Proposed Modernization of the Coast Guard National Distress System

DEPARTMENT OF TRANSPORTATION

Coast Guard

[USCG-1998-3584]

Proposed Modernization of the Coast Guard National Distress

System

AGENCY: Coast Guard, DOT.

ACTION: Notice of intent to prepare an environmental assessment; and

request for public comment.

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SUMMARY: The United States Coast Guard (USCG) is seeking early public

input on their proposed action to modernize the National Distress

System (NDS), a major portion of their Short Range Communications

System (SRCS). To more effectively accomplish maritime safety, maritime

law enforcement, national security, and marine environmental

protection, the USCG needs a more efficient, modern, and

technologically advanced system than the current NDS.

In accordance with the National Environmental Policy Act, the Coast

Guard intends to prepare a programmatic environmental assessment (EA)

on the viable alternatives for achieving a more modern and effective

system. The environmental assessment will examine the reasonable

alternatives available to the USCG to fulfill their need for an

efficient, modern, and technologically improved National Distress

System and whether any alternatives have the potential for significant

environmental impacts. At this time, the USCG does not have a preferred

alternative.

Specifically, we are requesting input on any environmental concerns

you may have related to the existing NDS or to alternatives for

achieving a modernized system, suggested analyses or methodologies for

inclusion in the EA, possible sources of relevant data or information,

or other alternatives not included in this notice.

DATES: Comments must be received by 13 April 1998.

ADDRESSES: You may mail comments to the Docket Management Facility,

[USCG-1998-3584], U.S. Department of Transportation, Room PL-401, 400

Seventh Street SW., Washington, DC 20590-0001, or deliver them to room

PL-401, located on the Plaza Level of the Nassif Building at the same

address between 10 a.m. and 5 p.m., Monday through Friday, except

Federal holidays. The telephone number to the Docket Management

Facility is (202) 366-9329.

The Docket Management Facility maintains the public docket for this

notice. Comments, and documents as indicated in this preamble, will

become part of this docket and will be available for inspection or

copying at room PL-401, located on the Plaza Level of the Nassif

Building at the above address between 9:30 a.m. and 2 p.m., Monday

through Friday, except Federal holidays.

FOR FURTHER INFORMATION CONTACT:

Mr. Dan Muslin, telephone: (619) 532-3403, for questions concerning

this notice, the proposed modernization project, or the associated EA.

For questions concerning the Docket Management Facility contact

Paulette Twine, Chief, Documentary Services Division, U.S. Department

of Transportation, telephone (202) 366-9329.

SUPPLEMENTARY INFORMATION:

Request for Comments

The Coast Guard encourages your participation in the environmental

analysis of the proposed NDS modernization by the submission of written

data, views, or arguments. Your comments should include your name and

address, and identify this notice [USCG-1998-3584] and the specific

section of the notice to which each comment applies, along with the

reason for each comment. Please submit all comments and attachments in

an unbound format, no larger than 8\1/2\ by 11 inches, suitable for

copying and electronic filing to the DOT Docket Management Facility at

the address under ADDRESSES. If you want acknowledgment of receipt of

your comment, enclose a stamped, self-addressed postcard or envelope.

The Coast Guard will consider all comments received during the

comment period.

The Coast Guard plans no public hearing. You may request a public

hearing by submitting a request to the address under ADDRESSES. The

request should include the reasons a hearing would be beneficial. If

the Coast Guard determines that oral presentations are crucial to the

preparation of the EA, and will significantly aid in environmental

planning for the proposal, it will hold a public hearing at a time and

place announced by a later notice in the Federal Register.

Background

The NDS forms the backbone of the Coast Guard's Short Range

Communication System (SRCS) which supports Coast Guard Activity, Group,

Marine Safety Office (MSO), Vessel Traffic Service (VTS), Air Station,

Cutter and Station operations. As part of the SRCS, the National

Distress System incorporates the use of VHF-FM radios to provide two-

way voice communications coverage for the majority of Coast Guard

missions in coastal areas and navigable waterways where commercial and

recreational traffic exists. The system, consisting of approximately

300 remotely controlled VHF transceivers and antenna high-level sites,

was originally intended for monitoring the international VHF-FM

maritime distress frequency (Channel 16), and as the primary command

and control network to coorindate Coast Guard search and rescue (SAR)

response activities. The secondary function was to provide command,

control, and communications for the Coast Guard missions of National

Security, Maritime Safety, Law Enforcement, and Marine Environmental

Protection.

Need for Action

Due to the following deficiencies present in the current system,

the Coast Guard has identified a need for an efficient, modern, more

technologically advanced National Distress System than the one

currently in place:

Obsolete/Nonstandard Equipment. The NDS was originally put into

service in the 1970's and now suffers from technological obsolescence.

Much of the existing equipment is no longer commercially available off-

the-shelf and is becoming increasingly difficult to support. The

expected service life of electronic equipment installed during this

period was 15 years. Equipment failures have necessitated the

replacement of many system components that are no longer commercially

available, resulting in a lack of standardization. Costly short-term

fixes such as individual off-the-shelf purchases of equipment (e.g.,

new command modules, recording and playback equipment, direction

finding receivers, cellular phones, and Digital Encryption Standard

(DES) radios) and services are being applied in the field to

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marginally sustain the current system. The result is a collection of

nonstandard and difficult to maintain equipment.

Coverage Gaps. The current NDS was intended to provide coverage

extending out to approximately 20 nautical miles from shore. The

present system does not provide complete coverage of the continental

U.S. coastal areas, bays, inlets, and river systems. Presently there

are over 65 verified gaps and numerous localized coverage deficiencies

identified by local operational commanders.

Inadequate Channel Capacity. Twenty years of expanding CG mission

requirements have also added to the traffic load, far exceeding the

capacity of the original design. The NDS now suffers from inadequate

channel capacity especially during multiple simultaneous operations and

``surge'' operations. The system does not have a sufficient number of

channels or adequate channel capacity to allow the Coast Guard to

respond to crisis operations and provide sufficient voice channel and

communications capacity to support multiple Coast Guard operations.

When the Coast Guard is transmitting on the system, we are unable to

adequately monitor the VHF-FM international distress frequency at the

same time.

No Digital Selective Calling Capability. Recent amendments to the

International Maritime Organization (IMO) Safety Of Life At Sea (SOLAS)

agreements concerning the Global Maritime Distress and Safety System

(GMDSS) require that SOLAS-class vessels carry Digital Selective

Calling (DSC) equipped VHF-FM radios by 1 February 1999. These vessels

will no longer be required to monitor Channel 16 at sea after February

2005, and will increasingly be using Channel 70 VHF-FM (DSC only) as

the international VHF-FM distress and calling channel after February

1999. Additionally, DSC equipment may be used by any vessel

voluntarily. The current NDS does not have DSC capability which will

result in the Coast Guard becoming increasingly unable to communicate

with large segments of the maritime industry/public on international

VHF-FM distress frequencies.

Not Adequately Reliable During/After Natural Disasters. The current

NDS is extremely susceptible to catastrophic failure during a major

natural disaster. A failure to any part of the system will in many

cases result in loss of communication in wide areas of the system's

advertised coverage. The system cannot restore key operational links

and system components within a reasonable period following a failure.

The system does not provide adequate backup power to critical and

primary communications system components.

No Interface with Rest of the Coast Guard Telecommunication System.

The current NDS has no interface with our Long Range Communications

System (LRCS), our data network, nor the Pubic Switched Telephone

Network (PSTN). These deficiencies decrease the Coast Guard's ability

to effectively conduct its missions.

Inadequate Transmission Security. The system is severely limited in

its ability to protect communications when transmitting sensitive

information. This is key while conducting many Coast Guard missions

(e.g., law enforcement, search and rescue, pollution response).

Security of internal Coast Guard transmissions is mandated by National

Security Decision Directive 145 (NSDD 145), Presidential Directive 24

(PD 24), and their follow-on directive, National Security Directive 42

(NSD 42).

Inadequate Communications with Public Safety and Other Agencies.

Essential communications with other Federal, State, and local agencies

are often hindered or unavailable due to lack of compatible

communications equipment.

Poor Position Locating Capability. The system cannot adequately

pinpoint the location of a caller and, therefore, is limited in its

ability to aid in search for vessels or survivors that do not report,

do not know, or incorrectly report, their position, nor can it

adequately assist in locating hoax originators.

Limited Data Capability. The system also has limited ability to

transmit or obtain information regarding marine safety, environmental

monitoring/compliance, intelligence information, or information to and

from mariners and others. Such information could include situational

and operational reports, automated Coast Guard asset tracking,

transmission of search and rescue (SAR) or law enforcement information,

and marine safety broadcasts.

Poor Caller Verification Assistance and Recording Capability.

Finally, the system does not have capability to adequately record and

instantly playback incoming voice transmissions to aid immediate

responses and for record purposes.

Purpose of the Proposed Action

The purpose of the proposed action is to provide an efficient,

cost-effective, and technologically adequate National Distress System

that rectifies the deficiencies listed previously and adequately

supports Coast Guard Activity, Group, Marine Safety Office (MSO),

Vessel Traffic Service (VTS), Air Station, Cutter, and Station

operations.

Alternatives

The Coast Guard's proposed action is to modernize the current

obsolete and nonstandard NDS by adopting one of the general concepts

for a new system presented in alternatives B, C or D listed below.

Alternative A (Status Quo or no action) will not fulfill the stated

need; however, it will be analyzed in the EA to provide a baseline for

comparison with the action alternatives. Currently, the Coast Guard

does not have a preferred alternative among B, C or D. The following

alternatives are being considered in the EA:

Alternative A--Status Quo. Continue operations with existing

network of analog transceivers. Provide logistics support as needed and

as available.

Alternative B--Upgrade Status Quo. Systematically upgrade existing

network with modern analog transceivers. Integrate DSC, digital

encryption standard (DES), and digital recording equipment. This

alternative replaces old equipment with new equipment and adds

additional radio capability. Adding position location and filling

coverage gaps is also desired. It is expected that fulfilling these

last two requirements will require additional antenna sites.

Alternative C--Dual Mode VHF and/or UHF Network. Replace existing

analog network with dual mode (digital) and analog) transceivers.

Digital: Programmable and adaptable to digital signal processing

technologies and narrowband channel spacing. Analog: compatible to the

VHF marine radios in use by the maritime public. Integrate DSC,

encryption capability, digital recording equipment, and data

transmission capability. This alternative replaces old radios with new

equipment and also adds additional radio capability. Adding position

location and filling coverage gaps is also desired. It is expected that

fulfilling these last two requirements will require additional antenna

sites.

Alternative D--Multi-Mode: Satellite, Cellular, VHF and/or UHF

Network. Replace the existing network with multi-mode equipment that

utilizes satellite, cellular, and VHF/UHF communications. Integrate

DSC, signal encryption capability, digital recording equipment, and

data transmission capability. Adding position location and filling

coverage gaps is also desired. It is expected that fulfilling these

last two requirements will require additional antenna sites.

All the alternatives will require approximately the same number of

additional antenna sites with the

[[Page 13094]]

exception of the ``Status Quo'' alternative.

Affected Environment

The environment which may be affected by the proposed action may be

portions of the marine and terrestrial (both urban and rural) coastal

region of the continental U.S., Alaska, Hawaii, the Caribbean, Guam,

the Great Lakes and major inland bays and waterways (including Western

Rivers) where the Coast Guard has jurisdiction and where commercial

and/or recreational maritime traffic exist. The EA will discuss the

general aspects of the affected environment outlined above and areas of

discussion may include air quality, terrestrial vegetation and wildlife

(perhaps including endangered species and their habitat), prime and

unique farmlands, historic and cultural resources, wetlands, parks,

sanctuaries, conservation/preservation areas, 100-year flood plains,

marine vegetation and wildlife (perhaps including endangered species

and their habitat), and water quality.

Anticipated Environmental Issues

Areas of Potential Environmental Concern

Internal research has revealed that the following areas may be

issues of possible environmental concern: Radio waves (estimated 100

MHz to 1 GHz) from antenna sites; disposal of replaced system

components and any associated hazardous materials, including future

disposal of any hazardous materials associated with the new system;

disturbance of nesting birds, or possible bird mortality from striking

tower guy wires or from construction of antenna sites, enclosures, and

land lines. Possible impacts from construction could be: disturbance of

vegetation and wildlife (perhaps including endangered species and their

habitat) wetland disturbance, air emissions, effects to historic/

cultural resources including archeological resources, air quality,

aesthetics, and construction noise.

Anticipated Environmental Benefits

Oil Spill Prevention. Increased prevention of accident such as oil

spills or other hazardous materials from increased ability to track

commercial shipping and prevent groundings.

Oil Spill Clean Up. Expedited cleanup of accidents such as oil

spills or other hazardous material spills from increased ability to:

pinpoint the location of a distressed vessel or accident, respond

quickly to distress calls, contact and coordinate with appropriate

spill response teams and other important specialists outside the Coast

Guard, disseminate marine safety information, and continue operations

during natural disasters.

Endangered Species Act/Conservation Laws Warnings/Enforcement.

Increased ability to communicate environmental information/warnings to

mariners regarding endangered species sightings/activity (e.g., North

Atlantic Right Whale, Kemp's Ridley sea turtle, manatee). Improved

coordination of responses with National Marine Fisheries Service and

state/local civilian responders to distressed endangered species (e.g.,

stranded, entangled, or distressed animals). Increased ability to

communicate important environmental information to State or local

environmental agencies for record purposes. Improved protection of

communications for fisheries and conservation enforcement. Anticipated

Non-Environmental Benefits.

Increased Safety of Human Life. Increased ability to communicate

with, and respond to, the maritime public (recreational and commercial)

when in distress. Position locating capability will improve response

time, reducing loss of life. Digital Selective Calling capability will

allow receipt of distress alerts from DSC-equipped vessels.

Increased Public Service. The Coast Guard will be able to receive

all incoming short-range distress calls without interruption.

Additionally, the Coast Guard will be able to close the current gaps in

communication coverage and achieve improved overall communications with

various Federal, State, and local agencies.

Increased Maritime Law Enforcement. The protection of sensitive

communications will enhance the Coast Guard law enforcement capability

and interoperability with other federal, state, and local agencies.

Increased National Security. In addition to supporting Maritime Law

Enforcement, improved communications protection in the modernization

NDS will support defense missions in the coastal areas.

R.J. Casto,

Rear Admiral, U.S. Coast Guard, Assistant Commandant for Acquisition.

[FR Doc. 98-6885 Filed 3-16-98; 8:45 am]

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