 
that compliance with the new specifications should be optional for a 
period of five years. NHTSA seeks comment on whether this is still 
necessary or appropriate.
---------------------------------------------------------------------------

    NHTSA believes the 45-day lead time would be sufficient because we 
do not believe that testing under FMVSS No. 208 would be significantly 
affected by the final rule. Vehicle manufacturers already use the SAE 
jacket on the ATD. Moreover, because none of the dummy jackets that are 
currently in use correspond to the existing Subpart O specifications, 
there should be no issue with taking an existing dummy out of 
conformity with the implementation of this rule. We also believe that 
jackets built to SAE J2921 that are currently used in the field would 
conform to the proposed specifications. The improved spine box is not 
expected to affect dummy performance because the revision only acts to 
remove the unwanted artifact of loose bolts rattling.
    Manufacturers wishing to test with the proposed jacket and spine 
box should have no difficulty obtaining the necessary parts. NHTSA 
asked the Alliance to assess the cost and availability of obtaining the 
parts associated with the proposed changes. In its supplemental letter, 
the Alliance indicated that all parts associated with the proposed 
jacket and spine box changes are available, and there should not be any 
difficulties meeting anticipated demand.
    We also tentatively conclude that a shortened lead time is 
desirable because the proposed changes are beneficial for testing 
laboratories. We believe that the proposed jacket and spine box changes 
would likely lead to diminished laboratory technician workload. A 
common jacket design would eliminate the need to deal with multiple 
jacket versions. The new spine box would also lighten laboratory 
workload by eliminating the need to re-torque the bolts between tests. 
With respect to levels of effort and technician training needed to 
modify and maintain the new jacket and spine box, the Alliance 
indicated in its supplemental letter that both modifications are well 
within the technical competency of existing laboratory technicians. It 
also stated that the introduction of the new parts will not create any 
significant increases in the workload necessary to maintain the 
dummies.

VI. Housekeeping Amendments

    The agency proposes the following housekeeping and other amendments 
to Subpart O.
    1. NHTSA proposes to amend the title of Subpart O to add the word 
``adult'' between ``5th percentile'' and ``female'' for clarity.
    2. The agency proposes to remove the words ``Alpha Version'' from 
the title of Subpart O. During adoption of some of the subparts of Part 
572 NHTSA had decided that referring to the alpha, beta, etc., 
``versions'' of the test dummies would better distinguish a current 
version of an ATD from a previous version. The agency later decided 
this naming convention was not helpful and has not followed it. 
Accordingly, we would like to remove ``Alpha Version'' from the title 
of Subpart O since the naming convention is no longer used.
    3. This NPRM proposes to revise Subpart O's references to SAE J211 
parts 1 and 2 and to SAE J1733 to refer to the most up-to-date versions 
of the standards. SAE J211 is revised with improved diagrams for 
defining the dummy coordinate system, and corrections to minor mistakes 
in print. New information and recommendations for data system 
grounding, sensor cable shielding, and minimizing the effects of 
transducer resonance are included. Clarifications on data processing 
are also included. J1733 is revised with improved diagrams for defining 
the dummy coordinate system (for the HIII-5F, the system itself is 
unchanged).

VII. Regulatory Analyses and Notices

Executive Order 12866, Executive Order 13563, and DOT Order 2100.6

    We have considered the potential impact of this proposed rule under 
Executive Orders 12866 and 13563, and DOT Order 2100.6, and have 
determined that it is nonsignificant. This rulemaking document was not 
reviewed by the Office of Management and Budget (OMB) under E.O. 12866. 
We have considered the qualitative costs and benefits of this NPRM 
under the principles of E.O. 12866.
    As stated in 49 CFR 572.3, Application, Part 572 does not in itself 
impose duties or liabilities on any person. It only serves to describe 
the test tools that measure the performance of occupant protection 
systems. Thus, this Part 572 proposed rule itself does not impose any 
requirements on anyone. Businesses are affected only if they choose to 
manufacture or test with the dummy. Because the economic impacts of 
this rule are minimal, no further regulatory evaluation is necessary.
    This NPRM proposes changes to the specifications of the HIII-5F 
chest jacket and spine box. For entities testing with the dummy, the 
proposed revisions are intended to resolve issues with the fit and 
availability of the jacket and a noise artifact from the spine box. 
Neither change would impose new requirements on vehicle manufacturers.
    With respect to benefits, the dummy would not change in any way 
other than to improve its usability and objectivity. This rulemaking 
benefits the public by specifying a more objective test tool, which 
lessens the burden of dummy end-users in performing tests and 
interpreting test results. It also benefits vehicle manufacturers by 
providing certainty about which test jacket and spine box NHTSA will 
use in compliance tests with the HIII 5th percentile adult female ATD, 
and assurance about the continued availability of the jacket. This 
rulemaking benefits NHTSA as the agency would no longer have to 
maintain test jackets of different designs and take steps to match the 
compliance test jacket with that specified by the vehicle 
manufacturers. Specifying the new test jacket and spine box ensures the 
long-term availability of a test jacket for compliance tests.
    The costs associated with this rulemaking are limited to those 
associated with acquiring new dummy parts. We tentatively conclude that 
the proposed changes would not necessitate the purchasing of any parts 
that would not have been purchased in the normal course of business in 
the absence of the proposed changes.
    We do not believe the proposed chest jacket changes would impose 
any additional costs compared to what would have been expended if we 
did not adopt the proposed changes. Because a chest jacket eventually 
wears out, it must be replaced. Dummy refurbishments and part 
replacements are a routine part of ATD testing. The agency understands 
that industry has essentially run out of its supply of the older FTSS 
and Denton jackets. We further understand that industry has been 
replacing worn-out FTSS and Denton jackets with new jackets built to 
the SAE J2921 specifications. While the FTSS and Denton jackets are not 
consistent with the proposed specifications, we believe that chest 
jackets built to the SAE J2921 specifications would meet the proposed 
specifications. Because industry and testing labs need to replace the 
chest jacket in the regular course of business--regardless of whether 
the proposed changes are adopted--and the only available replacement 
chest jackets conform to the proposed specifications, we believe the 
proposed chest jacket

[[Page 70924]]

specifications would not impose any additional costs on industry.\26\
---------------------------------------------------------------------------

    \26\ For the case of the HIII-5F, a new jacket costs about $850. 
If a new jacket is installed on an existing dummy, additional 
refurbishments or tuning of that dummy may be needed in order for it 
to pass the Subpart O qualification tests. Depending on the 
condition and age of the dummy, several other parts may need to be 
replaced at a cost of up to $10,000. However, dummy refurbishments 
and part replacements are an inherent part of testing and many of 
the additional parts are often replaced on a regular schedule. In 
other words, some of the parts would eventually be replaced, and the 
costs of the replacement parts can be amortized over a number of 
tests.
---------------------------------------------------------------------------

    The revised spine box, which is not typically replaced during 
routine maintenance, costs about $600. End users do not have to 
purchase a revised spine box. They can compensate for the design 
shortcoming of the current spine box by disassembling the dummy and re-
torqueing the relevant fasteners by hand before each test.

Executive Order 13771

    Executive Order 13771, titled ``Reducing Regulation and Controlling 
Regulatory Costs,'' directs that, unless prohibited by law, whenever an 
executive department or Agency publicly proposes for notice and comment 
or otherwise promulgates a new regulation, it shall identify at least 
two existing regulations to be repealed. In addition, any new 
incremental costs associated with new regulations shall, to the extent 
permitted by law, be offset by the elimination of existing costs. Only 
those rules deemed significant under section 3(f) of Executive Order 
12866, ``Regulatory Planning and Review,'' are subject to these 
requirements. As discussed above, this rule is not a significant rule 
under Executive Order 12866 and, accordingly, is not subject to the 
offset requirements of 13771.

Executive Order 13609: Promoting International Regulatory Cooperation

    The policy statement in section 1 of Executive Order 13609 
provides, in part:

    The regulatory approaches taken by foreign governments may 
differ from those taken by U.S. regulatory agencies to address 
similar issues. In some cases, the differences between the 
regulatory approaches of U.S. agencies and those of their foreign 
counterparts might not be necessary and might impair the ability of 
American businesses to export and compete internationally. In 
meeting shared challenges involving health, safety, labor, security, 
environmental, and other issues, international regulatory 
cooperation can identify approaches that are at least as protective 
as those that are or would be adopted in the absence of such 
cooperation. International regulatory cooperation can also reduce, 
eliminate, or prevent unnecessary differences in regulatory 
requirements.

    The proposed revisions are intended to resolve issues with the fit 
and availability of the jacket and a noise artifact from the spine box. 
Neither change would impose new requirements on vehicle manufacturers. 
NHTSA does not believe the proposal would lead to any reduction in 
harmonization.

Executive Order 13132 (Federalism)

    Executive Order 13132 requires agencies to develop an accountable 
process to ensure ``meaningful and timely input by State and local 
officials in the development of regulatory policies that have 
federalism implications.'' ``Policies that have federalism 
implications'' is defined in the Executive Order to include regulations 
that have ``substantial direct effects on the States, on the 
relationship between the national government and the States, or on the 
distribution of power and responsibilities among the various levels of 
government.''
    NHTSA has analyzed this proposed amendment in accordance with the 
principles and criteria set forth in E.O. 13132. The agency has 
determined that this proposal does not have sufficient federalism 
implications to warrant consultation and the preparation of a 
federalism assessment.

National Environmental Policy Act

    NHTSA has analyzed this proposal for the purposes of the National 
Environmental Policy Act and determined that it will not have any 
significant impact on the quality of the human environment.

Executive Order 12988 (Civil Justice Reform)

    With respect to the review of the promulgation of a new regulation, 
section 3(b) of Executive Order 12988, ``Civil Justice Reform'' (61 FR 
4729, February 7, 1996) requires that Executive agencies make every 
reasonable effort to ensure that the regulation: (1) Clearly specifies 
the preemptive effect; (2) clearly specifies the effect on existing 
Federal law or regulation; (3) provides a clear legal standard for 
affected conduct, while promoting simplification and burden reduction; 
(4) clearly specifies the retroactive effect, if any; (5) adequately 
defines key terms; and (6) addresses other important issues affecting 
clarity and general draftsmanship under any guidelines issued by the 
Attorney General. This document is consistent with that requirement.
    Pursuant to this Order, NHTSA notes as follows. The issue of 
preemption is discussed above in connection with E.O. 13132. NHTSA 
notes further that there is no requirement that individuals submit a 
petition for reconsideration or pursue other administrative proceeding 
before they may file suit in court.

Regulatory Flexibility Act

    Pursuant to the Regulatory Flexibility Act (5 U.S.C. 601 et seq., 
as amended by the Small Business Regulatory Enforcement Fairness Act 
(SBREFA) of 1996), whenever an agency is required to publish a proposed 
or final rule, it must prepare and make available for public comment a 
regulatory flexibility analysis that describes the effect of the rule 
on small entities (i.e., small businesses, small organizations, and 
small governmental jurisdictions), unless the head of the agency 
certifies the rule will not have a significant economic impact on a 
substantial number of small entities. The Small Business 
Administration's regulations at 13 CFR part 121 define a small 
business, in part, as a business entity ``which operates primarily 
within the United States.'' (13 CFR 121.105(a)).
    NHTSA has considered the effects of this rulemaking under the 
Regulatory Flexibility Act. I hereby certify that this rulemaking 
action would not have a significant economic impact on a substantial 
number of small entities. This action would not have a significant 
economic impact on a substantial number of small entities because the 
revisions to the test dummy would not impose any requirements on 
anyone. NHTSA would use the revised ATD in agency testing but would not 
require anyone to manufacture the dummy or to test motor vehicles or 
motor vehicle equipment with it. Further, small vehicle manufacturers 
that choose to test with the 5th percentile adult female dummy would 
not be significantly impacted by this rulemaking. The proposal would 
simply replace the chest jacket and spine box now used with the test 
dummy with more up-to-date equipment. Since chest jackets must 
periodically be replaced on the test dummy because they wear out, this 
amendment would not significantly affect end users of the ATD (they 
will continue to do what they already do). Similarly, the change to the 
new spine box would not significantly affect small vehicle 
manufacturers. It entails a simple one-time replacement where the old 
part would be switched out with the new.

Incorporation by Reference

    Under regulations issued by the Office of the Federal Register (1 
CFR 51.5(a)), an agency, as part of a proposed rule that includes 
material incorporated by reference, must summarize material that

[[Page 70925]]

is proposed to be incorporated by reference and must discuss the ways 
the material proposed to be incorporated by reference is reasonably 
available to interested parties or how the agency worked to make 
materials available to interested parties.
    This proposed rule would incorporate by reference updated versions 
of a parts list, drawings, and a manual into 49 CFR part 572, subpart 
O. This material is published by NHTSA (with permission from SAE 
International). The contents of the documents are summarized in 
Sections II.e and III.b, above, and a draft of the documents that would 
be incorporated by reference has been placed in the docket for this 
rulemaking for interested parties to review.
    This proposed rule would also incorporate updated versions of SAE 
Recommended Practice J211/1 parts 1 and 2 and SAE J1733. Older versions 
of these documents are already incorporated by reference into Subpart 
O. The changes in the updated versions are summarized in Section VI, 
above. The version currently incorporated by reference is available in 
SAE International's online reading room.\27\ The updated version is 
available for review at NHTSA and is available for purchase from SAE 
International.
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    \27\ https://www.sae.org/standards/reading-room.
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National Technology Transfer and Advancement Act

    Under the National Technology Transfer and Advancement Act of 1995 
(NTTAA) (Public Law 104-113), ``all Federal agencies and departments 
shall use technical standards that are developed or adopted by 
voluntary consensus standards bodies, using such technical standards as 
a means to carry out policy objectives or activities determined by the 
agencies and departments.'' Voluntary consensus standards are technical 
standards (e.g., materials specifications, test methods, sampling 
procedures, and business practices) that are developed or adopted by 
voluntary consensus standards bodies, such as SAE. The NTTAA directs 
this Agency to provide Congress, through OMB, explanations when the 
Agency decides not to use available and applicable voluntary consensus 
standards.
    SAE has published information reports on the HIII 5th percentile 
adult female's chest jacket and spine box which today's proposal 
incorporates in full. The foregoing sections of this document discuss 
in detail SAE's work in these areas: SAE J2921 (Chest Jacket) and SAE 
J2915 (Spine Box). To the extent the NPRM has a few specifications 
beyond SAE J2921, we explain our belief that they are necessary to 
ensure a sufficient level of uniformity between jackets produced by 
different manufacturers going forward, and to prevent discrepancies in 
jacket designs from reoccurring in the future.
    In addition, the following voluntary consensus standards have been 
used in developing this NPRM:
     SAE Recommended Practice J211/1_201403 (March 2014), 
``Electronic Instrumentation;''
     SAE Recommended Practice J211/2_201406 (June 2014), 
``Photographic Instrumentation''; and
     SAE J1733_201811 (November 2018), ``Sign Convention for 
Vehicle Crash Testing.''

Paperwork Reduction Act

    Under the Paperwork Reduction Act of 1995 (PRA) (44 U.S.C. 3501, et 
seq.), Federal agencies must obtain approval from the Office of 
Management and Budget (OMB) for each collection of information they 
conduct, sponsor, or require through regulations. This rulemaking would 
not establish any new information collection requirements.

Unfunded Mandates Reform Act

    The Unfunded Mandates Reform Act of 1995 (Pub. L. 104-4) (UMRA) 
requires agencies to prepare a written assessment of the costs, 
benefits, and other effects of proposed or final rules that include a 
Federal mandate likely to result in the expenditures by States, local 
or tribal governments, in the aggregate, or by the private sector, of 
more than $100 million annually (adjusted annually for inflation with 
base year of 1995). Adjusting this amount by the implicit gross 
domestic product price deflator for 2013 results in $142 million 
(109.929/75.324 = 1.42). The assessment may be included in conjunction 
with other assessments, as it is here.
    This proposed rule would not impose any unfunded mandates under the 
UMRA. This proposed rule does not meet the definition of a Federal 
mandate because it does not impose requirements on anyone. It amends 49 
CFR part 572 by adding specifications for a new test jacket and spine 
box for the 5th percentile adult female dummy that NHTSA uses in agency 
compliance tests. This NPRM would affect only those businesses that 
choose to manufacture or test with the dummy. This proposed rule is not 
likely to result in expenditures by State, local or tribal governments 
of more than $100 million annually.

Plain Language

    Executive Order 12866 and E.O. 13563 require each agency to write 
all rules in plain language. Application of the principles of plain 
language includes consideration of the following questions:
     Have we organized the material to suit the public's needs?
     Are the requirements in the rule clearly stated?
     Does the rule contain technical language or jargon that 
isn't clear?
     Would a different format (grouping and order of sections, 
use of headings, paragraphing) make the rule easier to understand?
     Would more (but shorter) sections be better?
     Could we improve clarity by adding tables, lists, or 
diagrams?
     What else could we do to make the rule easier to 
understand?
    If you have any responses to these questions, please include them 
in your comments on this proposal.

Regulation Identifier Number (RIN)

    The Department of Transportation assigns a regulation identifier 
number (RIN) to each regulatory action listed in the Unified Agenda of 
Federal Regulations. The Regulatory Information Service Center 
publishes the Unified Agenda in April and October of each year. You may 
use the RIN contained in the heading at the beginning of this document 
to find this action in the Unified Agenda.

Privacy Act

    Anyone is able to search the electronic form of all comments 
received into any of our dockets by the name of the individual 
submitting the comment (or signing the comment, if submitted on behalf 
of an association, business, labor union, etc.). You may review DOT's 
complete Privacy Act Statement in the Federal Register published on 
April 11, 2000 (65 FR 19477-78).

VIII. Public Participation

How do I prepare and submit comments?

     To ensure that your comments are correctly filed in the 
Docket, please include the Docket Number found in the heading of this 
document in your comments.
     Your comments must not be more than 15 pages long.\28\ 
NHTSA established this limit to encourage you to write your primary 
comments in a concise fashion. However, you may

[[Page 70926]]

attach necessary additional documents to your comments, and there is no 
limit on the length of the attachments.
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    \28\ 49 CFR 553.21.
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     If you are submitting comments electronically as a PDF 
(Adobe) file, NHTSA asks that the documents be submitted using the 
Optical Character Recognition (OCR) process, thus allowing NHTSA to 
search and copy certain portions of your submissions.
     Please note that pursuant to the Data Quality Act, in 
order for substantive data to be relied on and used by NHTSA, it must 
meet the information quality standards set forth in the OMB and DOT 
Data Quality Act guidelines. Accordingly, NHTSA encourages you to 
consult the guidelines in preparing your comments. DOT's guidelines may 
be accessed at https://www.transportation.gov/regulations/dot-information-dissemination-quality-guidelines.

Tips for Preparing Your Comments

    When submitting comments, please remember to:
     Identify the rulemaking by docket number and other 
identifying information (subject heading, Federal Register date and 
page number).
     Explain why you agree or disagree, suggest alternatives, 
and substitute language for your requested changes.
     Describe any assumptions you make and provide any 
technical information and/or data that you used.
     If you estimate potential costs or burdens, explain how 
you arrived at your estimate in sufficient detail to allow for it to be 
reproduced.
     Provide specific examples to illustrate your concerns, and 
suggest alternatives.
     Explain your views as clearly as possible, avoiding the 
use of profanity or personal threats.
     To ensure that your comments are considered by the agency, 
make sure to submit them by the comment period deadline identified in 
the DATES section above.
    For additional guidance on submitting effective comments, visit: 
https://www.regulations.gov/docs/Tips_For_Submitting_Effective_Comments.pdf.

How can I be sure that my comments were received?

    If you wish Docket Management to notify you upon its receipt of 
your comments, enclose a self-addressed, stamped postcard in the 
envelope containing your comments. Upon receiving your comments, Docket 
Management will return the postcard by mail.

How do I submit confidential business information?

    If you wish to submit any information under a claim of 
confidentiality, you should submit three copies of your complete 
submission, including the information you claim to be confidential 
business information, to the Chief Counsel, NHTSA, at the address given 
above under FOR FURTHER INFORMATION CONTACT. In addition, you should 
submit a copy, from which you have deleted the claimed confidential 
business information, to the docket at the address given above under 
ADDRESSES. When you send a comment containing information claimed to be 
confidential business information, you should include a cover letter 
setting forth the information specified in our confidential business 
information regulation. (49 CFR part 512)

Will the agency consider late comments?

    We will consider all comments received before the close of business 
on the comment closing date indicated above under DATES. To the extent 
possible, we will also consider comments that the docket receives after 
that date. If the docket receives a comment too late for us to consider 
in developing a final rule (assuming that one is issued), we will 
consider that comment as an informal suggestion for future rulemaking 
action.

How can I read the comments submitted by other people?

    You may read the comments received by the docket at the address 
given above under ADDRESSES. The hours of the docket are indicated 
above in the same location. You may also see the comments on the 
internet. To read the comments on the internet, go to http://www.regulations.gov. Follow the online instructions for accessing the 
dockets.
    Please note that even after the comment closing date, we will 
continue to file relevant information in the docket as it becomes 
available. Further, some people may submit late comments. Accordingly, 
we recommend that you periodically check the Docket for new material. 
You can arrange with the docket to be notified when others file 
comments in the docket. See www.regulations.gov for more information.

List of Subjects in 49 CFR Part 572

    Motor vehicle safety, Incorporation by reference.

    In consideration of the foregoing, NHTSA proposes to amend 49 CFR 
part 572 as follows:

PART 572--ANTHROPOMORPHIC TEST DEVICES

0
1. The authority citation for Part 572 continues to read as follows:

    Authority:  49 U.S.C. 322, 30111, 30115, 30117 and 30166; 
delegation of authority at 49 CFR 1.95.

0
2. Revise the heading of Subpart O to read as follows:

Subpart O--Hybrid III 5th Percentile Adult Female Test Dummy

0
3. Revise Sec.  572.130 to read as follows:


Sec.  572.130  Incorporation by reference.

    (a) Certain material is incorporated by reference (IBR) into this 
part with the approval of the Director of the Federal Register under 5 
U.S.C. 552(a) and 1 CFR part 51. To enforce any edition other than that 
specified in this section, NHTSA must publish a document in the Federal 
Register and the material must be available to the public. All approved 
material is available for inspection at the Department of 
Transportation, Docket Operations, Room W12-140, 1200 New Jersey Avenue 
SE, Washington DC 20590, telephone 202-366-9826, and is available from 
the sources listed in the following paragraphs. It is also available 
for inspection at the National Archives and Records Administration 
(NARA). For information on the availability of this material at NARA, 
email fedreg.legal@nara.gov or go to http://www.archives.gov/federal-register/cfr/ibr-locations.html.
    (b) NHTSA Technical Information Services, 1200 New Jersey Ave. SE, 
Washington, DC 20590, telephone 202-366-5965.
    (1) A parts/drawing list entitled: ``Hybrid III 5th Percentile 
Adult Female Crash Test Dummy Parts List, ([date to be determined]),'' 
IBR approved for Sec.  572.131.
    (2) A drawings and specification package entitled ``Parts List and 
Drawings, Part 572 Subpart O Hybrid III Fifth Percentile Adult Female 
Crash Test Dummy (HIII-5F) Revision K ([date to be determined]),'' IBR 
approved for Sec.  572.131, and consisting of:
    (i) Drawing No. 880105-100X, Head Assembly, IBR approved for 
Sec. Sec.  572.131, 572.132, 572.133, 572.134, 572.135, and 572.137;
    (ii) Drawing No. 880105-250, Neck Assembly, IBR approved for 
Sec. Sec.  572.131, 572.133, 572.134, 572.135, and 572.137;
    (iii) Drawing No. 880105-300, Upper Torso Assembly, IBR approved 
for Sec. Sec.  572.131, 572.134, 572.135, and 572.137;
    (iv) Drawing No. 880105-450, Lower Torso Assembly, IBR approved for

[[Page 70927]]

Sec. Sec.  572.131, 572.134, 572.135, and 572.137;
    (v) Drawing No. 880105-560-1, Complete Leg Assembly--left, IBR 
approved for Sec. Sec.  572.131, 572.135, 572.136, and 572.137;
    (vi) Drawing No. 880105-560-2, Complete Leg Assembly--right, IBR 
approved for Sec. Sec.  572.131, 572.135, 572.136, and 572.137;
    (vii) Drawing No. 880105-728-1, Complete Arm Assembly--left, IBR 
approved for Sec. Sec.  572.131, 572.134, and 572.135 as part of the 
complete dummy assembly;
    (viii) Drawing No. 880105-728-2, Complete Arm Assembly--right, IBR 
approved for Sec. Sec.  572.131, 572.134, and 572.135 as part of the 
complete dummy assembly.
    (3) A procedures manual entitled ``Procedures for Assembly, 
Disassembly, and Inspection (PADI) Subpart O Hybrid III Fifth 
Percentile Adult Female Crash Test Dummy (HIII-5F) Revision K ([date to 
be determined]),'' IBR approved for Sec.  572.132.
    (c) SAE International, 400 Commonwealth Drive, Warrendale, PA 
15096, call 1-877-606-7323.
    (1) SAE Recommended Practice J211/1_201403, ``Instrumentation for 
Impact Test--Part 1, Electronic Instrumentation,'' (March 2014), IBR 
approved for Sec.  572.137;
    (2) SAE Recommended Practice J211/2_201406, ``Instrumentation for 
Impact Tests--Part 2, Photographic Instrumentation,'' (June 2014), IBR 
approved for Sec.  572.137; and
    (3) SAE J1733_201811, ``Sign Convention for Vehicle Crash 
Testing,'' (November 2018), IBR approved for Sec.  572.137.
0
4. Amend Sec.  572.131 by revising paragraph (a)(2) introductory text 
to read as follows:


Sec.  572.131  General description.

    (a) * * *
    (2) Parts List and Drawings, Part 572 Subpart O Hybrid III Fifth 
Percentile Adult Female Crash Test Dummy (HIII 5F), Revision K ([date 
to be determined]) (all incorporated by reference, see Sec.  572.130).
* * * * *
0
5. Amend Sec.  572.137 by revsing paragraph (m) introductory text, and 
paragraph (n) to read as follows:


Sec.  572.137  Test conditions and instrumentation.

* * * * *
    (m) The outputs of acceleration and force-sensing devices installed 
in the dummy and in the test apparatus specified by this part shall be 
recorded in individual data channels that conform to SAE Recommended 
Practice J211/1_201403, ``Instrumentation for Impact Test--Part 1, 
Electronic Instrumentation,'' and SAE Recommended Practice J211/
2_201406, ``Instrumentation for Impact Tests--Part 2, Photographic 
Instrumentation'' (incorporated by reference, see Sec.  572.130), 
except as noted, with channel classes as follows:
* * * * *
    (n) Coordinate signs for instrumentation polarity shall conform to 
SAE J1733_201811, ``Sign Convention for Vehicle Crash Testing,'' 
(incorporated by reference, see Sec.  572.130).
* * * * *

    Issued in Washington, DC, under authority delegated in 49 CFR 
1.95 and 501.4.

James Clayton Owens,
Acting Administrator.
[FR Doc. 2019-27210 Filed 12-23-19; 8:45 am]
BILLING CODE 4910-59-P


