Proposed Rule2026-03199
Accessibility Standards for Universal Changing Stations
Primary source
Metadata and text below are from the Federal Register, a public-domain U.S. government work. Always verify the official published version before relying on it for any legal matter.
Published
February 18, 2026
Issuing agencies
Architectural and Transportation Barriers Compliance Board
Abstract
The Architectural and Transportation Barriers Compliance Board (Access Board) is issuing this Advance Notice of Proposed Rulemaking (ANPRM) to begin the process of establishing accessible design standards for universal changing tables and standards on the privacy, accessibility, and sanitation equipment of the room in which a universal changing table is located, pursuant to the FAA Reauthorization Act of 2024. The Access Board seeks public comment on its proposed approach to accessibility standards for these facilities to inform a future rulemaking establishing such standards.
Full Text
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<title>Federal Register, Volume 91 Issue 32 (Wednesday, February 18, 2026)</title>
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[Federal Register Volume 91, Number 32 (Wednesday, February 18, 2026)]
[Proposed Rules]
[Pages 7412-7415]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-03199]
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ARCHITECTURAL AND TRANSPORTATION BARRIERS COMPLIANCE BOARD
36 CFR Part 1196
[Docket No. ATBCB-2026-0001]
RIN 3014-AA50
Accessibility Standards for Universal Changing Stations
AGENCY: Architectural and Transportation Barriers Compliance Board.
ACTION: Advance notice of proposed rulemaking.
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SUMMARY: The Architectural and Transportation Barriers Compliance Board
(Access Board) is issuing this Advance Notice of Proposed Rulemaking
(ANPRM) to begin the process of establishing accessible design
standards for universal changing tables and standards on the privacy,
accessibility, and sanitation equipment of the room in which a
universal changing table is located, pursuant to the FAA
Reauthorization Act of 2024. The Access Board seeks public comment on
its proposed approach to accessibility standards for these facilities
to inform a future rulemaking establishing such standards.
DATES: Submit comments by April 20, 2026.
ADDRESSES: You may submit comments, identified by docket number (ATBCB-
2026-0001), by any of the following methods:
<bullet> Federal eRulemaking Portal: <a href="https://regulations.gov">https://regulations.gov</a>.
Follow the instructions for submitting comments.
<bullet> Email: <a href="/cdn-cgi/l/email-protection#284c474b434d5c68494b4b4d5b5b05144908405a4d4e15" http: board.gov">board.gov</a>">docket@access-<a href="http://board.gov">board.gov</a></a>. Include docket number
ATBCB-2026-0001 in the subject line of the message.
<bullet> Mail: Office of Technical and Information Services, U.S.
Access Board, 1331 F Street NW, Suite 1000, Washington, DC 20004-1111.
Instructions: All submissions must include the docket number
(ATBCB-2026-0001) for this regulatory action. All comments received
will be posted without change to <a href="http://www.regulations.gov">www.regulations.gov</a>,
[[Page 7413]]
including any personal information provided.
Docket: For access to the docket, to read background documents or
public comments received, go to: <a href="https://www.regulations.gov/docket/ATBCB-2026-00">https://www.regulations.gov/docket/ATBCB-2026-00</a>01.
FOR FURTHER INFORMATION CONTACT: Technical information: Josh Schorr,
(202) 272-0029, <a href="/cdn-cgi/l/email-protection#c3b0a0abacb1b183a2a0a0a6b0b0eeffa2e3abb1a6a5fe" http: board.gov">board.gov</a>">schorr@access-<a href="http://board.gov">board.gov</a></a>. Legal information: Wendy
Marshall, (202) 272-0043, <a href="/cdn-cgi/l/email-protection#6904081b1a0108050529080a0a0c1a1a44550849011b0c0f54" http: board.gov">board.gov</a>">marshall@access-<a href="http://board.gov">board.gov</a></a>.
SUPPLEMENTARY INFORMATION:
I. Legal Authority
The FAA Reauthorization Act of 2024 (``FAA Reauthorization Act'' or
``Act'') directs the United States Access Board (``Access Board'' or
``Board'') to establish comprehensive accessible design standards for
universal changing tables and standards on the privacy, accessibility,
and sanitation equipment of the room in which such tables are located,
required to be installed, or maintained. See 49 U.S.C. 47107(y). As
stated in the Act, these standards are to be used by sponsors of medium
and large hub airports that are seeking airport development project
grants. Id. Beginning in fiscal year 2030, medium and large hub airport
applicants for these grants must provide written assurance that they
will install or maintain at least 1 private single room with a
universal changing station in each passenger terminal building of the
airport.\1\ Id. The Access Board thus issues this ANPRM to solicit
information to aid in the development of these statutorily required
standards.
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\1\ As this scoping for universal changing tables is specified
in the statute, the Access Board does not intend to issue scoping in
its regulation. The rulemaking contemplated in this ANPRM would be
limited to providing technical accessibility standards for the
universal changing tables required by the FAA Reauthorization Act of
2024 and would not seek to require universal changing tables in
other places or circumstances.
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II. Explanation of Universal Changing Tables
A universal changing table (also known as an ``adult changing
table'') is a table on which an individual with a disability receives
assistance from a caregiver with toileting. Such assistance may include
activities such as changing incontinence garments or other dressings,
colostomy bags, or catheters or assistance with other personal care or
medical needs. Universal changing tables are used by individuals with a
range of disabilities and medical conditions. These individuals may be
wheelchair users, older adults, or children, teens, or adults with
developmental disabilities, among others. Universal changing tables are
larger and sturdier than baby changing stations and are designed to
promote dignity and privacy for individuals who need assistance with
personal care. They also provide a safer and easier way for caregivers
to provide assistance with toileting and dressing. In the absence of a
universal changing table, individuals with disabilities will often have
to lie on the floor of a bathroom to receive assistance. Beyond the
dignity and hygiene issues lying on a floor presents, it can also prove
difficult and dangerous for caregivers to help individuals transfer
between their wheelchairs and the floor. This scenario risks injury to
both individuals with disabilities and caregivers.
III. Relevant Existing Accessibility Standards
A. Federal Accessibility Standards
The Access Board issues and maintains accessibility guidelines for
the built environment under the Americans with Disabilities Act and the
Architectural Barriers Act (ADA and ABA Accessibility Guidelines),
which provide the technical basis for enforceable standards issued
under the ADA by the Department of Justice and the Department of
Transportation, and under the ABA by four standard-setting agencies.\2\
See 36 CFR part 1191. These guidelines, which were last revised in
2004, do not contain specific requirements for adult changing tables;
however, they do specify accessibility requirements for toilet rooms,
toilet compartments, lavatories, sinks, and work surfaces. 36 CFR part
1191, Appendix A, 603, 604, 606, and 902. These existing provisions
would be applicable to elements of an airport toilet room that includes
a universal changing table to the extent that Title II of the ADA
(state and local government facilities) and the ABA (applicable to some
nonfederal facilities constructed with certain federal funds) apply to
the facility.
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\2\ Under the ABA, the Department of Defense and the U.S. Postal
Service issue accessibility standards for their own facilities and
the Department of Housing and Urban Development issues accessibility
standards for residential structures subject to the ABA. 42 U.S.C.
4153-4154a. All other facilities subject to the ABA, including any
airports that may be subject to the ABA as a result of certain
federal construction funds, must comply with accessibility standards
set by the General Services Administration. 42 U.S.C. 4152.
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B. Industry Standards
An existing industry standard addresses universal changing tables:
section 613 of the International Code Council (ICC) A117.1-2017 with
Supplement 1. The Access Board participated in the development of this
American National Standards Institute (ANSI) approved American National
Standard (ANS), which was incorporated into the International Building
Code in 2024.\3\ A117.1-2017 with Supplement 1: Standard for Accessible
and Useable Buildings and Facilities (ICC 2024). This standard is
publicly available on the ICC website: <a href="https://codes.iccsafe.org/content/ICCA117.12017P7/icc-a117-1-2017-with-supplement-1-standard-for-accessible-and-usable-buildings-and-facilities">https://codes.iccsafe.org/content/ICCA117.12017P7/icc-a117-1-2017-with-supplement-1-standard-for-accessible-and-usable-buildings-and-facilities</a>. The Access Board
encourages the public to review this standard.
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\3\ ANSI is a private, non-profit organization that administers
and coordinates the U.S. voluntary standards and conformity
assessment system. ANSI is the official U.S. representative to the
International Organization for Standardization.
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The working group that developed the universal changing table
requirements for this industry standard was comprised of 11 committee
members and 12 volunteers, including a representative from the Access
Board. The working group, which included balanced interest groups of
manufacturers and disability advocates, met every two weeks for
approximately nine months to develop these specifications. In
developing the standards, the working group reviewed state laws that
were then in process in 12 U.S. states and 1 Canadian province, as well
as information on existing available tables from various manufacturers.
The group also considered recommendations from the care industries and
caregivers on how they needed to operate around the tables. These
specifications went through the hearing, public comment, and review
process prior to ANSI approval.
Section 613 of ICC A117.1-2017 with Supplement 1 provides specific
technical criteria for adult changing tables and the rooms in which
they are located. Section 613.4 states criteria for the changing
surface itself, including size, weight capacity, height adjustability,
maneuvering clearances, and side rails. Sections 613.2 and 613.3
address the room configuration and other required elements in the room
where the changing table is located.
III. Proposed Approach to the NPRM and Questions for Public Comment
The FAA Reauthorization Act of 2024 requires the Access Board to
issue accessible design standards for universal changing tables, as
well as standards on the privacy, accessibility, and sanitation
equipment of the room in
[[Page 7414]]
which they are located. 49 U.S.C. 47107(y). Below, the Access Board
summarizes possible approaches to the structure of each set of
standards and requests public comment on these approaches.
A. Standards for Universal Changing Tables
The Access Board is considering an approach to the universal
changing table standard that would incorporate by reference section
613.4 of ICC A117.1-2017 with Supplement 1, which is the portion of the
existing industry standard that provides technical criteria for the
surface of an adult changing table. As noted above, the Access Board
participated in the development of this industry standard. The Access
Board could incorporate the industry standard into its regulation with
or without modifications.
Alternatively, the Access Board could develop its own standard,
drawing from the current ADA and ABA Accessibility Guidelines, 36 CFR
part 1191, as well as its Accessibility Standards for Medical
Diagnostic Equipment (MDE Standards), 36 CFR part 1195, to establish
criteria for the size, capacity, height adjustability, maneuvering
clearances, and side rails. While these existing guidelines and
standards do not directly address universal changing tables, the
criteria for maneuvering clearances, size, capacity, side rails, and
height adjustability could be derived from them.
Use of the MDE Standards would result in different technical
requirements than those specified in section 613.4 of ICC A117.1-2017.
For example, the MDE Standards require a transfer surface that is
height-adjustable from 17 inches to 25 inches with at least 4
additional transfer positions located between the low and high transfer
positions, separated by 1 inch. 36 CFR 1195, Appendix, M301. Section
613.4.3 of ICC A117.1-2017 requires that the changing surface be
adjustable ``at various heights'' from 17 inches to 38 inches but does
not specify requirements for incremental heights. Standards for
universal changing tables derived from ADA and ABA Accessibility
Guidelines and MDE standards would take into consideration unique
characteristics of a changing table and thus may differ from existing
requirements for other types of elements and equipment.
Question 1: Is the better approach to incorporate the industry
standard, section 613.4 of ICC A117.1-2017 with Supplement 1, by
reference or to develop an original standard derived from existing
federal accessibility standards? Please explain.
Question 2: Were the Access Board to incorporate by reference
section 613.4 of ICC A117.1-2017 with Supplement 1, are there any
provisions that should be modified or added?
Question 3: As described above, existing federal and industry
standards diverge with respect to the height range and intermittent
heights of the table surface. The Board is seeking to accommodate the
widest range of individuals with disabilities who need to transfer onto
and from universal changing tables, as well as caregivers of different
heights who must accomplish the tasks without additional assistance.
The Board is thus considering requiring the height of this surface to
be continuously adjustable within a specified range, which is different
than the existing federal and industry standards. The Access Board
seeks public comment on the best approach to height adjustability and
the optimal range.
Question 4: Please provide information about height adjustability
of universal changing tables currently available on the market, and
whether existing models are continuously adjustable.
Question 5: For sanitation, should the Access Board require that
the universal changing table have a non-porous surface?
Question 6: What other specifications not addressed above, if any,
should be required?
B. Standards for the Rooms in Which Universal Changing Tables Are
Located
In addition to comprehensive accessible design standards for
universal changing tables, the FAA Reauthorization Act of 2024 also
directs the Access Board to establish standards on the privacy,
accessibility, and sanitation equipment of the rooms in which they are
located. The Access Board's likely approach for these standards would
be first to draw on its ADA and ABA Accessibility Guidelines, 36 CFR
part 1191, which address accessibility of elements of toilet and
bathing rooms, including lavatories and sinks, operable parts, doors,
turning space, reach ranges, and clear floor or ground space. The Board
would likely require that rooms where universal changing tables are
located contain certain accessible elements that are needed for
assisted toileting. Such elements to be considered by the Board might
include a toilet, a sink, a soap dispenser, a hand towel dispenser, a
waste receptable, a coat hook, a bench or seating space, or a counter.
Question 7: What elements that are essential for assisted toileting
should be required in the room where a universal changing table is
located? Please provide specific information as to the purpose of each
recommended element.
In the alternative, the Board could reference A117.1-2017, Section
613.2.1 which requires specific components to be provided in a room
with a universal changing table that contains one water closet and one
lavatory. This includes soap dispensers, hand towel dispensers, coat
hooks, waste receptacles, and signage all in compliance with A117.1-
2017.
Question 8: Should the Access Board incorporate by reference
A117.1-2017, Section 613.2.1 instead of creating its own standard based
on existing Federal accessibility guidelines? If so, should the Access
Board include any additional requirements that go beyond the referenced
standard?
Question 9: The sanitation equipment required by ICC A117.1-2017
with Supplement 1 includes a sink and a soap dispenser. What other
types of sanitation equipment, if any, should be required?
Question 10: With respect to privacy of the room, the Access Board
will likely include a requirement that the door to the room be lockable
from the inside. What other specifications for privacy, if any, should
be required?
C. Costs of Providing Universal Changing Tables Required by the FAA
Reauthorization Act
To aid in the preparation of a preliminary regulatory impact
analysis, the Access Board has the following additional questions
concerning the costs of providing universal changing tables in affected
airports.
Question 11: The Access Board seeks public comment on the costs
associated with the provision of a universal changing table and room
where the table is located. The Board especially appreciates
information about actual costs incurred in the installation of these
facilities.
Question 12: The Access Board seeks information regarding the
number of medium and large hub airports that would be applying for
airport development grants beginning in 2030, and thus subject to 49
U.S.C. 47107(y); the number of terminal buildings at such airports; and
the number of airports and/or terminal buildings where universal
changing tables are already provided.
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Approved by vote of the Access Board on January 28, 2026.
Christopher Kuczynski,
General Counsel.
[FR Doc. 2026-03199 Filed 2-17-26; 8:45 am]
BILLING CODE 8150-01-P
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