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Rule2026-19652

Implementation of Training Requirements for Personnel Serving on U.S.-Flagged Passenger Ships That Carry More Than 12 Passengers on International Voyages

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Published

September 25, 2026

Effective

October 26, 2026

Issuing agencies

Homeland Security DepartmentCoast Guard

Abstract

The Coast Guard is amending its merchant mariner training regulations to implement amendments to the International Convention on Standards of Training, Certification and Watchkeeping for Seafarers, 1978, and the Seafarers' Training, Certification and Watchkeeping Code, to require personnel serving on U.S.-flagged passenger ships carrying more than 12 passengers on international voyages to complete passenger ship emergency familiarization. This final rule also expands the applicability of the required crowd management training to include specified ratings on passenger ships. These required trainings would promote the safety of life at sea.

Full Text

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<title>Federal Register, Volume 91 Issue 185 (Friday, September 25, 2026)</title>
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[Federal Register Volume 91, Number 185 (Friday, September 25, 2026)]
[Rules and Regulations]
[Pages 60846-60885]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-19652]

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DEPARTMENT OF HOMELAND SECURITY

Coast Guard

46 CFR Parts 11 and 12

[Docket No. USCG-2022-0649]
RIN 1625-AC68

Implementation of Training Requirements for Personnel Serving on
U.S.-Flagged Passenger Ships That Carry More Than 12 Passengers on
International Voyages

AGENCY: Coast Guard, DHS.

ACTION: Final rule.

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SUMMARY: The Coast Guard is amending its merchant mariner training
regulations to implement amendments to the International Convention on
Standards of Training, Certification and Watchkeeping for Seafarers,
1978, and the Seafarers' Training, Certification and Watchkeeping Code,
to require personnel serving on U.S.-flagged passenger ships carrying
more than 12 passengers on international voyages to complete passenger
ship emergency familiarization. This final rule also expands the
applicability of the required crowd management training to include
specified ratings on passenger ships. These required trainings would
promote the safety of life at sea.

DATES: This final rule is effective October 26, 2026. The incorporation
by reference of certain material listed in this rule is approved by the
Director of the Federal Register as of October 26, 2026.

ADDRESSES: To view documents mentioned in this preamble as being
available in the docket, go to <a href="http://www.regulations.gov">www.regulations.gov</a>, type USCG-2022-0649
in the search box, and click ``Search.'' Next, in the Document Type
column, select ``Supporting & Related Material.''

FOR FURTHER INFORMATION CONTACT: For information about this document,
call or email Megan Johns Henry, Coast Guard Office of Merchant Mariner
Credentialing (CG-MMC-1); telephone 571-610-3303, email
<a href="/cdn-cgi/l/email-protection#fab79f9d9b94d4b9d4b095929489ba8f89999dd4979396">[email&#160;protected]</a>.

SUPPLEMENTARY INFORMATION:

Table of Contents for Preamble

I. Abbreviations
II. Basis and Purpose, and Regulatory History
III. Discussion of Comments and Changes From Proposed Rule
IV. Discussion of the Rule
V. Incorporation by Reference
VI. Regulatory Analyses
A. Regulatory Planning and Review
B. Small Entities
C. Assistance for Small Entities
D. Collection of Information
E. Federalism
F. Unfunded Mandates
G. Taking of Private Property
H. Civil Justice Reform
I. Protection of Children
J. Indian Tribal Governments
K. Energy Effects
L. Technical Standards
M. Environment

I. Abbreviations

BLS U.S. Bureau of Labor Statistics
BTS Bureau of Transportation Statistics
CFR Code of Federal Regulations
CG-MMC Coast Guard Office of Merchant Mariner Credentialing
CSS Code Code of Safe Practices for Cargo Stowage and Securing
DHS Department of Homeland Security
DOT Department of Transportation
GSA U.S. General Services Administration
IBR Incorporated by Reference
IGF Code International Code of Safety for Ships Using Gases or Other
Low Flashpoint Fuels
IMO International Maritime Organization
IRFA Initial Regulatory Flexibility Analysis
M&IE Meal and Incidental Expenses
MISLE Marine Information for Safety and Law Enforcement
MMC Merchant Mariner Credential
NAICS North American Industry Classification System
NARA National Archives and Records Administration
NMC National Maritime Center
NPRM Notice of proposed rulemaking
OMB Office of Management and Budget
PIC rule Persons in Charge of Fuel Transfers final rule
POV Privately owned vehicle
PSC Port State Control
RA Regulatory analysis
Ro-ro Roll-on/roll-off
Sec. Section
SBA Small Business Administration
SME Subject matter expert
SOLAS International Convention for the Safety of Life at Sea, 1974,
as amended
STCW Convention International Convention on Standards of Training,
Certification and Watchkeeping for Seafarers, 1978
STCW Code Seafarers Training, Certification and Watchkeeping Code
U.S.C. United States Code
VSL Value of a Statistical Life

II. Basis and Purpose, and Regulatory History

The purpose of this final rule is to ensure the safety of
passengers on board U.S.-flagged passenger ships by ensuring all
shipboard personnel have completed training and are competent to assist
passengers in the event of an emergency. As defined in 46 CFR 11.1103
and 12.903,\1\ passenger ships are those ships carrying more than 12
passengers on an international voyage. With this rulemaking, the Coast
Guard requires passenger ship emergency familiarization for all
shipboard personnel on U.S.-flagged passenger ships, which may prevent
the loss of life

[[Page 60847]]

at sea, reduce the risk of injury, and increase protection of property
and the marine environment. The Coast Guard is expanding the
applicability of the existing crowd management training requirement to
include ratings qualified under Chapters II, III, and VII of the
International Convention on Standards of Training, Certification and
Watchkeeping for Seafarers (STCW Convention) \2\ on passenger ships.
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\1\ The Coast Guard adopted these definitions from the
International Convention for the Safety of Life at Sea (SOLAS),
1974, as amended, and codified them in the CFR. 78 FR 77796, 77974 &
77987 (Dec. 24, 2013).
\2\ Ratings qualified under Chapters II, III, and VII of the
STCW Convention are: Able Seafarer Deck, Able Seafarer Engine,
Ratings Forming Part of a Navigational Watch, and Ratings Forming
Part of an Engine-room Watch.
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The legal basis of this final rule is 14 U.S.C. 502, which
authorizes the Secretary of the Department of Homeland Security (``the
Secretary'') broad authority to issue such regulations and orders as
appropriate to carry out any law applicable to the Coast Guard and to
delegate such regulatory authority to the Coast Guard. More
specifically, 46 U.S.C. 7101 and 7301 authorize the Secretary to
prescribe the requirements for the credentialing of officers and
ratings, respectively. The Secretary has delegated these statutory
authorities to the Coast Guard through DHS Delegation No.
00170.1(II)(92)(e), Revision No. 01.4, which generally authorizes the
Coast Guard to determine and establish the experience and professional
qualifications required to issue credentials.
This final rule makes the following changes, which apply to all
personnel serving on U.S.-flagged passenger ships that carry more than
12 passengers on international voyages:
(1) Incorporates by reference STCW Consolidated Edition, 2017,
comprised of the STCW Convention and the Seafarers' Training,
Certification and Watchkeeping Code (including Erratum April 2018 and
Supplement February 2019) (STCW Code), in 46 CFR parts 11 and 12. The
STCW Convention and the STCW Code prescribe a five-tiered passenger
ship training approach, which is detailed in Section IV, Discussion of
the Rule.
(2) Adds a new requirement for all shipboard personnel to complete
passenger ship emergency familiarization appropriate to their capacity,
duties, and responsibilities during an emergency, before being assigned
to shipboard duties. The passenger ship emergency familiarization
requirement applies to all shipboard personnel, including Masters,
officers, and ratings qualified under Chapters II, III, and VII of the
STCW Convention. This familiarization training does not require Coast
Guard approval. Mariners or vessel operators must maintain
documentation verifying that personnel have completed the passenger
ship emergency familiarization.
(3) Expands the applicability of crowd management training to
include ratings qualified under Chapters II, III, and VII of the STCW
Convention. Crowd management courses will continue to require Coast
Guard approval in accordance with 46 CFR part 10, subpart D. Approved
crowd management courses are readily available to mariners.
On June 21, 2024, the Coast Guard published a notice of proposed
rulemaking (NPRM) (89 FR 52324) soliciting comments from the public on
the described changes. The comment period closed on September 19, 2024.

III. Discussion of Comments and Changes From Proposed Rule

In response to the NPRM for this rulemaking, the Coast Guard
received two comments. Both comments expressed support for the proposed
changes to the merchant mariner training regulations for personnel
serving on U.S.-flagged passenger ships carrying more than 12
passengers on international voyages.
One commenter stated that the Coast Guard's measures through the
rulemaking are vital for enhancing safety and ensuring crews are
adequately prepared to handle emergencies at sea.
The other commenter highlighted the importance of requiring
personnel serving on U.S.-flagged passenger ships carrying more than 12
passengers on international voyages to complete passenger ship
emergency familiarization and the expansion of the crowd management
training requirement. The commenter noted that these measures are
critical for enhancing the safety of life at sea. The commenter added
that the NPRM changes would ensure that all relevant personnel are
adequately trained to effectively manage emergencies. This includes the
ability to safely and efficiently evacuate passengers, maintain order
during crises, and minimize the risk of injury or loss of life. By
mandating this training, the Coast Guard is taking proactive measures
to protect the lives of passengers and crew alike.
Additionally, the same commenter emphasized that aligning U.S.
regulations with the latest international standards outlined in the
STCW Convention and STCW Code is essential for maintaining the
credibility and safety of U.S.-flagged vessels in international waters.
The commenter also supported the expanded scope of crowd management
training to include specified ratings on passenger ships, highlighting
the need to adapt to the evolving challenges posed by larger, more
complex vessels and a diverse passenger base.
The Coast Guard agrees with these comments and agrees that the
changes are crucial steps toward enhancing maritime safety. The
alignment with the STCW Convention and STCW Code and the expanded
training requirements reflect the Coast Guard's commitment to ensuring
the highest standards of safety for both passengers and crew.
Therefore, we are adopting the changes to 46 CFR parts 11 and 12
with minor, non-substantive changes from the NPRM.

IV. Discussion of the Rule

In the following paragraphs, we provide a section-by-section
description of our amendments to 46 CFR parts 11 and 12, in section
number order with topical headings.

46 CFR Part 11

Authority Citations
We are deleting reference to 46 U.S.C. 503 and adding, in its
place, 46 U.S.C. 502. Section 503 no longer exists, and those
authorities have been moved to section 502. We are also deleting
reference to 46 U.S.C. 8906 and adding, in its place, 46 U.S.C. chapter
89. Chapter 89 of title 46 of the U.S.C. contains the authorities for
requiring various small vessel officer endorsements, including the
civil penalties (in 46 U.S.C. 8906) for violating the chapter. Finally,
we are updating the reference to DHS Delegation No. 00170.1, Revision
No. 01.4, to reflect the most recent revision to this document.

Subpart A--General

Section 11.102 Incorporation by Reference.
The Coast Guard is incorporating by reference the STCW Consolidated
Edition 2017, which is comprised of the STCW Convention and the STCW
Code (including Erratum April 2018 and Supplement February 2019). The
STCW Convention sets the minimum standards for training, certification
and watchkeeping for seafarers. The STCW Code addresses the technical
aspects of the STCW Convention, including minimum standards of
competence and the appropriate methods for demonstrating competence,
which includes training. Currently, regulations in 46 CFR chapter I,
subchapter B,

[[Page 60848]]

reference the STCW Convention and the STCW Code, as amended through
2011. The STCW Consolidated Edition 2017 includes additional amendments
to the STCW Convention and the STCW Code. The amendments were adopted
in 2016 and entered into force on July 1, 2018. These amendments
contain updated training requirements for personnel to address
emergencies on passenger ships, prescribing a five-tiered passenger
ship training approach.
The five-tiered approach includes passenger ship emergency
familiarization, safety training for personnel providing direct service
to passengers, passenger ship crowd management, crisis management and
human behavior, and passenger safety, cargo safety, and hull integrity
training.\3\ Each tier builds on the previous tier of training, and the
training requirements are structured as appropriate to the associated
position of responsibility on board the ship.
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\3\ STCW Convention Regulation V/2 and the STCW Code, Section A-
V/2, Mandatory minimum requirements for the training and
qualifications of masters, officers, ratings, and other personnel on
passenger ships.
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Subpart C--STCW Officer Endorsements

Section 11.305--Requirements to qualify for an STCW endorsement as
Master of vessels of 3,000 GT or more (management level).
The Coast Guard amends Table 1 to Sec. 11.305(e), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.307--Requirements to qualify for an STCW endorsement as
Chief Mate of vessels of 3,000 GT or more (management level).
The Coast Guard amends Table 1 to Sec. 11.307(e), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.309--Requirements to qualify for an STCW endorsement as
Officer in Charge of a Navigational Watch (OICNW) of vessels of 500 GT
or more (operational level).
The Coast Guard amends Table 1 to Sec. 11.309(e), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.311--Requirements to qualify for an STCW endorsement as
Master of vessels of 500 GT or more and less than 3,000 GT (management
level).
The Coast Guard amends Table 1 to Sec. 11.311(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.313--Requirements to qualify for an STCW endorsement as
Chief Mate of vessels of 500 GT or more and less than 3,000 GT
(management level).
The Coast Guard amends Table 1 to Sec. 11.313(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.315--Requirements to qualify for an STCW endorsement as
Master of vessels of less than 500 GT (management level).
The Coast Guard amends Table 1 to Sec. 11.315(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.317--Requirements to qualify for an STCW endorsement as
Master of vessels of less than 500 GT limited to near-coastal waters
(management level).
The Coast Guard amends Table 1 to Sec. 11.317(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.319--Requirements to qualify for an STCW endorsement as
Officer in Charge of a Navigational Watch (OICNW) of vessels of less
than 500 GT (operational level).
The Coast Guard amends Table 1 to Sec. 11.319(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.321--Requirements to qualify for an STCW endorsement as
Officer in Charge of a Navigational Watch (OICNW) of vessels of less
than 500 GT limited to near-coastal waters (operational level).
The Coast Guard amends Table 1 to Sec. 11.321(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.325--Requirements to qualify for an STCW endorsement as
Chief Engineer Officer on vessels powered by main propulsion machinery
of 3,000 kW/4,000 HP propulsion power or more (management level).
The Coast Guard amends Table 1 to Sec. 11.325(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.327--Requirements to qualify for an STCW endorsement as
Second Engineer Officer on vessels powered by main propulsion machinery
of 3,000kW/4,000 HP propulsion power or more (management level).
The Coast Guard amends Table 1 to Sec. 11.327(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.329--Requirements to qualify for an STCW endorsement as
Officer in Charge of an Engineering Watch (OICEW) in a manned
engineroom or designated duty engineer in a periodically unmanned
engineroom on vessels powered by main propulsion machinery of 750 kW/
1,000 HP propulsion power or more (operational level).
The Coast Guard adds numbers to the footnotes in Table 1 to Sec.
11.329(e) for consistency with other sections. Additionally, Table 1 to
Sec. 11.329(e), footnote 2, is amended by adding a reference to the
appropriate section of the STCW Code for clarity.
Section 11.331--Requirements to qualify for an STCW endorsement as
Chief Engineer Officer on vessels powered by main propulsion machinery
of 750 kW/1,000 HP or more and less than 3,000 kW/4,000 HP propulsion
power (management level).
The Coast Guard amends Table 1 to Sec. 11.331(e), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.
Section 11.333--Requirements to qualify for an STCW endorsement as
Second Engineer Officer on vessels powered by main propulsion machinery
of 750kW/1,000 HP or more and less than 3,000 kW/4,000 HP propulsion
power (management level).
The Coast Guard amends Table 1 to Sec. 11.333(d), footnote 2, by
adding a reference to the appropriate section of the STCW Code for
clarity.

Subpart K--Officers on a Passenger Ship When on an International Voyage

Section 11.1105--General requirements for officer endorsements.
The Coast Guard revises the title of this section from ``General
requirements for officer endorsements'' to ``General requirements.''
The change aligns with the purpose of this subpart, in accordance with
the STCW Convention and the STCW Code. Other specific changes to Sec.
11.1105 are detailed below.
In summary, we are combining existing paragraph (a) introductory
text and text from paragraph (a)(1) into paragraph (a) introductory
text; adding new paragraph (a)(1); redesignating paragraphs (a)(1)(i)
as (a)(3), (a)(1)(ii) as (a)(2), (a)(1)(iii) as (a)(4) and (a)(1)(iv)
as (a)(5); redesignating paragraph (a)(2) as paragraph (b); and
redesignating existing paragraphs (b), (c), and (d) as paragraphs (c),
(d) and (e) respectively. These changes allow paragraphs (a)(1) through
(a)(5) to refer to the applicable paragraphs (1 through 5) of Section
A-V/2 of the STCW Code, as detailed in the following discussion of
those paragraphs.
In revised paragraph (a) introductory text, we change the word
``vessel'' to ``ship'' for consistency in terminology in this part and
add the text, ``before being assigned to shipboard duties'' for
clarity. The language from existing paragraph (a)(1) in revised
paragraph (a)

[[Page 60849]]

introductory text details the incorporation of the STCW Convention
Regulation V/2 and of Section A-V/2 of the STCW Code.
New paragraph (a)(1) specifies that all officers and personnel
aboard passenger ships must have completed passenger ship emergency
familiarization appropriate to their capacity, duties, and
responsibilities. Paragraph (a)(1) refers to Section A-V/2 paragraph 1
of the STCW Code, which requires that passenger ship emergency
familiarization be completed before personnel are assigned to shipboard
duties.
In accordance with Section A-V/2 paragraph 1 of the STCW Code,
passenger ship emergency familiarization must include topics to
familiarize personnel with the general safety features aboard the ship,
the location of essential safety equipment, including life-saving
appliances, the importance of personal conduct during the
implementation of emergency plans, and restrictions on the use of
elevators during emergencies. Passenger ship emergency familiarization,
in accordance with Section A-V/2 paragraph 1 of the STCW Code, also
includes the requirement to communicate with passengers during an
emergency, including the ability to communicate in the working language
of the ship, including non-verbally communicating safety information,
and understanding one of the languages in which emergency announcements
may be broadcast on the ship during an emergency or drill.
Passenger ship emergency familiarization training in paragraph
(a)(1) does not require Coast Guard approval. Operating companies must
ensure personnel are familiarized with the shipboard layout, their
shipboard duties, and emergency procedures. Personnel or vessel
operating companies must maintain documentary evidence verifying that
personnel have completed the Passenger Ship Emergency Familiarization
training. It is the responsibility of the operating companies, who are
obligated by Regulation I/14, ``Responsibilities of Companies'' of the
STCW Convention, to ensure that documentation relevant to personnel
training is maintained and readily accessible. Port State Control (PSC)
officers or Coast Guard inspectors may ask to see evidence that
personnel have completed passenger ship emergency familiarization.
Redesignated paragraph (a)(2), which already requires the
completion of safety training for personnel providing direct service to
passengers in passenger spaces, is revised to include the addition of
``officers'' to personnel providing direct service to passengers in
passenger spaces. In addition, we removed ``onboard passenger ships''
from the explanation of passenger spaces. We add ``passenger ship'' to
more accurately describe the type of safety training required.
Paragraph (a)(2) refers to Section A-V/2 paragraph 2 of the STCW Code,
which requires that passenger ship safety training be completed before
personnel are assigned to shipboard duties.
In accordance with Section A-V/2 paragraph 2 of the STCW Code,
passenger ship safety training must include communication.
Specifically, it must include:
1. The ability to communicate with passengers during an emergency,
considering the language or languages appropriate to the principal
nationalities of passengers carried on the particular route;
2. The likelihood that an ability to use elementary English
vocabulary for basic instructions can provide a means of communicating
with a passenger in need of assistance, whether or not the passenger
and crew member share a common language;
3. The possible need to communicate during an emergency by some
other means, such as by demonstration, hand signals, or calling
attention to the location of instructions, muster stations, life-saving
devices, or evacuation routes when oral communication is impractical;
4. The extent to which complete safety instructions have been
provided to passengers in their native language or languages;
5. The languages in which emergency announcements may be broadcast
during an emergency or drill to convey critical guidance to passengers
and to facilitate crew members in assisting passengers; and
6. In accordance with Section A-V/2 paragraph 2 of the STCW Code,
passenger ship safety training must include life-saving appliances, and
specifically the ability to demonstrate to passengers the use of
personal life-saving appliances, and embarkation procedures with
special attention to disabled persons and persons needing assistance.
Passenger ship safety training in paragraph (a)(2) does not require
Coast Guard approval and can be conducted on board the ship or in a
shore-based location. Personnel completing passenger ship safety
training are obligated to maintain documentary evidence of their
training by STCW Convention Regulation V/2, ``Mandatory minimum
requirements for the training and qualification of masters, officers,
ratings and other personnel on passenger ships,'' of the STCW
Convention.
The Coast Guard makes non-substantive changes in redesignated
paragraph (a)(3), which already requires the completion of crowd
management training. In addition, the Coast Guard makes the following
substantive changes to clarify which personnel are required to complete
the required training:
1. The text, ``ratings qualified under Chapters II, III, and VII of
the STCW Convention'' is added to Masters, officers, and personnel
designated on muster lists to assist passengers in emergency
situations.
2. The text, ``approved or accepted'' is added to clarify that
Masters, officers, ratings qualified under Chapters II, III, and VII of
the STCW Convention, and personnel designated on muster lists to assist
passengers in emergency situations must complete ``approved or
accepted'' training in passenger ship crowd management. Requiring
approved or accepted training aligns with 46 CFR part 10, subpart D,
which allows training to be either approved or accepted by the Coast
Guard.
3. The text is revised to refer to Section A-V/2 paragraph 3 of the
STCW Code, which requires crowd management training to be completed in
accordance with STCW Convention Regulation V/2, paragraph 7, as set out
in table A-V/2-1. Personnel completing crowd management training are
obligated to maintain documentary evidence of their training by STCW
Convention Regulation V/2, ``Mandatory minimum requirements for the
training and qualification of masters, officers, ratings and other
personnel on passenger ships,'' of the STCW Convention.
Redesignated paragraph (a)(4) makes one non-substantive change.
Additionally, redesignated paragraph (a)(4), which already includes a
requirement for the completion of crisis management and human behavior,
clarifies that training in crisis management and human behavior must be
approved ``or accepted'' training in accordance with 46 CFR part 10,
subpart D. Paragraph (a)(4) is revised to refer to Section A-V/2
paragraph 4 of the STCW Code, which requires training in crisis
management and human behavior to be completed in accordance with STCW
Convention Regulation V/2 paragraph 8, as set out in table A-V/2-2.
Personnel completing crisis management and human behavior training are
obligated to maintain documentary evidence of their training by STCW
Convention

[[Page 60850]]

Regulation V/2, ``Mandatory minimum requirements for the training and
qualification of masters, officers, ratings and other personnel on
passenger ships,'' of the STCW Convention.
Redesignated paragraph (a)(5) makes one non-substantive change.
Additionally, redesignated paragraph (a)(5) clarifies that training in
passenger safety, cargo safety, and hull integrity must be approved
``or accepted'' training in accordance with 46 CFR part 10, subpart D.
Paragraph (a)(5) is also revised to refer to Section A-V/2 paragraph 5
of the STCW Code, which requires that training must be completed before
personnel are assigned to shipboard duties.
In accordance with Section A-V/2 paragraph 5 of the STCW Code,
passenger safety, cargo safety, and hull integrity training must
include loading and embarkation procedures and, specifically, the
ability to properly apply the procedures established for the ship
regarding loading and discharging vehicles, rail cars and other cargo
transport units, including related communications; lowering and
hoisting ramps; setting up and stowing retractable vehicle decks; and
embarking and disembarking passengers, with special attention to
disabled persons and persons needing assistance.
Passenger safety, cargo safety, and hull integrity training must
also include:
1. Carriage of dangerous goods, including the ability to apply any
special safeguards, procedures, and requirements regarding the carriage
of dangerous goods on board roll-on/roll-off (ro-ro) passenger ships;
\4\
---------------------------------------------------------------------------

\4\ A ro-ro passenger ship is defined in Chapter II-1,
Regulation 2 of SOLAS, as being ``a passenger ship with ro-ro cargo
spaces or special category spaces.''
---------------------------------------------------------------------------

2. Securing cargoes, specifically the ability to correctly apply
the provisions of the Code of Safe Practices for Cargo Stowage and
Securing (CSS Code) \5\ to the vehicles, rail cars, and other cargo
transport units carried, and to properly use the cargo-securing
equipment and materials provided, considering their limitations;
---------------------------------------------------------------------------

\5\ The CSS Code provides an international standard for the safe
stowage and securing of cargoes to promote the safety of life both
at sea, and during loading and discharge. See https://www.imo.org/
en/OurWork/Safety/Pages/CSS-
Code.aspx#:~:text=All%20cargoes%20should%20be%20stowed,be%20properly%
20qualified%20and%20experienced. (last visited 07/14/2026).
---------------------------------------------------------------------------

3. Stability, trim, and stress calculations, specifically the
ability to make proper use of the stability and stress information
provided; calculate stability and trim for different conditions of
loading, using the stability calculators or computer programs provided;
calculate load factors for decks; and calculate the impact of ballast
and fuel transfers on stability, trim, and stress; and
4. Opening, closing and securing hull openings, including the
ability to properly apply the procedures established for the ship for
opening, closing and securing bow, stern and side doors and ramps;
correctly operating the associated systems and conducting surveys on
proper sealing and ro-ro deck atmosphere, including the ability to use
equipment, where carried, to monitor atmosphere in ro-ro spaces and
properly apply the procedures established for the ship for ventilation
of ro-ro spaces during lading and discharging of vehicles, while on
voyage and in emergencies.
Personnel completing passenger safety, cargo safety, and hull
integrity training are obligated to maintain documentary evidence of
their training by STCW Convention Regulation V/2, ``Mandatory minimum
requirements for the training and qualification of masters, officers,
ratings and other personnel on passenger ships,'' of the STCW
Convention.
Redesignated paragraph (b) is revised to state that, ``Personnel
required to be trained in accordance with paragraph (a) of this section
must hold documentary evidence of successful completion of training as
proof of meeting these requirements.'' These revisions clarify who is
required to hold evidence of successful completion of training in
accordance with paragraph (a). We removed the existing text, ``through
approved or accepted training,'' to clarify that the training required
in paragraphs (a)(1) and (a)(2) do not have to be Coast Guard-approved
or accepted training, while the training required in paragraphs (a)(3),
(a)(4), and (a)(5) must be Coast Guard-approved or accepted training.
Redesignated paragraph (c) updates terminology used in this subpart
and makes other non-substantive changes. Paragraph (c) corrects
references to other revised paragraphs in this subpart for personnel
who must provide evidence of having maintained the required standard of
competence every 5 years.
Redesignated paragraph (d) updates the paragraph reference, which
was redesignated from paragraph (b) to paragraph (c), and replaces the
word ``sea'' with ``relevant seagoing'' to better describe the service
needed to maintain the standard of competence.
Redesignated paragraph (e) replaces the word ``vessels'' with
``ships'' to provide consistency of terminology used in this subpart.

46 CFR part 12

Authority Citations
The Coast Guard revises the authorities listed for part 12 by
adding 14 U.S.C. 502, which governs the delegation of powers by the
Secretary to the Coast Guard. It authorizes the Secretary to transfer
or impose on the Coast Guard any of the rights, privileges, powers, or
duties vested in the Secretary regarding the administration of the
Coast Guard, including the authority to promulgate regulations. We
updated this authority in part 12 for consistency with 46 CFR parts 10
and 11. We also revised the authorities listed for part 12 by adding 46
U.S.C. 7303 through 7316. We made this change to more clearly cite the
statutory authority provided by Congress to issue regulations for all
classifications of ratings endorsements with respect to standards of
competency, training, and sea service. Finally, we updated the
reference to DHS Delegation No. 00170.1, Revision No. 01.4, to reflect
the most recent revision of this document.

Subpart A--General

Section 12.103 Incorporation by Reference.
The Coast Guard revises Sec. 12.103 to incorporate by reference
the STCW Consolidated Edition 2017, which is comprised of the STCW
Convention and the STCW Code (including Erratum April 2018 and
Supplement February 2019).\6\
---------------------------------------------------------------------------

\6\ See section IV, Discussion of the Rule, 46 CFR part 11,
subpart A, in this document for a description of the STCW Convention
and the STCW Code.
---------------------------------------------------------------------------

Subpart F--Requirements for STCW Rating Endorsement
Section 12.603--Requirements to qualify for an STCW endorsement as
Able Seafarer-Deck.
The Coast Guard amends Table 1 to Sec. 12.603(d), footnotes 2 and
3, by adding references to the appropriate sections of the STCW Code
for clarity.
Section 12.605--Requirements to qualify for an STCW endorsement as
Ratings Forming Part of a Navigational Watch (RFPNW).
The Coast Guard amends Table 1 to Sec. 12.605(c), footnote 2, by
adding reference to the appropriate section of the STCW Code for
clarity.
Section 12.609--Requirements to qualify for an STCW endorsement as
Rating Forming Part of an Engineering Watch (RFPEW).
The Coast Guard amends Table 1 to Sec. 12.609(c), footnote 2, by
adding

[[Page 60851]]

reference to the appropriate section of the STCW Code for clarity.
Section 12.611--Requirements to qualify for an STCW endorsement as
Electro-technical Rating (ETR) on vessels powered by main propulsion
machinery of 750 kW/1,000 HP or more.
The Coast Guard amends Table 1 to Sec. 12.611(c), footnote 2, by
adding reference to the appropriate section of the STCW Code for
clarity.

Subpart I--Ratings and Personnel on a Passenger Ship When on an
International Voyage

The Coast Guard is revising the title of this subpart from
``Crewmembers on a Passenger Ship on an International Voyage,'' to
``Ratings and Personnel on a Passenger Ship When on an International
Voyage.'' The change aligns with the purpose of this subpart, in
accordance with the STCW Convention and the STCW Code. We made an
editorial change to Sec. 12.901; for Sec. 12.905, we combined
existing paragraph (a) introductory text and paragraph (a)(1) into
paragraph (a) introductory text; redesignated existing paragraph (a)(2)
as paragraph (b); added new paragraphs (a)(1) through (a)(5); and
redesignated existing paragraphs (b), (c), and (d) as paragraphs (c),
(d) and (e) respectively. New paragraphs (a)(1) through (a)(5) refer to
the applicable paragraphs (1 through 5) of Section A-V/2 of the STCW
Code. The specific changes to Sec. 12.905 are detailed below.
Section 12.905--General Requirements.
In revised paragraph (a) introductory text, we replace the word
``vessel'' with ``ship'' to provide consistency of terminology used in
this subpart and revise the text to clarify when and to whom the
requirements apply. We also moved language from existing paragraph
(a)(1) to paragraph (a) introductory text to detail the incorporation
of the STCW Convention Regulation V/2 and of Section A-V/2 of the STCW
Code.
Paragraph (a)(1) specifies that all personnel must have completed
passenger ship emergency familiarization appropriate to their capacity,
duties, and responsibilities. Paragraph (a)(1) also refers to Section
A-V/2 paragraph 1 of the STCW Code.\7\ Passenger ship emergency
familiarization in paragraph (a)(1) does not require Coast Guard
approval.
---------------------------------------------------------------------------

\7\ See Section IV, Discussion of the Rule, Sec. 11.1105, in
this document, for a description of section A-V/2 paragraph 1 of the
STCW Code.
---------------------------------------------------------------------------

Paragraph (a)(2) is redesignated as paragraph (b). New paragraph
(a)(2) adds the requirement that personnel providing direct service to
passengers in passenger spaces must have completed the passenger ship
safety training. Paragraph (a)(2) is also revised to refer to Section
A-V/2 paragraph 2 of the STCW Code.\8\ Passenger ship safety training
in paragraph (a)(2) does not require Coast Guard approval in accordance
with 46 CFR part 10, subpart D, and can be conducted on board the ship
or in a shore-based location.
---------------------------------------------------------------------------

\8\ See Section IV, Discussion of the Rule, Sec. 11.1105, in
this document, for a description of section A-V/2 paragraph 2 of the
STCW Code.
---------------------------------------------------------------------------

New paragraph (a)(3) adds the requirement that ratings qualified
under Chapters II, III, and VII of the STCW Convention and personnel
designated on the muster list to assist passengers in an emergency
situation onboard passenger ships must have completed approved or
accepted training in passenger ship crowd management. Passenger ship
crowd management training must be approved or accepted training in
accordance with 46 CFR part 10, subpart D. This paragraph is also
revised to refer to Section A-V/2 paragraph 3 of the STCW Code.\9\
---------------------------------------------------------------------------

\9\ See Section IV, Discussion of the Rule, Sec. 11.1105, in
this document, for a description of section A-V/2 paragraph 3 of the
STCW Code.
---------------------------------------------------------------------------

New paragraph (a)(4) adds the requirement that personnel designated
on muster lists as having responsibility for the safety of passengers
in emergency situations onboard passenger ships must have completed
approved or accepted training in crisis management and human behavior.
Crisis management and human behavior training must be approved or
accepted training in accordance with 46 CFR part 10, subpart D. This
paragraph is also revised to refer to Section A-V/2 paragraph 4 of the
STCW Code.\10\
---------------------------------------------------------------------------

\10\ See Section IV, Discussion of the Rule, Sec. 11.1105, in
this document, for a description of section A-V/2 paragraph 4 of the
STCW Code.
---------------------------------------------------------------------------

New paragraph (a)(5) adds the requirement that personnel assigned
immediate responsibility for embarking and disembarking passengers,
loading, discharging, or securing cargo, or closing hull openings
onboard ro-ro passenger ships must have completed approved or accepted
training in passenger safety, cargo safety, and hull integrity.
Passenger safety, cargo safety, and hull integrity training must be
approved or accepted training in accordance with 46 CFR part 10,
subpart D. This paragraph is also revised to refer to Section A-V/2
paragraph 5 of the STCW Code.\11\
---------------------------------------------------------------------------

\11\ See Section IV, Discussion of the Rule, Sec. 11.1105, in
this document, for a description of section A-V/2 paragraph 5 of the
STCW Code.
---------------------------------------------------------------------------

Redesignated paragraph (b) requires personnel completing the
training described in paragraph (a) to hold documentary evidence of
meeting these requirements.
Redesignated paragraph (c) updates terminology used in this subpart
and makes other non-substantive changes. Paragraph (c) also corrects
references to other revised paragraphs in this subpart for personnel
who must provide evidence of having maintained the required standard of
competence every 5 years.
Redesignated paragraph (d) updates the paragraph reference which
was redesignated from paragraph (b) to paragraph (c) and replaces the
word ``sea'' with ``relevant seagoing'' to better describe the service
needed to maintain the standard of competence.
Existing paragraph (d) is redesignated as paragraph (e) with no
changes to the text.

V. Incorporation by Reference

Material for incorporation by reference appears in the regulatory
text for 46 CFR 11.102 and 12.103. The sections that reference these
standards, and the locations and web addresses where these standards
are available, are listed in those sections. The material incorporated
by reference is summarized in this preamble in Section IV., Discussion
of the Rule, under the discussions of Sec. Sec. 11.102 and 11.1105.
For information about how to view this material, see the FOR FURTHER
INFORMATION CONTACT section of this preamble. The Director of the
Federal Register approved the material in 46 CFR parts 11 and 12 for
incorporation by reference under 5 U.S.C. 552 and 1 CFR part 51.
Consistent with 1 CFR part 51 incorporation by reference provisions,
this material is reasonably available. Interested persons have access
to it through their normal course of business, may purchase it from the
International Maritime Organization (IMO) as identified in 46 CFR
11.102 or 12.103, or may view a copy by means we have identified in
those sections.
SOLAS: The International Convention for the Safety of Life at Sea,
1974 is referenced in the amendatory text of this document and was
previously approved for Sec. 11.102.

VI. Regulatory Analyses

The Coast Guard received two comment submissions during the 90-day
comment period that ended on September 19, 2024. Both comments were in
support of the rule and, as a result, the methodology employed in the
RA is unchanged from the NPRM. However, we have updated the affected
population, wage, and travel cost data used throughout the analysis,
resulting

[[Page 60852]]

in increased cost estimates from the NPRM.
We developed this rule after considering numerous statutes and
Executive orders related to rulemaking. Below we summarize our analyses
based on these statutes or Executive orders.

A. Regulatory Planning and Review

Executive Orders 12866 (Regulatory Planning and Review) and 13563
(Improving Regulation and Regulatory Review) direct agencies to assess
the costs and benefits of available regulatory alternatives and, if
regulation is necessary, to select regulatory approaches that maximize
net benefits. Executive Order 13563 emphasizes the importance of
quantifying both costs and benefits, of reducing costs, of harmonizing
rules, and of promoting flexibility. Executive Order 14192 (Unleashing
Prosperity Through Deregulation) directs agencies to significantly
reduce the private expenditures required to comply with Federal
regulations and provides that ``any new incremental costs associated
with new regulations shall, to the extent permitted by law, be offset
by the elimination of existing costs associated with at least 10 prior
regulations.''
Additionally, Executive Order 13609 (Promoting International
Cooperation) promotes the goal of Executive Order 13563. Executive
Order 13609 targets international regulatory cooperation to reduce,
eliminate, or prevent unnecessary differences in regulatory
requirements.
The Office of Management and Budget (OMB) has not designated this
rule a ``significant regulatory action'' under section 3(f) of
Executive Order 12866. Accordingly, OMB has not reviewed it.
This rule is not an Executive Order 14192 regulatory action because
this rule is not significant under Executive Order 12866. See OMB
Memorandum M-25-20, ``Guidance Implementing Section 3 of Executive
Order 14192, titled `Unleashing Prosperity Through Deregulation' ''
(March 26, 2025).
The United States is a signatory to the STCW Convention; therefore,
the United States is required to implement amendments to the STCW
Convention and the STCW Code through national regulations.
A summary of the regulatory analysis (RA) follows. The final rule
makes the following changes, which apply to all personnel serving on
U.S.-flagged passenger ships:
(1) Incorporates by reference the STCW Consolidated Edition 2017,
comprised of the STCW Convention and the STCW Code in 46 CFR parts 11
and 12.
(2) Adds a new requirement for all personnel to complete passenger
ship emergency familiarization appropriate to their capacity, duties,
and responsibilities during an emergency. Personnel must complete the
familiarization before being assigned to shipboard duties. The
passenger ship emergency familiarization requirement applies to all
personnel, including Masters, officers, and ratings qualified under
Chapters II, III, and VII of the STCW Convention. This familiarization
training does not require Coast Guard approval. Mariners or ship
operators must maintain documentation verifying that personnel have
completed the passenger ship emergency familiarization.
(3) Expands the applicability of the crowd management training
requirement by adding ratings qualified under Chapters II, III, and VII
of the STCW Convention to the current applicability of officers and
personnel designated on the muster list to assist passengers in
emergency situations. Prior to this final rule, only Masters, officers,
and personnel designated on the muster list to assist passengers on
board passenger ships in emergency situations had to complete crowd
management training.
The Coast Guard considers the benefits and costs of the rulemaking
against the baseline, which is our best assessment of maritime affairs
absent this action. We do not have data on whether the U.S.-passenger-
ship industry is currently in compliance with the training requirements
in this final rule. Pursuant to 46 CFR 1.01-10(f)(1), which authorizes
the Coast Guard to supervise the administration of the manning of U.S.
ships, and prior to this final rule, PSC officers and Coast Guard
inspectors were verifying that mariners held the appropriate
credentials and met the training required by the STCW Convention and
the STCW Code, but were not tracking compliance with the requirements
outlined in this final rule, since compliance was voluntary.
While the Coast Guard believes it is possible that personnel may
have already completed the required passenger ship trainings before the
effective date of this final rule, due to a lack of data, we cannot
assume compliance. Thus, for the purposes of this RA, we assume
personnel are not in compliance with the training requirements, and we
measure initial compliance costs in the first year of implementation.
As a result, the Coast Guard estimates that the operating companies of
U.S.-flagged passenger ships will incur undiscounted average annual
costs of approximately $379,253, in 2023 dollars, from the passenger
ship emergency familiarization requirements, and ratings qualified
under Chapters II, III, and VII of the STCW Convention will incur
undiscounted average annual costs of $22,104, in 2023 dollars, to
comply with the crowd management training requirement. Taken together,
the final rule will result in annualized costs to industry of
approximately $403,486, and total costs of $3,624,350, in 2023 dollars,
when discounted at 2 percent over a 10-year period of analysis. The
Coast Guard believes the final rule will improve safety of life at sea
by ensuring passenger ship personnel are equipped to assist passengers
in an emergency and will also maintain the ability of passenger ships
and mariners to operate in international markets. Table 1 provides a
summary of the final rule's applicability, affected population,
potential costs, and benefits.
BILLING CODE 9110-04-P

[[Page 60853]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.000

BILLING CODE 9110-04-C

[[Page 60854]]

Changes From NPRM to Final Rule
The Coast Guard received two public comments during the 90-day
public comment period, and both were in support of the requirements
proposed in the NPRM. As a result, the requirements and the methodology
employed to analyze the associated benefits and costs are unchanged.
Despite the methodology remaining consistent, we have updated the
affected population, wage, and travel cost data used throughout the
analysis. This involved updating wage rates and cost inputs used in the
analysis from a base year of 2021 to 2023. These changes to the
affected population data and cost inputs resulted in increased cost
estimates from the NPRM. Beyond these increases, nothing else in the RA
has changed. Table 2 summarizes the changes to the affected population
from the NPRM to the final rule.
[GRAPHIC] [TIFF OMITTED] TR25SE26.001

Description of Regulatory Changes
This final rule results in multiple changes that have costs. First,
the rule adds passenger ship emergency familiarization requirements for
officers, ratings, and personnel on passenger ships making
international voyages. This training includes topics to familiarize
personnel with the general safety features aboard the ship, the
location of essential safety equipment, including life-saving
appliances, the importance of personal conduct during the
implementation of emergency plans, and restrictions on the use of
elevators during emergencies. Passenger ship emergency familiarization
also includes the requirement to communicate with passengers during an
emergency, including the ability to communicate in the working language
of the ship, including non-verbally communicating safety information,
and understanding one of the languages in which emergency announcements
may be broadcast on the ship during an emergency or drill.
Second, the final rule expands the applicability of crowd
management training by requiring ratings qualified under Chapters II,
III, and VII of the STCW Convention to complete this training. Prior to
this final rule, only officers and personnel designated on the muster
list to assist passengers in emergency situations were required to
complete this training. Table 3 lists and describes the changes we make
to 46 CFR parts 11 and 12, with their associated impacts.
BILLING CODE 9110-04-P

[[Page 60855]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.002

[[Page 60856]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.003

[[Page 60857]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.004

[[Page 60858]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.005

[[Page 60859]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.006

[[Page 60860]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.007

[[Page 60861]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.008

Affected Population
This final rule has two affected populations that will incur costs:
(1) operating companies with U.S.-flagged passenger ships; and (2)
ratings qualified under Chapters II, III, and VII of the STCW
Convention serving on the same ships.
The Coast Guard analyzed data from the Marine Information for
Safety and Law Enforcement (MISLE) database to determine the number of
U.S.-flagged passenger ships that carry more than 12 passengers on
international voyages and to determine the number of unique owners and
operators.\12\ We determined that there are 51 U.S.-flagged passenger
ships owned by 41 operating companies that will incur the costs of
providing passenger ship emergency familiarization to the officers,
ratings, and personnel aboard their ships. Unlike most STCW Convention
and STCW Code training requirements, it will be incumbent upon the
owners and operators of these passenger ships to provide this training,
since it is ship-specific and is given on board prior to assuming
duties.
---------------------------------------------------------------------------

\12\ The Coast Guard used MISLE to provide data on all active
(inspected by definition) U.S.-flagged passenger vessels that carry
over 12 passengers on international voyages as defined by their
SOLAS certification and route type.
---------------------------------------------------------------------------

To determine the number of officers, ratings, and personnel
impacted by the passenger ship emergency familiarization requirements,
as well as the number of ratings qualified under Chapters II, III, and
VII of the STCW Convention subject to the crowd management training
requirements, the Coast Guard used additional data from the MISLE
database.\13\ The Coast Guard reviewed the certificate of inspection
for all 51 U.S.-flagged passenger ships in the affected ship population
and reviewed the manning requirements for each ship.\14\ Accordingly,
we determined that 1,230 personnel [(103 officers + 22 specified
ratings + 490 additional personnel) x 2 mariners per ship] will be
subject to the training requirements.\15\ Specifically, the passenger
ship emergency familiarization requirement will affect 1,230 personnel
(206 officers + 44 specified ratings + 980 personnel), and the expanded
applicability of crowd management training requirements will affect the
44 ratings. See table 4.
---------------------------------------------------------------------------

\13\ MISLE was accessed on October 22, 2024.
\14\ According to 46 U.S.C. Subtitle II, Part F: Manning of
Vessels, manning requirements refer to requirements generally for
the number of individuals required, qualifications and conditions of
employment, and duties; for masters and other licenses and
registered individuals; for pilots; for unlicensed personnel; for
small vessels; for tank vessels; and for pilotage on the Great
Lakes.
\15\ For each passenger ship, we assume two individuals to serve
in each billet, to account for the rotational nature of shipboard
employment.
[GRAPHIC] [TIFF OMITTED] TR25SE26.009

[[Page 60862]]

Additionally, we used historical ship population data from 2012 to
2023 to estimate growth rates within the industry, and subsequent
changes to the ship and mariner population into the future. After
examining the changes in ship population over time, we determined that
the population of U.S.-flagged passenger ships is facing a gradual
decline despite apparent growth in the foreign-flagged fleet. While
linear growth rates are typically preferred, we determined that a
linear decline that will eventually reach zero is an unrealistic
picture of the changing dynamics of the ship population. Instead, a
logarithmic decline that gradually levels off according to the formula
for the trend line y =-9.412ln(x) + 69.094 more accurately portrays the
industry because logarithmic functions are best used to project slow
rates of decline, and trend towards a number without reaching zero.
This rate of decline is reflected in Figure 1. However, for the
purposes of this analysis, we estimate that the U.S.-flagged ship
population will decrease by one ship each year, which is the closest
whole number to the average annual change in population over the next
10 years of analysis. Therefore, we estimate that the continuous
decrease in the affected mariner population is equivalent to the
manning requirements of a ship exiting service each year.
[GRAPHIC] [TIFF OMITTED] TR25SE26.010

Next, we reviewed the manning requirements for the 51 U.S.-flagged
passenger ships to derive the average manning requirement and thereby
estimate the decrease in mariners and personnel each year. The affected
population of 51 U.S.-flagged passenger ships is comprised of 3
categories of ships: 4 passenger vessels of 100 or more gross tons (46
CFR Subchapter H), 9 small passenger vessels of less than 100 gross
tons carrying more than 150 passengers or with overnight accommodations
for more than 49 passengers (46 CFR Subchapter K), and 38 small
passenger vessels of less than 100 gross tons (46 CFR Subchapter T).
The average crew size for each of the categories of vessels and the
entire population is displayed in Table 5.

[[Page 60863]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.011

Based on this data, the Coast Guard estimates that the average ship
in the population carries 13 mariners (2 officers, 1 specified rating,
and 10 personnel) and operates with 2 crews that will be subject to the
requirements. The Coast Guard assumes that, as ships subject to the
requirements exit the fleet, mariners will have less opportunity to
serve aboard these ships and leave the affected population. Because we
do not know which category of vessel may exit the affected population
in a given year, we elect to use the overall population average rather
than the specific estimates for the subcategories of ships to account
for mariner exit in the affected population. We believe that, since the
majority of the affected population is made up of smaller ships (38 of
the 51 affected ships), this overall average, which tends toward a
smaller ship, is most representative. Therefore, we estimate that each
exiting ship will result in 26 fewer personnel subject to the training
requirements (4 officers, 2 specified ratings, and 20 personnel across
2 crews).
---------------------------------------------------------------------------

\16\ These totals are calculated from the full affected
population of vessels. For example, 206 officers divided by 51 ships
leads to an average of 2 officers per ship.
---------------------------------------------------------------------------

Mariner Turnover
In any given year, there will be turnover in the mariner
population, and some credentialed mariners will choose to exit the
industry. The turnover rate is the number of mariners who leave the
industry and will need to be replaced by mariners with a Merchant
Mariner Credential (MMC). Because the Coast Guard does not issue
passenger ship endorsements, we cannot estimate the turnover rate from
existing data. Instead, the Coast Guard uses the turnover rate derived
for the ``Persons in Charge of Fuel Transfers'' final rule (PIC rule),
published on May 27, 2020 (85 FR 31677) as an approximation for the
turnover rate for this rule. In that rule, the Coast Guard estimated
that, in any given year, 32.55 percent of the population that was
eligible to renew a specific MMC endorsement would not do so.
The PIC rule used data from the National Maritime Center (NMC) for
individuals obtaining MMCs with issue dates from April 2009 to March
2020 and expiration dates from August 2009 to March 2025. In the data
from NMC, every MMC and every mariner has a unique identifying number,
such that sorting by mariner reference number shows all the MMCs for
that mariner. We then cleaned the data and applied a formula that marks
each MMC as either renewed, not renewed, or ineligible to renew. We
marked any MMC with an expiration date after July 18, 2019 (when we
downloaded the data) as ineligible to renew. Otherwise, we assumed an
MMC is renewed if the issue date is within 2,190 days of the previous
MMC's issue date. The period of 2,190 days is equivalent to 6 years (6
years x 365 days in a standard calendar year), which represents the
validity period of 5 years plus a year-long grace period wherein a
mariner cannot use the expiring MMC but could renew that MMC without
having to retake the required formal training from the beginning. If
there was no new MMC issued by March 2015, we assumed that the mariner
left the marine industry or otherwise no longer requires an MMC (turned
over) in 2015. We then tabulated how many MMCs in each calendar year
were eligible to renew, how many of those eligible were renewed, and
how many of those eligible were not renewed to produce a turnover
percentage as discussed. The PIC rule used a 3-year average of turnover
rates to arrive at the calculated turnover rate. This rate assumes that
any mariner lost to turnover in a given year is replaced by a mariner
with an original MMC, in order to maintain a stable population of
mariners able to serve the total population of vessels. We believe this
turnover rate is a good approximation for the turnover rate in our
population, because the MMC endorsement in the PIC rule has similar
requirements for qualification, including similar prerequisites such as
Basic and Advanced Firefighting training.
Therefore, in a similar manner, for this final rule, we assume that
any mariner lost to annual turnover will be replaced by a mariner with
the same credentials at this rate. This methodology ensures a stable
population of mariners able to serve the total population of active
ships. Because we state in part 12.905(d) that the standard of
competence in crowd management can be maintained through evidence of 1
year of sea service within the last 5 years, employing this turnover
rate allows us to capture the number of new ratings entering service
who will require crowd management training. This turnover rate is
applied only to ratings, because this group of mariners can be replaced
by those who have a newly issued original MMC, as noted

[[Page 60864]]

above, and will be required to complete this training.
Together, in subsequent years, we expect to see decreasing numbers
of mariners seeking to meet the requirements of this rule. Table 6
outlines the number of officers, ratings, and personnel we estimate
will be required to complete passenger ship emergency familiarization
and crowd management training over the next 10 years of analysis.
[GRAPHIC] [TIFF OMITTED] TR25SE26.012

Columns (a), (b), and (c) describe the decrease in overall mariner
population each year due to ships being retired from service, estimated
at approximately one ship per year. Column (d) provides a running total
of personnel who will be required to take passenger ship emergency
familiarization each year before assuming shipboard duties. Finally,
column (e) describes the total number of ratings who will seek crowd
management training due to turnover within the mariner population.
Since we assume that ratings are currently not in compliance with the
crowd management requirements of Section A-V/2 of the STCW Code, the
total is the full population of ratings in year 1, with only new
ratings completing training due to turnover in subsequent years.
---------------------------------------------------------------------------

\17\ Officers in population values are equal to the previous row
value minus 4 (2 officers each across 2 crews) as a result of 1
vessel exiting the industry each year.
\18\ Ratings in population values are equal to the previous row
value minus 2 (1 ratings each across 2 crews) as a result of 1
vessel exiting the industry each year.
\19\ Personnel in population values are equal to the previous
row value minus 20 (10 personnel each across 2 crews) as a result of
1 vessel exiting the industry each year.
\20\ Rounded to the nearest whole number. The first row in this
column is an exception and should not be calculated with the
provided formula because all ratings will need to seek crowd
management training in the first year of analysis.
---------------------------------------------------------------------------

Costs
The Coast Guard has considered the additional costs of the final
rule against the baseline. Specifically, we considered whether there
are compliance costs to operating companies and personnel aboard the
ships, as well as enforcement costs to the Federal government
associated with the final rule.
First, the final rule adds passenger ship emergency familiarization
requirements for officers, ratings, and personnel on passenger ships
making international voyages. These costs will be incurred by operating
companies in the ship population. Second, the final rule expands the
applicability of crowd management training by requiring ratings
qualified under Chapters II, III, and VII of the STCW Convention to
complete this training. Prior to this final rule, only officers and
personnel designated on the muster list to assist passengers in
emergency situations were required to complete this training. The Coast
Guard believes that there may be existing ratings qualified under
Chapters II, III, and VII of the STCW Convention with duties on the
muster list, which already requires them to complete crowd management
training. However, for the purposes of our analysis, due to a lack of
data, we assume that all qualified ratings in the affected population
will need to complete crowd management for the first time as a result
of this final rule.

[[Page 60865]]

While these changes to training requirements will create new costs
for operating companies and ratings qualified under Chapters II, III,
and VII of the STCW Convention, the Coast Guard does not anticipate
that this rulemaking will create added enforcement costs to the Federal
government. We estimate that Coast Guard inspectors currently need 5-10
minutes to verify training documents during a PSC inspection, and that
this final rule will not add to the time and resources expended under
the current requirements.
Passenger Ship Emergency Familiarization and Crowd Management Trainings
The final rule requires officers, ratings, and personnel to
complete the passenger ship emergency familiarization, and expands the
applicability of crowd management training to include ratings qualified
under Chapters II, III, and VII of the STCW Convention. Discussions
with subject matter experts (SMEs) from CG-MMC and personnel at local
Coast Guard inspections offices reveal that we are currently unable to
determine whether the U.S. passenger ship industry complies with the
training requirements of the STCW Convention because compliance has
been voluntary and not required to be recorded during an inspection.
Therefore, for the purposes of this analysis, we assume that everyone
in the affected population will need to comply with the passenger ship
emergency familiarization and crowd management training requirements.
The following section estimates the initial first-year compliance
costs and the future recurring compliance costs associated with this
final rule.
Cost of Passenger Ship Emergency Familiarization
Passenger ship emergency familiarization is conducted on board when
personnel report for duty and includes topics to familiarize personnel
with the general safety features aboard the ship, the location of
essential safety equipment, including life-saving appliances, the
importance of personal conduct during the implementation of emergency
plans, and restrictions on the use of elevators during emergencies.
Passenger ship emergency familiarization also includes the requirement
to communicate with passengers during an emergency, including the
ability to communicate in the working language of the ship, including
non-verbally communicating safety information, and understanding one of
the languages in which emergency announcements may be broadcast on the
ship during an emergency or drill. Because this training is ship-
specific and given before personnel are assigned to shipboard duties,
we assume that operating companies will incur the costs of these
required trainings. Costs are based on the opportunity cost of time of
personnel required to complete the training.
The Coast Guard assumes that a mariner serving at management level
aboard the ship gives the familiarization training to crewmembers.
According to 46 CFR 10.107, management level refers to the level of
responsibility associated with (1) serving as Master, Chief Mate, Chief
Engineer Officer or Second Engineer Officer onboard a seagoing ship;
and (2) ensuring that all functions within the designated area of
responsibility are properly performed. We believe mariners at this
level to be most qualified to provide this training, given that this
training is meant to be specific to the ship on which the mariners
serve.
Based on input from SMEs and Coast Guard inspectors from local
offices with oversight in the operating areas of the ships, the Coast
Guard estimates that this training requires 4 hours per individual. In
addition, we assume that it requires half this time, or 2 hours, for a
management level officer to prepare to deliver the training. We make
this assumption as management level officers are responsible for
shipboard management and familiar with the areas required to be
included in the passenger ship emergency familiarization training.
Included in this 2 hours is 0.083 hours (5 minutes) to document and
record training completion, consistent with other training
documentation estimates in the information collection request,
Standards of Training, Certification and Watchkeeping for Seafarers
(STCW), 1995, 1997 and 2010 Amendments to the International Convention
(OMB Control Number 1625-0079). Given the relatively small size of the
average ship in the affected population and the ship-specific knowledge
of the management level officers on board, we assume that 2 hours is
sufficient development, preparation, and documentation time for both
initial and subsequent training offerings.
To compute the opportunity cost of time of the affected population
to complete passenger ship emergency familiarization training, we use
the U.S. Bureau of Labor Statistics' (BLS) Occupational Employment
Statistics occupational series, ``53-5021 Captains, Mates, and Pilots
of Water Vessels,'' under North American Industry Classification System
(NAICS) 483100--Deep Sea, Coastal, and Great Lakes Water Transportation
to estimate the hourly mean wage rate for officers, which is $51.30 in
2023 dollars.\21\ Similarly, we use BLS occupational series, ``53-5011
Sailors and Marine Oilers,'' to estimate the mean wage rate for
ratings, which is $29.00 in 2023 dollars.\22\ Finally, we use ``53-6061
Passenger Attendants'' to estimate the mean wage rate for personnel,
which is $23.11 in 2023 dollars.\23\
---------------------------------------------------------------------------

\21\ <a href="https://www.bls.gov/oes/2023/may/oes535021.htm">https://www.bls.gov/oes/2023/may/oes535021.htm</a> (last
visited 07/14/2026).
\22\ <a href="https://www.bls.gov/oes/2023/may/oes535011.htm">https://www.bls.gov/oes/2023/may/oes535011.htm</a> (last
visited 07/14/2026).
\23\ <a href="https://www.bls.gov/oes/2023/may/oes536061.htm">https://www.bls.gov/oes/2023/may/oes536061.htm</a> (last
visited 07/14/2026).
---------------------------------------------------------------------------

Next, we apply a load factor to these wage rates to determine the
total compensation of officers, ratings, and personnel more accurately.
We calculate a load factor of 1.42 (1.4213 rounded down) from the BLS's
Employer Costs of Employee Compensation December 2023 release.\24\ We
then multiply the hourly wage rates by this load factor. Therefore, we
find the loaded hourly wage rate of an officer is $72.85 ($51.30 x
1.42), the loaded hourly wage rate of a rating is $41.18 ($29.00 x
1.42), and the loaded hourly wage rate of personnel is $32.82 ($23.11 x
1.42).
---------------------------------------------------------------------------

\24\ We obtained a total compensation estimate of $43.11 and the
wages and salaries estimate of $30.33 for private industry workers
for the transportation and material moving occupational group from
Table 4 of the Employer Costs for Employee Compensation--December
2023 release at <a href="https://www.bls.gov/news.release/archives/ecec_03132024.htm">https://www.bls.gov/news.release/archives/ecec_03132024.htm</a> (last visited 07/14/2026). This allowed us to
determine a load factor of 1.42 ($43.11 divided by$1.42) that we
could apply to the mean hourly wage rate to obtain an estimate for
total compensation for an officer and rating.
---------------------------------------------------------------------------

Because all personnel must receive this training each time they
report for duty, we assume that the training will be delivered to the
entire population of personnel each year. In addition, we assume that
this new training will be delivered at a quarterly frequency on
average, in line with other trainings required for mariners serving on
Subchapter K and T vessels according to 46 CFR 122.420 and 185.420,
respectively. This means that, in the first year, 206 officers, 44
specified ratings, and 980 personnel across 2 crews (assuming each crew
serves 6 months on average) will need to take this training twice, for
a total of 8 training hours per mariner. Additionally, 1 management
level officer will need to prepare to deliver the training and document
completion of the training for personnel aboard their ship twice for
each crew, meaning 102 officers (1 officer delivering the

[[Page 60866]]

training twice for each crew across 51 ships) will need to spend 4
hours preparing to deliver the training in the first year, 0.166 hours
(10 minutes) of which will be used to document training completion.
Therefore, in the first year of implementation, we estimate that
operating companies will incur costs of $421,584 in undiscounted 2023
dollars, rounded. This is the sum of 206 officers taking the training
twice, for a total of 8 hours, at a loaded wage rate of $72.85 (206 x 8
x $72.85 = $120,056.80), 44 specified ratings taking the training
twice, for a total of 8 hours, at a loaded wage rate of $41.18 (44 x 8
x $41.18 = $14,495.36), 980 personnel taking the training twice, for a
total of 8 hours, at a loaded wage rate of $32.82 (980 x 8 x $32.82 =
$257,308.80), and 102 officers preparing to deliver and document
completion of the training twice, for a total of 4 hours, at a loaded
wage rate of $72.85 (102 x 4 x $72.85 = $29,722.80).
Costs to the population of operating companies will decrease over
time as ships exit the industry at an estimated rate of one per year.
We estimate that the average ship in the population carries 13 mariners
(2 officers, 1 specified rating, and 10 personnel) and operates with 2
crews that will be subject to the requirements. We assume that, as
ships subject to the requirements exit the fleet, mariners serving on
those ships will also exit the affected population and will no longer
be subject to the training requirements. Therefore, we estimate that
each exiting ship will result in 26 fewer personnel subject to the
training requirements (4 officers, 2 specified ratings, and 20
personnel). This is reflected in the calculations. Over the 10 years of
analysis, we estimate that operating companies will incur average
annual costs of $379,253 and total costs of $3,792,528, in undiscounted
2023 dollars. Table 7 describes the cost impacts of the passenger ship
emergency familiarization requirements over the next 10 years of
analysis.
[GRAPHIC] [TIFF OMITTED] TR25SE26.013

[[Page 60867]]

Cost of the Crowd Management Trainings
The crowd management training requirement applies to the 44
specified ratings across 2 crews in the affected mariner population for
the first year of implementation. In subsequent years, only a fraction
of the mariner population will need to seek crowd management training,
due to a declining ship population and employee turnover.\26\ The cost
of attending a crowd management course includes tuition, travel
expenses, opportunity cost of time, and meal and incidental expenses
(M&IE), incurred by the affected ratings qualified under Chapters II,
III, and VII of the STCW Convention.
---------------------------------------------------------------------------

\26\ See table 4 for more specifics on the numbers of ratings
who will seek crowd management training over the next 10 years of
analysis.
---------------------------------------------------------------------------

(a) Tuition and Opportunity Cost of Attendance
As of November 2024, approximately 20 Coast Guard-approved training
providers offer crowd management training. Because crowd management is
an existing training requirement, we do not assume any new costs to
training providers to develop crowd management courses and obtain Coast
Guard approval of these courses. The websites of seven training centers
provide detailed information on the length and tuition for the course.
According to this data, the duration of a crowd management course
ranges from 4 to 8 hours to complete, for an average of 5.17 hours. As
a result, we estimate that ratings will take 1 day on average to
complete the course. Tuition ranges from $90 to $400, for an average
cost of $226. Table 8 provides an overview of the available crowd
management courses with associated costs and hours, while table 9
describes the estimated undiscounted cost for an individual rating to
take crowd management training.
---------------------------------------------------------------------------

\27\ All websites accessed July 14, 2026.
\28\ Not all training providers indicated the length of course
time on their websites. Those not providing the length of their
offered crowd management course are indicated with an N/A in the
Hours column.
[GRAPHIC] [TIFF OMITTED] TR25SE26.014

[[Page 60868]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.015

(b) Travel Distribution
To estimate the cost of travel and the opportunity cost of travel
time, we assume varying modes of travel for mariners getting to and
from approved training based on the distribution of travel modes,
derived in table 16 of CG-MMC Policy Letter 01-21: Guidelines for
Qualifying for STCW Endorsements for Basic and Advanced IGF Code
Operations cost analysis.\29\ We reflect the same percentages in this
final rule as in the policy letter by assuming that 20 percent will
drive to the training center and return the same day, 46 percent will
drive and stay 2 nights, and 34 percent will fly and stay 2 nights.\30\
The percentages used in CG-MMC Policy Letter 01-21 derived from the
distance required to travel to the nearest training provider for each
mariner based on the ZIP Code associated with their credential and the
ZIP Codes associated with the training provider locations. The policy
letter used a random sample of 100 mariners with STCW endorsements
involving the International Code of Safety for Ships Using Gases or
Other Low Flashpoint Fuels (IGF Code) travelling to training centers
offering relevant IGF Code training courses. In that analysis, we
determined that 20 mariners will commute to the nearest training
provider (or live less than 85.4 miles from a training provider), 46
will drive to the nearest training provider and lodge overnight (or
live between 85.4 miles and 583.5 miles from a training provider), and
34 will fly to the nearest training provider and lodge overnight (or
live greater than 583.5 miles from a training provider).
---------------------------------------------------------------------------

\29\ <a href="https://www.regulations.gov/document/USCG-2020-0181-0002">https://www.regulations.gov/document/USCG-2020-0181-0002</a>.
Similar methodology was also used in the Towing Vessel Firefighting
Training Appendix A, published on October 3, 2023 (88 FR 67966),
available at: <a href="https://www.regulations.gov/document/USCG-2020-0492-0013">https://www.regulations.gov/document/USCG-2020-0492-0013</a>.
\30\ Id.
---------------------------------------------------------------------------

Because there is no specific endorsement for the population of
mariners affected by this rule (mariners serving on small passenger
ships making international voyages), it is not possible to accurately
replicate this methodology in this analysis. Due to this lack of data,
we have determined to use the percentages as they appear in CG-MMC
Policy Letter 01-21. We acknowledge that this creates uncertainty
surrounding our cost estimates related to travel for this specific
population of mariners.
We use the same methodology from CG-MMC Policy Letter 01-21 to
estimate the thresholds and opportunity costs for travel among the
affected population. Using updated data, the Coast Guard estimates that
mariners who live or reside less than 93.9 miles from a training
provider will commute to the closest site without lodging or utilizing
overnight accommodations. We base this assumption on a report titled,
``Commuting in America (2): The National Report on Commuting Patterns
and Trends,'' from the American Association of State Highway and
Transportation Officials, which posits that Americans, on average, are
willing to spend up to a maximum of 90 minutes commuting to work each
way.\31\ This report, which used data from the American Community
Survey, illustrates that approximately 97.5 percent of American
commuters spent 90 minutes (1.5 hours) or less commuting to work.\32\
To convert 90 minutes into a distance, we calculate an average driving
speed using data from the Department of Transportation's (DOT's)
National Highway Traffic Safety Administration's report, ``National
Traffic Speeds Survey III: 2015.'' \33\ From this report, we take the
mean speed from the three road classes across the five time periods
provided. We obtain an average speed of 62.6 mph. We then multiply the
average speed of these three road classes by 1.5 hours (90 minutes) to
obtain our commuting distance threshold of 93.9 miles (62.6 mph x 1.5
hours).
---------------------------------------------------------------------------

\31\ The American Association of State Highway and
Transportation Officials conducted the report in 2013 and used
Census Bureau data in the report. Please see Figure 11-13 on page 16
to obtain the travel distribution time to work in minutes. Readers
can access the report at <a href="https://transportation.org/traveltrends/commuting-in-america/brief-13-11-commuting-departure-time-and-trip-time/">https://transportation.org/traveltrends/commuting-in-america/brief-13-11-commuting-departure-time-and-trip-time/</a> (last visited 07/14/2026).
\32\ The American Community Survey is an ongoing survey by the
U.S. Census Bureau. It regularly gathers information pertaining to
demographics and housing characteristics of U.S. households. More
information on this survey can be found at: <a href="https://www.census.gov/programs-surveys/acs/about.html">https://www.census.gov/programs-surveys/acs/about.html</a> (last visited 07/14/2026).
For information on ``mega-commuting'' refer to footnote 29 or
this brochure from the ACS: <a href="https://www.census.gov/content/dam/Census/library/working-papers/2013/demo/SEHSD-WP2013-03.pdf">https://www.census.gov/content/dam/Census/library/working-papers/2013/demo/SEHSD-WP2013-03.pdf</a> (last
visited 07/14/2026).
\33\ In order to convert this to distance, we take the mean
total of table 12's Speed by Road Type and Time of Day estimates
from 2015 to get at average road speed of 62.6 miles per hour. This
information can be found in table 12 using the ``Download Document''
link for Publication No. DOT HS 812 485 (March 2018) at this
website: <a href="https://rosap.ntl.bts.gov/view/dot/35961">https://rosap.ntl.bts.gov/view/dot/35961</a> (last visited 07/
14/2026).
---------------------------------------------------------------------------

The next threshold we estimated is the distance at which a mariner
chooses to drive to the training provider and lodge for the duration of
the training before returning to their place of residence. To determine
this distance, we establish a range by calculating the minimum and
maximum distances for this threshold. The minimum distance at which
mariners will drive and lodge during training must be equal to the
threshold established by those mariners commuting: 93.9 miles (188
miles round trip).
The National Household Travel Survey estimates that 94.3 percent of
Americans travel by personal vehicle when making round trips of less
than 500 miles.\34\ We use this distance of 500 miles as the lower
bound of our

[[Page 60869]]

maximum distance threshold. To estimate the upper bound of our maximum
distance threshold, we reference data from the Office of Airline
Information report, ``Average Length of Haul, Domestic Freight and
Passenger Modes (Miles),'' which calculated the average domestic
passenger flight length of 941 miles (1,882 miles round trip) in
2023.\35\ We use this average domestic passenger flight statistic
because it reflects a distance at which the average American prefers
flying over other modes of transportation when traveling from one
location to another.
---------------------------------------------------------------------------

\34\ The BTS conducted the National Household Travel Survey in
2001, and it was last updated in May of 2017. Please see table 4,
``Percent of Long-Distance Trips by Mode and Roundtrip Distance'' to
obtain the travel distance distribution of trips by miles and travel
mode. Readers can access the table at: <a href="https://rosap.ntl.bts.gov/view/dot/5475">https://rosap.ntl.bts.gov/view/dot/5475</a> (last visited 07/14/2026).
\35\ The Office of Airline Information at the BTS collects air
freight and domestic passenger summary data. This office divides
revenue passenger miles by revenue passenger enplanements to
calculate the average length of passenger trips. To find the average
length of a domestic flight, please see table 1-38, ``Average Length
of Haul, Domestic Freight and Passenger Modes (Miles)'' and refer to
cell AO:13. Readers can access the table at: <a href="https://www.bts.gov/content/average-length-haul-domestic-freight-and-passenger-modes-miles">https://www.bts.gov/content/average-length-haul-domestic-freight-and-passenger-modes-miles</a> (last visited 07/14/2026).
---------------------------------------------------------------------------

Additionally, to validate the value of a 1,882 miles round trip, we
reference the National Household Travel Survey data. A round-trip
distance of 1,882 miles is close to the 2,000 plus miles round-trip
distance category used by the National Household Travel Survey. For
trips of over 2,000 miles round trip, 22.2 percent of Americans will
travel by car and 74.8 percent will travel by flying. We then average
our lower and upper bounds for the maximum distance threshold to obtain
an average maximum distance of 1,191 miles [(500 miles + 1,882 miles) /
2], or 596 miles one-way.
Therefore, we determined that, beyond 596 miles between a mariner's
place of residence and the training provider they attended, mariners
will choose to fly and lodge instead of drive and lodge. Table 10
displays the distance thresholds for all three choices of
transportation.
[GRAPHIC] [TIFF OMITTED] TR25SE26.016

(c) Opportunity Cost of Travel Time for Mariners
After determining the travel mode thresholds, we then determined
the costs associated with each mode of travel. A mariner incurs an
opportunity cost during the time they spend traveling to the closest
training provider. To calculate these costs, we used the commuting
distances and times calculated in CG-MMC Policy Letter 01-21. The
policy letter calculated that the average commuter faces a 61.2-mile
round trip, and those driving and lodging face approximately a 498.8-
mile round trip.\36\
---------------------------------------------------------------------------

\36\ The calculations for average trip distances were obtained
from page 31 of the CG-MMC Policy Letter 01-21: Guidelines for
Qualifying for STCW Endorsements for Basic and Advanced IGF Code
Operations cost analysis. See <a href="https://www.regulations.gov/document/USCG-2020-0181-0002">https://www.regulations.gov/document/USCG-2020-0181-0002</a> (last visited 07/14/2026).
---------------------------------------------------------------------------

Next, we calculated the wages associated with the opportunity cost
of travel. To calculate these costs, we took the mean hourly loaded
wage rate for a rating taking a crowd management course, $41.18 and
multiplied it by the time required to travel to and from the closest
training provider. For mariners commuting, it will take an average
round-trip time of approximately 0.98 hours to commute to a training
provider [the average round-trip distance divided by the average mean
road class speed (61.2 miles round trip / 62.6 mph)]. Similarly, we
performed this calculation for those mariners driving and lodging to
get an average round-trip time of about 7.97 hours (498.8 / 62.6 mph).
However, mariners driving and lodging will be traveling only half the
round-trip distance, or 3.99 hours, twice (on the day of arrival and
the day of departure). Lastly, we estimated that it will take mariners
the equivalent of an entire workday (8 hours) to fly to a training
provider and fly back to their place of residence. This estimate
encompasses the time necessary to travel to and from the airport, to go
through security, wait for boarding, time on the tarmac, time in-
flight, and the time to go through baggage claim upon arrival.
For each travel mode, we multiplied the mean hourly loaded wage
rate by the average commuting time, and the days traveling and the
distribution of travel mode to arrive at the weighted opportunity cost
of travel for a mariner. Table 11 displays the opportunity cost of time
for each mode of transportation for an individual mariner.

[[Page 60870]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.017

(d) Fuel Costs
If a mariner chooses to commute or chooses to drive and lodge for
the duration of the training, they will incur the costs associated with
the use of their own personal vehicle to travel to and from the
training provider. The U.S. General Services Administration (GSA) sets
the mileage reimbursement rate for federal employees who use their
privately owned vehicle (POV) for official government travel and to
present this information in a single standard mileage rate. The GSA
also conducts reviews of travel costs on an annual basis to determine
the mileage reimbursement rate by factoring in the costs of the
following: the price of gasoline and oil, depreciation of the original
vehicle cost, the costs of maintenance and insurance, and state and
Federal taxes. The GSA approximates the POV mileage reimbursement rate
to be $0.66 per mile in 2023.\37\ To calculate the fuel costs for
mariners commuting and not lodging, we multiplied this reimbursement
rate by the number of days a mariner commutes by the average round-trip
distance calculated for commuting, 61.2 miles. We used this same method
when calculating the costs for mariners driving and lodging, with the
difference being that they spend the equivalent of 1 day when
completing their round-trip distance of 498.8 miles. Therefore, a
mariner will incur a fuel cost of about $40.39 ($0.66 x 61.2 miles x 1
day) when commuting and $329.21 ($0.66 x 498.8 miles x 1 day) when
driving to and lodging near a training provider.
---------------------------------------------------------------------------

\37\ The GSA mileage rate data is available at <a href="https://www.gsa.gov/travel/plan-book/transportation-airfare-rates-pov-rates/privately-owned-vehicle-pov-rates/pov-mileage-rates-archived">https://www.gsa.gov/travel/plan-book/transportation-airfare-rates-pov-rates/privately-owned-vehicle-pov-rates/pov-mileage-rates-archived</a> (last
visited 07/14/2026). We used the rate per mile rate of $0.66 for
January 1, 2023.
---------------------------------------------------------------------------

A mariner traveling by air will need to pay for round-trip airfare
and transport fare to and from the airport. Using data from the Bureau
of Transportation Statistics (BTS), we estimate the average unadjusted
round-trip airfare to be $382 in 2023.\38\ To calculate the cost of
transport, we referred to the costs of round-trip airport transfer in
the 2006 interim rule, Validation of Merchant Mariners' Vital
Information and Issuance of Coast Guard Merchant Mariner's Licenses and
Certificates of Registry, published January 13, 2006 (71 FR 2154), or
$50. We inflated this value using the 2023 4th Quarter and the 2006 4th
Quarter Gross Domestic Product implicit price deflator values of
123.241 and 84.770, respectively.\39\ After dividing the values, we
obtained a factor of approximately 1.454. We multiplied this value by
$50 to obtain a transfer cost of approximately $72.70, in 2023 dollars.
Table 12 presents the average fuel and transfer costs associated with
ratings completing a crowd management course.
---------------------------------------------------------------------------

\38\ To view the annual average price of a round-trip airfare
for 2023 in unadjusted dollars, visit the link at: https://
www.bts.gov/newsroom/2023-annual-average-domestic-air-fares-
decreases-
2022#:~:text=The%202023%20annual%20average%20domestic,adjusted%20annu
al%20fare%20of%20%24394.&text=Itinerary%20Fares%3A%20Round%2Dtrips%20
but,sample%20of%2010%25%20of%20tickets. (last visited 07/14/2026).
\39\ U.S. Bureau of Economic Analysis, Gross Domestic Product:
Implicit Price Deflator [GDPDEF], retrieved from FRED, Federal
Reserve Bank of St. Louis; <a href="https://fred.stlouisfed.org/series/GDPDEF">https://fred.stlouisfed.org/series/GDPDEF</a>
(last visited 07/14/2026).

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

[[Page 60871]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.018

(e) M&IE Rates and Lodging Costs
Mariners incur M&IE during training and travel days, and mariners
not commuting incur lodging expenses during training days. To estimate
these costs, we used the GSA 2023 general travel per diem rates of $59
for a full day and $44.25 for first and last day, calculated at 75
percent of the full day rate.\40\ We also used the general lodging
rates provided by GSA for 2023, and a calculated average lodging tax
rate for 2023 from the 2023 HVS Lodging Tax Report--USA,\41\ to arrive
at average lodging costs of $104.13 per night.\42\
---------------------------------------------------------------------------

\40\ GSA per diem rates can be found here: <a href="https://www.gsa.gov/about-us/newsroom/news-releases/fy-2023-conus-per-diem-rates-for-federal-travelers-released-08172022">https://www.gsa.gov/about-us/newsroom/news-releases/fy-2023-conus-per-diem-rates-for-federal-travelers-released-08172022</a> (last visited 07/14/2026). See
<a href="https://www.gsa.gov/travel/plan-and-book/per-diem-rates/faqs#15">https://www.gsa.gov/travel/plan-and-book/per-diem-rates/faqs#15</a>
(last visited 07/14/2026), reference FAQ #15, for information on
calculating first and last travel day M&IE per diem.
\41\ <a href="https://www.hvs.com/article/9749-2023-HVS-Lodging-Tax-Report-USA">https://www.hvs.com/article/9749-2023-HVS-Lodging-Tax-Report-USA</a> (last visited 07/14/2026).
\42\ The lodging cost includes lodging tax. According to the
GSA, the standard lodging rate for 2023 was $98. See <a href="https://www.gsa.gov/about-us/newsroom/news-releases/fy-2023-conus-per-diem-rates-for-federal-travelers-released-08172022">https://www.gsa.gov/about-us/newsroom/news-releases/fy-2023-conus-per-diem-rates-for-federal-travelers-released-08172022</a>. The average lodging
tax rate was 6.26%, which can be found here: <a href="https://www.hvs.com/article/9749-2023-HVS-Lodging-Tax-Report-USA">https://www.hvs.com/article/9749-2023-HVS-Lodging-Tax-Report-USA</a>. These websites were
accessed on July 14, 2026. Thus, lodging cost per night is estimated
to be $104.13 [($98 per night multiplied by 6.26% equals $6.13 tax)
plus $98].
---------------------------------------------------------------------------

We assumed that those who choose to drive or fly will spend 2
nights (arrival and training day) in a hotel, which costs $104.13 per
night, for a total of $208.26. Accordingly, personnel who commute to a
training center will incur $44.25 (consistent with the M&IE rate for
the first and last day of travel), while personnel who drive or fly
will spend about $147.50 ((2 days x $44.25) + (1 day x $59)) on meals
and incidentals. Table 13 presents the weighted average cost breakdown
by mode of transportation.
[GRAPHIC] [TIFF OMITTED] TR25SE26.019

[[Page 60872]]

(f) Documentation Costs Related to Crowd Management Training
It is the responsibility of the operating companies who are
obligated by STCW Convention Regulation I/14, ``Responsibilities of
Companies,'' to ensure that documentation relevant to personnel
training is maintained and readily accessible. According to the
information collection request, Standards of Training, Certification
and Watchkeeping for Seafarers (STCW), 1995, 1997 and 2010 Amendments
to the International Convention (OMB Control Number 1625-0079), it
currently takes a technical specialist 0.083 hours (5 minutes) to
record that personnel serving on passenger vessels are trained as
required by Regulation V/2 of the STCW Convention. Given that this
final rule expands the applicability of the crowd management training
to ratings qualified under Chapters II, III, and VII of the STCW
Convention, and that other STCW Convention and STCW Code trainings are
already required to be recorded, we assumed this documentation will not
create additional costs.
(g) Total Cost to Mariners Taking Crowd Management Training
We estimated the total undiscounted annual costs for mariners
required to take a crowd management course by adding the totals costs
in tables 8, 9, 11, 12, and 13 and then multiplying by the affected
population in table 6. We estimated the total undiscounted 10-year cost
to be $221,041, and the undiscounted average cost to be $22,104 in 2023
dollars. Table 14 describes the total undiscounted costs for mariners
taking a crowd management course over the next 10 years of analysis.
[GRAPHIC] [TIFF OMITTED] TR25SE26.020

Note: Totals may not sum due to rounding.
Likewise, table 15 describes the total cost to industry (operating
companies and ratings qualified under Chapters II, III, and VII of the
STCW Convention) of this final rule. Operating companies will incur the
costs of the passenger ship emergency familiarization, while the
ratings who will be required to take the crowd management course under
the expanded applicability will incur those related costs. The Coast
Guard estimates that the annualized total cost to industry over the
next 10 years of analysis will be $403,486, in 2023 dollars, when
discounted at 2 percent.

[[Page 60873]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.021

Note: Totals may not sum due to rounding.
Standards Incorporated by Reference (IBR)-Related Changes
IBR-related changes refer to the sections in 46 CFR parts 11 and 12
that will be revised to incorporate the STCW Consolidated Edition 2017,
comprised of the STCW Convention and the STCW Code. See Section IV,
Discussion of the Rule, in this preamble. In themselves, the IBR-
related changes do not impose any cost on the regulated industry. Table
3 describes each IBR-related change in the final rule and provides
explanations for the no-cost determinations.
Costs to Government
Coast Guard inspectors currently request mariner credentials and
training records related to the STCW Convention and the STCW Code but
are not tracking compliance with the requirements outlined in this
final rule, since compliance has been voluntary. We expect that Coast
Guard inspectors will verify compliance with the requirements in this
rule as a part of their routine review of credentials and training
records. Therefore, we do not anticipate this rulemaking to add to the
time and resources currently necessary to verify training certificates
as part of an inspection. Accordingly, the final rule has no new costs
to the Government.
Benefits
The Coast Guard received two public comments in which commenters
outlined benefits of the rule. The first commenter stated that the
training requirements ``are vital for enhancing safety and ensuring
crews are adequately prepared to handle emergencies at sea.'' The
second commenter described how passenger ships on international voyages
often carry large numbers of passengers who are not familiar with
maritime emergency procedures. With these trainings, personnel will be
better prepared and trained to assist passengers in the case of an
emergency. The second commenter also stated that as ships grow larger,
continue to adopt more complex systems, and cater to more diverse
groups of passengers, the expansion of crowd management training
applicability is important to ensure maritime personnel are able to
handle the unique challenges posed by modern passenger ships; this will
ultimately help increase safety and prevent accidents. As the second
commenter remarked, the rule ``reinforces a culture of safety within
the maritime industry. By prioritizing comprehensive training for all
personnel, the Coast Guard is setting a clear expectation that safety
is paramount,'' which benefits passengers and instills confidence in
personnel who will be better equipped to respond to emergencies.
In addition, the second commenter stated that the rule will bring
U.S. regulations into harmony with international standards, which is
critical for ensuring U.S. mariners are held to the same standards as
mariners serving on foreign-flagged ships. The second commenter states
this promotes uniformity in safety standards around the globe, which is
better for passengers and helps the U.S. maintain credibility when
promoting other international safety standards.
The Coast Guard agrees with the public commenters and anticipates
that this final rule will improve the safety of life at sea in the case
of an emergency by ensuring that ship personnel are familiar with
safety features, emergency equipment and procedures, basic
communication, and crowd management techniques. This is important so
that the ship's personnel are able to assist passengers, including
elderly and disabled individuals, during an emergency. The consequences
of the loss of a ship from the affected population are potentially
catastrophic.
While there are no examples of major accidents in the affected
population of U.S.-flagged ships, the Costa Concordia

[[Page 60874]]

disaster in the foreign fleet provides some insight into the how costly
improper emergency management can be. On January 13, 2012, the Costa
Concordia, an Italian passenger ship operating in the Mediterranean Sea
with 3,206 passengers and 1,023 crewmembers on board, struck a reef off
the Italian coastline. The incident resulted in the loss of 32 lives
(27 passengers and 5 crewmembers), injury to 157 others, and the total
loss of the ship. In the ensuing accident report,\43\ the Italian
Ministry of Infrastructures and Transports concluded that multiple
factors contributed to the injuries and loss of life. Some of these
factors included delayed management of the emergency response and
evacuation process, inconsistencies in assignment of duties,
communication issues due to the different backgrounds of passengers and
crewmembers, and passenger confusion over which personnel employed on
passenger vessels were trained to assist in an emergency.\44\ While
other factors certainly contributed to the loss of life and injury in
this maritime disaster, it is evident that clearly communicated
emergency procedures and experience with crowd management could have
aided both crew and passengers in responding to the emergency occurring
onboard their ship. Both U.S.-flagged ships and ships in the foreign-
flagged fleet (where U.S. passengers disproportionately travel) can
expose passengers and crew to greater risk of loss of life and injury.
---------------------------------------------------------------------------

\43\ The Ministry of Infrastructures and Transports, Marine
Casualties Investigative Body, Cruise Ship COSTA CONCORDIA, Marine
Casualty on January 13, 2012. This report is available at: <a href="https://www.transportes.gob.es/recursos_mfom/2012costaconcordia.pdf">https://www.transportes.gob.es/recursos_mfom/2012costaconcordia.pdf</a> (last
visited 7/15/2026).
\44\ Ibid at 159.
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While we have not conducted a risk analysis on the U.S.-flagged
ship population related to the training provisions in this final rule,
due to a lack of data, we can estimate the costs associated with loss
of life and ship in the population. We used data from the National
Vessel Documentation Center to estimate $809,500 as the median price of
a U.S.-flagged passenger ship.\45\ In addition, we reviewed the manning
requirements for all 51 ships in the ship population to derive the
average manning requirement and maximum number of passengers. Based on
this data, we estimated that the average ship in the population can
carry 13 mariners (2 officers, 1 specified rating, and 10 personnel)
and 114 total passengers at one time. In order to estimate the benefit
of preventing a fatality, we used the Value of a Statistical Life (VSL)
estimate of $13.2 million for analyses, using a base year of 2023.\46\
The VSL is defined as the additional cost that individuals would be
willing to bear for improvements in safety (that is, reductions in
risks) that, in the aggregate, reduce the expected number of fatalities
by one. This conventional terminology has often provoked
misunderstanding on the part of both the public and decision makers.
What is involved is not the valuation of life, as such, but the
valuation of reductions in risks. For example, a VSL of $13.2 million
does not mean that a specific human life is worth $13.2 million but is,
instead, meant to measure the willingness to pay for reductions in only
small risks of premature death (say, $132 for a risk of 1 in 100,000).
This approach to valuation of mortality risks is endorsed by OMB
Circular A-4, which provides guidance to Federal agencies on the
development of regulatory analysis.\47\
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\45\ The median price is used here due to significant outliers
on the upper bound of vessel valuations. The mean price is weighted
upward by the inclusion of 4 large ships with valuations of
$500,000,000, which is atypical for the relatively small-sized ships
in the population.
\46\ For more information on the VSL, see the DOT guidance
located at <a href="https://www.transportation.gov/office-policy/transportation-policy/revised-departmental-guidance-on-valuation-of-a-statistical-life-in-economic-analysis">https://www.transportation.gov/office-policy/transportation-policy/revised-departmental-guidance-on-valuation-of-a-statistical-life-in-economic-analysis</a> (last visited 07/14/2026).
\47\ <a href="https://www.whitehouse.gov/wp-content/uploads/2025/08/CircularA-4.pdf">https://www.whitehouse.gov/wp-content/uploads/2025/08/CircularA-4.pdf</a> (last visited 07/14/2026).
---------------------------------------------------------------------------

In the event of a total loss of ship and life due to lack of
emergency training and procedure, we estimated losses totaling $809,500
from loss of ships and nearly $1.7 billion from loss of life,\48\ per
ship lost.
---------------------------------------------------------------------------

\48\ Loss of life is calculated as $1,676,400,000 [($13.2
million multiplied by 127 people (13 crew members and 114 passengers
on average)], rounded.
---------------------------------------------------------------------------

Beyond the costs associated with a catastrophic loss, it should be
noted that the United States is required to implement amendments to the
STCW Convention and the STCW Code through national regulations. Failure
to meet our treaty obligation to fully implement the STCW Convention
could cause the United States to lose its status on the IMO White List.
The White List distinguishes administrations that are in full
compliance with the STCW Convention and the STCW Code. Loss of this
status could cause U.S. ships to be subject to more rigorous PSC
inspections in foreign ports, including possible detainment or denial
of entry, resulting in potential revenue losses. Additionally, U.S.
mariners could be ineligible to serve on foreign-flagged passenger
ships. Hence, by aligning national regulations with the STCW Convention
and the STCW Code, the final rule ensures that owners and operators of
U.S.-flagged ships, as well as U.S. mariners, are able to operate in
international markets.
Further, there is an additional benefit in the promotion of
international harmonization and reciprocity of maritime regulation.
This final rule advances Executive Order 13609, ``Promoting
International Cooperation,'' which targets international regulatory
cooperation to reduce, eliminate, or prevent unnecessary differences in
regulatory requirements. By promoting harmonization of international
maritime safety regulations, the United States ensures that our ships
comply with international standards and meet the regulations of foreign
countries while our ships are in their waters, while also promoting
higher baseline safety standards for foreign-flagged ships that often
carry U.S. passengers.
Alternatives Considered
This final rule codifies the STCW Convention and the STCW Code,
including amendments through 2016. As a signatory to the STCW
Convention, the United States must ensure compliance with its treaty
obligations through full implementation of amendments to the STCW
Convention and the STCW Code. The STCW Convention is not self-
implementing; therefore, the Coast Guard does not have discretion and
must issue regulations to implement these requirements. Failure to meet
the treaty obligations could cause the United States to lose status on
the IMO's ``White List,'' which distinguishes administrations that are
in full compliance with the STCW Convention and the STCW Code. Because
the Coast Guard must implement the training requirements outlined in
the 2016 amendments and does not implement any discretionary
requirements in this final rule, we did not examine any alternatives to
the rule.

B. Small Entities

Under the Regulatory Flexibility Act (RFA), 5 U.S.C. 601-612, we
considered the impact of this rule on small entities. The term ``small
entities'' comprises small businesses, not-for-profit organizations
that are independently owned and operated and are not dominant in their
fields, and governmental jurisdictions with populations of less than
50,000.
A Final Regulatory Flexibility Analysis discussing the impact of
this final rule on small entities addresses the following, as required
under section 603(b) of the RFA:
(1) A statement of the need for, and objectives of, the rule;

[[Page 60875]]

(2) A statement of the significant issues raised by the public
comments in response to the Initial Regulatory Flexibility Analysis
(IRFA) in the NPRM, a statement of the assessment of the agency of such
issues, and a statement of any changes made in the final rule as a
result of such comments;
(3) The response of the agency to any comments filed by the Chief
Counsel for Advocacy of the Small Business Administration in response
to the proposed rule, and a detailed statement of any change made to
the final rule as a result of the comments;
(4) A description of and an estimate of the number of small
entities to which the rule will apply or an explanation of why no such
estimate is available;
(5) A description of the projected reporting, recordkeeping, and
other compliance requirements of the rule, including an estimate of the
classes of small entities that will be subject to the requirement and
the type of professional skills necessary for preparation of the report
or record; and
(6) A description of the steps the agency has taken to minimize the
significant economic impact on small entities consistent with the
stated objectives of applicable statutes, including a statement of the
factual, policy, and legal reasons for selecting the alternative
adopted in the final rule and why each of the other significant
alternatives to the rule considered by the agency which affect the
impact on small entities was rejected.
1. A statement of the need for, and objectives of, the rule.
The growth of foreign-flagged passenger ships as a vacation
destination has resulted in the launching of consistently larger ships
and subsequent concerns over passenger safety. Passenger ship travel
requires passengers to feel assured of their safety, regardless of
where the ship originates or hails. Typically, passengers are only on
board these ships for a short time, and seldom have maritime
experience, so they rely on the ship's crew to assist them in emergency
situations. In emergency situations, it may be impossible for
passengers to identify which crewmembers are trained to assist them in
an emergency. Such situations pose risks to life, health, and safety,
as well as damage to property and the marine environment.
The IMO has worked to address these risks, leading to amendments in
2016 to the STCW Convention and the STCW Code to ensure that passenger
ship personnel are familiar with the safety features, emergency
equipment and procedures, basic communication, and crowd management
techniques in order to assist passengers, including elderly and
disabled individuals, during an emergency.
The United States is a signatory to the STCW Convention and must
ensure compliance with its treaty obligations through full
implementation of the STCW Convention and the STCW Code. The STCW
Convention is not self-implementing. The Coast Guard must issue
regulations to implement these requirements. The Coast Guard issued CG-
MMC Policy Letter 02-21 to advise owners and operators of U.S.
passenger ship operating companies of the requirements of the STCW
Convention and the STCW Code. However, if the Coast Guard does not
issue regulations to implement these requirements, they are not
enforceable, and there is a risk that U.S. ships could be denied entry
to or detained in foreign ports, that U.S. mariners could be ineligible
to serve on foreign-flagged ships, and that operating companies,
personnel, and, we believe, the passengers will be at higher risk for
loss of ship, serious injury, or loss of life as the result of an
emergency for which mariners and personnel were unprepared.
The objective of this final rule is to ensure the safety of
passengers on board U.S.-flagged passenger ships by ensuring all
shipboard personnel have completed training and are competent to assist
passengers in the event of an emergency. With this rulemaking, the
Coast Guard requires passenger ship emergency familiarization for all
shipboard personnel on U.S.-flagged passenger ships and expands the
applicability of the existing crowd management training requirement to
include ratings qualified under Chapters II, III, and VII of the STCW
Convention, which may prevent the loss of life at sea, reduce the risk
of injury, and increase protection of property and the marine
environment.
2. A statement of the significant issues raised by the public
comments in response to the IRFA, a statement of the assessment of the
agency of such issues, and a statement of any changes made in the final
rule as a result of such comments.
The Coast Guard received two public comments on the NPRM in support
of the rule. The Coast Guard did not receive any public comments
specifically addressing the IRFA, or any comments addressing costs
incurred by the regulated owners and operators of the affected U.S.-
flagged passenger ships. As a result, we have not adjusted the
requirements from the NPRM.
3. The response of the agency to any comments filed by the Chief
Counsel for Advocacy of the Small Business Administration (SBA) in
response to the proposed rule, and a detailed statement of any change
made to the final rule as a result of the comments.
The Chief Counsel for Advocacy of the SBA did not provide comment
on the NPRM or the IRFA.
4. A description of and an estimate of the number of small entities
to which the final rule will apply or an explanation of why no such
estimate is available.
As described in Section VI A, Regulatory Planning and Review, in
this document, there are two affected populations for the final rule:
(1) operating companies that will incur the costs of the required
passenger ship emergency familiarization, and (2) ratings qualified
under Chapters II, III, and VII of the STCW Convention who will need to
complete a crowd management course. Ratings qualified under Chapters
II, III, and VII of the STCW Convention are individuals and not
entities; as such, the second affected population does not contain any
small entities. We focus the attention of this analysis on the
operating companies of U.S.-flagged passenger ships.
Of the 51 ships in the affected ship population, there are 41
operating companies. Of these 41 operating companies:
1. 2 are governmental jurisdictions with populations over 50,000,
neither of which is classified as a small entity;
2. 1 is a non-profit organization, and is classified as a small
entity;
3. 38 are private companies, of which 5 are not classified as small
businesses, 22 are classified as small businesses, and 11 could not be
classified because information could not be found on those 11
businesses. For the purposes of this analysis, we classify those 11
businesses, where information could not be found, as small entities.
We researched the number of employees and revenue of these
companies using proprietary and public business databases. Then we
measured company size data using the SBA business size standards to
assess how many companies in this industry may be small entities. The
SBA provides business size standards for all NAICS sectors.\49\ Our
analysis of the available company information revealed 14 primary NAICS
codes. Table 16 displays

[[Page 60876]]

the NAICS codes of the small businesses found in our sample, with
applicable data.
---------------------------------------------------------------------------

\49\ <a href="https://www.sba.gov/sites/default/files/2023-06/Table%20of%20Size%20Standards_Effective%20March%2017%2C%202023%20%282%29.pdf">https://www.sba.gov/sites/default/files/2023-06/Table%20of%20Size%20Standards_Effective%20March%2017%2C%202023%20%282%29.pdf</a> (last visited 07/14/2026).
[GRAPHIC] [TIFF OMITTED] TR25SE26.022

Revenue Impacts of the Final Rule. To determine the impacts of the
final rule on small operating companies, we used information on revenue
or employee size as available on business directory websites.
As discussed in the ``Cost to Industry'' section of the RA, we
estimate that there is a population of 51 ships that will be subject to
this rule in the first year of implementation, with an estimated
population decline of 1 ship per year in subsequent years. There are 41
unique owners and operators of the affected ships employing 1,230
officers, ratings, and personnel subject to the passenger ship
emergency familiarization requirements, 34 of which are considered
small entities. The Coast Guard was able to find revenue data on 22 of
those 34 small entities, allowing us to analyze estimated impacts.
We estimate that 4 hours is the time needed for officers, ratings,
and personnel to complete the passenger ship emergency familiarization.
In addition, a management level officer will need approximately 2 hours
to prepare to deliver the passenger ship emergency familiarization
aboard each ship for each crew. We assume there are 2 crews per vessel
to account for the rotational nature of shipboard employment, and that
each crew (serving an average of 6 months on board each ship) will take
the training twice per year in line with other quarterly training
requirements as outlined in 46 CFR 185.420 and Sec. 122.420. Thus, we
multiply the estimated training and training preparation hours by 2 to
capture the quarterly frequency of training per year. The loaded hourly
wage rate of officers, ratings, and personnel are $72.85, $41.18, and
$32.82 respectively.
Because all officers, ratings, and additional personnel are
required to participate in emergency familiarization training, we
needed the number of officers, ratings, and personnel impacted by the
passenger ship emergency familiarization requirements. To determine
this, we reviewed the certificate of inspection for all 25 U.S.-flagged
passenger ships in the affected ship population owned by entities with
available revenue data and reviewed the manning requirements for each
ship. We then added the total officers, ratings, and additional
personnel for each ship owned by each entity and multiplied by

[[Page 60877]]

2 to account for both crews on each ship. After determining the total
affected personnel for each entity, we then calculated undiscounted
first-year costs (in 2023 dollars) for each impacted small entity in
the affected population with known revenue data [(number of officers
delivering training x 4 preparation hours x $72.85 hourly wage) +
(number of officers x 8 training hours x $72.85 hourly wage) + (number
of specified ratings x 8 training hours x $41.18 hourly wage) + (number
of additional personnel x 8 training hours x $32.82 hourly wage)]. We
then divided the calculated first-year cost by the small entity's
revenue to find the level of impact on the affected small entity. For
example, for owner or operator ``A'' in column 1, we estimate
undiscounted first-year costs of $13,179.68 [(8 officers x $72.85
officer wage x 8 training hours) + (0 ratings x $41.18 rating wage x 8
training hours) + (28 additional personnel x $32.82 personnel wage x 8
training hours) + (4 officers delivering training x $72.85 officer wage
x 4 training preparation hours)]. We then found the estimated level of
impact on owner or operator ``A'' of 1.48 percent by dividing the
calculated first-year cost by its revenue obtained from public business
databases ($13,179.68 / $891,000 = 1.48%). See Table 17 for the
calculations of first-year costs and impacts on small entities in the
affected population.
BILLING CODE 9110-04-P

[[Page 60878]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.023

BILLING CODE 9110-04-C
For this final rule, the Coast Guard considers an impact of greater
than 1 percent (.01) of a small entity's annual revenue to be a
significant impact. Table 18 shows the distribution of revenue impacts
on the small entities affected by this final rule. In addition to the
less than 1 percent threshold, which indicates no significant impact,
we also include the 1-to-3 percent threshold indicating significant
impact, and a greater than 3 percent threshold showing even greater
impacts on affected small entities. The Coast Guard estimates that 7
small entities, or 32 percent of the population with known revenue,
will incur significant impacts, with 4 of those small entities
incurring impacts greater than 3 percent of their annual revenue.
---------------------------------------------------------------------------

\50\ Small entity names are removed to protect personal
identifiable information.

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[[Page 60879]]

[GRAPHIC] [TIFF OMITTED] TR25SE26.024

5. A description of the projected reporting, recordkeeping, and
other compliance requirements of the rule, including an estimate of the
classes of small entities which will be subject to the requirements and
the type of professional skills necessary for preparation of the report
or record.
This final rule calls for a revised collection of information under
the Paperwork Reduction Act of 1995, 44 U.S.C. 3501-3520. This rule
revises the current information collection, Standards of Training,
Certification and Watchkeeping for Seafarers (STCW), 1995, 1997 and
2010 Amendments to the International Convention, OMB Control Number:
1625-0079.
Under the existing OMB Control Number 1625-0079, the Coast Guard
collects information from owners and operators of U.S.-flagged
passenger ships, and ratings and officers serving on these ships, as
well as from training centers. The final rule adds additional
collection of information requirements to this existing collection of
information in order to implement the STCW Convention and the STCW
Code. These additional collection of information requirements will: (1)
require the operating companies of U.S.-flagged passenger ships that
carry 12 passengers or more on international voyages to provide
documentary evidence that all personnel serving on these ships have
completed a passenger ship emergency familiarization, and (2) require
documentary evidence that required personnel have completed crowd
management training for ratings serving on U.S.-flagged passenger ships
that carry 12 passengers or more on international voyages.
The additional collection of information in the final rule will
ensure that mariners have completed training necessary to comply with
the STCW Convention and the STCW Code and adequately assist passengers
in the event of an emergency. The additional collection of information
is also needed to demonstrate to the IMO that the United States, as a
signatory to the STCW Convention, has met the obligation to implement
requirements through national regulations.
The additional collection of information in this final rule will
affect an estimated 34 small entities. These entities are owners and
operators of ships carrying 12 or more passengers on international
voyages who employ officers, ratings, and personnel required to
complete passenger ship emergency familiarization.
According to the current collection of information, a management
level officer spends about 5 minutes to document evidence of personnel
training on behalf of operating companies as a part of the 2 hours
estimated to prepare for training and document training completion.
Accordingly, we estimate that the passenger ship emergency
familiarization requirement of the final rule will increase the burden
hour of the existing collection of information by 17 hours (51 ships x
0.083 hours per response x 2 crews x 2 trainings per year = 16.9
hours).
In addition to the recordkeeping requirements of the final rule,
there are also new training requirements. First, the final rule expands
the applicability of crowd management training by requiring ratings
qualified under Chapters II, III, and VII of the STCW Convention to
complete this training. Prior to this final rule, only officers and
personnel designated on the muster list to assist passengers in
emergency situations were required to complete this training.
Second, the final rule creates a new requirement for all personnel
to complete passenger ship emergency familiarization appropriate to
their capacity, duties, and responsibilities during an emergency.
Personnel must complete the familiarization before being assigned to
shipboard duties. The passenger ship emergency familiarization
requirement applies to all personnel, including Masters, officers, and
ratings qualified under Chapters II, III, and VII of the STCW
Convention. This familiarization training does not require Coast Guard
approval. Mariners or ship operators must maintain documentation
verifying that personnel have completed the passenger ship emergency
familiarization. This training includes topics to familiarize personnel
with the general safety features aboard the ship, the location of
essential safety equipment, including life-saving appliances, the
importance of personal conduct during the implementation of emergency
plans, and restrictions on the use of elevators during emergencies.
Passenger ship emergency familiarization also includes the requirement
to communicate with passengers during an emergency, including the
ability to communicate in the working language of the ship, including
non-verbally communicating safety information, and understanding one of
the languages in which emergency announcements may be broadcast on the
ship during an emergency or drill.
6. A description of the steps the agency has taken to minimize the
significant economic impact on small entities consistent with the
stated objectives of applicable statutes, including a statement of the
factual, policy, and legal reasons for selecting the alternative
adopted in the final rule and why each of the other significant
alternatives to the rule considered by the agency which affect the
impact on small entities was rejected.
As a party to the STCW Convention, the United States is obligated
to implement all amendments into domestic law. The United States
proposed and supported these amendments, recognizing the enhanced
safety measure as desirable.
This final rule codifies the 2017 edition of the STCW Convention
and the STCW Code. As a signatory to the STCW Convention, the United
States must ensure compliance with its treaty obligations through full
implementation of amendments to the STCW Convention and the STCW Code.
The STCW Convention is not self-implementing; therefore, the Coast
Guard does not have discretion and must issue regulations to implement

[[Page 60880]]

these requirements. Failure to meet the treaty obligations could cause
the United States to lose status on the IMO's ``White List,'' which
distinguishes administrations that are in full compliance with the STCW
Convention and the STCW Code. Because the Coast Guard must implement
the training requirements outlined in the 2016 amendments and does not
implement any discretionary requirements in this final rule, we did not
examine any alternatives to the rule.

C. Assistance for Small Entities

Under section 213(a) of the Small Business Regulatory Enforcement
Fairness Act of 1996, Public Law 104-121, we want to assist small
entities in understanding this final rule so that they can better
evaluate its effects on them and participate in the rulemaking. If the
final rule affects your small business, organization, or governmental
jurisdiction and you have questions concerning its provisions or
options for compliance, please call or email the person in the FOR
FURTHER INFORMATION CONTACT section of this final rule. The Coast Guard
will not retaliate against small entities that question or complain
about this rule or any policy or action of the Coast Guard.
Small businesses may send comments on the actions of Federal
employees who enforce, or otherwise determine compliance with, Federal
regulations to the Small Business and Agriculture Regulatory
Enforcement Ombudsman and the Regional Small Business Regulatory
Fairness Boards. The Ombudsman evaluates these actions annually and
rates each agency's responsiveness to small business. If you wish to
comment on actions by employees of the Coast Guard, call 1-888-REG-FAIR
(1-888-734-3247).

D. Collection of Information

This final rule calls for a revision to an existing collection of
information under the Paperwork Reduction Act of 1995, 44 U.S.C. 3501-
3520. As defined in 5 CFR 1320.3(c), ``collection of information''
comprises reporting, recordkeeping, monitoring, posting, labeling, and
other similar actions. The title and description of the information
collections, a description of those who must collect the information,
and an estimate of the total annual burden follow. The estimate covers
the time for reviewing instructions, searching existing sources of
data, gathering and maintaining the data needed, and completing and
reviewing the collection.
Title: Standards of Training, Certification and Watchkeeping for
Seafarers (STCW) International Convention.
OMB Control Number: 1625-0079.
Summary of the Collection of Information: The STCW Convention
establishes minimum standards of training, certification and
watchkeeping for seafarers. The United States is a signatory to the
STCW convention, which defines standards of competence necessary to
ensure safety of life at sea and the marine environment and addresses
the responsibilities of signatories to ensure seafarers meet standards
of competence. The information collection requirements are necessary to
implement the STCW Convention.
Under the existing information collection, OMB Control Number 1625-
0079, the Coast Guard collects information from owners and operators of
U.S.-flagged passenger ships, and ratings and officers serving on these
ships, as well as training centers. The final rule adds additional
requirements to the existing collection of information in order to
implement the passenger ship training requirements of the STCW
Convention. These additional collection of information requirements
will: (1) require the owners and operators of U.S.-flagged passenger
ships that carry 12 passengers or more on international voyages to
provide documentary evidence that officers, ratings, and personnel
serving on these ships have completed passenger ship emergency
familiarization; (2) require owners and operators of U.S.-flagged
passenger ships that carry 12 passengers or more on international
voyages to provide documentary evidence that ratings qualified under
Chapters II, III, and VII of the STCW Convention have completed crowd
management training; and (3) require training providers to document
course completion or disenrollment for crowd management training.\51\
---------------------------------------------------------------------------

\51\ As of March 24, 2014, each school with an approved course
must keep records for at least 5 years after the end of each
student's completion or disenrollment from a course or program (46
CFR 10.403). Training providers are not expected to keep additional
records under this collection of information, only to continue to
keep the records already required.
---------------------------------------------------------------------------

Need for Information: The additional collection of information in
the final rule will ensure that: (1) passenger ship personnel are
trained to adequately assist passengers in the case of an emergency;
(2) mariners have proof of completion of training necessary for
compliance with the STCW Convention; and (3) the United States can
verify and demonstrate that it has in place national regulations which
implement the STCW Convention and the STCW Code, as is required of a
signatory to the convention.
Use of Information: The Coast Guard will use the additional
collection of information in the final rule to help to ensure
compliance with international requirements and to maintain acceptable
quality in activities associated with training and assessment of
merchant mariners.
Description of the Respondents: The respondents are owners and
operators of U.S.-flagged passenger ships that carry 12 passengers or
more on international voyages and training providers offering crowd
management courses.
Number of Respondents: The additional collection of information in
this final rule will affect an estimated 41 passenger ship operating
companies that carry 12 or more passengers on international voyages.
These companies will have to document completion of passenger ship
emergency familiarization for all personnel serving aboard their ships
and retain documentation of a crowd management course for the ratings
qualified under Chapters II, III, and VII of the STCW Convention
serving aboard their ships.
Frequency of Response: Operating companies of U.S.-flagged
passenger ships that carry 12 or more passengers on international
voyages will be required to submit the additional information when it
is requested during a PSC inspection. The required passenger ship
emergency familiarization and crowd management training records will be
recorded at completion, to be available upon request.
Burden of Response: According to the current collection of
information, a management level officer spends about 0.083 hours (5
minutes) to document evidence of mariners' training on behalf of a ship
owner or operator for each of the two crews, twice per year. These 5
minutes are accounted for in the estimate for emergency familiarization
training preparation and documentation. Accordingly, we estimate that
passenger ship emergency familiarization will increase the burden hour
of the existing collection of information by approximately 17 hours
annually (51 ships x 0.083 hours per response x 2 crews x 2 per year =
16.9 hours).
Also, according to the existing collection of information, a
technical specialist spends about 0.083 hours (5 minutes) to document
training records for personnel serving aboard passenger ships. Given
that this final rule expands the applicability of the crowd management
training to ratings qualified

[[Page 60881]]

under Chapters II, III, and VII of the STCW Convention as a subset of
the overall mariner population, and operating companies already record
STCW training completion for this population, this will not create an
increase in the amount of time required to document training records.
The existing collection of information for training providers shows
that an administrative specialist spends about 1 hour to document
course completion, including a student's performance. However, because
this action is taken once annually for each approved course, this will
not increase the estimated burden for training providers, although this
rule may minimally increase the number of students taking a crowd
management course.
Estimate of Total Annual Burden: The total estimated burden hours
for this final rule is approximately 17 hours for operating companies
of U.S.-flagged passenger ships that carry 12 or more passengers
providing documentary evidence of having completed passenger ship
emergency familiarization.
As required by 44 U.S.C. 3507(d), we will submit a copy of this
rule to OMB for its review of the collection of information.
You need not respond to a collection of information unless it
displays a currently valid control number from OMB. Before the Coast
Guard can enforce the collection of information requirements in this
final rule, OMB would need to approve the Coast Guard's request to
collect this information. We will publish a Federal Register notice
once OMB acts on our request.

E. Federalism

A rule has implications for federalism under Executive Order 13132
(Federalism) if it has a substantial direct effect on States, on the
relationship between the National Government and the States, or on the
distribution of power and responsibilities among the various levels of
government. We analyzed this final rule under Executive Order 13132 and
have determined that it is consistent with the fundamental federalism
principles and preemption requirements described in Executive Order
13132. Our analysis follows.
It is well settled that States may not regulate in categories
reserved for regulation by the Coast Guard. It is also well settled
that all the categories covered in 46 U.S.C. Chapters 71, 73, and 81
addressing personnel qualifications, and manning of ships, and any
other category in which Congress intended the Coast Guard to be the
sole source of a ship's obligations, are within the field foreclosed
from regulation by the States. See, e.g., United States v. Locke, 529
U.S. 89 (2000) (finding that the states are foreclosed from regulating
tanker ships) see also Ray v. Atlantic Richfield Co., 435 U.S. 151, 157
(1978) (state regulation is preempted where ``the scheme of federal
regulation may be so pervasive as to make reasonable the inference that
Congress left no room for the States to supplement it [or where] the
Act of Congress may touch a field in which the federal interest is so
dominant that the federal system will be assumed to preclude
enforcement of state laws on the same subject.'' (Citations omitted).
Therefore, because the States may not regulate within these categories,
this rule is consistent with the fundamental federalism principles and
preemption requirements described in Executive Order 13132.
While it is well settled that States may not regulate in categories
in which Congress intended the Coast Guard to be the sole source of a
ship's obligations, the Coast Guard recognizes the key role that State
and local governments may have in making regulatory determinations.
Additionally, for rules with federalism implications and preemptive
effect, Executive Order 13132 specifically directs agencies to consult
with State and local governments during the rulemaking process. If you
believe this final rule will have implications for federalism under
Executive Order 13132, please call or email the person listed in the
FOR FURTHER INFORMATION CONTACT section of this preamble.

F. Unfunded Mandates

The Unfunded Mandates Reform Act of 1995, 2 U.S.C. 1531-1538,
requires Federal agencies to assess the effects of their discretionary
regulatory actions. In particular, the Act addresses actions that may
result in the expenditure by a State, local, or tribal government, in
the aggregate, or by the private sector of $100 million (adjusted for
inflation) or more in any one year. Although this final rule will not
result in such an expenditure, we do discuss the potential effects of
this rule elsewhere in this preamble.

G. Taking of Private Property

This rule will not cause a taking of private property or otherwise
have taking implications under Executive Order 12630 (Governmental
Actions and Interference with Constitutionally Protected Property
Rights).

H. Civil Justice Reform

This rule meets applicable standards in sections 3(a) and 3(b)(2)
of Executive Order 12988, (Civil Justice Reform), to minimize
litigation, eliminate ambiguity, and reduce burden.

I. Protection of Children

We have analyzed this rule under Executive Order 13045 (Protection
of Children from Environmental Health Risks and Safety Risks). This
rule is not an economically significant rule and will not create an
environmental risk to health or risk to safety that might
disproportionately affect children.

J. Indian Tribal Governments

This final rule does not have tribal implications under Executive
Order 13175 (Consultation and Coordination with Indian Tribal
Governments), because it will not have a substantial direct effect on
one or more Indian tribes, on the relationship between the Federal
Government and Indian tribes, or on the distribution of power and
responsibilities between the Federal Government and Indian tribes.

K. Energy Effects

We have analyzed this final rule under Executive Order 13211
(Actions Concerning Regulations That Significantly Affect Energy
Supply, Distribution, or Use). We have determined that it is not a
``significant energy action'' under that order because it is not a
``significant regulatory action'' under Executive Order 12866 and is
not likely to have a significant adverse effect on the supply,
distribution, or use of energy.

L. Technical Standards

The National Technology Transfer and Advancement Act, codified as a
note to 15 U.S.C. 272, directs agencies to use voluntary consensus
standards in their regulatory activities unless the agency provides
Congress, through OMB, with an explanation of why using these standards
will be inconsistent with applicable law or otherwise impractical.
Voluntary consensus standards are technical standards (e.g.,
specifications of materials, performance, design, or operation; test
methods; sampling procedures; and related management systems practices)
that are developed or adopted by voluntary consensus standards bodies.
The standards applied in this rule originate from the STCW, an
international Convention developed and maintained by the IMO, an
intergovernmental body composed of sovereign member states. Because the
STCW is a mandatory Convention

[[Page 60882]]

obligation negotiated by governments rather than a technical standard
developed by a voluntary consensus standards body, it does not meet the
definition of a ``voluntary consensus standard'' under the National
Technology Transfer and Advancement Act. Therefore, this final rule
does not incorporate by reference voluntary consensus standards.

M. Environment

We have analyzed this final rule under Department of Homeland
Security Management Directive 023-01, Rev.1, associated implementing
instructions, and Environmental Planning COMDTINST 5090.1 (series),
which guide the Coast Guard in complying with the National
Environmental Policy Act of 1969 (42 U.S.C. 4321 et seq.), and have
made a determination that this action is one of a category of actions
that do not individually or cumulatively have a significant effect on
the human environment. A Record of Environmental Consideration
supporting this determination is available in the docket. For
instructions on locating the docket, see the ADDRESSES section of this
preamble. This final rule is categorically excluded under paragraphs
L54 and L56 of Appendix A, table 1 of DHS Instruction Manual 023-01,
Rev. 1. Paragraph L54 pertains to regulations that are editorial or
procedural and paragraph L56 pertains to regulations concerning the
training, qualifying, licensing, and disciplining of maritime
personnel. This final rule codifies STCW Convention and the STCW Code
concerning requirements for personnel serving on passenger ships on
international voyages with regard to passenger ship emergency
familiarization and crowd management training to promote the safety of
life at sea in the case of an emergency.

List of Subjects

46 CFR Part 11

Incorporation by reference, Penalties, Reporting and recordkeeping
requirements, Schools, Seamen,

46 CFR Part 12

Incorporation by reference, Penalties, Reporting and recordkeeping
requirements, Seamen.

For the reasons discussed in the preamble, the Coast Guard amends
46 CFR parts 11 and 12 as follows:

PART 11--REQUIREMENTS FOR OFFICER ENDORSEMENTS

0
1. The authority citation for part 11 is revised to read as follows:

Authority: 14 U.S.C. 502; 31 U.S.C. 9701; 46 U.S.C. 2101, 2103,
and 2110; 46 U.S.C. chapter 71; 46 U.S.C. chapter 89; 46 U.S.C.
7502, 7505, 7701, and 70105; E.O. 10173; DHS Delegation No. 00170.1,
Revision No. 01.4. Section 11.107 is also issued under the authority
of 44 U.S.C. 3507.

0
2. Revise Sec. 11.102 to read as follows:

Sec. 11.102 Incorporation by reference.

Certain material is incorporated by reference into this part with
the approval of the Director of the Federal Register under 5 U.S.C.
552(a) and 1 CFR part 51. All approved incorporation by reference (IBR)
material is available for inspection at the Coast Guard, Office of
Merchant Mariner Credentialing (CG-MMC) and at the National Archives
and Records Administration (NARA). Contact the Coast Guard, CG-MMC, at
U.S. Coast Guard, Stop 7509, 2703 Martin Luther King Jr. Avenue SE,
Washington, DC 20593-7509, email: <a href="/cdn-cgi/l/email-protection#24696967744b484d475d64515747430a494d48">[email&#160;protected]</a>. For information
on the availability of this material at NARA, visit <a href="http://www.archives.gov/federal-register/CFR/IBR-locations">www.archives.gov/federal-register/CFR/IBR-locations</a> or email <a href="/cdn-cgi/l/email-protection#bcdace92d5d2cfccd9dfc8d5d3d2fcd2ddcedd92dbd3ca">[email&#160;protected]</a>. The
material may be obtained from International Maritime Organization
(IMO), 4 Albert Embankment, London SE1 7SR, England, +44 (0)20 7735
7611, <a href="/cdn-cgi/l/email-protection#d5a6b4b9b0a695bcb8bafbbaa7b2">[email&#160;protected]</a>, <a href="http://www.imo.org">www.imo.org</a>.
(a) STCW Consolidated Edition 2017, copyright 2017, comprised of:
(1) STCW Convention (or STCW): The International Convention on
Standards of Training, Certification and Watchkeeping for Seafarers;
IBR approved for Sec. Sec. 11.201(h); 11.426(c); 11.427(f); 11.428(c);
11.429(d); 11.493(e); 11.495(e); 11.497(c); 11.553(d); 11.555(e);
11.1001(a); 11.1003(a); 11.1009(c); 11.1105(a).
(2) STCW Code: The Seafarers' Training, Certification and
Watchkeeping Code, (including Erratum April 2018 and Supplement
February 2019); IBR approved for Sec. Sec. 11.201(h); 11.301(a) and
(f); 11.302(a), (c), and (d); 11.303(a) through (d); 11.305(a), (c),
and (e); 11.307(a), (c), and (e); 11.309(a), (d,) and (e); 11.311(a),
(c), and (d); 11.313(a), (c), and (d); 11.315(a), (c), and (d);
11.317(a), (c), and (d); 11.319(a), (c), and (d); 11.321(a), (c), and
(d); 11.325(a), (c), and (d); 11.327(a), (c), and (d); 11.329(a), (d),
and (e); 11.331(a), (d), and (e); 11.333(a), (c), and (d); 11.335(a)
through (c); 11.604; 11.901(c); 11.1003(a); 11.1105(a).
(b) SOLAS: The International Convention for the Safety of Life at
Sea, 1974; IBR approved for Sec. 11.601.

Sec. 11.305 [Amended]

0
3. Amend Sec. 11.305 as follows:
0
a. In paragraph (a)(2), remove the text ``of this part''; and
0
b. In paragraph (e), footnote 2 to Table 1 to Sec. 11.305(e), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/2 of the STCW Code.''

Sec. 11.307 [Amended]

0
4. Amend Sec. 11.307 as follows:
0
a. In paragraph (a)(2), remove the text ``of this part''; and
0
b. In paragraph (e), footnote 2 to Table 1 to Sec. 11.307(e), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/2 of the STCW Code.''

Sec. 11.309 [Amended]

0
5. Amend Sec. 11.309 as follows:
0
a. In paragraph (e), footnote 2 to Table 1 to Sec. 11.309(e), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/1 of the STCW Code.''

Sec. 11.311 [Amended]

0
6. Amend Sec. 11.311 as follows:
0
a. In paragraph (a)(2), remove the text ``of this part''; and
0
b. In paragraph (d), footnote 2 to Table 1 to Sec. 11.311(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/2 of the STCW Code.''

Sec. 11.313 [Amended]

0
7. Amend Sec. 11.313 as follows:
0
a. In paragraph (a)(2), remove the text ``of this part''; and
0
b. In paragraph (d), footnote 2 to Table 1 to Sec. 11.313(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/2 of the STCW Code.''

Sec. 11.315 [Amended]

0
8. Amend Sec. 11.315 as follows:
0
a. In paragraph (a)(2), remove the text ``of this part''; and
0
b. In paragraph (d), footnote 2 to Table 1 to Sec. 11.315(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/2 of the STCW Code.''

Sec. 11.317 [Amended]

0
9. Amend Sec. 11.317 as follows:
0
a. In paragraph (d), footnote 2 to Table 1 to Sec. 11.317(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/3 of the STCW Code.''

[[Page 60883]]

Sec. 11.319 [Amended]

0
10. Amend Sec. 11.319 as follows:
0
a. In paragraph (d), footnote 2 to Table 1 to Sec. 11.319(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/1 of the STCW Code.''

Sec. 11.321 [Amended]

0
11. Amend Sec. 11.321 as follows:
0
a. In paragraph (d), footnote 2 to Table 1 to Sec. 11.321(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/3 of the STCW Code.''

Sec. 11.325 [Amended]

0
12. Amend Sec. 11.325 as follows:
0
a. In paragraph (d), footnote 2 to Table 1 to Sec. 11.325(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-III/2 of the STCW Code.''

Sec. 11.327 [Amended]

0
13. Amend Sec. 11.327 as follows:
0
a. In paragraph (d), footnote 2 to Table 1 to Sec. 11.327(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-III/2 of the STCW Code.''

0
14. Amend Sec. 11.329 as follows:
0
a. In paragraph (e), revise table 1 to Sec. 11.329 to read as follows:

Sec. 11.329 Requirements to qualify for an STCW endorsement as
Officer in Charge of an Engineering Watch (OICEW) in a manned
engineroom or designated duty engineer in a periodically unmanned
engineroom on vessels powered by main propulsion machinery of 750 kW/
1,000 HP propulsion power or more (operational level).

* * * * *
(e) * * *

Table 1 to Sec. 11.329(e)--STCW Endorsement as OICEW in a Manned Engine Room or Designated Duty Engineer in a
Periodically Unmanned Engine Room on Vessels Powered by Main Propulsion Machinery of 750 kW/1,000 HP Propulsion
Power or More
[Operational level]
----------------------------------------------------------------------------------------------------------------
Entry path from national Competence--STCW Table A- Training required by
endorsements Sea service \1\ III/1 \2\ this section \3\
----------------------------------------------------------------------------------------------------------------
Second Assistant Engineer any None................... Yes..................... Yes.
horsepower.
Third Assistant Engineer any None................... Yes..................... Yes.
horsepower.
Assistant Engineer--Limited......... None................... Yes..................... Yes.
Designated Duty Engineer of vessels 12 months.............. Yes..................... Yes.
of less than 4,000 HP/3,000 kW \4\.
Designated Duty Engineer--Unlimited, None................... Yes..................... Yes.
less than 500 GRT.
Assistant Engineer--MODU............ None................... Yes..................... Yes.
Assistant Engineer--OSV............. None................... Yes..................... Yes.
Designated Duty Engineer of vessels 24 months.............. Yes..................... Yes.
of less than 1,000 HP/750 kW HP \4\.
----------------------------------------------------------------------------------------------------------------
\1\ This column provides the minimum additional service required of the seafarer in order to meet the
requirements of this section.
\2\ Complete any items in paragraph (a)(3) of this section not previously satisfied in accordance with Section A-
III/1 of the STCW Code.
\3\ Complete any items in paragraph (a)(4) of this section not previously satisfied.
\4\ STCW certificate should be limited to vessels less than 500 GRT.

Sec. 11.331 [Amended]

0
15. Amend Sec. 11.331 as follows:
0
a. In paragraph (e), footnote 2 to Table 1 to Sec. 11.331(e), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-III/3 of the STCW Code.''

Sec. 11.333 [Amended]

0
16. Amend Sec. 11.333 as follows:
0
a. In paragraph (d), footnote 2 to Table 1 to Sec. 11.333(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-III/3 of the STCW Code.''

Sec. 11.493 [Amended]

0
17. In Sec. 11.493, amend paragraph (e) by removing the text ``STCW
Regulation'' and adding, in its place, the text ``STCW Convention
Regulation''.

Sec. 11.495 [Amended]

0
18. In Sec. 11.495, amend paragraph (e) by removing the text ``STCW
Regulation'' and adding, in its place, the text ``STCW Convention
Regulation''.

Sec. 11.497 [Amended]

0
19. In Sec. 11.497, amend paragraph (c) by removing the text ``STCW
Regulation'' and adding, in its place, the text ``STCW Convention
Regulation''.

Sec. 11.553 [Amended]

0
20. In Sec. 11.553, amend paragraph (d) by removing the text ``STCW
Regulation'' and adding, in its place, the text ``STCW Convention
Regulation''.

Sec. 11.555 [Amended]

0
21. In Sec. 11.555, amend paragraph (e) by removing the text ``STCW
Regulation'' and adding, in its place, the text ``STCW Convention
Regulation''.

Sec. 11.1001 [Amended]

0
22. In Sec. 11.1001, amend paragraph (a) by removing the text
``Regulation I/10 of the International Convention on Standards of
Training, Certification and Watchkeeping for Seafarers, 1978 as amended
(STCW)'' and adding, in its place, the text ``STCW Convention
Regulation I/10''.

Subpart K--Officers and Personnel on a Passenger Ship When on an
International Voyage

0
23. Revise Sec. 11.1105 to read as follows:

Sec. 11.1105 General requirements.

(a) To serve on a passenger ship on international voyages, before
being assigned shipboard duties, Masters, deck officers, Chief
Engineers, and engineer officers must meet the appropriate requirements
of the STCW Convention Regulation V/2 and of Section A-V/2 of the STCW
Code (both incorporated by reference, see Sec. 11.102) as follows:
(1) Officers and personnel must have completed passenger ship
emergency familiarization appropriate to their capacity, duties, and
responsibilities as specified in Section A-V/2 paragraph 1 of the STCW
Code.
(2) Officers and personnel providing direct service to passengers
in passenger spaces must have completed passenger ship safety training
specified in Section A-V/2 paragraph 2 of the STCW Code.
(3) Masters, officers, ratings qualified under Chapters II, III,
and VII of the STCW Convention, and personnel designated on muster
lists to assist passengers in emergency situations must have completed
approved or accepted training in passenger ship crowd management
specified in Section A-V/2 paragraph 3 of the STCW Code.

[[Page 60884]]

(4) Masters, Chief Engineer Officers, Chief Mates, Second Engineer
Officers, and any person designated on muster lists as having
responsibility for the safety of passengers in emergency situations
onboard passenger ships must have completed approved or accepted
training in crisis management and human behavior as specified in
Section A-V/2 paragraph 4 of the STCW Code.
(5) Masters, Chief Engineer Officers, Chief Mates, Second Engineer
Officers, and every person assigned immediate responsibility for
embarking and disembarking passengers, loading, discharging, or
securing cargo, or closing hull openings onboard ro-ro passenger ships
must have completed approved or accepted training in passenger safety,
cargo safety, and hull integrity as specified in Section A-V/2
paragraph 5 of the STCW Code.
(b) Personnel required to be trained in accordance with paragraph
(a) of this section must hold documentary evidence of successful
completion of training as proof of meeting these requirements.
(c) Personnel required to be trained in accordance with paragraph
(a)(3), (a)(4), or (a)(5) of this section must provide, at intervals
not exceeding 5 years, evidence of maintaining the standard of
competence.
(d) The Coast Guard will accept onboard training and experience,
through evidence of 1 year of relevant seagoing service within the last
5 years, as meeting the requirements of paragraph (c) of this section.
(e) Personnel serving onboard small passenger ships engaged in
domestic, near-coastal voyages, as defined in Sec. 10.107 of this
subchapter, are not subject to any obligation for the purpose of this
STCW requirement.

PART 12--REQUIREMENTS FOR RATING ENDORSEMENTS

0
24. The authority citation for part 12 is revised to read as follows:

Authority: 14 U.S.C. 502; 31 U.S.C. 9701; 46 U.S.C. 2101, 2103,
2110, 7301, 7302, 7303-7316, 7503, 7505, 7701, and 70105; DHS
Delegation No. 00170.1, Revision No. 01.4.

0
25. Revise Sec. 12.103 to read as follows:

Sec. 12.103 Incorporation by reference.

Certain material is incorporated by reference into this part with
the approval of the Director of the Federal Register under 5 U.S.C.
552(a) and 1 CFR part 51. All approved incorporation by reference (IBR)
material is available for inspection at the Coast Guard, Office of
Merchant Mariner Credentialing (CG-MMC) and at the National Archives
and Records Administration (NARA). Contact Coast Guard, CG-MMC, at U.S.
Coast Guard, Stop 7509, 2703 Martin Luther King Jr. Avenue SE,
Washington, DC 20593-7509, email: <a href="/cdn-cgi/l/email-protection#bcf1f1ffecd3d0d5dfc5fcc9cfdfdb92d1d5d0">[email&#160;protected]</a>. For information
on the availability of this material at NARA, visit <a href="http://www.archives.gov/federal-register/CFR/IBR-locations">www.archives.gov/federal-register/CFR/IBR-locations</a> or email <a href="/cdn-cgi/l/email-protection#b6d0c498dfd8c5c6d3d5c2dfd9d8f6d8d7c4d798d1d9c0">[email&#160;protected]</a>. The
material may be obtained from International Maritime Organization
(IMO), 4 Albert Embankment, London SE1 7SR, England; + 44(0)20 7735
7611; <a href="/cdn-cgi/l/email-protection#5023313c352310393d3f7e3f2237">[email&#160;protected]</a>; <a href="http://www.imo.org">www.imo.org</a>.
(a) STCW Consolidated Edition 2017, copyright 2017, comprised of:
(1) STCW Convention (or STCW): The International Convention on
Standards of Training, Certification and Watchkeeping for Seafarers,
IBR approved for Sec. Sec. 12.811(a); 12.905(a).
(2) STCW Code: The Seafarers' Training, Certification and
Watchkeeping Code, (including Erratum April 2018 and Supplement
February 2019); IBR approved for Sec. Sec. 12.601(b); 12.602(a), (c),
and (d); 12.603(a), (c), and (d); 12.605(a) through (c); 12.607(a) and
(c); 12.609(a) through (c); 12.611(a) through (c); 12.613(a) and (b);
12.615(a) and (b); 12.617(a) and (b); 12.619(a); 12.621(a); 12.623(b);
12.811(a); 12.905(a).
(b) [Reserved]

Sec. 12.603 [Amended]

0
26. Amend Sec. 12.603 as follows:
0
a. In paragraph (d), footnote 2 to Table 1 to Sec. 12.603(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/4 of the STCW Code.''; and
0
b. In paragraph (d), footnote 3 to Table 1 to Sec. 12.603(d), after
the text ``not previously satisfied,'' add the text ``in accordance
with Section A-II/5 of the STCW Code.''

Sec. 12.605 [Amended]

0
27. Amend Sec. 12.605 as follows:
0
a. In paragraph (a)(3), remove the text ``of this part''; and
0
b. In paragraph (c), footnote 2 to Table 1 to Sec. 12.605(c), after
the text ``not previously satisfied,'' add the text ``in accordance
with Table A-II/4 of the STCW Code.''

Sec. 12.607 [Amended]

0
28. In Sec. 12.607(a)(4), remove the text ``of this part''.

Sec. 12.609 [Amended]

0
29. Amend Sec. 12.609 as follows:
0
a. In paragraph (a)(3), remove the text ``of this part''; and
0
b. In paragraph (c), footnote 2 to Table 1 to Sec. 12.609(c), after
the text ``not previously satisfied,'' add the text ``in accordance
with Table A-III/4 of the STCW Code.''

Sec. 12.611 [Amended]

0
30. Amend Sec. 12.611 as follows:
0
a. In paragraph (a)(2)(iii), remove the text ``of this part''; and
0
b. In paragraph (c), footnote 2 to Table 1 to Sec. 12.611(c), after
the text ``not previously satisfied,'' add the text ``in accordance
with Table A-III/7 of the STCW Code.

0
31. Revise the heading to part 12, subpart I, to read as follows:

Subpart I-- Ratings and Personnel on a Passenger Ship When on an
International Voyage

Sec. 12.901 [Amended]

0
32. In Sec. 12.901, remove the word ``part'' and add, in its place,
the word ``subpart''.

0
33. Revise Sec. 12.905 to read as follows:

Sec. 12.905 General requirements.

(a) To serve on a passenger ship on an international voyage, before
being assigned shipboard duties, personnel must meet the appropriate
requirements in STCW Convention Regulation V/2 and Section A-V/2 of the
STCW Code (incorporated by reference, see Sec. 12.103) as follows:
(1) All personnel must have completed passenger ship emergency
familiarization appropriate to their capacity, duties, and
responsibilities as specified in Section A-V/2 paragraph 1 of the STCW
Code.
(2) Personnel providing direct service to passengers in passenger
spaces must have completed the passenger ship safety training specified
in Section A-V/2 paragraph 2 of the STCW Code.
(3) Ratings qualified under Chapters II, III, and VII of the STCW
Convention and personnel designated on the muster list to assist
passengers in emergency situations must have completed approved or
accepted training in passenger ship crowd management specified in
Section A-V/2 paragraph 3 of the STCW Code.
(4) Personnel designated on muster lists as having responsibility
for the safety of passengers in emergency situations onboard passenger
ships must have completed approved or accepted training in crisis
management and human behavior as specified in Section A-V/2 paragraph 4
of the STCW Code.
(5) Personnel assigned immediate responsibility for embarking and
disembarking passengers, loading, discharging, or securing cargo, or
closing hull openings onboard ro-ro passenger ships must have completed

[[Page 60885]]

approved or accepted training in passenger safety, cargo safety, and
hull integrity as specified in Section A-V/2 paragraph 5 of the STCW
Code.
(b) Personnel required to be trained in accordance with paragraph
(a) of this section must hold documentary evidence of successful
completion of training as proof of meeting these requirements.
(c) Personnel required to be trained in accordance with paragraph
(a)(3), (a)(4), or (a)(5) of this section must provide, at intervals
not exceeding 5 years, evidence of maintaining the standard of
competence.
(d) The Coast Guard will accept onboard training and experience,
through evidence of 1 year of relevant seagoing service within the last
5 years, as meeting the requirements of paragraph (c) of this section.
(e) Personnel serving onboard small passenger vessels engaged in
domestic, near-coastal voyages, as defined in Sec. 15.105(g)(1) of
this subchapter, are not subject to any obligation for the purpose of
this STCW requirement.

Dated: September 22, 2026.
R. C. Compher,
Rear Admiral, U. S. Coast Guard, Assistant Commandant for Prevention
Policy.
[FR Doc. 2026-19652 Filed 9-24-26; 8:45 am]
BILLING CODE 9110-04-P

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