[Federal Register Volume 64, Number 105 (Wednesday, June 2, 1999)]
[Rules and Regulations]
[Pages 29554-29558]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-13935]


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DEPARTMENT OF TRANSPORTATION

Coast Guard

33 CFR Parts 110, 162, and 165

[CGD17-99-002]
RIN 2115-AF81


Anchorage Ground; Safety Zone; Speed Limit; Tongass Narrows and 
Ketchikan, AK

AGENCY: Coast Guard, DOT.

ACTION: Interim rule; request for comments.

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SUMMARY: The Coast Guard has changed the portions of Tongass Narrows 
that have a seven-know speed limit. The interim rule will extend seven-
knot speed limit approximately 1600 yards northward in Tongass Narrows, 
to Tongass Narrows Buoy 9, to reduce wakes near the airport where 
floatplanes take off and land. Non-commercial, open skiffs are exempted 
to allow them to transit crowded areas of Tongass Narrows more quickly, 
thereby relieving congestion. The speed limit boundaries on the 
southern end of Tongass Narrows are moved northward, reducing the size 
of the speed limit zone to the south. This rule also re-designates the 
safety zone in Ketchikan Harbor as an anchorage ground to reflect its 
actual use as an anchorage for large passenger vessels and require that 
transiting vessels proceed through the anchorage directly, without 
delay or sudden course changes, to make the final approach,

[[Page 29555]]

anchoring, and departure of very large passenger vessels, safer for the 
vessels involved.

DATES: The interim rule becomes effective June 2, 1999. Comments 
regarding this interim rule must be received by November 30, 1999.
    A public hearing will be held on August 27, 1999 at 7 p.m. (AST).

ADDRESSES: You may mail comments to the Commander (mo), Seventeenth 
Coast Guard District, PO Box 25517, Juneau, Alaska 99802-5517, or 
deliver them to the Federal Building, 709 West 9th Street, sixth floor, 
room 661, Juneau, Alaska, between 8 a.m. and 4 p.m., Monday through 
Friday, except Federal holidays. The telephone number is 907-463-2242. 
The Seventeenth Coast Guard District, Maritime Operations Division, 
maintains the public docket for this rulemaking. Comments, and 
documents as indicated in this preamble, will become part of this 
docket and will be available for inspection or copying at room 661, 
between 8 a.m. and 4 p.m., Monday through Friday, except Federal 
holidays.
    The public hearing will be held at the Ted Ferry Civil Center, 888 
Venetia Avenue, Ketchikan, Alaska.

FOR FURTHER INFORMATION CONTACT: For information concerning this 
document, call Lieutenant P.W. Clark, Supervisor, U.S. Coast Guard 
Marine Safety Detachment, Ketchikan, Alaska, telephone 907-225-4496.

SUPPLEMENTARY INFORMATION:

Request for Comments

    The Coast Guard encourages you to participate in this rulemaking by 
submitting written data, views, or arguments. Persons submitting 
comments should include their names and addresses, identify this 
rulemaking (CGD17-99-002) and the specific section of this document to 
which each comment applies, and give the reason for each comment. 
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. If you want acknowledgement of receipt of your 
comments, you should enclose a stamped, self-addressed postcard or 
envelope.
    The Coast Guard will consider all comments received during the 
comment period. It may change this interim rule in view of the 
comments.
    The Coast Guard has scheduled a public hearing for 7 p.m. (AST), 
August 26, 1999, at the Ted Ferry Civil Center, 888 Venetia Ave., 
Ketchikan, Alaska.
    Persons may request an additional public hearing by writing to 
Commander (mo), Seventeenth Coast Guard District at the address under 
ADDRESSES. The request should include the reasons why an additional 
hearing would be beneficial. If it determines that the opportunity for 
additional oral presentations will aid this rulemaking, the Coast Guard 
will hold an additional public hearing at a time and place announced by 
a later notice in the Federal Register.

Regulatory History

    On March 25, 1999, the Coast Guard published a Notice of Proposed 
Rulemaking (NPRM) entitled ``Anchorage ground, safety zone, speed 
limit, Tongass Narrows and Ketchikan, AK'' in the Federal Register (64 
FR 14414). The Coast Guard received 8 letters, including two petitions, 
regarding the proposed rule during a 45-day comment period. A public 
hearing was held on March 26th at the Ted Ferry Civic Center in 
Ketchikan, AK.

Background and Purpose

    During the last two years the Coast Guard and the Federal Aviation 
Administration have held a series of public meetings in Ketchikan, 
Alaska, to assess maritime traffic, congestion, safety, and wake 
concerns in Tongass Narrows. The individuals and groups represented at 
these meetings included recreational vessel operators, passenger vessel 
operators, commercial fishing vessel operators, commercial kayak 
operators, floatplane operators, charter vessel operators, and local 
residents.
    The Notice of Proposed Rulemaking proposed changes to the seven-
knot speed limit on Tongass Narrows. The existing speed limit did not 
address the needs of floatplane traffic, may have unnecessarily slowed 
the transits of smaller vessels, and did not apply in the northern 
portions of Tongass Narrows where traffic congestion and wake from 
larger vessels had become a concern. The proposed changes extended the 
speed zone northward to Channel Island, but exempted vessels of 26 feet 
or less in length.
    The Notice of Proposed Rulemaking also proposed to re-designate the 
safety zone in Ketchikan Harbor as an anchorage ground. Vessels 
transiting the anchorage ground other than those engaged in anchoring 
evolutions would be required to proceed through the anchorage by the 
most direct route without delay or sudden course changes. The 
redesignation of the area would reflect its actual use as an anchorage 
for large passenger vessels. The slow or erratic operation of small 
vessels in the former safety zone has made it very difficult for large 
vessels to safely maneuver to and from anchor. The requirement that 
transiting vessels proceed through the anchorage directly, without 
delay or sudden course changes, would make the final approach, 
anchoring, and departure of very large passenger vessels, safer for the 
vessels involved.

Discussion of Comments and Changes

    The Coast Guard received comments from 134 persons regarding the 
proposed rule. The comments included oral comments made at the public 
meeting, 2 petitions with multiple signatures, 5 letters from small 
businesses and 1 letter from a private individual. Responses to these 
comments and changes made in the proposed rule are discussed in the 
following paragraphs.
    The most frequent comments addressed the northward extension of the 
seven-knot boundary to Channel Island. Of the 134 persons that 
commented on the proposed rule (several persons commented on multiple 
aspects of the proposed rule), 129 commented on the northward 
extension. Three comments favored the proposed extension of the seven-
knot boundary to Channel Island. Six comments were opposed to any 
extension of the seven-knot boundary; and 120 comments favored a slight 
extension of the zone. One hundred and five persons stated that an 
extension of Wolf Point would be appropriate. Fifteen persons stated 
that an extension to Tongass Narrows Buoy 9 was needed but to extend 
the zone no further than Tongass Narrows Lighted Buoy 10.
    These comments also raised the concern of possible financial impact 
on the charter sport fishing industry. This was due to the proposed 
extension of the seven-knot zone boundary northward 3 nautical miles to 
Channel Island, which may have increased charter vessel transit time by 
as much as 50 minutes during a 5-hour charter. The Coast Guard believes 
that an extension of the current boundary from Charcoal Point, 
northward, is necessary to provide a safe operating area for the 
Ketchikan International Airport Ferry, for floatplanes using the 
Ketchikan International Airport floatplane facility and for vessels 
using the facilities at Petro Alaska's fuel pier. The Coast Guard 
agrees that an extension of the seven-knot zone to Tongass Narrows Buoy 
9 would satisfy these safety concerns. Additionally, this northerly 
extension of the boundary (approximately 1600 yards) results in an 
increase in transit time of just 13 minutes round trip (for a vessel 
that would otherwise have traveled at 21

[[Page 29556]]

knots). The Coast Guard believes that the economic impact of this small 
increase in transit time on the charter sport fishing industry or other 
vessels is minor when considering the enhanced safety benefits provided 
to floatplanes, ferry traffic and fueling operations.
    Two persons commented on the southern boundaries of the seven-knot 
speed limit. One comment stated that the existing boundary of Idaho 
Rock was appropriate. One comment recommended modifying the southern 
boundaries in the east channel, to the Coast Guard Base; and in the 
west channel, to a line running from East Clump light to Pennock Reef 
light to the southern most point of Radenbough Cove on Pennock Island. 
The Coast Guard, after due consideration, agrees that the southern 
boundaries of the zone can be reduced. The southern boundaries of the 
speed zone are moved northward approximately 1000 yards in the east 
channel and 3000 yards in the west channel. The new boundaries will be 
marked by Tongass Narrows East Channel Regulatory Buoy and Tongass 
Narrows West Channel Regulatory Buoy, respectively. These buoys are 
white, cylindrical buoys with an orange line at the top and bottom and 
an orange circle containing the words ``7 knots''.
    The Coast Guard believes that the decrease in transit times for 
charters in the southern reaches of Tongass Narrows more than offsets 
the slight increase in transit time for charters in the northern 
reaches of Tongass Narrows.
    Twenty comments were received regarding the size exemption for 
vessels 26 feet or under. Of these comments, 15 were in the form of a 
petition and stated that there should be an exemption for planing hull 
vessels. This suggested exemption would allow planing hull vessels 26 
feet or under in length to operate at any speed within the seven-knot 
zone and would create a speed corridor for planing hull vessels from 
26-40 feet in length from Tongass Narrows Buoy 9 to Channel Island. 
This petition favored keeping the seven-knot speed limit for 
displacement hull vessels and extending the limit for displacement hull 
vessels to Channel Island. The petition also stated that the proposed 
rule would create a financial advantage for those charter operators 
using vessels of 26 feet in length or less. One comment recommended 
reducing the size of the exempted vessels to 24 feet and one favored an 
exemption for only open skiffs. One comment received favored an 
exemption for planing hull vessels and vessels of 26 feet or less in 
length; and 2 comments recommended keeping the 26 feet or less length 
limit for all vessels, regardless of hull type.
    Additionally, several comments were received that pointed out that 
the 26 feet or less exemption split the charter sport fishing industry 
and provided an unfair advantage to those persons running charters on 
vessels of 26 feet in length or less.
    The Coast Guard agrees that the proposed rule would unintentionally 
create an unfair advantage for a portion of the charter sport fishing 
industry. The Coast Guard considered the recommendations to exempt 
planing hull vessels from the seven-knot speed limit but does not 
agree. This is because an exemption based on hull type would most 
likely split the charter or other commercial fishing fleets and cause 
unfair economic advantages. In addition, an exemption based on hull 
type would be very difficult to enforce due to the variety of hull 
types and nomenclature. Therefore, the Coast Guard has changed the 
exemptions in the interim rule to read ``no vessel, except floatplanes 
during landings and take-offs and non-commercial, open skiffs of less 
than 20 feet in length shall exceed a speed of seven-knots * * *''
    Two comments were received regarding the re-designation of the 
safety zone to an anchorage. One comment was in favor of the change and 
the other questioned if the proposed change would impact the waterfront 
operation. The Coast Guard intends for this rule to allow free and 
unrestricted access to waterfront facilities as is the current 
practice. This portion of the rule remains unchanged.
    No comments were received concerning the exemption of floatplans 
during take-offs and landings. This portion of the rule remains 
unchanged.
    One hundred and five comments were received regarding the degree 
and focus of enforcement of the existing seven-knot rule. The Coast 
Guard recognizes the need for fair and equitable enforcement and 
anticipates the interim rule will help achieve these ends.
    One comment was received regarding the removal of 2 underwater 
obstructions. This comment is outside the scope of this rule making and 
is therefore not addressed in the interim rule. The comment was 
forwarded to the U.S. Army Corps of Engineers for review and 
consideration.

Discussion of Interim Rule

    The interim rule changes the existing seven-knot speed zone on 
Tongass Narrows. The new speed zone is bounded on the north by Tongass 
Narrows Buoy 9; marked by a green can buoy located at the northwest end 
of the Ketchikan International Airport. The southern boundaries are 
reduced in the east channel to a point just northwest of the City of 
Saxman at approximate position 55 deg.19' 22.0'' N, 131 deg.36'40.5'' 
W, and in the west channel at approximate position 55 deg.19' 28.5'' N, 
131 deg.39'09.7'' W. A regulatory buoy, that is white with an orange 
line at the top and bottom and an orange circle with the words ``7 
knots'', will mark these positions.
    The interim rule exempts ``non-commercial, open skiffs of less than 
20 feet in length'' from the seven-knot speed limit. The existing rule 
was applicable to all vessels regardless of size or type. Because of 
the unique nature of Tongass Narrows, many of the local residents must 
commute between the islands in small open skiffs. These commuters may 
have to make numerous trips each day regardless of weather. The 
existing rule caused undue delay and may have caused increased safety 
risks for this class of vessels. The proposed rule attempted to exempt 
vessels 26 feet in length or less but had the unintended affect of 
splitting the charter sport fishing industry; thereby giving a 
competitive advantage to smaller charter vessels. The Coast Guard 
agrees that this economic impact is unacceptable and has withdrawn that 
exemption from the interim rule.
    By exempting ``non-commercial, open skiffs of less than 20 feet in 
length'', the traffic congestion in the affected areas of Tongass 
Narrows should be eased and the safety of the non-commercial operators 
in open skiffs enhanced. With the exemption for these entities, they 
will be able to depart from, or transit through the congested areas 
more quickly. This in turn should ease congestion and reduce 
navigational conflicts that have arisen between slow moving small boats 
and cruise ships and other large waterway users and will allow them to 
spend less time on the water during periods of inclimate weather. Large 
wakes would not become a problem because the exemption is limited to 
smaller vessels and because Tongass Narrows regularly experiences 
substantial wave action that is equivalent to the wake from these 
smaller vessels. The speed limit will be retained for all other 
vessels, except floatplanes.
    Due to safety considerations, the Coast Guard has determined there 
is good cause to make this rule effective immediately upon publication 
instead of waiting the usual 30-day period required by 5 U.S.C. 553(d). 
The immediate implementation is needed so that the interim rule may be 
in place by the beginning of the 1999 summer boating season.

[[Page 29557]]

    The Coast Guard encourages persons to comment on the effectiveness 
of the interim rule, especially during the busy summer season. The 
Coast Guard will review all written comments received and oral comments 
made at the public hearing and will consider these comments prior to 
the publishing of the Final Rule in the fall of 1999.

Regulatory Evaluation

    This interim rule is not a significant regulatory action under 
section 3(f) of Executive Order 12866 and does not require an 
assessment of potential costs and benefits under section 6(a)(3) of 
that Order. It has not been reviewed by the Office of Management and 
Budget under that Order. It is not significant under the regulatory 
policies and procedures of the Department of Transportation (DOT) (44 
FR 11040; February 26, 1979).
    The Coast Guard expects the economic impact of this interim rule to 
be so minimal that a full Regulatory Evaluation under paragraph 10(e) 
of the regulatory policies and procedures of DOT is unnecessary. This 
is because the regulation is designed to reduce the impacts of the 
speed limit upon waterway users. With regards to the northward 
extension of the seven-knot zone, the majority of the comments received 
on the proposed rule recognized the need for a slow speed area in the 
vicinity of the Ketchikan International Airport Ferry Terminal and the 
Ketchikan International Airport Floatplane Facility, but objected to 
the full extension to Channel Island. After reviewing the comments 
submitted and listening to the oral arguments, the Coast Guard 
concurred and has revised the northern boundary. The Coast Guard also 
reduced the boundaries on the southern end of the zone to further 
reduce the impact of the present regulation to vessel operators. The 
new requirement to proceed directly, without erratic maneuvering, 
through the anchorage area, is expected, in combination with the 
relaxation of the speed limit for non-commercial open skiffs, to result 
in less congestion and quicker and safer transits for all users over 
the course of the summer season.

Small Entities

    Under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.), the 
Coast Guard considers whether this interim rule will have significant 
economic impacts on a substantial number of small entities. ``Small 
entities'' include small businesses, not-for-profit organizations that 
are independently owned and operated and are not dominant in their 
fields, and governmental jurisdictions with populations of less than 
50,000.
    The Coast Guard believes there may be some impact to small 
entities, but that it will be minimal or non-existent, based on the 
extensive comments received from the charter sport fishing industry. 
This is because the area bounded by the seven-knot zone is reduced 
substantially on the southern end and is extended only slightly in the 
northern portion of Tongass Narrows. This reduction in the overall size 
of the speed zone will ease the transit times of the charter sport 
fishing community. Although no comment was received regarding the 
economic impacts on other users, the Coast Guard believes such impact 
will generally be beneficial because the combination of regulatory 
changes should reduce congestion and navigational conflicts throughout 
the waterway and make transits safer and more efficient for all user 
groups. Therefore, the Coast Guard certifies under 5 U.S.C. 605(b) that 
this rule will not have a significant economic impact on a substantial 
number of small entities. If however, you think that your business or 
organization qualifies as a small entity and that this proposed rule 
will have a significant economic impact on your business or 
organization, please submit a comment (see ADDRESSES) explaining why 
you think it qualifies and in what way and to what degree this proposed 
rule will economically affect it.

Collection of Information

    This interim rule does not provide for a collection of information 
under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.).

Federalism

    The Coast Guard has analyzed this interim rule under the principles 
and criteria contained in E.O. 12612 and has determined that this 
interim rule does not have sufficient implications for federalism to 
warrant the preparation of a Federalism Assessment.

Environment

    The Coast Guard considered the environmental impact of this interim 
rule and concluded that under figure 2-1, paragraph (34)(g) of 
COMDTINST M18475.1C, this interim rule is categorically excluded from 
further environmental documentation because it establishes a regulated 
navigation area. A ``Categorical Exclusion Determination'' is available 
in the docket for inspection or copying where indicated under 
ADDRESSES.

Unfunded Mandates

    The Unfunded Mandates Reform Act of 1995 (2 U.S.C. 1531-1538) and 
E.O. 12875, Enhancing the Intergovernmental Partnership, (58 FR 58093; 
October 28, 1993) govern the issuance of Federal regulations that 
require unfunded mandates. An unfunded mandate is a regulation that 
requires a State, local, or tribal government or the private sector to 
incur direct costs without the Federal Government's having first 
provided the funds to pay those costs. This rule will not impose an 
unfunded mandate.

Taking of Private Property

    This rule will not effect a taking of private property or otherwise 
have taking implications under E.O. 12630, Governmental Actions and 
Interference with Constitutionally Protected Property Rights.

Civil Justice Reform

    This rule meets applicable standards in sections 3(a) and 3(b)(2) 
of E.O. 12988, Civil Justice Reform, to minimize litigation, eliminate 
ambiguity, and reduce burden.

Protection of Children

    We have analyzed this proposed rule under E.O. 13045, Protection of 
Children from Environmental Health Risks and Safety Risks. This rule is 
not an economically significant rule and does not concern an 
environmental risk to health or risk to safety that may 
disproportionately affect children.

List of Subjects

33 CFR Part 110

    Anchorage grounds.

33 CFR Part 162

    Navigation (water), Waterways.

33 CFR Part 165

    Harbors, Marine safety, Navigation (water), Reporting and record 
keeping requirements, Security Measures, Waterways.

Regulation

    For the reasons discussed in the preamble, the Coast Guard amends 
33 CFR part 162 as follows:

PART 162--[AMENDED]

    1. The authority citation for Part 162 continues to read as 
follows:

    Authority: 33 U.S.C. 1231; 49 CFR 1.46.

    2. Revise Sec. 162.240(b) to read as follows:


Sec. 162.240  Tongass Narrows, Alaska; navigation.

* * * * *
    (b) No vessel, except for floatplanes during landings and take-offs 
and non-commercial, open skiffs of less than 20

[[Page 29558]]

feet in length, shall exceed a speed of seven knots in the region of 
Tongass Narrows East Channel Regulatory Buoy at position 
55 deg.19'22.0'' N 131 deg.36'40.5'' W and Tongass Narrows West Channel 
Regulatory Buoy at position 55 deg.19'28.5'' N 131 deg.39'09.7'' W, 
respectively.
* * * * *

PART 110--[AMENDED]

PART 165--[AMENDED]

    3. The authority citation for part 110 continues to read as 
follows:

    Authority: 33 U.S.C. 471, 33 U.S.C. 2071; 33 CFR 1.05-1(g); 49 
CFR 1.46. Section 110.1a and each section listed in it are also 
issued under 33 U.S.C. 1223 and 1231.

    4. The authority citation for part 165 continues to read as 
follows:

    Authority: 33 U.S.C. 1231; 50 U.S.C. 191; and 33 CFR 1.05-1(g), 
6.04-6, and 160.5; 49 CFR 1.46. Section 165.100 is also issued under 
the authority of sec. 311, Pub. L. 105-383.


Sec. 165.1705  [Redesignated as Sec. 110.231 and revised]

    5. Section 165.1705 is redesignated as Sec. 110.231 and is revised 
to read as follows:


Sec. 110.231  Ketchikan Harbor, Alaska, Large Passenger Vessel 
Anchorage.

    (a) The anchorage grounds. Ketchikan Harbor, Alaska, Large 
Passenger Vessel Anchorage. The waters of Ketchikan harbor, Ketchikan, 
Alaska, enclosed by the following boundary lines: A line from Thomas 
Basin Entrance Light ``2'' to East Channel Lighted Buoy ``4A'', to 
Pennock Island Reef Lighted Buoy ``PR'', to Wreck Buoy ``WR6'', then 
following a line bearing 064 degrees true to shore. This anchorage is 
effective 24 hours per day from 1 May through 30 September, annually.
    (b) The regulations. (1) When transiting through the anchorage, all 
vessels using propulsion machinery shall proceed across the anchorage 
by the most direct route and without unnecessary delay. Sudden course 
changes within the anchorage are prohibited.
    (2) No vessels, other than a large passenger vessel of over 1600 
gross tons, (including ferries), may anchor within the anchorage 
without the express consent of the Captain of the Port, Southeast 
Alaska.

    Dated: May 14, 1999.
A. Regalbuto,
Captain, U.S. Coast Guard, Acting Commander, Seventeenth Coast Guard 
District.
[FR Doc. 99-13935 Filed 6-1-99; 8:45 am]
BILLING CODE 4910-15-M