[Federal Register Volume 61, Number 208 (Friday, October 25, 1996)]
[Proposed Rules]
[Pages 55248-55252]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-27486]


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DEPARTMENT OF TRANSPORTATION

Coast Guard

33 CFR Part 166

[CGD 93-044]


Port Access Routes off the Coast of California

AGENCY: Coast Guard, DOT.

ACTION: Notice of study results.

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SUMMARY: The Coast Guard is publishing the results of a port access 
route study which evaluated the need for vessel routing measures in the 
approaches to California ports. The study concluded that the southern 
approach lanes of the existing traffic separation scheme (TSS) off San 
Francisco should be shifted seven miles seaward; the existing TSS in 
the Santa Barbara Channel should be extended from Point Conception to 
Point Arguello; and a precautionary area should be established at the 
northwest end of the Santa Barbara Channel TSS. The remaining TSS 
approach lanes, precautionary areas, areas to be avoided, and the 
shipping safety fairways within the studied area should remain as 
presently configured. No navigational need for additional offshore 
routing measures was identified.

FOR FURTHER INFORMATION CONTACT:
CDR Chip Sharpe, Project Officer, Eleventh Coast Guard District at 
(510) 437-2975 or Margie G. Hegy. Project Manager, Coast Guard 
Headquarters at (202) 267-0415

[[Page 55249]]

SUPPLEMENTARY INFORMATION

The Study

    The Coast Guard has concluded its port access route study to review 
and analyze the vessel routing measures in the approaches to California 
ports and within the offshore California national marine sanctuaries. 
The study was announced in a notice published in the Federal Register 
on August 24, 1993 (58 FR 44634).
    The study consisted of two parts: (1) a port access route study to 
evaluate the need for vessel routing measures; and (2) a joint study 
with the National Oceanic and Atmospheric Administration (NOAA) 
mandated by the National Marine Sanctuaries Program Amendments Act of 
1992 (Pub. L. 102-587) (NMSPA Act of 1992) to determine what, if any, 
vessel regulations are needed to protect resources in the Monterey Bay 
National Marine Sanctuary. This notice publishes only the results of 
the port access route part of the study. The results of the second part 
of the study will be contained in a report to Congress as required by 
the NMSPA Act of 1992. The Coast Guard will announce the completion of 
that report in a separate Federal Register notice.
    A number of vessel routing measures, i.e., traffic separation 
schemes (TSSs), precautionary areas (PA), areas to be avoided (ATBA), 
and a shipping safety fairway (SSF), currently exist to mitigate 
navigation safety problems for vessels entering or departing the 
entrances to San Francisco Bay, Santa Barbara Channel, and the ports of 
Los Angeles and Long Beach.
    A traffic separation scheme is an internationally recognized 
routing measure intended to minimize the risk of collision by 
separating vessels into separate, opposing lanes of traffic. Vessel use 
of a TSS is voluntary; however, vessels operating in or near an IMO 
approved TSS are subject to Rule 10 of the International Regulations 
for Preventing Collisions at Sea, 1972 (72 COLREGS).
    A precautionary area is a routing measure comprising an area within 
defined limits where ships must navigate with particular caution. 
Direction of traffic flow may be recommended with a precautionary area.
    An area to be avoided is a voluntary routing measure comprising an 
area within defined limits in which either navigation is particularly 
hazardous or it is exceptionally important to avoid casualties. All 
ships, or certain classes of ships, may be advised to avoid the area.
    A shipping safety fairway is a lane or corridor in which no fixed 
structures, either temporary or permanent, are permitted. Shipping 
safety fairways are routing measures which provide safe port access 
routes for vessels where the primary risk to vessels is collision with 
offshore structures. Vessel use of shipping safety fairways is 
voluntary and the direction of traffic flow within a shipping safety 
fairway may be recommended.

Existing Routing Measures

    The TSS off San Francisco consists of three approaches, a main ship 
channel, and a precautionary area with a separation zone in the center. 
The northern approach consists of north-westbound and south-eastbound 
traffic lanes and a separation zone. The southern approach consists of 
northbound and southbound traffic lanes and a separation zone. The 
western approach, consists of south-westbound and north-eastbound 
traffic lanes and a separation zone. The main ship channel consists of 
eastbound and westbound traffic lanes, and a precautionary area with a 
separation zone in the center.
    The TSS in the Santa Barbara Channel consists of north-westbound 
and south-eastbound traffic lanes and a separation zone. The south-
eastbound traffic lanes link the Santa Barbara Channel TSS to the 
western approach of the Los Angeles/Long Beach TSS.
    The Los Angeles/Long Beach TSS consists of western and southern 
approaches and a precautionary area. The western approach consists of 
northbound and southbound traffic lanes and a separation zone. The 
southern approach consists of southbound and northbound traffic lanes 
and a separation zone. The two approaches converge into a precautionary 
area immediately offshore from the port complex.
    A shipping safety fairway provides unobstructed vessel access to 
Port Hueneme.

Study Data

    The Coast Guard reviewed studies and data collected both in-house 
and by other organizations on vessel traffic patterns and density. 
Coast Guard sources included: The Coast Guard's ``Evaluation of Oil 
Tanker Routing'' (Tanker Free Zone Study) report to Congress mandated 
by the Oil Pollution Act of 1990 (OPA 90); the draft report to Congress 
on ``Regulating Vessel Traffic in the Monterey Bay National Marine 
Sanctuary'' prepared by the Coast Guard and the National Oceanic 
Atmospheric Administration (NOAA); and the Eleventh Coast Guard 
District's collection of vessel position information during law 
enforcement patrols (``Operation Crystal Ball'').
    The Coast Guard's Vessel Traffic Service (VTS) in San Francisco 
recorded the number of vessels transiting the three approaches to the 
TSS when entering and leaving the ports in San Francisco Bay in 1994.
    In addition to Coast Guard efforts, the Western States Petroleum 
Association's (WSPA) 1992 report, ``Tanker and Barge Movements Along 
the California Coast'' provided general information regarding vessel 
transit routes. Crowley Marine Services, Inc. and Pacific Gas and 
Electric Company also provided information on their vessel transits.
    Vessel density data were obtained from the U.S. Army Corps of 
Engineers' publications ``Waterborne Commerce of the United States,'' 
and ``Pacific Region Freight Traffic Tables'' for calendar years 1990-
1992. Lastly, the California Coastal Commission made several local area 
reports available for review.
    The Center for Marine Conservation's ``Safe Passage: Preventing Oil 
Spills in Our Marine Sanctuaries'' and ``Unsafe Havens: The Threat to 
California's Marine Sanctuaries From Vessel Traffic'' provided 
environmental information and recommendations for vessel traffic 
measures. CMC's recommendations were also addressed by the Council of 
American Master Mariners, San Francisco Chapter (CAMMSF) and WSPA. 
California's Office of Oil Spill Protection and Response (OSPR) 
completed a statewide coastal protection review which focused on the 
risk to California's coastline and the overall state of response 
preparedness.

Public Comments

    Over 400 written comments were received in response to the notice 
of study. Of these comments, approximately one-third focused 
exclusively on sanctuary issues not related to vessel routing. These 
comments will be discussed in the report to Congress on ``Regulating 
Vessel Traffic in Monterey Bay National Marine Sanctuary''.
    Several comments addressed user fees, increased fines for 
violations and spills, and increased regulation of vessels and vessel 
traffic. These comments did not address the specific routing of vessels 
between ports and are not discussed.
    Public comments frequently recommended additional regulation of 
vessels and the routing of tankers, or all vessels, from 10 to 60 miles 
offshore. These comments expressed the belief

[[Page 55250]]

that keeping vessels further offshore would provide more time for 
response in the event of an oil spill. These comments also suggested 
that greater distances offshore naturally improved navigational safety. 
However, the comments contained no specific recommendations for 
increased navigational safety or spill prevention.

Vessel Regulation

    There currently exists an extensive body of regulation governing 
the operation of tankers and other commercial vessels. These 
regulations include licensing of vessel operators and vessel crews, 
equipment carriage and training requirements, vessel response plans, 
and numerous operating requirements. The Coast Guard inspects vessels 
to ensure compliance and has initiated a Port State Control Program to 
target their inspection efforts on high risk vessels, often those under 
foreign flag.
    In addition, the Coast Guard's Prevention Through People (PTP) 
program focuses on the human element, which has been found to be the 
cause of 80 percent of vessel casualties. In PTP, industry and the 
Coast Guard establish cooperative relationships to identify and 
implement effective human element programs which address: (1) 
management's commitment to safe operations; (2) external factors in the 
work environment that influence worker's capabilities, judgment, and 
effectiveness; (3) behavior influenced by factors such as stress, 
attitude, knowledge, awareness, health and experience; and, (4) the 
application of new technology with human capability and limitations in 
mind.
    The existing regulations are adequate, and no additional 
regulations are needed at this time.

Offshore Routing

    The coastwise transit between California ports is not 
navigationally difficult or hazardous. The areas that do involve 
significant navigational risk, the port approaches, have numerous 
effective waterways management measures, i.e. VTS, TSS, pilotage, and 
regulated navigation areas (RNA) in place. Simply defining an outer 
limit or minimum offshore distance that vessels must transit, as was 
often suggested by the comments, would increase collision risk by 
reducing the water area available for transit and artificially 
constricting the conventional coastwise traffic streams.

CMC Recommendations

    Over fifty percent of the public comments supported the 
recommendations made by the Center for Marine Conservation (CMC) in its 
``Safe Passage: Preventing Oil Spills in Our Marine Sanctuaries'' 
report. CMC's significant navigational recommendations include: (1) 
establishing an ATBA along the northern and central California coast; 
(2) reconfiguring the TSS in the approaches to San Francisco Bay to 
contain only one set of lanes approaching the bay from the southwest 
and extending seaward of the Farallon Islands; (3) making VTS San 
Francisco mandatory; (4) extending VTS authority and area of 
responsibility to include the entire area of the California national 
marine sanctuaries; and, (5) requiring transponders and automated 
dependent surveillance shipboard equipment (ADSSE) on all large 
commercial vessels.
    Through advocating resource protection, the CMC report does not 
address the international, statutory, and economic ramifications of 
their comments, or the impact on navigation safety. These are discussed 
below.
(1) Coastal ATBA
    An ATBA, encompassing the northern and central California coast, is 
inappropriate because transit through these areas is necessary to 
access ports between San Francisco and Port Hueneme. Such an ATBA 
would, in effect, shut off access to major ports such as San Francisco. 
It would also increase navigation risk by concentrating vessels along 
the outer boundary of an ATBA because vessels would not be expected to 
transit further off the coast than required by ATBA boundaries.
(2) Reducing traffic lanes in San Francisco TSS
    Reconfiguring the San Francisco TSS from three approaches to one 
approach would also increase risk of collision. Such a reconfiguration 
would create a convergence zone approximately 50 miles offshore, in 
open ocean, and beyond VTS and shore station radar range. The existing 
scheme is within the coverage of VTS San Francisco, as well as the San 
Francisco Bar Pilots. This system provides several layers of monitoring 
and radar coverage, and forms a natural boundary before vessels make 
the more difficult transit into the bay. In addition, vessel speeds are 
controlled naturally in the precautionary area as vessels must slow to 
embark or disembark their pilot.
    Vessel density data obtained by VTS San Francisco shows a 
relatively even distribution of vessel traffic between the three 
approaches. Reducing these three approaches to one would cause a 
convergence zone out of VTS and pilot coverage, increasing the risk of 
collision in the offshore area, as well as in the TSS itself because 
traffic from three approaches would be in one approach.
(3) Mandatory VTS Participation
    The recommendation regarding mandatory participation in VTS San 
Francisco is no longer relevant as this requirement has been in place 
since 1994 (59 FR 36324).
(4) Expansion of VTS
    The comments regarding expansion of VTS authority and area of 
responsibility to include the entire areas of the California national 
marine sanctuaries are not persuasive. VTS expansion into these open 
ocean areas will not significantly increase navigational safety due to 
lower traffic densities and the amount of sea room in which to 
navigate, when compared with port approaches.
    One suggested alternative to expanded VTS coverage was for 
commercial vessels to record their positioning data during transit, 
which could then be inspected to ensure compliance with vessel routing 
measures. Another suggested alternative was the real-time reporting of 
vessel positioning information at strategically placed waypoints along 
common routes. These suggestions may have merit and the Coast Guard 
will continue to consider various vessel reporting systems.
(5) Transponder-Based Technology
    Transponders and ADSSE are useful navigational tools and 
international performance standards for these technologies are 
currently under development by the International Maritime Organization 
(IMO). Once developed, we anticipate the transponders will be used, not 
only for reporting, but for collision avoidance as well. Absent the 
international performance standards applicable to all vessels, foreign 
and domestic, and absent a compelling navigation need to track vessels 
during the low risk coastwise transit, it is premature to mandate any 
transponder-based technology.

Summary

    The public comments and recommendations illustrate an ever growing 
concern for the protection of the environment and the natural resources 
of the California coastline. There exists a wide divergence of opinion: 
public, industry, environmental, and government on

[[Page 55251]]

what, if any, additional action is necessary or warranted to mitigate 
both real and perceived risks to the California marine resources.

Findings

Offshore routing for Coastwise Transit

    In light of the data, the existing body of operating requirements, 
the requirements imposed on tankers as a result of OPA 90, state of 
California initiatives such as the requirement for tug escorts, and the 
existing waterways management measures in the major port approaches, 
the Coast Guard finds that the coastwise transit does not present 
significant risk to navigation safety, and does not warrant new 
offshore vessel routing measures.
    In 1992, nearly 9000 tanker, cargo and barge vessels called on 
California's major ports, with 90 percent of these vessels calling on 
the ports of San Francisco Bay and Los Angeles/Long Beach. It is 
important to note that VTS and VTIS systems are already in place in 
these two ports. Other commercial interests, such as fishing vessels 
and passenger carriers, were not included in the data.
    Information collected from a variety of sources shows that the 
distances vessels transit offshore, especially between the major ports 
of Los Angeles/Long Beach and San Francisco Bay, are widely varied. Of 
the 2,837 crude oil tanker, petroleum product tanker, and barge trips 
along the California coast during 1992, over 82 percent occurred at 
least 25 miles off the coast.
    The Western States Petroleum Association (WSPA) has coordinated an 
agreement between 10 shipping companies to remain at least 50 miles 
from shore when transiting from Alaska to California. Of the two major 
barge companies which operate off the coast, one operates 50 miles 
offshore, while the other remains 8-10 miles from shore.

San Francisco TSS

    Vessel transit data gathered by the Vessel Traffic Service Center 
(VTS) in San Francisco in 1994, showed a fairly even distribution of 
traffic amongst the TSS approaches. The northern approach lanes 
accommodated 38 percent of the traffic, followed by the southern (35 
percent) and western (27 percent) approaches, respectively. These data 
strongly support the need for three approaches to San Francisco Bay. 
However, the current configuration of the southern approach lanes of 
the San Francisco TSS does not make the best use of available water.
    Rotating the southern approach seaward would increase transit 
distance from shore without crowding the western approach. Centering 
the southern approach between shore and the western approach would 
strike a reasonable balance between reducing the risk of grounding and 
the risk of collision.
    In a typical coastwise transit inbound for the San Francisco Bay 
via the southern approach lanes, a vessel would pass within four 
nautical miles of Point Montara and within seven nautical miles of 
Pigeon Point. Shifting the southern approach lanes to the west would 
encourage vessels to transit further offshore when entering or 
departing San Francisco, increase the minimum transit distance off 
Point Montara by six nautical mile to ten nautical miles.
    The northern and western TSS approaches to San Francisco meet the 
traffic routing needs between Pt. Reyes and Cordell Bank, and near the 
Farallones, respectively. Therefore, the Coast Guard is not 
recommending any changes to these two approaches.

Santa Barbara Channel TSS

    The current configuration of the northwestern end of the TSS in the 
Santa Barbara Channel encourages vessels to transit close to the 
offshore platforms of Hidalgo, Harvest, and Hermosa, as they round 
Point Conception. In addition, west bound vessels leaving the scheme 
are put into crossing situations with vessels entering the lanes from 
the north.
    Extending the TSS eighteen miles westward would increase the 
distance vessels transit from the platforms and Point Conception, and 
encourage greater offshore distances for coastwise transits, thereby 
decreasing the risk of allision and grounding.
    Adding a precautionary area at the northwest end of the TSS would 
add order and predictability to the crossing traffic streams, thereby 
decreasing collision risk.

Los Angeles/Long Beach TSS

    Vessel transit data gathered by the Vessel Traffic Information 
System (VTIS) in Los Angeles/Long Beach for 1994 also showed a fairly 
even distribution of traffic using the two approach lanes. Vessels 
transiting the north and west routes rely on the northern TSS (in the 
Santa Barbara Channel) and its exit at Point Conception. Comments did 
not suggest any changes to the TSS, nor did the study data suggest that 
changes were needed.

Conclusion and Recommendations

    The transit data support the Coast Guard's decision not to 
implement additional routing measures along California's coastline. 
Traffic lanes are established to facilitate port access. Establishing 
traffic lanes parallel to the coast would not facilitate port access 
and would compress vessels of different types, sizes, and speeds into a 
confined area where the risk of collision would increase significantly. 
Present International Regulations for Prevention of Collisions at Sea 
are sufficient to regulate offshore vessel traffic and ensure safe 
passage between vessels.
    The study data does, however, support the following recommended 
changes to existing routing measures.

San Francisco TSS

    (1) That the southern approach lanes of the TSS off San Francisco 
be shifted seven miles seaward as follows:
Part II: Southern Approach
    (a) A separation zone bounded by a line connecting the following 
geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
37 deg.39.10' N...........................  122 deg.40.40' W            
37 deg.27.00' N...........................  122 deg.40.40' W            
37 deg.27.00' N...........................  122 deg.43.00' W            
37 deg.39.10' N...........................  122 deg.43.00' W            
------------------------------------------------------------------------

    (b) A traffic lane for northbound traffic between the separation 
zone and a line connecting the following geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
37 deg.39.30' N...........................  122 deg.39.10' W            
37 deg.27.00' N...........................  122 deg.39.10' W            
------------------------------------------------------------------------

    (c) A traffic lane for southbound traffic between the separation 
zone and a line connecting the following geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
37 deg.27.00' N...........................  122 deg.44.30' W            
37 deg.39.40' N...........................  122 deg.44.30' W            
------------------------------------------------------------------------

Santa Barbara Channel TSS

    (1) That the TSS in the Santa Barbara Channel be extended from 
Point Conception to Point Arguello as follows:
    (a) A separation zone bounded by a line connecting the following 
geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
34 deg.20.90' N...........................  120 deg.30.10' W            
34 deg.18.90' N...........................  120 deg.30.90' W            
34 deg.25.70' N...........................  120 deg.51.75' W            

[[Page 55252]]

                                                                        
34 deg.23.75' N...........................  120 deg.52.45' W            
------------------------------------------------------------------------

    (b) A traffic lane for westbound traffic between the separation 
zone and a line connecting the following geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
34 deg.21.80' N...........................  120 deg.29.90' W            
34 deg.26.60' N...........................  120 deg.51.45' W            
------------------------------------------------------------------------

    (c) A traffic lane for eastbound traffic between the separation 
zone and a line connecting the following geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
34 deg.18.00' N...........................  120 deg.31.10' W            
34 deg.22.80' N...........................  120 deg.52.70' W            
------------------------------------------------------------------------

    (d) A precautionary area be established, bounded to the west by the 
arc of a circle of radius four miles centered upon the following 
geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
34 deg.25.80' N...........................  120 deg.56.50' W            
and connecting the following geographical position:.....................
34 deg.22.80' N...........................  120 deg.52.70' W            
34 deg.26.60' N...........................  120 deg.51.45' W            
------------------------------------------------------------------------

The precautionary area be bounded to the east by a line connecting the 
following geographical positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
34 deg.22.80' N...........................  120 deg.52.70' W            
34 deg.26.60' N...........................  120 deg.51.45' W            
------------------------------------------------------------------------

    In addition to the recommended changes to the San Francisco and 
Santa Barbara Channel TSS's, nautical charts depicting the San 
Francisco TSS should be amended to conform with approved IMO 
descriptions as follows:
    (1) Rename the Main Approach TSS segment as the Western Approach;
    (2) Redesignate the separation zone in the center of the circular 
precautionary area as an ATBA; and
    (3) Define the eastern boundary of the precautionary area by a line 
connecting the following geographic positions:

------------------------------------------------------------------------
                 Latitude                             Longitude         
------------------------------------------------------------------------
37 deg.42.70' N...........................  122 deg.34.60' W            
37 deg.45.90' N...........................  122 deg.38.00' W            
37 deg.50.30' N...........................  122 deg.38.00' W            
------------------------------------------------------------------------
Datum: NAD 83.                                                          

    The Coast Guard will publish a notice of proposed rulemaking in the 
Federal Register to solicit public comment on the recommended changes 
to the existing routing measures, and take necessary action at IMO.

    Dated: October 15, 1996.
J.C. Card,
Rear Admiral, U.S. Coast Guard, Chief, Marine Safety and Environmental 
Protection.
[FR Doc. 96-27486 Filed 10-24-96; 8:45 am]
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