[Federal Register Volume 84, Number 153 (Thursday, August 8, 2019)]
[Rules and Regulations]
[Pages 38873-38876]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-16972]


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DEPARTMENT OF DEFENSE

Department of the Army, Corps of Engineers

33 CFR Part 334

[COE-2017-0006]


Little Creek Harbor, Fisherman's Cove, Joint Expeditionary Base 
Little Creek-Fort Story, Little Creek, Virginia, Restricted Areas

AGENCY: U.S. Army Corps of Engineers, DoD.

ACTION: Final rule.

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SUMMARY: The Corps of Engineers is establishing restricted areas in the 
waters of Fisherman's Cove and Little Creek Harbor at Joint 
Expeditionary Base Little Creek-Fort Story, Little Creek (JEBLCFS) in 
Virginia Beach, Virginia. JEBLCFS is the homeport of numerous ships, 
small boats, and special operational units. The restricted areas are 
necessary to better protect vessels and personnel assigned to JEBLCFS 
by implementing a waterside security program. The regulation 
establishes the restricted areas in waters within the boundary of the 
existing installation and in the entry channel into the harbor.

DATES: Effective September 9, 2019.

ADDRESSES: U.S. Army Corps of Engineers, Attn: CECW-CO (David Olson), 
441 G Street NW, Washington, DC 20314-1000.

FOR FURTHER INFORMATION CONTACT: Mr. David Olson, Headquarters, 
Operations and Regulatory Community of Practice, Washington, DC at 202-
761-4922, or Ms. Nicole Woodward, Corps of Engineers, Norfolk District, 
Regulatory Branch, at 757-201-7122.

SUPPLEMENTARY INFORMATION: The proposed rule was published in the May 
23, 2018, edition of the Federal Register (83 FR 23867) and the 
regulations.gov docket number was COE-2017-0006. In response to the 
proposed rule, two comments were received.
    One commenter stated that additional clarification was needed 
regarding the coordinates for the proposed restricted areas because as 
written it is unclear what the intended extent of the areas should be. 
The Navy provided corrected coordinates and modified the rule text to 
address the charting concerns.
    Another commenter questioned the need for the additional 
restrictions to enhance security within the waterway, and the commenter 
expressed concerns regarding the enforceability of the proposed 
restrictions, as well as what impacts they would have on local 
businesses, property values, and navigational access. The proposed rule 
would have provided greater restrictions within Little Creek Harbor, 
including requiring all vessels transiting inbound/outbound of the 
Outer Harbor to notify the Little Creek Port Control of their 
destination and intentions using VHF-FM channel 12 at all times. In 
response to these comments, the restrictions were modified to allow for 
all privately owned vessels, properly registered and bearing 
identification in accordance with Federal and/or State laws and 
regulations, and all Government owned vessels (public vessels), to 
enter or exit the restricted area at any time at a speed commensurate 
with minimum wake, except for when the Commanding Officer, JEBLCFS, is 
ordered to implement Force Protection Condition (FPCON) Charlie/Delta, 
or when specific authority is granted by the District Engineer, at 
which time vessel traffic movement within the Outer Harbor may be 
restricted temporarily. This rule will not prevent the public from 
entering the areas at all times; it will merely restrict the amount of 
time during which individuals may enter and stay within those areas, 
particularly during periods of increased threats. In order to improve 
the safety of military assets, as well as to the public, the rule also 
requires vessels entering those areas to provide additional 
notification and be given permission to enter the area. The regulation 
does not grant the Navy additional legal authority beyond their current 
authorities; however, it allows them to use additional resources to 
enforce the waterway, such as the U.S. Coast Guard and Virginia Marine 
Resource Commission acting within their own authorities to police the 
waterway. If conditions warrant elevating restrictions within the Outer 
Harbor Restricted Area due to implementation of FPCON Charlie/Delta or 
when specifically authorized by the District Engineer, then JEBLCFS 
will coordinate with the U.S. Coast Guard to allow vessel entry into 
the restricted area upon request. Vessels will still be able to transit 
the waterway to access the businesses and private properties located 
upstream of the restricted area; therefore, the impacts on businesses 
and property values are anticipated to be minimal.
    Due to the location of JEBLFC, which is located south of a narrow 
inlet off of the Chesapeake Bay, alternatives to the location of a 
restricted area within the waterway near the entrance to the water 
based side of the installation are limited. This regulation establishes 
a restricted area within the Outer Harbor which will be enacted on a 
temporary basis during periods of heighted threat conditions. Reducing 
the speeds of vessels within the waterway allows the Navy to better 
assess vessels as they approach through the narrow opening to the Inner 
Harbor. The Navy will be better able to determine whether the vessels 
are a threat intending to approach the installation or if they will 
make the 90-degree turn west toward the commercial and private 
facilities within Fisherman's Cove. Full-time restrictions on the Inner 
Harbor Restricted Area will allow the Navy to assess the safety of all 
vessels that approach in close vicinity of Government owned vessels and

[[Page 38874]]

property in order to better protect those military assets and the 
personal stationed at Little Creek. There are current measures in 
place, such as existing barriers and regulations to protect the Navy 
vessels within the harbor. However, the restricted areas will provide a 
more permanent safety measure and allow for enhanced measures to be 
enacted to protect additional property and personnel within the 
installation as needed.
    In response to the Norfolk District's public notice, 178 
individuals submitted requests to the district for a public hearing. 
The purpose of a public hearing is to gain information regarding the 
proposal that is pertinent to the decision-making process that cannot 
be obtained through other means. In accordance with the Corps' 
regulations at 33 CFR 334.4(c), the district engineer decides whether 
to hold a public hearing for a proposed restricted area or danger zone. 
The Norfolk District denied the request for a public hearing because it 
determined that, through the proposed rule published in the Federal 
Register and the public notice for the proposed rule issued by the 
Norfolk District, it received sufficient information to evaluate the 
proposal, and that the comments received in response to the proposed 
rule have been fully addressed. Therefore, we have determined that 
public hearing is not necessary in order to make a decision because a 
public hearing is unlikely to provide additional substantive 
information for this rulemaking action.
    In response to a request by the United States Navy, and pursuant to 
its authorities in Section 7 of the Rivers and Harbors Act of 1917 (40 
Stat. 266; 33 U.S.C. 1) and Chapter XIX of the Army Appropriations Act 
of 1919 (40 Stat. 892; 33 U.S.C. 3), the Corps of Engineers is amending 
33 CFR part 334 to establish a permanent restricted area, in the waters 
of Fisherman's Cove and Little Creek Harbor adjacent to Joint 
Expeditionary Base Little Creek-Fort Story, Little Creek (JEBLCFS) in 
Virginia Beach, Virginia.

Procedural Requirements

a. Regulatory Planning and Review

    Executive Orders 12866 and 13563 direct agencies to assess the 
costs and benefits of available regulatory alternatives and, if 
regulation is necessary, to select regulatory approaches that maximize 
net benefits. Executive Order 13771 directs agencies to control 
regulatory costs through a budgeting process. For the reasons stated 
below, this final rule is not a ``significant regulatory action'' under 
Executive Order 12866. Accordingly, this final rule has not been 
reviewed by the Office of Management and Budget (OMB), and pursuant to 
OMB guidance it is exempt from the requirements of Executive Order 
13771.
    The Corps determined this final rule is not a significant 
regulatory action because this restricted area regulation allows all 
privately owned vessels that are properly registered and bearing 
identification in accordance with federal and/or state laws and 
regulations, as well as all government-owned vessels, to enter or exit 
the Outer Harbor restricted area at any time at a speed commensurate 
with minimum wake, except when the Commanding Officer, JEBLCFS, is 
ordered to implement Force Protection Condition (FPCON) Charlie/Delta, 
or when specific authority is granted by the District Engineer, at 
which time vessel traffic movement within the Outer Harbor may be 
restricted temporarily. The Inner Harbor Restricted Area is restricted 
to those privately owned vessels or persons calling upon the 
commercial/private piers located within the Inner Harbor and 
government-owned vessels transiting to and from U.S. Navy or U.S. Coast 
Guard facilities and authorized DOD patrons of the U.S. Navy 
recreational marina, plus any other vessels or persons granted specific 
authorization by Commanding Officer, Joint Expeditionary Base Little 
Creek-Fort Story, and/or other persons or agencies as he/she may 
designate. This rule is issued with respect to a military function of 
the Department of Defense and the provisions of Executive Order 12866 
do not apply.

b. Impact on Small Entities

    The Regulatory Flexibility Act of 1980, 5 U.S.C. 601-612, as 
amended, requires Federal agencies to consider the potential impact of 
regulations on small entities during rulemaking. The term ``small 
entities'' comprises 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 Corps certifies under 5 U.S.C. 605(b) that this rule would not 
have a significant economic impact on a substantial number of small 
entities. While some owners or operators of vessels that intend to 
transit the restricted area may be small entities, for the reasons 
stated in paragraph (a) above, this rule would not have a significant 
economic impact on any vessel owner or operator because it allows, with 
exceptions provide in the rule text, all privately owned vessels that 
are properly registered and bearing identification in accordance with 
federal and/or state laws and regulations, as well as all government-
owned vessels, to enter or exit the restricted areas at any time at a 
speed commensurate with minimum wake. In addition, the restricted areas 
are necessary to protect vessels and personnel assigned to JEBLCFS by 
implementing a waterside security program. Small entities can also 
utilize navigable waters outside of the restricted areas. Small 
entities that need to transit the restricted areas may do so as long as 
the operator of the vessel obtains permission from Little Creek Port 
Control or the Commanding Officer, JEBLCFS, and/or other persons or 
agencies as he/she may designate. The restricted areas are necessary 
for security of JEBLCFS. After considering the economic impacts of this 
final restricted area regulation on small entities, I certify that this 
action will not have a significant impact on a substantial number of 
small entities.

c. Review Under the National Environmental Policy Act

    Due to the administrative nature of this action and because there 
is no intended change in the use of the area, the Corps expects that 
this regulation, if adopted, will not have a significant impact to the 
quality of the human environment and, therefore, preparation of an 
environmental impact statement is not required. An environmental 
assessment has been prepared. It may be reviewed at the District office 
listed at the end of the FOR FURTHER INFORMATION CONTACT section, 
above.

d. Unfunded Mandates Act

    This proposed rule does not impose an enforceable duty among the 
private sector and, therefore, it is not a Federal private sector 
mandate and it is not subject to the requirements of either Section 202 
or Section 205 of the Unfunded Mandates Act. We have also found under 
Section 203 of the Act, that small governments will not be 
significantly and uniquely affected by this rulemaking.

e. Congressional Review Act

    The Congressional Review Act, 5 U.S.C. 801 et seq., generally 
provides that before a rule may take effect, the agency promulgating 
the rule must submit a rule report, which includes a copy of the rule, 
to each House of the Congress and to the Comptroller General of the 
United States. We will submit a report containing the final rule and 
other required information to the U.S. Senate, the U.S. House of

[[Page 38875]]

Representatives, and the Comptroller General of the United States. A 
major rule cannot take effect until 60 days after it is published in 
the Federal Register. This final rule is not a ``major rule'' as 
defined by 5 U.S.C. 804(2).

List of Subjects in 33 CFR Part 334

    Danger zones, Marine safety, Navigation (water), Restricted areas, 
Waterways.

    For the reasons set out in the preamble, the Corps amends 33 CFR 
part 334 as follows:

PART 334--DANGER ZONE AND RESTRICTED AREA REGULATIONS

0
1. The authority citation for 33 CFR Part 334 continues to read as 
follows:

    Authority: 40 Stat. 266 (33 U.S.C. 1) and 40 Stat. 892 (33 
U.S.C. 3).


0
2. Add 334.305 to read as follows:


Sec.  334.305  Little Creek Harbor, Fisherman's Cove, Joint 
Expeditionary Base Little Creek-Fort Story, Little Creek, Virginia, 
Restricted Areas.

    (a) The Little Creek Restricted Areas. The Little Creek Restricted 
Areas consist of two distinct areas: The Outer Harbor Restricted Area 
and the Inner Harbor Restricted Area. The datum for the coordinates in 
this section is NAD-83.
    (1) The Outer Harbor Restricted Area. The waters within an area 
beginning at latitude 36[deg]55'57.7'' N, longitude 76[deg]10'35'' W; 
thence southwesterly to a point at latitude 36[deg]55'53'' N, longitude 
76[deg]10'44'' W, thence southerly to latitude 36[deg]55'21.2'' N, 
longitude 76[deg]10'42'' W; thence southwesterly to latitude 
36[deg]55'18.3'' N, longitude 76[deg]10'49'' W; thence northwesterly to 
a point in Fisherman's Cove at latitude 36[deg]55'22'' N, longitude 
76[deg]11'15.5'' W; thence southerly to latitude 36[deg]55'19.2'' N, 
longitude 76[deg]11'16'' W, thence easterly near the southern shoreline 
of Fisherman's Cove, to latitude 36[deg]55'15.8'' N, longitude 
76[deg]10'58.8'' W; and ending at latitude 36[deg]55'18'' N, longitude 
76[deg]10'30'' W; thence to the point of origin.
    (2) The Inner Harbor Restricted Area. The waters within Little 
Creek Harbor south of a line beginning at latitude 36[deg]55'15.8'' N, 
longitude 76[deg]10'58.8'' W; and ending at latitude 36[deg]55'18'' N, 
longitude 76[deg]10'30'' W.
    (b) The regulations--(1) The Outer Harbor Restricted Area. (i) All 
privately owned vessels, properly registered and bearing identification 
in accordance with Federal and/or State laws and regulations, and all 
Government owned vessels (public vessels) may enter or exit the waters 
described in paragraph (a)(1) of this section at any time and transit 
inbound/outbound of the marked dredged channel leading to Little Creek 
Harbor between jetties 8 miles westward of Cape Henry Light. All 
vessels transiting inbound/outbound of the channel except for those 
vessels listed in paragraph (c)(2) of this section shall proceed at 
speeds commensurate with minimum wake. Any vessel equipped with a 
marine radio can monitor VHF-FM channel 12 for message traffic from 
Little Creek Port Control.
    (ii) When Commanding Officer, Joint Expeditionary Base Little 
Creek-Fort Story is ordered to implement Force Protection Conditions 
(FPCONs) Charlie/Delta, or when specific authority is granted by the 
District Engineer, all vessel traffic movement can be restricted except 
for those vessels that meet the criteria in paragraph (c)(2) of this 
section. FPCONs are a system of protective measures used by the 
Department of Defense (DOD) installations to guard against and deter 
terrorist attack. Senior commanders assign the FPCONs for their region, 
and installation commanders may raise FPCONS and tighten security 
measures based on local conditions. In the event FPCONs Charlie/Delta 
is implemented by the Commanding Officer, Joint Expeditionary Base 
Little Creek, which requires the restriction of vessel traffic movement 
in the Outer Harbor Restricted Area, the installation will coordinate 
with the U.S. Coast Guard, Fifth District; Army Corps of Engineers, 
Norfolk District; and state and local law enforcement and governmental 
authorities. The installation will also disseminate information to the 
public and local news media outlets. Information on whether vessel 
traffic movement has been restricted in the Outer Harbor Restricted 
Area due to the implementation of FPCONs Charlie/Delta will also be 
published and disseminated by the U.S. Coast Guard.
    (2) The Inner Harbor Restricted Area. All vessels or persons 
intending to transit inbound/outbound of the Inner Harbor Restricted 
Area shall request permission from Little Creek Harbor Port Control 
using VHF-FM channel 12 prior to transiting and will provide their 
destination/intentions with the exception of those vessels that meet 
the criteria in paragraph (c)(2) of this section. The Inner Harbor 
Restricted Area is limited to those privately owned vessels or persons 
calling upon the commercial/private piers located within the Inner 
Harbor and government owned vessels (public vessels) transiting to and 
from U.S. Navy or U.S. Coast Guard facilities and authorized DOD 
patrons of the U.S. Navy recreational marina. No other vessels or 
persons may enter or exit this area unless specific authorization is 
granted by Commanding Officer, Joint Expeditionary Base Little Creek-
Fort Story, and/or other persons or agencies as he/she may designate.
    (3) All vessels or persons transiting inbound/outbound of the Inner 
Harbor Restricted Area are subject to all applicable federal and state 
laws including laws or regulations designed to protect the naval 
facility and persons or vessels assigned therein. Federal and state law 
enforcement officials may at any time take action to ensure compliance 
with their respective laws. In addition, this regulation authorizes 
Navy security personnel, designated by Commander, Joint Expeditionary 
Base Little Creek-Fort Story or persons authorized to act in his/her 
behalf, the authority to ascertain the identity and intent of any 
vessels and/or persons transiting the restricted area that indicate by 
way of appearance or action they are a possible threat to government 
assets. If a determination is made that the vessel and/or persons are a 
threat to government assets located within the restricted area, Navy 
security units may take actions as provided by law or regulation that 
are deemed necessary to protect government personnel and assets located 
within the restricted area.
    (c) Enforcement. (1) The regulation in this section shall be 
enforced by the Commanding Officer, Joint Expeditionary Base Little 
Creek-Fort Story, U.S. Coast Guard, local/state law enforcement, and/or 
persons or agencies as he/she may designate during emergency 
situations.
    (2) Federal and state law enforcement vessels and personnel may 
enter anywhere in the restricted area at any time in the operation of 
their statutory missions or to enforce their respective laws.
    (3) Nothing in this regulation is deemed to preempt 33 CFR 165.501.
    (4) Vessels or persons calling upon the commercial/private piers 
located within the Inner Harbor with proper identification and 
clearance will be allowed entry subject to the same provisions 
described in paragraph (b) of this section. Commanding Officer, Joint 
Expeditionary Base Little Creek-Fort Story reserves the right to 
temporarily deny entry in emergency situations, elevated DOD Force 
Protection conditions in the Harbor, or other safety of navigation 
constraints.


[[Page 38876]]


    Dated: August 1, 2019.
Thomas P. Smith, P.E.,
Chief, Operations and Regulatory Division, Directorate of Civil Works.
[FR Doc. 2019-16972 Filed 8-7-19; 8:45 am]
BILLING CODE 3720-58-P