[Federal Register Volume 63, Number 102 (Thursday, May 28, 1998)]
[Notices]
[Pages 29291-29296]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-14163]


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DEPARTMENT OF TRANSPORTATION

Coast Guard
[USCG-1998-3873]


Prevention Through People

AGENCY: Coast Guard, DOT.

ACTION: Notice.

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SUMMARY: Prevention Through People (PTP) is a Coast Guard initiated 
program to address marine safety and environmental protection through a 
focus on the human element. Since the program's inception in 1994, 
there has been a steady growth of support in the marine community. 
Current marine industry practices reflect the increased commitment to 
PTP. This notice informs the public of some of the major PTP efforts 
taking place within the Coast Guard and includes the response to 
comments from the four PTP public meetings held during the spring of 
1997.

ADDRESSES: The Docket Management Facility maintains the public docket 
for this notice. Documents, as indicated in this notice, 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, 400 
Seventh Street SW., Washington DC 20590-0001, between 10 a.m. and 5 
p.m., Monday through Friday, except Federal holidays. You many 
electronically access the public docket for this rulemaking on the 
Internet at http://dms.dot.gov.
    The Marine Board of the National Academy of Science study, 
Advancing the Principles of the Prevention Through People Program, was 
published in August 1997 and is available at the National Academy Press 
Bookstore 2001 Wisconsin Ave. NW., Washington, DC 20418-0005; phone 
800-624-6242, or 202-334-3313.

FOR FURTHER INFORMATION CONTACT: For information on the public docket, 
contact Carol Kelly, Coast Guard Dockets Team Leader, or Paulette 
Twine, Chief, Documentary Services Division, U.S. Department of 
Transportation, telephone 202-366-9328. For questions on this notice, 
contact LT Duane Boniface, Human Element and Ship Design Division (G-
MSE-1), 202-267-2997.

SUPPLEMENTARY INFORMATION:

Background of PTP

    The PTP initiative began in 1994 with the chartering of a Quality 
Action Team (QAT) to develop a long-term strategy to address the role 
of human and organizational factors in marine safety and environmental 
protection. The QAT conducted an extensive literature review and 
analysis of marine casualty data, conducted mariner surveys, and 
examined operations from a maritime systems perspective that included 
an assessment of vessels, facilities, and waterways.
    On July 15, 1995, the QAT generated a report, ``Prevention Through 
People Quality Action Team Report.'' This report provided the first 
step towards re-balancing prevention efforts between technical, human, 
and organizational issues related to marine safety. Subsequent focus on 
human and organizational factors in safety and environmental protection 
led to these issues becoming top priorities for many organizations, 
both within the government and industry.
    After the report was published, the Coast Guard and industry 
pursued a host of initiatives. These initiatives include partnerships 
with industry, studies of fatigue and communications, and introductions 
of risk assessment and risk management approaches. The PTP Strategic 
Plan (available in the docket; or contact the person under FOR FURTHER 
INFORMATION CONTACT) exposed a wider audience to the PTP philosophy, 
while the PTP Implementation Plan set high goals with various PTP 
objectives and activities for the Coast Guard to accomplish.
    Additionally, the Coast Guard held four public meetings that 
allowed it to hear valuable industry comments concerning safety in the 
marine community.

PTP Focus Plan

    There are many projects and initiatives under the umbrella of PTP. 
A list of the current projects and initiatives under the umbrella of 
PTP can be found on the PTP web site at the following website: <a href="http://
www.uscg.mil/hq/g-sm/nmc/ptp/index.htm">http://
www.uscg.mil/hq/g-sm/nmc/ptp/index.htm</a>. From the list of these projects 
and initiatives, the Coast Guard is focusing on five major initiatives 
during 1998 referred to as the PTP Focus Plan. These initiatives were 
chosen based on public comments, marine industry input, and the results 
of the Marine Board of the National

[[Page 29292]]

Academy of Science study entitled Advancing the Principles of the 
Prevention Through People Program. This study is available where 
indicated under ADDRESSES.
    The general consensus of the comments received was that the Coast 
Guard should concentrate on completing several of the most significant 
human-element-related initiatives already in progress under PTP. The 
five projects identified in the 1998 PTP Focus Plan provide the Coast 
Guard with the best opportunities to maximize progress in the near term 
under the PTP approach. The Coast Guard has five PTP goals outlined in 
the strategic plan. Each initiative the Coast Guard addresses 
corresponds to one of these goals.
    <bullet> Development of National Maritime Safety Incident Reporting 
System. Both Coast Guard and industry proposed the concept of a 
national maritime safety incident reporting system. The system would be 
designed to capture information on unsafe occurrences that involve 
near-accidents, near-collision situations, near-pollution events, and 
related precursor events. The system would be maintained by industry 
and supported by the Coast Guard. The Coast Guard held a public meeting 
on May 4, 1998 (announced in the Federal Register, 63 FR 17468; April 
9, 1998) to investigate the possibility of industry implementing such a 
system. The results of that public meeting will be announced 
separately.
    Information on these near-accidents and unsafe occurrences is an 
untapped source of data that would serve as leading indicators on the 
level of safety within the maritime community and would provide a 
greater level of data for analysis and safety improvement. A concerted 
effort will be made through industry's leadership to get a prototype 
system in place by the end of 1998, with the intent to formally 
establish a national system in the year 2000. This near-miss incident 
reporting system falls under the PTP goal of Know More. This goal is 
meant to significantly expand our knowledge and understanding of the 
human element and its role in maritime operations and accidents. The 
status and the latest details on the national maritime safety incident 
reporting system project can be found at the following website: <a href="http://
www.uscg.mil/hq/g-m/moa/maola.htm">http://
www.uscg.mil/hq/g-m/moa/maola.htm</a>.
    <bullet> Implementation of the International Conventions on the 
Standards of Training, Certification and Watchkeeping for Seafarers, 
1978, (STCW), and its amendments. A focus of the Coast Guard is the 
implementation of STCW. Significant changes to STCW in 1995, which 
became effective in 1997, require a substantial effort by the marine 
community. The Coast Guard published an interim final rule (62 FR 
34505; June 26, 1997) to reflect the amendments to STCW. While much has 
been done, there are still many issues involved with implementing this 
convention. Some of these issues include finalization of regulations, 
development of enforcement policies, training, and outreach. The effort 
to implement STCW falls under the PTP goal Train More. This goal 
strives to give members of the marine community the necessary skills 
and knowledge to improve safety and prevent pollution. Training is 
always a point of interest since regulations, equipment, operating 
environment, and personnel are constantly changing. Projects under this 
goal will address human element issues related to the individual 
mariner.
    <bullet> Implementation of the International Safety Management 
(ISM) Code. Implementation of the ISM Code is an important aspect of 
the PTP program. Deadlines for compliance with the ISM Code begin in 
1998. The Coast Guard has published a final rule (62 FR 67492; Dec. 24, 
1997) concerning this matter. The ISM Code helps establish a standard 
for national safety management and harmonizes U.S. regulations with the 
international standards. Beginning in 1998, these standards would apply 
to the following vessels in international trade:
    <bullet> Vessels transporting more than 12 passengers;
    <bullet> Tankers;
    <bullet> Bulk freight vessels; and
    <bullet> High speed freight vessels of at least 500 gross tons. 
Beginning in the year 2002, these standards would also apply to the 
following vessels in international trade:
    <bullet> Self-propelled mobil offshore drilling units of at least 
500 gross tons; and
    <bullet> Freight vessels.
    Implementation of the ISM Code falls under the goal of Do More. 
This goal strives to improve professional performance through practical 
application and open communication of human element knowledge within 
the marine community. Implementation of a quality management system, as 
envisioned by the ISM Code, is a critical step in establishing 
corporate cultures that encourage safe practices. Detailed information 
about the ISM Code can be found at the following website: <a href="http://
www.uscg.mil/hq/g-m/psc/ismmain.htm">http://
www.uscg.mil/hq/g-m/psc/ismmain.htm</a>.
    <bullet> Development of the Streamlined Inspection Program (SIP). 
The Coast Guard is focusing on implementation of the Streamlined 
Inspection Program (SIP). The SIP provides an opportunity for the 
vessel owners and operators to have their own personnel periodically 
perform many of the tests and examinations currently conducted by the 
Coast Guard marine inspectors. As a result, participating vessel owners 
and operators will promote a more continuous level of safety. 
Information on SIP has been published in the Federal Register (62 FR 
17008; April 8, 1997). Development of SIP falls under the goal of Offer 
More. This goal provides incentives for making improvements to safety 
management systems.
    <bullet> Development and Implementation of a PTP Communications 
Plan. Working together with industry and the public, the Coast Guard 
plans to address the human element in transportation safety and 
pollution prevention. Public meetings and other feedback indicate that 
government-to-public communication is not as effective as it could or 
should be. The Coast Guard will focus on the development and 
implementation of a PTP Communications Plan. By focusing on this plan, 
the Coast Guard will create a partnership with industry and the public 
under the PTP goal of Cooperate More. This plan will address all forms 
of communication, from describing the results of research, to 
discussing lessons learned and best practices, and other PTP-related 
information. The PTP Communications Plan will include everyone from the 
boardroom to the deckplate. This will allow for increased 
communications and more effective interaction between the marine 
stakeholders and the Coast Guard.

PTP's Integration Into the Coast Guard ``M'' Business Plan

    In addition to the current PTP focus items and the many other 
ongoing projects, PTP continues to be integrated into the Coast Guard's 
operating procedures; most noteworthy is the Coast Guard Marine Safety 
and Environmental Protection (G-M) Business Plan (Business Plan). The 
goals of the Business Plan comprise a significant portion of the 
Commandant's Annual Performance Agreement with the Secretary of 
Transportation. The Business Plan contains performance guidance and 
strategic direction for all Coast Guard commands charged with achieving 
the Coast Guard*s mission for marine safety and environmental 
protection. A key strategy for achieving the goals of the Business Plan 
is PTP.
    The Coast Guard recognizes the importance of human and

[[Page 29293]]

organizational factors in marine safety and PTP has evolved from that 
philosophy. The Coast Guard will meet the goals of the Business Plan by 
using PTP as a tool to refocus prevention efforts.

PTP Public Meetings

    The Coast Guard recognizes that the success of PTP depends on the 
marine industry. Its feedback is essential for continuous improvement 
to the program. To that end, the Coast Guard held four public meetings 
on PTP in the spring of 1997. These public meetings were held in:
    <bullet> New Orleans, LA on February 25, 1997;
    <bullet> Oakland, CA on February 28, 1997;
    <bullet> St.Louis, MO on March 26, 1997; and
    <bullet> Newport, RI on April 18, 1997.
    (Notice of meetings with request for comments published in 62 FR 
4567; January 30, 1997).
    These meetings allowed the Coast Guard to explain PTP, discuss its 
anticipated role within the marine industry, and provide an opportunity 
for public feedback.
    From these meetings, it is evident that safety is a top issue in 
the marine industry, and PTP has provided an effective forum for 
focusing on human and organizational aspects of marine safety. The 
feedback from the meetings has been instrumental in providing valuable 
insight about PTP and was used to help develop the 1998 PTP Focus Plan.

Discussion of Comments

    The comments from the meetings have been grouped by subject and are 
discussed in the following paragraphs.

Partnerships

    Partnership was the most frequently addressed issue. A number of 
comments specifically supported partnerships between the Coast Guard 
and industry, notably the formal PTP Quality Partnerships, and the 
Safety Advisory Committees/Councils (SAC). The SAC's are legislatively 
authorized groups that provide advice and ideas to the Coast Guard on 
regulatory and non-regulatory issues in specific areas, such as towing 
or chemical transportation. Each SAC has formed a PTP subcommittee to 
specifically address human element issues. To find out more information 
about the SAC's and their activities, look at the following website: 
http://www.uscg.mil/hq/g-m/advisory/index.htm.
    Several speakers felt that partnerships were the most important 
part of PTP. According to one speaker, PTP articulates many of the 
concepts the marine industry already follows and allows industry to 
maintain them in a centralized place. In that sense, PTP is the 
umbrella for the various safety initiatives going on in the marine 
industry. PTP is not a new philosophy, but rather, it is an extension 
of an existing safety philosophy with a human element focus. The PTP 
umbrella simply allows people to share information more conveniently 
and provides the emphasis for those not already active in this area.
    Partnerships can involve many modes of sharing. The Coast Guard and 
industry partnerships were acknowledged as important; however, speakers 
wanted to make sure the ship-to-shore partnerships within companies are 
valued also. One speaker, who supported partnership and its concept, 
cautioned that a true partnership needs work and attention.
    The Coast Guard will continue efforts in this area. Before the 
public meetings, the Coast Guard had formal PTP Quality Partnerships 
established with (1) the American Waterways Operators; (2) the American 
Petroleum Institute; (3) the United States Chamber of Shipping; and (4) 
the Passenger Vessel Association. Since the public meetings, PTP 
Quality Partnerships have been established with the International 
Council of Cruise Lines (ICCL) and the Spill Control Association of 
America (SCAA). The Coast Guard continues to explore opportunities for 
partnerships with other sectors of the maritime community.

Recreational Boating

    A comment questioned whether PTP should encompass the recreational 
boating community. Prevention Through People is an approach to safety 
for everyone; no group has been excluded. Since passage of the Federal 
Boating Safety Act of 1971, (Pub.L. 92-75, 85 Stat. 213) the Coast 
Guard has worked with the States and boating safety organizations to 
cooperatively promote safe operation of boats through its coordination 
of the National Boating Safety Program. In April 1996, members of the 
National Boating Safety Advisory Committee (NBSAC) and the Navigation 
Safety Advisory Committee (NAVSAC) met and discussed interactions 
between the boating public and commercial shipping. The committees 
identified education as the number one waterway safety issue. 
Subsequently, a NBSAC PTP Subcommittee looked at ways of increasing the 
safety of boaters by applying PTP principles.
    The Coast Guard is accepting feedback on the need for, and 
alternatives to, Federal requirements or incentives for recreational 
boaters to take courses in boating safety (notice to reopen the comment 
period published in 63 FR 13585; March 20, 1998) and for boaters to 
wear personal flotation devices (notice to reopen the comment period 
published in 63 FR 13586; March 20, 1998).

Substandard Operators

    Some comments discussed how to capture the small percentage of 
operators who are on the edge of, or below, safe operating practices. 
The Coast Guard intends to assist operators in improving their safety 
operations. Unsafe maritime practices are a cause for concern for both 
Coast Guard and industry. We must commit ourselves, our organizations, 
and our operations to producing a safer, more productive environment.

Communication

    Communication was discussed at all four public meetings. The many 
speakers commenting on this issue addressed the Coast Guard`s efforts 
to disseminate pertinent information to industry and individuals, the 
maritime industry's communication to the Coast Guard, and the 
companies' internal communications. Most speakers emphasized the need 
to foster better communication methods. They also stressed gaps in the 
various chains of marine industry communications, to include Coast 
Guard-to-industry, ship-to-shore, and captain-to-crew, among others. As 
an example of a common case of miscommunication, a speaker mentioned 
that too often specific messages do not get to the right people. The 
speaker noted that one of the reasons this occurs is because management 
neglects to pass information down the chain of command to the people 
who need it.
    Some comments stated that ``letters of concern'' are a helpful 
method that the Coast Guard uses to communicate with industry. The 
Coast Guard may write a letter of concern to a company on a safety 
issue or concern, instead of a more punitive form of action (e.g., a 
citation or criminal charges). Then, the Coast Guard works with the 
company in a non-regulatory manner to solve the problem. Some speakers 
also mentioned that the company could encourage safety communication by 
providing anonymous forms to report issues of concern.
    Many speakers recommended using different media, including the 
Internet, to convey information. In response to the many speakers who 
echoed this recommendation at the meetings, the

[[Page 29294]]

Coast Guard has published a PTP World Wide Web site. As previously 
discussed in this notice, under the PTP Focus Plan, the Coast Guard is 
developing the Communications Plan to provide direction to, and support 
for, personnel involved in the PTP program.
    Speakers also discussed the role of Coast Guard Headquarters in 
Washington, DC, with respect to setting effective nationwide policy. 
Many safety issues, such as risk management, can be addressed at a 
local level. The broad policy and regulatory issues, though, are most 
effectively addressed at the headquarters-level.

Regulatory Process

    Several speakers commented on the Coast Guard's regulatory process. 
The comments discussed:
    <bullet> Problems with the way regulations are written and created;
    <bullet> Solutions to some of the difficulties;
    <bullet> The Coast Guard's solutions that are regulation oriented, 
even when the goal is to minimize new regulations; and
    <bullet> A review of the required paperwork.
    Regulations are a necessary aspect of safety within the marine 
industry under the Coast Guard's legislative mandate from Congress. 
However, seeking non-regulatory approaches to safety for people and the 
environment is one of the PTP Principles, which can be found in the 
Strategic Plan. Regulations establish minimum levels of safety as a 
part of an overall safety system. However, the Coast Guard continues to 
pursue regulatory reform including periodic reviews of paperwork and 
regulatory burdens as described in its semi-annual agenda of regulatory 
actions published in the Federal Register each fall and spring.
    Several speakers commented that some mariners find it difficult to 
read and understand the technical and complex writing style of 
regulations. The Coast Guard has begun to implement Plain Language 
writing to make it easier to understand and comply with regulations. 
Plain Language writing includes simplifying acronyms, increasing use of 
conversational tone, and using questions and answer formats.
    One speaker recommended that the Coast Guard hold more public 
outreach meetings (e.g., marine industry day) at the local Marine 
Safety Offices rather than at the Coast Guard Districts. The speaker 
noted that holding outreach meetings at the local level would provide 
greater access for small businesses and would enable the Coast Guard to 
better address issues specific to a community. The Coast Guard agrees. 
In several areas the Coast Guard participates in meetings convened by 
mariners on the local level. For example, current efforts where the 
Coast Guard joins with local community groups to solve local problems 
include:
    <bullet> Privately convened Mariners' Advisory Committee of the Bay 
and River Delaware in Philadelphia, PA;
    <bullet> The Puget Sound Marine Committee in Seattle, WA; and
    <bullet> The Cuyahoga River Task Force in Cleveland, OH.
    One speaker discussed the issue of using public meetings as part of 
the regulatory process. The speaker suggested using the format of the 
PTP public meetings, stating that its ``give and take'' format is a 
better model than the regulatory public meeting format. The Coast Guard 
continuously strives for open communications balanced with the 
requirements for the Administrative Procedure Act (5 U.S.C. 551 et 
seq.) so that all members of the affected public, not just those 
present at a particular meeting, have equal and appropriate input to a 
fair and unbiased regulatory outcome.

Lessons Learned and Near Accidents

    Some speakers commented on lessons learned and near accidents. A 
number of speakers gave information highlighting their experiences of 
best practices, while other speakers gave definitions of near accident 
and some of the obstacles encountered in the creation of a near 
accident reporting system. Several industry concerns need to be 
resolved to the satisfaction of all interested parties, before creating 
the new system. Some industry concerns include loss of insurance, 
safety awards, and exposure to legal liability. To create a functional 
reporting system, these factors must be addressed and answered to the 
satisfaction of all involved. As mentioned earlier in this notice, this 
issue is an item in the PTP Focus Plan.
    Several speakers offered stories of various lessons learned and 
near accident efforts that their companies currently apply in the quest 
for safety improvements. Some projects that were mentioned include the 
following:
    <bullet> Developing contingency plans.
    <bullet> Providing means within companies to anonymously report 
issues of concern.
    <bullet> Organizing safety meetings and lessons learned procedures 
followed up with shared analysis.
    <bullet> Having key learning meetings for captains where each 
reports on a shared pertinent issue.
    Another speaker suggested bringing representatives of vendors of 
mechanical systems to the workers who use them, thereby joining the 
people who make the equipment and the people who use the equipment.

Management

    A number of speakers discussed aspects of management that affect 
marine safety. They highlighted best practices as performed by their 
firms, the problems they have with their companies, management losing 
their safety focus, and the management aspects of PTP.
    Many speakers stated that they feel safety is often compromised by 
home office policies. For example, some masters are not allowed the 
independence to make decisions based on current conditions, but must 
operate within established parameters. Though this is an issue that 
must be addressed within individual companies, the Coast Guard 
recognizes the serious potential for accidents that such a practice 
causes. A speaker suggested allowing a management style that gives 
employees more power in decision making. The Coast Guard applauds this 
approach, which is consistent with the PTP Principle Honor the Mariner.
    It remains the responsibility of the individual companies and 
management to use their influence appropriately and to make sure there 
is compliance from the boardroom to the deck plate level. This 
responsibility takes on the increased importance as the deadlines for 
compliance with the ISM Code approach. Implementation of the ISM Code 
will have a significant effect on marine safety from the organizational 
standpoint, and is being addressed as part of the PTP Focus Plan.
    Two speakers commented that the human element provides the greatest 
impact on improving marine safety and that upper management must show 
consistent, not sporadic, support.
    Several speakers expressed concern that PTP might encourage 
micromanagement when it should, instead, foster creativity. A speaker 
requested having the Coast Guard focus on its roles of encouragement, 
leadership, and examples, as opposed to regulations and management. As 
noted, PTP seeks non-regulatory approaches to safety for people and the 
environment.

Training

    A number of speakers discussed training. The majority of comments 
shared best practices related to training of mariners on a day-to-day 
basis and of the crew as a whole. A few speakers identified some 
problems with Coast Guard procedures that affect training mariners.

[[Page 29295]]

    The comments indicated that many companies are working to provide 
better, more accurate training with a focus on safety. The Coast Guard 
and the Los Angeles/Long Beach (LA/LB) Vessel Traffic Information 
System (VTIS) are currently working on a standard for training to be 
used primarily as a tool for mariners. Improved industry training 
methods also include training teams from the same vessel, so the 
mariners can practice with the people they work with. Another 
suggestion described a pocket-sized emergency response-training 
document for deckhands.
    Some of the basic principles noted in the public meetings and in 
the Coast Guard's experience are worthy of note:
    <bullet> Training needs to be a priority from the initial hiring 
process onwards.
    <bullet> Training should encompass everything from lessons on 
managing stress to CPR and fire fighting.
    <bullet> Supervisors should go through some of the training with 
the crew to see what they are learning.
    Effective implementation of the STCW Convention is necessary. Noted 
previously as a 1998 Focus Plan item, the Coast Guard will continue to 
address the human element issues of the STCW that relate to the 
individual mariner.
    A number of comments discussed course approvals. It was noted that 
it now appears more difficult to get mariners to meet the basic 
requirements. A course approval process Fast Action Team met in 
November 1997 to find ways to reduce the backlog of course applications 
waiting for approval and shorten the time needed to evaluate course 
approval applications. As a result of the team's recommendations, the 
following actions have been taken:
    <bullet> The National Maritime Center (NMC) increased the course 
approval staff by two people and also filled a long vacant position.
    <bullet> The NMC determined the processing time could be shortened 
if courses were sent directly to the NMC rather than to the REC's. NMC 
Policy Letter 7-98 announced this change, and the implementing 
regulatory change will be proposed in the Maritime Course Approval 
Procedure Notice of Proposed Rulemaking, CGD 97-074.
    <bullet> The course approval database that lists all Coast Guard 
approved courses has been updated, as of January 15, 1998. The list of 
approved courses is published on the Internet and is updated monthly.
    <bullet> The NMC has begun developing and updating course 
guidelines to standardize approved courses.
    Standardizing approved courses would reduce the time needed to 
review course approval requests; provide consistency in courses being 
taught; and ensure courses, instead of exams, will more accurately 
reflect the job tasks and responsibilities of the license being sought.
    As a result of these actions, the backlog has decreased from 95 
courses waiting for approval in November of 1997 to less than 40 
courses waiting for approval in March of 1998. The oldest course 
awaiting review has been reduced from December 1996 to February 1998.

Honor the Mariner

    Several speakers applauded and supported the PTP philosophy Honor 
the Mariner. They noted that the most appreciated contribution of PTP 
has been the recognition of the mariner as a pivotal member of the 
safety equation. Recognition of mariners helps foster a shared working 
relationship with mariners and masters. The Coast Guard recognizes that 
mariners have working knowledge of projects and equipment and that 
their opinions are important.
    One speaker recommended that the Coast Guard honor the mariner 
constantly, not just before the accident, but also during and after an 
incident. The Coast Guard continues to seek out and use the expertise 
of mariners in guiding safety and environmental protection efforts, and 
appreciates the time, effort, and insights of all who have provided 
assistance.

Fatigue

    A few speakers addressed fatigue research, while others spoke of 
their fatigue experiences. Several speakers mentioned that their 
companies are devoting research to studying fatigue and attempting to 
curb it. One company developed alertness testing devices with the view 
that fatigue, stress, and illness are impairment factors just as 
hindering as drugs and alcohol. The Coast Guard Research and 
Development Center is also performing studies specifically to address 
fatigue.
    The PTP goal, Do More, was also mentioned during a fatigue 
discussion. The speaker addressed the concern that people may construe 
the statement by literally doing more work, but with the same people 
and equipment. Do More is directed towards striving for increased 
quality and prioritization of work-do better-as opposed to an increased 
quantity of work. One speaker acknowledged that fatigue is often a 
contributing factor to many accidents. The speaker, however, expressed 
concern that fatigue is often an easy fallback explanation for 
accidents, when it may not be the causal factor in a particular 
accident.

Research

    A representative from the Coast Guard Research and Development 
Center described the Fatigue Research Program and solicited 
participation from the towing industry for an alertness study. In 
addition, several speakers stated that their companies are devoting 
more research time to human safety and environmental issues. The Coast 
Guard applauds these efforts and encourages the sharing of this 
information for the benefit of the entire marine community. The Coast 
Guard Research and Development Center has developed a web site <a href="http://
www.rdc.uscg.mil/">http://
www.rdc.uscg.mil/</a> to disseminate information about its projects. There 
is also a section on studies and reports related to human element 
issues on the PTP web site: <a href="http://www.uscg.mil/hq/g-m/nmc/ptp/
rands.htm">http://www.uscg.mil/hq/g-m/nmc/ptp/
rands.htm</a>.

Streamlined Inspection Program (SIP)

    Several comments discussed SIP. In general, they were supportive of 
the program. Speakers agreed with SIP, citing it as an example of true 
partnership. They pointed out many advantages to the program, noting 
its encouragement for companies to translate the Code of Federal 
Regulations for their employees. A speaker commented that the strength 
of SIP lies in changing the inspection from an annual snapshot by the 
Coast Guard to a Coast Guard audit of the organization's continuous 
inspection system. As a 1998 Focus Plan item, the Coast Guard will help 
companies increase ownership of their inspections and maintenance by 
implementing the SIP.
    Some comments addressed the issue of SIP by creating two classes of 
operators or companies. They discussed the problem of the Coast Guard 
not issuing CG-835 forms, which require immediate repairs, to vessels 
that are part of the SIP. Some speakers felt that industry does not 
want to see two classes of operators or companies.

Manning

    A few speakers addressed the problems of working with too few crew 
members. One speaker supported regulations on manning of barges because 
it is difficult to place someone aboard an unmanned barge in adverse 
weather conditions. The Coast Guard has proposed regulations seeking to 
enhance existing standards for anchoring or retrieving drifting tank 
barges (62 FR 52057, October 6, 1997;

[[Page 29296]]

and 63 FR 9980, February 27, 1998). These proposed rules present 
appropriate measures for reducing the likelihood of loss of control and 
grounding of a tank barge based on whether or not the barge is manned. 
As a result of reducing the likelihood of groundings, fire prevention 
measures and emergency control measures are also both part of the 
system to address tank barge safety.
    Another speaker commented on the often insufficient manning on 
foreign flag vessels, which makes it harder to have safe operations. 
With certain exceptions, the vessel's Flag State establishes the 
manning level for each vessel. The Coast Guard is concerned about the 
safety of foreign vessels operating in U.S. waters and is working with 
the International Maritime Organization (IMO) to develop more up-to-
date guidance on the principles of safe manning. The aim of this 
guidance is to have crew complements based on the actual crew workload, 
taking into account work hour limits and rest requirements. During Port 
State Control (PSC) boardings of foreign vessels, the Safe Manning 
Document is checked against the actual manning of the vessel. In 
addition, licenses, certificates, and rest requirements are checked to 
ensure compliance with the STCW. The Coast Guard will work with 
representatives of the Flag State to resolve any of the problems. The 
Coast Guard may detain the vessel in port pending the resolution of the 
problems to ensure the correction of unsafe conditions, which may 
include requiring additional crewmembers if insufficient personnel are 
onboard to safely operate the vessel.

Pilotage

    One speaker discussed the need for First Class Pilot's licenses on 
the inland waterway system. The speaker indicated that the current 
certification of inland pilots on parts of the inland waterway, which 
does not specify a geographic area of expertise, is insufficient. The 
speaker stated that the Coast Guard Regional Examination Centers need 
to ensure capable people can get their license.
    In 1994, the Coast Guard revised the pilot regulations in 46 CFR 
15.812 to eliminate the requirement for a First Class Pilot's license 
on non-designated areas of pilotage waters. Due to this change in 
regulations, it is now the companies' responsibility to ensure that the 
pilot they hire has the necessary expertise.

Maintenance

    One speaker commented on maintenance. The speaker highlighted 
problems with main propulsion failures due to the lack of proper 
maintenance of ships and equipment. Poor maintenance of ships and 
equipment has been noted in many casualties, including the December 
1996 BRIGHT FIELD accident in New Orleans, LA, where poor maintenance 
was cited as a cause of the accident in the investigation report, which 
was published on October 31, 1997.
    The speaker noted that the issue of maintenance should receive more 
attention than it has in the past. The Coast Guard is actively pursing 
these efforts through its PSC and SIP programs, which target foreign 
vessels and domestic that are not operated or maintained properly. 
Additionally, the ISM Code becomes mandatory for many vessels on July 
1, 1998, and requires both the company and the vessel to have a safety 
management system in place. A properly implemented safety management 
system will help prevent occurrences such as the BRIGHT FIELD'S loss of 
propulsion.

Conclusion

    The Coast Guard is committed to PTP as a long-term effort to 
address the root cause of many of these accidents--the human element. 
Through the continuing efforts of the Coast Guard and marine community, 
we can all reduce and perhaps, eventually, eliminate these types of 
accidents. The Coast Guard has an unwavering commitment to safety, and 
through PTP is undertaking many bold initiatives. The marine community 
is invited to join in this effort to improve marine safety and 
environmental protection. Visit one of the web sites listed in this 
notice to learn more.

    Dated: May 18, 1998.
R.C. North,
Rear Admiral, U.S. Coast Guard, Assistant Commandant for Marine Safety 
and Environmental Protection.
[FR Doc. 98-14163 Filed 5-27-98; 8:45 am]
BILLING CODE 4910-15-P