95-18554. Federal Port Controllers; Clarification of the Event That Allows the Activation of the Federal Port Controller Service Agreements  

  • [Federal Register Volume 60, Number 145 (Friday, July 28, 1995)]
    [Rules and Regulations]
    [Pages 38735-38737]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-18554]
    
    
    
    -----------------------------------------------------------------------
    
    
    DEPARTMENT OF TRANSPORTATION
    46 CFR Parts 345, 346, and 347
    
    [Docket No. R-155]
    RIN No. 2133-AB15
    
    
    Federal Port Controllers; Clarification of the Event That Allows 
    the Activation of the Federal Port Controller Service Agreements
    
    Agency: Maritime Administration, Department of Transportation.
    
    ACTION: Final rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: This final rule amends the Maritime Administration's (MARAD) 
    Federal Port Controllers regulations at 46 CFR Part 346, and provides a 
    harmonizing amendment to the definition of ``Federal Port Controller'' 
    in Part 345. These regulations now provide that, when needed during the 
    existence of a state of war or national emergency proclaimed by the 
    President of the United States, certain port facilities in the United 
    States shall be controlled and used exclusively by the Federal 
    Government, operating through the National Shipping Authority (NSA) of 
    MARAD, pursuant to provisions of service agreements between the 
    Director, NSA, and Federal Port Controllers appointed by MARAD. The 
    regulations in Part 340 establish procedures for assigning priority for 
    use by defense agencies, when appropriate, on commercial terms, of 
    commercial shipping services, containers and chassis, port facilities 
    and services, and for allocating commercial vessels services, 
    containers and chassis, and port facilities and services for exclusive 
    use by defense agencies. The amendments to Parts 345 and 346 will 
    allow, at MARAD's discretion, the activation of standby service 
    agreements between the United States of America and port authorities or 
    private corporations in connection with the deployment of the Armed 
    Forces of the United States or other requirements of the nation's 
    defense. This is the same activation trigger as in Part 340--Priority 
    Use and Allocation of Shipping Services, Containers and Chassis, and 
    Port Facilities and Services for National Security and National Defense 
    Related Operations.
    
    DATES: This final rule is effective on August 28, 1995.
    
    FOR FURTHER INFORMATION CONTACT: John Pisani, Director, Office of Ports 
    and Domestic Shipping, Maritime Administration, Washington, DC. 20590. 
    Telephone: (202) 366-4357.
    
    SUPPLEMENTARY INFORMATION: These amendments to MARAD's regulations at 
    46 CFR subchapter I-B are necessary because the event that allows 
    activation of the Federal Port Controller service agreements is not 
    consistent with the event that activates the priority use and 
    allocation regulations in part 340.
        Under non-emergency conditions, the public ports of the United 
    States are administered, under a wide variety of authorities, by their 
    respective state governments. The wide variance in their 
    responsibilities, jurisdictions, operations and managements reflects 
    the differences of the various governing bodies. The various 
    contingency Federal procedures administered by MARAD are intended to 
    assert reasonable, uniform, limited Federal administration of the 
    otherwise diverse U.S. network of public ports in an emergency which 
    affects the national interest. The procedures are set forth under three 
    interdependent documents:
    
        1. Special inter-agency coordination required under emergency 
    circumstances is established through the Memorandum of Understanding 
    on Port Readiness. These procedures are in effect at all times.
        2. Use of real port property and related services are assured 
    through the regulations at 46 CFR part 340, addressing the priority 
    use and allocation of port facilities, as well as shipping services 
    and containers and chassis. These procedures can become operative in 
    the event of the deployment of the Armed Forces of the United States 
    or other requirements of the nation's defense.
        3. Limited Federal administration of the U.S. network of public 
    ports is achieved by the standby Federal Port Controller procedures 
    set forth in a ``Service Agreement, Federal Port Controller'', in 46 
    CFR part 346. At present, these procedures can only be activated 
    upon the declaration of war or national emergency.
    
    Proposed Rule and Comments
    
        MARAD published a Notice of Proposed Rulemaking (NPRM) in the 
    Federal Register on November 18, 1994 (59 FR 59742), noting that the 
    present disparity with respect to the event that triggers the 
    activation of contingency Federal procedures under 46 CFR parts 340 and 
    346, respectively, can create confusion. The present procedures set 
    forth in 46 CFR part 340 can become operative without a Presidential 
    declaration of emergency to eliminate potential adverse delay, while 
    the activation of Federal Port Controller service agreements in 46 CFR 
    part 346 requires a ``declaration of war or national emergency.'' The 
    NPRM noted that events during Operations DESERT SHIELD/DESERT STORM 
    showed that the Government would not have had the authority to obtain 
    needed priority utilization of port facilities, shipping services and 
    containers in a timely manner with the present Part 346 
    
    [[Page 38736]]
    requirement for a declaration of war or national emergency.
        At the local port level, the official named to become the Federal 
    Port Controller in an emergency is a key MARAD official who represents 
    the agency in the execution of a Memorandum of Understanding on Port 
    Readiness. If it becomes necessary to exercise the service priority or 
    allocation authorities of 46 CFR part 340, the Federal Port Controller 
    could act as the local Federal agent. Since, under existing 
    regulations, it is impossible to activate service agreements with 
    Federal Port Controllers unless an emergency has been declared, it 
    would also be impossible to use the services of the Federal Port 
    Controllers to assist in the allocation of priority of service 
    requirements which may be needed during a deployment. The amendments to 
    Part 346 will allow, but not necessitate, activation of selected 
    contracts if a deployment is in progress, without the required 
    declaration of an emergency.
        MARAD received comments from four port authorities located in the 
    North Atlantic and South Atlantic regions. Two of the port authorities 
    were in full support of the rulemaking as proposed. One port authority 
    expressed concern, that using the deployment of the Armed Forces of the 
    United States as the triggering event for activation of the standby 
    service agreements could impose a potential burden on the designated 
    Federal Port Controllers, since the frequency of possible deployment 
    appears to far exceed that of declarations of national emergencies.
        While MARAD acknowledges that a purpose for harmonizing the 
    triggering mechanism for authorizing activation of these service 
    agreements with part 340 activations is to allow activations under 
    broadened circumstances, such activations would occur only in response 
    to the national needs of the United States.
        Another commenter was of the view that the existing terms of the 
    service agreement were adequate and that the change proposed by MARAD 
    will cause confusion and misunderstanding between port terminals and 
    participants in military operations. MARAD cannot agree with this 
    prediction and believes that just the opposite will occur. The proposed 
    amendments to part 346 will harmonize the timing of the activation of 
    service agreements with MARAD's regulations at 46 CFR part 340 
    governing the priority use and activation of shipping services, 
    containers and chassis, and port facilities and services. It should 
    actually diminish confusion and misunderstandings and will provide more 
    flexibility in responding to the need for U.S. deployment of troops 
    when there is no formal declaration of war or national emergency.
        Accordingly, MARAD is adopting, as a final rule without change, the 
    amendments to 46 CFR parts 345 and 346 set forth in the NPRM, together 
    with amendments to section 2(a) of part 346 to correct an obsolete 
    reference to former Title 32A of the CFR. There are also amendments to 
    the authority citations in 46 CFR parts 345, 346 and 347 to give 
    recognition to the repeal of the Federal Civil Defense Act of 1950 and 
    its reenactment in different form.
    
    Rulemaking Analyses and Notices
    
    Executive Order 12866 (Regulatory Planning and Review)
    
        This rulemaking has been reviewed under Executive Order 12866 
    (Regulatory Planning and Review). It is not considered to be an 
    economically significant regulatory action under Section 3(f) of E.O. 
    12866, since it has been determined that it is not likely to result in 
    a rule that may have an annual effect on the economy of $100 million or 
    more, or adversely affect in a material way the economy, a sector of 
    the economy, productivity, competition, jobs, the environment, public 
    health or safety, or State, local, or tribal governments or 
    communities. This rule would not significantly affect other Federal 
    agencies; would not materially alter the budgetary impact of 
    entitlements, grants, user fees or loan programs or the rights and 
    obligations of recipients thereof; does not raise novel legal or policy 
    issues arising out of legal mandates, the President's priorities or the 
    principles set forth in E.O. 12866; and has been determined to be a 
    nonsignificant rule under the Department's Regulatory Policies and 
    Procedures. Accordingly, it is not considered to be a significant 
    regulatory action under E.O. 12866.
        This rule did not require review by the Office of Management and 
    Budget (OMB) under Executive Order 12866.
    
    Federalism
    
        MARAD has analyzed this rulemaking in accordance with the 
    principles and criteria contained in E.O. 12612 and has determined that 
    these regulations do not have sufficient federalism implications to 
    warrant the preparation of a Federalism Assessment.
    
    Regulatory Flexibility Act
    
        MARAD certifies that this rulemaking will not have a significant 
    economic impact on a substantial number of small entities.
    
    Environmental Assessment
    
        MARAD has considered the environmental impact of this rulemaking 
    and has concluded that an environmental impact statement is not 
    required under the National Environmental Policy Act of 1969.
    
    Paperwork Reduction Act
    
        This rulemaking contains no new reporting requirement that is 
    subject to OMB approval under 5 CFR Part 1320, pursuant to the 
    Paperwork Reduction Act of 1080 (44 U.S.C. 3501, et seq.).
    
    List of Subjects in 46 CFR Parts 345, 346 and 347
    
        Freight, Harbors, Maritime carriers, and National defense.
    
        Accordingly, MARAD proposes to amend 46 CFR parts 345, 346 and 347 
    as follows:
    
    PART 345--[AMENDED]
    
        1. The authority citation for part 345 is revised to read as 
    follows:
    
        Authority: The Defense Production Act of 1950, as amended (50 
    App. U.S.C. 2061, et seq.); E.O. 12656, sec. 1401(7) (53 FR 47491, 3 
    CFR 1988 Comp.); E.O. 12919, section 201(a), June 3, 1994, 59 FR 
    29525; 49 CFR 1.45(5).
    
    
    Sec. 1  [Amended]
    
        2. Sec. 1(c) is amended by removing the words ``in time of national 
    emergency,'' and adding in their place the words ``upon deployment of 
    the Armed Forces of the United States, or other requirements of the 
    nation's defense.''
    PART 346--[AMENDED]
    
        1. The authority citation for part 346 is revised to read as 
    follows:
    
        Authority: The Defense Production Act of 1950, as amended (50 
    App. U.S.C. 2061, et seq.); E.O.12656, sec. 1401(7) (53 FR 47491, 3 
    CFR 1988 Comp.); E.O. 12919, section 201(a), June 3, 1994, 59 FR 
    29525; 49 CFR 1.45(5).
    
    
    Sec. 2  [Amended]
    
        2. Sec. 2, Definitions, is amended as follows:
        (a) In paragraph (a) by removing the words ``port facilities'' when 
    they first appear and reference to section ``1(e) of 32A CFR part 
    1901,'' and adding in its place the words ``port facilities and 
    services'' and the reference to section ``340.2(o) of 46 CFR Part 
    340''; and
        (b) in paragraph (b) Federal Port Controller, by removing the words 
    ``in time of war and national emergency'' 
    
    [[Page 38737]]
    and adding in their place the words ``in connection with the deployment 
    of the Armed Forces of the United States, or other requirements of the 
    nation's defense.''
        3. Sec. 3 is revised to read as follows:
    
    
    Sec. 3  Standby agreements.
    
        The Director, NSA, may negotiate the standard form of service 
    agreement, specified in section 4, with port authorities on a standby 
    basis, prior to the deployment of the Armed Forces of the United 
    States, or other requirements of the nation's defense. In such cases, 
    the contractor accepts the obligation to maintain a qualified incumbent 
    in the position specified in Article 1 of the service agreement and to 
    be prepared to furnish the resources specified in Articles 4 and 5. An 
    agreement executed on a standby basis may become operational in 
    connection with the deployment of the Armed Forces of the United 
    States, or other requirements of the nation's defense. An agreement 
    executed after the deployment of the Armed Forces of the United States, 
    or other requirements of the nation's defense may be operational upon 
    execution.
    
    
    Sec. 4  [Amended]
    
        4. Sec. 4, Service Agreements, is amended as follows: a. In Article 
    4(a), by removing the words ``war effort or declared national 
    emergency,'' and adding in their place the words ``deployment of the 
    Armed Forces of the United States, or other requirements of the 
    nation's defense.''
        b. In Article 12, in paragraphs (b)(1) and (b)(2), by removing, in 
    each paragraph, the words ``period of war or national emergency,'' and 
    adding in their place the words ``deployment of the Armed Forces of the 
    United States, or other requirements of the nation's defense.''
    
    PART 347--[AMENDED]
    
        The authority citation for Part 347 is revised to read as follows:
    
        Authority: The Defense Production Act of 1950, as amended (50 
    App. U.S.C. 2061, et seq.); E.O. 12656, sec. 1401(7) (53 FR 47491, 3 
    CFR 1988 Comp.); E.O. 12919, section 201(a), June 3, 1994, 59 FR 
    29525; 49 CFR 1.45(5).
    
        By Order of the Maritime administrator.
        Dated: July 24, 1995.
    
    
    Joel C. Richard,
    Secretary, Maritime Administration.
    [FR Doc. 95-18554 Filed 7-27-95; 8:45 am]
    BILLING CODE 4910-81-P
    
    

Document Information

Effective Date:
8/28/1995
Published:
07/28/1995
Department:
Transportation Department
Entry Type:
Rule
Action:
Final rule.
Document Number:
95-18554
Dates:
This final rule is effective on August 28, 1995.
Pages:
38735-38737 (3 pages)
Docket Numbers:
Docket No. R-155
PDF File:
95-18554.pdf
CFR: (4)
46 CFR 1
46 CFR 2
46 CFR 3
46 CFR 4