Source: https://www.federalregister.gov/articles/2011/10/11/2011-25035/lifesaving-equipment-production-testing-and-harmonization-with-international-standards
Timestamp: 2014-03-11 05:13:31
Document Index: 737899978

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This article was corrected by an article published on 11/10/2011.
Dates: This interim rule is effective November 10, 2011. The Director of the Federal Register has approved the incorporation by reference of certain publications listed in this rule as of November 10, 2011.
-63015 (55 pages)
Shorter URL: https://federalregister.gov/a/2011-25035 Related Topics
Lifesaving Equipment; Production Testing and Harmonization with International Standards Public Comments
Lifesaving Equipment, Production Testing, and Harmonization With International Standards 11 actions from August 31st, 2010 to December 2013
B. Independent Laboratories
IV. Discussion of the Comments and Changes
A. Discussion of Changes From the NPRM
1. Officer-in-Charge, Marine Inspection (OCMI) Definition
2. Welder Certification
3. Launching Appliances for Fast Rescue Boats
4. Steel Grade Specification
5. Clarifying Action of Independent Laboratories
6. Adding an Additional, Optional Artificial Weathering Method for Resins
7. Limiting Clear Resin Requirements for Lifeboats and Rescue Boats
B. Discussion of Comments on the NPRM
L. International Trade Impacts
N. Coast Guard Authorization Act Sec. 608 (46 U.S.C. 2118(a))
Subpart 160.010—Buoyant Apparatus for Merchant Vessels
Subpart 160.015 [Removed and Reserved]
Subpart 160.032 [Removed and Reserved]
Subpart 160.033 [Removed and Reserved]
Subpart 160.035 [Removed and Reserved]
Subpart 160.132—Launching Appliances—Davits
Subpart 160.133—Release Mechanisms for Lifeboats and Rescue Boats (SOLAS)
Subpart 160.135—Lifeboats (SOLAS)
Subpart 160.170—Davit-Launched Liferaft Automatic Release Hooks (SOLAS)
Subpart 160.900—Preemption
Subpart 164.120—Fire Retardant Resins for Lifeboats and Rescue Boats
Subpart 164.900—Preemption
PART 180—LIFESAVING EQUIPMENTS AND ARRANGEMENTS
Table 164.120-7—Alternative Test Method Standards for Laminating Resins for Use in Lifeboats, Rescue Boats, and Other Lifesaving Equipment1
This interim rule is effective November 10, 2011. The Director of the Federal Register has approved the incorporation by reference of certain publications listed in this rule as of November 10, 2011.
Comments and material received from the public, as well as documents mentioned in this preamble as being available in the docket, are part of docket USCG-2010-0048 and are available for inspection or copying at the Docket Management Facility (M-30), U.S. Department of Transportation, West Building Ground Floor, Room W12-140, 1200 New Jersey Avenue, SE., Washington, DC 20590, between 9 a.m. and 5 p.m., Monday through Friday, except Federal holidays. You may also find this docket on the Internet by going to http://www.regulations.gov, inserting USCG-2010-0048 in the “Keyword” box, and then clicking “Search.”
Viewing incorporation by reference material. You may inspect the material incorporated by reference at U.S. Coast Guard Headquarters, 2100 Second Street, SW., Stop 7126, Washington, DC 20593-7126 between 9 a.m. and 3 p.m., Monday through Friday, except Federal holidays. The telephone number is 202-372-1385. Copies of the material are available as indicated in the “Incorporation by Reference” section of this preamble.
If you have questions on this rule, e-mail or call Mr. George Grills, P.E., Commercial Regulations and Standards Directorate, Office of Design and Engineering Standards, Lifesaving and Fire Safety Division (CG-5214), Coast Guard; telephone 202-372-1385, e-mail George.G.Grills@uscg.mil. If you have questions on viewing or submitting material to the docket, call Renee V. Wright, Program Manager, Docket Operations, telephone 202-493-0402.
COLREGInternational Regulations for Preventing Collisions at Sea
FRPFiber Reinforced Plastic
NEPANational Environmental Policy Act 1969 (42 U.S.C. 4321-4370f)
NTTAANational Technology Transfer and Advancement Act (15 U.S.C. 272 note)
US/EC MRAAgreement between the United States and European Community on the mutual recognition of certification of conformity for marine equipment
On August 31, 2010, the Coast Guard published a notice of proposed rulemaking (NPRM) titled “Lifesaving Equipment: Production Testing and Harmonization with International Standards” in the Federal Register. See 75 FR 53458. The comment period for the NPRM closed on November 29, 2010, and we received three letters in the docket, containing 29 comments, which are summarized and responded to below. No public meeting was requested for this rulemaking and we did not hold one.
The Coast Guard is promulgating these amended regulations as an interim rule, rather than as a final rule, because we plan to propose additional amendments as necessary to address recent changes to international standards regarding performance requirements for release mechanisms of lifeboats. In May 2011, the International Maritime Organization's (IMO) Maritime Safety Committee (MSC) amended its international standards regarding release mechanisms. These IMO amendments only affect release mechanisms with respect to their operating characteristics and a new requirement to use corrosion-resistant materials for certain critical components. These IMO amendments are presented in IMO Resolution MSC.320(89) “Adoption of amendments to the International Life-saving Appliance (LSA) Code.” A copy of the IMO amendments are available from IMO and also upon request sent to Mr. Grills, as listed in FOR FURTHER INFORMATION CONTACT, above. The Coast Guard plans to publish in a future Federal Register document proposed changes to Coast Guard regulations to implement the IMO amendments the Coast Guard determines appropriate for purposes of harmonization and consistency with international standards. We will finalize this interim rule at the same time we issue any final rule for the forthcoming proposed changes to implement the IMO amendments.
Additionally, IMO also recently adopted two new resolutions that affect the interim rule regarding inflatable liferafts and inflatable buoyant apparatuses. The two new resolutions, Adoption of Amendments to the International Life-Saving Appliance (LSA) Code (MSC.293(87)) and Adoption of Amendments to the Revised Recommendation on Testing of Life-Saving Appliances (MSC.295(87)), affect capacity requirements for such liferafts, and by extension inflatable buoyant apparatuses, but do not affect any other part of the interim rule. The Coast Guard proposes changes to the interim rule to address these two new resolutions, and that proposal is published separately in this issue of the Federal Register as a Supplemental Notice of Proposed Rulemaking (SNPRM).
The Coast Guard is charged with ensuring that lifesaving equipment used on vessels subject to inspection by the United States meets specific design, construction, and performance standards. See 46 U.S.C. 3306. The Coast Guard carries out this charge through the approval of lifesaving equipment per 46 CFR part 2, subpart 2.75. The approval process includes: Pre-approving lifesaving equipment designs, overseeing prototype construction, witnessing prototype testing, and monitoring production of the equipment for use on U.S. vessels. See 46 CFR part 159. At each phase of the approval process, the Coast Guard sets specific standards to which lifesaving equipment must be built and tested. Third parties, referred to as independent laboratories, sometimes assist the Coast Guard in its approval process by performing or witnessing tests and inspections, as well as witnessing production, as authorized by the Coast Guard. See, e.g., 46 CFR 160.151-13(a) (manufacturers must arrange for an independent laboratory to inspect a prototype liferaft during fabrication). This rulemaking revises those specific standards for launching appliances, release mechanisms, survival craft, rescue boats, and automatic disengaging devices, and expands the use of independent laboratories in the Coast Guard's approval process.
International safety standards for the lifesaving equipment addressed by this rulemaking are established by the Parties to SOLAS, including the United States, acting through the IMO. The international standards for lifesaving equipment (IMO standards) addressed by this rulemaking implement the requirements of Chapter III of SOLAS. The IMO standards specify design, construction, performance, and testing requirements for required lifesaving equipment, including launching appliances, release mechanisms, survival craft, rescue boats, and automatic disengaging devices. The primary IMO standards implementing Chapter III of SOLAS are—
International Life-saving Appliance Code (“LSA Code”) (IMO Resolution MSC.48(66), as amended by IMO Resolutions MSC.207(81), MSC.218(82), MSC.272(85), and MSC.293(87)); see SOLAS Chapter III, Regulation 4;
Revised recommendation on testing of life-saving appliances (“Recommendation on Testing”) (IMO Resolution MSC.81(70), as amended by IMO Resolutions MSC.226(82), MSC.274(85), and MSC.295(87)); see SOLAS Chapter III, Regulation 4.
The United States actively participated in the negotiations that led to the development of these IMO standards. The Coast Guard considers these IMO standards to represent the best available standards for lifesaving appliances and to be appropriate for lifesaving appliances for all vessels subject to inspection by the United States. In order to facilitate international commerce with other contracting governments to SOLAS that follow IMO standards, and to achieve the benefits of the increased safety of adhering to these IMO standards, the Coast Guard has, pursuant to 46 U.S.C. 3306 and 46 CFR 159.005-7(c), deemed compliance by U.S. flag ships with the IMO standards as compliance with Coast Guard domestic regulations.
In this interim rule, the Coast Guard harmonizes its regulations for certain lifesaving equipment with international standards by incorporating the IMO standards into regulations in 46 CFR part 160.
The Coast Guard has a long history of recognizing the qualifications of independent laboratories, working under the Coast Guard's oversight, to do work traditionally conducted by Coast Guard inspectors. In 1979, the Coast Guard promulgated 46 CFR part 159 establishing procedures and standards for accepting independent laboratories for witnessing or performing certain tests and conducting inspections for certain equipment and materials requiring Coast Guard approval. See 44 FR 73038 (December 17, 1979). The Coast Guard promulgated 46 CFR part 159 under the authority in 46 U.S.C. 481 (1976) (Regulations for vessels subject to Coast Guard inspection).
In 1983, Congress revised and recodified the maritime laws of the United States moving the relevant authority for 46 CFR part 159 to new 46 U.S.C. 3306.
See 98 Partial Revision of Title 46, U.S.C. “Shipping”; House Report No. 98-338 (August 1, 1983), 1983 U.S.C.C.A.N. 924, 954-53.
The authority for current 46 CFR part 159 is 46 U.S.C. 3306, which “contains broad authority to prescribe regulations for proper inspection and certification of vessels,” House Report No. 98-338 (August 1, 1983), 1983 U.S.C.C.A.N. 924, 954-53, including the specific requirement to prescribe regulations to carry out the statutory requirements “in the most effective manner,” 46 U.S.C. 3306(a). The Coast Guard still finds the use of independent laboratories in the Coast Guard's approval process to be “the most effective manner” of executing and carrying out its obligations under section 3306.
Independent laboratories, accepted by the Coast Guard under 46 CFR part 159, assist the Coast Guard in its approval process by performing or witnessing certain tests and conducting certain inspections required for Coast Guard approval of equipment and materials. When performing or witnessing tests, independent laboratories must follow Coast Guard standards and procedures, and may deviate from those standards and procedures only to require more stringent standards and procedures, and only with Coast Guard approval. See 46 CFR 159.007-3. Additionally, all accepted independent laboratories must be impartial and disinterested in the outcome of inspections and tests. See 46 CFR 159.010-3(a)(3)-(5) (requiring an independent laboratory not be owned or controlled by a manufacturer, vendor, or supplier of materials for the equipment or material to be inspected; not be dependent on acceptance as an independent laboratory to remain in business, and not advertise or promote equipment or materials that the independent laboratory inspects or tests).
The Coast Guard reviews independent laboratory test and inspection reports when determining the approvability of equipment and materials. The Coast Guard currently allows accepted independent laboratories to witness tests of almost all types of shipboard equipment, including certain lifesaving equipment. See, e.g., 46 CFR 160.010-9(a) (approval and production tests in subpart 160.010, addressing buoyant apparatuses, must be conducted by an independent laboratory); 46 CFR 160.151-13(a) (manufacturers must arrange for an independent laboratory to inspect a prototype liferaft during fabrication); and 46 CFR 160.151-31(a) (production inspections and tests of inflatable liferafts must be carried out in accordance with the procedures for independent laboratory inspection).
Current regulations in 46 CFR part 160, however, require Coast Guard inspectors to be involved in all phases of the approval process of winches, davits, release mechanisms, lifeboats, and rescue boats. See 46 CFR part 160, subparts 160.015 (winches), 160.032 (davits), 160.033 (release mechanisms), 160.035 (lifeboats), and 160.056 (rescue boats).
Requiring Coast Guard inspectors to directly perform all phases of the approval process, however, can cause scheduling delays and increased expenses for manufacturers of lifesaving equipment. For example, Coast Guard inspectors are not always able to meet manufacturers' schedules due to competing inspection demands and resource constraints. This can impede productivity and affect the availability of Coast Guard approved equipment for U.S. flag vessels. Third-party certification bodies may qualify as accepted independent laboratories and are often available locally with greater convenience to manufacturers.
Additionally, many manufacturers produce lifesaving equipment for multiple flag nations' vessels, and must have their equipment approved by each nation. Manufacturers often use third-party certification bodies for testing and inspection to satisfy certification requirements from other nations. Unless these third parties are qualified to witness tests and perform inspections on behalf of more than one nation, manufacturers must have their equipment inspected and tested by more than one national representative, which carries potential complications and delays.
The Coast Guard has found, through past experiences with U.S. flag vessel inspections and shipboard equipment approvals, that permitting independent laboratories to do work under appropriate Coast Guard oversight ultimately promotes safety, flexibility, and autonomy by permitting experts from industry to engage more directly in the inspection processes while preserving the Coast Guard's safety and stewardship role in the maritime community.
In this interim rule, the Coast Guard extends the use of independent laboratories, under the oversight of Coast Guard inspectors, in the approval process for additional lifesaving equipment. The Coast Guard requires manufacturers to use an independent laboratory for prototype fabrication and production oversight, and provides the option in certain cases for manufacturers to use an independent laboratory, again overseen by the Coast Guard, for pre-approval review and prototype testing oversight.
In this interim rule, the Coast Guard also revises the structure of certain subparts affected by this rulemaking, and makes additional conforming, appliance-specific changes to these subparts not related to harmonization with international standards or use of independent laboratories.
IV. Discussion of the Comments and Changes Back to Top
The Coast Guard's regulations addressing lifesaving equipment are found in 46 CFR part 160. Each subpart addresses a specific type of lifesaving equipment. The Coast Guard is amending these subparts to:
Harmonize its regulations with IMO standards for launching appliances (winches and davits), release mechanisms, survival craft (lifeboats, inflatable liferafts, and inflatable buoyant apparatuses), and rescue boats, and add new harmonized rules addressing automatic disengaging devices;
Incorporate the use of independent laboratories, under Coast Guard oversight, for Coast Guard approval procedures for launching appliances, lifeboats, rescue boats, and release mechanisms, and add such use of independent laboratories to new rules addressing automatic disengaging devices; and
Revise the structure of certain subparts affected by this rulemaking, and make additional appliance-specific changes to these subparts not related to harmonization with international standards or use of independent laboratories. This revision includes updating, adding, or removing certain standards incorporated by reference and creating a new subpart in 46 CFR part 164 addressing fire-retardant resins used in the construction of lifeboats and rescue boats.
A complete discussion of these changes is available in the NPRM, published August 30, 2010. See 75 FR 53458, 53460.
In the interim rule, the Coast Guard is making changes to the rule text as proposed in the NPRM (75 FR 53458 (August 30, 2010)). Some of the changes clarify the meaning of the proposed rule text, make requirements less restrictive than proposed, and many of these changes are in response to comments, as noted and discussed in this section. Other changes correct minor, inadvertent inaccuracies in the proposed rule text. While several of the changes are not related to or in response to a comment, the Coast Guard considers these changes to be a “logical outgrowth” of what was proposed in the NPRM, as discussed for each such change below, and that further notice and comment on them is not required.
The Coast Guard is changing the definition of OCMI in 46 CFR 160.115-3, 160.132-3, 160.133-3, 160.135-3, 160,151-3, 160.156-3, and 160.170-3 in the interim rule to more accurately align with existing definitions and delineation of OCMI responsibilities in Coast Guard regulations. The definition of OCMI in the proposed rule only addressed OCMIs assigned to Coast Guard Districts and inadvertently did not cover OCMIs assigned to Activities Europe. The interim rule defines OCMI by referring to 46 CFR 1.01-15(b), which details the responsibilities and duties of all OCMIs. If the Coast Guard makes any change to the responsibilities and duties of its OCMIs generally, it will make the changes in 46 CFR 1.01-15(b). By referring to 46 CFR 1.01-15(b), the definition of OCMI in subparts 160.115, 160.132, 160.133, 160.135, 160.151, 160.156, and 160.170 will always reflect the most current definition of an OCMI. The definition of OCMI in the proposed rule also defined the “cognizant OCMI” as “the OCMI who has immediate jurisdiction over a vessel for the purpose of performing the duties previously described.” The subparts affected by this rulemaking, however, address equipment, not vessels. As such, the Coast Guard is adding the phrase “or geographic area” to the sentence defining “cognizant OCMI” to make the definition more accurate. These changes are a logical outgrowth of the definition of OCMI in the proposed rule because the purpose of the proposed definition was to specify the Coast Guard personnel with responsibility under the proposed rule, and these changes clarify but do not otherwise affect that. The NPRM clearly specified the cognizant OCMI would be the responsible Coast Guard personnel, and intended the description of an OCMI to be consistent with the main definition of “OCMI” found in 46 CFR 1.01-15(b). The interim rule still specifies that OCMIs have responsibility under the interim rule and the interim rule definition of OCMI only more accurately describes OCMIs by aligning the definition with the Coast Guard's main regulation defining the duties and responsibility of its OCMIs and clarifying the definition of “cognizant OCMI.”
In response to a comment, the Coast Guard is expanding the certification requirement for welders in 46 CFR 160.115-7(b)(4), 160.132-7(b)(4), 160.133-7(b)(4), 160.135-7(b)(4), 160.156-7(b)(4), and 160.170-7(b)(4). The comment asked whether the reference to the American Bureau of Shipping would remain in the proposed rule requirement that welding must be performed by “welders certified by the Commandant, American Bureau of Shipping, U.S. Navy, or an independent laboratory accepted by the Commandant.”
No. The Coast Guard has replaced, in the interim rule, the reference to American Bureau of Shipping with a phrase to encompass all Coast Guard-recognized classification societies, as well as revised the regulatory text to include other welder certifications to accommodate overseas manufacturing. The proposed rule would have required welders to be certified by the Commandant, American Bureau of Shipping, U.S. Navy, or an independent laboratory accepted by the Coast Guard. The proposed rule specifically mentioned the American Bureau of Shipping because historically it was the only classification society recognized by the Commandant. The proposed rule used the phrase “independent laboratory accepted by the Coast Guard” to cover welder certifications by other certifying bodies similar to American Bureau of Shipping, including other Coast Guard-recognized classification societies. The Coast Guard currently recognizes several classification societies in addition to the American Bureau of Shipping under the requirements of 46 CFR 8.220. Additionally, the Coast Guard is aware that, although American Bureau of Shipping-certified welders are readily available within the United States, this is not necessarily true overseas. The proposed rule's inclusion of “independent laboratory accepted by the Coast Guard” to cover welder certifications by other certifying bodies did not adequately cover welder certifications by other Coast Guard-recognized classification societies or other certifying bodies similar to Coast Guard-recognized classification societies.
The Coast Guard has revised the interim rule to appropriately reflect the Coast Guard's recognition of several classification societies and to cover welder certifications by other appropriate certifying bodies. Specifically, the revised regulatory text in the interim rule now states, “welders certified by the Commandant, a classification society recognized by the Commandant in accordance with 46 CFR 8.220, the U.S. Navy, or the national body where the [lifesaving equipment] is constructed or the national body's designated recognized organization.” The Coast Guard notes that the phrase “classification society recognized by the Commandant in accordance with 46 CFR 8.220” covers the American Bureau of Shipping for as long as it remains recognized in accordance with 46 CFR 8.220. These changes are a logical outgrowth of the NPRM because, although the proposed rule text did not adequately cover overseas welder certifications, the NPRM made clear that the proposed rule was designed in many instances to recognize that much of the lifesaving equipment covered by this rulemaking is manufactured overseas and to accommodate overseas manufacturing. See, for example, the discussion in the NPRM preamble in section VI. B. 75 FR 53463. It was inconsistent for the proposed rule to specifically expand the use of independent laboratories in the approval and inspection process to relieve manufacturers of certain burdens associated with this process, and then to also limit the use of welders for manufacturing to only those welders with U.S. certifications. Expanding the options for welder certifications to accommodate overseas manufacturing in the interim rule is a logical outgrowth of the NPRM's proposal to revise Coast Guard regulations to accommodate overseas manufacturing.
The Coast Guard is correcting the reference to the LSA Code in the interim rule, § 160.115-7(a)(1), to ensure inclusion of the standards for launching appliances intended to be used with fast rescue boats. Proposed 160.115-7(a)(1) included LSA Code “Chapter VI/6.1.1 and 6.1.2,” for incorporation by reference. This citation to the LSA Code was too specific and erroneously omitted standards for launching appliances intended to be used with fast rescue boats included in provisions of LSA Code Chapter VI/6.1, which is the citation included in the interim rule. This change is a logical outgrowth because the proposed rule included the tests applicable to these launching appliances in § 160.115-7(b)(2) and highlighted the omission in proposed paragraph (a)(1) of the standards to which to test these launching appliances under proposed paragraph (b)(2).
In the interim rule, the Coast Guard is incorporating by reference three additional American Society for Testing Materials (ASTM) standards to correct a reference in the proposed rule to a stainless steel grade without the necessary standard reference. Proposed 46 CFR 160.133-7(b)(3), 160.135-7(b)(3), 160.156-7(b)(3), and 160.170-7(b)(3) stated “Corrosion resistant steel must be a standard 302 stainless steel or have equal or superior corrosion resistant characteristics.” While those familiar with 302 stainless steel would recognize it as an American Iron and Steel Institute (AISI) or ASTM designation, the proposed rule did not specify the designation. The Coast Guard is incorporating by reference ASTM A276-08a “Standard Specification for Stainless Steel Bars and Shapes”, ASTM A313/A313M-08 “Standard Specification for Stainless Steel Spring Wire”, and ASTM A314-08 “Standard Specification for Stainless Steel Billets and Bars for Forging” in each of the affected subparts, and each of the affected sections references these standards. The language in the interim rule reads: “type 302 stainless steel per ASTM A276, A313 or A314.” The interim rule retains the option for using another corrosion resistant steel of equal or superior corrosion resistant characteristics. This change is a logical outgrowth from the proposed rule because the omission of the specific standards organization designation in the proposed rule was clear from the text of the proposed rule. It would have been difficult to comply with the stainless steel requirement in the proposed rule without any reference to the specific designation, and the proposed rule provision providing the option to use other equal or superior steel was meaningless without appropriate designation of type 302 steel.
In response to a comment, the Coast Guard is making a clarifying editorial change throughout the interim rule to reflect the fact that independent laboratories sometimes perform required tests and other times only witness the performance of required tests, depending on the circumstances. The comment suggested that the repeated NPRM preamble statement, “The independent laboratory must perform or witness the inspections and tests under this section * * *” is misleading because laboratories are otherwise only required by the proposed rule to witness tests, and not to perform them. The commenter suggested that the wording in the preamble should be changed to, “The independent laboratory must witness the inspections and tests under this section * * *”
The Coast Guard clarifies that under the proposed and interim rules, independent laboratories both perform and witness required tests depending upon the circumstances. In order to ensure the interim rule accurately reflects these different, required actions of independent laboratories, and to ensure consistency of terminology between the affected subparts, the interim rule replaces instances of “conduct or witness,” “conduct,” and “perform or witness” with the phrase “perform or witness, as appropriate,” in 46 CFR 160.115-15, 160.132-15, 160.133-15, 160.135-11, 160.135-15, 160.156-11, 160.156-15 and 160.170-15, as necessary.
In response to a comment, the Coast Guard is adding an additional, optional method for artificially weathering resins in 46 CFR part 160, Table 164.120-7. In the proposed rule, this table was numbered as Table 164.017-7; see Section 7, Editorial Changes, below for more details on the renumbering. As proposed, Table 164.120-7(d)(5) (Table 164.017-7 in the NPRM) provided the option of weathering specimens by either 1 year per MIL-R-7575C, or 500-hour exposure per ASTM G154 Table X2.1 Cycle 3. The comment suggested adding as an alternative or changing to Cycle 1 in Table X2.1 of ASTM G154—UVA-340 exposure at Table 164.120-7 (UV test according to ASTM G154), stating that UVA exposure is seen as a more realistic comparison to natural weathering. The Coast Guard agrees that Cycle 1 is also an appropriate artificial weathering method, and has revised the regulatory text accordingly. In the interim rule, resin artificial weathering testing may be performed using Cycle 1 or Cycle 3 of ASTM G154.
In response to a comment, the Coast Guard is clarifying the meaning of proposed §§ 160.135-11(c)(2)(i)(A) and 160.156-11(c)(2)(i)(A). The commenter pointed out that in the proposed rule, §§ 160.135-11(c)(2)(i)(A) and 160. 156-11(c)(2)(i)(A) may be read to imply that every Fiber Reinforced Plastic (FRP) component of a prototype needs to be of clear resin, including the gel coat. The commenter suggested that this requirement be limited to the outer hull and FRP inner hull components which are bonded or bolted to the outer hull. The Coast Guard agrees the language of the proposed rule was unclear, and agrees with the commenter's suggestion, which was the intended meaning of the proposed rule's text. The Coast Guard has revised §§ 160.135-11(c)(2)(i)(A) and 160.156-11(c)(2)(i)(A) to clarify that only the outer hull and FRP inner hull components bonded or bolted to the outer hull must be constructed of clear resin.
The Coast Guard is making two clarifying editorial changes requested by commenters: (1) In § 160.115-7(b)(6)(vi)(B), the reference in the proposed rule to “12 inches” now reads in the interim rule as “0.3m (12 in)” for consistency throughout the rules in citing the metric measurement and noting the U.S. customary measurement in parentheses; and (2) in § 160.135-7(b)(12) the Coast Guard adds the word “hull” before “drain plug” in the paragraph heading to avoid confusion with engine oil pan drain plugs, or with other drain plugs.
Additionally, as suggested by a commenter, the Coast Guard is renumbering proposed 46 CFR part 164, subpart 164.017 as 46 CFR part 164, subpart 164.120. The commenter suggested that the choice of “164.017” for a new subpart number addressing fire retardant resins for lifeboats and rescue boats is possibly confusing because this designation might not be consistent with the currently applied numbering convention in 46 CFR. The current numbering convention used in 46 CFR correlates domestic-applicable—subparts 160.0XX—with SOLAS-applicable—subparts 160.1XX. This same numbering convention also applies to approval series. Under this convention, the correlating SOLAS-applicable approval series to proposed subpart 164.017 would be current approval series 164.117, which is assigned to SOLAS Floor Coverings. The commenter recommended number “164.050” or higher as a suitable alternative. The Coast Guard has renumbered proposed 46 CFR part 164, subpart 164.017 to subpart 164.120 to resolve the conflict with the approval series assigned to floor coverings and to acknowledge that the proposed subpart is consistent with SOLAS requirements.
Finally, the Coast Guard is making additional non-substantive changes to the references to documents incorporated by reference and to correct a typo. The Coast Guard updated the citations to IMO documents incorporated by reference to make them easier to identify and to obtain copies. The Coast Guard has updated citations of other standards incorporated by reference by providing cites to edition and date, as applicable, to ensure proper identification of the standard and to conform to Federal Register requirements for incorporations by reference. None of the standards with updated citations have changed from the NPRM to the interim rule. The Coast Guard also removed two standards (ISO 2039-1:2001 and MIL P 17549D(SH)) that were erroneously proposed for incorporation by reference in part 164.120 because they were not proposed for use in part 164.120 in the NPRM and are not used in the interim rule. The NPRM proposed incorporation by reference of ISO 2039-1:2001 and ISO 2039-2:1987 in § 165.120-7, but that section only referenced “ISO 2039” as an equivalent, alternative to ASTM D 2583. Those familiar with these standards would recognize that ISO 2039-2:1987 is the equivalent, alternative to ASTM D 2583 for determining indentation hardness. The interim rule does not contain the unnecessary ISO standard and corrects the reference in § 165.120-7 to read “ISO 2039-2.” The NPRM proposed incorporate by reference of MIL P 17549D(SH) but the proposed rule and interim rule do not reference to this standard in part 164.120. The Coast Guard is also correcting a typo that appeared in the proposed definition of “Independent Laboratory” in proposed § 160.132-3. The proposed definition incorrectly referenced 46 CFR 169.001-3 instead of 46 CFR 159.001-3, which was correctly referenced in all other definitions of “Independent Laboratory” in the proposed rule.
The Coast Guard received 29 comments in response to the NPRM published on August 31, 2010. See 75 FR 53458. Several comments proposed changes or made comments prompting changes in the interim rule, as discussed above in Section A, Discussion of Changes from the NPRM. The following paragraphs contain an analysis of the remaining comments received.
One commenter noted the two new resolutions recently adopted by IMO and asked whether the Coast Guard will require compliance with the amendments to the LSA Code and Recommendation on Testing that affect liferaft capacity requirements.
As discussed above in II, Regulatory History, the Coast Guard is publishing an SNPRM to propose changes to the interim rule to address these two new resolutions. The SNPRM is published separately in this issue of the Federal Register and the Coast Guard seeks comment on the proposed changes in the SNPRM.
One commenter noted that, under the Agreement between the United States and European Community on the mutual recognition of certification of conformity for marine equipment (US/EC MRA) and the agreement between the United States and the European Economic Area and European Free Trade Association countries on the Mutual Recognition for Conformity of Marine Equipment (US/EEA/EFTA MRA), a Notified Body
issues Coast Guard approval certificates, and asked whether the Coast Guard intends to modify this, based on the NPRM preamble statement: “The Coast Guard would remain the sole issuer of certificates of approval for Coast Guard-approved lifesaving equipment.” The commenter also stated that an independent laboratory publishes its approval certificates, and asked whether such publication would violate the proposed rule.
The Coast Guard clarifies that Notified Bodies, recognized under the US/EC MRA and the US/EEA/EFTA MRA, do not issue Coast Guard Certificates of Approval, but are permitted to issue a Coast Guard approval number for certain types of equipment and assign it to the Notified Body's certificate in accordance with the US/EC MRA and the US/EEA/EFTA MRA. For more information on the US/EC MRA and the US/EEA/EFTA MRA, please see Navigation and Inspection Circular 08-04 change 1 (available at: http://www.uscg.mil/hq/cg5/nvic/pdf/2004/08-04change1.pdf).
The Coast Guard notes that the only equipment affected by this rulemaking currently covered by the US/EC MRA and the US/EEA/EFTA MRA is liferaft automatic disengaging devices, which are addressed in 46 CFR part 160, subpart 160.170. Liferaft automatic release mechanisms may have a Certificate of Approval issued by the Coast Guard or a Coast Guard approval number issued by the appropriate Notified Body. The Coast Guard recognizes that an independent laboratory may also be a Notified Body, and clarifies that an independent laboratory publishing its approval certificates for equipment covered by the US/EC MRA and the US/EEA/EFTA MRA does not violate this rule, and in fact is required for Coast Guard approvals issued under the MRAs. The Coast Guard notes that, unless issued in accordance with one of the MRAs, an independent laboratory's approval certificate does not constitute Coast Guard approval. The Coast Guard further clarifies that for all other equipment it will remain the sole issuer of Certificates of Approval for Coast Guard-approved lifesaving equipment.
One commenter pointed out the discussion in the NPRM preamble regarding the Coast Guard's intention to relieve manufacturers of the burden of multiple design reviews, or prototype tests, by multiple nations with the expanded use of independent laboratories, and asked whether there will be Mutual Recognition Agreements (MRAs) with the other nations, or whether the Coast Guard will accept approvals done by an independent laboratory on behalf of other nations.
The Coast Guard is not currently pursuing MRAs with other nations, but will accept test reports from Coast Guard-accepted independent laboratories in support of approvals for other nations, provided the testing is conducted in accordance with this interim rule. While a foreign entity may qualify as an independent laboratory accepted under 46 CFR part 159, subpart 159.010, the entity will perform duties under the interim rule on behalf of the Coast Guard, and will apply and comply with Coast Guard requirements, not with the entities' own rules or guidelines.
One commenter noted the NPRM preamble statement, “Manufacturers of liferafts would have to demonstrate that designs previously approved under the current regulations comply with the revised regulations prior to the expiration of their current approvals,” and asked whether the rule will delegate the design review to a recognized laboratory. No, the Coast Guard retains the responsibility for design review for liferafts under provisions in current 46 CFR part 160, subpart 160.151, and those provisions are not affected by this rulemaking.
One commenter noted that various steps of the approval process are split between the Coast Guard and an independent laboratory for some equipment. The commenter suggested it should be ensured that the same party is involved with all parts of the approval process.
The Coast Guard disagrees. As noted in the NPRM preamble, the Coast Guard retains authority for the phases of the approval process that involve decisions about the acceptability and approvability of lifesaving equipment design and performance, preapproval plan review and prototype testing. Additionally, the Coast Guard remains the sole issuer of Certificates of Approval (except where approval numbers are issued in accordance with the US/EC MRA or the US/EEA-EFTA MRA, as discussed above).
One commenter suggested that the use of independent laboratories for plan review and prototype inspection and tests be limited to manufacturers that already hold Coast Guard Certificates of Approval for the type of equipment under consideration, and independent laboratories already involved in inspection of the type of equipment involved.
The Coast Guard disagrees with the suggested blanket limitation because, as stated in the NPRM, the authority for independent laboratories to perform these functions will be defined in the course of acceptance of the independent laboratory in accordance with 46 CFR part 159, subpart 159.010. The commenter's suggestion may be considered, as appropriate, in the course of accepting specific independent laboratories for approval of specific types of equipment. The Coast Guard notes that an entity must already be involved in inspection of the type of equipment for which they apply in order to be an accepted independent laboratory under 46 CFR part 159, subpart 159.010.
One commenter asked whether the proposed rulemaking satisfies the court order of May 31, 1983, effectuating the decision in U.S. Lifesaving Equipment Manufacturers Association v. Dole, 567 F.Supp. 696, (May 4, 1983). Specifically, the court order prohibited the Coast Guard from requiring or authorizing “any manufacturer or manufacturers of liferafts, lifeboats, or lifeboat equipment to have such equipment inspected or tested by an independent laboratory unless USCG shall have first (a) Published an appropriate notice of proposed rulemaking in the Federal Register advising interested persons of the scope and effect of and reasons for the proposed new requirement, (b) provided an opportunity for public comment thereon, (c) fully considered all such comments, and (d) included in the final regulation an adequate statement of the basis and purpose of the new requirements.”
Yes, the Coast Guard satisfies that court order with (a) Publication of the NPRM on August 30, 2010, (b) the public comment period that closed on November 29, 2010, (c) this discussion of comments evidencing Coast Guard's consideration of all comments, and (d) the discussion above under III, Basis and Purpose.
One commenter stated that they think the word “advertise” in § 159.010-3(a)(3)-(5) (requiring an independent laboratory not be owned or controlled by a manufacturer, vendor, or supplier of materials for the equipment or material to be inspected; not be dependent on acceptance as an independent laboratory to remain in business, and not advertise or promote equipment or materials that the independent laboratory inspects or tests), can be taken to mean that an independent laboratory cannot list the products it has approved or allow the use of its logos on such products.
The Coast Guard agrees that under longstanding Coast Guard policy, independent laboratories may, and commonly do, mark and list equipment they have tested. The Coast Guard emphasizes, however, that under the subparts affected by this rulemaking, independent laboratories do not approve equipment on behalf of the Coast Guard.
One commenter suggested that the proposed rule provisions for permitting the use of equivalent materials should require the independent laboratory to prepare the justification of equivalency for acceptance by the Commandant. The commenter suggested that Coast Guard staff should not have to do the research required to accept such equivalencies.
The Coast Guard concurs with the spirit of the comment to relieve Coast Guard staff of researching equivalencies. Under longstanding Coast Guard policy, it is the burden of the manufacturer to demonstrate equivalency when requesting such a determination. No regulatory text changes are necessary.
One commenter asked if the Coast Guard intends that a laboratory would be required to verify the quality assurance and quality control process in a given factory and monitor batch testing of resins, per the following NPRM preamble statement: “The scope of proposed subpart 164.017 would state that the subpart contains performance requirements, acceptance tests, and production testing and inspection requirements for fire retardant resins used in the construction of lifeboats and rescue boats approved under proposed 46 CFR part 160, subparts 160.135 and 160.156. See proposed § 164.017-1.”
No, the intent of this rulemaking is not to require independent laboratories to verify the quality assurance and quality control process at a resin manufacturer. The Coast Guard notes that new 46 CFR part 164, subpart 164.120 (proposed in the NPRM as subpart 164.017) does not contain such a requirement. The Coast Guard accepts independent laboratories for the testing and inspections of specific equipment or materials. An independent laboratory accepted for resin may not be the same independent laboratory accepted for lifeboats or rescue boats.
One commenter suggested that Table 1, “IMO Standards and Coast Guard Proposed Interpretations,” in the NPRM preamble should be included in the final rule because of its usefulness in showing differences between IMO standards and Coast Guard interpretations of those standards.
While the Coast Guard included Table 1 in the NPRM preamble to aid readers in understanding the regulatory text, the regulatory text is the official legal language. Table 1, however, will remain available for reference as published in the NPRM.
One commenter expressed support for § 160.135-7(b)(2), describing operator visibility requirements which exceed the requirements of the IMO LSA Code.
The Coast Guard appreciates the support.
One commenter asked whether, per the preamble statement indicating that the Coast Guard will require the installation of navigation lights on lifeboats and rescue boats, consistent with the International Regulations for Preventing Collisions at Sea (COLREGS) requirements, the Coast Guard will present such a proposal to IMO for consideration.
No, the Coast Guard does not consider such a proposal necessary since neither SOLAS nor the LSA Code exempt lifeboats or rescue boats from navigational lights as required by the COLREGS for a vessel of the relevant size and speed.
One commenter asked that the Coast Guard make available the data used in the analysis of the proposed rule's effect on small entities. The Coast Guard notes that the data has been available since publication of the NPRM. The data is disclosed in the NPRM's Regulatory Analysis, which continues to be available on the docket where indicated under ADDRESSES.
One commenter suggested adding MIL-R-21607E(SH), Resins, Polyester, Low Pressure Laminating, Fire-Retardant to the list of standards in § 160.135-5(f) without providing a reason.
The Coast Guard disagrees. This standard is incorporated by reference appropriately in 46 CFR part 164, proposed subpart 164.120 (proposed in the NPRM as subpart 164.017), which is the subpart addressing resins and required standards, and is only referred to, but not required, in 46 CFR part 160, subpart 160.135.
One commenter noted that proposed § 160.156-15(b)(3) refers to a guideline for rescue boat “Running Lot Inspections,” but that there are no other references to running lot inspections to be found. The commenter asked whether running lot inspections will be considered in the rulemaking.
The Coast Guard notes that the NPRM did not reference guidelines for rescue boat “'Running Lot Inspections,” nor does this rulemaking address running lot inspections. Although past practice provided the option for the use of running lot inspections, the Coast Guard did not propose the use of running lot inspections in the NPRM because the Coast Guard determined it would be impractical for this type of equipment, which is produced and inspected on an individual, versus lot, basis. As such, under the interim rule, each production rescue boat must be tested in accordance with § 160.156-15.
One commenter asked if the Coast Guard was considering allowing extended service intervals for inflatable liferafts in light of movement toward extended service, applying vacuum packing and other methods.
The NPRM did not address extended service intervals for liferafts, and the Coast Guard is not addressing extended service intervals in this interim rule.
Two commenters suggested that the “Incorporation by reference” and “Definitions” sections and preemption language for each equipment type subpart should be combined into sections to apply to all of 46 CFR part 160 or all of 46 CFR subchapter Q. The commenters suggested this will eliminate the need to have these sections in each subpart.
The Coast Guard appreciates the potential gained efficiency in having combined sections; however, the standards incorporated by reference and the definitions contained in the subparts affected by this rulemaking do not apply to all of part 160. The Coast Guard also appreciates the suggestion regarding subchapter Q; however, it is beyond the scope of this rulemaking, which does not amend part 159 or affect all the subparts contained in subchapter Q. The incorporations by reference, definitions, and preemption language are appropriately placed for the purposes of this rulemaking. The Coast Guard, however, may consider the suggestion in a future rulemaking.
One commenter suggested that the Coast Guard remove from the CFR all existing language applicable to rigid buoyant apparatuses and life floats and add language indicating that all approvals of such equipment will be withdrawn under 46 CFR 2.75-50(a) on January 1, 2015, per Section 609 of the Coast Guard Authorization Act of 2010 (Pub. L. 111-281).
The Coast Guard plans to address Section 609 requirements in a future regulatory action, and not as part of this rulemaking.
One commenter asked whether the proposed rulemaking extends to those companies that service fire fighting and lifesaving equipment.
No, this is beyond the scope of this rulemaking.
One commenter noted that, although this rulemaking does not address installation testing, the Coast Guard's guidance on installation testing contained in the online version of the Marine Safety Manual (MSM), Volume II, section B.1.P.2 is incomplete and recommends that the missing sections be added to the Web site.
Although this comment is beyond the scope of this rulemaking, the Coast Guard appreciates the information and will take appropriate action to address it.
The Director of the Federal Register has approved the material in 46 CFR 160.010-1, 160.051-5, 160.115-5, 160.132-5, 160.133-5, 160.135-5, 160.151-5, 160.156-5, 160.170-5, and 164.120-5 for incorporation by reference under 5 U.S.C. 552 and 1 CFR part 51. You may inspect this material at U.S. Coast Guard Headquarters where indicated under ADDRESSES. Copies of the material are available from the sources listed in paragraph (b) in each of those sections.
We developed this interim rule after considering numerous statutes and executive orders related to rulemaking. Below we summarize our analyses based on 15 of these statutes or executive orders.
This rule is not a significant regulatory action under section 3(f) of Executive Order 12866, Regulatory Planning and Review as supplemented by Executive Order 13563, and does not require an assessment of potential costs and benefits under section 6(a)(3) of that Order. OMB has not reviewed it under that Order.
Comments on the proposed rule are summarized in the “Discussion of Comments and Changes” section of this preamble. The Coast Guard received no comments that altered our assessment of impacts in the NPRM. We have found no additional data or information that changed our findings in the NPRM. We have adopted the assessment in the NPRM for this rule as final.
A “Preliminary Regulatory Analysis and Initial Regulatory Flexibility Analysis” is available in the docket where indicated under the “Public Participation and Request for Comments” section of this preamble. A summary of the analysis follows:
As previously discussed, the Coast Guard will amend 46 CFR part 160 to harmonize its regulations with IMO standards governing certain types of lifesaving equipment. The Coast Guard also will incorporate the use of independent laboratories for Coast Guard approval procedures for certain types of lifesaving equipment, including requiring the use of independent laboratories at certain stages of the approval procedures in lieu of Coast Guard personnel who currently perform these inspections and witness these tests.
We expect the changes to harmonize existing regulations with international standards to have no additional costs for manufacturers of lifesaving equipment. In order for their lifesaving equipment to be used on vessels for international voyages from any nation that is a SOLAS signatory, equipment manufacturers must currently comply with the international standards for lifesaving equipment established by SOLAS. We expect the rule reflects existing industry practices adopted in response to these international standards governing the performance of certain types of lifesaving equipment.
We expect the changes to require the use of independent laboratories instead of Coast Guard personnel will result in additional costs for manufacturers of certain types of lifesaving equipment.
Currently, the Coast Guard does not charge for its inspections (although overseas manufacturing facilities reimburse the Coast Guard for travel and subsistence costs of Coast Guard inspectors). The use of independent laboratories required by this rule will create a new cost for manufacturers of lifesaving equipment. However, the costs of inspections by independent laboratories will be partially offset by an overall reduction in the number of inspections, made possible through the coordination of independent laboratories. Manufacturers will be able to schedule inspections and testing for independent laboratories acting on behalf of multiple nations, including the U.S., rather than requiring separate Coast Guard inspections and testing by Coast Guard inspectors. This coordinated use of independent laboratories will avoid multiple inspections and testing of the same equipment (see the “Independent Laboratories” section for more details).
Data obtained from the Coast Guard Maritime Information Exchange (CGMIX) indicates that the population affected by this rule includes eight U.S. manufacturers and 76 foreign manufacturers of lifesaving equipment. We estimate the annual costs to manufacturers for using independent laboratories are approximately $130,000 for U.S. firms and approximately $683,000 for foreign firms (undiscounted). Over a 10-year period of analysis, we estimate the total present value costs of the rulemaking are approximately $913,000 for U.S. firms and approximately $4.8 million for foreign firms, discounted at seven percent. We estimate the total present value cost of the rulemaking to be about $5.7 million over a 10-year period of analysis.
The other changes, not resulting from harmonization with internal standards or use of independent laboratories, update Coast Guard regulations to reflect current practice or newer versions of existing standards and have minimal costs. These include an amendment specifying the attachment point for sea anchors to liferafts, and the addition of a new subpart in 46 CFR part 164 addressing resins used in the construction of lifeboats and rescue boats and incorporating the use of equivalent international standards as an alternative to national consensus standards.
The benefits of the rule include compliance with U.S. obligations as a SOLAS signatory and the removal of inconsistencies between international standards and the Coast Guard's current regulations. The rule also provides possible savings for manufacturers from coordination efficiencies for inspections and increased efficiency for the Coast Guard from greater flexibility in assigning its human resources, particularly those stationed at overseas Coast Guard offices.
The “Preliminary Regulatory Analysis and Initial Regulatory Flexibility Analysis” available on the docket provides additional detail on the costs and benefits of this rulemaking.
A combined “Preliminary Regulatory Analysis and Initial Regulatory Flexibility Analysis” discussing the impact of this rule on small entities is available in the docket where indicated under the “Public Participation and Request for Comments” section of this preamble.
In the NPRM, the Coast Guard certified under 5 U.S.C. 605(b) that the rule would not have a significant economic impact on a substantial number of small entities. We received no comments on this certification and have made no changes that would alter our assessment of the impacts in the NPRM.
We determined that six of the eight U.S. firms manufacturing lifesaving equipment are classified as small entities under the Small Business Administration size standards. We estimate the annual costs to use independent laboratories is less than 0.5 percent of revenue for five of the six small entities and less than 1.25 percent of revenue for one of the six small entities. However, these estimates do not include adjustments for manufacturer savings from the coordinated use of independent laboratories that will avoid multiple inspections and testing of the same equipment (see the “Independent Laboratories” section for more details).
Based on this information, 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.
Under section 213(a) of the Small Business Regulatory Enforcement Fairness Act of 1996 (Pub. L. 104-121), the Coast Guard wants to assist small entities in understanding this rule so that they can better evaluate its effects on them and participate in the rulemaking. If the rule will affect your small business, organization, or governmental jurisdiction and you have questions concerning its provisions or options for compliance, please consult Mr. George Grills, P.E., Commercial Regulation and Standard Directorate, Office of Design and Engineering Standards, Lifesaving and Fire Safety Division (CG-5214), Coast Guard, telephone 202-372-1385, or e-mail George.G.Grills@uscg.mil. The Coast Guard will not retaliate against small entities that question or complain about this rule or any policy or action of the Coast Guard.
This rule will call for no new collection of information under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3520). The information collected under the rule is addressed in the existing collection of information, OMB control number 1625-0035, title 46 subchapter Q: Lifesaving, Electrical, and Engineering Equipment, Construction and Materials Marine Sanitation Devices (33 CFR part 159), which was reviewed by OMB on May 27, 2009 and will expire after the 3-year approval period ending on May 31, 2012, unless renewed. The rule's requirement for the use of inspectors from independent laboratories will increase the total annual collection burden of the existing collection of information by 1.2 percent. The current authorized annual burden is 103,289 hours and the rule will increase the annual burden by approximately 1,221 hours.
The increase in the annual burden is not considered material or substantive. To confirm this, the Coast Guard has submitted a change worksheet (OMB Form 83-C) to OIRA noting the change in the annual burden. The change worksheet is available in the docket where indicated under the “Public Participation and Request for Comments” section of this preamble.
A rule has implications for federalism under Executive Order 13132, Federalism, if it has a substantial direct effect on State or local governments and will either preempt State law or impose a substantial direct cost of compliance on them.
While it is well settled that States may not regulate in categories in which Congress intended the Coast Guard to be the sole source of a vessel's obligations, as these categories are within a field foreclosed from regulation by the States (see U.S. v. Locke, above), the Coast Guard recognizes the key role state and local governments may have in making regulatory determinations. Additionally, Sections 4 and 6 of Executive Order 13132 require that for any rules with preemptive effect, the Coast Guard shall provide elected officials of affected state and local governments and their representative national organizations the notice and opportunity for appropriate participation in any rulemaking proceedings, and to consult with such officials early in the rulemaking process. Therefore, we invited affected state and local governments and their representative national organizations to indicate their desire for participation and consultation in this rulemaking. We received no such indications.
The Coast Guard has analyzed this rule under Executive Order 13045, Protection of Children from Environmental Health Risks and Safety Risks. This rule is not an economically significant rule and will not create an environmental risk to health or risk to safety that might disproportionately affect children.
Under the Trade Agreement Act of 1979 (codified at 19 U.S.C. 2501 et seq.), agencies are prohibited from promulgating any standards or engaging in related activities that create unnecessary obstacles to foreign commerce. Because the rule will have an effect on foreign firms, we have also examined the costs and regulatory action to determine if it will constitute an unnecessary obstacle to trade. Because the overall costs are minimal, the requirement for third-party inspections and testing is uniform across product classes, and the requirement for independent third-party testing applies to both domestic and overseas manufacturers, this rule does not constitute an obstacle to trade or a non-tariff barrier to trade.
The National Technology Transfer and Advancement Act (NTTAA) (15 U.S.C. 272 note) directs agencies to use voluntary consensus standards in their regulatory activities unless the agency provides Congress, through OMB, with an explanation of why using these standards will be inconsistent with applicable law or otherwise impractical. Voluntary consensus standards are technical standards (e.g., specifications of materials, performance, design, or operation; test methods; sampling procedures; and related management systems practices) that are developed or adopted by voluntary consensus standards bodies.
ASTM A 36/A 36M-08, Standard Specification for Carbon Structural Steel, (approved May 15, 2008);
ASTM A 216/A 216M-08, Standard Specification for Steel Castings, Carbon, Suitable for Fusion Welding for High-Temperature Service, (approved November 1, 2008);
ASTM A 276-08a, Standard Specification for Stainless Steel Bars and Shapes, (approved October 1, 2008);
ASTM A 313/A313M—08, Standard Specification for Stainless Steel Spring Wire, (approved October 1, 2008);
ASTM A 314-08, Standard Specification for Stainless Steel Billets and Bars for Forging, (approved October 1, 2008);
ASTM A 653/A 653M-08, Standard Specification for Steel Sheet, Zinc-Coated (Galvanized) or Zinc-Iron Alloy-Coated (Galvannealed) by the Hot-Dip Process, (approved July 15, 2008); ASTM B 127-05 (Reapproved 2009), Standard Specification for Nickel-Copper Alloy (UNS N04400) Plate, Sheet, and Strip, (approved October 1, 2009);
ASTM B 209-07, Standard Specification for Aluminum and Aluminum-Alloy Sheet and Plate, (approved August 1, 2007);
ASTM D 543-06, Standard Practices for Evaluating the Resistance of Plastics to Chemical Reagents, (approved April 1, 2006);
ASTM D 570-98 (Reapproved 2005), Standard Test Method for Water Absorption of Plastics, (approved November 1, 2005);
ASTM D 638-08, Standard Test Method for Tensile Properties of Plastics, (approved April 1, 2008);
ASTM D 695-08, Standard Test Method for Compressive Properties of Rigid Plastics, (approved August 1, 2008);
ASTM D 790-07e1, Standard Test Methods for Flexural Properties of Unreinforced and Reinforced Plastics and Electrical Insulating Materials, (approved September 1, 2007);
ASTM D 792-08, Standard Test Methods for Density and Specific Gravity (Relative Density) of Plastics by Displacement, (approved June 15, 2008);
ASTM D 1045-08, Standard Test Methods of Sampling and Testing Plasticizers used in Plastics, (approved August 1, 2008);
ASTM D 1824-95 (Reapproved 2002), Standard Test Method for Apparent Viscosity of Plastisols and Organosols at Low Shear Rates, (approved March 15, 1995);
ASTM D 2471-99, Standard Test Method for Gel Time and Peak Exothermic Temperature of Reacting Thermosetting Resins, (approved November 10, 1999);
ASTM D 2583-07, Standard Test Method for Indentation Hardness of Rigid Plastics by Means of a Barcol Impressor, (approved March 1, 2007);
ASTM D 2584-08, Standard Test Method of Ignition Loss for Cured Reinforced Resins, (approved May 1, 2008);
ASTM D 4029-09, Standard Specification for Finished Woven Glass Fabrics, (approved January 15, 2009);
ASTM F 1014-02 (Reapproved 2007), Standard Specification for Flashlights on Vessels, (approved May 1, 2007);
ASTM F 1166-07, Standard Practice for Human Engineering Design for Marine Systems, Equipment, and Facilities, (approved January 1, 2007);
ASTM G 154-06, Standard Practice for Operating Fluorescent Light Apparatus for UV Exposure of Nonmetallic Materials, (approved June 5, 2006);
IMO Resolution A.657(16), Instructions for Action in Survival Craft, (adopted October 19, 1989);
IMO Resolution A.658(16), Use and Fitting of Retro-Reflective Materials on Life-Saving Appliances, (adopted October 19, 1989);
IMO Resolution A.760(18), Symbols Related to Life-Saving Appliances and Arrangements, (adopted November 4, 1993);
Life-Saving Appliances, including LSA Code, 2010 Edition, (2010);
MSC/Circular 980, Standardized Life-saving Appliance Evaluation and Test Report Forms (February 13, 2001);
MSC/Circular 1006, Guidelines On Fire Test Procedures For Acceptance Of Fire-Retardant Materials For The Construction Of Lifeboats, (June 18, 2001);
MSC.1/Circular 1205, Guidelines for Developing Operation and Maintenance Manuals for Lifeboat Systems, (May 26, 2006);
ISO 62:2008(E), Plastics—Determination of water absorption, Third Edition (February 15, 2008);
ISO 175:1999(E), Plastics—Methods of test for the determination of the effects of immersion in liquid chemicals, Second Edition (May 1, 1999);
ISO 527-1:1993(E), Plastics—Determination of tensile properties, Part 1: General Principles, First Edition (June 15, 1993);
ISO 604:2002(E), Plastics—Determination of compressive properties, Third Edition (March 1, 2002);
ISO 1172:1996(E), Textile-glass-reinforced plastics—Prepregs, moulding compounds and laminates—Determination of the textile-glass and mineral-filler content—Calcination methods, Second Edition (December 15, 1996);
ISO 1183-1:2004(E), Plastics,—Methods for determining the density of non-cellular plastics—Part 1: Immersion method, liquid pyknometer method and titration method, First Edition (February 1, 2004);
ISO 1675-1985(E), Plastics—Liquid resins—Determination of density by the pyknometer method, Second Edition (August 15, 1985);
ISO 2039-2:1987(E), Plastics—Determination of hardness—Part 2: Rockwell hardness, Second Edition (July 15, 1987);
ISO 2114:2000(E), Plastics (polyester resins) and paints and varnishes (binders)—Determination of partial acid value and total acid value, Third Edition (August 1, 2000);
ISO 2535:2001(E), Plastics—Unsaturated-polyester resins—Measurement of gel time at ambient temperature, Third Edition (July 15, 2001);
ISO 2555:1989(E), Plastics—Resins in the liquid state or as emulsions or dispersions—Determination of apparent viscosity by the Brookfield test method, Second Edition (February 1, 1989, corrected and reprinted February 1, 1999);
ISO 14125:1998(E), Fibre-reinforced plastic composites—Determination of flexural properties, First Edition (March 1, 1998);
ISO 15372:2000(E), Ships and marine technology—Inflatable rescue boats—Coated fabrics for inflatable chambers, First Edition (December 1, 2000);
ISO 15738:2002(E), Ships and marine technology—Gas Inflation systems for inflatable life-saving appliances, First Edition (February 1, 2002);
ISO 17339:2002(E), Ships and marine technology—Sea anchors for survival craft and rescue boats, First Edition (November 15, 2002);
ISO 18813:2006(E), Ships and marine technology—Survival equipment for survival craft and rescue boats, First Edition (April 1, 2006);
SAE J1527-93 (Revised JAN93), Marine Fuel Hoses, (February 5, 1993);
UL 1102, Standard for Nonintegral Marine Fuel Tanks, Fifth Edition (February 4, 1999); and
UL 1185, Standard for Portable Marine Fuel Tanks, Fourth Edition (September 26, 1996).
The sections that reference these standards and the locations where these standards are available are listed in 46 CFR 160.010-1, 160. 051-5, 160.115-5, 160.132-5, 160.133-5, 160.135-5, 160.151-5, 160.156-5, 160.170-5, and 164.120-5.
This rule also uses technical standards other than voluntary consensus standards. The Coast Guard will use the below-listed standards issued by the Department of Defense and the General Services Administration because the Coast Guard did not find voluntary consensus standards that fulfill the purpose of these standards as applicable to the rule:
A-A-55308, Commercial Item Description, Cloth And Strip, Laminated Or Coated, Vinyl Nylon Or Polyester, High Strength, Flexible, (May 13, 1997);
Federal Standard 595C, Colors Used in Government Procurement, (January 16, 2008);
MIL-C-17415F, Military Specification, Cloth, Coated, and Webbing, Inflatable Boat and Miscellaneous Use, (May 31, 1989);
MIL-C-19663D, Military Specification, Cloth, Woven Roving, For Plastic Laminate, (August 4, 1988);
MIL-P-17549D(SH), Military Specification, Plastic Laminates, Fibrous Glass Reinforced, Marine Structural, (August 31, 1981);
MIL-P-19644C, Military Specification, Plastic Molding Material (Polystyrene Foam, Expanded Bead), (July 10, 1970);
MIL-P-21929B, Military Specification, Plastic Material, Cellular Polyurethane, Foam-In-Place, Rigid (2 and 4 Pounds per Cubic Foot), (August 11, 1969);
MIL-P-40619A, Military Specification, Plastic Material, Cellular, Polystyrene (For Buoyancy Applications) (December 9, 1968);
MIL-R-7575C, Military Specification, Resin, Polyester, Low-Pressure Laminating, (June 29, 1966);
MIL-R-21607E(SH), Military Specification, Resins, Polyester, Low Pressure Laminating, Fire-Retardant, (May 25, 1990); and
MIL-R-24719(SH), Military Specification, Resins, Vinyl Ester, Low Pressure Laminating, (May 4, 1989).
Section 608 of the Coast Guard Authorization Act of 2010 (Pub. L. 111-281) adds new section 2118 to 46 U.S.C. subtitle II (Vessels and Seamen), chapter 21 (General). New section 2118(a) sets forth requirements for standards established for approved equipment required on vessels subject to 46 U.S.C. subtitle II (Vessels and Seamen), Part B (Inspection and Regulation of Vessels). Those standards must be “(1) Based on performance using the best available technology that is economically achievable; and (2) operationally practical.”See 46 U.S.C. 2118(a). This rulemaking addresses lifesaving equipment for Coast Guard approval that is required on vessels subject to 46 U.S.C. subtitle II, part B, and the Coast Guard has ensured this rule satisfies the requirements of 46 U.S.C. 2118(a), as necessary.
We have analyzed this rule under Department of Homeland Security Management Directive 023-01 and Commandant Instruction M16475.lD, which guide the Coast Guard in complying with the National Environmental Policy Act of 1969 (NEPA) (42 U.S.C. 4321-4370f), and have concluded that this action is one of a category of actions that do not individually or cumulatively have a significant effect on the human environment. This rule is categorically excluded under section 2.B.2, figure 2-1, paragraph (34)(a) and (d) of the Instruction and under section 6(a) of the “Appendix to National Environmental Policy Act: Coast Guard Procedures for Categorical Exclusions, Notice of Final Agency Policy” (67 FR 48243, July 23, 2002). This rule involves regulations which are editorial or procedural; regulations concerning equipping of vessels, and regulations concerning vessel operation safety standards. An environmental analysis checklist and a categorical exclusion determination are available in the docket where indicated under ADDRESSES.
For the reasons discussed in the preamble, the Coast Guard amends 46 CFR parts 108, 117, 133, 160, 164, 180, and 199 as follows:
1.The authority citation for part 108 continues to read as follows: Authority:
2.Revise § 108.550(a) to read as follows: § 108.550 Survival craft launching and recovery arrangements: General.
PART 117—LIFESAVING EQUIPMENT AND ARRANGEMENTS Back to Top
3.The authority citation for part 117 continues to read as follows: Authority:
4.In § 117.150, revise paragraph (a) and add paragraph (c) to read as follows: § 117.150 Survival craft embarkation arrangements.
PART 133—LIFESAVING SYSTEMS Back to Top
5.The authority citation for part 133 continues to read as follows: Authority:
46 U.S.C. 3306, 3307; Department of Homeland Security Delegation No. 0170.1.
6.Revise § 133.150(b) to read as follows: § 133.150 Survival craft launching and recovery arrangements: General.
7.The authority citation for part 160 continues to read as follows: Authority:
Subpart 160.010—Buoyant Apparatus for Merchant Vessels Back to Top
8.Revise § 160.010-1 to read as follows: § 160.010-1 Incorporation by reference.
(a) Certain material is incorporated by reference into this part with the approval of the Director of the Federal Register under 5 U.S.C. 552(a) and 1 CFR part 51. To enforce any edition other than that specified in this section, the Coast Guard must publish notice of change in the Federal Register and the material must be available to the public. All approved material is available for inspection at Commandant (CG-5214), U.S. Coast Guard, 2100 Second Street, SW., Stop 7126, Washington, DC 20593-7126. You may also inspect this material at the National Archives and Records Administration (NARA). For information on the availability of this material at NARA, call 202-741-6030 or go to http://www.archives.gov/federal_register/code_of_federal_regulations/ibr_locations.html. You may obtain copies of the material from the sources specified in the following paragraphs.
(b) General Services Administration, Federal Acquisition Service, Office of the FAS Commissioner, 2200 Crystal Drive, 11th Floor, Arlington, VA 22202, 703-605-5400.
(1) Federal Standard 595C, Colors Used in Government Procurement, (January 16, 2008), IBR approved for § 160.010-4 (“FED-STD-595C”).
(c) International Maritime Organization (IMO), Publications Section, 4 Albert Embankment, London SE1 7SR, United Kingdom, +44 (0)20 7735 7611, http://www.imo.org/.
(1) Life-Saving Appliances, including LSA Code, 2010 Edition, (2010), pages 7-71 (“IMO LSA Code”), IBR approved for § 160.010-3.
(2) Life-Saving Appliances, including LSA Code, 2010 Edition, (2010), Revised recommendation on testing of live-saving appliances, pages 79-254 (“IMO Revised recommendation on testing”), IBR approved for § 160.010-3.
(d) Military Specifications and Standards, Standardization Documents Order Desk, Building 4D, 700 Robbins Avenue, Philadelphia, PA 19111-5094, https://assist.daps.dla.mil/quicksearch/.
(1) MIL-P-19644C, Military Specification, Plastic Molding Material (Polystyrene Foam, Expanded Bead), (July 10, 1970), IBR approved for § 160.010-5 (“MIL-P-19644C”).
(2) MIL-P-21929B, Military Specification, Plastic Material, Cellular Polyurethane, Foam-In-Place, Rigid (2 and 4 Pounds per Cubic Foot), (August 11, 1969), IBR approved for § 160.010-5 (“MIL-P-21929B”).
(3) MIL-P-40619A, Military Specification, Plastic Material, Cellular, Polystyrene (For Buoyancy Applications), (December 9, 1968), IBR approved for § 160.010-5 (“MIL-P-40619A”).
(4) MIL-R-21607E(SH), Military Specification, Resins, Polyester, Low Pressure Laminating, Fire-Retardant, (May 25, 1990), IBR approved for § 160.010-5 (“MIL-R-21607E(SH)”).
9.In § 160.010-2, revise the definition for “Commandant” to read as follows: § 160.010-2 Definitions.
Commandant means the Commandant (CG-5214), U.S. Coast Guard, 2100 Second Street, SW., Stop 7126, Washington, DC 20593-7126.
10.Amend § 160.010-3 as follows: a. In paragraph (a)(1), remove the words “(SOLAS chapter III, regulation 38, paragraph 1.5 (III/38.1.5))” and add, in their place, the words “(IMO LSA Code, Chapter IV/4.1.1.5 (incorporated by reference, see § 160.010-1 of this subpart))”;
b. In paragraph (a)(2), remove the words “(Regulation III/38.2.1)” and add, in their place, the words “(IMO LSA Code, chapter IV/4.1.2.1)”;
c. In paragraph (a)(3), remove the words “(Regulation III/39.2.2)” and add, in their place, the words “(IMO LSA Code, chapter IV/4.2.2.2)”;
d. In paragraph (a)(4), remove the words “(Regulation III/39.5.1)” and add, in their place, the words “IMO LSA Code, chapter IV/4.2.5.4”;
e. In paragraph (a)(5), remove the words “(Regulation III/39.5.2)” and add, in their place, the words “(IMO LSA Code, chapter IV/4.2.5.2)”;
f. In paragraph (a)(9) introductory text, remove the words “(Regulation III/39.4.1)” and add, in their place, the words “(IMO LSA Code, chapter IV/4.2.4.1)”;
g. In paragraph (a)(10) introductory text, remove the words “(Regulation III/39.4.2)” and add, in their place, the words “(IMO LSA Code, chapter IV/4.2.4.2)”;
h. In paragraph (a)(11) introductory text, remove the symbol “§ ” and add, in its place, the words “46 CFR”; and remove the words “of this subchapter”;
i. In paragraph (a)(12), in the introductory text after the word “Equipment”, remove the words “(Regulation III/38.5.1)”; and in the last sentence in the introductory text, remove the words “Regulation III/38.5.1” and add, in their places, the words “IMO LSA Code, Chapter IV/4.1.5”;
j. In paragraph (a)(13), remove the words “(Regulations III/39.7.3.4, III/39.7.3.5, and III/39.8.6)”; after the words “requirements of § 160.151-33”, add the words “, as well as IMO LSA Code, chapter IV/4.2.6.3 and 4.2.7.1.6”; and remove the words “regulation III/39.8.6” and add, in their place, the words “IMO LSA Code, chapter IV/4.2.7.1.6”;
k. In paragraph (a)(14), remove the words “IMO Resolution A.689(17)” and add, in their place, the words “IMO Revised recommendation on testing (incorporated by reference, see § 160.010-1 of this subpart)”;
l. In paragraphs (a)(15) and (a)(16), remove the words “IMO Resolution A.689(17)” and add, in their place, the words “IMO Revised recommendation on testing”;
m. In paragraph (e) introductory text, remove the words “under the IMO International Code of Safety for High-Speed Craft (HSC Code)”; and remove the words “Annex 10 to the HSC Code” and add, in their places, the words “Annex 11 to IMO Res. MSC.97(73)”; and
n. Add paragraph (e)(9) to read as follows:
§ 160.010-3 Inflatable buoyant apparatus.
(9) Stability. It must be fitted with stability pockets, in accordance with IMO LSA Code Chapter IV/4.2.5.4.
§ 160.010-4 [Amended]
11.Amend § 160.010-4 as follows: a. In paragraph (g), remove the word “(1/4in.)” and add, in its place, the words “(1/4 in.)”; and
b. In paragraph (n), remove the words “sections 13 and 14 of the “Color Names Dictionary”” and add, in their place, the words “sections 13 and 14 of FED-STD-595C (incorporated by reference, see § 160.010-1 of this subpart)”.
12.Amend § 160.010-5 as follows: a. In paragraph (b) introductory text, remove the text “(CG-521)” and add, in its place, the text “(CG-5214)”;
d. Revise paragraph (b)(4) to read as set forth below”;
e. In paragraph (c)(1), remove the text “MIL-P-21607” and add, in its place, the text “MIL-P-21607E(SH) (incorporated by reference, see § 160.010-1 of this subpart)”; and remove the text “(G-MSE)” and add, in its place, the text “(CG-5214)”; and
f. In paragraphs (c)(2) and (c)(3), remove the text “(CG-521)” and add, in its place, the text “(CG-5214)”.
§ 160.010-7 [Amended]
13.In § 160.010-7(a), remove the text “CG-521” and add, in its place, the text “CG-5214”. end regulatory text
Subpart 160.015 [Removed and Reserved] Back to Top
14.Remove and reserve subpart 160.015. Subpart 160.032 [Removed and Reserved] Back to Top
15.Remove and reserve subpart 160.032. Subpart 160.033 [Removed and Reserved] Back to Top
16.Remove and reserve subpart 160.033. Subpart 160.035 [Removed and Reserved] Back to Top
17.Remove and reserve subpart 160.035. Subpart 160.051—Inflatable Liferafts for Domestic Service Back to Top
18.Revise § 160.051-1 to read as follows: § 160.051-1 Scope.
(b) This subpart does not apply to any A, B, and Coastal Service inflatable liferaft for use only in domestic service that has been approved by the Coast Guard before [INSERT DATE 30 DAYS AFTER DATE OF PUBLICATION OF INTERIM RULE], so long as the liferaft satisfies the annual servicing requirements set forth in 46 CFR 160.151-57.
19.In § 160.051-3, add the definition for “Commandant”, in alphabetical order, to read as follows: § 160.051-3 Definitions.
§§ 160.051-5 through 160.051-9 [Redesignated as §§ 160.051-7 through 160.051-11]
20.Redesignate §§ 160.051-5, 160.051-7, and 160.051-9 as §§ 160.051-7, 160.051-9, and 160.051-11, respectively. 21.Add new § 160.051-5 to read as follows: § 160.051-5 Incorporation by reference.
(b) International Maritime Organization (IMO) Publications Section, 4 Albert Embankment, London SE1 7SR, United Kingdom, +44 (0)20 7735 7611, http://www.imo.org/.
(1) Life-Saving Appliances, including LSA Code, 2010 Edition, (2010), pages 7-71 (“IMO LSA Code”), IBR approved for §§ 160.051-7 and 160.051-9.
(2) Life-Saving Appliances, including LSA Code, 2010 Edition, (2010), Revised recommendation on testing of live-saving appliances, pages 79-254 (“IMO Revised recommendation on testing”), IBR approved for §§ 160.051-7 and 160.051-11.
§ 160.051-7 [Amended]
22.Amend newly redesignated § 160.051-7 as follows: a. In paragraph (a) introductory text, remove the words “Regulation III/38.1.5” and add, in their place, the words “IMO LSA Code chapter IV/4.1.1.5, (incorporated by reference, see § 160.051-5 of this subpart)”;
b. In paragraph (b), remove the first instance of the words “Regulation III/38.1.5.5” and add, in their place, the words “IMO LSA Code, chapter IV/4.1.1.5.5”; and after the words “the viewing port”, remove the words “described in Regulation III/38.1.5.5”;
c. In paragraph (c), remove the first instance of the words “Regulation III/38.1.5.6” and add, in their place, the words “IMO LSA Code, chapter IV/4.1.1.5.6”; and after the words “means of rainwater collection”, remove the words “described in Regulation III/38.1.5.6”;
d. In paragraph (d), remove the words “Regulation III/38.2.1” and add, in their place, the words “IMO LSA Code, chapter IV/4.1.2.1”;
e. In paragraph (e), remove the words “Regulation III/39.2.2” and add, in their place, the words “IMO LSA Code, chapter IV/4.2.2.2”;
f. In paragraph (f), remove the words “Regulation III/39.4.1” and add, in their place, the words “IMO LSA Code, chapter IV/4.2.4.1”;
g. In paragraph (g), remove the words “Regulation III/39.5.1” and add, in their place, the words “IMO LSA Code, chapter IV/4.2.5”;
h. In paragraph (h), remove the first instance of the words “Regulation III/39.6.3” and add, in their place, the words “IMO LSA Code, chapter IV/4.1.3.4”; and after the words “controlled interior lamp”, remove the words “described in Regulation III/39.6.3”;
i. In paragraph (i), remove the words “Regulations III/39.7.3.4 and III/39.7.3.5” and add, in their place, the words “IMO LSA Code, chapter IV/4.2.3.6”;
j. In paragraph (j), remove the words “IMO Resolution A.689(17)” and add, in their place, the words “IMO Revised recommendation on testing (incorporated by reference, see § 160.051-5 of this subpart)”; and
k. In paragraphs (k) and (l), remove the words “IMO Resolution A.689(17)” and add, in their place, the words “IMO Revised recommendation on testing”.
§ 160.051-9 [Amended]
23.Amend newly redesignated § 160.051-9 as follows: a. In paragraph (a), remove the words “Regulation III/38.2.1” and add, in their place, the words “IMO LSA Code chapter IV/4.1.2.1”; and
b. In paragraph (b), remove the words “Regulations III/39.7.3.4 and III/39.7.3.5” and add, in their place, the words “IMO LSA Code, chapter IV/4.2.6.3”.
§ 160.051-11 [Amended]
24.In newly redesignated § 160.051-11, paragraph (f), remove the words “IMO Resolution A.689(17)” and add, in their place, the words “IMO Revised recommendation on testing (incorporated by reference, see § 160.051-5 of this subpart)”. 25.Add subpart 160.115 to read as follows: Subpart 160.115—Launching Appliances—Winches Back to Top
160.115-1 Scope.
160.115-3 Definitions.
160.115-5 Incorporation by reference.
160.115-7 Design, construction, and performance of winches.
160.115-9 Preapproval review.
160.115-11 [Reserved]
160.115-13 Approval inspections and tests for prototype winches.
160.115-15 Production inspections, tests, quality control, and conformance of winches.
160.115-17 Marking and labeling.
160.115-19 Operating instructions and information for the ship's training manual.
160.115-21 Operation and maintenance instructions.
160.115-23 Procedure for approval of design or material change.
§ 160.115-1 Scope.
§ 160.115-5 Incorporation by reference.
(1) IMO Resolution A.760(18), Symbols Related to Life-Saving Appliances and Arrangements, (adopted November 4, 1993), IBR approved for § 160.115-19 (“IMO Res. A.760(18)”).
(2) Life-Saving Appliances, including LSA Code, 2010 Edition, (2010), pages 7-71 (“IMO LSA Code”), IBR approved for § 160.115-7.
(3) Life-Saving Appliances, including LSA Code, 2010 Edition, (2010), Revised recommendation on testing of live-saving appliances, pages 79-254 (“IMO Revised recommendation on testing”), IBR approved for §§ 160.115-7, 160.115-13, and 160.115-15.
(4) MSC/Circular 980, Standardized Life-saving Appliance Evaluation and Test Report Forms, (February 13, 2001), IBR approved for § 160.115-13 (“IMO MSC Circ. 980”).
(5) MSC.1/Circular 1205, Guidelines for Developing Operation and Maintenance Manuals for Lifeboat Systems, (May 26, 2006), IBR approved for § 160.115-21 (“IMO MSC.1 Circ. 1205”).
(a) To seek Coast Guard approval of a winch, a manufacturer must comply with, and each winch must meet, the requirements of the following—
(1) IMO LSA Code, chapter I/1.2.2 and chapter VI/6.1. (incorporated by reference, see § 160.115-5 of this subpart) applicable to the design and intended service of the winch;
(2) IMO Revised recommendation on testing, Part 1/8.1 (incorporated by reference, see § 160.115-5 of this subpart) applicable to the winch;
(b) Each winch must meet each of the following requirements:
(1) Materials. (i) All gears must be machine cut and made of steel, bronze, or other suitable materials properly keyed to shafts. The use of cast iron is not permitted for these parts.
(ii) Metals in contact with each other must be either galvanically compatible or insulated with suitable non-porous materials. Provisions must also be made to prevent loosening or tightening resulting from differences of thermal expansion, freezing, buckling of parts, galvanic corrosion, or other incompatibilities.
(iii) Screws, nuts, bolts, pins, keys, and other similar hardware, securing moving parts must be fitted with suitable lock washers, cotter pins, or locks to prevent them from coming adrift.
(2) Bearings and gears. (i) Positive means of lubrication must be provided for all bearings.
(ii) When worm gears are used, the worm wheel must operate in an oil bath. Means to easily check the oil level in the gear case must be provided.
(iii) The manufacturer must furnish a lubrication chart and a plate attached to the winch indicating the lubricant recommended for extremes in temperature.
(3) Guards. All moving parts must have suitable guards.
(4) Welding. Welding must be performed by welders certified by the Commandant, a classification society recognized by the Commandant in accordance with 46 CFR 8.220, the U.S. Navy, or the national body where the winch is constructed or the national body's designated recognized organization. Only electrodes intended for use with the material being welded may be used. All welds must be checked using appropriate non-destructive tests.
(5) Winch drums. (i) A winch must have grooved drums unless otherwise approved by the Commandant.
(ii) The diameter of the drums must be at least 16 times the diameter of the falls.
(iii) Drums must be so arranged as to keep the falls separate, and to pay out the falls at the same rate. Clutches between drums are not permitted unless bolted locking devices are used.
(6) Winch motors. For a winch powered by electric or hydraulic motors, or portable power units such as air or electric drills—
(i) Positive means must be provided for controlling the power to the winch, arranged so that the operator must hold the master switch or controller in the “on” or “hoist” position for hoisting, and when released, will immediately shut off the power;
(ii) A clutch must be fitted to disengage the power installation during the lowering operation;
(iii) A means must be provided to disconnect power to the winch before a hand crank can be engaged with the winch operating shaft, and this interruption of power must be maintained while the hand crank is so engaged;
(iv) The air or electric power outlet for a portable power unit must be located adjacent to the winch where the unit is to be coupled, and the outlet must be interconnected with, and protected by, the same system of safety devices as required for a winch with built-in-motors;
(v) A main line emergency disconnect switch, the opening of which disconnects all electrical potential to the winch, must be provided. This switch must be located in a position accessible to the person in charge of the boat stowage and must be in a position from which the movement of both davit arms can be observed as they approach the final stowed position;
(vi) Limit switches, one for each davit arm, must be provided to limit the travel of the davit arms as they approach the final stowed position. These switches must—
(A) Be so arranged that the opening of either switch will disconnect all electrical potential of the circuit in which the switches are connected;
(B) Be arranged to stop the travel of the davit arms not less than 0.3m (12 in) from their final stowed position; and
(C) Remain open until the davit arms move outboard beyond the tripping position of the switches;
(vii) Motor clutches, when used, must be of either frictional or positive engaging type. When one motor is used for two winches, the clutch must be so arranged that only one winch may be engaged at any one time. The clutch operating lever must be capable of remaining in any position when subject to vibration and must be so arranged that when in neutral position both lifeboats may be lowered simultaneously;
(viii) Motors, switches, controls, and cables must be waterproof if installed on an open deck. Controls may be of the drip-proof type if installed in a deck house or under deck;
(ix) Hydraulic systems must be in accordance with 46 CFR part 58, subpart 58.30; and
(x) Electrical installations must comply with 46 CFR 111.01-9, 111.01-11, 111.01-19, 111.25, 111.55, 111.70, and 111.95.
(7) Quick return. For a winch used to launch an inflatable liferaft means must be provided for rapidly retrieving the falls by hand power.
§ 160.115-9 Preapproval review.
(a) Except as provided in paragraph (c) of this section, the Commandant must conduct the preapproval review required by this section, in accordance with 46 CFR 159.005-5.
(b) Manufacturer requirements. To seek Coast Guard approval of a winch, the manufacturer must submit an application to the Commandant meeting the requirements of 46 CFR 159.005-5 for preapproval review. To meet the requirements of 46 CFR 159.005-5(a)(2), the manufacturer must submit in triplicate—
(1) A list of drawings, specifications, manuals, and any other documentation submitted, with each document identified by number, title, revision number, and issue date;
(3) Stress calculations for all load carrying parts;
(4) An operation, maintenance, and training manual as described in §§ 160.115-19 and 160.115-21 of this subpart;
(5) A description of the quality control procedures and recordkeeping that will apply to the production of the winch, which must include, but is not limited to—
(iii) The method for checking quality of fabrication and joints, including welding inspection procedures; and
(iv) The inspection checklists used during various stages of fabrication to assure that the approved winch complies with the approved plans and the requirements of this subpart;
(6) Any other drawing(s) necessary to show that the winch complies with the requirements of this subpart;
(7) The location or address of all manufacturing sites, including the name and address of any subcontractors, where the winch will be constructed; and
(8) The name of the independent laboratory that will perform the duties prescribed in § 160.115-15 of this subpart.
(c) At the request of the manufacturer and discretion of the Commandant, an independent laboratory may conduct preapproval review required by this section; so long as the preapproval review is conducted in accordance with the procedures agreed upon between the independent laboratory and Commandant under