[Federal Register Volume 63, Number 102 (Thursday, May 28, 1998)]
[Notices]
[Pages 29291-29296]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-14163]
=======================================================================
-----------------------------------------------------------------------
DEPARTMENT OF TRANSPORTATION
Coast Guard
[USCG-1998-3873]
Prevention Through People
AGENCY: Coast Guard, DOT.
ACTION: Notice.
-----------------------------------------------------------------------
SUMMARY: Prevention Through People (PTP) is a Coast Guard initiated
program to address marine safety and environmental protection through a
focus on the human element. Since the program's inception in 1994,
there has been a steady growth of support in the marine community.
Current marine industry practices reflect the increased commitment to
PTP. This notice informs the public of some of the major PTP efforts
taking place within the Coast Guard and includes the response to
comments from the four PTP public meetings held during the spring of
1997.
ADDRESSES: The Docket Management Facility maintains the public docket
for this notice. Documents, as indicated in this notice, will become
part of this docket and will be available for inspection or copying at
room PL-401, located on the Plaza Level of the Nassif Building, 400
Seventh Street SW., Washington DC 20590-0001, between 10 a.m. and 5
p.m., Monday through Friday, except Federal holidays. You many
electronically access the public docket for this rulemaking on the
Internet at http://dms.dot.gov.
The Marine Board of the National Academy of Science study,
Advancing the Principles of the Prevention Through People Program, was
published in August 1997 and is available at the National Academy Press
Bookstore 2001 Wisconsin Ave. NW., Washington, DC 20418-0005; phone
800-624-6242, or 202-334-3313.
FOR FURTHER INFORMATION CONTACT: For information on the public docket,
contact Carol Kelly, Coast Guard Dockets Team Leader, or Paulette
Twine, Chief, Documentary Services Division, U.S. Department of
Transportation, telephone 202-366-9328. For questions on this notice,
contact LT Duane Boniface, Human Element and Ship Design Division (G-
MSE-1), 202-267-2997.
SUPPLEMENTARY INFORMATION:
Background of PTP
The PTP initiative began in 1994 with the chartering of a Quality
Action Team (QAT) to develop a long-term strategy to address the role
of human and organizational factors in marine safety and environmental
protection. The QAT conducted an extensive literature review and
analysis of marine casualty data, conducted mariner surveys, and
examined operations from a maritime systems perspective that included
an assessment of vessels, facilities, and waterways.
On July 15, 1995, the QAT generated a report, ``Prevention Through
People Quality Action Team Report.'' This report provided the first
step towards re-balancing prevention efforts between technical, human,
and organizational issues related to marine safety. Subsequent focus on
human and organizational factors in safety and environmental protection
led to these issues becoming top priorities for many organizations,
both within the government and industry.
After the report was published, the Coast Guard and industry
pursued a host of initiatives. These initiatives include partnerships
with industry, studies of fatigue and communications, and introductions
of risk assessment and risk management approaches. The PTP Strategic
Plan (available in the docket; or contact the person under FOR FURTHER
INFORMATION CONTACT) exposed a wider audience to the PTP philosophy,
while the PTP Implementation Plan set high goals with various PTP
objectives and activities for the Coast Guard to accomplish.
Additionally, the Coast Guard held four public meetings that
allowed it to hear valuable industry comments concerning safety in the
marine community.
PTP Focus Plan
There are many projects and initiatives under the umbrella of PTP.
A list of the current projects and initiatives under the umbrella of
PTP can be found on the PTP web site at the following website: http://
www.uscg.mil/hq/g-sm/nmc/ptp/index.htm. From the list of these projects
and initiatives, the Coast Guard is focusing on five major initiatives
during 1998 referred to as the PTP Focus Plan. These initiatives were
chosen based on public comments, marine industry input, and the results
of the Marine Board of the National
[[Page 29292]]
Academy of Science study entitled Advancing the Principles of the
Prevention Through People Program. This study is available where
indicated under ADDRESSES.
The general consensus of the comments received was that the Coast
Guard should concentrate on completing several of the most significant
human-element-related initiatives already in progress under PTP. The
five projects identified in the 1998 PTP Focus Plan provide the Coast
Guard with the best opportunities to maximize progress in the near term
under the PTP approach. The Coast Guard has five PTP goals outlined in
the strategic plan. Each initiative the Coast Guard addresses
corresponds to one of these goals.
Development of National Maritime Safety Incident Reporting
System. Both Coast Guard and industry proposed the concept of a
national maritime safety incident reporting system. The system would be
designed to capture information on unsafe occurrences that involve
near-accidents, near-collision situations, near-pollution events, and
related precursor events. The system would be maintained by industry
and supported by the Coast Guard. The Coast Guard held a public meeting
on May 4, 1998 (announced in the Federal Register, 63 FR 17468; April
9, 1998) to investigate the possibility of industry implementing such a
system. The results of that public meeting will be announced
separately.
Information on these near-accidents and unsafe occurrences is an
untapped source of data that would serve as leading indicators on the
level of safety within the maritime community and would provide a
greater level of data for analysis and safety improvement. A concerted
effort will be made through industry's leadership to get a prototype
system in place by the end of 1998, with the intent to formally
establish a national system in the year 2000. This near-miss incident
reporting system falls under the PTP goal of Know More. This goal is
meant to significantly expand our knowledge and understanding of the
human element and its role in maritime operations and accidents. The
status and the latest details on the national maritime safety incident
reporting system project can be found at the following website: http://
www.uscg.mil/hq/g-m/moa/maola.htm.
Implementation of the International Conventions on the
Standards of Training, Certification and Watchkeeping for Seafarers,
1978, (STCW), and its amendments. A focus of the Coast Guard is the
implementation of STCW. Significant changes to STCW in 1995, which
became effective in 1997, require a substantial effort by the marine
community. The Coast Guard published an interim final rule (62 FR
34505; June 26, 1997) to reflect the amendments to STCW. While much has
been done, there are still many issues involved with implementing this
convention. Some of these issues include finalization of regulations,
development of enforcement policies, training, and outreach. The effort
to implement STCW falls under the PTP goal Train More. This goal
strives to give members of the marine community the necessary skills
and knowledge to improve safety and prevent pollution. Training is
always a point of interest since regulations, equipment, operating
environment, and personnel are constantly changing. Projects under this
goal will address human element issues related to the individual
mariner.
Implementation of the International Safety Management
(ISM) Code. Implementation of the ISM Code is an important aspect of
the PTP program. Deadlines for compliance with the ISM Code begin in
1998. The Coast Guard has published a final rule (62 FR 67492; Dec. 24,
1997) concerning this matter. The ISM Code helps establish a standard
for national safety management and harmonizes U.S. regulations with the
international standards. Beginning in 1998, these standards would apply
to the following vessels in international trade:
Vessels transporting more than 12 passengers;
Tankers;
Bulk freight vessels; and
High speed freight vessels of at least 500 gross tons.
Beginning in the year 2002, these standards would also apply to the
following vessels in international trade:
Self-propelled mobil offshore drilling units of at least
500 gross tons; and
Freight vessels.
Implementation of the ISM Code falls under the goal of Do More.
This goal strives to improve professional performance through practical
application and open communication of human element knowledge within
the marine community. Implementation of a quality management system, as
envisioned by the ISM Code, is a critical step in establishing
corporate cultures that encourage safe practices. Detailed information
about the ISM Code can be found at the following website: http://
www.uscg.mil/hq/g-m/psc/ismmain.htm.
Development of the Streamlined Inspection Program (SIP).
The Coast Guard is focusing on implementation of the Streamlined
Inspection Program (SIP). The SIP provides an opportunity for the
vessel owners and operators to have their own personnel periodically
perform many of the tests and examinations currently conducted by the
Coast Guard marine inspectors. As a result, participating vessel owners
and operators will promote a more continuous level of safety.
Information on SIP has been published in the Federal Register (62 FR
17008; April 8, 1997). Development of SIP falls under the goal of Offer
More. This goal provides incentives for making improvements to safety
management systems.
Development and Implementation of a PTP Communications
Plan. Working together with industry and the public, the Coast Guard
plans to address the human element in transportation safety and
pollution prevention. Public meetings and other feedback indicate that
government-to-public communication is not as effective as it could or
should be. The Coast Guard will focus on the development and
implementation of a PTP Communications Plan. By focusing on this plan,
the Coast Guard will create a partnership with industry and the public
under the PTP goal of Cooperate More. This plan will address all forms
of communication, from describing the results of research, to
discussing lessons learned and best practices, and other PTP-related
information. The PTP Communications Plan will include everyone from the
boardroom to the deckplate. This will allow for increased
communications and more effective interaction between the marine
stakeholders and the Coast Guard.
PTP's Integration Into the Coast Guard ``M'' Business Plan
In addition to the current PTP focus items and the many other
ongoing projects, PTP continues to be integrated into the Coast Guard's
operating procedures; most noteworthy is the Coast Guard Marine Safety
and Environmental Protection (G-M) Business Plan (Business Plan). The
goals of the Business Plan comprise a significant portion of the
Commandant's Annual Performance Agreement with the Secretary of
Transportation. The Business Plan contains performance guidance and
strategic direction for all Coast Guard commands charged with achieving
the Coast Guard*s mission for marine safety and environmental
protection. A key strategy for achieving the goals of the Business Plan
is PTP.
The Coast Guard recognizes the importance of human and
[[Page 29293]]
organizational factors in marine safety and PTP has evolved from that
philosophy. The Coast Guard will meet the goals of the Business Plan by
using PTP as a tool to refocus prevention efforts.
PTP Public Meetings
The Coast Guard recognizes that the success of PTP depends on the
marine industry. Its feedback is essential for continuous improvement
to the program. To that end, the Coast Guard held four public meetings
on PTP in the spring of 1997. These public meetings were held in:
New Orleans, LA on February 25, 1997;
Oakland, CA on February 28, 1997;
St.Louis, MO on March 26, 1997; and
Newport, RI on April 18, 1997.
(Notice of meetings with request for comments published in 62 FR
4567; January 30, 1997).
These meetings allowed the Coast Guard to explain PTP, discuss its
anticipated role within the marine industry, and provide an opportunity
for public feedback.
From these meetings, it is evident that safety is a top issue in
the marine industry, and PTP has provided an effective forum for
focusing on human and organizational aspects of marine safety. The
feedback from the meetings has been instrumental in providing valuable
insight about PTP and was used to help develop the 1998 PTP Focus Plan.
Discussion of Comments
The comments from the meetings have been grouped by subject and are
discussed in the following paragraphs.
Partnerships
Partnership was the most frequently addressed issue. A number of
comments specifically supported partnerships between the Coast Guard
and industry, notably the formal PTP Quality Partnerships, and the
Safety Advisory Committees/Councils (SAC). The SAC's are legislatively
authorized groups that provide advice and ideas to the Coast Guard on
regulatory and non-regulatory issues in specific areas, such as towing
or chemical transportation. Each SAC has formed a PTP subcommittee to
specifically address human element issues. To find out more information
about the SAC's and their activities, look at the following website:
http://www.uscg.mil/hq/g-m/advisory/index.htm.
Several speakers felt that partnerships were the most important
part of PTP. According to one speaker, PTP articulates many of the
concepts the marine industry already follows and allows industry to
maintain them in a centralized place. In that sense, PTP is the
umbrella for the various safety initiatives going on in the marine
industry. PTP is not a new philosophy, but rather, it is an extension
of an existing safety philosophy with a human element focus. The PTP
umbrella simply allows people to share information more conveniently
and provides the emphasis for those not already active in this area.
Partnerships can involve many modes of sharing. The Coast Guard and
industry partnerships were acknowledged as important; however, speakers
wanted to make sure the ship-to-shore partnerships within companies are
valued also. One speaker, who supported partnership and its concept,
cautioned that a true partnership needs work and attention.
The Coast Guard will continue efforts in this area. Before the
public meetings, the Coast Guard had formal PTP Quality Partnerships
established with (1) the American Waterways Operators; (2) the American
Petroleum Institute; (3) the United States Chamber of Shipping; and (4)
the Passenger Vessel Association. Since the public meetings, PTP
Quality Partnerships have been established with the International
Council of Cruise Lines (ICCL) and the Spill Control Association of
America (SCAA). The Coast Guard continues to explore opportunities for
partnerships with other sectors of the maritime community.
Recreational Boating
A comment questioned whether PTP should encompass the recreational
boating community. Prevention Through People is an approach to safety
for everyone; no group has been excluded. Since passage of the Federal
Boating Safety Act of 1971, (Pub.L. 92-75, 85 Stat. 213) the Coast
Guard has worked with the States and boating safety organizations to
cooperatively promote safe operation of boats through its coordination
of the National Boating Safety Program. In April 1996, members of the
National Boating Safety Advisory Committee (NBSAC) and the Navigation
Safety Advisory Committee (NAVSAC) met and discussed interactions
between the boating public and commercial shipping. The committees
identified education as the number one waterway safety issue.
Subsequently, a NBSAC PTP Subcommittee looked at ways of increasing the
safety of boaters by applying PTP principles.
The Coast Guard is accepting feedback on the need for, and
alternatives to, Federal requirements or incentives for recreational
boaters to take courses in boating safety (notice to reopen the comment
period published in 63 FR 13585; March 20, 1998) and for boaters to
wear personal flotation devices (notice to reopen the comment period
published in 63 FR 13586; March 20, 1998).
Substandard Operators
Some comments discussed how to capture the small percentage of
operators who are on the edge of, or below, safe operating practices.
The Coast Guard intends to assist operators in improving their safety
operations. Unsafe maritime practices are a cause for concern for both
Coast Guard and industry. We must commit ourselves, our organizations,
and our operations to producing a safer, more productive environment.
Communication
Communication was discussed at all four public meetings. The many
speakers commenting on this issue addressed the Coast Guard`s efforts
to disseminate pertinent information to industry and individuals, the
maritime industry's communication to the Coast Guard, and the
companies' internal communications. Most speakers emphasized the need
to foster better communication methods. They also stressed gaps in the
various chains of marine industry communications, to include Coast
Guard-to-industry, ship-to-shore, and captain-to-crew, among others. As
an example of a common case of miscommunication, a speaker mentioned
that too often specific messages do not get to the right people. The
speaker noted that one of the reasons this occurs is because management
neglects to pass information down the chain of command to the people
who need it.
Some comments stated that ``letters of concern'' are a helpful
method that the Coast Guard uses to communicate with industry. The
Coast Guard may write a letter of concern to a company on a safety
issue or concern, instead of a more punitive form of action (e.g., a
citation or criminal charges). Then, the Coast Guard works with the
company in a non-regulatory manner to solve the problem. Some speakers
also mentioned that the company could encourage safety communication by
providing anonymous forms to report issues of concern.
Many speakers recommended using different media, including the
Internet, to convey information. In response to the many speakers who
echoed this recommendation at the meetings, the
[[Page 29294]]
Coast Guard has published a PTP World Wide Web site. As previously
discussed in this notice, under the PTP Focus Plan, the Coast Guard is
developing the Communications Plan to provide direction to, and support
for, personnel involved in the PTP program.
Speakers also discussed the role of Coast Guard Headquarters in
Washington, DC, with respect to setting effective nationwide policy.
Many safety issues, such as risk management, can be addressed at a
local level. The broad policy and regulatory issues, though, are most
effectively addressed at the headquarters-level.
Regulatory Process
Several speakers commented on the Coast Guard's regulatory process.
The comments discussed:
Problems with the way regulations are written and created;
Solutions to some of the difficulties;
The Coast Guard's solutions that are regulation oriented,
even when the goal is to minimize new regulations; and
A review of the required paperwork.
Regulations are a necessary aspect of safety within the marine
industry under the Coast Guard's legislative mandate from Congress.
However, seeking non-regulatory approaches to safety for people and the
environment is one of the PTP Principles, which can be found in the
Strategic Plan. Regulations establish minimum levels of safety as a
part of an overall safety system. However, the Coast Guard continues to
pursue regulatory reform including periodic reviews of paperwork and
regulatory burdens as described in its semi-annual agenda of regulatory
actions published in the Federal Register each fall and spring.
Several speakers commented that some mariners find it difficult to
read and understand the technical and complex writing style of
regulations. The Coast Guard has begun to implement Plain Language
writing to make it easier to understand and comply with regulations.
Plain Language writing includes simplifying acronyms, increasing use of
conversational tone, and using questions and answer formats.
One speaker recommended that the Coast Guard hold more public
outreach meetings (e.g., marine industry day) at the local Marine
Safety Offices rather than at the Coast Guard Districts. The speaker
noted that holding outreach meetings at the local level would provide
greater access for small businesses and would enable the Coast Guard to
better address issues specific to a community. The Coast Guard agrees.
In several areas the Coast Guard participates in meetings convened by
mariners on the local level. For example, current efforts where the
Coast Guard joins with local community groups to solve local problems
include:
Privately convened Mariners' Advisory Committee of the Bay
and River Delaware in Philadelphia, PA;
The Puget Sound Marine Committee in Seattle, WA; and
The Cuyahoga River Task Force in Cleveland, OH.
One speaker discussed the issue of using public meetings as part of
the regulatory process. The speaker suggested using the format of the
PTP public meetings, stating that its ``give and take'' format is a
better model than the regulatory public meeting format. The Coast Guard
continuously strives for open communications balanced with the
requirements for the Administrative Procedure Act (5 U.S.C. 551 et
seq.) so that all members of the affected public, not just those
present at a particular meeting, have equal and appropriate input to a
fair and unbiased regulatory outcome.
Lessons Learned and Near Accidents
Some speakers commented on lessons learned and near accidents. A
number of speakers gave information highlighting their experiences of
best practices, while other speakers gave definitions of near accident
and some of the obstacles encountered in the creation of a near
accident reporting system. Several industry concerns need to be
resolved to the satisfaction of all interested parties, before creating
the new system. Some industry concerns include loss of insurance,
safety awards, and exposure to legal liability. To create a functional
reporting system, these factors must be addressed and answered to the
satisfaction of all involved. As mentioned earlier in this notice, this
issue is an item in the PTP Focus Plan.
Several speakers offered stories of various lessons learned and
near accident efforts that their companies currently apply in the quest
for safety improvements. Some projects that were mentioned include the
following:
Developing contingency plans.
Providing means within companies to anonymously report
issues of concern.
Organizing safety meetings and lessons learned procedures
followed up with shared analysis.
Having key learning meetings for captains where each
reports on a shared pertinent issue.
Another speaker suggested bringing representatives of vendors of
mechanical systems to the workers who use them, thereby joining the
people who make the equipment and the people who use the equipment.
Management
A number of speakers discussed aspects of management that affect
marine safety. They highlighted best practices as performed by their
firms, the problems they have with their companies, management losing
their safety focus, and the management aspects of PTP.
Many speakers stated that they feel safety is often compromised by
home office policies. For example, some masters are not allowed the
independence to make decisions based on current conditions, but must
operate within established parameters. Though this is an issue that
must be addressed within individual companies, the Coast Guard
recognizes the serious potential for accidents that such a practice
causes. A speaker suggested allowing a management style that gives
employees more power in decision making. The Coast Guard applauds this
approach, which is consistent with the PTP Principle Honor the Mariner.
It remains the responsibility of the individual companies and
management to use their influence appropriately and to make sure there
is compliance from the boardroom to the deck plate level. This
responsibility takes on the increased importance as the deadlines for
compliance with the ISM Code approach. Implementation of the ISM Code
will have a significant effect on marine safety from the organizational
standpoint, and is being addressed as part of the PTP Focus Plan.
Two speakers commented that the human element provides the greatest
impact on improving marine safety and that upper management must show
consistent, not sporadic, support.
Several speakers expressed concern that PTP might encourage
micromanagement when it should, instead, foster creativity. A speaker
requested having the Coast Guard focus on its roles of encouragement,
leadership, and examples, as opposed to regulations and management. As
noted, PTP seeks non-regulatory approaches to safety for people and the
environment.
Training
A number of speakers discussed training. The majority of comments
shared best practices related to training of mariners on a day-to-day
basis and of the crew as a whole. A few speakers identified some
problems with Coast Guard procedures that affect training mariners.
[[Page 29295]]
The comments indicated that many companies are working to provide
better, more accurate training with a focus on safety. The Coast Guard
and the Los Angeles/Long Beach (LA/LB) Vessel Traffic Information
System (VTIS) are currently working on a standard for training to be
used primarily as a tool for mariners. Improved industry training
methods also include training teams from the same vessel, so the
mariners can practice with the people they work with. Another
suggestion described a pocket-sized emergency response-training
document for deckhands.
Some of the basic principles noted in the public meetings and in
the Coast Guard's experience are worthy of note:
Training needs to be a priority from the initial hiring
process onwards.
Training should encompass everything from lessons on
managing stress to CPR and fire fighting.
Supervisors should go through some of the training with
the crew to see what they are learning.
Effective implementation of the STCW Convention is necessary. Noted
previously as a 1998 Focus Plan item, the Coast Guard will continue to
address the human element issues of the STCW that relate to the
individual mariner.
A number of comments discussed course approvals. It was noted that
it now appears more difficult to get mariners to meet the basic
requirements. A course approval process Fast Action Team met in
November 1997 to find ways to reduce the backlog of course applications
waiting for approval and shorten the time needed to evaluate course
approval applications. As a result of the team's recommendations, the
following actions have been taken:
The National Maritime Center (NMC) increased the course
approval staff by two people and also filled a long vacant position.
The NMC determined the processing time could be shortened
if courses were sent directly to the NMC rather than to the REC's. NMC
Policy Letter 7-98 announced this change, and the implementing
regulatory change will be proposed in the Maritime Course Approval
Procedure Notice of Proposed Rulemaking, CGD 97-074.
The course approval database that lists all Coast Guard
approved courses has been updated, as of January 15, 1998. The list of
approved courses is published on the Internet and is updated monthly.
The NMC has begun developing and updating course
guidelines to standardize approved courses.
Standardizing approved courses would reduce the time needed to
review course approval requests; provide consistency in courses being
taught; and ensure courses, instead of exams, will more accurately
reflect the job tasks and responsibilities of the license being sought.
As a result of these actions, the backlog has decreased from 95
courses waiting for approval in November of 1997 to less than 40
courses waiting for approval in March of 1998. The oldest course
awaiting review has been reduced from December 1996 to February 1998.
Honor the Mariner
Several speakers applauded and supported the PTP philosophy Honor
the Mariner. They noted that the most appreciated contribution of PTP
has been the recognition of the mariner as a pivotal member of the
safety equation. Recognition of mariners helps foster a shared working
relationship with mariners and masters. The Coast Guard recognizes that
mariners have working knowledge of projects and equipment and that
their opinions are important.
One speaker recommended that the Coast Guard honor the mariner
constantly, not just before the accident, but also during and after an
incident. The Coast Guard continues to seek out and use the expertise
of mariners in guiding safety and environmental protection efforts, and
appreciates the time, effort, and insights of all who have provided
assistance.
Fatigue
A few speakers addressed fatigue research, while others spoke of
their fatigue experiences. Several speakers mentioned that their
companies are devoting research to studying fatigue and attempting to
curb it. One company developed alertness testing devices with the view
that fatigue, stress, and illness are impairment factors just as
hindering as drugs and alcohol. The Coast Guard Research and
Development Center is also performing studies specifically to address
fatigue.
The PTP goal, Do More, was also mentioned during a fatigue
discussion. The speaker addressed the concern that people may construe
the statement by literally doing more work, but with the same people
and equipment. Do More is directed towards striving for increased
quality and prioritization of work-do better-as opposed to an increased
quantity of work. One speaker acknowledged that fatigue is often a
contributing factor to many accidents. The speaker, however, expressed
concern that fatigue is often an easy fallback explanation for
accidents, when it may not be the causal factor in a particular
accident.
Research
A representative from the Coast Guard Research and Development
Center described the Fatigue Research Program and solicited
participation from the towing industry for an alertness study. In
addition, several speakers stated that their companies are devoting
more research time to human safety and environmental issues. The Coast
Guard applauds these efforts and encourages the sharing of this
information for the benefit of the entire marine community. The Coast
Guard Research and Development Center has developed a web site http://
www.rdc.uscg.mil/ to disseminate information about its projects. There
is also a section on studies and reports related to human element
issues on the PTP web site: http://www.uscg.mil/hq/g-m/nmc/ptp/
rands.htm.
Streamlined Inspection Program (SIP)
Several comments discussed SIP. In general, they were supportive of
the program. Speakers agreed with SIP, citing it as an example of true
partnership. They pointed out many advantages to the program, noting
its encouragement for companies to translate the Code of Federal
Regulations for their employees. A speaker commented that the strength
of SIP lies in changing the inspection from an annual snapshot by the
Coast Guard to a Coast Guard audit of the organization's continuous
inspection system. As a 1998 Focus Plan item, the Coast Guard will help
companies increase ownership of their inspections and maintenance by
implementing the SIP.
Some comments addressed the issue of SIP by creating two classes of
operators or companies. They discussed the problem of the Coast Guard
not issuing CG-835 forms, which require immediate repairs, to vessels
that are part of the SIP. Some speakers felt that industry does not
want to see two classes of operators or companies.
Manning
A few speakers addressed the problems of working with too few crew
members. One speaker supported regulations on manning of barges because
it is difficult to place someone aboard an unmanned barge in adverse
weather conditions. The Coast Guard has proposed regulations seeking to
enhance existing standards for anchoring or retrieving drifting tank
barges (62 FR 52057, October 6, 1997;
[[Page 29296]]
and 63 FR 9980, February 27, 1998). These proposed rules present
appropriate measures for reducing the likelihood of loss of control and
grounding of a tank barge based on whether or not the barge is manned.
As a result of reducing the likelihood of groundings, fire prevention
measures and emergency control measures are also both part of the
system to address tank barge safety.
Another speaker commented on the often insufficient manning on
foreign flag vessels, which makes it harder to have safe operations.
With certain exceptions, the vessel's Flag State establishes the
manning level for each vessel. The Coast Guard is concerned about the
safety of foreign vessels operating in U.S. waters and is working with
the International Maritime Organization (IMO) to develop more up-to-
date guidance on the principles of safe manning. The aim of this
guidance is to have crew complements based on the actual crew workload,
taking into account work hour limits and rest requirements. During Port
State Control (PSC) boardings of foreign vessels, the Safe Manning
Document is checked against the actual manning of the vessel. In
addition, licenses, certificates, and rest requirements are checked to
ensure compliance with the STCW. The Coast Guard will work with
representatives of the Flag State to resolve any of the problems. The
Coast Guard may detain the vessel in port pending the resolution of the
problems to ensure the correction of unsafe conditions, which may
include requiring additional crewmembers if insufficient personnel are
onboard to safely operate the vessel.
Pilotage
One speaker discussed the need for First Class Pilot's licenses on
the inland waterway system. The speaker indicated that the current
certification of inland pilots on parts of the inland waterway, which
does not specify a geographic area of expertise, is insufficient. The
speaker stated that the Coast Guard Regional Examination Centers need
to ensure capable people can get their license.
In 1994, the Coast Guard revised the pilot regulations in 46 CFR
15.812 to eliminate the requirement for a First Class Pilot's license
on non-designated areas of pilotage waters. Due to this change in
regulations, it is now the companies' responsibility to ensure that the
pilot they hire has the necessary expertise.
Maintenance
One speaker commented on maintenance. The speaker highlighted
problems with main propulsion failures due to the lack of proper
maintenance of ships and equipment. Poor maintenance of ships and
equipment has been noted in many casualties, including the December
1996 BRIGHT FIELD accident in New Orleans, LA, where poor maintenance
was cited as a cause of the accident in the investigation report, which
was published on October 31, 1997.
The speaker noted that the issue of maintenance should receive more
attention than it has in the past. The Coast Guard is actively pursing
these efforts through its PSC and SIP programs, which target foreign
vessels and domestic that are not operated or maintained properly.
Additionally, the ISM Code becomes mandatory for many vessels on July
1, 1998, and requires both the company and the vessel to have a safety
management system in place. A properly implemented safety management
system will help prevent occurrences such as the BRIGHT FIELD'S loss of
propulsion.
Conclusion
The Coast Guard is committed to PTP as a long-term effort to
address the root cause of many of these accidents--the human element.
Through the continuing efforts of the Coast Guard and marine community,
we can all reduce and perhaps, eventually, eliminate these types of
accidents. The Coast Guard has an unwavering commitment to safety, and
through PTP is undertaking many bold initiatives. The marine community
is invited to join in this effort to improve marine safety and
environmental protection. Visit one of the web sites listed in this
notice to learn more.
Dated: May 18, 1998.
R.C. North,
Rear Admiral, U.S. Coast Guard, Assistant Commandant for Marine Safety
and Environmental Protection.
[FR Doc. 98-14163 Filed 5-27-98; 8:45 am]
BILLING CODE 4910-15-P