[Federal Register Volume 59, Number 204 (Monday, October 24, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-26313]


[[Page Unknown]]

[Federal Register: October 24, 1994]


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DEPARTMENT OF TRANSPORTATION

Coast Guard

33 CFR Part 117

[CGD09-94-033]

 

Drawbridge Operation Regulations; Chicago River, IL

AGENCY: Coast Guard, DOT.

ACTION: Notice of temporary deviation; request for comments.

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SUMMARY: The Commander, Ninth Coast Guard District, has authorized a 
60-day deviation from the operation regulations for the draws of the 
bridges over the Chicago River, IL. The deviation was authorized to 
evaluate a drawbridge schedule with fewer required bridge openings 
during the fall time period when most recreational vessels 
traditionally return from Lake Michigan to the boat yards for winter 
storage. This deviation was specifically crafted to reflect the spirit 
of Department of Transportation strategic goals that encourage 
effective intermodal system integration. The Coast Guard will review 
comments received via this solicitation and the data gathered relating 
to the effect of the draw schedule on vessel and motor vehicle 
movements while the process to effect more permanent rulemaking is 
initiated during the lull between seasons.

DATES: Effective Date: The deviation is effective from October 11, 
1994, to December 5, 1994, unless sooner terminated by the District 
Commander.
    Comments: Comments must be received by January 15, 1995.

ADDRESSES: Comments may be mailed to Mr. Robert Bloom, Chief, Bridge 
Branch Ninth Coast Guard District, 1240 E. Ninth St., Cleveland, Ohio 
44199 or may be delivered to room 2083D at the same address between 8 
a.m. and 3 p.m., Monday through Friday, except Federal holidays. The 
telephone number is (216) 522-3993. Comments will become part of this 
docket and will be available for inspection or copying at room 2083D, 
at the above address between 8 a.m. and 3 p.m., Monday through Friday, 
except Federal holidays.

FOR FURTHER INFORMATION CONTACT:
Robert Bloom, (216) 522-3993.

SUPPLEMENTARY INFORMATION: 

Request for Comments

    The Coast Guard encourages interested persons to submit written 
data or views concerning the schedule of draw openings during the 
deviation period. Persons submitting comments should include their 
names and addresses and identify this notice (CGD09-94-033). Please 
submit two copies of all comments and attachments in an unbound format, 
no larger than 8\1/2\ by 11 inches, suitable for copying and electronic 
filing. Persons wanting acknowledgment of receipt of comments should 
enclose stamped, self-addressed postcards or envelopes. The Coast Guard 
will consider all comments received during the comment period.
    The Coast Guard plans no public hearing. Persons may request a 
public hearing by writing to Mr. Robert Bloom at the address under 
ADDRESSES. The request should include the reasons why a hearing would 
be beneficial. If it determines that the opportunity for oral 
presentations will be beneficial, the Coast Guard will hold a public 
hearing at a time and place announced by a later notice in the Federal 
Register.
    The Coast Guard also requests comments on the use of ``negotiated 
rulemaking'' (under the authority of the Federal Advisory Committee 
Act, 5 U.S.C. App. 2) if it determines that a permanent change to the 
draw schedule should be proposed.
    In negotiated rulemakings, the affected parties and the public may 
benefit from face-to-face negotiations, sharing of information, and 
cooperation in developing and reaching agreement on the provisions of a 
rule. Negotiated rulemaking procedures may be appropriate when: there 
are a limited number of identifiable interested parties who would be 
affected by the rule; there is a reasonable chance that balanced 
representation can be reached on the committee and that it will 
negotiate in good faith; there is likelihood of a committee consensus 
in a fixed time period; the negotiating process will not unreasonably 
delay the rule; and the agency can use the consensus of the committee 
in formulating the NPRM.
    The Coast Guard specifically requests comments on whether the above 
criteria could be met with respect to a rulemaking to revise the draw 
opening schedule of the draws over the Chicago River. The Coast Guard 
also requests suggestions on which parties should be members of a 
negotiated rulemaking committee. In those instances where a party would 
be a governmental or corporate entity, the Coast Guard also requests 
nominations of individual representatives for those entities.

Drafting Information

    The principal persons involved in drafting this document are Robert 
Bloom, Project Manager, Chief, Bridge Branch Ninth Coast Guard 
District, and Commander James Collin, Project Counsel.

Background

    Following notice and comment rulemaking, the Coast Guard 
promulgated a final rule on April 18, 1994, establishing a new rule for 
drawbridge operations on the Chicago River. On September 26, 1994, the 
United States District Court for the District of Columbia issued an 
order in the case of Crowley's Yacht Yard, Inc., Plaintiff, v. Federico 
Pena, Secretary, United States Department of Transportation, Defendant, 
Civil Action Number 94-1152 SSH, rescinding the Final Rule published on 
April 18, 1994, and reinstating the previous regulations found at 33 
CFR 117.391. The former regulations reinstituted by the District Court 
provided for on-demand openings of drawbridges except during rush hour 
periods. Further, the former regulations contained no requirement for 
advance notice or the use of flotillas.
    In an October 4, 1994, letter to the Department of Transportation, 
the City of Chicago requested relief from the reinstituted rules, 
stating that the timing of the order reinstating the previous 
regulations was creating a serious problem for the City of Chicago 
because it allowed weekday ``on demand'' openings. In addition to being 
concerned with the costs, the City noted the potential disruption to 
vehicular, elevated train, and pedestrian traffic, and that from early 
September through October 15, approximately 600 boats are expected to 
transit the Chicago River to boatyards for Winter storage. The City 
stated that the needs of boats could be accommodated with a limited 
number of openings, and requested that the bridge openings be 
restricted to weekends, Wednesdays between the hours of 10 a.m. and 2 
p.m., and Tuesday and Thursday evenings.
    The Coast Guard has also been provided with information from Grant 
Crowley, plaintiff in the District Court litigation, concerning a 
voluntary arrangement, initiated by the major boatyards, to promote the 
passage of returning boats in flotillas on Tuesdays and Thursdays at 10 
a.m. and Saturday and Sunday at noon, if needed. They also suggested 
reducing the number of weekday daylight openings to one a week after 
the majority of boats returned. While a number of boats have transited 
the Chicago River under this voluntary arrangement, it does not prevent 
individual vessels outside the boatyard umbrella from requesting bridge 
openings at other times. It is estimated that approximately 400 boats 
have not yet gone to layup.
    In light of the district court's decision and the City's request, 
representatives of the Department of Transportation, the Coast Guard 
and the United States Attorney's Office met with plaintiff's attorneys 
and representatives of the City of Chicago on October 6 in an effort to 
obtain a mutually satisfactory agreement on a modified short-term 
schedule of bridge openings that would meet the needs of both the City 
and the boaters. These efforts were unsuccessful.
    The similarity of the City request and the voluntary program 
initiated through the boatyards, together with the imminent end of the 
boating season and the concomitant heavy vessel traffic, presents an 
opportunity to not only address the needs of the City and the boaters, 
but also to gather additional data on whether a restricted schedule of 
bridge openings will adequately provide for the needs of navigation, 
while alleviating vehicle traffic problems caused by bridge openings.
    In order to gather relevant data on the ``Fall return'' of vessels 
and motor vehicle traffic and number of bridge openings, the District 
Commander has issued this deviation from the regulations to provide 
restricted times that the bridges will be available for opening.
    Notice: Notice is hereby given that the Coast Guard has granted the 
City of Chicago, Department of Transportation, a temporary deviation 
from the operating requirement at 33 CFR 117.391 governing certain 
bridges owned by the City of Chicago over the Chicago River, as 
follows:

Main Branch

Lake Shore Drive
Columbus Drive
Michigan Avenue
Wabash Avenue
State Street
Dearborn Street
Clark Street
La Salle Street
Wells Street
Franklin-Orleans Street

South Branch

Lake Street
Randolph Street
Washington Street
Madison Avenue
Monroe Street
Adams Street
Jackson Boulevard
Van Buren Street
Eisenhower Expressway
Harrison Street
Roosevelt Road
18th Street
Canal Street
South Halsted Street
South Loomis Street
South Ashland Avenue

North Branch

Grand Avenue
Ohio Street
Chicago Avenue
North Halsted

    This deviation from normal operating regulations is authorized in 
accordance with the provisions of title 33 of the Code of Federal 
Regulations, Sec. 117.43, for the purpose of evaluating a drawbridge 
schedule with fewer required bridge openings during the fall time 
period when most recreational vessels traditionally return from Lake 
Michigan to the boatyards for winter storage. The Coast Guard will 
review the comments received and the data gathered relating to the 
effect of the draw schedule on vessel and motor vehicle movements to 
determine whether to initiate a rulemaking proposing a permanent change 
to the drawbridge operation schedule. This temporary deviation applies 
only to the passage of recreational vessels. Under this deviation, the 
above listed bridges operated by the City of Chicago need not open for 
the passage of recreational vessels except during the specified time 
periods provided the City of Chicago receives a twenty-four hour 
advance notice of a request for a passage during one of these periods 
and vessels are in flotillas of no fewer than 5 and no more than 25 
vessels.
    (a) From 7 a.m. through 7 p.m. on Saturdays and from 7 a.m. through 
7 p.m. on Sundays, the draws shall open for the passage of organized 
flotillas consisting of no less than five and not more than twenty-five 
vessels. The flotillas shall be afforded continuous and uninterrupted 
passage upon entering the Chicago River, except when bridges remain 
closed for emergency vehicle crossing.
    (b) From 10:30 a.m. until 1:30 p.m. on Tuesdays and Thursdays, from 
October 11, 1994 until October 23, 1994, the draws shall open for the 
passage of organized flotillas consisting of no less than five and not 
more than twenty-five vessels. The flotillas shall be afforded 
continuous and uninterrupted passage upon entering the Chicago River, 
except when bridges remain closed for emergency vehicle crossing.
    (c) From 10:30 a.m. until 1:30 p.m. on Wednesdays after October 23, 
1994, and until December 5, 1994, the draws shall open for the passage 
of organized flotillas consisting of no less than five and not more 
than twenty-five vessels. The flotillas shall be afforded continuous 
and uninterrupted passage upon entering the Chicago River, except when 
bridges remain closed for emergency vehicle crossing.
    (d) From 6:30 p.m. until 10 p.m. on Wednesdays the draws shall open 
for the passage of organized flotillas consisting of no less than five 
and not more than twenty-five vessels. The flotillas shall be afforded 
continuous and uninterrupted passage upon entering the Chicago River, 
except when bridges remain closed for emergency vehicle crossing.
    (e) Upon notification by the owners/agents of the boatyards to the 
City of Chicago that not enough boats remain to form flotillas to meet 
the minimum number of five for a return to the yards for winter 
storage, the City shall provide openings for those remaining vessels 
even though the number is less than five for passage during the 
scheduled periods. Notwithstanding this deviation, the City of Chicago, 
after receiving notice twenty-four hours in advance of the intended 
passage of the flotilla through the draws of the bridges, shall ensure 
that:
    (a) The necessary bridgetenders are provided for the safe and 
prompt opening of the draws:
    (b) the operating machinery of each draw is maintained in a 
serviceable condition; and
    (c) the draws are operated at sufficient intervals to assure their 
satisfactory operation.
    The Kinzie Street Bridge, mile 1.81 across the North Branch, and 
Cermak Road bridge, mile 4.05 across the South Branch, shall continue 
to operate in accordance with requirements presently established in 33 
CFR 117.391.
    All draws shall open for commercial vessels in accordance with 
current regulations in 33 CFR 117.391. In accordance with current 
regulations, including 117.391, government vessels of the United 
States, state and local vessels used for public safety, and vessels in 
distress shall be passed through the draws of all bridges as soon as 
possible at all times.

    Dated: October 7, 1994.
Rudy K. Peschel,
Rear Admiral, U.S. Coast Guard Commander, Ninth Coast Guard District.
[FR Doc. 94-26313 Filed 10-21-94; 8:45 am]
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