80_FR_58021 80 FR 57835 - Letter of Recommendation for Washington State Ferries Liquefied Natural Gas Conversion; Seattle, WA

80 FR 57835 - Letter of Recommendation for Washington State Ferries Liquefied Natural Gas Conversion; Seattle, WA

DEPARTMENT OF HOMELAND SECURITY
Coast Guard

Federal Register Volume 80, Issue 186 (September 25, 2015)

Page Range57835-57837
FR Document2015-24337

On June 27, 2014, Coast Guard Sector Puget Sound received a Letter of Intent (LOI) and Waterway Suitability Assessment (WSA) from Washington State Ferries (WSF) for a proposal to modify existing Washington State Ferry marine terminal operations to include the handling of Liquefied Natural Gas (LNG). The LNG would be transferred to and used as a marine fuel by six Issaquah Class Ferries converted to use LNG propulsion systems. In accordance with regulation and policy guidance, the Captain of the Port (COTP), Coast Guard Sector Puget Sound, in cooperation with key port stakeholders, will review and validate the information in the WSA. The COTP will then issue a Letter of Recommendation (LOR) to the State of Washington Department of Transportation that conveys the Coast Guard's recommendation on the suitability of the following waterways for LNG marine traffic as it relates to safety and security: Guemes Channel, Rosario Strait, Thatcher Pass, Harney Channel, Upright Channel, Wasp Channel, San Juan Channel, Spieden Channel, Haro Strait, Sidney Channel, Possession Sound, Admiralty Inlet, Puget Sound, Sinclair Inlet, Rich Passage, Elliot Bay, Admiralty Passage, North East Passage, and Colvos Passage. As part of this validation process, the Coast Guard, on November 12, 2014, published a ``Notice and Request for Comments'' in the Federal Register which solicited public comments to inform the COTP's recommendation. A number of comments were received, including two outside the comment period. This document summarizes those comments, explains whether or not they are appropriate for consideration under regulation, and provides additional information to help inform the public about the various issues raised in them.

Federal Register, Volume 80 Issue 186 (Friday, September 25, 2015)
[Federal Register Volume 80, Number 186 (Friday, September 25, 2015)]
[Notices]
[Pages 57835-57837]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2015-24337]


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DEPARTMENT OF HOMELAND SECURITY

Coast Guard

[Docket No. USCG-2014-0935]


Letter of Recommendation for Washington State Ferries Liquefied 
Natural Gas Conversion; Seattle, WA

AGENCY: Coast Guard, DHS.

ACTION: Notice and response to comments

-----------------------------------------------------------------------

SUMMARY: On June 27, 2014, Coast Guard Sector Puget Sound received a 
Letter of Intent (LOI) and Waterway Suitability Assessment (WSA) from 
Washington State Ferries (WSF) for a proposal to modify existing 
Washington State Ferry marine terminal operations to include the 
handling of Liquefied Natural Gas (LNG). The LNG would be transferred 
to and used as a marine fuel by six Issaquah Class Ferries converted to 
use LNG propulsion systems. In accordance with regulation and policy 
guidance, the Captain of the Port (COTP), Coast Guard Sector Puget 
Sound, in cooperation with key port stakeholders, will review and 
validate the information in the WSA. The COTP will then issue a Letter 
of Recommendation (LOR) to the State of Washington Department of 
Transportation that conveys the Coast Guard's recommendation on the 
suitability of the following waterways for LNG marine traffic as it 
relates to safety and security: Guemes Channel, Rosario Strait, 
Thatcher Pass, Harney Channel, Upright Channel, Wasp Channel, San Juan 
Channel, Spieden Channel, Haro Strait, Sidney Channel, Possession 
Sound, Admiralty Inlet, Puget Sound, Sinclair Inlet, Rich Passage, 
Elliot Bay, Admiralty Passage, North East Passage, and Colvos Passage.
    As part of this validation process, the Coast Guard, on November 
12, 2014, published a ``Notice and Request for Comments'' in the 
Federal Register which solicited public comments to inform the COTP's 
recommendation. A number of comments were received, including two 
outside the comment period. This document summarizes those comments, 
explains whether or not they are appropriate for consideration under 
regulation, and provides additional information to help inform the 
public about the various issues raised in them.

FOR FURTHER INFORMATION CONTACT: For further information about this 
document call or email LT Sarah Rodi[ntilde]o, Coast Guard Sector Puget 
Sound; telephone 206-217-6623, email sarah.e.rodino@uscg.mil.

Background

    In accordance with 33 CFR 127.007, the COTP, Coast Guard Sector 
Puget Sound, received an LOI and WSA from WSF on June 27, 2014 
regarding WSF's proposal to modify existing Washington State Ferry 
marine terminal operations and add the handling of LNG. The LNG would 
be transferred to and used as a marine fuel by six Issaquah Class 
Ferries converted to use LNG propulsion systems. The LOI notes that if 
the conversion is completed, each vessel would require fueling by truck 
once every 7 to 10 days.
    Pursuant to 33 CFR 127.009, and using the guidance set forth in 
reference to the Coast Guard's Navigation and Vessel Inspection 
Circular (NVIC) 01-2011, ``Guidance Related to Waterfront Liquefied 
Natural Gas (LNG) Facilities,'' the COTP is reviewing and validating 
WSF's WSA in cooperation with key port stakeholders. To assist the 
COTP, the Coast Guard on November 12, 2014 published a ``Notice and 
Request for Comments'' in the Federal Register (79 FR 67179) seeking 
public comments on WSF's proposal. Once the COTP finishes the review 
and validation of WSF's WSA, he will develop the LOR with accompanying 
analysis and provide it to the State of Washington Department of 
Transportation as the agency with jurisdiction over WSF's proposed 
activity.
    Thirteen comments were received, including two outside the comment 
period. This document summarizes those comments, explains whether or 
not they are appropriate for consideration under 33 CFR 127.009, and 
provides additional information to help inform the public about the 
various issues raised in them. Comments that fell outside the scope of 
the WSA but are relevant to the vessel design modifications will be 
forwarded on to the Coast Guard Marine Safety Center (MSC) to be 
considered during the design review and approval process in accordance 
with 46 CFR 71.65-10.
    WSF's LOI, WSA, and other supporting documentation can be viewed 
at: http://www.wsdot.wa.gov/Ferries/Environment/LNG.htm. The public 
comments received by the Coast Guard can be viewed at: http://www.regulations.gov/#!docketBrowser;rpp=100;so=DESC;sb=docId;po=0;dct=PS;D=USCG-2014-0935. 
A copy of NVIC 01-2011 is available for viewing on the Coast Guard's 
Web site at http://www.uscg.mil/hq/cg5/nvic/2010s.asp.
    The Coast Guard sincerely appreciates the comments received.

Summary and Discussion of Comments Received

Cost and Funding of Conversion

    Multiple comments expressed concern that the proposed conversion is 
too expensive and that the funding that would pay for the conversion 
should be spent in a different manner. The COTP's role with regard to 
WSF's proposal is limited to issuing an LOR to the Washington State 
Department of Transportation regarding the suitability of the waterway 
for LNG marine traffic based on the criteria listed in 33 CFR 127.009. 
Cost of vessel conversion issues fall outside the scope of the LOR. As 
such, these comments will not be considered by the COTP in issuing the 
LOR.

Pollution

    Two comments expressed concern that LNG poses a pollution threat to 
the environment. As an issue relevant under 33 CFR 127.009, the COTP 
will consider those comments in issuing the LOR. For the public's 
awareness, the Coast Guard will examine WSF's Emergency and Operations 
Manuals as required by 33 CFR 127.019 covering the transfer system and 
transfer procedures. These manuals include but are not limited to LNG 
release response procedures, local response organizations contact

[[Page 57836]]

procedures, and emergency shutdown procedures.

Security

    Several comments expressed concern that exposed LNG tanks on the 
proposed converted ferries pose a security risk. As an issue relevant 
under 33 CFR 127.009, the COTP will consider those comments in issuing 
the LOR. For the public's awareness on this topic, the Coast Guard 
oversees a multilayered security framework under 33 CFR parts 101-105 
to enhance maritime security throughout the Puget Sound region. If the 
WSF proposal is approved by the Washington State Department of 
Transportation, the marine terminal would be required to submit a 
facility security plan in accordance with 33 CFR part 105. Washington 
State Ferries is currently required to comply with 33 CFR part 104 
which requires in-depth security assessments and Coast Guard-approved 
vessel security plans. WSF currently has Coast Guard-approved vessel 
security plans covering each of its vessels. These security plans would 
be reviewed and amended as necessary to reflect the conversion to LNG 
fuel.

Design of Converted Ferries

    Multiple comments expressed concern about the design of the 
proposed converted ferries and that the use of LNG poses an unnecessary 
risk to passengers. The COTP's role with regards to the subject 
proposal is limited to issuing an LOR to the Washington State 
Department of Transportation regarding the suitability of the waterway 
for LNG marine traffic based on the items listed in 33 CFR 127.009. 
This comment fell outside the scope of the Waterways Suitability 
Assessment but is relevant to the vessel design modification and will 
be forwarded on to the Coast Guard MSC to be considered during the 
design approval process in accordance with 46 CFR 71.65-10. At this 
time, final plans have not been submitted by WSF to MSC.
    One comment stated that WSF should be required to update its 
Emergency Manual and include it as part of the docket. This comment 
fell outside the scope of the WSA but for the public's awareness, 
Operations and Emergency Manuals are required under 33 CFR 127.019. As 
such, the Coast Guard will examine Emergency and Operation Manuals for 
compliance with 33 CFR 127.305 and 33 CFR 127.307. WSF will be required 
to submit copies of these manuals to the COTP 30 days prior to 
transferring LNG. The COTP may also require WSF to update other 
required safety plans as necessary.
    Two comments expressed concern that a seaplane or other aircraft 
could collide with an LNG tank onboard a converted ferry. As an issue 
relevant under 33 CFR 127.009, the COTP will consider those comments in 
issuing the LOR. For the public's awareness on this topic, historical 
data shows that instances of unintentional aircraft collisions with 
ferries are extremely low. Malicious or intentional collisions will be 
considered in the security threat mitigation strategies explained 
previously.
    Two comments expressed concern that a large commercial vessel could 
collide with a converted ferry carrying LNG causing a tank rupture and 
explosion. As an issue relevant under 33 CFR 127.009, the COTP will 
consider those comments in issuing the LOR. For the public's awareness 
on this topic, the risk of collision between large commercial vessels 
is mitigated significantly through a number of systems, processes, and 
requirements already in place today including the Coast Guard's Vessel 
Traffic Service (VTS), Automated Identification System (AIS), and 
Automatic Radar Plotting Aids (ARPA) as well as established traffic 
separation schemes and the International Regulations for Preventing 
Collisions at Sea (COLREGS) Navigation Rules governing vessel 
navigation. In addition, Federal and state laws require large vessels 
transiting within Puget Sound, including WSF ferries, to be under the 
direction and control of a federally licensed pilot. A federally 
licensed pilot is an experienced navigator with expertise specific to 
Puget Sound who provides significant risk mitigation in regards to 
collisions. Of note, VTS Puget Sound closely monitors and, as 
necessary, directs all large commercial vessel traffic throughout the 
Puget Sound including the routes transited by the Issaquah class 
ferries. The Issaquah class ferry routes have remained unchanged for at 
least 55 years and there are no proposed changes to the routes.
    One comment expressed the opinion that the Coast Guard should 
define strict criteria for conducting risk analysis and research. The 
Coast Guard in our role as stewards of safety and security in the 
maritime arena regularly integrate risk management into every aspect of 
our maritime governance and operations. 33 CFR part 127 and NVIC 01-
2011 contain tailored requirements and guidance based on risk. In 
addition, the Coast Guard has commissioned studies from Sandia National 
Laboratories to examine the risks associated with potential LNG spills. 
These reports are titled ``Guidance on Risk Analysis and Safety 
Implication of a Large Liquefied Natural Gas (LNG) Over Water'' (2004) 
and ``Breach and Safety Analysis of Spills over Water from Large 
Liquefied Natural Gas Carriers'' (2008). These studies are available 
online at: http://www.energy.ca.gov/lng/documents/2004-12_SANDIA-DOE_RISK_ANALYSIS.PDF and http://www.lngfacts.org/resources/SANDIA_2008_Report_-_Large_LNG_Vessel_Sa.pdf.
    Further, NVIC 01-11 was written based on Risk Based Decision 
Making, COMDTINST M16010.3, which can be found at: http://www.uscg.mil/hq/cg5/cg5211/risk.asp.
    One comment expressed concern about WSF's plan to fuel the 
converted ferries by parking a tank truck on the terminal transfer 
span, placing the vehicle on an inclined plane. As an issue relevant 
under 33 CFR 127.009, the COTP will consider this comment in issuing 
the LOR. For the public's awareness, the Coast Guard will examine WSF's 
Operations Manual as required by 33 CFR 127.019 covering the transfer 
system and transfer procedures.

Regulatory Guidance

    One comment expressed concern that currently there are no Federal 
regulations regarding LNG fueled passenger vessels. The commenter is 
correct that there are currently no Federal regulations in place that 
specifically govern the installation and use of LNG as a marine fuel. 
This concept is new in the United States, although it is more commonly 
used internationally. The Coast Guard has issued vessel design and LNG 
bunkering policy documents that provide guidelines for facility and 
vessel owner operators to use in consideration of facility operations 
and vessel design. Those documents can be found at: http://www.uscg.mil/hq/cg5/lgcncoe/docs/Bunking%20Policy%20LTR.pdf and http://www.uscg.mil/hq/cg5/lgcncoe/docs/LNGF%20Policy%20LTR.pdf.
    One comment expressed concern that there is not explicit guidance 
regarding the criteria for developing or evaluating a WSA. The 
requirements and guidance are located in 33 CFR 127.007 and NVIC 01-11.

Problems With the WSA

    One comment expressed concern that the WSA referenced unverified 
probability calculations for tank collisions from SOLAS Chapter II-1. 
As an issue relevant under 33 CFR 127.009, the COTP will consider those 
comments in issuing the LOR. For the public's awareness on this topic, 
there is a lack

[[Page 57837]]

of historical information regarding tank collision probabilities, due 
to a lack of previous occurrences. However, it should be noted that the 
current resources available for mitigating vessel collisions 
(previously described above) considerably reduce the probability of 
vessel collisions.
    One comment stated that the SOLAS model used for collision damage 
in the WSA is meant to be used on vessels designed for an ocean route 
and the WSF ferries were constructed for lakes, bays and sounds route. 
As an issue relevant under 33 CFR 127.009, the COTP will consider those 
comments in issuing the LOR. For the public's awareness on this topic, 
DNV-GL determined that the use of this model was the best approach 
available because a probability model does not exist for a vessel of 
similar structure as the WSF ferries.
    One commenter stated that DNV did not utilize the correct tank 
volume of fuel in the risk assessment models. The correct tank volume 
was incorporated in Revision 03 of the WSA.
    One comment stated that DNV-GL used inappropriate ignition 
probability models when utilizing the International Association of Oil 
and Gas Producers (OGP) Scenario 24 Floating Production, Storage, and 
Offloading (FPSO) Vessels Gas model. As an issue relevant under 33 CFR 
127.009, the COTP will consider those comments in issuing the LOR. For 
the public's awareness on this topic, no statistically significant data 
exists for ignition probability models for LNG as fuel onboard 
passenger ferries. The model used by DNV-GL is meant to model ignition 
probability onboard larger scale offshore vessels and was chosen 
because it represents a more conservative and representative model for 
application to the WSF vessel design.
    One comment expressed concern that the societal risks identified in 
the WSA required that risks falling in the range between ``broadly 
acceptable'' and ``maximum tolerable'' be mitigated so that they are As 
Low As Reasonably Possible (ALARP) and that the WSA did not address 
mitigating factors to reach the ALARP mitigation. As an issue relevant 
under 33 CFR 127.009, the COTP will consider those comments in issuing 
the LOR. During the validation process, the COTP will determine if 
appropriate risk management strategies have been identified.
    One comment expressed concern that the WSA was not completed 
objectively and appears to be incomplete. As an issue relevant under 33 
CFR 127.009, the COTP will consider those comments in issuing the LOR. 
As part of the LOR process and in accordance with NVIC 01-2011, the 
COTP has been and will continue to review and validate the WSA in 
cooperation with key port stakeholders. This validation will determine 
if the WSA presents a realistic and credible analysis of the public 
safety and security implications of introducing LNG marine traffic into 
the port and waterway.
    This response to comments is issued under authority of 33 CFR 
127.009.

    Dated: August 20, 2015.
M. W. Raymond,
Captain, U.S. Coast Guard, Captain of the Port, Sector Puget Sound.
[FR Doc. 2015-24337 Filed 9-24-15; 8:45 am]
 BILLING CODE 9110-04-P



                                                                              Federal Register / Vol. 80, No. 186 / Friday, September 25, 2015 / Notices                                         57835

                                                  streamlined years, only during the                      Guard’s recommendation on the                         agency with jurisdiction over WSF’s
                                                  triennial comprehensive review.                         suitability of the following waterways                proposed activity.
                                                     On September 1, 2014, the Coast                      for LNG marine traffic as it relates to                  Thirteen comments were received,
                                                  Guard recertified the Cook Inlet                        safety and security: Guemes Channel,                  including two outside the comment
                                                  Regional Citizen’s Advisory Council                     Rosario Strait, Thatcher Pass, Harney                 period. This document summarizes
                                                  through August 31, 2015. Under the Oil                  Channel, Upright Channel, Wasp                        those comments, explains whether or
                                                  Terminal and Oil Tanker Environmental                   Channel, San Juan Channel, Spieden                    not they are appropriate for
                                                  Oversight Act of 1990 (33 U.S.C. 2732),                 Channel, Haro Strait, Sidney Channel,                 consideration under 33 CFR 127.009,
                                                  the Coast Guard may certify, on an                      Possession Sound, Admiralty Inlet,                    and provides additional information to
                                                  annual basis, an alternative voluntary                  Puget Sound, Sinclair Inlet, Rich                     help inform the public about the various
                                                  advisory group for Cook Inlet, Alaska.                  Passage, Elliot Bay, Admiralty Passage,               issues raised in them. Comments that
                                                  This advisory group monitors the                        North East Passage, and Colvos Passage.               fell outside the scope of the WSA but
                                                  activities of terminal facilities and crude                As part of this validation process, the            are relevant to the vessel design
                                                  oil tankers under the Cook Inlet Program                Coast Guard, on November 12, 2014,                    modifications will be forwarded on to
                                                  established by Congress, 33 U.S.C. 2732                 published a ‘‘Notice and Request for                  the Coast Guard Marine Safety Center
                                                  (b).                                                    Comments’’ in the Federal Register                    (MSC) to be considered during the
                                                  Recertification                                         which solicited public comments to                    design review and approval process in
                                                                                                          inform the COTP’s recommendation. A                   accordance with 46 CFR 71.65–10.
                                                     By letter dated August 20, 2015, the                 number of comments were received,
                                                  Commander, Seventeenth Coast Guard                                                                               WSF’s LOI, WSA, and other
                                                                                                          including two outside the comment                     supporting documentation can be
                                                  certified that the CIRCAC qualifies as an               period. This document summarizes
                                                  alternative voluntary advisory group                                                                          viewed at: http://www.wsdot.wa.gov/
                                                                                                          those comments, explains whether or                   Ferries/Environment/LNG.htm. The
                                                  under 33 U.S.C. 2732(o). This                           not they are appropriate for
                                                  recertification terminates on August 31,                                                                      public comments received by the Coast
                                                                                                          consideration under regulation, and                   Guard can be viewed at: http://www.
                                                  2016.                                                   provides additional information to help               regulations.gov/#!docketBrowser;rpp=
                                                    Dated: August 20, 2015.                               inform the public about the various                   100;so=DESC;sb=docId;po=0;dct=PS;D=
                                                  D. B. Abel,                                             issues raised in them.                                USCG–2014–0935. A copy of NVIC 01–
                                                  Rear Admiral, U.S. Coast Guard Commander,               FOR FURTHER INFORMATION CONTACT: For                  2011 is available for viewing on the
                                                  Seventeenth Coast Guard District.                       further information about this document               Coast Guard’s Web site at http://www.
                                                  [FR Doc. 2015–24335 Filed 9–24–15; 8:45 am]             call or email LT Sarah Rodiño, Coast                 uscg.mil/hq/cg5/nvic/2010s.asp.
                                                  BILLING CODE 9110–04–P                                  Guard Sector Puget Sound; telephone                      The Coast Guard sincerely appreciates
                                                                                                          206–217–6623, email sarah.e.rodino@                   the comments received.
                                                                                                          uscg.mil.
                                                  DEPARTMENT OF HOMELAND                                                                                        Summary and Discussion of Comments
                                                  SECURITY                                                Background                                            Received
                                                                                                             In accordance with 33 CFR 127.007,                 Cost and Funding of Conversion
                                                  Coast Guard
                                                                                                          the COTP, Coast Guard Sector Puget
                                                  [Docket No. USCG–2014–0935]                             Sound, received an LOI and WSA from                      Multiple comments expressed
                                                                                                          WSF on June 27, 2014 regarding WSF’s                  concern that the proposed conversion is
                                                  Letter of Recommendation for                            proposal to modify existing Washington                too expensive and that the funding that
                                                  Washington State Ferries Liquefied                      State Ferry marine terminal operations                would pay for the conversion should be
                                                  Natural Gas Conversion; Seattle, WA                     and add the handling of LNG. The LNG                  spent in a different manner. The COTP’s
                                                        Coast Guard, DHS.
                                                  AGENCY:                                                 would be transferred to and used as a                 role with regard to WSF’s proposal is
                                                                                                          marine fuel by six Issaquah Class Ferries             limited to issuing an LOR to the
                                                        Notice and response to
                                                  ACTION:
                                                                                                          converted to use LNG propulsion                       Washington State Department of
                                                  comments
                                                                                                          systems. The LOI notes that if the                    Transportation regarding the suitability
                                                  SUMMARY: On June 27, 2014, Coast                        conversion is completed, each vessel                  of the waterway for LNG marine traffic
                                                  Guard Sector Puget Sound received a                     would require fueling by truck once                   based on the criteria listed in 33 CFR
                                                  Letter of Intent (LOI) and Waterway                     every 7 to 10 days.                                   127.009. Cost of vessel conversion
                                                  Suitability Assessment (WSA) from                          Pursuant to 33 CFR 127.009, and                    issues fall outside the scope of the LOR.
                                                  Washington State Ferries (WSF) for a                    using the guidance set forth in reference             As such, these comments will not be
                                                  proposal to modify existing Washington                  to the Coast Guard’s Navigation and                   considered by the COTP in issuing the
                                                  State Ferry marine terminal operations                  Vessel Inspection Circular (NVIC) 01–                 LOR.
                                                  to include the handling of Liquefied                    2011, ‘‘Guidance Related to Waterfront                Pollution
                                                  Natural Gas (LNG). The LNG would be                     Liquefied Natural Gas (LNG) Facilities,’’
                                                  transferred to and used as a marine fuel                the COTP is reviewing and validating                    Two comments expressed concern
                                                  by six Issaquah Class Ferries converted                 WSF’s WSA in cooperation with key                     that LNG poses a pollution threat to the
                                                  to use LNG propulsion systems. In                       port stakeholders. To assist the COTP,                environment. As an issue relevant under
                                                  accordance with regulation and policy                   the Coast Guard on November 12, 2014                  33 CFR 127.009, the COTP will consider
                                                  guidance, the Captain of the Port                       published a ‘‘Notice and Request for                  those comments in issuing the LOR. For
mstockstill on DSK4VPTVN1PROD with NOTICES




                                                  (COTP), Coast Guard Sector Puget                        Comments’’ in the Federal Register (79                the public’s awareness, the Coast Guard
                                                  Sound, in cooperation with key port                     FR 67179) seeking public comments on                  will examine WSF’s Emergency and
                                                  stakeholders, will review and validate                  WSF’s proposal. Once the COTP                         Operations Manuals as required by 33
                                                  the information in the WSA. The COTP                    finishes the review and validation of                 CFR 127.019 covering the transfer
                                                  will then issue a Letter of                             WSF’s WSA, he will develop the LOR                    system and transfer procedures. These
                                                  Recommendation (LOR) to the State of                    with accompanying analysis and                        manuals include but are not limited to
                                                  Washington Department of                                provide it to the State of Washington                 LNG release response procedures, local
                                                  Transportation that conveys the Coast                   Department of Transportation as the                   response organizations contact


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                                                  57836                       Federal Register / Vol. 80, No. 186 / Friday, September 25, 2015 / Notices

                                                  procedures, and emergency shutdown                         Two comments expressed concern                     Implication of a Large Liquefied Natural
                                                  procedures.                                             that a seaplane or other aircraft could               Gas (LNG) Over Water’’ (2004) and
                                                                                                          collide with an LNG tank onboard a                    ‘‘Breach and Safety Analysis of Spills
                                                  Security
                                                                                                          converted ferry. As an issue relevant                 over Water from Large Liquefied Natural
                                                     Several comments expressed concern                   under 33 CFR 127.009, the COTP will                   Gas Carriers’’ (2008). These studies are
                                                  that exposed LNG tanks on the proposed                  consider those comments in issuing the                available online at: http://www.energy.
                                                  converted ferries pose a security risk. As              LOR. For the public’s awareness on this               ca.gov/lng/documents/2004-12_
                                                  an issue relevant under 33 CFR 127.009,                 topic, historical data shows that                     SANDIA-DOE_RISK_ANALYSIS.PDF
                                                  the COTP will consider those comments                   instances of unintentional aircraft                   and http://www.lngfacts.org/resources/
                                                  in issuing the LOR. For the public’s                    collisions with ferries are extremely                 SANDIA_2008_Report_-_Large_LNG_
                                                  awareness on this topic, the Coast Guard                low. Malicious or intentional collisions              Vessel_Sa.pdf.
                                                  oversees a multilayered security                        will be considered in the security threat                Further, NVIC 01–11 was written
                                                  framework under 33 CFR parts 101–105                    mitigation strategies explained                       based on Risk Based Decision Making,
                                                  to enhance maritime security                            previously.                                           COMDTINST M16010.3, which can be
                                                  throughout the Puget Sound region. If                      Two comments expressed concern                     found at: http://www.uscg.mil/hq/cg5/
                                                  the WSF proposal is approved by the                     that a large commercial vessel could                  cg5211/risk.asp.
                                                  Washington State Department of                          collide with a converted ferry carrying                  One comment expressed concern
                                                  Transportation, the marine terminal                     LNG causing a tank rupture and                        about WSF’s plan to fuel the converted
                                                  would be required to submit a facility                  explosion. As an issue relevant under 33              ferries by parking a tank truck on the
                                                  security plan in accordance with 33 CFR                 CFR 127.009, the COTP will consider                   terminal transfer span, placing the
                                                  part 105. Washington State Ferries is                   those comments in issuing the LOR. For                vehicle on an inclined plane. As an
                                                  currently required to comply with 33                    the public’s awareness on this topic, the             issue relevant under 33 CFR 127.009,
                                                  CFR part 104 which requires in-depth                    risk of collision between large                       the COTP will consider this comment in
                                                  security assessments and Coast Guard-                   commercial vessels is mitigated                       issuing the LOR. For the public’s
                                                  approved vessel security plans. WSF                     significantly through a number of                     awareness, the Coast Guard will
                                                  currently has Coast Guard-approved                      systems, processes, and requirements                  examine WSF’s Operations Manual as
                                                  vessel security plans covering each of its              already in place today including the                  required by 33 CFR 127.019 covering
                                                  vessels. These security plans would be                  Coast Guard’s Vessel Traffic Service                  the transfer system and transfer
                                                  reviewed and amended as necessary to                    (VTS), Automated Identification System                procedures.
                                                  reflect the conversion to LNG fuel.                     (AIS), and Automatic Radar Plotting
                                                                                                                                                                Regulatory Guidance
                                                                                                          Aids (ARPA) as well as established
                                                  Design of Converted Ferries                             traffic separation schemes and the                       One comment expressed concern that
                                                                                                          International Regulations for Preventing              currently there are no Federal
                                                     Multiple comments expressed                                                                                regulations regarding LNG fueled
                                                                                                          Collisions at Sea (COLREGS) Navigation
                                                  concern about the design of the                                                                               passenger vessels. The commenter is
                                                                                                          Rules governing vessel navigation. In
                                                  proposed converted ferries and that the                                                                       correct that there are currently no
                                                                                                          addition, Federal and state laws require
                                                  use of LNG poses an unnecessary risk to                                                                       Federal regulations in place that
                                                                                                          large vessels transiting within Puget
                                                  passengers. The COTP’s role with                                                                              specifically govern the installation and
                                                                                                          Sound, including WSF ferries, to be
                                                  regards to the subject proposal is limited                                                                    use of LNG as a marine fuel. This
                                                                                                          under the direction and control of a
                                                  to issuing an LOR to the Washington                                                                           concept is new in the United States,
                                                                                                          federally licensed pilot. A federally
                                                  State Department of Transportation                                                                            although it is more commonly used
                                                                                                          licensed pilot is an experienced
                                                  regarding the suitability of the waterway               navigator with expertise specific to                  internationally. The Coast Guard has
                                                  for LNG marine traffic based on the                     Puget Sound who provides significant                  issued vessel design and LNG bunkering
                                                  items listed in 33 CFR 127.009. This                    risk mitigation in regards to collisions.             policy documents that provide
                                                  comment fell outside the scope of the                   Of note, VTS Puget Sound closely                      guidelines for facility and vessel owner
                                                  Waterways Suitability Assessment but is                 monitors and, as necessary, directs all               operators to use in consideration of
                                                  relevant to the vessel design                           large commercial vessel traffic                       facility operations and vessel design.
                                                  modification and will be forwarded on                   throughout the Puget Sound including                  Those documents can be found at:
                                                  to the Coast Guard MSC to be                            the routes transited by the Issaquah                  http://www.uscg.mil/hq/cg5/lgcncoe/
                                                  considered during the design approval                   class ferries. The Issaquah class ferry               docs/Bunking%20Policy%20LTR.pdf
                                                  process in accordance with 46 CFR                       routes have remained unchanged for at                 and http://www.uscg.mil/hq/cg5/
                                                  71.65–10. At this time, final plans have                least 55 years and there are no proposed              lgcncoe/docs/LNGF%20Policy%20
                                                  not been submitted by WSF to MSC.                       changes to the routes.                                LTR.pdf.
                                                     One comment stated that WSF should                      One comment expressed the opinion                     One comment expressed concern that
                                                  be required to update its Emergency                     that the Coast Guard should define strict             there is not explicit guidance regarding
                                                  Manual and include it as part of the                    criteria for conducting risk analysis and             the criteria for developing or evaluating
                                                  docket. This comment fell outside the                   research. The Coast Guard in our role as              a WSA. The requirements and guidance
                                                  scope of the WSA but for the public’s                   stewards of safety and security in the                are located in 33 CFR 127.007 and NVIC
                                                  awareness, Operations and Emergency                     maritime arena regularly integrate risk               01–11.
                                                  Manuals are required under 33 CFR                       management into every aspect of our
                                                  127.019. As such, the Coast Guard will                  maritime governance and operations. 33                Problems With the WSA
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                                                  examine Emergency and Operation                         CFR part 127 and NVIC 01–2011 contain                   One comment expressed concern that
                                                  Manuals for compliance with 33 CFR                      tailored requirements and guidance                    the WSA referenced unverified
                                                  127.305 and 33 CFR 127.307. WSF will                    based on risk. In addition, the Coast                 probability calculations for tank
                                                  be required to submit copies of these                   Guard has commissioned studies from                   collisions from SOLAS Chapter II–1. As
                                                  manuals to the COTP 30 days prior to                    Sandia National Laboratories to examine               an issue relevant under 33 CFR 127.009,
                                                  transferring LNG. The COTP may also                     the risks associated with potential LNG               the COTP will consider those comments
                                                  require WSF to update other required                    spills. These reports are titled                      in issuing the LOR. For the public’s
                                                  safety plans as necessary.                              ‘‘Guidance on Risk Analysis and Safety                awareness on this topic, there is a lack


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                                                                              Federal Register / Vol. 80, No. 186 / Friday, September 25, 2015 / Notices                                         57837

                                                  of historical information regarding tank                process and in accordance with NVIC                   DATES:  Comments are to be submitted
                                                  collision probabilities, due to a lack of               01–2011, the COTP has been and will                   on or before December 24, 2015.
                                                  previous occurrences. However, it                       continue to review and validate the                   ADDRESSES: The Preliminary FIRM, and
                                                  should be noted that the current                        WSA in cooperation with key port                      where applicable, the FIS report for
                                                  resources available for mitigating vessel               stakeholders. This validation will                    each community are available for
                                                  collisions (previously described above)                 determine if the WSA presents a                       inspection at both the online location
                                                  considerably reduce the probability of                  realistic and credible analysis of the                and the respective Community Map
                                                  vessel collisions.                                      public safety and security implications               Repository address listed in the tables
                                                     One comment stated that the SOLAS                    of introducing LNG marine traffic into                below. Additionally, the current
                                                  model used for collision damage in the                  the port and waterway.                                effective FIRM and FIS report for each
                                                  WSA is meant to be used on vessels                        This response to comments is issued                 community are accessible online
                                                  designed for an ocean route and the                     under authority of 33 CFR 127.009.                    through the FEMA Map Service Center
                                                  WSF ferries were constructed for lakes,                                                                       at www.msc.fema.gov for comparison.
                                                  bays and sounds route. As an issue                        Dated: August 20, 2015.
                                                                                                                                                                   You may submit comments, identified
                                                  relevant under 33 CFR 127.009, the                      M. W. Raymond,                                        by Docket No. FEMA–B–1530, to Luis
                                                  COTP will consider those comments in                    Captain, U.S. Coast Guard, Captain of the             Rodriguez, Chief, Engineering
                                                  issuing the LOR. For the public’s                       Port, Sector Puget Sound.                             Management Branch, Federal Insurance
                                                  awareness on this topic, DNV–GL                         [FR Doc. 2015–24337 Filed 9–24–15; 8:45 am]           and Mitigation Administration, FEMA,
                                                  determined that the use of this model                   BILLING CODE 9110–04–P                                500 C Street SW., Washington, DC
                                                  was the best approach available because                                                                       20472, (202) 646–4064, or (email)
                                                  a probability model does not exist for a                                                                      Luis.Rodriguez3@fema.dhs.gov.
                                                  vessel of similar structure as the WSF                  DEPARTMENT OF HOMELAND
                                                                                                                                                                FOR FURTHER INFORMATION CONTACT: Luis
                                                  ferries.                                                SECURITY
                                                                                                                                                                Rodriguez, Chief, Engineering
                                                     One commenter stated that DNV did
                                                                                                          Federal Emergency Management                          Management Branch, Federal Insurance
                                                  not utilize the correct tank volume of
                                                                                                          Agency                                                and Mitigation Administration, FEMA,
                                                  fuel in the risk assessment models. The
                                                                                                                                                                500 C Street SW., Washington, DC
                                                  correct tank volume was incorporated in
                                                                                                                                                                20472, (202) 646–4064, or (email)
                                                  Revision 03 of the WSA.                                 [Docket ID FEMA–2015–0001; Internal
                                                     One comment stated that DNV–GL                       Agency Docket No. FEMA–B–1530]                        Luis.Rodriguez3@fema.dhs.gov; or visit
                                                  used inappropriate ignition probability                                                                       the FEMA Map Information eXchange
                                                  models when utilizing the International                 Proposed Flood Hazard                                 (FMIX) online at
                                                  Association of Oil and Gas Producers                    Determinations                                        www.floodmaps.fema.gov/fhm/
                                                  (OGP) Scenario 24 Floating Production,                                                                        fmx_main.html.
                                                  Storage, and Offloading (FPSO) Vessels                  AGENCY: Federal Emergency                             SUPPLEMENTARY INFORMATION: FEMA
                                                  Gas model. As an issue relevant under                   Management Agency, DHS.                               proposes to make flood hazard
                                                  33 CFR 127.009, the COTP will consider                  ACTION: Notice.                                       determinations for each community
                                                  those comments in issuing the LOR. For                                                                        listed below, in accordance with section
                                                  the public’s awareness on this topic, no                SUMMARY: Comments are requested on                    110 of the Flood Disaster Protection Act
                                                  statistically significant data exists for               proposed flood hazard determinations,                 of 1973, 42 U.S.C. 4104, and 44 CFR
                                                  ignition probability models for LNG as                  which may include additions or                        67.4(a).
                                                  fuel onboard passenger ferries. The                     modifications of any Base Flood                          These proposed flood hazard
                                                  model used by DNV–GL is meant to                        Elevation (BFE), base flood depth,                    determinations, together with the
                                                  model ignition probability onboard                      Special Flood Hazard Area (SFHA)                      floodplain management criteria required
                                                  larger scale offshore vessels and was                   boundary or zone designation, or                      by 44 CFR 60.3, are the minimum that
                                                  chosen because it represents a more                     regulatory floodway on the Flood                      are required. They should not be
                                                  conservative and representative model                   Insurance Rate Maps (FIRMs), and                      construed to mean that the community
                                                  for application to the WSF vessel                       where applicable, in the supporting                   must change any existing ordinances
                                                  design.                                                 Flood Insurance Study (FIS) reports for               that are more stringent in their
                                                     One comment expressed concern that                   the communities listed in the table                   floodplain management requirements.
                                                  the societal risks identified in the WSA                below. The purpose of this notice is to               The community may at any time enact
                                                  required that risks falling in the range                seek general information and comment                  stricter requirements of its own or
                                                  between ‘‘broadly acceptable’’ and                      regarding the preliminary FIRM, and                   pursuant to policies established by other
                                                  ‘‘maximum tolerable’’ be mitigated so                   where applicable, the FIS report that the             Federal, State, or regional entities.
                                                  that they are As Low As Reasonably                      Federal Emergency Management Agency                   These flood hazard determinations are
                                                  Possible (ALARP) and that the WSA did                   (FEMA) has provided to the affected                   used to meet the floodplain
                                                  not address mitigating factors to reach                 communities. The FIRM and FIS report                  management requirements of the NFIP
                                                  the ALARP mitigation. As an issue                       are the basis of the floodplain                       and also are used to calculate the
                                                  relevant under 33 CFR 127.009, the                      management measures that the                          appropriate flood insurance premium
                                                  COTP will consider those comments in                    community is required either to adopt                 rates for new buildings built after the
                                                  issuing the LOR. During the validation                  or to show evidence of having in effect               FIRM and FIS report become effective.
                                                  process, the COTP will determine if                     in order to qualify or remain qualified                  The communities affected by the
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                                                  appropriate risk management strategies                  for participation in the National Flood               flood hazard determinations are
                                                  have been identified.                                   Insurance Program (NFIP). In addition,                provided in the tables below. Any
                                                     One comment expressed concern that                   the FIRM and FIS report, once effective,              request for reconsideration of the
                                                  the WSA was not completed objectively                   will be used by insurance agents and                  revised flood hazard information shown
                                                  and appears to be incomplete. As an                     others to calculate appropriate flood                 on the Preliminary FIRM and FIS report
                                                  issue relevant under 33 CFR 127.009,                    insurance premium rates for new                       that satisfies the data requirements
                                                  the COTP will consider those comments                   buildings and the contents of those                   outlined in 44 CFR 67.6(b) is considered
                                                  in issuing the LOR. As part of the LOR                  buildings.                                            an appeal. Comments unrelated to the


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Document Created: 2018-02-26 10:19:49
Document Modified: 2018-02-26 10:19:49
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionNotices
ActionNotice and response to comments
ContactFor further information about this document call or email LT Sarah Rodi[ntilde]o, Coast Guard Sector Puget Sound; telephone 206-217-6623, email [email protected]
FR Citation80 FR 57835 

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