[Federal Register Volume 63, Number 51 (Tuesday, March 17, 1998)]
[Notices]
[Pages 13092-13094]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-6885]


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DEPARTMENT OF TRANSPORTATION

Coast Guard
[USCG-1998-3584]


Proposed Modernization of the Coast Guard National Distress 
System

AGENCY: Coast Guard, DOT.

ACTION: Notice of intent to prepare an environmental assessment; and 
request for public comment.

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SUMMARY: The United States Coast Guard (USCG) is seeking early public 
input on their proposed action to modernize the National Distress 
System (NDS), a major portion of their Short Range Communications 
System (SRCS). To more effectively accomplish maritime safety, maritime 
law enforcement, national security, and marine environmental 
protection, the USCG needs a more efficient, modern, and 
technologically advanced system than the current NDS.
    In accordance with the National Environmental Policy Act, the Coast 
Guard intends to prepare a programmatic environmental assessment (EA) 
on the viable alternatives for achieving a more modern and effective 
system. The environmental assessment will examine the reasonable 
alternatives available to the USCG to fulfill their need for an 
efficient, modern, and technologically improved National Distress 
System and whether any alternatives have the potential for significant 
environmental impacts. At this time, the USCG does not have a preferred 
alternative.
    Specifically, we are requesting input on any environmental concerns 
you may have related to the existing NDS or to alternatives for 
achieving a modernized system, suggested analyses or methodologies for 
inclusion in the EA, possible sources of relevant data or information, 
or other alternatives not included in this notice.

DATES: Comments must be received by 13 April 1998.

ADDRESSES: You may mail comments to the Docket Management Facility, 
[USCG-1998-3584], U.S. Department of Transportation, Room PL-401, 400 
Seventh Street SW., Washington, DC 20590-0001, or deliver them to room 
PL-401, located on the Plaza Level of the Nassif Building at the same 
address between 10 a.m. and 5 p.m., Monday through Friday, except 
Federal holidays. The telephone number to the Docket Management 
Facility is (202) 366-9329.
    The Docket Management Facility maintains the public docket for this 
notice. Comments, and documents as indicated in this preamble, 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 at the above address between 9:30 a.m. and 2 p.m., Monday 
through Friday, except Federal holidays.

FOR FURTHER INFORMATION CONTACT:
Mr. Dan Muslin, telephone: (619) 532-3403, for questions concerning 
this notice, the proposed modernization project, or the associated EA. 
For questions concerning the Docket Management Facility contact 
Paulette Twine, Chief, Documentary Services Division, U.S. Department 
of Transportation, telephone (202) 366-9329.

SUPPLEMENTARY INFORMATION:

Request for Comments

    The Coast Guard encourages your participation in the environmental 
analysis of the proposed NDS modernization by the submission of written 
data, views, or arguments. Your comments should include your name and 
address, and identify this notice [USCG-1998-3584] and the specific 
section of the notice to which each comment applies, along with the 
reason for each comment. Please submit all comments and attachments in 
an unbound format, no larger than 8\1/2\ by 11 inches, suitable for 
copying and electronic filing to the DOT Docket Management Facility at 
the address under ADDRESSES. If you want acknowledgment of receipt of 
your comment, enclose a stamped, self-addressed postcard or envelope.
    The Coast Guard will consider all comments received during the 
comment period.
    The Coast Guard plans no public hearing. You may request a public 
hearing by submitting a request to the address under ADDRESSES. The 
request should include the reasons a hearing would be beneficial. If 
the Coast Guard determines that oral presentations are crucial to the 
preparation of the EA, and will significantly aid in environmental 
planning for the proposal, it will hold a public hearing at a time and 
place announced by a later notice in the Federal Register.

Background

    The NDS forms the backbone of the Coast Guard's Short Range 
Communication System (SRCS) which supports Coast Guard Activity, Group, 
Marine Safety Office (MSO), Vessel Traffic Service (VTS), Air Station, 
Cutter and Station operations. As part of the SRCS, the National 
Distress System incorporates the use of VHF-FM radios to provide two-
way voice communications coverage for the majority of Coast Guard 
missions in coastal areas and navigable waterways where commercial and 
recreational traffic exists. The system, consisting of approximately 
300 remotely controlled VHF transceivers and antenna high-level sites, 
was originally intended for monitoring the international VHF-FM 
maritime distress frequency (Channel 16), and as the primary command 
and control network to coorindate Coast Guard search and rescue (SAR) 
response activities. The secondary function was to provide command, 
control, and communications for the Coast Guard missions of National 
Security, Maritime Safety, Law Enforcement, and Marine Environmental 
Protection.

Need for Action

    Due to the following deficiencies present in the current system, 
the Coast Guard has identified a need for an efficient, modern, more 
technologically advanced National Distress System than the one 
currently in place:
    Obsolete/Nonstandard Equipment. The NDS was originally put into 
service in the 1970's and now suffers from technological obsolescence. 
Much of the existing equipment is no longer commercially available off-
the-shelf and is becoming increasingly difficult to support. The 
expected service life of electronic equipment installed during this 
period was 15 years. Equipment failures have necessitated the 
replacement of many system components that are no longer commercially 
available, resulting in a lack of standardization. Costly short-term 
fixes such as individual off-the-shelf purchases of equipment (e.g., 
new command modules, recording and playback equipment, direction 
finding receivers, cellular phones, and Digital Encryption Standard 
(DES) radios) and services are being applied in the field to

[[Page 13093]]

marginally sustain the current system. The result is a collection of 
nonstandard and difficult to maintain equipment.
    Coverage Gaps. The current NDS was intended to provide coverage 
extending out to approximately 20 nautical miles from shore. The 
present system does not provide complete coverage of the continental 
U.S. coastal areas, bays, inlets, and river systems. Presently there 
are over 65 verified gaps and numerous localized coverage deficiencies 
identified by local operational commanders.
    Inadequate Channel Capacity. Twenty years of expanding CG mission 
requirements have also added to the traffic load, far exceeding the 
capacity of the original design. The NDS now suffers from inadequate 
channel capacity especially during multiple simultaneous operations and 
``surge'' operations. The system does not have a sufficient number of 
channels or adequate channel capacity to allow the Coast Guard to 
respond to crisis operations and provide sufficient voice channel and 
communications capacity to support multiple Coast Guard operations. 
When the Coast Guard is transmitting on the system, we are unable to 
adequately monitor the VHF-FM international distress frequency at the 
same time.
    No Digital Selective Calling Capability. Recent amendments to the 
International Maritime Organization (IMO) Safety Of Life At Sea (SOLAS) 
agreements concerning the Global Maritime Distress and Safety System 
(GMDSS) require that SOLAS-class vessels carry Digital Selective 
Calling (DSC) equipped VHF-FM radios by 1 February 1999. These vessels 
will no longer be required to monitor Channel 16 at sea after February 
2005, and will increasingly be using Channel 70 VHF-FM (DSC only) as 
the international VHF-FM distress and calling channel after February 
1999. Additionally, DSC equipment may be used by any vessel 
voluntarily. The current NDS does not have DSC capability which will 
result in the Coast Guard becoming increasingly unable to communicate 
with large segments of the maritime industry/public on international 
VHF-FM distress frequencies.
    Not Adequately Reliable During/After Natural Disasters. The current 
NDS is extremely susceptible to catastrophic failure during a major 
natural disaster. A failure to any part of the system will in many 
cases result in loss of communication in wide areas of the system's 
advertised coverage. The system cannot restore key operational links 
and system components within a reasonable period following a failure. 
The system does not provide adequate backup power to critical and 
primary communications system components.
    No Interface with Rest of the Coast Guard Telecommunication System. 
The current NDS has no interface with our Long Range Communications 
System (LRCS), our data network, nor the Pubic Switched Telephone 
Network (PSTN). These deficiencies decrease the Coast Guard's ability 
to effectively conduct its missions.
    Inadequate Transmission Security. The system is severely limited in 
its ability to protect communications when transmitting sensitive 
information. This is key while conducting many Coast Guard missions 
(e.g., law enforcement, search and rescue, pollution response). 
Security of internal Coast Guard transmissions is mandated by National 
Security Decision Directive 145 (NSDD 145), Presidential Directive 24 
(PD 24), and their follow-on directive, National Security Directive 42 
(NSD 42).
    Inadequate Communications with Public Safety and Other Agencies. 
Essential communications with other Federal, State, and local agencies 
are often hindered or unavailable due to lack of compatible 
communications equipment.
    Poor Position Locating Capability. The system cannot adequately 
pinpoint the location of a caller and, therefore, is limited in its 
ability to aid in search for vessels or survivors that do not report, 
do not know, or incorrectly report, their position, nor can it 
adequately assist in locating hoax originators.
    Limited Data Capability. The system also has limited ability to 
transmit or obtain information regarding marine safety, environmental 
monitoring/compliance, intelligence information, or information to and 
from mariners and others. Such information could include situational 
and operational reports, automated Coast Guard asset tracking, 
transmission of search and rescue (SAR) or law enforcement information, 
and marine safety broadcasts.
    Poor Caller Verification Assistance and Recording Capability. 
Finally, the system does not have capability to adequately record and 
instantly playback incoming voice transmissions to aid immediate 
responses and for record purposes.

Purpose of the Proposed Action

    The purpose of the proposed action is to provide an efficient, 
cost-effective, and technologically adequate National Distress System 
that rectifies the deficiencies listed previously and adequately 
supports Coast Guard Activity, Group, Marine Safety Office (MSO), 
Vessel Traffic Service (VTS), Air Station, Cutter, and Station 
operations.

Alternatives

    The Coast Guard's proposed action is to modernize the current 
obsolete and nonstandard NDS by adopting one of the general concepts 
for a new system presented in alternatives B, C or D listed below. 
Alternative A (Status Quo or no action) will not fulfill the stated 
need; however, it will be analyzed in the EA to provide a baseline for 
comparison with the action alternatives. Currently, the Coast Guard 
does not have a preferred alternative among B, C or D. The following 
alternatives are being considered in the EA:
    Alternative A--Status Quo. Continue operations with existing 
network of analog transceivers. Provide logistics support as needed and 
as available.
    Alternative B--Upgrade Status Quo. Systematically upgrade existing 
network with modern analog transceivers. Integrate DSC, digital 
encryption standard (DES), and digital recording equipment. This 
alternative replaces old equipment with new equipment and adds 
additional radio capability. Adding position location and filling 
coverage gaps is also desired. It is expected that fulfilling these 
last two requirements will require additional antenna sites.
    Alternative C--Dual Mode VHF and/or UHF Network. Replace existing 
analog network with dual mode (digital) and analog) transceivers. 
Digital: Programmable and adaptable to digital signal processing 
technologies and narrowband channel spacing. Analog: compatible to the 
VHF marine radios in use by the maritime public. Integrate DSC, 
encryption capability, digital recording equipment, and data 
transmission capability. This alternative replaces old radios with new 
equipment and also adds additional radio capability. Adding position 
location and filling coverage gaps is also desired. It is expected that 
fulfilling these last two requirements will require additional antenna 
sites.
    Alternative D--Multi-Mode: Satellite, Cellular, VHF and/or UHF 
Network. Replace the existing network with multi-mode equipment that 
utilizes satellite, cellular, and VHF/UHF communications. Integrate 
DSC, signal encryption capability, digital recording equipment, and 
data transmission capability. Adding position location and filling 
coverage gaps is also desired. It is expected that fulfilling these 
last two requirements will require additional antenna sites.
    All the alternatives will require approximately the same number of 
additional antenna sites with the

[[Page 13094]]

exception of the ``Status Quo'' alternative.

Affected Environment

    The environment which may be affected by the proposed action may be 
portions of the marine and terrestrial (both urban and rural) coastal 
region of the continental U.S., Alaska, Hawaii, the Caribbean, Guam, 
the Great Lakes and major inland bays and waterways (including Western 
Rivers) where the Coast Guard has jurisdiction and where commercial 
and/or recreational maritime traffic exist. The EA will discuss the 
general aspects of the affected environment outlined above and areas of 
discussion may include air quality, terrestrial vegetation and wildlife 
(perhaps including endangered species and their habitat), prime and 
unique farmlands, historic and cultural resources, wetlands, parks, 
sanctuaries, conservation/preservation areas, 100-year flood plains, 
marine vegetation and wildlife (perhaps including endangered species 
and their habitat), and water quality.

Anticipated Environmental Issues

Areas of Potential Environmental Concern

    Internal research has revealed that the following areas may be 
issues of possible environmental concern: Radio waves (estimated 100 
MHz to 1 GHz) from antenna sites; disposal of replaced system 
components and any associated hazardous materials, including future 
disposal of any hazardous materials associated with the new system; 
disturbance of nesting birds, or possible bird mortality from striking 
tower guy wires or from construction of antenna sites, enclosures, and 
land lines. Possible impacts from construction could be: disturbance of 
vegetation and wildlife (perhaps including endangered species and their 
habitat) wetland disturbance, air emissions, effects to historic/
cultural resources including archeological resources, air quality, 
aesthetics, and construction noise.

Anticipated Environmental Benefits

    Oil Spill Prevention. Increased prevention of accident such as oil 
spills or other hazardous materials from increased ability to track 
commercial shipping and prevent groundings.
    Oil Spill Clean Up. Expedited cleanup of accidents such as oil 
spills or other hazardous material spills from increased ability to: 
pinpoint the location of a distressed vessel or accident, respond 
quickly to distress calls, contact and coordinate with appropriate 
spill response teams and other important specialists outside the Coast 
Guard, disseminate marine safety information, and continue operations 
during natural disasters.
    Endangered Species Act/Conservation Laws Warnings/Enforcement. 
Increased ability to communicate environmental information/warnings to 
mariners regarding endangered species sightings/activity (e.g., North 
Atlantic Right Whale, Kemp's Ridley sea turtle, manatee). Improved 
coordination of responses with National Marine Fisheries Service and 
state/local civilian responders to distressed endangered species (e.g., 
stranded, entangled, or distressed animals). Increased ability to 
communicate important environmental information to State or local 
environmental agencies for record purposes. Improved protection of 
communications for fisheries and conservation enforcement. Anticipated 
Non-Environmental Benefits.
    Increased Safety of Human Life. Increased ability to communicate 
with, and respond to, the maritime public (recreational and commercial) 
when in distress. Position locating capability will improve response 
time, reducing loss of life. Digital Selective Calling capability will 
allow receipt of distress alerts from DSC-equipped vessels.
    Increased Public Service. The Coast Guard will be able to receive 
all incoming short-range distress calls without interruption. 
Additionally, the Coast Guard will be able to close the current gaps in 
communication coverage and achieve improved overall communications with 
various Federal, State, and local agencies.
    Increased Maritime Law Enforcement. The protection of sensitive 
communications will enhance the Coast Guard law enforcement capability 
and interoperability with other federal, state, and local agencies.
    Increased National Security. In addition to supporting Maritime Law 
Enforcement, improved communications protection in the modernization 
NDS will support defense missions in the coastal areas.
R.J. Casto,
Rear Admiral, U.S. Coast Guard, Assistant Commandant for Acquisition.
[FR Doc. 98-6885 Filed 3-16-98; 8:45 am]
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