[Federal Register Volume 64, Number 26 (Tuesday, February 9, 1999)]
[Rules and Regulations]
[Pages 6253-6255]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-2620]


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FEDERAL COMMUNICATIONS COMMISSION

47 CFR Part 80

[FCC 98-296]


Waiver of GMDSS Rules for Small Passenger Vessels and Fishing 
Vessels

AGENCY: Federal Communications Commission.

ACTION: Partial waiver of rules.

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SUMMARY: On November 20, 1998, the Commission issued an Order waiving 
certain of its Rules implementing the Global Maritime Distress and 
Safety System (GMDSS) as applied to fishing vessels until it can 
conclude a rule making proceeding to determine what GMDSS equipment is 
appropriate for fishing vessels. In the same order, the Commission 
waived certain of its Rules implementing the GMDSS as applied to small 
passenger vessels until the United States Coast Guard has notified the 
Commission that Sea Areas A1 and A2 have been established.

DATES: Waiver is effective Feburary 1, 1999.

FOR FURTHER INFORMATION CONTACT: Michael J. Wilhelm, or Jim Shaffer, 
Public Safety and Private Wireless Division, Wireless 
Telecommunications Bureau, Federal Communications Commission, 2025 M 
Street, NW, Washington, DC 20554 or by telephone at (202) 418-0680 or 
by e-mail to, respectively, [email protected] or [email protected].

SUPPLEMENTARY INFORMATION: This is a summary of the Commission's Order 
released November 20, 1998.

I. Introduction and Executive Summary

    1. By this Order we grant temporary, conditional waivers pursuant 
to Part II of Title III of the Communications Act of certain Commission 
rules implementing the provisions of the Safety of Life at Sea (SOLAS) 
Convention for small passenger vessels and fishing vessels.1 
The waivers affect fishing vessels 2 and small passenger 
vessels that make short voyages in certain narrowly-defined waters. 
Absent the action taken herein, fishing vessels and small passenger 
vessels would be required to fully implement the Global Maritime 
Distress and Safety System (GMDSS) on February 1, 1999.3 We 
are granting the waiver for small passenger vessels inter alia because 
the short-based stations necessary for GMDSS short-range and medium-
range digital selective calling (DSC) communications are not yet fully 
implemented in the United States. Consequently, were small passenger 
vessels required to fully conform to the GMDSS rules, those vessels 
would have to install the equipment necessary for long-range 
communication. The long-range equipment would be costly and unnecessary 
from a safety standpoint for small passenger vessels. In the case of 
fishing vessels, at the behest of representatives of the fishing 
industry, we are granting a temporary, conditional waiver from 
compliance with certain of the Commission's GMDSS rules pending 
completion of a rule making proceeding addressed to the issue of 
whether fishing vessels should be required to comply fully with the 
Commission's GMDSS rules. The waivers herein affect only rules that 
were to take effect on February 1, 1999. As a result, nothing herein 
should be construed as a waiver of GMDSS rules which already are in 
effect.
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    \1\ See Consolidated Text of the International Convention for 
the Safety of Life at Sea, 1974, and its Protocol of 1978: Articles, 
Annexes and Certificates, Incorporating all Amendments in Effect 
from 1 July 1997, International Maritime Organization, London, 1997 
(SOLAS Convention).
    \2\ ``Fishing vessels'' for the purposes of this Order are 
commercial vessels that catch and/or process fish and other marine 
life. C.f. SOLAS Convention, Part A, Regulation 2(i).
    \3\ See 47 CFR Subpart W.
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II. Background

    2. GMDSS Implementation. In the GMDSS R&O,4 the 
Commission established a schedule, consistent with the one adopted 
internationally, under which the GMDSS would be phased-in for United 
States vessels. The current GMDSS rules require that all United States 
compulsory vessels 5 must be equipped with a full GMDSS 
installation for alerting and communications purposes by February 1, 
1999.6 The Commission's GMDSS rules require all compulsory 
vessels to carry a complement of basic GMDSS equipment which includes a 
VHF installation with digital selective calling (DSC), a NAVTEX 
receiver, a float-free satellite EPIRB, one or more search and rescue 
radar transponders (SARTs), and two or more VHF portable radios. In 
addition, these vessels must carry certain other communications 
equipment depending on the ``Sea Area'' in which a vessel 
operates.7 There are four possible Sea Areas (designated Sea 
Areas A1-A4).8 Sea Areas A3 and

[[Page 6254]]

A4 are currently established and in use world-wide and rely, for their 
operation, on ship borne DSC-equipped high frequency (HF) transceivers 
or INMARSAT satellite terminals. In the United States, Sea Areas A1 and 
A2 are not established because the requisite shore-based VHF and MF DSC 
equipment is not in place. Accordingly, absent a waiver, compulsory 
ships in United States waters must be fitted with Sea Area A3 or A4 
equipment in order to participate in the ship-to-shore and shore-to-
ship portion of the GMDSS. The Sea Area A3 and A4 equipment, intended 
for long ocean-going voyages, is significantly more expensive than the 
Sea Area A1 and A2 equipment.
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    \4\ See Amendment of Parts 13 and 80 of the Commission's Rules 
to Implement the Global Maritime Distress and Safety System to 
Improve the Safety of Life at Sea, PR Docket No. 90-480, Report and 
Order, 7 FCC Rcd 951 (1992) (GMDSS R&O), petition for 
reconsideration denied, Memorandum Opinion and Order, FCC 98-180 
(released August 10, 1998), 63 FR 49870 (September 18, 1998).
    \5\ Compulsory vessels are cargo ships of 300 gross tons or over 
travelling in the open sea, and all passenger ships, irrespective of 
size, that carry more than 12 passengers when travelling in the open 
sea. See 47 CFR 80.1065(b).
    \6\ See 47 CFR 80.1065.
    \7\ See 47 CFR 80.1089--80.1093.
    \8\  The GMDSS Sea Areas are defined as follows: Sea Area A1--an 
area within the radiotelephone coverage of at least one VHF coast 
station in which continuous DSC alerting is available (this would 
normally extend approximately 20-30 miles from shore); Sea Area A2--
an area, excluding Sea Area A1, within the radiotelephone coverage 
of at least one MF coast station in which continuous DSC alerting is 
available (this would normally extend up to 75-150 miles from 
shore); Sea Area A3--an area, excluding Sea Areas A1 and A2, within 
the coverage of an INMARSAT geostationary satellite in which 
continuous alerting is available (the area between 70 deg. North 
Latitude and 70 deg. South Latitude, which is within the footprint 
of the INMARSAT system); Sea Area A4--an area outside Sea Areas A1, 
A2, and A3 (essentially the polar regions). See 47 CFR 80.1069.
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III. Discussion

    3. Permitting small passenger vessels to defer GMDSS compliance 
until Sea Areas A1 and A2 are established serves the public interest by 
avoiding the need for short-range vessels to unnecessarily purchase and 
install the equipment appropriate for long-range communication. The 
public interest is likewise served by not finalizing the GMDSS 
equipment requirements for fishing vessels until the Commission has had 
the opportunity to consider, in a rule making context, whether there 
are characteristics of fishing vessels that dictate making special 
provisions for fishing vessels in the GMDSS rules.
    4. The general exemption rule for small passenger vessels, 
Sec. 80.933 of the Commission's Rules, provides that, prior to February 
1, 1999, certain small passenger vessels are exempt from: (a) the 
radiotelegraph carriage requirements of the Communications Act; (b) the 
MF radiotelephone requirements of the Commission's Rules; and (c) 
Regulations 7 through 11 of Chapter IV of the SOLAS 
Convention.9 The general exemption, 
Sec. 80.933(c),10 is narrowly drawn in geographic terms 
11 and applies only to United States small passenger vessels 
that operate not more than 20 nautical miles from land, or 
alternatively, 200 nautical miles between consecutive ports. The 
current exemption expires on January 31, 1999 because, effective 
February 1, 1999, the Commission's GMDSS rules, only portions of which 
are currently in effect, would be fully implemented for all compulsory 
vessels.12
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    \9\ Regulations 7 through 11 of Chapter IV of the SOLAS 
Convention define the basic radio equipment required for GMDSS-
compliant ships and the additional equipment required for operation 
in Sea Areas A1-A4.
    \10\ 47 U.S.C. 80.933(c).
    \11\ See 47 CFR 80.933(c)(4)(i)-(iii), (d)(1)-(3).
    \12\ See 47 CFR 80.1065(b)(3),(4). Note, however, that in the 
instant Order, the provisions of certain GMDSS rules as they apply 
to fishing vessels also are waived. See para. infra.
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    5. We note that the expiration date set for the small passenger 
vessel exemption in Sec. 80.933 of the Commission's Rules was premised 
on the shore-based terrestrial portions of the GMDSS being in place by 
February 1, 1999.13 Accordingly, it was anticipated that on 
February 1, 1999, small passenger vessels would be fully in compliance 
with the GMDSS rules if they were fitted with VHF-DSC and/or MF-DSC 
equipment in addition to the GMDSS equipment already required. However, 
because Sea Areas A1 and A2 have not been established, small passenger 
vessels would require Sea Area A3 or A4 equipment to comply with the 
GMDSS rules unless the small passenger vessel exemption supra is 
extended pending establishment of Sea Areas A1 and A2 in the United 
States.
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    \13\ Amendment of Parts 13 and 80 of the Commission's Rules to 
Implement the Global Maritime Distress and Safety System (GMDSS) to 
Improve the Safety of Life at Sea, PR Docket No. 90-480, Notice of 
Proposed Rule Making, 5 FCC Rcd 6212, 6214 (1990).
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    6. We do not believe it would further the public interest to 
require small passenger vessels to be fitted with costly equipment that 
would be of little or no utility once Sea Areas A1 and A2 are 
established. Given the route and conditions of the voyages routinely 
made by these small passenger vessels, we find that it is reasonable to 
grant these small passenger vessels a temporary, conditional waiver of 
certain of the Commission's GMDSS rules by extending the termination 
date of the general exemption supra. Thereby we exempt these small 
passenger vessels both from the carriage of radiotelegraph equipment 
and certain equipment specified in the Commission's GMDSS rules, 
provided that these vessels carry the equipment specified in the 
general exemption rule, Sec. 80.933. In so doing, we are substituting 
the equipment specified in Sec. 80.933 of the Commission's Rules for 
that specified in Regulations 7 through 11 of Chapter IV of the SOLAS 
Convention, pursuant to Regulation 5 of Chapter I of the SOLAS 
Convention which permits substitution of equivalent equipment when such 
equipment will be at least as effective as that specified in the SOLAS 
Convention.14 The small passenger vessel waiver will be 
terminated by the Commission once the Coast Guard has notified the 
Commission that shore-based Sea Area A1 and A2 coverage is established, 
at which time, small passenger vessels will be required to fully comply 
with the Commission's GMDSS rules.15
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    \14\ See Amendment of Part 80 of the Commission's Rules 
Concerning the General Exemption for Large Cargo Oceangoing Cargo 
Vessels and Small Passenger Vessels, WT Docket No. 93-133, Report 
and Order, FCC 95-447 (released Nov. 8, 1995) at para. 22, 60 FR 
58243 (November 27, 1995).
    \15\ The Commission intends to provide at least six months 
notice before terminating the waiver of certain of the GMDSS rules 
as they apply to small passenger vessels.
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    7. Fishing Vessels. Traditionally, fishing vessels have been 
treated as cargo vessels for the purposes of the Commission's Rules. 
They are considered cargo vessels because the Communications Act 
defines ``cargo ship'' as ``any ship not a passenger ship.'' 
16 Accordingly, fishing vessels have been required to carry 
the radiotelegraph and radiotelephone equipment, including GMDSS 
equipment, specified for cargo ships in the Communications Act and in 
the Commission's Rules.17 As a result, since August 1, 1993, 
fishing vessels of 300 gross tons or more have been required to carry a 
NAVTEX receiver for the reception of maritime safety information and a 
float-free satellite EPIRB,18 and, since February 1, 1995, 
such ships have been required to carry specified survival craft radio 
equipment.19 Thus, to date, fishing vessels of 300 gross 
tons or more have been subject to the Commission's GMDSS 
rules.20
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    \16\ 47 U.S.C. Sec. 153(39)(C).
    \17\ See 47 U.S.C. 351-363; 47 CFR 80.801-80.879, 80.951-
80.1135.
    \18\ All compulsory ships were required to comply with 47 CFR 
80.1085(a)(4) and 80.1085(a)(6) by August 1, 1993, and with 47 CFR 
80.1095 by February 1, 1995. See 47 CFR 80.1065(b)(1), 
80.1065(b)(2).
    \19\ See 47 CFR 80.1065(2), 80.1095.
    \20\ See 47 CFR 80.1065(b).
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    8. Representatives of the fishing industry 21 have 
claimed to the

[[Page 6255]]

Commission 22 and to members of Congress 23 that 
requiring fishing vessels to comply with the DSC communications 
requirements of the GMDSS rules by February 1, 1999, would constitute 
an unnecessary financial burden.24 In this connection, they 
argue that, because of the lack of shore coverage to support Sea Areas 
A1 and A2, fishing vessels would be required to carry more expensive 
Sea Area A3 or A4 equipment.25 Moreover, they urge that the 
Commission revisit its GMDSS rules, as they apply to fishing vessels, 
because the SOLAS Convention specifically exempts fishing vessels from 
the SOLAS GMDSS regulations.26 Further, they contend that, 
if the GMDSS is implemented on compulsory vessels--which then 
discontinue standing watch on the current distress channels (VHF 
Channel 16 and MF frequency 2182 kHz)--smaller vessels, lacking DSC 
capability, will have difficulty contacting the GMDSS-equipped vessels 
in the event of an emergency.27 In order to more fully 
examine these issues, we believe it best to issue a temporary, 
conditional waiver of certain of the Commission's GMDSS rules 
applicable to fishing vessels until we conclude a rule making 
proceeding addressing the concerns of the fishing industry and such 
other parties who may elect to participate. Accordingly, by this Order, 
we grant a temporary, conditional waiver, until a date to be announced 
in the future, of the requirement that fishing vessels comply with 
certain provisions of Part 80, Subpart W of the Commission's Rules 
requiring installation and use of GMDSS equipment. This waiver is 
conditioned on the requirement that, during the duration of the waiver, 
fishing vessels of 300 gross tons or greater shall continue to comply 
with Commission GMDSS rules currently in effect, namely 
Secs. 80.1085(a)(4) (NAVTEX receiver), 80.1085(a)(6) (EPIRB) and 
80.1095 (survival craft equipment) of the Commission's Rules. Moreover, 
this waiver does not relieve fishing vessels from compliance with the 
provisions of Subparts Q and R of Part 80 of the Commission's Rules.
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    \21\ See Letter dated September 1, 1998, from Fishing Industry 
Task Force on GMDSS/DSC (Messrs. Thorn Smith, et al.) to William E. 
Kennard, Chairman, Federal Communications Commission; Letter dated 
April 21, 1998, to the Hon. Ted Stevens from the Kodiak Vessel 
Owners' Association, Alaska Groundfish Data Bank, United Catcher 
Boats, Deep Sea Fishermen's Union, Aleutians East Borough, Alaska 
Longline Fish Association, Unisea, Inc., Tyson Seafood Group, Inc, 
NorQuest Seafoods, Inc. Petersburg Vessel Owners, Pacific Seafood 
Processing Association, United Fishermen's Marketing Association, 
Inc., Alaska Draggers Association, North Pacific Longline 
Association, Fishing Vessel Owners' Association, Alaska Crab 
Coalition, At-Sea Processors Association, and Groundfish Forum 
(Stevens Letter); Letter dated April 20, 1998, to the Hon. Slade 
Gorton from the North Pacific Fishing Vessel Owners' Association, 
Yardarm Knot, Inc. and Snopac Products, Inc. (Gorton Letter).
    \22\ See Letter dated July 15, 1998, from the Hon. Frank 
Murkowski to William E. Kennard, Chairman, Federal Communications 
Commission.
    \23\ Id. See also Amendment to the Department of Commerce, 
Justice and State, the Judiciary and Related Agencies Appropriations 
Act of 1999, remarks of the Hon. Frank Murkowski, 144 Cong. Rec. 
S8854.
    \24\ See Stevens Letter at 1.
    \25\ Id.
    \26\ See SOLAS Convention, Chapter I, Regulation 3 (a)(vi).
    \27\ See Gorton Letter at 1, 2.
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    9. Ship Radio Certificates. Without the relief afforded in this 
Order, the ship radio certificates for small passenger ships on short 
voyages and fishing vessels would have expired on February 1, 1999, 
unless GMDSS systems had been installed on those vessels. However, with 
the relief afforded herein, those radio certificates will remain valid 
until the expiration dates contained thereon or the expiration of any 
renewal terms thereof; provided, however, that such ship radio 
certificates shall expire with respect to a vessel on the date the 
Commission terminates the waiver granted hereby with respect to such 
vessel. Moreover, Commission-authorized inspectors will renew ship 
radio certificates, or issue new ship radio certificates, to small 
passenger ships and fishing vessels that lack GMDSS installations, 
provided those vessels meet the conditions imposed herein and otherwise 
comply with the Commission's Rules.

IV. Ordering Clauses

    10. It is ordered that, pursuant to the authority contained in 
sections 4(i) and 303(r) of the Communications Act of 1934, as amended, 
47 U.S.C. 154(i) and 303(r), that Subpart W of Part 80 of the 
Commission's rules is temporarily waived as it applies to small 
passenger vessels on the short voyages defined in Sec. 80.933 of the 
Commission's Rules,28 Provided that such vessels comply with 
the provisions of Sec. 80.933 of the Commission's Rules, 
notwithstanding the expiration dates therein. It is further ordered 
that authority is delegated to the Chief of the Wireless 
Telecommunications Bureau to terminate said temporary, conditional 
waiver as it applies to small passenger vessels at such time as the 
Chief of the Wireless Telecommunications Bureau deems appropriate after 
the Coast Guard has notified the Commission that shore-based Sea Area 
A1 and A2 coverage is established but no sooner than six months 
following the establishment of shore-based coverage for Sea Areas A1 
and A2.
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    \28\ 47 CFR 80.933.
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    It is further ordered that Subpart W of Part 80 of the Commission's 
Rules is temporarily and partially waived as it applies to fishing 
vessels, as discussed herein 29 Provided that fishing 
vessels shall abide by the provisions of Secs. 80.1085(a)(4), 
80.1085(a)(6) and 80.1095 of the Commission's Rules.30

    \29\ See n. supra.
    \30\ 47 CFR 80.1085(a)(4), 80.1085(a)(6) and 80.1095.
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Federal Communications Commission.
Magalie Roman Salas,
Secretary.
[FR Doc. 99-2620 Filed 2-8-99; 8:45 am]
BILLING CODE 6712-01-P