Source: http://thefederalregister.com/2010/12/02/2010-30289.html
Timestamp: 2019-06-24 22:29:37
Document Index: 419622039

Matched Legal Cases: ['art 16', 'art 151', 'art 151', 'art 151', 'art 151', 'art 151', '§ 165', '§ 165', '§ 165']

Federal Register | Regulated Navigation Area, Chicago Sanitary and Ship Canal, R
[Docket No. USCG-2010-1054]
DATES: Effective Date:In this rule, SS 165.923 is suspended, and a new temporary section, SS 165.T09-1054, is added in the CFR effective 5 p.m. on December 1, 2010 until 5 p.m. on December 1, 2011. This rule is effective with actual notice for purposes of enforcement beginning at 5 p.m. on December 1, 2010 until 5 p.m. on December 1, 2011.
Comment Period:Comments and related material must reach the Docket Management Facility on or before January 31, 2011.
(4)Hand delivery:Same as mail address above, between 9 a.m. and 5 p.m., Monday through Friday, except Federal holidays. The telephone number is 202-366-9329.To avoid duplication, please use only one of these methods. For instructions on submitting comments,seethe "Public Participation and Request for Comments."
If you submit a comment, please include the docket number for this rulemaking (USCG-2010-1054), indicate the specific section of this document to which each comment applies, and provide a reason for each suggestion or recommendation. You may submit your comments and material online, or by fax, mail or hand delivery, but please use only one of these means. We recommend that you include your name and a mailing address, an e-mail address, or a telephone number in the body of your document so that we can contact you if we have questions regarding your submission.
To submit your comment online, go tohttp://www.regulations.gov,select the Advanced Docket Search option on the right side of the screen, insert “USCG-2010-1054” in the Docket ID box, press Enter, and then click on the balloon shape in the Actions column. If you submit your comments by mail or hand delivery, submit them in an unbound format, no larger than 81/2by 11 inches, suitable for copying and electronic filing. If you submit them by mail and would like to know that they reached the Facility, please enclose a stamped, self-addressed postcard or envelope. We will consider all comments and material received during the comment period and may change this rule based on your comments.
To view comments, as well as documents mentioned in this preamble as being available in the docket, go tohttp://www.regulations.gov,select the Advanced Docket Search option on the right side of the screen, insert USCG-2010-1054 in the Docket ID box, press Enter, and then click on the item in the Docket ID column. You may also visit either the Docket Management Facility in Room W12-140 on the ground floor of the Department of Transportation West Building, 1200 New Jersey Avenue, SE., Washington, DC 20590, between 9 a.m. and 5 p.m., Monday through Friday, except Federal holidays. We have an agreement with the Department of Transportation to use the Docket Management Facility.
Anyone can search the electronic form of comments received into any of our dockets by the name of the individual submitting the comment (or signing the comment, if submitted on behalf of an association, business, labor union,etc.). You may review a Privacy Act notice regarding our public dockets in the January 17, 2008 issue of theFederal Register(73 FR 3316).
We do not now plan to hold a public meeting. But you may submit a request for one on or before February 1, 2011 using one of the four methods specified underADDRESSES. Please explain why you believe a public meeting would be beneficial. If we determine that one would aid this rulemaking, we will hold one at a time and place announced by a later notice in theFederal Register.
This temporary interim rule essentially creates an extension of a prior temporary interim rule withrequest for comments published in theFederal Registeron January 6, 2010 (75 FR 754). Comments were received under that temporary rule and have been considered and addressed in this rulemaking. The comments that were received and the Coast Guard's response are addressed below in theDiscussion of Rulesection. The Coast Guard also renews its requests for comments that will be considered when determining the final rule.
For the reasons discussed below, under 5 U.S.C. 553(d)(3), the Coast Guard finds that good cause exists for making this rule effective less than 30 days after publication in theFederal Registerbased upon data which indicates that Asian carp are much closer to the Great Lakes waterway system than originally thought. The possibility exists that vessels will transport Asian carp eggs, gametes or juvenile fish safely through the electrical dispersal barrier in water attained south of the fish barrier that is then transported and discharged on the other side of the barrier. The Asian carp are the subject of an ongoing multi-agency study aimed at preventing their introduction into the Great Lakes. The proposed temporary safety zone and RNA will allow that multi-agency effort to progress towards its goal of protecting people, vessels, and the environment from the hazards associated with the possible introduction of invasive species such as Asian carp into the Great Lakes.
As such, the USCG must take immediate steps in order to prevent possible introduction of Asian carp before the ongoing effort can be completed. Therefore, it would be against the public interest to delay the issuing of this rule. Therefore, the Coast Guard finds that good cause exists for making this rule effective less than 30 days after publication in theFederal Registerunder 5 U.S.C. 553(d)(3).
In 2002, the USACE energized a demonstration electrical dispersal barrier located in the CSSC. The demonstration barrier, commonly referred to as “Barrier I,” generates a low-voltage electric field (one-volt per inch) across the canal, which connects the Illinois River to Lake Michigan. Barrier I was built to block the passage of aquatic nuisance species, such as Asian carp, and prevent them from moving between the Mississippi River basin and Great Lakes via the canal. In 2006, the USACE completed construction of a new barrier, “Barrier IIA.” Because of its design, Barrier IIA can generate a more powerful electric field (up to four-volts per inch), over a larger area within the CSSC, than Barrier I. The USACE is currently in the process of constructing and testing “Barrier IIB” which will operate alongside Barrier IIA. Barrier IIB will also be capable of generating the four-volts per inch field strength.
A comprehensive, independent analysis of Barrier IIA, conducted in 2008 by the USACE at the one-volt per inch level, found a serious risk of injury or death to persons immersed in the water located adjacent to and over the barrier. Additionally, sparking between barges transiting the barrier (a risk to flammable cargoes) occurred at the one-volt per inch level.
However, both of these rulemakings reflected the prior operating parameters of the dispersal barriers and contemplated further testing of the effects of higher voltages on commercial and recreational vessels as well as people. After Barrier IIA was energized, the USACE completed safety testing in consultation with the U.S. Coast Guard in August of 2009, to test various configurations of commercial tugs and barges as well as recreational vessels with non-conductive hulls passing through the barriers at increased voltage and operating parameters. Although testing and analysis of the risks to persons and vessels have begun, such efforts are ongoing.
Once Barrier IIB is energized, additional testing must be completed. In addition, the USACE is still in the process of determining what the optimal operational configurations of the barriers will be. Until all the barriers are operational, the strength and configuration of the barrier are finalized by the USACE and all necessary safety and operational testing is completed, the Coast Guard is unable to predict what waterway safety restrictions will be necessary in the vicinity of the electric dispersal barrier. As such, the Coast Guard is unable to give the public advanced notice of the final restrictions that will be necessary on the CSSC, but must take this immediate, interim action in order to prevent injury to people as well as damage to vessels and the waterway. Given the risks involved as well as the uncertainty of the situation, it is contrary to the public interest to delay the effective date of the RNA included in this rule.
In November 2009, the USACE made an announcement that it had discovered environmental deoxyribonucleic acid (e-dna) from Asian carp north of the fish barrier, indicating the potential that an unknown amount of Asian carp may be living in the waterways north of the fish barrier in the Cal-Sag Channel but south of the O'Brien Locks. Under 50 CFR Part 16, Asian carp are listed as an injurious species of fish and as such are illegal for interstate transportation. A permit is required to transport all viable eggs, gametes, as well as live Silver or Asian carp. Historically, vessels have taken on water south of the barrier and transported it across the barrier as bilge, ballast, or other non-potable water. This practice is considered a possible bypass vector for transporting Asian carp eggs or juvenile fish from south of the barrier to north of the barrier. Although it not believed that Asian carp have been transported into the Great Lakes via this entry method, immediate action is needed to close down this possible bypass vector. In response to public comments on the previous interim rule, there is no indication that any particular type of vessel has transported Asian carp across the barrier or that any type of vessel is a higher risk than others for transporting Asian carp. For this reason, delaying the effective date for the safety zone included in this temporary interim rule would be contrary to the public interest.
A demonstration dispersal barrier (Barrier I) was constructed and has been in operation since April 2002. It islocated approximately 30 miles from Lake Michigan and creates an electric field in the water by pulsing low voltage DC current through steel cables secured to the bottom of the canal. A second barrier, Barrier IIA, was constructed 800 to 1300 feet downstream of the Barrier I. The potential field strength for Barrier IIA is up to four times that of the Barrier I. Barrier IIA was successfully operated for the first time for approximately seven weeks in September and October 2009. Construction of a third barrier (Barrier IIB) has commenced and is ongoing. Barrier IIB will augment the capabilities of Barriers I and IIA. Until all three barriers are functional at the same time and testing is completed, the USACE is unable to determine what the final operational configurations of the dispersal barrier will be. Until that time, the necessary long-term safety and environmental restrictions required for this portion of the CSSC cannot be determined.
In addition to the USACE's electric dispersal barrier, rotenone, a fish toxicant, has been applied to approximately six miles of the CSSC while barrier maintenance was conducted to ensure no fish were able to transit the barrier. As a result, evidence indicating the presence of Asian carp, including one Silver carp south of the barrier, was found in the general vicinity of the barrier. Although research efforts are ongoing, researchers have not been able to determine a number or mass of the Asian carp present either north or immediately south of the barrier.
Affected parties are reminded that the USACE may, at any time, permanently raise the operating parameters of the fish barrier in response to ongoing tests regarding the effectiveness of the barrier on the Asian carp. In addition, when USACE activates barrier IIB, additional testing will be necessary to ensure the safety of vessels. If the USACE permanently raises the voltage strength of the Barrier or otherwise alters Barrier operations to create unacceptable risks to waterway users, it is possible that fewer vessels will be given permission to enter the RNA and safety zone until further safety testing and analysis can be completed. Interested parties are urged to provide comment on how a permanent closure of the CSSC at the affected location would impact them.
This temporary interim rule replaces 33 CFR 165.T09-1004, the last temporary rule published to address risks associated with Barrier IIA and the application of rotenone to the CSSC. This rule also suspends 33 CFR 165.923 until 5 p.m. on December 1, 2011. This rule places an RNA on all waters located adjacent to, and over, the electrical dispersal barriers on the CSSC between mile marker 295.5 (approximately 3600 feet south of the Romeo Road Bridge) and mile marker 297.2 (approximately 2,640 feet north of the aerial pipeline arch). This RNA was reduced in size in response to public comments on a previous temporary interim rule. Public comments suggested that the RNA extend no further than 1,200 feet north and south of the aerial pipeline arch and the Romeo Road Bridge respectively. The Coast Guard finds that the current size of the RNA is necessary to account for situations where a vessel inside the barrier could come into contact with a vessel outside the barrier possibly causing sparking greater than 1,200 feet beyond the Romeo Road Bridge or the aerial pipeline arch.
The rule also places a safety zone over a smaller portion of these same waters located between mile marker 296.1 (approximately 958 feet south of the Romeo Road Bridge) and mile marker 296.7 (aerial pipeline arch located approximately 2,693 feet north east of Romeo Road Bridge). The RNA and safety zone will be enforced at all times until the USACE suspends operation of the electrified fish barrier and the Asian carp are no longer deemed an environmental threat to the Great Lakes. This temporary rule is to remain in effect until December 1, 2011 in order to give sufficient time for the USACE to complete construction and testing of Barrier IIB and determine the long-term operational configurations associated with the electric dispersal barrier.
The RNA places requirements on all vessels to include: (1) Vessels must be greater than twenty feet in length; (2) Vessel must not be a personal watercraft of any kind (i.e.jet skis, wave runners, kayak,etc.); (3) All up-bound and down-bound commercial tows that consist of barges carrying flammable liquid cargos (grade A through C, flashpoint below 140 degrees Fahrenheit, or heated to within 15 degrees Fahrenheit of flash point) must engage the services of a bow boat at all times until the entire tow is clear of the RNA; (4) Vessels engaged in commercial service, as defined in 46 U.S.C 2101(5), may not pass (meet or overtake) in the RNA and must make a SECURITE call when approaching the RNA to announce intentions and work out passing arrangements on either side; (5) Commercial tows transiting the RNA must only be made up with wire rope to ensure electrical connectivity between all segments of the tow; (6) All vessels are prohibited from loitering in the RNA; (7) Vessels may enter the RNA for the sole purpose of transiting to the other side and must maintain headway throughout the transit; (8) All vessels and persons are prohibited from dredging, laying cable, dragging, fishing, conducting salvage operations, or any other activity, which could disturb the bottom of the RNA; (9) All personnel on vessels transiting the RNA should remain inside the cabin, or as inboard as practicable. If personnel must be onopen decks, they must wear a Coast Guard approved personal flotation device; (10) Vessels may not moor or lay up on the right or left descending banks of the RNA; and, (11) Towboats may not make or break tows if any portion of the towboat or tow is located in the RNA.
Public comments to the previous temporary interim rule suggested that both recreational and commercial vessel traffic (1) be prohibited from loitering, mooring, or laying up on the left or right descending banks; (2) provide radio notification before entering the RNA; and (3) move through the RNA with all due speed. The Coast Guard believes that suggestions (1) and (3) are already covered by the terms of this RNA in that no vessels may loiter or moor within the RNA. Secondly, all vessels must enter the RNA for the sole purpose of transiting to the other side and must maintain headway. Given the various vessel designs and engine configurations, requiring a certain speed is not prudent or necessary.
With regard to the requirement to have recreational vessels provide radio notification prior to entering the RNA, many of the recreational vessels that typically pass through the RNA are not required to carry marine band VHF radios. As such, requiring radio call outs is beyond the scope of this rule. Furthermore, the majority of recreational vessels that typically pass through the RNA are not comparable in size or maneuverability to the commercial vessels that typically pass through the RNA. As such, the Coast Guard finds that the proposed requirement is not necessary to prevent injury to persons, property, or the waterway. Furthermore, there has been no requirement for recreational vessels to make radio call outs since 2002 and there have been no reported casualties or incidents resulting from recreational vessels not calling out.
This temporary final rule places additional restrictions on all vessels transiting a safety zone that encompasses a smaller portion of the CSSC. The safety zone consists of all the waters of the CSSC located between 270 feet south of the Romeo Road Bridge (mile marker 296.1) to the south side of the aerial pipeline (mile marker 296.7). Vessels are prohibited from transiting the safety zone with non-potable water on board in any space except for water on board that will not be discharged on the other side of the safety zone. Vessels must notify and obtain permission from the Captain of the Port Sector Lake Michigan prior to transiting the safety zone if they intend to discharge any non-potable water attained on one-side of the safety zone on the other side of the zone. This includes water in void spaces being unintentionally introduced through cracks or other damage to the hull. The Captain of the Port Sector Lake Michigan maintains a telephone line that is manned 24-hours a day, seven days a week at 414-747-7182.
Public comments on this portion of the rule requested that this rule exempt “water on board from a commercial or municipal source (which ultimately could be discharged)” because it is inconsistent with Title 33 CFR Part 151. The Coast Guard declines to include such an exemption. First, the prohibitions in this rule are consistent with 33 CFR Part 151 because, under that Part, water from a commercial or municipal source held for the purpose to control or maintain trim, draught, stability, or stresses of the vessel, regardless of how it is carried, will still be considered “ballast water” as contemplated by Part 151. Therefore, Part 151 does not differentiate ballast water that is collected from commercial or municipal sources.
Secondly, if vessel operators intend on transiting the zone with the intent of discharging non-potable water that comes from a commercial or municipal source north of the barrier, those vessels are able to request permission to demonstrate to the District Commander or his designated representative that such discharge would be biologically sound on a case-by-case basis.
Public comments also requested that inadvertent leakage not be held as a violation of this rule because such a provision would be inconsistent with the Coast Guard's ballast water regulation. Again, the Coast Guard finds that the prohibitions against the discharge of non-potable water in this rule are consistent with the Coast Guard's ballast water regulations. Title 33 CFR Part 151 requires vessels to retain ballast water on board or use an environmentally sound method of ballast water management approved by the Commandant. The Coast Guard's interpretation of retaining ballast water on board does not allow for inadvertent leakage. Therefore, there is no inconsistency between the regulations. Furthermore, for those vessels that cannot avoid inadvertent leakage of non-potable water, they may be permitted to pass the safety zone if they can demonstrate through testing that the water does not contain potential Silver or Asian carp or viable eggs or gametes from these carp.
If, for any reason, the safety zone or RNA is at any time suspended, the Commander, Ninth Coast Guard District or the Captain of the Port Lake Michigan will cause notice of the enforcement of the safety zone and/or RNA to be made by all appropriate means to effect the widest publicity among the affected segments of the public.
This temporary interim rule is not a significant regulatory action under section 3(f) of Executive Order 12866, Regulatory Planning and Review, and does not require an assessment of potential costs and benefits under section 6(a)(3) of that Order. The Office of Management and Budget has not reviewed it under that Order.
This rule will affect commercial traffic transiting the electrical dispersal fish barrier system and surrounding waters. The USACE maintains data about the commercial vessels using the Lockport Lock and Dam, which provides access to the proposed RNA. According to USACE data, the commercial traffic through the Lockport Lock consisted of 147 towing vessels and 13,411 barges during 2007. Of those, 96 towing vessels and 2,246 barges were handling red flag cargo (i.e.,those carrying hazardous, flammable, or combustible material in bulk).
Recreational vessels will also be affected under this rule. According to USACE data, recreational vessels made up 66 percent of the usage of the Lockport Lock and Dam in 2007. Operation and maintenance of the USACE fish barrier will continue to affect recreational vessels as they have in the past. The majority of these vessels will still be able to transit the RNA under this rule. The potential costassociated with this rule will include alternative transportation methods for vessels under 20 feet in length, bow boat assistance for red flag vessels and the potential costs associated with possible delays or inability to transit the safety zone for those vessels transporting non-potable water attained on one side of the barrier for discharge on the other.
At this time, based on available information from past temporary rules, we anticipate that this rule will not be economically significant under Executive Order 12866 (i.e.,have an annual effect on the economy of $100 million or more). The Coast Guard urges interested parties to submit comments that specifically address the economic impacts of this temporary interim rule. In response to public comments from the last temporary interim rule, the Coast Guard does not expect the USACE to resume funding of the bow boats. As such, interested parties are encouraged to comment on how this provision will impact them assuming there will be no Federal funding of bow boats. Comments can be made online by following the procedures outlined above in theADDRESSESsection.
The Regulatory Flexibility Act (RFA) (5 U.S.C. 601-612) requires agencies to consider whether regulatory actions would have a significant economic impact on a substantial number of small entities. The term “small entities” comprises small businesses, not-for-profit organizations that are independently owned and operated and are not dominant in their fields, and governmental jurisdictions with populations of less than 50,000. An RFA analysis is not required when a rule is exempt from notice and comment rulemaking under 5 U.S.C. 553(b). The Coast Guard determined that this rule is exempt from notice and comment rulemaking pursuant to 5 U.S.C. 553(b)(B). Therefore, an RFA analysis is not required for this rule.
We have analyzed this rule under Executive Order 13211, Actions Concerning Regulations That Significantly Affect Energy Supply, Distribution, or Use. We have determined that it is not a “significant energy action” under that order because it is not a “significant regulatory action” under Executive Order 12866 and is not likely to have a significant adverse effect on the supply, distribution, or use of energy. The Administrator of the Officeof Information and Regulatory Affairs has not designated it as a significant energy action. Therefore, it does not require a Statement of Energy Effects under Executive Order 13211.
2. Suspend § 165.923 from 5 p.m. on December 1, 2010 until 5 p.m. on December 1, 2011. 3. Add new temporary § 165.T09-1054 from 5 p.m. on December 1, 2010 until 5 p.m. on December 1, 2011 as follows:
§ 165.T09-1054 Safety Zone and Regulated Navigation Area, Chicago Sanitary and Ship Canal, Romeoville, IL.
(1) The following area is a temporary safety zone: All waters of the CSSC located between mile marker 296.1 (approximately 958 feet south of the Romeo Road Bridge) and mile marker 296.7 (aerial pipeline arch located approximately 2,693 feet north east of Romeo Road Bridge).
(b)Regulated Navigation Area.(1) The following is a regulated navigation area (RNA): All waters of the Chicago Sanitary and Ship Canal, Romeoville, IL located between mile marker 295.5 (approximately 3,600 feet south of the Romeo Road Bridge) and mile marker 297.2 (approximately 2,640 feet north of the aerial pipeline arch).
(J) Vessels must be greater than twenty feet in length.
(K) Vessels must not be a personal watercraft of any kind (e.g.jet skis, wave runners, kayaks,etc.).
(d)Enforcement Period.The regulated navigation area and safety zone will be enforced from 5 p.m. on December 1, 2010, until 5 p.m. on December 1, 2011. This regulated navigation area and safety zone are enforceable with actual notice by Coast Guard personnel beginning 5 p.m. on December 1, 2010, until 5 p.m. on December 1, 2011.
Dated: November 22, 2010. M.N. Parks, Rear Admiral, U.S. Coast Guard, Commander, Ninth Coast Guard District.