Session No. 642 Golf Carts Utility Carts They Are Not Just for Golf Anymore Paul E. Allen, CIH, CSP, ARM, AOEE Risk Specialist Chubb & Son, a division of Federal Insurance Company Philadelphia, Pennsylvania Introduction Golf carts are being used for applications beyond the golf course. They are being used as transportation vehicles in communities, campuses, large warehouses, parks, and airports. The carts are also used for utility purposes such as moving materials and equipment. In addition, devices such as Segways, scooters, 4-wheelers, and all-terrain vehicles (ATV) are also being used for a variety of workplace applications. Many of the users of these vehicles have not had any formal training in their use and vehicles such as golf carts will perform very differently compared to an automobile. The Consumer Product Safety Commission (CPSC) estimates a five-year average (2009-2013) of nearly 15,000 golf cart related injuries per year that required an emergency room visit. From 2004-2014, OSHA s website shows 32 fatal injuries that occurred involving golf carts. Most golf carts are not equipped with basic safety features such as seat belts and serious injuries can occur from a rollover or ejection type incident. In addition to the safety features, the use of carts and small utility vehicles for transportation has created challenges for regulating and licensing carts and their operators. The requirements vary from state to state and in some cases from community to community. There are a wide variety of state level regulations ranging from 3 states that have no laws addressing these vehicles to 2 states that allow Low Speed Vehicles (LSVs) on roads with speed limits up to 45 mph. With the evolving use of these vehicles, it is important to understand the risks and requirements of operating them safely. A good understanding of the hazards, the regulations, and the basic controls can help form a foundation of the golf cart utility cart risk management program. All of these efforts can help protect the operator, passengers, pedestrians, and the facilities where these vehicles are used.
Regulations Effecting Utility Carts Golf Carts/Low Speed Vehicles Standard golf carts typically do not reach speeds over 20 mph and are only required to follow state and local safety regulations. As more and more of these vehicles were being used for local transportation, the National Highway Traffic Safety Administration (NHTSA) became concerned. As carts were modified or new ones were developed for speeds over 20 mph, it was noted that the carts would be required to follow the safety requirements of a motor vehicle (airbags, crumple zones, seat belts, headlights, etc.). To solve this challenge, the National Highway Traffic Safety Administration established basic safety standards for Low Speed Vehicles (LSVs). These vehicles have maximum speeds between 20 and 25 mph and are required to have basic safety features such as headlights, seatbelts, and windshields, but they do not have to have the more advanced features such as airbags and crumple zones. These changes have led to additional applications for these vehicles. The NHTSA provided definitions for the vehicles discussed in their rule when they established the new LSV standards. Sub-25 mph vehicle - any 4-wheeled vehicle whose top speed is not greater than 25 miles per hour. This would include all of the categories below except for those where the speed has been modified to be over 25 mph. Golf Car a fleet or personal golf cart as defined below. Fleet Golf Car golf car used to carry one or more people and golf equipment to play golf. These are sold to golf courses. Personal Golf Car same as above but sold to individuals who may also use them to travel on public roads to and from golf courses or to travel on public roads for purposes unrelated to golf. Speed-Modified Golf Car a conventional golf car that has been modified after its original manufacture to increase speed. Some have top speeds between 20 and 25 mph, but others may have higher top speeds. With higher top speeds they would be required to have additional safety equipment for on road use. Neighborhood Electric Vehicle 4 wheeled electric vehicle whose top speed is not greater than 35 mph. Some look more like a car than a golf car. Low-Speed Vehicle (LSV) any 4 wheeled motor vehicle whose top speed is greater than 20 mph but not greater than 25 mph. This can include both the neighborhood electric vehicle and the speed modified golf cars if their top speed is greater than 20 but not greater than 25 mph. Although the LSVs have additional safety features not found on typical golf and utility carts, they still lack occupant protection typically found in an automobile. The Insurance Institute for Highway Safety (IIHS) has done crash tests with LSVs and found that they are no match for even the smallest automobiles.
During these tests, the test dummies recorded injuries that would have been debilitating or fatal. The LSVs are designed for travel in a neighborhood or off road for hauling materials, but they are not designed to protect passengers involved in a crash. In addition to the vehicle design regulations, there are many different approaches to regulating the drivers of golf carts and LSVs. As of February of 2015, there are only 3 states with no regulations for low speed vehicles. (CT, MS, MT). In the remaining 47 sate, the regulations vary. There are 34 that have regulations allowing these vehicles on highways with speed limits 35 mph or less. There are 2 that allow LSVs on roads with speed limits up to 45 mph. There is a lot of variation from state to state so local states regulations should be reviewed. The required minimum age of the driver can vary also, but most states require a minimum of 16 years old and many will require a driver s license. This can also vary if the vehicle is being operated in a private community. It is possible that the community might allow younger drivers to operate a vehicle. In some cases they might be required to attend a class in order to be qualified or travel with an adult. One example of a formal cart registration and permit process would be South Carolina. The golf cart operator must be 16 years old and have a valid license in their possession while operating the golf cart. The vehicle can only be driven within 4 miles of the residence where the golf cart is registered and can only operate on highways with speed limits up to 35 mph. In some States, the cities and towns can regulate the carts. One example allows unlicensed drivers from the age of 12-15 to drive the carts as long as they are accompanied by a parent, grandparent, or legal guardian. In this policy insurance is encouraged, but they do not require it as part of the registration. The regulations for design, registration, and licensing vary greatly across jurisdictions. The IIHS provides a good resource to review the basic regulations from state to state. The department of transportation for your state will be another resource for your local regulations related to golf carts and LSVs. All-Terrain Vehicles (ATVs) All-Terrain Vehicles (ATVs) are also regulated by most states. 44 states have some form of ATV regulations and there are a variety of rules regarding age of riders, helmet laws and registration requirements. Like so many of these vehicles, it will be important to check your local regulations to confirm what guidelines must be followed. Segways The Segway is another unique utility vehicle that has become more popular in recent years. These are two-wheeled vehicles that are designed for a maximum speed of 12.5 mph. They are regulated by the U.S. Consumer Product Safety Commission as consumer product so they are not regulated by the NHTSA. Legislation governing Segway use is handled primarily at the state level, often under the broader category of "electric personal assistive mobility devices." 45 states and the District of Columbia have enacted rules to allow the use of a Segway on the sidewalks, paths, and certain
roads. Many of these states also set the minimum age of riders. AR, KY, MA, ND and WY have not enacted any Segway legislation. Several states apply pedestrian laws to Segway use. Some local municipalities have enacted their own regulations permitting or restricting Segways in their communities. Similar to the golf carts, private communities can implement regulations to control the use of the Segways so it is important to investigate your local regulations. Golf Cart Incidents and Injuries Golf Carts/Utility Carts The use of utility carts and golf carts has continued to increase in our communities and our workplaces. We have seen them being used in places such as residential communities, on golf courses, at large event parking lots, and even on the field following the Super Bowl. With all of these new uses, additional hazards are created and incidents have occurred. One challenge is there is no category in the federal crash databases to track accidents involving these low speed vehicles. The Insurance Institute for Highway Safety (IIHS) shares an example where a driver of a GEM (a small LSV) travelling at 10 mph turned left in front of a Dodge Pickup truck. The driver of the GEM was ejected and thrown about 20 feet from the vehicle. It was reported she suffered a concussion. The IIHS goes on to site 2 more similar incidents where the driver was ejected from the vehicle. The golf carts can also have collisions with cars. This can be on the highway or even in parking lots. Drivers of the carts need to be aware of their surroundings and alert for approaching vehicles. Sometimes the carts are hard for the automobile drivers to see and this can lead to a collision. Much like the stories from the IIHS about the LSVs, if a collision occurs with a car an ejection often results. Ejection is a common issue for many of these utility vehicles. The lack of seat belts and other safety features helps create this trend. There are driving techniques and tips for the passengers to help reduce the risk of ejections and they will be reviewed in the next section. Driving these types of vehicles on a hill can also lead to roll over incidents. Without seat belts in place, this also can lead to an ejection situation and having the passengers pinned under the cart. Things such as drive up the side of a hill rather than straight up the hill can lead to this type of event. If a utility cart is loaded with too much material or an unbalanced load, a tip over event can also occur. All-Terrain Vehicles (ATVs) The ATV users who have collisions are often thrown from their vehicle. This too can lead to concussions or other more serious head trauma. The more common environment is the off road application in various terrains. The Consumer Product Safety Commission s National Electronic
Injury Surveillance System (NEISS) notes a 5-year average (2009-2013) of nearly 100,000, estimated emergency room treatments for injuries related to 4-wheeled ATV off road vehicles. Segways There have also been some reports of injuries related to Segway use. One famous Segway fall involved President Bush in 2003 was at his parent s house in Maine. He was not injured in the fall. The number of detailed studies on Segway injuries appears to be limited. There was one study noted in 2010 from Annals of Emergency Medicine where a small sample size was used to report some trending of Segway related injuries that was tracking higher than inpatient admissions for pedestrians hit by a car. In the injury cases noted above, a helmet was worn in 17% of the cases. The Segway website cites several studies and one where 143 Segway users operated their vehicles over 9,000 Kilometers on a variety of terrains and experienced no injuries. A second study notes that the Segway s would work well around joggers and pedestrians. With limited injury data for these units, it is hard to note any significant trends regarding their risks. One item that is clear from the limited studies and from the manufacturer s website is that a helmet should be required as a basic level of protection for all Segway operators. Suggested Risk Management Techniques For each of the various types of utility carts and vehicles, there are some basic safe practices that can be followed. They are outlined below: Golf Carts/Utility Carts It was noted that the ejection is a common occurrence in the event of a golf cart accident. In a random sample of 30 cases from the NEISS emergency room database, 67% of those 30 cases involved a rollover or someone falling out of a cart. To avoid this type of incident, there are a few basic steps that can be taken. Follow proper speeds. Avoid going to fast around curves. Use Caution and avoid letting speed increase while going down hills. Passenger should make use of handholds at the seat and above the head. If equipped use seat belts. Additional procedures for a golf cart utility cart safety/risk management program would be similar to a driver safety program for other vehicles in your fleet. Some of the items would include: Require a driver s license for all operators. Wear seat belts - when equipped. Employee operators only no vendors. Implement a training program for all operators.
Follow manufacturer guidelines. Road Test operators before they are allowed to drive. Teach defensive backing. Use parking brake whenever unattended. Turn Off/remove key when unattended. Maintain a safe following distance. Make a complete stop at stop signs. Hills drive straight up not on side of slope Only passengers where designed, no standing, no standing on back of carts. Speed regulators set speed limits. Monitor drivers, coaching as needed. Balance the load on utility carts. Daily vehicle inspections. Review the common known risks of the property/area of operation curves, blind intersections, etc. Avoid distractions food, phone, etc. Follow manufacturer s preventive maintenance schedules. Report repairs needed as part of daily inspections. 4 Wheelers/ATVs These vehicles may have more recreational uses, but also have seen some entrance into commercial applications. Some basic safety requirements are recommended by ATVsafety.gov and the Consumer Product Safety (CPSC) Require a license for your operators. Wear a helmet. Get training on safe operation. Follow manufacturer guidelines. Road test your operators before they are allowed to operate a unit. Do not drive under the influence. Follow safe speeds. No passengers unless designed for one. Not designed for paved road hard to control on pavement. No Children on Adult ATVs. Segways If you are going to make use of Segway, some basic guidelines are recommended by the manufacturer. The manufacturer also has very good training tool and guidelines on their website: Implement a training program for all users/in house license. Wear a helmet. Know warning alerts on the device and their meaning. Avoid turning while backing. Practice and have a spotter for initial work. Avoid slippery surfaces, steep slopes and obstacles while learning. No stairs.
Conclusion The use of golf and utility carts for applications beyond the golf course will most likely continue to expand. As the golf communities have allowed their use on local streets, the use of these carts has increased. The designs have changed and many of the LSV designs today have more safety features than the traditional golf carts. There are still risks involved with operating this equipment and safety and risk management procedures will continue to be important. Although not as widespread, the use of Segways and other ATVs has been increasing. These vehicles also have some important features, but also present some risks to the users. The use of the safety equipment while riding and following the safe driving techniques will be critical. All of these alternative transportation vehicles are presenting new hazards that may require additional components for risk management programs. These programs will need to be monitored and modified as the safety technology and transportation regulations evolve. Bibliography National Highway Traffic Safety Administration. 49 CFR Part 571 (docket No. NHTSA 98-3949 - RIN 217-AG58), Federal Motor Vehicle Safety Standards. Low-speed vehicles aren t crashworthy, new tests show. Insurance Institute for Highway Safety. May 20, 2010, Status Report, Vol. 45, No. 5. Low-speed vehicles and minitrucks shouldn't share busy public roads with regular traffic. Insurance Institute for Highway Safety. IIHS Article May 20, 2010. Faster, heavier golf carts get thumbs down from federal regulators. Insurance Institute for Highway Safety. Status Report, Vol 43, No. 9, October 22, 2008. Insurance Institute for Highway Safety. February 2015. Low and Medium Speed Vehicles. (retrieved February 6, 2015) (http://www.iihs.org/iihs/topics/t/low--and-medium-speedvehicles/topicoverview). Aleccia, J. Segway scooters can lead to serious injuries, experts warn., NBC News. September 10, 2010. Segway Corporation. Segway safety information and safety studies. (retrieved February 6, 2015) (http://www.segway.com/support/safety-studies.php). Litman, T. & Blair, R. Managing Personal Mobility Devices (PMDs) On Nonmotorized Facilities. Victoria Transport Policy Institute. October 19, 2010. Pilot Project for Evaluating Motorized Personal Transportation Devices, Segways and Electric Scooters. Centre for Electric Vehicle Experimentation in Quebec (CEVEQ), May 2004.
Governors Highway Safety Associations, February 2015. Segway Laws. (retrieved February 6, 2015) (http://www.ghsa.org/html/stateinfo/laws/segway_laws.html). Consumer Products Safety Commission. February 2015. National Electronic Injury Surveillance System (NEISS) On-Line. (retrieved February 9, 2015) (https://www.cpsc.gov/cgibin/neissquery/home.aspx). ATV Safety.Gov. February 2015. ATV Safety Tips. (retrieved February 6, 2015) (http://www.atvsafety.gov/safetytips.html). ATV Safety.Gov. February 2015. ATV Legislation. (retrieved February 6, 2015) (http://www.atvsafety.gov/legislation/legislation.html). ATV Safety.Gov. February 2015. ATV National Data. (retrieved February 6, 2015) (http://www.atvsafety.gov/stats.html) National Golf Cart Association. February 2015. Safety Info. (retrieved February 6, 2015) (http://www.nationalgolfcartassociation.com/safety.html). Occupational Safety and Health Administration. February 2015. Fatality and Catastrophe Investigation Summaries. (retrieved February 9, 2015) (https://www.osha.gov/pls/imis/accidentsearch.html).