Safety Zones; Tappan Zee Bridge Demolition, Hudson River; South Nyack and Tarrytown, NY, 6969-6972 [2019-03716]

Agencies

• Coast Guard
• DEPARTMENT OF HOMELAND SECURITY

[Federal Register Volume 84, Number 41 (Friday, March 1, 2019)]
[Rules and Regulations]
[Pages 6969-6972]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2019-03716]


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DEPARTMENT OF HOMELAND SECURITY

Coast Guard

33 CFR Part 165

[Docket Number USCG-2018-1059]
RIN 1625-AA00


Safety Zones; Tappan Zee Bridge Demolition, Hudson River; South 
Nyack and Tarrytown, NY

AGENCY: Coast Guard, DHS.

ACTION: Temporary final rule.

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SUMMARY: The Coast Guard is establishing two temporary safety zones for 
navigable waters within approximately a 2,500 foot radius of the center 
of the old Tappan Zee Bridge east cantilever span. The two safety zones 
are needed to protect personnel, vessels, and the marine environment 
from potential hazards created by dropping the east cantilever span by 
explosive charges into the Hudson River. Entry of vessels or persons 
into either of these two safety zones is prohibited unless specifically 
authorized by the Captain of the Port New York or a designated 
representative.

DATES: This rule is effective without actual notice from March 1, 2019 
through April 31, 2019. For the purposes of enforcement, actual notice 
will be used from January 12, 2019 through March 1, 2019.

ADDRESSES: To view documents mentioned in this preamble as being 
available in the docket, go to https://www.regulations.gov, type USCG-
2018-1059 in the ``SEARCH'' box and click ``SEARCH.'' Click on Open 
Docket Folder on the line associated with this rule.

FOR FURTHER INFORMATION CONTACT: If you have questions on this rule, 
call or email Mr. Jeff Yunker, Waterways Management Division, U.S. 
Coast Guard Sector New York, telephone (718) 354-4195, email 
Jeff.M.Yunker@uscg.mil.

SUPPLEMENTARY INFORMATION: 

I. Table of Abbreviations

CFR Code of Federal Regulations
COTP Captain of the Port New York and New Jersey
DBO USCG First District Bridge Office
DHS Department of Homeland Security
FR Federal Register
NPRM Notice of proposed rulemaking
NYSTA New York State Thruway Authority
RNA Regulated Navigation Area
Sec.  Section
TFR Temporary Final Rule
TIR Temporary Interim Rule
U.S.C. United States Code

II. Background Information and Regulatory History

    On September 26, 2013, the Coast Guard published a TIR establishing 
a RNA on the navigable waters of the Hudson River, NY, for the Tappan 
Zee Bridge replacement project (78 FR 59231). We received no comments 
on the September 26, 2013 TIR. No public meeting was requested, and no 
public meeting was held. Construction on the Tappan Zee Bridge 
replacement project began on October 1, 2013.
    On July 25, 2014, the Coast Guard published a change to the 
original TIR which established a new safety zone and expanded the RNA 
to create both an Eastern and Western RNA for the Tappan Zee Bridge 
replacement project on navigable waters of the Hudson River, NY (79 FR 
43250). We received two comments on the July 25, 2014, TIR. The first 
comment referenced an unrelated rulemaking effort to establish 
anchorage locations along the Hudson River. The second comment merely 
provided the environmental checklist for the TIR. No public meeting was 
requested, and no public meeting was held.
    On August 23, 2018 the NYSTA requested the RNAs and safety zone be 
extended until December 31, 2019, to complete all remaining contract 
operations in and over the Hudson River, including, but not limited to, 
steel erection, concrete bridge deck placements, installation of 
navigation lighting, and removal of the original Tappan Zee Bridge. On 
December 21, 2018, the Coast Guard published a change to the original 
TIR extending the RNAs and safety zone effective date to December 31, 
2019 (83 FR 65521).
    On November 9, 2018, the Coast Guard received the contractor's 
preliminary plan and procedures for explosives handling, and their east 
cantilever span salvage plan. The contractor has since deployed heavy 
lifting chains along the Hudson Riverbed beneath the east cantilever 
span, east of the Federal navigation channel. These heavy chains will 
be used to lift and remove the east cantilever span from the Hudson 
Riverbed after it has been felled from the existing bridge structure by 
explosive charges. The Hudson River will be closed to all vessels 
within approximately a 2,500 foot radius of the center of the east 
cantilever span, unless authorized by the COTP or his designated 
representative during these operations. These two safety zones will 
provide this 2,500 foot restricted area that is not currently within 
the boundaries of the existing eastern RNA codified at 33 CFR 165.T01-
0174.
    The Coast Guard is issuing this temporary rule without prior notice 
and opportunity to comment pursuant to authority under section 4(a) of 
the Administrative Procedure Act (APA) (5 U.S.C. 553(b)). This 
provision authorizes an agency to issue a rule without prior notice and 
opportunity to comment when the agency for good cause finds that those 
procedures are ``impracticable, unnecessary, or contrary to the public 
interest.'' Under 5 U.S.C. 553(b)(B), the Coast Guard finds that good 
cause exists for not publishing an NPRM with respect to this rule 
because the plans for using explosive charges to drop the east 
cantilever span into the Hudson River was only recently finalized and 
provided to the Coast Guard, which did not give the Coast Guard enough 
time to publish an NPRM, take public comments, and issue a final rule 
before demolition commences. Timely action is needed to respond to the 
potential safety hazards associated with this demolition project. It 
would be impracticable and contrary to the public interest to publish 
an NPRM because we must establish these two safety zones prior to 
demolition on January 12, 2019, to protect the safety of the waterway 
users, construction crew, and other personnel associated with the 
bridge project. A delay of the demolition to accommodate a full notice 
and comment period would delay necessary operations, result in 
increased costs, and delay the completion date of the bridge project 
and subsequent reopening of the Hudson River for normal operations. 
Under 5 U.S.C. 553(d)(3), the Coast Guard finds that good cause exists 
for making this rule effective less than 30 days after publication in 
the Federal Register. Delaying the effective date of this rule would be 
impracticable because immediate action is needed to respond to the 
potential safety hazards associated with the use of explosives to drop 
the east cantilever span of the old Tappan Zee Bridge to the Hudson 
Riverbed and subsequent removal of the

[[Page 6970]]

east cantilever span from the Hudson River.

III. Legal Authority and Need for Rule

    The Coast Guard is issuing this rule under authority in 33 U.S.C. 
1231. The COTP has determined that potential hazards associated with 
the use of explosives to drop the east cantilever span of the old 
Tappan Zee Bridge to the Hudson Riverbed, tentatively scheduled no 
earlier than Saturday, January 12, 2019, will be a safety concern for 
anyone within a 2,500-foot radius of the center of the east cantilever 
span of the old Tappan Zee Bridge. This rule is needed to protect 
personnel, vessels, and the marine environment in the navigable waters 
within the two safety zones during the dropping of the east cantilever 
span of the old Tappan Zee Bridge.

IV. Discussion of the Rule

    This rule establishes two safety zones, a North Safety Zone and a 
South Safety Zone, from 7:00 a.m. on January 12, 2019 through 11:59 
p.m. on April 31, 2019. This rule is tentatively scheduled to be 
enforced from 7:00 a.m. until 10:00 a.m. on January 12, 2019. The two 
safety zones cover all navigable waters of the Hudson River within 
approximately a 2,500 foot radius of the center of the old Tappan Zee 
Bridge east cantilever span in approximate position 41[deg]04'12.3'' N, 
073[deg]52'40.1'' W (NAD 83). The two safety zones are immediately 
adjacent, north and south, of the existing eastern RNA, and immediately 
adjacent, east, of the existing safety zone, codified at 33 CFR 
165.T01-0174.
    The North Safety Zone includes all waters of the Hudson River north 
of the old Tappan Zee Bridge, and east of the existing construction 
safety zone, from surface to bottom, bound by the following approximate 
positions: 41[deg]04'21.96'' N, 073[deg]52'03.25'' W, thence to 
41[deg]04'26.27'' N, 073[deg]52'19.82'' W, thence to 41[deg]04'26.53'' 
N, 073[deg]53'20.07'' W, thence to 41[deg]04'37.50'' N, 
073[deg]53'20.59'' W, thence to 41[deg]04'37.50'' N, 073[deg]52'21.65'' 
W, thence to the point of origin (NAD 83).
    The South Safety Zone includes all waters of the Hudson River south 
of the old Tappan Zee Bridge, and east of the existing construction 
safety zone, from surface to bottom, bound by the following approximate 
positions: 41[deg]03'46.91'' N, 073[deg]52'05.89'' W, thence to 
41[deg]03'56.69'' N, 073[deg]52'24.75'' W, thence to 41[deg]03'56.92'' 
N, 073[deg]53'18.84'' W, thence to 41[deg]03'46.92'' N, 
073[deg]53'18.42'' W, thence to the point of origin (NAD 83).
BILLING CODE 9110-04-P
[GRAPHIC] [TIFF OMITTED] TR01MR19.002

BILLING CODE 9110-04-C
    The Coast Guard is publishing this rulemaking to be effective, and 
enforceable, through April 31, 2019 in case the project is delayed due 
to construction delays or unforeseen circumstances.
    The duration of the two safety zones are intended to protect 
personnel, vessels, and the marine environment in these navigable 
waters during the use of explosives to drop the east cantilever span of 
the old Tappan Zee Bridge to the Hudson Riverbed. No vessel or person 
will be permitted to enter the two safety zones without obtaining 
permission from the COTP or a designated representative.
    The Coast Guard will notify the public and local mariners of these 
two safety zones through the Local Notice to Mariners and/or Broadcast 
Notice to Mariners via VHF-FM marine channel 16 in advance of any 
scheduled enforcement period.

[[Page 6971]]

V. Regulatory Analyses

    We developed this rule after considering numerous statutes and 
Executive orders related to rulemaking. Below we summarize our analyses 
based on a number of these statutes and Executive orders, and we 
discuss First Amendment rights of protestors.

A. Regulatory Planning and Review

    Executive Orders 12866 and 13563 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 13771 directs agencies to control 
regulatory costs through a budgeting process. This rule has not been 
designated a ``significant regulatory action,'' under Executive Order 
12866. Accordingly, this rule has not been reviewed by the Office of 
Management and Budget (OMB), and pursuant to OMB guidance it is exempt 
from the requirements of Executive Order 13771.
    This regulatory action determination is based on the following 
reasons: (1) The two safety zones only impact a small designated area 
of the Hudson River, (2) the two safety zones will only be enforced 
during the demolition and cleanup of the east cantilever span of the 
old Tappan Zee Bridge to the Hudson Riverbed, (3) vessels not 
constrained by their draft or length may still transit from the north, 
to, and from, the marina located in Tarrytown, NY on the east shore of 
the Hudson River, (4) the demolition operations are scheduled in the 
Winter when recreational vessel traffic is less frequent.

B. Impact on Small Entities

    The Regulatory Flexibility Act of 1980, 5 U.S.C. 601-612, as 
amended, requires Federal agencies to consider the potential impact of 
regulations on small entities during rulemaking. 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. The Coast Guard certifies under 5 U.S.C. 605(b) that this rule 
will not have a significant economic impact on a substantial number of 
small entities.
    While some owners or operators of vessels intending to transit the 
two safety zones may be small entities, for the reasons stated in 
section V.A above, this rule will not have a significant economic 
impact on any vessel owner or operator.
    Under section 213(a) of the Small Business Regulatory Enforcement 
Fairness Act of 1996 (Pub. L. 104-121), we want to assist small 
entities in understanding this rule. If the rule would affect your 
small business, organization, or governmental jurisdiction and you have 
questions concerning its provisions or options for compliance, please 
contact the person listed in the FOR FURTHER INFORMATION CONTACT 
section.
    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). 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.

C. Collection of Information

    This rule will not call for a new collection of information under 
the Paperwork Reduction Act of 1995 (44 U.S.C. 3501-3520).

D. Federalism and Indian Tribal Governments

    A rule has implications for federalism under Executive Order 13132, 
Federalism, if it has a substantial direct effect on the 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 have analyzed this rule under that Order and have 
determined that it is consistent with the fundamental federalism 
principles and preemption requirements described in Executive Order 
13132.
    Also, this rule does not have tribal implications under Executive 
Order 13175, Consultation and Coordination with Indian Tribal 
Governments, because it does 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. If 
you believe this rule has implications for federalism or Indian tribes, 
please contact the person listed in the FOR FURTHER INFORMATION CONTACT 
section above.

E. Unfunded Mandates Reform Act

    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 $100,000,000 (adjusted for 
inflation) or more in any one year. Though this rule will not result in 
such an expenditure, we do discuss the effects of this rule elsewhere 
in this preamble.

F. Environment

    We have analyzed this rule under Department of Homeland Security 
Directive 023-01 and Commandant Instruction M16475.1D, which guide the 
Coast Guard in complying with the National Environmental Policy Act of 
1969 (42 U.S.C. 4321-4370f), and have determined that this action is 
one of a category of actions that do not individually or cumulatively 
have a significant effect on the human environment. This rule involves 
two safety zones during demolition and cleanup operations that will 
prohibit entry within a 2,500 foot radius of the center of the old 
Tappan Zee Bridge east cantilever span during the use of explosives to 
drop the east cantilever span of the old Tappan Zee Bridge to the 
Hudson Riverbed. It is categorically excluded from further review under 
paragraph L60(a) of Appendix A, Table 1 of DHS Instruction Manual 023-
01-001-01, Rev. 01. A Record of Environmental Consideration supporting 
this determination is available in the docket where indicated under 
ADDRESSES.

G. Protest Activities

    The Coast Guard respects the First Amendment rights of protesters. 
Protesters are asked to contact the person listed in the FOR FURTHER 
INFORMATION CONTACT section to coordinate protest activities so that 
your message can be received without jeopardizing the safety or 
security of people, places or vessels.

List of Subjects in 33 CFR Part 165

    Harbors, Marine safety, Navigation (water), Reporting and 
recordkeeping requirements, Security measures, Waterways.

    For the reasons discussed in the preamble, the Coast Guard amends 
33 CFR part 165 as follows:

[[Page 6972]]

PART 165--REGULATED NAVIGATION AREAS AND LIMITED ACCESS AREAS

0
1. The authority citation for part 165 continues to read as follows:

    Authority:  33 U.S.C. 1231; 50 U.S.C. 191; 33 CFR 1.05-1, 6.04-
1, 6.04-6, and 160.5; Department of Homeland Security Delegation No. 
0170.1.


0
2. Add Sec.  165.T01-1059 to read as follows:


Sec.  165.T01-1059  Safety Zones, Tappan Zee Bridge Demolition, Hudson 
River; South Nyack and Tarrytown, NY.

    (a) North safety zone boundaries. The following is a safety zone: 
All waters of the Hudson River north of the old Tappan Zee Bridge, and 
east of the existing construction safety zone, from surface to bottom, 
bound by the following approximate positions: 41[deg]04'21.96'' N, 
073[deg]52'03.25'' W, thence to 41[deg]04'26.27'' N, 073[deg]52'19.82'' 
W, thence to 41[deg]04'26.53'' N, 073[deg]53'20.07'' W, thence to 
41[deg]04'37.50'' N, 073[deg]53'20.59'' W, thence to 41[deg]04'37.50'' 
N, 073[deg]52'21.65'' W, thence to the point of origin (NAD 83).
    (b) South safety zone boundaries. The following is a safety zone: 
All waters of the Hudson River south of the old Tappan Zee Bridge, and 
east of the existing construction safety zone, from surface to bottom, 
bound by the following approximate positions: 41[deg]03'46.91'' N, 
073[deg]52'05.89'' W, thence to 41[deg]03'56.69'' N, 073[deg]52'24.75'' 
W, thence to 41[deg]03'56.92'' N, 073[deg]53'18.84'' W, thence to 
41[deg]03'46.92'' N, 073[deg]53'18.42'' W, thence to the point of 
origin (NAD 83).
    (c) Definitions. The following definitions apply to this section:
    Designated representative means any Coast Guard commissioned, 
warrant, petty officer, or designated Patrol Commander of the U.S. 
Coast Guard who has been designated by the Captain of the Port, Sector 
New York (COTP), to act on his or her behalf. The designated 
representative may be on an official patrol vessel or may be on shore 
and will communicate with vessels via VHF-FM radio or loudhailer. In 
addition, members of the Coast Guard Auxiliary may be present to inform 
vessel operators of this regulation.
    Official patrol vessels means any Coast Guard, Coast Guard 
Auxiliary, state, or local law enforcement vessels assigned or approved 
by the COTP.
    (d) Regulations. When these two safety zones are enforced, the 
following regulations, along with those contained in Sec.  165.23 
apply:
    (1) During periods of enforcement no person or vessel may enter or 
remain in either of the two safety zones described in paragraphs (a) 
and (b) of this section unless authorized by the COTP or the COTP's 
designated representative.
    (2) Persons and vessels may request permission to enter the zone on 
VHF-16.
    (3) Any vessels permitted to enter these zones must comply with all 
orders and directions from the COTP or the COTP's designated 
representative.
    (4) Upon being hailed by a Coast Guard vessel by siren, radio, 
flashing light or other means, the operator of the vessel must proceed 
as directed.
    (5) Notwithstanding anything contained in this section, the Rules 
of the Road in 33 CFR subchapter E, part 84, are still in effect and 
must be strictly adhered to at all times.
    (d) Enforcement periods. This regulation is enforceable 24 hours a 
day from 7:00 a.m. on January 12, 2019 until 11:59 p.m. on April 31, 
2019, but will only be enforced during the use of explosives to drop 
the east cantilever span of the old Tappan Zee Bridge to the Hudson 
Riverbed. The demolition operations that will require enforcement of 
the two safety zone regulations are tentatively scheduled to take place 
on January 12, 2019, from approximately 7:00 a.m. until 10:00 a.m., 
unless delayed. The COTP will provide notice of the channel closure by 
appropriate means to the affected segments of the public. Such means of 
notification may include, but are not limited to, Broadcast Notice to 
Mariners and/or Local Notice to Mariners.
    (1) If enforcement is suspended, the COTP will provide a notice of 
the suspension of enforcement by appropriate means. Such means of 
notification may include, but are not limited to, Broadcast Notice to 
Mariners and/or Local Notice to Mariners.
    (2) Violations of this regulation may be reported to the COTP at 
(718) 354-4353 or on VHF-Channel 16.

    Dated: January 3, 2019.
J.P. Tama,
Captain, U.S. Coast Guard, Captain of the Port New York.
[FR Doc. 2019-03716 Filed 2-28-19; 8:45 am]
 BILLING CODE 9110-04-P