:
.(
Uni t ed
States
General
Accounti n g
Offi c e
Washi n gton,
D.C. 20648
GAO
Nati o nal
Internati o nal
Securi t y
/5x37
and
Affai r s
Di v i s i o n
B-257234
June
6,1994
The Honorabl e
Admi n i s trator
U.S. Mari t i m e
A. J. Herberger
Admi n i s trati o n
Dear Admi r al
Herberger:
To assi s t your agency
i n i t s pl e dge
to host the next forum on mari t i m e
crewi n g
i s sues, we are provi d i n g
thi s summary
of the vi e ws expressed
at
the GAO-sponsored
Ready Reserve Force (RRF) crewi n g
workshop
hel d
on
Apri l
$1994.
We conducted
the workshop
as part of a revi e w requested
by
the Chai r man
of the Subcommi t tee
on Readi n ess,
House Commi t tee
on
Armed Servi c es,
to determi n e
whether
recent i m provements
to RRF are
meeti n g
defense
needs. A separate
report
wi l
be i s sued i n response
to thi s
request. The workshop
was desi g ned
to (1) di s cuss
the i m pact of the
decl i n i n g
U.S. commerci a l
ocean-goi n g
merchant
mari n e manpower
pool
on U.S. seal i f t
capabi l i t y,
(2) i d enti f y
i m pedi m ents
to ti m ety crewi n g,
and
(3) di s cuss
vari o us
crewi n g
proposal s .
Thi s report refl e cts
the panel members’
and workshop
attendees’
vi e ws,
whi c h are not necessari l y
those of GAO. Detai l e d
papers submi t ted
by the
parti c i p ants
i n the order of thei r presentati o n
are i n cl u ded
i n the
appendi x es.
Resul t s
The workshop
served as a forum for reachi n g
consensus
among
government
agenci e s,
commerci a l
shi p managers,
and organi z ed
mari t i m e
l a bor on vari o us
crewi n g
concerns.
It al s o served as the genesi s
for further
di s cussi o ns.
Hi g hl i g hted
poi n ts that the workshop
attendees
agreed on
i n cl u ded
the fol l o wi n g:
i n Bri e f
l
. The key to crewi n g
RRF i s mai n tai n i n g
a vi a bl e
US. merchant
mari n e
i n dustry.
. The current state of the U.S. mari t i m e
i n dustry
demands
passage
of
reempl o yment
ri g hts for mari n ers
who vol u nteer
for RRF duty duri n g
a
cri s i s .
. Some form of permanentl y
assi g ned
crews wi l heIp mai n tai n
a base of
ski l s
and experi e nce
to operate FBF shi p s.
Cooperati o n
among the groups i n vol v ed
wi t h crewi n g
RRF i s needed
to
resol v e
many i s sues, such as i m provement
of the mari n er
database.
Page
1
GAO/NSLAD-94-177
Strategk
Seal i f t
B-287234
Representati v es
from the i n vol v ed
groups pl e dged
to conti n ue
joint
di s cussi o ns
ai m ed at achi e vi n g
mari t i m e
reform consi s tent
wi t h nati o nal
seal i f t requi r ements.
Impact of a Decl i n i n g
U.S. Merchant
Mari n e
Industry
to provi d i n g
crews
Workshop
parti c i p ants
agreed that the best approach
for RRF vessel s
i s conti n ued
rel i a nce
on the ci v i l a n
mari n ers
worki n g
in
the commerci a l
U.S. merchant
mari n e
i n dustry.
However,
they stated, U.S.
mari t i m e
pol i c y
reform i s needed
to mai n tai n
the commerci a l
base from
whi c h the crews can be drawn. Current U.S. mari t i m e
pol i c y,
accordi n g
to
some parti c i p ants,
seems to be dri v en
more by budgetary
factors than by
nati o nal
securi t y
consi d erati o ns.
Offi c i a l s
i n the nati o nal
securi t y
deci s i o n-maki n g
process,
they sai d , need to be more cogni z ant
of the
contri b uti o n
that the ci v i l a n
merchant
mari n ers
can make to nati o nal
securi t y.
Reempl o yment
Are Important
The parti c i p ants
general l y
agreed that establ i s hi n g
reempl o yment
ri g hts i s
a necessary
Grst step to i m prove
RRF crewi n g
i n a cri s i s . Some parti c i p ants
bel i e ved
that enough
qual i l ? ed
mari n ers
currentl y
exi s t to crew RW, but
not enough
ocean-goi n g
j o bs exi s t to keep them ful l y empl o yed.
Therefore,
many qual i f i e d
mari n ers
have taken j o bs ashore or i n other fi e l d s.
Accordi n g
to workshop
parti c i p ants,
mari n ers
woul d sai l i n a nati o nal
cri s i s if they had a guarantee
that they coul d return to thei r j o bs after the
cri s i s ended.
Ri g hts
Use of Reduced
Operati n g
Status to
Mai n tai n
Ski l s Base
The reduced
operati n g
stat& (ROS) concept
was wi d el y
accepted
by
workshop
parti c i p ants
as a good method
for mai n tai n i n g
a cadre of
mari n ers
wi t h the knowl e dge,
ski l s ,
and experi e nce
necessary
to acti v ate
and operate
RRF vessel s .
Al t hough
the mari t i m e
academi e s
and the
i n dustry
school s
teach subj e cts
such as steam engi n eeri n g,
the abi l i t y
to
mai n tai n
those ski l s
i n the commerci a l
sector i s l i m i t ed.
Many mari n ers
woul d therefore
fi n d it di f Ecul t
to mai n tai n
thei r profi c i e ncy
i n the ol d er
technol o gy
found on RRF shi p s. Assi g ni n g
mari n ers
to REW shi p s i n a
reduced
operati n g
status woul d hel p mai n tai n
the experi e nce
l e vel
requi r ed
for operati n g
shi p s wi t h these ol d er systems.
R‘ OS means that a p&M
crew is assi g ned
to a shi p and conti n ual l y
acti v ated,
the crew is compl e mented
by addi t i o nal
crew members
Page
2
mai n tai n s
it. When the shi p is
drawn from the mari t i m e
uni o ns.
GAO/NSIAD-94-177
Strategi c
Seal i f t
8.217224
ROScrewhgabornai n tai n sthecore
acti v ati o n.
These ~0s crews
crews
wi t h
the parti c ul a rs
groupnecessaryforti m el y shi p
woul d fami l i a ri z e
the uni o n-suppl e mented
of that shi p duri n g
an acti v ati o n.
The U.S. Coast Guard, worki n g
i n cooperati o n
wi t h the Mari t i m e
m
A
*on, i s i m pl e menti n g
a new computer
database
that wi l more
accuratel y
refl e ct those mari n ers
who are acti v el y
sai l i n g.
The Mari t i m e
. .
Adml n l & &
o‘ n has suggested
that an i d enti f i e r
be pl a ced
i n the fi l e s of
mari n ers
who have sai d that they are wi l i n g
to serve on RRF shi p s duri n g
a
cl i s i s .
Use of Automated
Systems to Speed
Noti f i c ati o n
of
Mari n ers
Organi z ed
l a bor representati v es
proposed
that the Coast Guard database
be compati b l e
wi t h thei r systems and sai d that they woul d be wi l i n g
to
work wi t h the Coast Guard and the Mari t i m e
Admi n i s trati o n
on thi s
matter.
Merchant
Reserve
The workshop
parti c i p ants
di d not di s cuss
the potenti a l
of merchant
mari n e reserve programs
i n detai l . Such programs
have been proposed
by
the Department
of Defense and the Mari t i m e
Admi n i s trati o n.
However,
parti c i p ants
agreed that rel i a nce
on the commerci a l
sector woul d be
cheaper
and the experi e nce
and ski l s
woul d be greater than coul d be
devel o ped
i n a reserve program.
Some representati v es
for organi z ed
l a bor
voi c ed
opposi t i o n
to any merchant
mari n e
reserve program.
The Mari t i m e
* .
Ao‘ n representati v e
i n troduced
the i d ea of shi p acti v ati o n
teams-presumabl y
a form of reserve-that
woul d assi s t i n the RRF vessel
acti v ati o n
and then step asi d e when the uni o n crew arri v ed.
Mari n e
Proposal s
Pl a ns to Conti n ue
RRF Crewi n g
Di a l o gue
the
Parti c i p ants
agreed that the workshop
was i n formati v e
and that a
conti n ui n g
di a l o gue
was needed.
The Mari t i m e
Admi n i s trati o n
representati v e
suggested
that it was hi s agency’s
responsi b i l t y
and
pl e dged
that it woul d pursue
hosti n g
the next forum. Workshop
parti c i p ants
suggested
the topi c for the next forum i n vol v e
devel o pi n g
a
set of cri s i s operati o n
gui d el i n es.
They sai d that conti n gency
procedures
coul d be establ i s hed
i n advance
among government
agenci e s,
shi p
managers,
and the mari t i m e
uni o ns
regardi n g
wages, he&h pl a n benefi t s,
pensi o ns,
and other l a bor i s sues. These prearranged
agreements,
workshop
parti c i p ants
sai d , coul d faci l i t ate
REW crewi n g
i n the event that
one uni o n coul d not suppl y
the needed
mari n ers
wi t hi n the requi r ed
ti m e.
Pa$e
3
GAO/NSMD-94-177
Strategi c SeaWt
B-257234
It was al s o suggested
that an agreement
between
government
and i n dustry
coul d be devel o ped
to al l o w RRF vessel s to be used for vari o us
short-term
research
and devel o pment
efforts or chartered
for use i n trade routes
where there are no Ameri c an
competi t ors.
Thi s proposed
partnershi p ,
workshop
parti c i p ants
suggested,
coul d provi d e
the Mari t i m e
Admi n i s trati o n
addi t i o nal
funds for RRF.
Scope and
Methodol o gy
We sponsored
thi s workshop
to faci h tate
di s cussi o ns
on the vari o us
factors affecti n g
RRF crewi n g.
Duri n g our revi e w of RRF, we i d enti f i e d
maj o r groups i n vol v ed
wi t h RRF crewi n g,
i n cl u di n g
government
offi c i a l s ,
organi z ed
l a bor, shi p management
compani e s,
and research
organi z ati o ns.
We consui t ed
noted mari t i m e
experts and sel e cted
panel members
and
audi e nce
parti c i p ants
for the workshop
from those i n vol v ed
groups. We
al s o sel e cted
a moderator
who had knowl e dge
of the subj e ct
matter but no
vested i n terest i n RRF.
The workshop
consi s ted
of presentati o ns
of papers by each of the panel
members
and a di a l o gue
between
panel i s ts
and audi e nce
parti c i p ants.
The
papers, i n cl u di n g
a summary
presentati o n,
are pri n ted
verbati m
in
appendi x es
I to IX. A l i s t of the panel members
and parti c i p ati n g
organi z ati o ns
i s i n appendi x
X
We di d not sel e ct as a panel member a representati v e
from one of the
mari t i m e
l a bor uni o ns
representi n g
unl i c ensed
mari n ers.
However, we
i n cl u ded
a j o i n t paper from two of these organi z ati o ns,
whi c h
was
prepared
after the workshop,
i n appendi x
IX.
Page
4
GAWNSIAD-94-177
Strategi c
Sedft
B-257234
We are sendi n g
copi e s of thi s report to the Chai r man,
Subcommi t tee
Readi n ess,
House Commi t tee
on Armed Servi c es; other appropri a te
Members
of Congress;
and the workshop
parti c i p ants.
Copi e s wi l
made avai l a bl e
to other i n terested
parti e s on request.
on
al s o
be
Pl e ase contact me on (202) 512-5140
i f you or your staff have any
questi o ns.
Maj o r contri b utors
to the workshop
were Brenda Farrel l ,
Col i n Chambers,
Penny Berri e r, and Robert Euri c h.
Si n cerel y
yours,
Mark E. Gebi c ke
Di r ector,
Mi l i t ary
and Capabi l i t i e s
Page
S
Operati o ns
Issues
GAWNSl 4 D-94477
Strategi c
Sedi f t
Contents
Letter
Appendi x
I
Manni n g
Requi r ements
Ready Reserve
Force-Department
of Defense
of the
Appendi x
II
Manni n g
on Ready
Reserve Fl e et
Vessel s -U.S.
Coast
Guard
18
Appendi x
III
Crewi n g
the Ready
Reserve
Force-RADM
Cm1 J.
Sei b erl i c h,
USN
(Ret.), Ameri c an
Presi d ent
Li n es, Ltd.
Appendi x
IV
“D efi n i n g
Issues” i n
Manni n gthe
RRF-Charl e s
A.
Bookman,
Mari n e
Board, Nati o nal
Research
Counci l
36
Pa6e
6
GAWNSIAD-04-177
Strategi c
SeaWt
Appendi x
V
GAO Ready Reserve
Force Crewi n g
Workshop-Jerome
Joseph,
Ameri c an
Mari t i m e
Offi c ers
42
E.
Appendi x
VI
GAO Ready Reserve
Force Crewi n g
Workshop-Captai n
John Wal t on,
Internati o nal
Organi z ati o n
of
Masters, Mates, and
Pi l o ts
64
Appendi x
VII
Crewi n g
Seal i f t Shi p s
i n a Cri s i s : A Proposal
for Acti o n-Mari t i m e
Admi n i s trati o n,
Department
of
Transportati o n
59
Page
7
f2mmsIAD-94-177
Stratesi c
Senl i f t
Contents
Appendi x
VIII
Strategi e s
for Crewi n g
the Ready Reserve
Force-Mary
E.
Lyons, PhD.,
Cal i f orni a
Mari t i m e
Academy
Appendi x
IX
Manni n g
the Ready
Reserve Force: The
Probl e m
and
Proposed
Sol u ti o ns-A
Joi n t
Statement
of the
Seafarers
Internati o nal
Uni o n
and Nati o nal
Mari t i m e
Uni o n
Appendi x
X
Panel Members
Organi z ati o ns
Represented
and
Panel Members
Organi z ati o ns
Represented
Abbrevi a ti o ns
General
Accounti n g
Offi c e
reduced
operati n g
status
Ready Reserve Force
GAO
ROS
RRF
Page
8
G4O/NSIAD-94-177
Strategi c
Seal i f t
Page
9
GACMNSIAD-94-177
Strategi c
Sea.Wt
Manni n g
Reserve
Requi r ements
Force-Department
Paper presented
by
James t. Johnson,
Di r ector, Proj e cti o n
Forces
Di v i s i o n,
Program Anal y si s
and Eval u ati o n,
Offi c e of
the Assi s tant
Secretary
of
Defense
of the Ready
of Defense
MANNIKG
REQLIREMEh’TS
OPTl I E
READY
Rl B ERVE
Department
Ready
of Defense
10
Paper
far tbc
Resent
Force Crewi q
Worksbop
Spomored
by the
Geneml
Accountl n ~
ma
Apri l
Page
FORCE
s, 1994
GAO/T+l S LhD-94-177
Stmtegbz
Seal i f t
Appendi x
Manni n g
Beserve
I
Beqdrementa
Force--Department
The
has remai n ed
anythi n g,
abi l i t y
to depl o y
a constant
wi t h
ha5 hecome
conuner&d
fewer forces
stati o ned
i m portant
Department
forces.
pri o ri t y
taxpayer
capabi l i t i e s
avai l a bl e
Dol l
to move
aad ensures
traasportati a n
mi l i t ary
DOD seal i f t
commerci a l
shi p pers.
pragrnms
programs
ne4ul y
to move
refl e ct
of the U.S. merchant
extensi v e
shi p s
11
rapi d
mobi l i t y
to cri s es.
pol i c y
to move
of rel y i n g
cl r ri e rs
on the
for transporti n g
crrga
to ai r and sea ports
al l of our troops
l a rge
that the mobi l i t y
are desi g ned
to those
Page
lies
to move
comnwci d
that cannot
years, aad DOD has adapted
use of comunerci a l
If
amaunts
and hi g h-
of resi d ual
suppl i e s
as
i n thi s way, the Department
systems
i t acqui r es
do oat dupl i u te
sector.
materi a l
character
and rai l
shi p pi n g
By usi n g
i n the ci v i l
U.S. responses
warl d wi d c
W~l a era.
that i t can meet the requkment3
ai r l i a es
Si m i l a rl y ,
The
extent
i n terests
States i n peseeti m e.
(DoD) has a l o ng-standi n g
We use commerci a l
dol l a rs
i n the post-Col d
ti m el y
We use commerci a l
conserves
pl a nni n g
to ensuri n g
of Defense
weft as some uni t equi p nxnt.
U.S. securi t y
the Uni t ed
trucks
suppl i e s.
to protect
outsi d e
use cotnmcrci a l
We
of embsrkati w .
farces
of defense
sector ta the maxi m um
mi l i t ary
ai r craft
mi l i t ary
requi r ement
i n creasi n gl y
The
of the Ready
of Defense
changes.
to move
thi s
pol i c y
obj e cti v e.
be accommadated
to compl e ment
on commerci a l
the capaMi t i e s
fl e et has changed
Duri n g
mi l i t ary
Worl d
equi p ment
We purchase
dmnati c al l y
War
ai r wafk.
provi d ed
by
ovtr
the past 40
II, the Uni t ed
and suppl i e s.
cargo
States mn&
Shi p s
GMUNSIAD-94-177
woul d
sai l
Strategi c
Seal i f t
Append3s
I
Maxmi n g
Reserve
RequIrementa
Force-Department
of the
Ready
of Defense
2
from U.S. ports, brave
merchant
mari n ers
The
supported
gave
U.S.-fl a g
to about
tbc number
vessel s
fl e et refl e ct
about
each
year
of the
55,000
depl o ymeat
patterns.
(converted
capabi l i t y
whereas
Page
has been
those
12
quaky
the war.
1940s
some
1.200
numbered
by a memhaat
has decl i n ed,
has remai n ed
ml a ti v el y
constant.
system
and si g ni f i c antl y
mari n e
of whi c h
the i n dustry
today
Desert Shi e l d /Storm,
contai n ershi p s
fi t
shi p s
constructed
used duri n g
the crews
shi p s
woul d
Worl d
on
i n the merchant
i s j u stl y
refl e cted
seven
DoD-owned
i n 1972)
provi d ed
Those
i n crease
resul t
the
has been
a
proud.
i n force
fast seal i f t
the del i v ery
War II. In terms of manpower.
for the seven
have
shi p ped
Tbc
are al s o
the
24,MtO.
and faster shi p s--greatl y
servi c es
i n se&x
Today,
by U.S. carri e rs.
i n the i n dustry.
shi p s
the fl e et
of ahout
The changes
worki n g
Operati o n
for the 116 breakbul k
mari n ers.
per person
producti v e
stri k i n g:
l a rger
and was
confl i c t,
the tonnage
i n troduced
Many
shi p s
By the ti m e of the Korean
mari n era
of 116 of the breakbul k
the change
duri n g
and merchant
Duri n g
commerci a l
to thei r country
supported
that can be moved
of operati o n.
by over 50,CKHl merchant
of the i n termodal
more
to theaters
350 shi p s,
contai n ers
l a rger.
cargo
strong.
supported
i n the cost of transportati o n
The
shi p s
fl e et
shi p s,
700
the effi c i e nci e s
of cargo
reducti o n
i n servi c e
mari n e
of shi p s
effi c i e nci e s--shi p pi n g
amount
l i v es
U.S. commerci a l
fl e et i n cl u des
U.S.-fl a g
at sea, and del i v er
thei r
by a merchant
had dropped
Whi l e
attacks
numbered
fast seal i f t
shi p s
total e d
294.
over 4,600.
GAO/NSIAD-94-177
Stntegk
SeaRIt
Manni n g
Requi r ement.9
Reserve
of the
Ready
Fore-Department
of Defense
3
DOD has adapted
Al o ng
wi t h i n dustry,
handl i n g
equi p ment
from smal l e r
Operati o n
it has i n vested
and desi g ned
contai n ers
Desert
is taki n g
contai n er
adaptati o n
has been
the acqui s i t i o n
and unl o ad
i n cl u di n g
i t ems
pri m ari l y
on the commerci a l
uni o ns
to operate
Duri n g
used.
Whi l e
them and because
that cannot
or the shi p s
sector,
these vessel s
Operati o n
duri n g
Deserl
most of the shi p s
i n kss
than 14 days.
al t hough
addi t i o nal
emphasi s
must be made
13
i n annual
di d
Thi s
we have
mi l i t ary
mi l i t ary
to the Ready
the ful l
cal l e d
suppl i e s,
shi p s
and it
range
menti o ned
Reserve
of the rel a ti v el y
Force
short
of mi l i t ary
Fol l o wi n g
not establ i s hed
we have
Duri n g
of the fast seal i f l
shi p s
up
on contai n ershi p s.
i n contai n ershi p s.
ti m e
on merchant
needed
qui p meat.
our pol i c y
reserve
@RF).
of rel y i n g
crews
for the fast seal i f t
tnari u ers
from the l a bor
conti n gcnci c s.
Shi e l d L%rrn,
for exampl e ,
not meet thei r breakout
fact demonstrates
must he gi v en
operati o ns
ammuni t i o n
they can carry
i n the RRP. Rather,
to move
to DOD because
he transport~~I
acti v ated
Page
val u abl e
yet are bui l t
on the battl e fi e l d .
shi p s
(RO/RO)
of ways.
contai n er-
that meet IS0 standards
conmnxci a l
to move
i n a oumber
It has potchased
and di s persed
of ml l - on/l o l - off
to l o ad
shi p s
systems
its abi l i t y
of thi s type are parti c ul a rl y
fket
of contai n ers.
i o the use
DoD used
steps now to i m prove
and the addi t i o n
Shi p s
i n the commerci a i
that can be di v i d ed
Shi e l d /Stortn,
Another
etul i w
to the changes
to paceti w
74 vessel s
obj e cti v e,
more
that the coDccpt
pl a nni n g
from the RRF were
than hal f
were
of an RRF is vi a bl e ,
and addi t i o nal
i n vestrrrnts
and mai n tenance,
GAfNNSIAD-94-177
Strategi c
Seal U t
Mannhg
Reserve
Boqul r emenb
Force-Department
of the Ready
of Defense
4
The
2,500
74 RRF shi p s
crew members.
of about
l , ooO
i n ti m e).
Duri n g
RRF shi p s;
The
mari n ers
crews
were drawn
(personnel
Operati o n
the l e sson
peaceti m e
that took part i n the Persi a n
Shi e l d /Storm.
of that depl o yment
more
mari n e
mari n e
requi r ed
smoothl y
not sai l i n g
to i m prove
shoul d
a total of
wi t h an avai l a bl e
there were no shortages
was that we need
cart pruceed
depl o yment
from a merchant
i n the U.S. merchant
Desert
so that crcwi n g
Gul f
pool
at a gi v en
poi n t
of manpower
for
our pl a nni n g
duri n g
the RRF be needed
for future
conti n genci e s.
As we bui l d
changi n g.
shi p s
Fi r st,
our pl a ns
the RRF i s growi n g
to the fl e et, and pl a ns
Further,
bei n g
exami n ed
oew Mari t i m e
Securi t y
The
RRF depend
number
reserve
rquest
i n i t i a ti v e.
MARAD
Page
Program
desi g ned
si z e
mari n ers
proj e cted
To determi n e
to ensure
@enti a i
shi p s
needs
Admi n i s trati o n
requi r ements
hi g h
factors
operati n g
more RO/RO
l c vcl
of readi n ess.
for the RRF.
under
manpower
that are
seven
These
the Admi n i s trati o n
that adquate
requi r ements
the si z e and content
the crewi n g
at a rel a ti v el y
In addi t i o n,
several
to add about
arc needed
to be avai l a bl e .
for the Mari t i m e
must fust compare
14
tankers
to assi s t
and readi n ess
(DOT) are expl o ri n g
DoT budget
DOD expects
by ~hc Department.
steps that must he taken
of merchant
we must recogni z e
these vessel s
of how many
on the future
Transportati o n
i n si z e.
to mai n tai n
there i s the questi o n
currentl y
for the future,
i s sues
am
has proposed
a
the U.S. fl a g.
i s avai l a bl e
of the fl e et as wel l
for the
as on the
Both DOD and the Department
for teservc
programs,
of
and the FY 1995
(MARAD)
i n cl u des
$2.2 mi l i o n
of possi b l e
future programs,
of the RRF wi t h potenti a l
for a
DOD and
manpower
GAO/NSIAD-84-177
Strategi c
Seal i f t
Manni n g
Reuerve
Requi r ements
Fores+Department
of the Ready
of Defenae
5
sources
i n terms of numbers,
necessary,
RRF
we can sel e ct
Crewi n g
and type of shi p s
to establ i s h
1 shows
Requi r ements
pl a ns
pendi n g
Page
ti m es.
If a reserve
on a cost-effecti v eness
potenti a l
program
i s deemed
basi s .
of the tabl e
16
for the RRF are a functi o n
Manni n g
manni n g
l e vel s
(MRS), al o ng
addi n g
of dry cargo
23 more tankers
acqui s i t i o n,
on the gui d el i n es
for the futuac RRF, based
wi t h the number
War era i s now bei n g
on the shi p s’
al s o depend
(USCG) and on MARAD
show the number
Study
l e vel s
of the number
used
types of shi p s.
by the U.S. Coast Guard
i n the post-Col d
separatel y
requi r ements
for vari o us
had contempl a ted
a deci s i o n
are shown
opti o ns
i n the fl e et.
requi r ements
fi r st si n l i n es
these shi p s
and respome
several
manni n g
mai n tai n ed
establ i s hed
Mobi l i t y
Earl i e r
aadi e r,
crewi n g
Tabl e
The
among
l e vel s ,
Requi r ewnl s
As noted
standards
ski l
shi p s
eval u ated
the Crew numbers
recommendati o ns.
recommended
of tankers
l o the RRF.
on ctcwi n g
Tk
i n the fl e et today.
conti n ued
by tha Department.
associ a ted
i n the 1992
wi t h
need
for
Themfore,
these vessel s
i n the tabl e .
GAO/NSIAD-94-177
Strategk
Seel l f t
Appendi x
Mannbi g
Beeerve
I
RequIrementa
Force-Department
of the Ibady
of Defense
6
Tabk
1.
Per Shl g
24
subtdd
116
23
l
Tmken for
MRsGod
Induda
ROi R Cktomeetl h eYRS~of36by1999.
mkuumd
Manni n g
pl u s
the dry cargo
the 13 exi s ti n g
23 addi t i o nal
between
rkscl t
The
wi l
noted
earl i e r
and 4,797.
proj e cted
program
remai n s
at i t s current
16
shi p s
requi r e
recommended
between
are added
i n the Mobi l i t y
3.018
to tk
and 4,038
fl c zt, crewi n g
In any case. the total mqui t ement
wi l
Requi ~ ~~~nts
memhaot
requi r ements
be l a rger
Study
mari n ers.
If the
woul d
ri s e to
than i t was i n
Shi c l d l s torm.
reserve
Page
tankers
tankers
3,570
operati o n
24
avai l a bi l i t y
i s needed
to provi d e
si x c, there woul d
of maupowcr
crews
wi l
for the RRF.
be about
11,000
determi n e
i n l a rge
If the oceangoi n g
merchant
mari n ers
pprt whether
a
me&ant
msri n e
to draw from to
GACWNSIAD-94-177
Strategl e
SeuM
I
BequLrements
Force-Department
Appendi x
Mamdng
Reserve
of the Ready
of Defense
7
man these shi p s.
does
If RRF crcwi n g
not decl i n e
however,
si g ni f i c antl y
the merchant
i n si z e,
mari n e
arc i n the 4,ooO to 4.800
crews.
of addi t i o nal
the Great Lakes
and i n l a nd
academi c s,
manpower
MARAD
to i d enti f y
Thkd,
crewi n g
RRF shi p s
coat and capabi l i t y
cost-effecti v e
Paae
program
17
forms
work
duri n g
of opti o ns
today’s
to l o ok
of reserve
Fi t ,
and the merchant
woul d
l e vel
be eval u ated
be fol l o wed
DoD wil
compl e te
nod
wi t h pri v ate
if al t ernati v e
sources
work
wil
l i k el y
in
merchant
i n dustry
to determi n e
wodr
wi t h
be avai l a bk
to devi s e
of manpower
to DOD and DOT can be compared
to meet RRF crewi n g
state
engaged
crew requi r ements
ongoi n g
that woul d
avai l a bl e
and
i n determi n i n g
mari n ers
Fi n al l y ,
mari n ers
programs.
of merchant
cri s es.
If,
ways of provi d i n g
of the federal
the Department
MARAD
not be needed.
i n cl u de
Second,
wi t h
mari n e
and RRF requi r ements
for al t ernati v e
of the RRF.
the number
DoD wil
bel o w
trade, graduates
are si m i l a r.
si z e and composi t i o n
probabl y
that woul d
watenvays
the future
cri s i s .
have
as 3,000
program
si g ni f i c antl y
case, the steps that woul d
programs
desi g ni n g
are as l o w
a reserve
we woul d
and vari o us
In ei t her
and
drops
range,
Sources
mari n e
requi r ements
in a
a pl a n
arc nccdcd,
to sel e ct
for
the
the most
needs.
GAO/NStAD-94-177
Strategk
Sedi f t
Appendi x
II
Manni n g
on Ready Reserve
Vessel s -U.S.
Coast Guard
ING
Paper presented
by
Captai n
Jack McGowan,
Chi e f, Merchant
Vessel
Personnel
Di v i s i o n,
U.S.
Coast Guard
ON READY
Fl e et
WV15
FLEET
VESSEL&
of
By SO Uni t ed
States
Code (USC) App. 1744 Sec. 11 the Secretary
Transportati o n
(SSCDOT) shal l
mai n tai n
a Nati o nal
DefensS
Reserve
Fl e et,
i n cl u di n g
any
vessel
assi g ned
by the
Secretary
to the
Ready
Reserve
Force
component
of the fleet,
CQnSi S ti n g
Of
those
vessel s
owned or acqui r ed
by the US Government
that
the SECDOT,
after
consul t ati o n
wi t h
the Secretary
of the Navy (SSCNAV),
determi n es
are of val u e
for nati o nal
defense
purpases
and
that
the SECDOT deci d es
to pl a ce
and mai n tai n
i n the fleet.
a vessel
i n the fl e et
q sy be
Except
as otherwi s e
prwi d ed
by l a w,
used
-1) for M account
of an agency
of the US Governeen
t i n a peri o d
duri n g
whi c h
ve~ssel s
ray be requi s i t Ioned
under
secti o n
902 of
the Merchant
Mari n e
Act, 1936
(46 APPP. USC 1242):
or
requeat
of the SECNhV,
end
i n accordance
wi t h
memoranda
2) on the
of agreement
between
the SECDGT end the Secretary
of Defense
(SECDEF)
3) testi n g
for:
for
readi n ess
and
sui t abi l i t y
for mi s si o n
performance;
4) defense
seal i f t
functi o ns
for
whi c h
other
aaal i f t
assets
are
not avai l a bl e ;
and
5) support
of the depl o yment
of the Uni t ed
States
arms& forces
in
s mi l i t ary
conti n gency,
for mi l i t ary
conti n gency
operati o ns,
or
for civil
conti n gency
operati o ns
upon orders
from
the Nati o nal
Command
Authori t y
(Rxecuti v e
or SECNAV order);
6) for otherwi s e
l a wful l y
permi t ted
storage
or transportati o n
of
non-defense-rel a ted
cargo
as di r ected
by the SECWT wi t h
cancurxence
of the
SECDEF
Veesel a
of the
Mari t i m e
Admi n i s trati o n
(MARAD) Ready
Reserve
(RRF) are publ i c
vessel s .
They are i n spected
by the Coast
Guard
as requi r ed
by title
46 USC 92109
and as modi f i e d
by a
mmorandum
of Understandi n g
between
MARAD and the Coast
Guard
when the chi p s
are i n the i n acti v e
RRP reserve
fl e ets.
Duri n g
ti m es
of acti v e
operati o n
FtRF vessel s
are under
the control
of
Commander,
Mi l i t ary
Seal i f t
Command,
(MC),
however
ownershi p
does
not transfer
from
MAFl A D to M!X,
nor
daes
MSC amwme
responsi b i l t y
for manni n g
or mai n tai n i n g
the RRF veesel e
from
HARM at anyti m e.
operate
and mai n tai n
a fl e et
of i t s
MSC does
own vessel s
whi c h
are separate
from the RFIF end whi c h
USC has
requested
that
the Coast
Guard
i n spect.
MSC vessel
i n specti o n
is
not mandsted
by l a w as is the RRF, however
the MSC has agreed
that
thei r
i n spected
vessel s
wil
bs operated,
i n cl u di n g
manni n g,
i n cospl i a nce
wi t h
the Certi f i c ate
of Inspecti o n
(COI).
Manni n g
of the RRF i s as woul d
be requi r ed.
I make
thi s
poi n t
onl y
because
thei r
ir a tendency
to confuse
the WC (Navy
owned or
demi s e
chartered)
vessel s
and thei r
i n specti o n
status
wi t h
the
RRP vessel s
owned
by MARAD,
they
are separate
and di s ti n ct
fl e ets
free
the Coast
Guard' s
perspecti v e.
Sse Encl o sure
(1).
Force
Inspecti o n
of vesasl a
is covered
i n Ti t l e
46 USC. Code
Chapter
33.
The types
of veesel e
subj e ct
to i n specti o n
for
certi f i c ati o n
by the Coast
Guard
are l i s ted
i n Secti o n
3301.
Exespti o ns
to thi s
list
are found
i n Secti o n
3302.
The publ i c
vessel
exempti o n
as previ o usl y
menti o ned
is i n Secti o n
2109.
The
1
Page18
GAO/NSIAD-94-177Strstsgi c SssW
Appendi x 11
MeeeIn~onReedgBeserveFIeet
VesseIe-IJ.S.CoestGuerd
Coast Guard
i n spects
commerci a l
vaeeel s
i n order
to ansure
that
mi n i m um
standards
desi g ned
to ensure
the Bafety
of tha
mari n er,
When an
and the envi r onment
ete bei n g
mat.
the publ i c ,
i n specti o n
has bean suoceesful l y
compl e ted,
46 USC 3309 dl r acte
that a CO1 be i e eued
to the vessel .
i n Ti t l e
i n epactad
The
manni n g
requi r ements
46 USC. Code 6100
veeeal e
are found
for
al l
i n spected
veeaeh
aari e e.
The mmni n g
ragul a tfone
i n 46 CFR 15.500
l eri m 8.
are
found
for
when
a veseel
ha8 appl i e d
for
i n epacti o n,
Nari n a
Bafety
of thai r
i n amti o n
for
Offi c e
pereonnal
determi n e,
i n tha oouraa
certi f i c ati o n
and revi e w
of the veeaal ' m
pl a ne
and other
paperwork,
the propar
manni n g
raqui r ad
for tha vea8el .
Thi u
requi r ed
manni n g
is
pl a ced
on tha CO1 of tha veaaal .
A typi c al
merchant
vaaeel
i s raqul r ad
to have
one
Maatar,
ona Chi e f
Mate,
Second
Mats,
one Thi r d
Hate,
si x Abl e 8aemsn
(A/B), ona
one
one Chi e f
Engi n eer,
Ordi n ary
Seaman,
one l e t A~ai n tant
Engi n eer,
ona 2nd hei s tant
Engi n eer.
ona 3rd Aeei a tant
Etagi n au.
thm
Oi l e JrS,
and 1 wi p er.
-Mi n g
for the etaward' a
dapartmant
Unl a ee
exempted,
thi e
-i n g
l e vel
must
ba mai n tai n ad
vari e s.
under
the
term8
of i t 8
COI.
uhanavar
tha vaaeel
i s operati n g
Tradi t i o nal l y
tha Mi l i t ary
Saal i f t
Command has baan
rel u ctant
to
ask
for wai v ers
to the eetabl i a had
manni n g
unl a ea
it
hsa
ken
absol u tel y
nacaeeary.
MARAD ha8 aetabl i s had
four degraas
of raedi n aea
for
1) 4 day readi n aas,
l e ngth
of ti m a
i n whi c h
tha
(OPCON)
of the veeeal
met
change
from
Operati o nal
Control
Tan parmenent
era wmamtmrs are aasi g nad
to thee
to Nsc.
at 011 ti m as;
2) 5 day,
meani n g
the vassal
muet be ready
respects
to change
OPCON before
the
and
of that
ti m e;
3)
whi c h
al l o w8
10 days
for tha change
i n OPCON, and;
4) 20
vessel s :
whi c h
sl l o we
day
20
tha 4
raadi n asa
mai n tenance
end
the core of the
4 day raadfnaee
vssaal
sai l s .
day,
10 day, or
day8
for
tha
change
In
OPCON.
The
10
man
RRP'
W
vasaal e
i n al l
10 day,
day,
crew
to day
form
of
on
vaasal 8
are raeponei b l a
for tha day
upkeep
of tha vaeael .
Addi t i o nal l y .
thay
regul a r
craw of the vaseel .
The
remai n der
the
vassal
craw
must be brought
aboard
bafora
tha
No ful l
ti m e crawmambere
are aesi g nad
to the 5
20 day vaaeal e .
The MARAD/Coast
Guard MOU al l o we
MARAD to extend
cartai n
i n specti o n
raquframante
such
ae drydock
i n terval e ,
teats
of
equi p aant
and oparati o n
of eyetame
QU& when tha RRP ve8aal a
Thi a
al l o ws
in
an i n operati v e
statue
i n the reearva
fl e et.
vaS8Sl e
to mai n tai n
thei r
i n spected
8tetW
and hOp8fUl l y
accel a rate
thei r
breakout
if needed
for
eeal i f t
or mi l i t ary
Support
mi e si o na
on short
noti c e.
Duri n g
ti m ae
of acti v e
oparati o n,
RRF vaeael s
must compl y
wi t h
the puma raqui r aaant8
i n specti o n
i n terval 8
di c tated
by U.S. l a w and regul a ti o n
as
other
Inspected
coeunarci 8 1
vessel .
are
RRF
any
and
Preeantl y ,
there
are
fourteen
di f ferent
wmpani e e
rho
oparata
RRF vaaeal a .
Each company
has a manager
for i t a
RRF
vessel s .
They
sra responei b l e ,
among other
thi n gs,
to aneura
that
tha vassal
i s properl y
crewad
and ready
to go if racal l a d
for axarci s aa.
Each
company
has a contract
wi t h
nari t i m a
uni o ns
to man thei r
vaseel a .
2
Fuel 9
GAO/TWIAD-04-177
Stcetegi c
Seel i t %
Appendi x
II
Manni n gonBeedy
Reserve
Vessel s -U.S.CoastGuerd
Fl e et
The Coast
Guard
el l o ws
modi f i c ati o na
regul a ti o ns
duri n g
decl a red
emergenci e s.
were uti l i z ed
duri n g
the Vi e tnam
confl i c t
to the maMi n g
Emergency
modi f i c ati o ns
and
war wi t h
Iraq.
aeveral
modi f i c ati o ns
were made
Duri n g
the Vi e tnam
confl i c t,
regul a ti o n6
by 9ol l c y
whi c h
made
mare
seafarers
avai l e bl a
for
neri t i m e
academi e s
were al l o wed
to concentrate
merchant
earvi c e.
thei r
curri c ul u m
i n to
a shorter
ti m a
frsme end graduate
atudanta
fn addi t i o n.
l i o enaed
offi c ers
ware al l o wed
to sai l
one
earl i e r,
l e vel
hi g her
then the l i o enae
they hel d ,
aa l o ng
as they
bad at
l e ant
6 months'
~~i c m
at the l e vel
of the
praoant
l i c ense
hel d .
to
Si m i l a rl y ,
modi f i c ati o na
ware made to regul a ti o na
by pol i c y
Iraq
i n order
to maxi m i z e
the avai l a bi l i t y
of
the war wi t h
The requi r ed
l i c anaed
deok offi c er
nari n ara
to parti c i p ate.
department
wae revi s ed
to 1 Master,
1 Chi e f
Mat8
8nd
2 l i c ansad
The requi r ed
l i c ensed
engi n eer
department
was
revi a ed
to
mates.
1 Chi e f
Engi n eer,
1 1st pi 2nd Aaei a tant
Engi n eer
end
2 Aaai a tent
Engi n eers.
duri n g
In
the unl i c ensed
deck
force,
50& of the unl i m i t ed
A/B
were al l o wed
to ba fi l e d
by A/B--l i m i t ed
or h/B--8paci a l
parsonnal .
The
use of speci a l y
trai n ed
Ordi n ary
Sam
was
The
onl y
raqui r emant
to uti l i z e
theae
modi f i c ati o na
enoouraged.
wea tbst the Master
had to provi d e
the OCR1 wi t h
e wri t ten
statement
that the veasela’
safety
woul d
not be i m pai r ed
wi t h
these
modi f i c ati o ns.
bi l e ts
In the unl i c ensed
engi n eeri n g
manni n g
reducti o ns
were al r eady
in
the OCMI was gi v en
bei n g
automated,
QRR~ rati n gs
for the oi l e rs
requi r ed
the
advantage
of thi s
opportuni t y,
the OCMI wi t h
a wri t ten
statement
not be i m pai r ed
wi t h
these
modi f i c ati o ns.
ori g i n al
fi r efi g hti n g
i s sued
If
If
ei t her
an
i n di v i d ual
hed met al l
requi r ementa
for
ei t her
l i c ense
or en upgrade
except
for
caapl e ti o n
of
course,
a temporary
l a ttar
good
for
1 year
to al l o w
that i n di v i d ual
to serve
on RRF vaa~al a .
a l i c ensed
currant
year
extensi o n
veaaal e .
document
qui c kl y
some
force,
if no engi n e
roam
pl a ce
due
to tha angi n e.room
authori t y
to consi d er
other
by tba COI.
To taks
Chi e f
Engi n eer
had to Qrwi d m
that tba vee~el ' a
safety
woul d
deck
offi c er
had
a radar
endoraemant
that
wea
had expi r ed
l e ae
than
1 year
9revi o ual y ,
a one
was gi v en
to al l o w
that
i n di v i d ual
to aarva
on RRF
i n di v i d ual
hed l o at
hi s or her
(MHD), the request
for
a dupl i c ate
as possi b l e .
In addi t i o n
temporary
meri n era
as soon as a compl e te
records
The
l e vel .
responsi b i l t y
compl e ted
at
for mi l i t ary
Headquarters
was
3
Pege20
en
or
If M
normal l y
the
wan
sea
marchent
mari n er' e i
waa handl e d
aa
MM08
were i s sued
to
check
was perfamed.
aafvi c a
del e gated
eval u ati o ns
to the
REC
Appendi x i
MmnIngonRe~IyReserve
VesseJs-U.S.CoaatGuard
If an i n di v i d ual
one year
previ o usl y ,
professi o nal
knowl e dge
exami n ati o n
and a deck
Indi v i d ual a
and pi l o ti n g.
expi r ed
more than one
azami n ati o n
emphasi z i n g
than
Fl e et
had
a deck
he or
whi c h
had axpi r ed
more
to demonstrate
conti n ued
to the OCMI by passi n g
a cl o sed
book
exami n ati o n
emphasi z i n g
rul e s
of the road
ri t h
angi n aer' a
l i c enses
whi c h
had
year previ o usl y
had to pass
a cl o sed
book
safety
and
propul s i o n
modes.
l i c an8e
she
had
Bacauaa
of l e ssons
l a arned
duri n g
Desert
Shi a l d /Dasert
Storm
a naw MOW was executed
batwaen
the
CG and
MARAD whi c h
no l o nger
wai v ers
far i n specti o n
and
manni n g
al l o wed
Pl l U UD to request
requi r amanta
di r ectl y
to the Commandant
(46 CFR 6.01(b).
Accordi n g
to the new MOU wai v ers
q ust
be raquaatad
by Commander,
Mi l i t ary
Seal i f t
Command under
46 CPR 6.06(b).
ft was di f fi c ul t
for
the
CD to @val u ate
the
Nati o nal
Dafenaa
mad
for
tl - m veaael
and i t s cargo
and tha mari n e
hazard
i n vol v ed
wi t h
tha granti n g
of
Tha CO fel t
it mra
appropri a te
for
tha
a parti c ul a r
wai v er.
Commander,
MSC to make that deci s i o n.
Tha reason
that al l
of these
wai v ers
wars
uti l i z ed
is
that
i n aufti c i e nt
number
of mari n ers
vol u nteermd
to sarva
aboard
duri n g
past decl a red
amarganci a s.
Howawr,
because
RUE' vessal a
record8
i n tha worl d
tha Coast Guard mai n tai n s
arguabl y
the bast
of i t o
mari t i m e
personnel ,
proj e cts
era
presentl y
underway
whi c h
shoul d
aaai s t
us i n
enl a rgi n g
the mari t i m e
personnel
force
avai l a bl a
for tha RRF fl e et
i n future
amargenci a a.
an
The Coast
Guard i s devel o pi n g
a pl a n
whi c h
vi i 1
aesi a t
MARAD
i n contacti n g
aarchant
mari n ara
i n case of a nati o nal
emargancy
Bacauaa
regul a ti o na
mandate
like
Desert
Shi e l d /Desert
Storm.
that
al l
l i c ansea
snd merchant
mari n er' s
documanta
ezpi r a
every
fi v e
years.
the Coast Guard
wi l
have contact
wi t h
ovary
merchant
Whenavaral i c anae
ordocument
mari n er
at l e ast
thst
often.
the appl i c ant
wi l
be asked
to fil
out
transacti o n
takes
pl a ce,
a form whi c h
i n di c ates
if ha or 8he
l a wi l i n g
to ba contacted
to
serve
on Ameri c an
fl a g
vaaoel a
in
tha event of a nati o nal
of the
fora,
i n cl u di n g
up to data
amargancy
. The oontant8
addresses
and phone
numbara,
wi l
ba antarad
i n to
a computer
program
to ba uti l i z ed
when nacaaaary.
4
Page21
GAO/NSL4D-94-177Strategi c SeaMt
Appendi x
II
Manni n gonReady
ReserveFl e et
Verrsel a -tJ.S.Coa.stGuard
Other
Qffi c e
-
programs
bei n g
undertaken
Securi t y
of Mari n e
Safety.
NRNCNANT RBRIRRR LIGWSIRG
by
the Coast Guard
and Envi r oMl % ntal
ARD DOCWENTATION
through
the
Protecti o n:
8YSTR4
OpILD)
One of the tasks
of the Merchant
Vessel
Per8onnel
Di v i 8 i o n
i u to
and eupport
for the Hari m
prwi d e
i n formati o n,
gui d ance,
Li c ensi n g
(ML) Program
to the Regi o nal
Exami n ati o n
Centsr8,
shi p
operati n g
compani e s,
merchant
mari n er8
and mari t i m e
uni o ns.
Extremel y
i m portant
el e ments
of the ML program
18 the mai n tenanoe
effecti v m
and
effi c i e nt
of personnel
and ompl o yaent
records,
i 8 8uerbz.e
of Msrchsnt
Mari n er
Documents
(WD)
end
Cwmt
Guard
l i c eneee,
end cuetoner
meti 8 facti o n
i n eccompl i e hi n g
then
ta8k8.
To meet our goal s ,
the Merchant
Mari n er
Li c ensi n g
and
Documentati o n
(MMLD) System haa been
devel o ped.
MMU) i s a Nati o nal
central i z ed
date 8hari n g
8yrtem
whi c h
~88
devel o ped
by a contractor
under
the di r ecti o n
of the Coast
Guard
The
Research
and Devel o pment
Center
i n Groton,
Connecti c ut.
eri a t;l n g
BID end l i c ense
i n formati o n
wi l
be converted
from
the
The see servi c e
i n formati o n
wi l
Headquarters
MMDQC system.
a-z-sun
by tha
RECl
from
the Ml L D 8y8tm.
reni d e
i n MDOC wi t h
t@l L D
wi l
provi d e
the 17 RECTr and three
moni t ori n g
uni t 8
i m medi a te
access
to over
1.9 mi l i o n
mari n er
per8onne
1 reoord8
and 8ea rervi c e.
The effi c i e ncy
of the l val u ati o n
process
wi l
i n crease
becau8e
the eval u ator8
wi l
hsve accm88
to tha
Another
ti m esaver
wi l
be veri f i c ati o n
of
i n formati o n
i n stantl y .
ruti n gs
and dupl i c ate
number
for
l o 8t
MNDs or l i c enee8.
The
i n the F%l L D 8y8tem
whi c h
wi l
i n formati o n
wi l
be avai l a bl e
el i m i n ate
the requi r ement
for
veri f i c ati o n
by Coa8t Guard
Al l
pendi n g
and compl e ted
tr8n8sctforu
Headquarter8
personnel .
resi d e
i n the database.
REC personnel
CM qui c kl y
datemi n e
8
kform
thm
mari n er
baa a pendi n g
appl i c ati o n
i n another
port
MLD wi l
al e o
contai n
eval u ati o n
end testi n g
process
begi n s
of exami n ati o n,
modul e
nunbar,
date
test
i n formati o n
8uch as type
Another
exci t i n g
feature
of the IWLD
of exam,
and
test scores.
i s the management
report8
whi c h
wi l
provi d e
a maaura
of
affecti v eneoo
of the ML progrm.
The prototype
was i n 8tal l e d
at Seattl e ,
IfA and New Grl e en8,
m in
Jul y
1993 and teeted
froa
Jul y
1993 through
February
1994.
Saam
maj o r
probl m a
were i d enti f i e d
and have ken
resol v ed
wi t h
prograsn
changes
whfch were
i n stal l e d
i n Seattl e
and New Orl e unm
i n February
1994.
The system
i s now operati o nal
at thue
RECs.
PPUD i m a maj o r
etep i n to
automati o n
of merchant
mari n er
reccrd8.
MMLD wee
Performance
We
are
recogni t i o n.
chosen
proud
aa a rei n venti o n
l a boratory
for
the
Nati o nal
Revi e w
and for prepentati o n
to Vi c e-Presi d ent
Gore.
to be e part
of a program
whi c h
deserve8
nati o nal
5
Page22
GAO/NSUD-94177
Strategi c Se8l l f t
Appendi x 11
Manni n gonl & adyRemrveFl e et
VemseIs-U.S.
Coast Guard
-
MARXNLR’S
fDmIFI=TIOR
CARD [RID)
The Mari n er
Identi f i c ati o n
Curd (MID), a credi t
card type
document,
wi l
contai n
al l
the i n fom8ti o n
now on the exi s ti n g
docment,
i n cl u di n g
a di g i t i c ed
photograph
8nd thuxbpri n t.
It
wi l
have
a magneti c
stri p
wi t h
the sae8 tnforxati m
8nd the
It wi l
k a ti r e
mover tc REC
capabi l i t y
of bei n g
8canned.
personnel
i n retri e vi n g
r8cord8
and to shi p pi n g
COmpMi o ~
by
al l o wi n g
them to el e ctroni c al l y
produce
Shi p pi n g
Arti c l e s,
MusterVs
Li s t
and Certi f i c ate8
of Di 8 ch8rgr
and transfer
the
Compar~i u
thut do not automate
i n formati o n
to the Coamt Guard.
i u !mtNi f &tel y
can
use thr MID ~cL the same I(LtUIW
a8 the
pm8ent
IWD
and mbmi t
oea
servi c e
i n formati o n
to the co&St Ouurd
em thay
do
b
presentl y .
It $8 anti o i p mted
that
the paper
dooumen t8 Wi l
recei v ed
from onl y
0 few 8~11
operati n g
campani a r.
Thm MID 8ymtes
wi l
be i n tegrsted
88 p8xt of the b&rohMt
(M&D) 8yetu
el l o wi n g
HaKi l e XS'
Li C %Il S i n !J
snd Wntatl o n
i n fOML%ti O n
t0 be trEUIsxi t ted
from the PI&D 8yStU
t0 MID t0
The MID shoul d
be
el i m i n ate
dupl i c ate
work
for
REC mtaff~.
opereti o nal
when the MMLD 8yStm
is
ful l y
operati o nal ;
however,
the MID rystee
can be used
i n the event
that MMIXJ 18 del a yed.
u stand-al o ne
system
to produce
the documents.
us
The
MID 8ystem
wi l
be benefi c i u l
to the shi p pi n g
ccmp~i a 8
as it
software
to al l o w
el e ctroni c al l y
trarmei t ted
sea
wi l
provLd8
servi c e
i n formati o n
to the Coeet Guard.
They wi l
a180
have
the
capabi l i t y
to el e ctroni c al l y
prepare
and store
ahi p pi n g
arti c l r r,
The mari n er
wi l
of di s charge.
suater*m
lirt,
and certi f i c atee
be the ul t i m ate
benefactor
by:
- Conti n ui n g
to recei v e
Certi f i C 8teS
- kecei v i n g/val i d ati n g/correcti n g
sl i m i n ati n g
the need
for 8 Pri v acy
- l i u vi n g
accurate
records.
808
Act
of
Di s charge.
~rvi c e
at any REC:
request
fron Coast Guaxd.
of approxi m atel y
g1.000.000
per
Xt wi l
provi d e
a cost
savi n gs
yesr to the shi p pi n g
ccmpsni e 8
by al l o wi n g
el e ctroni c
preparati o n
Und trUn8mi 8 8i o n
Of Se& SeNi C e
data.
The Count
Guard wi l
reul i s e
8 like
8avi n g8
over
the next
fi v e
yeurs
by el i s i n ati n g
cl e ri c al ,
data emtry,
and manageri a l
poei t i o n8.
- RRGGLRTIDR PRGJRCT:
CGrtnITBIEMT WRWLDW
Currentl y
regui r ement
for empl o yment
rexove
mother
obtai n i n g
an
the
RRNDVRRRQUIREUQIT
PGR LRTTm
OF
LE a regul a tory
proj e ct
whi c h
wi l
remove
for a mari n er
to obtai n
8 l e tter
of commi t mnt
before
obtai n i n g
an entry
l s vol
MMD. Thi s
wi l
hurdl e
from the ti m e
consumi n g
Qroc0sl
of
entry
l e vel
MMIJ.
there
6
Page23
GAOLNSLAD-94-177Strategi c SeaRft
Appendi x 11
Manni n gonELeadyRese~eFl e et
Veesel e -U.S.Cosst
Guard
-
RISGULATORY REFORM
?4ARITLML
Revi e w
Consi s tent
wi t h
the Vi c e
Presi d ent' 8
Nati o nal
Performance
to Secretary
Pena' s
efforts
to revi t sl i z s
the
and as a fol l o w-on
U.S. Merchant
Mari n e,
the Coast Guard
i s devel o pi n g
a Mari t i m e
The goal
of thi s
proj 8 ct
i s to
Regul a tory
Reform
(MRR) prOj 8 Ct.
ssary
regul a ti o n
of the U.S. Marchant
Mari n e,
el i m i n ate
ul n ece
provi d e
th8
i n dustry
wi t h
the maxi m um
possi b l r
compl i a nt
uti l i z e
i n dustry
and cl a ssi f i c ati o n
eoci e ty
standard8
to
opti o n*,
and l e verage
l i m i t ed
Caaot Guard
the maxi m um
Oxtent
possi b l e ,
assets
to al l o w
for roa88i g nnmt
of peroonn81
to area8
of greatsr
need,
8uch
am port
state
enforo8m8nt.
Thi n
new
1.
bui l d er
cl a ssi f i c ati o n
regul a tory
qu&l i f i 8 d,
wsa8l s
appM8Ch
i8
R8tabl i r rbment
or owner
coul d
soci e ty
r8qui w ents;
2. Acceptance
rorponsi b l 8
3.
qual i t y
Eetabl l s hment
of a cwpany
manag-t
Coast
Guard
4.
CompOeed
than
Establ i n hment
consi o tl n g
parti c i p ati n g
of cl s 88i f i c ati o n
8xami n st~on8.
of
of
of
rel y
Of fOUr maj o r
compl i a nce
on
standarda,
r8gul a toz-y
cl a 8ai f i c ati o n
MBBITIME
compl i a nce
8uch
i n dustry
than
8paci f i c
moci e ti r 8;
wri f i c ati o n
that
a shi p
standard8
or
U.S.C.G.
by
of a Model
Company
Program
*hereby
tha
whi c h
i n ati t utad
a ri g orous
system
of
woul d
k i n epected
18s~ fr8quentl y
by th8
i s curr8ntl y
provl d ad
for by l a w: and,
of a Coast
Guard Overri g ht
Progrsm
veri f i c 6ti o n
of the
qual i t y
management
program
of
shi p pi n g
compani e m
and veri f i c ati o n
of tb
qual i t y
8oci e ty
regul a tory
compl i a nc8
i n apectl o ns
and
Thi s
new approach
wi l
fr88 up
port
stat8
control
and passenger
regul a tory
burd8ns
on the i n dustry,
effort
ktw88n
th8 U.S.C.Q. and
(MS),
promote
th8 mti t i v e
i n dustry
and reward
responsi b l e
-
opti o n8
i d anti f l e d
rather
8l e IWnt8:
PERSORHEL
r88ourc8x
vessel
that
can
b8 r8facuxad
r8Uav8
l l i m l n ete
dupl i c ati o n
of
Ameri c an
Bursau
of Shi p pi n g
posture
of the U.S. marl t i m
compani e s.
on
8afety,
REFORM
The Coast
Guard i x 8ngag8d
i n M effort
to achi e v8
a conxensu8
between
l a bor
and manageaant
i n terests
in
thm
mari t i m e
i n dustry
on a l O gi 8 l a ti V 8
i n i t i a ti v e
to r8Vi s a
the
adsti n g
MMbkg
n tatuten
.
In pl of current
r8ntrl c ti w
manni n g
provi s i w ,
the
proposed
rsvi a i o nm
woul d
i n troduce
a bal m
framewo
rk whi c h
woul d
al l o w
fl e xi b i l t y
i n the operati o n
of U.S. ~8~881s
and aet
the ntag8
for
mhan~ed
trai n i n g
and
j o b OQQOStUni t i 8 6,
Whi l e
provi d i n g
for essenti a l
safeguards.
The proposal s
b8i n g
dev8l o pad
woul d
al l o w
oparators
of U.S. fl a g
shi p 8
to take
advantage
of modern
technol o gy
and i n novati v e
managsl n ent
concepts
whi l e
preservi n g
8mpl o yment
opportuni t i e s
for U.S. m8rchant
mari n er8
and shoresi d e
SUppOrt
Q8rSOM81.
7
Page24
GAO/NSUD-94-177
StrategfeStaM
Appendi x
II
Ma
on Ready
I&serve
Vessel s -U.S.
Coast
Guard
Fl e et
MAU,YE SAFETY
l Z .D.3.
E.
Recreati o nal
Veeasl a
Of
Wotorboats
The
Mi l i t ary
At Ki l i t ary
Seal i f t
ZUNUAL
Inatal l a ti o nb.
Camand
(TO
BE DEVELOPED)
(MC).
In~wctl o n
Agrument.
Thhr ComMnd*r,
Hsc (ma arm of the U.S. NW-Y (USN))
haa requested
that
ths Coast
Guard
i n spect
and carti f i c ate
HSC vomnol n ,
merchant 8ari n era.
Such a romrl
is
whi c h
are opratad
by ci v i l a n
normal l y
demi g mtsd
VW.,
i n amvi c e,
ci v i l a n-u8ned’
on the COL; the
tom
Yn servi c e”
contrant#
ri t h
“o ommi a ai o wd”
o/pal
ohi p a,
whi c h
an
a&nned
by ri l i t ary
personnel .
HSC i n trnda
tht
no oi v i l a n~~d
vemral
wi l
be oparrted
ri t hout
a COI. unl e om
ni l i t ary
raqul m untn
make it
moraauy.
Howwor,
thr Cout
Guard
wi l
not nomal l ~
b, mked
to i m pact
fol l o rl n g
~rmal a :
and csrtfficm
1.
b.
ti d i n g
kndl r y
ormft-ty’pa
Crafts,
c.
Vuml a
that
l rai g mentm
are rsmsnti a l 4
or constructi o n
Thr Cout
Guard
til
fi l e d
to veri f y
thnt
OCl [ f’r
aha
oerti f i c ate
sodl f i o d
bJ furthor
i a ruod
to XSC vos~rl s
2.
l o Appl i c ati o n
sea @JLAs)
ci v i l a n-md”
Of Thr
74/7e.
i n epoct
they
Conventi o n
crrti f i c atmn,
requaatad
co8urci a l
ni l i t ary
ataadacda.
Tank
chu8otsr,
(LST’m )
by
and
ti r tw
of
HSC voaeol m
for vhi c h
i n rpeotl o n
nquwts
rl t h
ths appropri a te
raqui m wntm.
HSC rwrel m
that
oorpl y
wi t h
the rogul a ti o na
agrarantm
or i a structi o nm).
COI’a
mhal l
not bo
that do not uet
the rmqui m ontr.
Intmnati o nal
Commnt1on
Venarl r
crrti f i c ated
Dapartnoat
of
Of The
LCO
aa
For
“E C,
The
in
Safety
(81
Of Li f e
At
ucvl ~ ~,
General .
An raterl u k
&al l
vhth
Uar
of COI Form
and Condi t 1ar.w
of Operati o n0
tha notati o n
“I n l ccordanor
v~mal r .”
b.
e.
In
drsi g neti o na
i n ae~vi c e,
Btml a g.
aboard
shal l
of
be
lm
COX.
. .
25
in
Shi p s,
oo~pl y
be i n eertrd
at the rord
t‘hanundar”
in
CG-841.
Sn the rpcr
for -outa
Perri t tad
there
shal l
be i n urtrd
an utari u k
and
wi t h
the rtandardr
l ppl i o abl o
to KSC
s~8cr
provi d ed
“N md
tranmport/uargo
ci v i l a n-manned.”
the
In the caaa
three
addi t i o nal
i n cl u ded
for
of
for
the
rea~rl~’
vrrrel / tankshi p
C3, and C4-type
Abl e
Sba8en,
not
perooaa
authori s ed
to
PZ,
12-3
Page
Lmdi n g
are
hfonau
(LWD) varssl a
wad
for publ i c
am not subj e ct
to the raqui r aaont8
of the 1974 SC&M
md
ita
lm
Protoool ,
and @bal l
not
ruadvm
SOLAS
won
if the vrrrml
8oeta
SOW
i n ful l
l nd a oarti f i c atr
br MC.
[IIOTN;
Thi r
proti m i o n
doer
not up l y to thorn4
veaml a
on ti m
chartar
to NSC fm8
=D.
!
Kodi f i c atFons
C*
a~
and
They
pUrpOUa.
3.
veue~l ~ ,
ruch
Hedi u r
(LCH’a);
al m a,
(II
the
VICE&J,
r~qui m d
ba carri e d
i n mrt
the
appropri a te),
to
prrranoo
mtrnd
in
tha
ratcher,
crov.
ENCLOSURE 1
GAo/NsIAD-94-177
strategi c
serl i n
Maml n g
on Beady
Reserve
VWIIY-U.S.
Coast
Guard
d.
123.3.
Fl e et
Vhsn deemod
necessary
for defense
Addi t i o n
To The Crew.
by the Coarandsr,
DISC, i n spected
MSC vowel s
may carry
ci v fl i a n
or mi l i t ary
personnel
i n addi t i o n
to the crw
srprbeal y
to
Such prraorwl
shal l
not be Fnvol w d
La
carry
out vesre1
mi a si o na.
the navi g ati o n
of the vesorl ,
md
are
not
conui d ered
oembwm
of the
Thei r
praeenca
ahal l
be indicatbd
in
m abparats
crw z
passbngbra.
endorremant
of thb COX and rsfl a atsd
i n the total
of persons
al l o wed
mborrd
.
Peroonr
In
purposea
1.
Hodi f i c ati o s
a.
And
Canrral .
Currrd,ths
maat tbr
@XI may
rbqul r aments
(1)
Ihs
techni c al
(2)
Hi l i t am
a.
to
matbri a l
accept
of
safari a l a
my of
buraaur
of
thb
the
normal l y
acceptbd
by tho Coart
and aqui p ent
on l S C vouarl s
fal l 0 ti n .g
authori t i b s:
the
of
Dbprtment
(RLSPEC’m ),
that
Il a w;
i n cl u di n g
Joi n t
A-y
Eav7
sp*ci f fcati o nu;
(3)
Federal
apwi f i o sti o m
(4)
Imti o nal
Ki U tary
umed
for
mi l i t ary
(ante)
Eotabl f ahamt
or
pUrOhrl l b a;
rpsci f i c ati o an.
Yosoel ~
Of Speoi a l
Desi g n.
The C-ant
may, i n warna
of apoai a l y
deri g ned
MSC vranel a ,
pal r i t
varl a ti o nm
from atrfutory
and regul a tory
requi r ements
that
are naceraary
for the apoi a l
purpoaea
for whi c h
the
Ini t i a l
faopectl o n
fi l e s
shal l
i n cl u de
vrarel s
.ra i n tended.
cotreapandonao
and other
i n fo-ti o n
on the
varl a ti o or
al l - d;
there
shoul d
be coxuaul t bd
at rubmequant
l n rpecti o w
for cbrti f i c ati o n.
mi n i m um
StructuaL
stbrl
requi r eunto
Shi P Pl h T
t-1.
d.
Ll f oaavl l g
i n mpscted
me based
a.
Pyrotral m i c m.
rpprovad
f.
addi t i o n
l pmci f i c rti o ns
(JUT)
b.
Of Standarda.
Expl a nati o n
In
provi d ed
of
the
mot
Guard
Coast
pyrotacti c r
ui t h
they
US11 pyrotrchai c a
.
(ISI l i f efl o ata
the pro~i a l o ns
are In good
up
that
i n dsfl u i t s
or other
unuerbl l
and
Such
cana
yri o d.
defects
. Coast
&t
the
l r mat
Anrri o an
the
Bureau
of
we
carri e d
in
i d enti f i e d
lieu
by
of
Coast
nuopl a tao
arb
wIL416143
Guard
aa
l oceptabl s ,
condi t i o n.
opted
are
ua&ted
Rej e cti o n
that
Curd
ba
of IIILSPEC
bbrgency
water.
i n corporatr
for l f ~aavi n g
l qui p ent
on
I@ti p amat
. Requi n manta
verrrl r
are ahown
i n Fi g ure
12-l .
Pbrcrntage
requtnments
on the total
number
of peroono
on board.
Li h fl o rts.
compl y i n g
Theao
Ronaval s .
in
dri n ki n g
lieu
and
shal l
thr i n opector
mpprovad
of
Co&at
may remai n
be baaed
j u dges
water
cam
vetbr
curned
under
approrrd
Gurl r d
in
morvi c e
on
datari o r&i o n
to maka
wi l
be
for
tha uater
rbj w tad
IUSPEC
dri a ki q
aa
of
mfter
cane
5
years.
12-4
Page
26
GAO/NSIAD-94-177
Strategi c
Seal & t
Appendi x
Manni n g
vwl m -U.S.
II
on Ready
coaet
l b -serve
GuNrd
Fl e et
FIGUEJI
LIrcSAvfNC
LQUIPNCNT
FOR
m
12-l
cccANcoxNc
MC
VCSseLS
l o mb
D
CGrUIN
co
M
mrl m
100x
CGrusN
10%
12-5
Page
27
G4o/NSIAD-9a-1?7
stmtegk
seam
Appendi x
Munnl n g
l k zv8ekU.S.
l Z .E.5.
T.
0.
Inspecti o n
accordance
Wai v ers.
wfth the
Of The
VMM~~
II
on Ready
&serve
Coast
Guard
U.S.
Fl e et
Uei v ers
provi s i o ns
from
of
Carps
Of Engi n eers
&my
requi r ements
i n specti o n
46 CW
shal l
be
made
6.06.
(USACE).
1.
upon
appl i c ati o n
for i a epecti o n,
the
Inspecti o n
Agreement.
wi l
i n epect
and certi f i c ate
USACE vesasl s
that
compl y
wi t h
When a USACE vessel
rsqul m ments.
8tatutoy
end regul a tory
compl y
wi t h
requi r ementr,
e wri t ten
statement
of the condi t i o ne
be forwarded
to USACE, wi t h
the returned
sppl i c ati o n.
2.
Modi f i c ati o n
Comt
Guard
appUcabl 6
doeu not
found
wi l
Of Standarda.
1.
At the request
of the Chi e f
of Am
Rl g i ~ e?B,
Li f mavi n g
Equi p ent.
the Commandant
haa wcepted
uai c el l u l a r
pl a sti c
l i f aarvi n (r
ri n g bttoya,
NXISP~
NILA-0016947,
for urn. oa U8ACP vesasl u .
Agreement
hae bean
reached
wi t h
USACE on upgradi n g
of the
safety
stundrrde
for l i f euvi ~ g
The USACE hsa agreed
to repl a ce
uni c nl l u l a r
pl n eti c
foam
equi p eat.
work
vesta
(IIIL-L-17653)
ri t h
Coaet
Guard
approved
peraorul
fl o tati o n
wi l
be repl a ced
on all
USACE
devl c ea
(PFD’n)
. The ol d work veata
vsaeol e
sxcept
those
engaged
on ri v er
routea,
i n qrunti t i e r
l peoi f i e d
they
may be retai n ad
for uee by
by Co-t
Guard
regul a tl o ne.
However,
crrwmamhra
worki n g
near or over the water,
an par the rrgul a ti o nm.
b.
Hami - .
DOD/hti o nal
he
Aeroaauti c a
vol u me
And
III
Space
of
thi i s
manual .
Adni n i a trrti o n
(NASA)
Inatruuntrti o n
u.
1.
Spwi a l - purpose
shi p 8
Introducti o n.
oporrtad
ao publ i c
v~msrl s
to provi d e
mnd HASA Ei D #i I Q
ati
space
pmgrama
are under
the control
, mhi p c.
” Thhras
that
are owned
by tha U-3.
i n atrwntati o n
hci l i t i r r
are cl . ¶sead
aa “la trumeQtati o n
of the Commander.
NSC.
and
for
DOD
Gumtl.
2.
Inepectl o n
AQd Certi f i o mti o n.
Upon appl i c ati o n.
them
versel e
ril
be
i n opectrd
and certi f i c ated
by the Coast
46 Cm, Subchaptrr
I
(Cargo
and Hi s cal l a neaua
Vesaal a )
appl i s s
to Lnatrumentati o n
nhi p a,
The entry
for “T otnl
persona
sl l o ved’
on the COX
i n sof4r
ar practi c al .
sh811
be the maxi m um
number
permi t ted
by the Coast
Guard
(norml 4 ,
the
ti p mi t f
of the pri m ary
l i f esavi n g
equi p ment
aboard
xi 1 1
be the
Such verasl s
munod
by mi l t rrf
rather
tl m n
ci v i l a n
dotermi n i n g
factor).
perm~nel
vi 1 1
be awarded
Letters
of Inspecti o n
in lieu
of COI’8.
Ci v i l e n
crewmembere
muat ba l i c snaed
or certi f i c ated
LI a condi t i o n
of
Yarn the number
of persona
aboard
l xcwde
empl o yment
on ruch
vesesl n .
narul
manni n g
StAndarda,
or the vessel
vrri e a
si g ni f i c antl y
fm
the
addi t i o nal
raqufrementa
for i n proved
ataQdard
c‘argo
ahi p ”
confi g urrt
i o n,
mcoaaa
rrrd fi r e
protecti o n
may be i m posed.
3.
Spwi a l
&ard
r@ems
Coast
Inat-ntati o n
Equi p ment.
In regard
ta such
aysteru,
tha
errrci s sa
pl a n
approval
end i n specti o n
of el e ctri c al
di r tri b utfoQ
onl y
to the poi n t
of the vessels’
el e ctri c al
power
takeoff.
Guard’8
concerna
are fi r e,
personal
hazard,
and i n terference
Coast
to
mm
the
12-6
Page28
GAO/NSIAD-94-177Strutegl c Seti
in
Appendi x
III
Crewi n g
the Ready Reserve Force-RADM
Carl J. Sei b erl i c h,
USN (Ret.), Ameri c an
Presi d ent
Li n es, Ltd.
AMERICAN PRESIDENT LINES,
LTD.
CREWING THE READY RESERVE FORCE
"Crewi n g
the RRF" woul d
be
A di s cussi o n
of our topi c
INTRODUCTION:
i n compl e te
wi t hout
fi r st
consi d eri n g
the mi s si o n
Of the Ready
Si m pl y
put,
it is what the nana
i m pl i e s.
the
Reserve
Force.
1994 General
John
On February
28.
mi s si o n
is one of readi n ess.
Shal i k ashvi l i ,
Chai r man
of the Joi n t
Chi e f' s
of Staff,
i n a speech
to the Veterans
of Forei g n
Wars
conventi o n,
stated
that
Secretary
of Defense
Perry
had recentl y
i s sued
an order
to the Armed Forces,
That
an order
unprecedented
i n our nati o n' s
mi l i t ary
hi s tory.
that
the fi r st
mi s si o n
of the Armed Forces
henceforth
order
stated
Each Armed
Al l
other
mi s si o ns
are subordi n ate.
is readi n ess.
Servi c e
must fi r st
ensure
thei r
forces
are i n a hi g h
state
of
begi n ni n g
si n ce
the most
That
is an appropri a te
readi n ess.
i m portant
readi n ess
concern
i n di s cussi n g
the RRF is peopl e :
experi e nced
and trai n ed
deep
sea mari n ers
capabl e
of rapi d l y
respondi n g
i n a conti n gency
or nati o nal
emergency.
In determi n i n g
the state
of readi n ess
whi c h
must be mai n tai n ed
i n the RRF, both
materi a l
and personnel .
affordabi l i t y
versus
Thi s
is basi c al l y
a part of the
mi l i t ary
ri s k
must be assessed.
Nati o nal
assets
i n cl u de
dedi c ated
enti r e
seal i f t
asset
equati o n.
the Ready
Reserve
Force,
the
and
crewed
shi p s,
government
owned
the Effecti v e
U.S. Control l e d
Fl e et
U.S.-fl a g
merchant
mari n e,
(EUSC) and forei g n
owned
and operated
vessel s .
The bal a nce
among
these
vari o us
el e ments
must be determi n ed
by affordabi l i t y
versus
both
economi c
ri s k
and mi l i t ary
ri s k.
The RRF woul d
be i n cl u ded
in
a mi l i t ary
ri s k
assessment
whi l e
the U.S.-fl a g
merchant
mari n e
woul d
be i n vol v ed
i n both
mi l i t ary
and economi c
ri s k
determi n ati o ns.
READY RESERVE FORCE
BACKGROUND: A di s cussi o n
of thi s
topi c
woul d
wi t hout
a bri e f
revi e w
of the hi s tory
of the
i n dustry
devel o pments
wi t hi n
the U.S. mari t i m e
crewi n g
the RRF.
not be
RRF and
whi c h
compl e te
the trends
and
i m pact
upon
The RRF was formed
i n 1976 as a resul t
of the Department
of
Defense
recogni z i n g
the onl y
way i n whi c h
the mi l i t ary
strategy
of
one of forward
depl o yment
and coal i t i o n
warfare,
the Uni t ed
States;
coul d
work successful l y
woul d
be the abi l i t y
to form a "Steel
Bri d ge"
of shi p s
from the Uni t ed
States
to whatever
poi n t
i n the
worl d
a confl i c t
occurred,
Many shi p s
operated
by the U.S.-fl a g
Merchant
Mari n e,
whi c h
were
mi l i t ari l y
useful ,
had been phased
out
because
they were no l o nger
economi c al l y
vi a bl e ,
parti c ul a rl y
in
the i n ternati o nal
trade.
From a modest
force
of out-moded
Worl d
War II Vi c tory
cargo
shi p s
and a few reti r ed
Navy auxi l i a ry
vessel s ,
as shi p s
were pl a ced
out of commerci a l
servi c e,
the
hardware
of the RRF evol v ed
to a fl e et
of 96 shi p s
on the eve of
1
Page
29
GAO/NSLAD-94-177
Strategi c
Serl V t
Appendi x
III
Crewi n g
the Ready
Reserve
Force-RADM
Carl J. Sei b erl i c h,
USN (Ret.),
Ameri c an
Presi d ent
Li n ea,
Ltd.
Of these
War.
to Saudi
Arabi a .
the Gul f
vehi c l e s
78 were
acti v ated
and
transported
cargo
and
AWL has been
a General
Agent
or Shi p Manager
for the RRF si n ce
Duri n g
thi s
1979 wi t h
an average
of
10 to 12 shi p s
assi g ned.
peri o d,
35 shi p s
have
been
acti v ated
whi c h
i n cl u ded
the fi r st.
no
noti c e
mul t i - shi p
acti v ati o n
test and the 12 shi p s
acti v ated
and
operated
i n support
of Desert
Shi e l d /Storm.
AS General
Hanstord
Johnson,
CINC. of the U.S. Transportati o n
Command
(CINCUSTRANSCOM) poi n ted
out i n hi s
report
to Congress
on
sea
litt
i n Operati o n
Desert
Apri l
23. 1991 concerni n g
there
was l i t eral l y
a "Steel
Bri d ge"
of shi p s,
one
Shi e l d /Storm.
every
fi f ty
nauti c al
mi l e s
from the Uni t ed
States
to Saudi
Arabi a .
Whi l e
Operati o n
Desert
Shi e l d /Storm
i s the one mi l i t ary
experi e nce
based
on a real
si t uati o n
that we have
for devel o pi n g
"Lessons
Learned"
and for proj e cti n g
our sea lift
needs
forward
to ensure
future
readi n ess,
it i s a poor exampl e
for a number
of reasons.
We
end most
enj o yed
havi n g
the fortunes
of war on our si d e,
i m portantl y ,
we were permi t ted
the l u xury
of ti m e.
We had over
si x
and carry
out the sea lift
mi s si o n.
months
to acti v ate
shi p s,
There
were suffi c i e nt
petrol e um
suppl i e s
i n -COU?i t ry
as wel l
as
In addi t i o n,
al l
ports
and ai r fi e l d s
other
l o gi s ti c
support.
remai n ed
operati o nal
throughout
the confl i c t.
That
el e ment
of
i n sti t uti o nal
memory
must never
be forgotten.
No one can envi s i o n
the Uni t ed
States
ever
bei n g
i n vol v ed
i n a war whi c h
wi l
be fought
as pl a nned,
thus
Secretary
Perry' s
unusual
order
to our Armed
The four
core
"Lessons
Learned"
i n the Gul f
War were:
1)
Forces.
the di f fi c ul t y
of acti v ati n g
l a fd
up shi p s,
2) the crewi n g
of the
vessel s ,
3) that
hi g hl y
qual i f i e d
Port Engi n eers,
wel l
experi e nced
i n shi p s
repai r
and
mai n tenance
were requi r ed
to tend
the vessel s
duri n g
Lai d
up peri o ds
parti c ul a rl y
when fundi n g
was austere,
4)
that
a program
of frequent
acti v ati o ns
of both
vessel s
i n Reserve
Fl e et
l o cati o ns
and
out-ported
shi p s
shoul d
be i m pl e mented.
The
Mari t i m e
Admi n i s trati o n
(MARAD) recommendati o ns
to Congress
addressi n g
these
Issues
were:
1. A Reduced
RRP Shi p s
Rol l - on/Rol l - off
the vessel s
2.
3.
Operati n g
Status
Program
(ROS) for hi g h
vi s i b i l t y
wi t h
great
mi l i t ary
uti l i t y
i . e.
the
(RO/RO) vehi c l e
carri e rs
and out-porti n g
near
l o ad
berths;
The strengtheni n g
that onl y
compani e s
access
to a pool
managers
:
The requi r ement
three
Years
of
shi p yard
repai r
tend
the vessel s :
of
of
the
wi t h
deep
that onl y
actual
shi p
experi e nce
RRF Shi p Manager
good techni c al
sea
mari n ers
Program
to ensure
ski l s
and rapi d
be empl o yed
as shi p
port
engi n eers
wi t h
a mi n i m um
of
repai r ,
vessel
mai n tenance
and
be retai n ed
by shi p
managers
to
2
Page
30
GA#NSIAD-94-177
Strategi c
Seal I ft
Crew@
the Beady
Beserve
Force+RADM
Carl J. Sel b erkh,
USN (Ret.),
Ameri c an
Presi d ent
Li n es,
Ltd.
4. A program
to
trials
bei n g
acti v ate
performed
each
one
RRP vessel
year
and
sea
each
trials
year
wi t h
the
dock
next.
"Lessons
Learned"
are i m pl e mented
i n the RRF
Today
those
Program,
however
budgetary
constrai n ts
are
al r eady
erodi n g
the
a topi c
we wil
return
to l a ter
in
effecti v eness
of these
programs,
At thi s
poi n t
it is appropri a te
to di s cuss
bri e fl y
our di s cussi o n.
the mari t i m e
i n dustry
and the trends
and devel o pments
whi c h
are
i n fl u enci n g
the i n dustry
and thei r
i m pact
upon
the abi l i t y
of the
pri v ate
compani e s
engaged
as shi p
managers
of the RRF to perform
thei r
assi g ned
tasks
i n the husbandi n g
and crewi n g
of the RRF
shi p s.
THE U.S.
FLAG MARITIME
INDUSTRY
The conti n ui n g
decl i n e
of the U.S.-fl a g
mari t i m e
i n dustry
despi t e
si g ni f i c ant
gai n s
i n technol o gy,
was
pri m ari l y
caused
by the conti n ued
i n abi l i t y
to achi e ve
Congressi o nal
and
The Uni t ed
States
publ i c
support
for an effecti v e
mari t i m e
pol i c y.
is an "Isl a nd
Nati o n"
wi t h
over
95% of our waterborne
i m ports
and
exports
bei n g
transported
by forei g n
owned shi p pi n g,
therefore,
a
functi o ni n g
mari t i m e
strategy
is a necessi t y
to our economi c
and
military
heal t h.
BACKGROUND:
Accordi n g
to a study
done by the USTRANSCOM the U.S.-fl a g
5,000
shi p s
at the
end of Worl d
merchant
fl e et
decl i n ed
from over
War II, to 894 i n 1970,
and has decl i n ed
further
to l e ss
than
400
ocean
goi n g
vessel s
of all
types
as of January
1991,
and thi s
Of further
i n terest,
m
fi g ure
i n cl u des
al l
of the RRF shi p s.
has noted
that
onl y
168 of these
shi p s
have
any military
utility,
MARAD predi c ts
onl y
35 militarily
and that
i n the same report,
useful
vessel s
wil
remai n
i n the U.S.-fl a g
fl e et
by the year
2005,
j u st
el e ven
years
from now.
The response
to thi s
trend
has been
for MARAD to conduct
an aggressi v e
shi p
acgui s i t i o n
program
for the
RRF purchasi n g
both
U.S. -fl a g
and forei g n
vessel s
wi t h
a
concentrati o n
on buyi n g
militarily
useful
RO/RO vessel s .
deep
sea
mari n er
In keepi n g
wi t h
the shri n ki n g
merchant
fl e et,
empl o yment
has shrunk
from an esti m ated
110,000
peopl e
i n 1945 to
l e ss
than
27,000
persons
who fil
l e ss
than
12,000
seagoi n g
posi t i o ns.
The
is under
provi s i o ns
Admi n i s trati o n
consi d erati o n
of the
has proposed
a mari t i m e
reform
i n the Congress.
At thi s
ti m e,
program
have
not been
detsrmi n ed.
program
whi c h
the fi n al
THE READY RESERVE FORCE REQUIREMENTS
The same USTRANSCOM report
to Congress
ci t ed
previ o usl y ,
predi c ted
that based
on a study
by the
COKdSBi o n
on Merchant
Mari n e
and Defense
conducted
i n 1988 that
there
woul d
be a
shortfal l
of mari n ers
to man the RRP of 4,383
persons
by the
year
3
Page
31
GAO/NSIAD-H-177
StrategkSeaMt
Appendi x
III
Crewi n g
the Ready
Reserve
Force-IUDM
Carl J. Sei b erl k h,
USN (Ret.),
Ameri c an
Presi d ent
X&m, Ltd.
That
study
havi n g
been done pri o r
to the Gul f
W&r was based
2000.
War
the
one must remember
that duri n g
the Gul f
on a 96 shi p
RRF.
78 vessel s
acti v ated
requi r ed
that approxi m atel y
2,400
seagoi n g
The pl a nned
140 shi p
RRF woul d
requi r e
posi t i o ns
be manned.
Everyone
is wel l
aware
that
great
approxi m atel y
5,000
personnel .
di f fi c ul t y
was experi e nced
i n meeti n g
the 2,400
manni n g
l e vel
Of parti c ul a r
concern
was the shortage
duri n g
Desert
Shi e l d /Storm.
unl i c ensed
engi n eeri n g
personnel .
of experi e nced,
The sol u ti o n
to the RRF manni n g
probl e m,
whi c h
is affordabl e
a l o w military
risk
factor,
is to mai n tai n
a vi a bl e ,
acti v e
U.S.-fl a g
commerci a l
fl e et
wi t h
a supporti n g
work force
capabl e
of
Proposal s
have
manni n g
the RRF i n ti m es
of nati o nal
emergency.
Thi s
pl a n
has risk
been made to create
a Merchant
Mari n e
Reserve.
As a mari t i m e
uni o n
offi c i a l
stated
in
factors
associ a ted
wi t h
it.
the Congressi o nal
heari n g
referred
to above,
"It makes
no sense
ta
have
a Reserve
when you are not goi n g
to have
a commerci a l
fl e et
Atter
al l ,
woul d
you have
a Naval
for them to be a Reserve
for.
The i s sue
here
is the cost
of
Reserve,
if you di s banded
the Navy?"
mai n tai n i n g
a sati s factory
l e vel
of competence
of personnel
who do
not sail
on a regul a r
basi s .
wi t h
probl e m
woul d
occur
if
the RRF shi p s
were to be
A si m i l a r
an extensi v e
retrai n i n g
program
woul d
manned
by naval
reservi s ts!
be requi r ed;
Navy manni n g
cri t eri a
woul d ,
even
under
austere
and extensi v e
trai n i n g
woul d
requi r e
l a rger
crew si z es,
pol i c i e s,
be requi r ed
to mai n tai n
crew currency.
At best,
thi s
is a very
hi g h
cost
opti o n
for manni n g
the RRF.
wi t hout
fl e ets
shi p pi n g.
support
cargo
our
of
The
overseas
cargo
"back
provi d ed
current
a vi a bl e
i n order
Further,
for the
be carri e d
haul "
to
an
di r ecti o n
of the Ameri c an
Mari t i m e
Industry,
mari t i m e
program
i n pl a ce.
is to "out-fl a g"
thei r
to remai n
competi t i v e
i n i n ternati o nal
ocean
the conti n ual
erodi n g
of Department
of Defense
cargo
preference
acts
whi c h
requi r e
that mFl i t ary
on U.S. bottoms,
together
wi t h
the reducti o n
of
mi l i t ary
garri s ons,
is goi n g
to further
cause
a l o ss
remai n i n g
Ameri c an
carri e rs.
Thi s
has been
a vital
servi c e
and
whi l e
certai n l y
not hi g hl y
profi t abl e ,
has
i m portant
cargo
base
to parti c i p atfng
carri e rs.
Needl e ss
to say the "out-fl a ggi n g"
compani e s
wil
further
serve
to erode
seamen
and subsequentl y ,
i n the l o ng
RRF rapi d l y
wi t h
experi e nced
personnel
of the commerci a l
mari t i m e
seagoi n g
j o bs
for Ameri c an
term.
the abi l i t y
to man the
i n ti m e
of crisis.
Ravi n g
sai d
that,
we are compel l e d
to observe
that
the decl i n e
of the commerci a l
fl e et
and it's
job
opportuni t i e s
for Ameri c an
seamen
opens
a wi n dow
of opportuni t y
for the RRF.
The more rapi d
the decl i n e,
the greater
number
of l i c ensed
and unl i c ensed
seamen
who need work credi t
toward
vested
reti r ement
i n the vari o us
marl t i m e
uni o n
pensi o n
programs.
These
peopl e ,
whi l e
rel u ctant
to
accept
empl o yment
i n what are vi r tual l y
non-seagoi n g
posi t i o ns
in
the Reduced
OperaKi n g
Status
Program
of the RRF, wil
take these
4
Page
32
GAO/TWIAD-94-177
Strategi c
Se5IIft
Crew5ng
the Ready
Carl J. Sei b erl k h,
Presi d ent
Li n es,
Reserve
Force+RADM
USN (Ret.),
Ltd.
Ameri c an
Thi s
si t uati o n
wi l
j o bs
i n the absence
of seagoi n g
posi t i o ns.
si n ce
more and more qual i f i e d
occur
onl y
i n the short
term,
personnel
wi l
fi n d
shoresi d e
empl o yment
i n vi e w
of the
uncertai n ti e s
of conti n ued
mari t i m e
empl o yment
as the acti v e
Perhaps
the
U.S.-fl a g
fl e et
di s appears
from worl d
trade
routes.
most di f fi c ul t
i s sue
faci n g
the RRP Program
i s that
it has l i t tl e
pol i t i c al
vi s i b i l t y
wi t h
the excepti o n
of bei n g
hi g hl y
vi s i b l e
to
Thi s
l a ck
of pol i t i c al
vi s i b i l t y
i s further
budget
cutters.
demonstrated
by the fai l u re
of broad
based
support
for the
formul a ti o n
and i m pl e mentati o n
of a nati o nal
mari t i m e
pol i c y
to
support
a strong
merchant
mari n e
to provi d e
for crewi n g,
and operati n g
the RRF i n a nati o nal
emergency.
Xn
mai n tai n i n g,
1989 whi l e
MhRAD presented
a l o gi c al
and wel l
thought
out budget
for vessel
mai n tenance
of $239 mi l i o n.
they recei v ed
$89 mi l i o n.
Thi s
l e d di r ectl y
to l i m i t ed
shi p
mai n tenance.
and fewer
The fi n al
resul t
of thi s
of the fl e et.
acti v ati o ns
and sea tri a l s
was enormous
di f fi c ul t y
encountered
i n acti v ati n g
the fl e et
for the
Gul f War where
every
shi p
bad a deferred
mai n tenance
backl o g
parti c ul a rl y
for steam boi l e rs.
An i m portant
l e sson
l e arned
was
that
the acti v ati o n
of these
shi p s
was sl o w and costl y
despi t e
concentrated
efforts
by al l
i n vol v ed.
The Mobi l i t y
Requi r ements
Study
rel e ased
i n November
of 1993
cl e arl y
states
the requi r ements
for sea lift
necessary
to support
force
i n a future
conti n gency,
and the
the depl o yment
of a mi n i m um
readi n ess
l e vel
for the Ready
Reserve
Force.
The response
to thi s
has been
the out-porti n g
of the RO/RQ shi p s
of the RRF, and the
The i n i t i a l
program
pl a cement
of ROS crews
on these
vessel s .
envi s i o ned
l o -man
ROS crews
on these
vessel s ,
but,
the budget
to
Pl a ns
to "nest"
support
thi s
manni n g
l e vel
has not materi a l i z ed.
shi p s
i n out ported
l o cati o ns
wi t h
a Id-man
ROS crew for 2 shi p s
in
order
to i m prove
capabi l i t i e s
and reduce
costs
are under
revi e w.
begs
the questi o n;
"What i s Readi n ess?"
Thi s
pol i c y
A sati s factory
l e vel
of readi n ess
on a typi c al
steam dri v en
RO/RO manned
by an ROS crew i s the abi l i t y
to acti v ate
the vessel
i n four days,
and proceed
di r ectl y
to the l o adi n g
berth
on the
fi f th
day.
What does
it take
to accompl i s h
thi s
i s the next
questi o n?
Fi r st,
the vessel
must have been
sea or dock
tri a l e d
Al l
shi p ' s
defi c i e nci e s
must be i d enti f i e d
wi t hi n
the past
year.
and reduced
to those
capabl e
of bei n g
corrected
wi t hout
shi p yard
l e vel
i n dustri a l
assi s tance
such as dry docki n g,
etc.
In order
to
achi e ve
thi s
l e vel
of readi n ess,
conti n ual
comprehensi v e
shi p board
testi n g
and mai n tenance
of al l
shi p s
systems
must be performed.
Ry
reduci n g
crew si z e,
the man-hours
avai l a bl e
to perform
the needed
l e vel
of mai n tenance
i s al s o
reduced,
resul t i n g
i n a progressi v e
deteri o rati o n
of materi a l
condi t i o n.
In the current
RRF programs,
it Is possi b l e
that
the ROS program
wi l
actual l y
resul t
in
a
vari a ti o n
of a Merchant
Mari n e
Reserve
program.
We now turn
to a
di s cussi o n
of the ROS Program
and the APL experi e nce
i n the
program.
5
Page33
GACWNSIAD-94-177Strate&SeaUft
Appendi x
II1
Crewi n g
the Resdy Reserve Force-RADM
Carl J. Sei b erl i c h,
USN (Ret.), Ameri c an
Presi d ent
Li n efl ,
Ltd.
We at APL as a shi p
manager/general
wi t h
3 of them i n ROS, have
out-ported,
As we stated
earl i e r
the
experi e nce.
resuLted
i n a maj o r
taski n g
to the Shi p
ROS Crew Program
and the Sea and Dock
Wi t hi n
the
frequent
shi p
acti v ati o ns.
out ported
shi p s
i n ROS. The S/S Meteor
Cal i f orni a
Shi p yard
i n San Franci s co,
Inscri p ti o n
and Cape Intrepi d
l o cated
These
vessel s
Beaumont/Orange,
TexdS.
RQ/RO shi p s
and are of great
military
vehi c l e s
and other
wheel e d
equi p ment.
agent
wi t h
12 shi p s
had the fol l o wi n g
"Lessons
Learned"
have
Manager
Program.
i . e.,
the
Tri a l
Program
of more
year
APL has pl a ced
3
past
at Hunter' s
Poi n t
Naval
together
wi t h
the Cape
at the Port of
are
al l
hi g h
vi s i b i l t y
utility
i n transporti n g
We have
been
requi r ed
to acti v ate
and sea trial
the fol l o wi n g
Meteor,
Cape Inscri p ti o n,
Cape Intrepi d ,
vessel s
: the S/S Comet,
Cape Isabel
and the Cape Breton.
The Comet, Meteor.
Cape Isabel ,
Cape Intrepi d
and
Cape Inscri p ti o n
have been
UOS crewed
vessel s
on
In each
case
and off duri n g
the openi n g
months
of the new program.
the vessel s
were capabl e
of bei n g
tendered
to the Military
Seal i f t
Command wel l
under
the requi r ed
deadl i n es.
The pri n ci p al
reasons
for thi s
have
been the experi e nce
and fami l i a ri t y
of the ROS crew
wi t h
the vessel .
The readi n ess
of these
vessel s
has been
tested
We have
and they have
passed
real
ti m e
tests
wi t h
fl y i n g
col o rs.
concl u ded
that
the out ported
ROS vessel
program
is very
effecti v e
and that
it is i n deed
a true readi n ess
program
in
the substance
and
spirit
cal l e d
for by Secretary
of Defense
Perry
thi s
year.
The Nati o nal
Defense
Transportati o n
Commi t tee
RRF Study
Report
uti l i z i n g
Requi r ements
Study
and cargo
del i v ery
USTRANSCOM has determi n ed
that
She
assi g ned
mi s si o n,
must be compri s ed
1.
2,
52 vessel s
bei n g:
wi t h
Acti v ati o n
10
shi p s
ROS 4 day
status,
b)
42
shi p s
ROS 5 day
status.
26
shi p s
3. Total :
Acti v ati o n
10 shi p s
The
net
crewi n g
deep sea
effect
mari n ers
Noti c e
ROS 4 status,
The RQS-4 program
consi s ts
vessel s .
The 68 shi p
program
crews
tendi n g
2 out ported
every
year
(dock
trial
one
presents
the hi g hest
state
qual i f i e d
Noti c e
a)
wi t h
Associ a ti o n
(NDTA) Seal i f t
data
from
the Mobi l i t y
requi r ements
provi d ed
by
RRF,
i n order
to perform
its
of the fol l o wi n g:
cargo
Cl
C5 to
68
to
C4 based
upon
there
C15.
shi p s
ROS 5 status.
of
l o -man
crews
on out ported
RO/RO
for ROS 5 vessel s
consi s ts
of 14-man
vessel s
wi t h
the shi p s
bei n g
acti v ated
year,
sea
trial
the next).
Thi s
of readi n ess
at the l o west
cost,
is
are
that
100
empl o yed
hi g hl y
in
the
experi e nced
10 shi p
and
ROS 4
6
Page
34
GAO/NSLUb94-177
Strategi c
Seal W t
Appendi x
III
Crewi n g
the Ready
Re-serve
Force-RADM
Carl J. Sei b erl i c h,
USN (Ret.),
Ameri c an
Preal d ent
Li n en,
Ltd.
and that
476 peopl e
are di r ectl y
empl o yed
i n the 68 shi p
These
576 peopl e
pl u s
the necessary
rel i e f
ROS 5 program.
personnel
pi p el i n e
of 25% form a cadre
of over
700 peopl e
wi t h
a
hi g h
l e vel
of fami l i a ri t y
and experi e nce
wi t h
the vari o us
vessel s
In our vi e w
thi s
is the absol u te
requi r ements,
etc.
probl e ms,
mi n i m um
number
of peopl e
necessary
to mai n tai n
the RRP i n the most
Thi s
addresses
onl y
the crew
mi n i m al
state
of crew readi n ess.
We can see no al t ernati v e
except
the earl y
readi n ess
i s sue,
Mari t i m e
Pol i c y
whi c h
fosters
and resul t s
devel o pment
of a Nati o nal
i n a strong
commerci a l
fl e et
capabl e
of crewi n g
and
supporti n g
acti v ati o n
of the
Ready
Reserve
Force.
program,
CONCLUSION
of & Mari t i m e
Reform
Pol i c y
whi c h
coul d
resul t
In the absence
i n the re-vi t al i z ati o n
of the U.S.-fl a g
M8rChant
Mari n e,
one
capabl e
of
supporti n g
suffi c i e nt
seagoi n g
posi t i o ns
to guarantee
support
l a rge
pool
of the proper
mi x of deck,
engi n e,
and shoresi d e
personnel
from whi c h
to draw upon
to man the RRP, the onl y
vi a bl e
opti o n,
wi t h
its
attendant
cost
and military
risk,
is the
mai n tenance
and strengtheni n g
of the Reduced
Operati n g
Status
program
to meet the nati o n' s
seal i f t
readi n ess
requi r ements
and
ONLY the readi n ess
need,
NOT the manni n g
need
regui r ed
to actual l y
sail
the fl e et.
The RRF program
must have the same pri o ri t y
for
fundi n g
as any other
el e ment
of the seal i f t
program.
The total
manni n g
requi r ements
for the RRF, prudentl y
bal a nci n g
affordabi l i t y
and military
risk.
can onl y
be met by a vi a bl e
U.S.-fl a g
Merchant
Mari n e.
a
7
Page
35
GAO/NSuD-94-177
Strategi c SeWf%
Appendi x
IV
“D efi n i n g
Issues” i n Manni n g
RRF-Charl e s
A. Bookman,
Nati o nal
Research
Council
Mari n e
the
Mari n e
Board
Independent
advi s or
to the nati o n
sci e nti f i c
and techni c al
matters
l
Mari n e
whi c h
l
Issues”
i n Mmni n g
the RRF
Crew Si z e and Mari t i m e
(NRC, 1990)
Revi t al i z ati o n
l
Defense
Uti l i t y
l
Defense
Conversi o n
of Commerci a l
Fl e et
36
uni l
Safety
Mi n di n g
the Hehn: Mari n e
and Pi l o ti n g
(i n press)
l
l
Page
Board i s NRC operati n g
advi s es on:
of
o use of ftl e nati o n s‘ oceatz orzd constnf r8scwc8s
o heal t h of thtr ,l a l i o n’s
mati n s and mari t i m a
i n dwri a v
l
Mari t i m e
l
on
NRC i s pri n ci p al
operati n g
agency
the Nati o nal
Academy
of Sci e nces
l
“D efi n i n g
Board,
Syntheti c
Si m ul a ti o n
(prel i m i n ary
Navi g ati o n
Voyages: Shi p Bri d ge
for Trai n i n g
and Li c ensi n g
ti t l e , i n dmR)
GAO/NSIAJJ-94-177
Strategi c
Seal i f t
“D efi n i n g
R&F-Charl e s
Nati o nal
Issues”
i n Mami n g
A. Bookman,
Research
CouncU
the
Mari n e
Board,
-.-.
hi n i l C
m
Nat i n ml
.-_~-.
-_.
Val u e
Oonnl
Rcscnrch
Counci l
of U.S. Trade
- .-.--~..
I-______-_I
hl
n
rl
ooml
n
r
m
Nhmnnl
Rcrcnni ~
1901
Total F&e! Si r e, U.S.-Fl a g
Shi p s Over 1000 Gross Tons
Co~l n cl l
1007
IO00
l Q e4
19QO
I991
2
Page
37
GAO/NSJAD-94-177
Strategi c
SeaWt
Appendi x
IV
“D efl n hg
RRF-Charks
Issuea”
Nati o nal
Average
l
l
Crew
Present
U.S.
Present
Europe
Research
i n Mannhg
A. Bookman,
the
MarIme
Board,
Counci l
Si z e
a Number
conti n ues
* Opportuni l i e s
Jobs
l
l
Page
38
of U.S.-l l u g shi p s
to decrease
for scn servi c e
Restructuri n g/Ski l s
Competi l i o n
for the l a bor
GAOINSIAD-94477
Changi n g
pool
Strategi c
Seal l f t
Appendi s
D‘ efi n i n g
RRF-Charl e s
Nati o nal
Mari t i m e
IV
Issue”
i n Manni n g
A. Boohnan,
Retsearch
Coaancl l
the
Mari n e
Board,
Revi t al i z ati o rt
l
Ensure fai r i n ternati o nal
0 Negori u rc rhmugh OECD
l
Improve
o End$oni g n
Two Separate
l
Programs
No Di r ect
Li n k
Between
El i m i n ate
l
Programs
l
I[
l
l
Support
52 Li n er
0 $2.5 mi l i o nl s i r i p l y ear
o $2 mi l i o nl s l r i p l y ear
Shi p s
unnecessary
Fi n ance
shi p
o Ti t l e
Xl l o an
Assi s t
regul a ti o n
constructi o n
standards
sal e s
amntees
cam?rs
to 8”.ore~gn
i n ternati o nal
Recent Mi l i t ary
marketi n g
Depl o yments
II
Requi r i n g
Seal I ft
Si n gl e theater (e.g. Desert Shi e l d tSkxm;
Somal i a )
Secure .cw l i n es o~commurri c ufi o n
Broad al l i e d
& i n ternati o nal
support
Al l i e d
& non-al i g ncdl o rr;gn-gag
bof!oms avai l a bl e
on chatter
0 Rel a ti v el y
short dwati m r
2004
4 Uncertai n
Requi r i n g
o No trade route or servi c e
o OK to opemte forei g n-fl a g
government
Technol o gi e s
0
0
o
o
thm 1997
thru
- Manu$acturi n g
and Informal i o n
pmi c cts
and i n dustry
cost-shari n g
o DOD - Acqui s i t i o rl
rcj o rm
o USCG - Standardi z e
i : ~ternati o nal
o OSHA - &date
standards
o Avai l a bl e
l
subsi d i e s
competi v cness
0 MARl T ECH
o hrdustry-i n i t i a ted
o Govemmen~
o Strengtheni n g
Ameri c a’s
Shi p yards
0 Mari t i m e
Securi t y Progrum
l
shi p bui l d i r rg
trade
0
o
o
o
o
regdati o ns
feeder vessel s
Character
of Future
Cri s es
ScnMt
I
Si n gl e or mtdfi p l e
t?i e nfersP
Secure or chal l e nged
sea l i n es oj c ommuni c ati & t7
Broad or narrow al & d & i t rtemati o nl l
support?
Al l i e d
dr non-al k ned
boor/urns avui ! abl e ?
Li m i f cd
or ertended
crki s (and seal i / l nqui r emen!s)
7
4
Page
39
GAo/NsIAD-94.177
stl w egi c
Seal I rt
Appendh
“D e5ni n g
RRF4harl e a
N
l s auean
Nati o nal
Research
i n Manni n g
A. Bookmm,
the
Mari n e
Board,
Counci l
hIlli K l k ad
Nal h ul
Rtvrtch
Skil s
Cowdl
Needed
Navi g ati o n
a Pi l o ti n g
l Shi p handl i n g
0 Usi n g assi s t tugs
l Naval
Control of Shi p pi n g
l
0 Appropri a te
goal s
o Man thcpmj c cted
0 Hfl r sl l e r
coti h genci e s?
0 Skil s
needed
RRF?
or
i n the nxwi t i n ~e
rcscrvc
force
o Has anyone
done a fhcti o nul
anal y si s
and C it adequetc?
o W71af nddi t i o ml
howl e dgc
nr~d skdi s wi l be rrqhcd
over und above normal
peaceti m e
morrntng mqni r emenl s ?
Pol c nti n l
o Hove he
functi o nal
l
a Mensurcs
knowl e dge
personnel
resource
pool r been ndequntel y
nerds, capabi l i t i e s,
to restore,
and skil s
l
l
to
C31
Damage Control
Cargo Handl i n g
Expl o si v es
Loadi n g
l
pool s
i d cnti / ed
wi t h respecf
and avai l o bdi & ?
mai n tai n ,
Warti m e
l
l
Physi c al
Securi t y
0 Port 0 erati o ns
l Other. P
and devel o p
AUatti x An&i e
to Vnde~l a
PoteRdal c4l n l f butl o nr
mari n e personnel
l Coastwi s e
shi p pi n g
l U.S.-fl a g
forei g n trade shi p pi n g
l U.S. mari n ers
servi n g aboard forei g n
fl a g shi p s not under U.S. effecti v e
control
l Shore-based
mari t i m e
academy grads
a Uni f ormed
servi c es
6 Towi n g
i n dustry
l Fi s heri e s
__--. .-__--_
--._-..-
r
l
aftha Pool s
Functi o ns
Merchant
H
5
Page
40
GAO/NSIAD-04-177
Strategi c
Seal i f t
“D efl n hg
RRF-Charl e a
Nati o nal
l
Cl e ar
statement
I Anal y ze
ski l s
l
in w
A. Bookman,
Beeear&
Coundl
the
Mari n e
Educati o n,
& Li c ensi n g
Goal :
To chart the course for
i m provemenb
i n career preparati o n
and
career-l o ng
ski l devel o pment
and trai n i n g
to i m prove
professi o nal
competency,
and
to ussure mari t i m e
safety and
envi r wxmental p rotecti u n.
of personnel
to educati o n
trai n i n g
base
+ Are we trai n i n g
captai n s/seni o r
PC =C(Ktrowi e dgq
Ski &
l 3 peri m ce)
Assuri n g
l
professi o nal
l
competence
l
l
Impl i c ati o ns/readi n ess
undergraduates
to be
managers
at 22?
0 What ski l s and knowl e dge
at the entry l e vel ?
Upgradi n g
ski l s , knowl e dge
(e.g. to use new technol o gy)
l
Trai n i n g
needed
Matri x pool s & functi o ns
l o provi d e
poi n t of departure
for program desi g n
* Attend
Board,
Mari t i m e
of goal s
Assess potenti a l
resource pool s
l
hues”
for mobi l i z ati o n
are needed
How shoul d those ski l s be acqui r ed
and enhanced
duri n g a career?
What are the i m pl i c ati o ns
For l i c ensi n g?
for trai n i n g?
6
Page
41
GAO/NSIAD-94477
Strategi c
Seal & %
Appendi x
V
GAO Ready Reserve
Workshop-Jerome
Maritim e
Offi c ers
Force Crewi n g
E. Joseph,
Ameri c an
GAO
Presented
Page
by:
42
READY
CREWING
RESERVE
FORCE
WORKSHOP
Jerome E. Joseph
Executi v e
Vi c e Presi d ent
Ameri c an
Mari t i m e
Offi c ers
GAWNSSULD-B4-177
Strategi c
SeaIi f t
Appendi x
V
GAO Ready
Reserve
Workshop-Jerome
Mari t i m e
Offtcers
Force
Crew&
E. Joseph,
Ameri c an
INTRODUCITON:
1 am greatl y
Mari t i m e
Offi c ers,
col l e cti v e
bargai n i n g,
honored
an
and pl e ased
organi z ati o n
whi c h
USCG l i c ensed
U.S. fl a g merchant
shi p s.
The vessel s
upon
i n l a nd
wel l
of the worl d .
compani e s
the oceans
and operati o n
represents,
mari n e
whi c h
Ameri c an
offi c ers
through
empl o yed
our members
We al s o
of Ready
contracts
have
wi t h the Mari t i m e
Reserve
Force
on
are empl o yed
waters and on the coasts of the Uni t ed
who, i n turn, have contracts
mai n tenance
representi n g
pri m ari l y
merchant
trade i n the Great Lakes,
as upon
to be here
States as
wi t h
several
Admi n i s trati o n
for the
(RRF) fl e et the subj e ct
of
thi s workshop.
BACKGROUND:
When
Shi e l d ,
upon
the “b al l o on”
the commerci a l
went up si g nal l i n g
the begi n ni n g
of the Uni t ed
State Mari t i m e
si d e
to serve as we di d i n every
i n vol v ed.
Before
stati s ti c al
rhetori c
other war/emergency
we get too i n vol v ed,
as to the si g ni f i c ant
i n past wars and pol i c e
That part of hi s tory
acti o ns
is wel l
the Industry’s
i m portance
repeated
here.
I wil
is asked
to serve two masters.
Industry
i n whi c h
rol e the U.S. fl a g merchant
where and when our Nati o n
documented
and known
is not to be mi n i m i z ed
is vital
line
not
mari n e
when no mi l i t ary
pl a yed
sai d thi s ,
it is not
securi t y
when i n ti m es
scenari o
in
its servi c es.
because
to our nati o nal
was
engage
to all, but havi n g
One master is our Nati o n
bottom
was cal l e d
requi r ed
merel y
Desert
our Nati o n
l e t me say that I wil
say that thi s Industry
and the other is the fi n anci a l
of Operati o n
and
of need
requi r es
the
2
Page
43
GAO/NSIAD-94-177
Strategi c
Seal i f t
Appendi x
V
GAO Beady
Reseme
WorkshoHerome
Mari t i m e
Ofl l c ers
servi c es
l o ver
Force
Crewi n g
E. Joseph,
Ameri c an
of thi s Industry.
and
duri n g
Duri n g
peace
emergenci e s
we are l e ft
competi t i o n
whi c h
can compete
head to head wi t h forei g ners
forei g n
standards
Nei t her
opti o n
is at ti m es unfai r
of l i v i n g
begi n ni n g
and troops,
most expedi t i o us
possi b l y
as i n surmountabl e .
onl y
of DESERT
and effecti v e
here knows,
manner.
the i n sane
Hussei n
were sati s fi e d
fl o w
of troops
pl a yed
and
as di d
engaged
i n thi s operati o n
to arri v e
or nearl y
SEALIFT
commanded
its forces.
to the beaches
of surge
SHIPS (FSS) and the MARITIME
wi t h
many
chartered-i n
commerci a l
RRF shi p s,
all
8 FSS’s
and the MPS’s
MSC’s
our contractual
were the AM0
Commandant
The
and sustai n ment
part, we suppl i e d
Gul f
of the
by shi p s.
AMO’s
at the Persi a n
The surge
to command
For
mai n tai n i n g
i n the
the Coal i t i o n,
vessel s .
whi l e
of
no one coul d
accompl i s hed
and a host of other MSC chartered
Corp.
requi r ements
so. The sustai n ment
part i n the carri a ge
fl a gged
to 43 acti v ated
U.S. Mari n e
to thei r s.
at that ti m e
to bui l d -up
of same del i v ered
the FAST
Offi c ers
al l o w
was al s o
SHIPS (MPS) al o ng
U.S. and forei g n
shi p s
materi a l
a si g ni f i c ant
PREPOSITIONED
vessel s
i n all respects
wi t h over 90%
commerci a l
occur:
had to be accompl i s hed
woul d
requi r ements
requi r ements
forei g n
We, Ameri c ans,
surge
Of course,
States, all the ti m e i n the worl d
RRF shi p s
to face
or ours go down
SHIELD,
by the Uni t ed
requi r ements
a spumed
if one of the two prospects
up to our l e vel
as everyone
have known
constant
for oursel v es
like
is acceptabl e .
At the very
materi a l
to fend
as wel l
come
we are romanced
stated
vessel s .
contracted
that duri n g
Li c ensed
whi c h
were
commi t ments
to
In fact, the first
MPS’s
for the
the hei g ht
of
3
Page
44
GAOINSIAD-94-177
Strategi c
Seal l P t
Appendi x
V
GAO Ready
Reserve
Workshop--Jerome
Mari t i m e
OffIcera
DESERT
Uni t ed
Force
Crewi n g
E. Joeeph,
Ameri c an
SHIELD/DESERT
STORM
States to the Persi a n
Whi l e
DESERT
there
may
30 mi l e s
from the
Gul f .
be some
SHIELD/DESERT
comfort
STORM
requi r ements,
there were enough
assured
not exi s t
wil
there was a shi p every
i n the success
al o ng
pecul i a ri t i e s
i n future
of the mi s si o n
wi t h the ful f i l m ent
of the seal i f t
i n that operati o n
Permi t
acti o ns.
of
whi c h
me to list
we can be
some
of our
observati o ns:
Thi s
1.
support
war was acted out on the worl d
and prosecuted
2.
The
pri o r
to any mi l i t ary
3.
The
and suppl i e s
Coal i t i o n
shooti n g
was abl e
acti o n
wi t hout
nati o n
whi c h
5.
no shi p s
Operati o n;
its forces
publ i c
nati o ns;
for about
6 months
i n terrupti o n;
bui l d -up
of fri e ndl y
forces
ti m e schedul e ;
had no navy
were
of many
started after a compl e ted
army i n the worl d
There
consi s ti n g
to bui l d -up
on the Coal i t i o n’s
The offendi n g
4.
by a Coal i t i o n
stage wi t h worl d wi d e
was bi l e d
as havi n g
the thi r d strongest
or ai r force worth tal k i n g
l o st
due to enemy
acti o n
about;
all
through
thi s
and
4
Page
46
GAO/NSIAD-94-177
Strate&e
Seal i f t
Appendi x
V
GAO Ready
Reserve
Workeho@erome
Mari t i m e
omcers
Force
Crewi n g
E. Joseph,
Ameri c an
Because
6.
requi r ed
there was no threat to the sea l a nes,
to uti l i z e
forces,
naval
or ai r , to protect
To have a great deal of comfort,
i n herent
i n a vi c tory
the l e ast.
Thi s
engagements
That
wil
not be prosecuted
is favorabl e
One whi c h
to our team.
wil
wil
wi t h
the fl o w of goods
some abi l i t y
to stop, by force or by economi c
requi r ed
the same
favorabl e
on thei r enemy’s
for the prosecuti o n
to say
agai n .
Future
ci r cumstances.
a more formi d abl e
and personnel .
to be conducted
fl a g shi p s
be recreated
capabl e
engagement
pri d e
fool h ardy
never
We must anti c i p ate
have an ai r force and navy
seas i n terrupti n g
Nati o nal
from thi s war is i n deed
now hi s tory,
was not
the fl o w of suppl i e s.
other than the humani s ti c
of thi s magni t ude,
engagement,
the Coal i t i o n
of reeki n g
havoc
One whi c h
wil
ti m e tabl e .
enemy;
on the hi g h
not al l o w
One whi c h
wil
the
have
threat, the use of other nati o nal
of the acti o n
by the Uni t ed
States+
DISCUSSION:
It is not for me or any other ci v i l a n
engage
qui t e
an enemy,
di f ferent
it al o ne”
shoul d
basi s
however,
than the l a st.
because
be prepared
dependence
on others
our materi a l
we wil
to advi s e
opi n e
Therefore,
war scenari o s
for the worst
case
for equi p ment
or personnel
Therei s
on how to
that the next enemy
when we are commi t ti n g
to our troops.
the mi l i t ary
scenari o .
i n war wil
must be pl a nned
Ameri c an
l i v es
Thi s
on a “g o
to an effort we
means
no pl a nned
of war and the shi p s
mi n d
to carry
that if the sea Ian@
DfDESFRT
STORM
that t&
5
Page
46
be
~~SLPD-94-177Strateei c Sesl i t
Appendi x
V
GAO Ready
Reserve
Workshop-Jerome
Mari t i m e
Oftl c ers
Force
Crewi n g
E. Joseph,
Amerkan
ber of chartered
fom
shi p s
a&&i r
crews
woul d
not have
been
gvai l a bl e w
Defense
our Nati o n
There
of our Nati o n
is i n vol v ed
“ifs”
and Ameri c an
l i v es
The
mi l i t ary
the degree
confl i c t.
ti m e
mi g ht
of abi l i t y
Hi s tory
combat
mi l i t ary
fri e nds,
tells
turned
defense
and the onl y
wi t hout
questi o n
where
of any Nati o n,
a hi g h
our requests
l o gi s ti c al
suppl y
Securi t y
and future,
materi a l
l e vel
is l i m i t ed
to support
for numerous
i n dustry
is trul y
upon
whi c h
to
of the
troops
In past wars, fri e nds,
uni t
is i n
to the l o cal e
of abi l i t y
for support
U.S. mari t i m e
enti t y.
way.
and
does not mean a thi n g.
A strong
our Nati o nal
past, present
personnel
i n whi c h
on any non-Ameri c an
are put i n to harms
down
occasi o ns.
good
in
tong
reasons
on
the fourth arm of
our troops
can rel y
or fear.
The subj e ct
of thi s conference,
there is a strong
Iogi s ti c al
program
is l a udabl e
seri o us
and potenti a l y
ever growi n g
si t uati o ns
in
us that wi t hout
mi g ht
of any engagement
not be dependent
to suppl y
several
link
the RRF fl e et, is an attempt to i n sure
i n the defense
to say the l e ast.
fatal fl a ws.
is the probl e m
that wil
of readi n ess
of bei n g
abl e
be requi r ed
requi r ed
chai n .
The purpose
However,
j?j&,
cost to the Government
ti m e at the Ievel
numbers
shoul d
can not be any
questi o n
and the prosecuti o n
it contai n s
of the BIQ
di s ti n gui s habl e ,
but not the most i m portant,
to mai n tai n
idle
by the Department
to obtai n
qual i t i e d,
for i m medi a te
shi p s
for l o ng
assi g nment.
fl a w is the
peri o ds
of Defense.
experi e nced
that
mari n ers
The probl e m
of
Second,
i n the
becomes
6
Page
47
GAOINSIAD-94-177
Strategi c
Seal I ft
Appendi x
V
GAO Ready
Reserve
Force
Crewi n g
E. Joseph,
Ameri c an
Worbhop-l e rome
Mari t i m e
OtYi c ers
more
acute
each
wi t h
outdated
technol o gy
over the
years.
The
rol e
JGrth,
because
the l i o n
Others
program
J&i &
the condi t i o n
on these vessel s
Ameri c an
al s o
shi p yards
i n the new
of Nesti n g
be a substanti a l
acti v ate
year.
housed
of the shi p yards
somewhat
wil
passi n g
a si g ni f i c ant
factor
are becomi n g
a vani s hi n g
enti t y.
RRF fl e et
for speedy
and
becomes
readi n ess
and other new concepts.
requi r ement
of the shi p s
pl a n
is di m i n i s hed
However,
and effecti v e
there is and
shi p yard
repai r s
to
share of the RRF fl e et.
here today
wil
no doubt
but do we get the bang
and wil
chance
i n crease
for the buck?
fl e et, do we feel comfortabl e
the cost to the taxpayer
In the remote
such as the RRF fl e et.
costs, l e t me say that it is l a rge
address
that no one addresses
each year.
Wi t h
Cost is one thi n g,
ah the dol l a rs
that there is 110%
defense
for a
spent
rel i a bi l i t y
i n the RRF
for the l o ng
term?
The
i n herent
answer
fl a ws
passes
there can not bc l o ng
is no;
contai n ed
i n thi s program:
them by; the mari n ers
term rel i a bi l i t y
Shi p s
get ol d ;
because
i n dustry
of the
technol o gy
get ol d ; and fewer and fewer new mari n ers
come
i n to the Industry.
I do not advocate
the mai n tenance
and Reduced
That is the furthest
these
l i n es
the abandonment
thi n g
Operati n g
Status (ROS) crewi n g
from my mi n d.
is a modi f i c ati o n
surge and sustai n ment
of the RRF program
seal i f t
What
to the program
capaci t y
it needs,
wil
save mi l i o ns
i n cl u des
of these vessel s .
is uppermost
whi c h
whi c h
i n my mi n d
gi v e
al o ng
our mi l i t ary
of taxpayers
the
dol l a rs
7
Page
48
GAO/MUD-94-177
Strategi c
Seal U t
Appendi x
V
GAO Ready
Reserve
Workshop-Jerome
Mari t i m e
OfI!i c ers
and i n sures
Force
Crewi n g
E. Joseph,
Ameri c an
the avai l a bi l i t y
of trai n ed
. .
m
y&l e
to peace
and experi e nced
have an acti v e
and formi c J.&l e
The RRF Fl e et
combat
scenari o
however
where
to i n sure
be avai l a bl e .
Shi p s
i n maki n g
and how are we goi n g
the acti v e
U.S. fl a g merchant
i n creases
and
technoIogi c al l y
counterproducti v e
tn hi g h
The
numbers...
current
vessel .
vessel s
i d ea
worthy
vi e w
regardi n g
Manpower
about
whi l e
havi n g
the merchant
mari n e
one thi w
trai n ed
become
to remai n
seafarers
ol d and
become
avai l a bl e
rnh
sol v es
..
acmes extent one.
dol l a rs
di f ferent
one ROS crew servi c e
reserve
As
merchant
one mi l i o n
to support
is
on the RRF fl e et
eventual l y
of thi s program.
and have pl e dged
i n the l a st
probl e m
as age and useful n ess
tryi n g
of any
mari n ers.
and
an acti v e
are al w ays
affect the mi s si o n
of pursui t
and experi e nced
needs onl y
casts the navy
used
The bi g ger
experi e nced
Am.
si d e by si d e
schedul e .
put i n to the RRF wil
and the Navy
and not adversel y
wi U
part of thi s scheme,
the dependency
of avai l a bl e
and that is j&s.
program
MARAD
thei r
they may be repl a ced
factors.
whi c h
requi r ements
are the easi e st
fl e et decl i n es,
shi p s
stagnant,
that the seal i f t
to fi n d the trai n ed
the number
Even though
Program
that a few out of thi s program,
had probl e ms
decreases.
Sm
wi t h a W
is i n exi s tence
wil
JOE best ark!
of vessel s
we must recogni z e
confrontati o n,
Uni t ed
i n war u
v of t-es
mari n ers.
it.
i d ea and wil
a year per RRF
i d eas
to reduce
cost
The i d ea
of nesti n g
two
both is, we beti e ve,
an
(We have the opposi t e
not support
same but
8
Page
49
GAO/NSIAD-94-177
Strategi c
SeaUft
Appendi x
V
GAO Ready
Reserve
WorkahoHerome
Mari t i m e
Offi c era
Force
Crewi n g
E. Joseph,
Ameri c an
remai n
open COfurther di s cussi o ns.)
But, I can not hel p harbori n g
feel i n g
that over ti m e, the number
of mari n ers
i d ea and al s o fiIl the future need of shi p s
wil
to each’s
to support
requi r ed
thi s nesti n g
operati o nal
manni n g
not be there.
Therefore,
it is our fi r m bel i e f
an acti v e
part and an i n acti v e
ACTIVE
PART:
Commerci a l y
chartered
hi r e
requi r ed
the same ugl y
vessel s
i n the RRF
to U.S. fl a g shi p ownersl o perators
U.S. fl a g
compete
in
Obvi o usl y ,
and
trade
shoul d
routes
avai l a bl e
where
to the Navy
of thi s can be worked
Government
deci d es
is a good
there
The
i n fl o w:
to mai n tai n
somewhere
are no
wi t hout
A. The
of cash
approxi m atel y
the vessel
around
if such
Ameri c an
any di f fi c ul t y
The charter
wi t h other
vessel
fl a g
is to
competi t ors.
that the vessel
crew when
through
needed.
di s cussi o ns
the government
wi I 1
The
once the
deci d e
that thi s
to thi s i d ea:
from
the Government’s
one mi l i o n
dol l a r
i n the RRF program
four mi l i o n
to do so.
guarantees
To hel p
be bareboat
is to compete
wi t h the experi e nced
thi s is a good i d ea.
outfl o w
have two parts;
shoul d
reduced
must i n cl u de
i d ea l e t me rel a te the upsi d e
1.
who wi s h
be appropri a tel y
the terms of the charter
be made
program
rate if the vessel ( s)
be at the market
vessel s
shoul d
part:
useful
rate shoul d
detai l s
that thi s program
dol l a rs
coffers
per shi p
now becomes
becomes
an
per year cost
revenue
of
per year; and
9
Page
60
GAO/NSLAD-94-177
Strntegl c
SonUt
Appendi x
V
GAO Beady
Reserve
WorLshopJerome
Mari t i m e
The
Navy
enhanced
wil
i n come
swi n g
a trai n ed
and
is further
Ameri c ans.
i n cash
per shi p
Further,
avai l a bl e
a trai n ed
be tax payi n g
$5,000,000.00
of the types of the vessel s
RRFprogram
appl i c ati o n
fl o w
wil
per year
manpower
not
poo1 of
to serve our Nati o n,
Agai n
we endorse
ensuri n g
that a suffi c i e nt
be avai l a bl e
not i n cl u de
number
probl e ms.)
Addi t i o nal l y ,
effort by all l i k e
manpower
shi p
our school
al s o
permi t ted
SHIELD,
and shi p ped
non-members,
reserve
to work
to i n sure
reti r ees
we wai v ed
out our school
and others
shi p
all
does
or any vari a ti o n
MARAD
that personnel
of
and crew
Our endorsement
manni n g
of whi c h
i n the
as a way
Offi c ers
program
wi t h
chai n
and wi t h ROS
concept
when needed.
regardl e ss
conti n ue
if appropri a te,
of emergenci e s,
sources
At the on set of DESERT
cl o sed
ready
defense
shoul d
and experi e nced
mari n e
at ti m es
to an acti v ated
ti o ns,
of trai n ed
merchant
we stand
therefore
and ROS crewi n g
these vessel s
the so tai l e d
for the l o gi s ti c al
wi t h nesti n g,
the nesti n g
to acti v ate
(However,
requi r ed
whatsoever,
as it is now consti t uted
crews.
assi g ned
wil
esti m ated
by about
be readi l y
wi t h
PART:
no commerci a l
same.
seafarers
and other tax revenues.
seafarers
shi p
our Government’s
those empl o yed
the budget
i n come
Many
wil
mai n tai n ed
can see, the conservati v el y
affect
INA(Tl T W%
have
a wel l
because
As you
Ameri c an
wi t 1 have
crew at no cost whi l e
experi e nced
counti n g
Ameri c an
Offl c em
2.
posi t i v el y
Force Crewi n g
E. Joseph,
of
on manpower
shoul d
be a uni f i e d
can be i m medi a tel y
or who the operator
shi p pi n g
students
rul e s
and restri c -
and i n structors,
to be assi g ned
is.
We
to contracted
10
Page
61
GAO/h?XAD-94-177
Strategi c
Seti
Appendi x
V
GAO Beady
Eeserve
WorkshopJerome
Mari t i m e
Force
Crewi n g
E. Joseph,
Ameri c an
Offl c era
vessel s .
Our goal
was to keep
matter what.
Many
now
i n unrel a ted
engaged
gi v en
former
no assurance
Reempl O vment
members
wi t h appropri a te
empl o yment
of keepi n g
ashore
thei r
of our Armed
REEMPLOYMENT
are a number
that a suffi c i e nt
avai l a bl e
duri n g
Government
and shoul d
States is the onl y
and expectati o ns
wherever
forei g n
of ways
number
of trai n ed
Many
super
power
by worl d
gi v en
dol l a rs
have bui l t
MAFLINERS
we,
It is our dol l a rs
thi s program,
is a huge
wil
and wi t h
be
The
that title
comes
mi r acl e s
and enforce
wi t h
fl e ets.
thi s
For the
trade was carri e d
nati o n
of the worl d ,
that pay for the constructi o n
and thei r use i n our trade that causes
our merchant
It is the U.S. Navy
the safety of the sea l a nes
guarantees
wil
category.
cost associ a ted
ocean
wil
be of no cost to our
most of the worl d
as the consumi n g
whi c h
seafarers
to perform
of our i n ternati o nal
for whi c h
whi c h
Thi s
to parti c i p ati n g
the “p rotecti o ni s m”
ci t i z enry
Ameri c an
i n our currency.
e merm
and experi e nced
i n the worl d
There
fl a g vessel s
tQ
RRF:
of these i d eas
not be put i n to
95%
who vohmteer
get the MERCHANT
to compl e ment
occurs.
over
but were
after the effort was over.
as that ri g ht
TO THE
vi o l e nce
l a st two decades,
no
ACT PASSED!!!
emergenci e s.
responsi b i l t y.
Let’s
PROGRAMS
guarantee
peace
Forces.
RIGHTS
COMPLl 3 MENTING
demands
to be assi g ned
must be a matter of l a w for &rers
. .
i n a Nati o nal
shorgsi d e
cauzs
to D -ate
non-vohl n teers
Uni t ed
job
goi n g
and experi e nce
l i c enses
asked
shoresi d e
be done now and to the same degree
There
to our troops
ri g hts
-thei r
shoul d
the ftow of suppl i e s
of forei g n
fl e et to decl i n e
on
pay
fl e ets
each year.
of the worl d ...
11
L
Page
62
GAO/NSIAD-94-177
Strategi c
Seal i f t
Appendi x
V
GAO Ready
Reserve
Workshop-Jerome
Mari t i m e
Ofeeers
pai d
Force
Crewi n g
E. Joseph,
Ameri c an
A chart that depi c ts
for by US. taxpayers.
merchant
Uni t ed
fl e ets
States,
expanded
from 10 when I began
are i n cl u ded
II.
the scope
of carga
and i n sure
to i n cl u de
the
on a chart that is
my career.
Some suggesti o ns
preference
l a ws so that more types of vesseIs
that one Ameri c an
Al l o w
documentati o n
to Ameri c an
Insure
of newl y
Industry
that the demi s e
of compl e ment-
is not favored
over another
abi l i t y
on a worl d wi d e
Do not pass l a ws
even l e ss competi t i v e.
than 95% of the shi p s
If our Government
l o gi s ti c al
link
THANK
YOU.
domesti c
cal l i n g
is not on the hori z on
or forei g n,
pol i c i e s
equal l y
all
term bareboat
whi c h
by doi n g
adversel y
away
affect thei r
whi c h
such
l a ws
causes
the U.S. fl a g
and pol i c i e s
to be
to the better
at our ports.
were to entertai n
i n our defense
on l o ng
basi s .
or i n sti t ute
Appl y
shi p s
for U.S. fl a g operati o n.
of our shi p yard
or pol i c i e s,
to compete
constructed
shi p ownersl o perators
wi t h any practi c es
IV.
basi s
Industry.
charters
III.
on an annual
of nati o ns’
are:
Amend
Ameri c an
al m ost
standi n g
We now rank no better than 16th i n the worl d
i n g programs
I,
has to be expanded
worl d
chai n
wil
any of these “n o cost” concepts,
al w ays
the
be unbreakabl e .
12
L
-
Page
53
GAOINSLAD-94-177
Strategi c
Seal i f t
Appendi x
VI
GAO Ready Reserve Force
Workshop-Captai n
John
Internati o nal
Organi z ati o n
Mates, and Pi l o ts
Crewi n g
Wal t on,
of Masters,
Pursuant
to the General
&counti n g
Offi c e
(GAO) request
that
the
Internati o nal
Organi z ati o n
of Masters,
Mates
S Pi l o ts
(m&PI,
IL&
AFL-CIO
respond
to crewi n g
pol i c y
i e sues,
defi n e
the probl e m
and
offer
suggesti o ns
as rel a ted
to stated
observati o n8
and obj e cti v es
Thi e ,
however,
-- one i s sorel y
tempted
to angage
i n rhetori c .
i s ful l
of MMhP' s
Furthermore,
the record
sol v es
nothi n g.
accompl i s hments
i n war and peace
dati n g
back
to and beyond
Worl d
War
So, to reci t e
a l i t any
of deeds
i s but sel f -servi n g
end not
II.
confronti n g
the probl e m
presented.
We are compel l e d,
however,
to preface
any further
di s cusei o ns
of
the i s sues
we percei v e
as i m portant
by commenti n g
on the anomsl i t y
between
DOD' s needs
and deeds.
WD i a represented
i n thi s
context
by the Navy through
the Mi l i t ary
Seal i f t
Command
(MSCI.
So. before
we can di s cuss
the probl e ms
at hand we must draw from the past
from our hi s tory
- our heri t age.
Central
to the i d enti t y
of the
U.S. Fl a g
Merchant
Mari n er
are the wri t i n gs
of that
great
naval
hi a tori a n/strategi e t
Al f rad
Thayer
Mahan.
quote:
"The necessi t y
of a navy,
i n the restri c ted
spri n gs,
therefore,
from
the exi s tence
of
di s appears
wi t h
it,
except
i n the case of
aggressi v e
tendenci e s,
and kaepa
up a navy
the mi l i t ary
establ i s hment.*
sense
peaceful
a nati o n
merel y
the word,
shi p pi n g,
and
whi c h
has
as a branch
of
of
Why bri n g
up Mahan,
one mi g ht
ask?
The answer,
si m pl y
etated,
that
the Mahan
phi l o sophy
on the defi n i t i o n
of seapower
h88
fundamental
gospel
practi c e&
i n both war and peace
up to and
Oesert
Storm.
Protect
the sea l e nea
for
merchant
vessel s .
the U.S.-fl a g
merchant
mari n ers
provi d i n g
l o gi e ti c al
support
Ameri c an
troops
and thei r
al l i e s,
wherever
they may be.
It
today,
however,
that
the naval
establ i s hment
has l o st
si g ht
postul a te.
Now it appears
that
the tal l
may be waggi n g
the
Let me expl a i n .
WC i e probabl y
the l a rgest
operator
of commerci a l
tonnage
the U.S. today.
Yet, fl a tl y
and openl y
DOD has resi s ted
gi v i n g
Page54
is
been
the
through
Protect
to
seems
of
thi s
dog.
in
up
GAO/NSIADS4-177Strategi c Seel K t
Appendi x
VI
GAO Ready
Reserve
WorJrshop-Captai n
Internati o ual O rgaai a ati o n
Matee,and
Pi l o te
Force
John
Crewi n g
Wal t on,
of Masters,
-2-
even
a smal l
percentsgs
of i t s
mul t i - bi l i o n
dol l a r
budget
to the
of commerci a l
carri e r
revi t al i z ati o n,
prompti n g
John
Snow,
Chai r man,
CSX Corporati o n
to state,
“W e
can draw an i n ference
from
DOD that
they
can live
wi t hout
~8."
If thi s
then
is true,
and U.S. shi p pi n g
compani e s
fl a g
out - as
the syl l o gi s m
goea
- no shi p s,
no seafarers
- no pool
of
professi o nal s
to qui c kl y
draw from i n surge
si t uati o na.
And, the
MM&p
is
a maj o r
provi d er
to the professi o nal
seafari n g
po01.
Whi l e
the MM&P has demonstrated
that
it is ever
and al w ays
ready
to put its
shoul d er
to the wheel ,
as it stands
now, the i s sues
at
hand are confounded
by thi s
di c hotomy
between
DOD needs
and deeds
maki n g
sol u ti o ns
much more di f fi c ul t
to resol v e
- regardl e ss
of the
outcome
on budget
i n cl u si o ns
for mari t i m e
revi t al i z ati o n.
These
concern
potenti a l y
acti v e
shi p s
and potenti a l y
acti v e
seafarers.
Surge
costs
for manni n g
dormant
RRF ves8al s
are a di s crete
proposi t i o n.
So then,
as the MM&P percei v es
the probl e m,
three
maj o r
pl a yers
are i n vol v ed:
(11
the government
through
DOU; (2)
management
through
the commerci a l
carri e rs;
and (3)
l a bor
through
the vari o us
mari t i m e
uni o ns.
Ci t i n g
the often
used
three
l e gged
stool
anal o gy,
a11 three
l e gs
three
components
are
equal l y
needed,
worki n g
i n concert
for
- all
the probl e ms
to be sol v ed.
If one l e g
fails,
the stool
col l a pses.
In the current
scenari o ,
the MM&P represents
an i n tegral
part
of
the l a bor
l e g.
Several
of its
contract
compani e s
husband
a porti o n
of the hundred
or more RRF shi p s
currentl y
on stream
in
vari o us
states
of reedi n ess.
The MM&P is a pri m ary
suppl i e r
of seagoi n g
l a bor
to not onl y
these
compani e s
and thei r
RRF vessel s ,
but al s o
to
Contract
compani e s
operati n g
MPS and PREP0 shi p s.
MM&P al s o
represents
those
l i c ensed
deck
offi c ers
(LDO' s )
who are civil
servi c e
mari n ers
i n the USC fl e et.
We provi d ed
top qual i t y
professi o nal
l i c ensed
offi c ers
on i n stant
noti c e
duri n g
the Desert
Shi e l d /Desert
Storm operati o n.
even
provi d i n g
offi c srs
to
cause
Page66
GAO/NSl A D-94-177
Strategi c
Se&Uf+t
Appendi x
VI
GAOReadyRaserveForceCremi a 9
Workshop-CqtaInJohnWaIton,
InternatIonaIOrganbati o n
Mates,andPIIots
ofMssters,
-3-
contract
to another
SuQQl i e r
of l a bor
- both
LDD' s
and
- when that
uni o n
was
unabl e
to del i v er.
offi c ers
(LEO' s )
We al a o
mai n tai n
one
of the most
advanced
seafari n g
technol o gi c al
trai n i n g
faci l i t i e s
i n the nati o n
- provi d i n g
state
of
the art si m ul a tors
of al l
types
for advancement
i n professi o nal
but
Therefore,
we are proud
not onl y
of our human resources
craft.
of our capi t al
reaourcee
as wel l .
Inci d ental l y ,
the Mari t i m e
Studi e s
(MITAGS),
of whi c h
we
l n ati t ute
wf Technol o gy
and Graduate
was establ i s hed
duri n g
the Vi e t
Warn cri s i s ,
at the
so proudl y
speak,
government' s
request,
as a suppl e mentary
trai n i n g
faci l i t y
to
Provi d e
sorel y
needed
LDO' s
for the l o gi s ti c s
pIpel i n e.
And thi s
was provi d ed
by the MMfi P at i t s
own expense.
Bri n gi n g
these
resources
to the tabl e
i n l i g ht
of the l o fty
demands
of DOD and
the dwi n dl i n g
SUQQ~Y
wf qual i f i e d
seagoi n g
l a bor,
the MM&P suggests
avenues
of further
expl o rati o n
whi c h
nei t her
come
from the Book of Revel a ti o ns
nor may they
be consi d ered
"ex
cathedra."
At thi s
poi n t,
we wi s h
to emphasi z e
that
it i s our bel i e f
that
the
most cost
effecti v e
and rel i a bl e
way to ensure
agai n st
manpower
shortages
i n ti m e
of cri s i s
i s to have
a l a rger,
mwrs
acti v e
peaceti m e
merchant
mari n e.
The cost
of Purchasi n g
and mai n tai n i n g
vessel s
for the RRP i s steep.
It i s far more practi c al
i n an era of
budget
cutti n g
to have
these
same vessel s
pri v atel y
owned
and
operated
and most
i m pwrtantl y ,
worki n g.
Kowever,
at a ti m e
when a merchant
mari n e
reserve
i s once
agai n
a subj e ct
of consi d erati o n,
it
must be remembered
that
there
is
nothi n g
new when
speaki n g
of merchant
mari n e
manni n g.
Dati n g
from
the "1108"
reservi s ts
wf Worl d
War If, through
Seal i f t
Readi n ess
Studi e s,
Ci v man
and Partners
at Sea, what the MM&P proposes
is a
suggested
refi n ement
of these
hi s tori c al
programs.
Currentl y
under
the Ready
Reserve
Fl e et
program
our contract
compani e s
husband
fi f teen
shi p s.
Of these
fi f teen,
four
are
i n ROS
status,
that
is,
on standby
for ful l
operati o n
wi t h
fi v e
days
vessel s
under
engi n eeri n g
Page66
GAO/NSIAD-94-171StrategIcSeaIIft
Appendti V I
GAOReadyBeaerveForceCrewi s g
Workaho~Captal n JohnWal t on,
Internati o nal
Orga&ut.i o n
of Masters,
Mates,andPi l o tci
-4-
The vessel s
remai n
on berth
wi t h
a skel e ton
crew of tan
the vessel s
operati o nal
and ready
for occupancy
who keep
like
a house
i n move-i n
condi t i o n.
MM&P bel i e ves
that
ROS status
al o ne
i s i n adequate,
however.
it does
not address
the ssafarer
surge
needs
shoul d
cri s es
Suggested
i n compl e ment
thereto,
are the fol l o wi n g:
A desi g nated
cadre
of Li c ensed
Offi c er8
(LO' s )
and
Personnel
(ULP) sol i c i t ed
from wi t hi n
the organi z ati o nal
the MM&P to be trai n ed
and ready
for sudden
surge
recal l s :
A trai n ed
force
of LO*8 and ULP' s
three
ti n es
the nul l b er
for shfps
under
the operati o nal
control
of MM&P contracted
requi r ed
- to account
for personnel
at sea,
compani e e
to be the target
goal
or for others
not i m medi a tel y
avai l a bl e ;
3.
DOD wi l
set the standarda
of trai n i n g
to be requi r ed
(couraework
whi c h
wi l
be provi d ed
by and et MITAGS).
DOD wi l
provi d e
for
trai n i n g
coats
i n cl u di n g
transportati o n,
l o dgi n g,
etc.:
4.
DOD wi l
breek
out several
of Its RRF RO/RO' s ,
breakbul k
vessel s ,
and tankers
as wel l
RS a hand8
on trai n i n g
faci l i t y.
Al l
be obl i g ed
to spend
appl i c ant8
for ready
reserve
certi f i c ati o n
wi l
two weeks
on boafd
for trai n i n g
and fami l i a ri z i n g
themsel v es
wi t h
RRF vessel s .
Bed, board,
transportati o n,
pay and vessel
acti v i t y
wi l
be provi d ed
by DOD and passed
through
by the husbandi n g
company:
5.
The
MM&P wi l
mai n tai n
records
of a11 appl i c ant8
at al l
stages
of trai n i n g
from start
to and through
certi f i c ati o n
wi t h
up-to-date
fi l e s
for i n unadi a te
contact;
6.
Entry
i n to
and di s charge
from the RRF program
shoul d
be
stri c tl y
vol u ntary.
Si g ni f i c ance
of the proposed
program
is
that
it
i s MMSP sponsored
and such members
who desi r e
to enter
the program
are obl i g ated
to remai n
i n it onl y
as l o ng
as they
remai n
uni o n
noti c e.
seafarers
-- much
The
i n that
ari e e.
1.
Unl i c ensed
ranks
of
2.
members;
7.
Contract
to the
requi s i t e
Page
57
compani e s
empl o yment
may
of
requi r e
RRF certi f i c ati o n
LO' s
and ULP' 8 ;
as
a
GAO/NSIAD-94-177
Strate~cSeal i f t
Appendi x
VI
GAO Ready
Reserve
Force
Workshop-Captai n
John
Internati o nal
Organi 2 atl o n
Mates, and Pi l o @
Crewi n g
Wal t on,
of Masters,
-58.
that
that
not be a pri m ary
factor
in
seafarer
sel e cti o n
evi d ence
demonstrates
that
the worki n g
lifa
span,
of LO’s,
i n creases
wi t h
technol o gi c al
change.
these
suggesti o ns
remai n
broad
and somewhat
crude
- it
they
may provi d e
a base
for cl o ser
exami n ati o n.
Page
68
Age
empi r i c al
parti c ul a rl y
Whi l e
hoped
shoul d
GAOWSIAD-94-177
in
is
Strategi c
Sertvc
Appendi x
VII
Crewi n g
Seal i f t Shi p s i n a Cri s i s : A Proposal
for Acti o n-Mari t i m e
Admi n i s trati o n,
Department
of Transportati o n
Paper presented
by Bruce
J. Carl t on, Di r ector, Pol i c y
and Pl a ns, Mari t i m e
Admi n i s trati o n
CrewhgSeaUftShi p shaCri s i s :
APropoedforActi o n
Submi t ted
by the MaMme
Admdnhtrati e n
U.S. Jl t !partment
of TransportstIon
In August 1990, the Mari t i I ne
bad thci i fi r st l a rge scal e , real
the establ i s hment
of tbc Ready
Kuwai t by Iraq set i n moti o n
States: Gperaci o os
DESERT
tbt l a rgest U.S. sedi f l
acti v i t y
Admi l i s trati o n
(MARAD) ad the Ameri c an
Inndi m e
i n dtl s try
ti m e test of the pol i c i e s
and pl u u
for emergency
seal i f t si n ce
Reserve Force (RRF) i n the mi d -1970’s.
The i n vasi o n
of
a massi v e
response by a mul t i n ati o nal
force l e ad by the Uni t ed
SHIELD md DESERT STORM.
These Operati o ns
repmaW
si n ce the Vi e tuam war.
,tftemcti o n
mal y scs
bavc been perfocmcd
on vi r tual l y
every aapcct of t&e Operati m
by
du Deful s c
rkpaamnt,
cbc Gel m al
Al 2 anul c i n g
cmce,
several Inspcemrs
Gem-al
ami key
of mi l r i t i m c
l a bor
agenci e s
l i k e MARAD.
Of rk many subj e cts
aml y zcd,
the pcrformaoce
i n cewhg
the RXF md other seal i l t
shi p s Was Ci t ed l k quentl y
i t t these Studi e s. The
C~XLJCIWW vl c w among
tkse
vari o us
studi e s
i a that U.S. ci v i l a n
mari t i m e
l a bor performed
admi r abl y
u&r
ummal l y
di f fi c ul t
cti u msnurc~.
No RRF shi p fai l e d to sai l due to tk
Irk of qual i f i e d
crew manbcrs,
but some shi p s were del a yed
at l e ast i n part due to l a te
arri v i n g
scafarere.
Tht key sourcc of qual i k d
seafarers, the handful
of mari t i m e
l a bor uni o ns,
worked
cooperati v el y
wi r h thei r empl o yers
(MARAD’s
shi p managen
and -1
agents) aruzl wi t h
htARAD ofl i c i s k
di r edy
m expedi t e
RRF awi n g.
Nevertbzl e ss,
some l a bor sources were
ri m pl y
CxperMkd at vari o us poi n ts i n ti m e. smri e s of “a &xl t
returni n g
m work
mahers”
00 seal i f t sbi p s m fil out crew rosters outpaced
real i t y, but thi i presence
and contri b uti o 1~3
were i n fact qui t e i m portant.
In the end, mari t i m e
l a bor’s
pgformaace
was recqui z .4
offki a l y
by a formal i n vi t ati o n
to parti c i p ate
i n the Vi c tory parade i n Washkgton,
D.C.,
mdtheawPrdofatwwMARADmerchnntmari n t~forservi c ei n thewarzonc.
Th~~ofthi s paperi s notmaddmrherl c eadyIrr$ebodyofsbvl i e gaadMnl y ~of
reserve shi p uzti v ati o m
aad operati o ns,
and tk rol e of professi o nal
mui o en
i n those
acti v i t i s .
Tht subj e ct has ban suffi c i e ntIy
addressad
by otkrs, and those reports and
anal y ses
arc the basi s of thi s GAO-sponsored
symposi u m.
Rather, thi s paper focuses on a
of future capabi l i t i e s
i n manni n g
shi p s qui c kl y
i n i cri s i s . and acti o ns that
gel l e d
IdswsmcnI
can be taken IMJW m amel i o rate
l i k el y
pmbkms.
Page
69
GAOINSIAD-94-177
Strategi c
Sedl f t
Appendi x
VII
Crewhg
SettUft Shi p s i n a Cri d s:
for Acti o n-Mari t i m e
Admi n Lstrati o n,
Department
of Transportati o n
A Ropoeal
For mari ( i m e
l a bor anal y sts
and uni o n iMi&ls,
the questi o n
of whether Or not there is a
suffi c i e nt
suppl y of qual i f ki
mari n ers
to W all avai l a bl e
shi p board
j o bs i n normal
commerci a l
operati o ns
is a tri v i a l
matter. Wi t h few excepti o ns,
the pi b ce Of Ccewi n g
merchant
vessel s i n peaceti m e
is l c nowtt,
regul a r and subj e ct to rul e s establ i s hed
freel y
i o the
col l e cti v e
bargai n i n g
process.
All j o bs are fi l e d,
ei t her by rotati o nal
assi g nments
from the
company
empl o yees.
From a cnwi n g
hi r i n g
hal l , or the stil rel a ti v el y
new, pcrmaoent
perspecti v e,
shi p s sai l on ti m e. In poi n t of fact, the real probl e m
for organkd
l a bor is
of qual i f i e d
members.
securi n g
work from an oversuppl y
In the mari t i m e
i n dustry
here and abroad, j o b rotzti o n is stil the mxm.
In the aggregate,
awl over a rel a ti v el y
l o ng peri o d of yeus, mari t i m e
l a bor data show a “p ersons-to-j o bs”
rati o
UWi O CtSWl l O ~SOmCti t tl C i t l
pround
2.0-2.2
to 1. These data represent
i n di v i d ual
ca~cttdar year have recei v ed
a U.S. Coast Guard di s charge
certi f i c ate.
Si n ce tk l a te 1980’5,
hOWevci ,
thi s KU% IUS been 88 hi g h IS 2.7 b 1, demonstrati n g
a Si g ni f i c ant
“S U@S”
of
l a bor when measured
agai n st the pool of avai l a bl e
j o bs.
We wil nmrn to thi s so-cal l e d
sur&~~ l a ter i n thi s paper.
As i n every
other atari t i m e
country.
the avcmge
crew si z e on amdcm
U.S. shi p s has
decl i n ed
preci p i t ousl y
i n recent years i n response to the i n troducti o n
of l a bor-savi n g
technol o gy
and automati o n.
At the same ti m e, the si z e of merchant
vessel s has been growi n g
rapi d l y .
The combi n ed
effect of these producti v i t y
eahuri n g
tr&s
has baea a dramati c
decl i n e
i n shi p board
j o bs, even as the fl e et’s cargo capaci t y
has i x mased.
In 1970, the combi n ed
deadwei g ht
tomtage of tk 931 acti v e rrd i n acti v e
vessel s i n the U.S.fl a g pri v atel y -owned
fl e et was about 15 mi l i o n
dwt (excl u di n g
&at
L&es vcssei s .)
Thi s
fl e et provi d ed
nearl y 43.000 j o bs.
In 1992. tbc mu&r
of vessel s had decl k d
to 394, and
deadwei g ht
capaci t y
had i n creased
to about 20 mi l i o n
dwt. However,
l e ss than 11 ,tMO j o bs
were avai l a bl e .
Wi t hout
these producti v i t y
i n creases
ar~I concomi t ant
savi n gs
i n l a bor costs,
the U.S.-fl a g fl e et woul d hpve
IY) doubt di m i n i s bcd
even more rapi d l y .
Thus the posi t i v e
devel o pments
i n pnxkti v i t y
for shi p owxrs
and the i n dustry
overal l
l e ads to a substauti a l
l a bor and emergew
crewi n g
of resexvc seal i
shi p s:
tk pool of
di i e mtna
for maritime
qual i f i e d
and avai l a bl e
sesfams
is gradual l y
&i n ki n g.
In addi t i o n
to thi s gmdual l y
di m i n i s hi n g
l a bor force is tk mattzc of the pace or ti m i n g of
c#wi n gseam&i p si n arl a cmal c mergency.
l n AugustandSeptemk1990.45RRFsbi p s
and IWO T-AVBs were cal l e d
up for acti v ati o n
by Navy, creati n g
an ovekgbt
demand for
over 1,400 seafarers.
Agai n
i n November
and Dccemkr
1990, the accord l a rge wave of 34
RRF vessel acti v ati o ns
was comrnenccd,
wi t h 1,100 Mw j o bs to be F&d nearl y i m medi a tel y ,
Eventual l y ,
79 shi p s were acti v ated
from tbc RRF pnd two T-AVBs from the NDRF,
creati n g
over
2.500
j o bs.
2
Page
60
GACVNSLAD-94-177
Strategk
Seai i f t
Appendi x
VII
Crewi n g
Seal i f t
Shi p s i n a CrMm
for Acti o n-Mari t fme
Admi n i s trati o n,
Department
of Transportati o n
A Proposal
Del a ys i n the arri v al
of perKM’m e1 at acti v ati o n
shi p s, eqci a l y
key personnel
i n the engi n e
up shi p s.
One speci a l
probl e m
has been ci t ed
nocmai summer vacati o n
and hol i d ay
peri o ds
probl e ms
resul t ed from i n advertent
mi s matcks
to shi p s requi r i n g
a di f ferent
ski l or experi e nce
mi s matcti e s
was del a y i n the acti v ati o n
of the
It i s i n teresti n g
to
the mewi n g
of the
Turmvei
of crew
sbortagcs
devel o ped
wurce of IYW j o bs
Wi t h
thi i
note
shi p s
was
in
for
as a bri e f
si t es and i n matchi n g
peopl e
to thei i assi g ned
department,
resul t ed i n del a ys i n acti v ati o g
laidfrequentl y :
Mh acti v ati o ns
occured
duri n g
whi c h exacerbated
crewi n g
probl e ms.
Other
of mari n ers
wi t h a speci f i c ski l backgrouml
base. Agai n , tbc resul t of tkse unfortunate
shi p s.
that once these vessel s were acti v ated
and nmoi n g
i n regul a r servi c e,
resembl e d
a Iargc steamhi p
operator’s pcrsotn~f d+rmhxu.
normal (and even l e ss than usual commXci a l
operati o ns),
pnd no
The ti p s hecame an i m portant
any ski l e d
ratkg or offku bi l e ts.
al l l a bor uni o ns.
al b ei t of a Wrnporary
nature.
background.
tbc probl e m
for di s cussi o n
0
TIE ovel a l
si z e of the suppl y of qual i f l c cl
conti n ueto~overti m ci n rrspo~~mexpcctedmntrDcti o ni n ~
(i . e., j o bs); and,
0
the pm2
of crewi n g
reserve
shi p s
i n 8 cri s i s
rests on two dynami c
deep-M
mari n ers
i s anythi n g
i s l i k el y
factors:
to
but nmxnal .
The questi o n
we are al l addrwsi n g
i n thi s symposi u m
can be stated as fol l o ws:
gi v en tk
l i L el i h oodofadi m i n i s hedmari t i m ebborforccwppl y i n thcmttoodi s tant~,PIl d thC
need to crew l a i d -up
seal i f t shi p s al m ost i & a~W~~l y
i n a cri s i s , what can be done by
government,
org8ni z cd
hbor 8nd the mari t i m e
i n dustry to Bssucc our 8bl l i y
to meet thi s
chattenge?
A Seven
The
Pd
Acti o n
Pl u g
rest of thi s paper i s organkd
m
a presentati o n
of seven a‘cti o n
i t ems’,
They
Emct the Fkcsi d ent’s
Mari t i m e
Securi t y Program Iai t i a ti v e
1.
2.
Enact Reempl o yment
Ri g hts
Impl e ment
*Reduced
Operati n g
Status” @OS) Crewhtg of RRF Shi p s
3.
4.
Convene
a Uni o nl M ARAD
confereJ.kx
on Emergemy
CIewi n g
Augment tbc U.S. Coast Guard Seama~‘s
Data Base
5.
6.
Reasscs
Mari n er
Suppl y Data aml Demaml Requi r ements
7.
Consi d er
an Eknergency
Manpower
Prqram
are:
3
Page
61
GAWNSl A JMt4-177
Strategi c
Seal I ft
Appendi x
VII
Crewi n g
Seal i f t
SNps i n a Crl s fe:
for Acti o n--Mari t i m e
Admi n Istrati o n,
Department
of Transportz~t3on
&&&g~nt:
Enact
the Resi d ent’s
A E’ropoed
MarMme
Securi t y
hgram
Ini t i a ti v e
On March 16, 1994, the Secretaq
of Traqortati o n,
Federi c o
Pei l a .. Publ i c l y
i m mduced
the
Presi d ent’s
l e gi s l a ti v e
i n i t i a ti v e
to revi t al i
the Uni t ed States uEtchaot mari n e.
When taken
together wi t h the Presi d ent’s
October 1993 sbi p bui l d @
i n i t i a ti v e
for sti m ul a ti n g
commerci a l
shi p constructi o n
i n the U.S., thi s Admi n i s trati o n
has offered the most ambi t i o us
and
comprehensi v e
program
i n several decades to wbui l d and rei n vi g orate
Ameri c a’s
mari t i m e
i n dustri t s.
No doubt everyone
attendi i
thi s symposi u m
mcqni z es
that the unvei l i n g
of thi s program
is
the cd&nati o n
of many years of effort by consecuti v e
Admi n i s trati o ns
tn deal effecti v el y
wi t h tht decl i
of our mari t i m e
i n dustry,
even as we achi e ve
pari t y wi t h (and &equeml y
exceed) the forti g n wmpcti t i o n
i n tht appl I cui o n
of tefzhohgy
and the athmcnt
of worl d
cl a ss tffi i t nci e s.
Thi s effort from the Executi v e
Branch has been matched by successi v e
Congrtssts,
Itd by commi t ted
Comm&e
Chai r s and Ranki n g
Mi n ori t y
membera.
The
passage of H.R. 2151 i n the House i n 1993 i s l f i c l a test exampl e
of Congressi o nal
efforts on
behal f of the mari t i m e
i n dusuy.
The Process has consumed
nearl y 20 years of anal y si s ,
studi e s and heari n gs.
Tht Wodncti i n
of H.R. 4003 ud S. 1945 i n the 103rd Congress
reprtsents
perhaps the l a st oppol b rni t y
for a mccessfd
j o i n t effott by the Admi n i s tdoo,
Congress and the i n dusuy
to mai n tai n s
U.S.-fl a g merchant mari n t i n the ytars ahtad.
Why i s enactment
of thi s l e gi s l a ti o n
i m poW
to the crewi n g
of shi p s i n a c&i i ?
The
answer i s so obvi o us
as to be i k quaxl y
overl o ok
i n publ i c
di s cussi o ns
of emqency
seal i f t.
In our vi e w, the si n gl e kst way to i n sun
we wi l be abl e to cftw RXIW seal i f t
shi p s npi d l y
i n a cri s i s wi t h ski l e d,
expui e rrcd
aurhccs
i s to have a vi g orous
empl o yment
base for those pcrsmu duri n g prol m gcd
peri o ds
of pcrc.
Qual i t y j o bs on acti v e shi p s
engaged
i n tht U.S. forei g n and dome&
CommcIct provi d e
a means for professi o nal
makers
to support themsel v es
and thei r far&i i .
Mai n tai n i n g
a si g ni f i c ant
number of
modem merchant shi p s provi d es
many other befi t s
as wel l , but j o bs are our focus today.
KJnfornmatel y ,
and wel l uodttstood
by us, the con~csc
i s al s o j u st as obvi o us:
the absence
of ful l ti m e work for U.S. ci t i z en r&ners
wi l d ri v etbtmawayfromthi s segmentofour
l a bor force, most l i k el y
to othtr occupati o ns
or professi o ns
whi c h may or may not be nl a ted
to thei r professi o nal
mari t i m e
ski l s .
If we have a hrgc “p ool ”
of mar&rs
acti v el y
empl o yed
on U.S.-fl a g shi p s (or awai t i n g
thei r
next rotati o nal
assi g nments),
we gai n both evai h bi l i
and razmy
of experi e nce,
two factors
that art cri t i c al
to tht successful
crewi n g
of reserve shi p s.
In addi t i o n
to tbci r work
expcri e nct.
worki n g
stafbrtrs al s o recei v e trai n i n g
at tk vari o us
school s mai & ned
ar~I
opttattd
by the mari t i m e
uni o ns.
T~ICSC i n di v i d ual s
represent the most robust source of
reserve manpower,
both from a qual i t ati v t
md qunti t ati v t
perspecti v e.
T&us whi l e the
Admi n Wati o n
has pmposed
l e gi s l a ti o n
to revi t al i z e
the memhsnt mnri n e for many rel a ted
reasons, the i m portance
of the enactment
of thi s kgi s tati o n
for tmtrgtncy
empower
msons
i s certai n l y
one of the most compel l i n g.
hfARAD fhl y
bcl i v cs
that the crews assembl e d
4
-
Page
62
GAOmSIAD-94-177
Strategi c
Seal i f t
Appendi x
VII
Crewhg
Seal i f t
Shi p a i n a Cri s i e :
for Acti o n-Marftl m e
Admi n i s trati o n,
Department
of Transportati o n
for reserve
contracted
i m portant
tht years
Acti o n
A Proposal
shi p acti v ati o ns
and operati o ns
shoul d come from the ci v i l a n
l a bor force vi a our
shi p managers
rod gcnetal
agents.
Enacti n g
thi s l e gi s l a ti o n
represents
the most
measure we can take col l e cti v el y
to i n sure that there i s a mari t i m e
l a bor force i n
ahead for thi s purpose.
TWQ: Enact Reempl o yment
Our second proposed
acti o n to
reempl o yment
ri g hts for ci v i l a n
for a tempotary
j o b on board a
reservi s ts
recal k d
to acti v e duty
Ri g hts
al l e vi a te
probl e ms
i n crewi n g resent
shi p s i s to ensct
mari n ers
who wi s h to l e ave thei r present j o b to vol u nteer
MARAD or Navy seal i f t shi p . At pnsent,
onl y mi i t aty
enj o y thi s benefi t .
Whi l e
we have no al i a bk
means to quanti f y
ururptel y
the number of non-sai l i n g
but sti l
acti v el y
worki n g
(and qual i t i e d)
mari t krs,
we are convi n ced
there are substatmal
numbers of
such peopl e .
both l i c ensed
offi c ers and unl i c ensed
personnel .
h‘t?ughout al l of Operati o ns
DESERT SHIELD/STORM,
MARAD’s
offi c e of Mari t i m e
Lpbor ami Trai n i n g
recei v ed
dozens of i q ui t i e s
from fotmer (but sti l qual i )
mati n m aski o g whether they had the
samt ri g hts to rttum to thei r prtsent j o bs as mi l i t ary
reservi s ts.
We expl a i t md
that no such
ti @ tt exi s ted i n U.S. l a w, but that we had prepared
a wri t ten gtneri c exhortati o n
to
tmpl o ytrs,
aski n g for thei r umi e rstandi q g
aad cooperati o n
i n al l o wi n g
such i n di v i d ual s
to
t&t extcndcd
kave for the Persi a n Gul f war wi t hout i n cur@
the penal t y of l o si n g thei r j o b.
Not surpri s i n gl y ,
very few cal l e rs tvtn asktd for thi s ktter. gi v en the hi g h ri s k of tong term
(JncIudcd
here were acti v e
urkmpl o ymeut
i n the nbscncc of a l e gal ri g ht to toempl o yment.
madnets
wohi n g
for vari o us
shi p opetators
who woul d not rel e ase thei r empl o yees
to take
j o bs on our rtsttvt shi p s.)
Our subsequent
research of thi s subj e ct teveakd
that even for
mi l i t ary
reservi s ts,
the pmservati o n
of ci v i l i
empl o ymenl
i n the face of a recal l to acti v e
duty has been far from perfect.
In a subj e ct atea usual l y
awash wi t h controveni e s,
the i s sue of teempkyment
ri g hts for
ci v i f i
mari n em
needed i n a cri s i s appears to have acbi t ved
a nearl y tmaoi m ous
l e vel of
r
eong
those who ha’” si g nfl ~
thei r suppott for such l e gi s l a ti o n
ate organi x ed
martumt academy
dumm orgatu7.auou?,
ti l t Il h ?pmm
of Dtftnse, the
Ad&strati o n
ad cermi d y
tht House of Repremntati v es.
We were al s o pl e ased
to l e arn
that be Vi c e presi d ent’s
Nati o nal
Perforttumm
Revi e w (NPR) si n gl e d
out thi s subj e ct as a
pri o ri t y
acti o n to achi e ve
a gteatl y enhanced
seal i f t crewi n g capabi l i t y
at no cost to the
federal budget.
In order to tap thi s source of ski l k d
l a bor, l e gi s l a ti o n
must be paasod.
We wtrt gmtl y
pl e ased
by Chai r man
Smdds’ and Chai r man
Li p i n skis’
efforts on thi s front i n ttmvhq H.R.
1109~ghchtH~McrchaotMari n emdF~C~andtathcfl o orfor
pusagt
by the House earl y l a st year. That same i n i t i a ti v e
was repeated i n the Comtni t ke’s
work on H.R. 3400. a conrpeml i u m
of budget resci s si o ns
and NPR reccmotendati o ns,
l a tt i n
193.
We~anxi w stosathi s acti o n~upi n ttusCnetc.andwel ~ fonv~to
worki n g
wi t h the Commerce
Commi t tes
to achi e ve enacnnem
i t s 1994.
5
Page
63
GAO/NSIAD-94-177
Strategi c
Seal i f t
Appendi x
VII
Crewi n g
Seal l f t
Shi p a i n a Cri s La:
for Acti o n-Mari t i m e
Admi n i s trati o n,
Department
of Transportati o n
enacti n g
perspecti v e
Ameri c a’s
A Propoeal
rccn~pl o yment
ri g hts woul d have no budget i m pact
of MARAD and the mari t i m e
i n dustry
@aIIi c ul a rl y
canbewl l n tedonforfunl f ecri s esj l J uastheyhl v e
ci v i l a n
mari m s
demonstrated
i n al l
pri o r
ad
wouM
organ&d
afti i
l a bor)
the l o ng
that
hel d
wars.
Once thi s l e gi s l a ti o n
i s si g ned i n to l a w, a rel a ted a13.M appears to be necessary
i n order to
ful l y understand
the degree to whi c h we wi l l o ok to thi s group of ma&em
worki n g
in
sfi o resi d c
j o bs.
We woul d propose a j o i n t study i n vol v i n g
MARAD, the Coast Guard, l a bor
uni o ns.
tnari t hc
academi e s
and others to uti m atc
ttbz nrrmbers of i n di v i d ual s
who mi g ht be
abl e to take advantage
of gurm-d
rcempl o ymcnt
ri g hts jl an cmegency.
Thi s anal y si s
thei r &i l l e vel s Ipd
ahoul d btdcsi g aedtoi d enti f ythe~~rofsucb~,
rati n gs, the rccwcy
of thei r scftgoi n g empl o yment,
etc. Such a study shoul d reveal 8t kast
the l n agni t udc
of thi s hportam,
hi g h qual i t y
sal u cc of tcmpomq
suppkmcti
l a bor.
-Thtct:
ImpkIncnt
“R educul
m
Status”
(INN)
crewhg
of RRF
shi p s
Over tfi c ISSI two yeas, ad parti c ul a rl y
i n rcsportse to tbc k&me karaed
i n DESERT
SHIELD/STORM,
MARAD has moved to dCSi g Ih, fund antI i m pl e ment
a hi g h
kvel
readi n ess
l r Ki rcsponsi v enc!3s
i n the RRF general l y ,
and cmtl i n
hi g h pri o ri t y
ahi p s
speci f i c dl y .
l i k e the rol l - onhol l * ff
component
of th RRF. OKB qIcc!t of thi s ti o a
hnpl e mcntati o n
of a r‘educed
operati e g
suhu’
(ROS) program for the
hi g h pri o ri t y
wherei n
a&aed
vcarl s
recei v e a parti a l crew for on bnard mai n kl r urc
a3xl repai r .
oure~ti ~ tbese~woul d beabkDometafau-day~ssrrqui r cmcat.thust&
ROM desi g ~ti o n.
of
i s tk
shi p 8
It i s
The hewfi t s
from thi s program for emuri n g
1 hi g h
kvel of physi c al
prcpucdacss
am
obvi o us.
Focusi n gahi g l e rdegrccofcomi n rourMi a wurxontheseshi p sgreatl y
i m xa!bcs
tki r readi n ess
l e vel rad k!%una ti E l i l i h ood
of mechani c al
f&i h Jrcs at the poi n t of
acti v ati o n.
The system has been usal by Navy wi t h gd
SIXCCSSfor the Fast Seal i f t Shi p s.
MARAD’sversi o ni r monmodesci n wst.bu(basadoarhc~~c~{four
&Ye.
added
beaeti e
for al l e vi a ti n g
mwi n g
pmbl e ms
KC equdl y
obvhs.
Fi r st. &se are
real , ful l ti m e j o bs fi l e d by qudi i
mrri n e permud
thmugb MARAD’s
shi p managers.
Thsej o bshsveexpnndsdtb:boscOfrmti t i m empl o ~rmwewhi c hi s ~to
retai n ski l e d
pcoferui o ml s .
The ROS program began i a 1992, uxi we have al r c4y
seen tk
berefi t s of thi r effort. Acti v ati o ns
of ROS desi g nated
shi p s have been on (or ahd
of)
ncbeduk.
In1995,~ppl a nto&ve~29RO/RoSi n tbeRRFei t bcri n rcti v escptus(wi t h
ful l crew@ arpporthrs
DOD qxrati o ns,
or i n ROS wi t h crewa of 10, Addi t hxmuy,
we have
p~JcdtoDODl o hrvc26RRFl h i p scmcrafi v c~yrePd~m~~~~-5)l l s o
wi t hcrewsof1Oonbmd.
Whcncombi i w i t hthcj o baontt~OPDStankcrsi a
preposi t i o ni n g,
the totl l scafl m
Unpl O ~
bei n g gcIErated by MARADcnhrcd
read&or& woul d be 769 bi l k ts
i n 1995.
The
6
Page
64
GAOINSIAD-94-177
Strategb2
Seal W t
Appendi x
VII
Crewi n g
Seal i f t
Shi p s i n a Cri s i s :
for ActIon-Mari t i m e
Admi n i s trati o n,
Department
of Tranqortati o n
A Proposal
i
fami l i a r
wi t h
Secondl y ,
the peopl e who work aboard rhcse ROS shi p s wi l become i n ti m atel y
the vessel s and thei r partMar
stret@s
and weaknesses.
That knowl e dge
i s cri t i l y
i m pol t nnt
duri n g an acti v ati o n
i n order to avoi d costl y and ti m e consumi n g
start-up
probl e ms.
Thi r dl y ,
tbcsc parti a l crews wi l form the m&us
of the requi r ed
operati n g
crew
shoul d an acti v ati o n
order be recei v ed,
thus greatl y reduci n g
the overal l
l n udcn
of
nsscmbl i
a ful l crew qui c l c l y .
Lastl y , tbei fami l i a ri t y
wi t h rhe shi p wi l greatl y i m prove
tbc transi t i o n
of the new arri v al s
to a kvcl of ful l competence
on what may l i k el y
tx a new
and unfami l i a r
shi p . We are parti c ul a rl y
pl e a&
to note that every ROS crew member
assi g ned
to M RRF vessel order4
to acti v ati o n
has stayed wi t h hi s or her shi p , on the j o b
amI provi n g
the val u e of thi s pmgram.
RO5l
shi p s bavc the fol l o wi n g
basi c parti a l crew stmcmre (10 pcrwnl s per shi p ):
chi e f
Rngi n ecr,
1st Aasl s tant Engi m ct.
2nd Assi s tant Bsgti r ,
3rd Assi s tant E@zcr,
QMED,
J3kchi c i a n,
Chi e f Mate, Bosun. Stewardl C ook,
and Steward/Uti l i t y.
These j o bs arc essenti a l
to i m provi n g
the rcadbma
of the aekcti
RRP ah.@. Not surpri a i y ,
they cl o sel y
match
a ful l acti v ati o n.
By havi n g
them on board at the
tbekeypeopl e Ll a dcdtocommcnx
hegi n nhl g
of any tutme t&mti o n
we expect to cncutnvent
many of ti t c del a ys expcrkncal
in
the Persi a n Gul f war breakout
of tbc fl e et, i n part attri i t abk
to l a te arri v i n g
key pcrsomul .
W&AD’s
ROS i n i t i a tl v c
underscorea
as tk key source of rel i b l e .
cxpcti u rzd
-Four:
canl v cocou-
our bel i e f i n and rcl i
pcrsonncl
for crcwi n g
cal f eranx
on An&can
mscrvc shi p s
w Emergaq
mari t i m e
l a bor
i n a cri s i s .
crewi n g
MARADhpsrep#tsdl y asttdthtthepri m uy~ofpcnronnel f ormeRRF(andNavymanaged
seal i f t shi p s) i a the mati t i m c
l a bor uni o ns,
through thci i col k cti v c
bargai n i n g
agreements
wi t h our Shi p Mauagcra
arul Gnvral
Agents.
Gi v en thi s expectati o n
on our part,
i s thee a act of acti o ns whi c h tk uni o ns tbamscl v es
ccul d undcrtal r c
i I l O dXtOi I l p OW
W C bel i e ve
dwi r abi l i t y
to provi d e
pcroonncl
for t& shi p s on whi c h they hol d wntmcts?
thzl c i s .
Duri n g tk Pcrai a n Gul f cri s i s , we experi e twcd
havi n g
nn extremel y
di f fi i t
ti m e l n provi d i n g
“t apped out” of peopl e .
Rccauae of t& uni o ns’
vPri o usamnggncotdwcrcmdetoOl n rfcr~l ~ hveenuni o nri n ardcrtoau~
thti r suppl y ofsrul i f i e d
peopl e on 1 tel n gl o rary
cvcnts i n whi c h tbc nni a ns were
personnel
on ti m e; they were si m pl y
to ful f ffl thei i conuact obl i g ati o ns,
basi s .
The
admi i J mti v c
l z qui r unerl t s
bydl l m i e s,butJevcraIdayswut
the etd mutt was that shi p s wcrc crewat
bCtWWl l b URCkdl J l i O USWC~kWWtl u rdl o st to that adnkbui v e
process.
because bar&a
were dropped.
several
requi r ed
de&c
Neverthekss,
Wel u nrd,too,thrtswncuni o npcnsi o apl a nrul e sprohi b i t arrarmtowori r byami r re,
even i n a cri s i s ; the panal t y for vi o l a ti n g
the rul e i o cl u dcs
the l o ss of a pensi o n.
source of expc&nccd
arrl abl e pcopk was tl x rcby
shut off from our suppl y .
A val u abl e
7
Page
66
GMXNSl A D-94-177
Strrtegi c
Seal I ft
Appendi x
VII
Crewi n g
Seal i f t
ShIpa i n a CrLsi s :
for
Acti o n-Mari t i m e
Admi n i e trati o n,
Department
of TranaporUrtl o n
A Propocsal
MAT&AD woul d l i k e to capl o re
matters l i k e these {and no doubt others) i n a structured
way
wi t h the l e adershi p
of al l of the mari t i m e
uni o ns,
wi t h MARAD scr%ng as a faci l i t ator.
We
woul d l i k e to i d enti f y
al l pate&l
admi n &ati v e
auI r&based
barri e rs to temporari l y
augmenti n g
the suppl y of l a bor duri n g a cri s i s , atut then work wi t h the uni o ns on a mutual l y
cooperati v e
basi s to detetmi n c
what acti o n
mi g ht bt taLca to reduce these barri e rs.
Our
goal woul d be to establ i s h
a staud-by system wherei n
the uni o ns have the abi l i t y
to maxi m i z e
tht fl o w of trai n ed and experi e nced
peopl e to j o bs on ccserve ti p s.
NeedIess to say, thi s
system woul d revert to notmal condi t i o us
once the cri s i s has e&d.
recogni z e
that the next several
months are an especi a l y
busy ti m e for most of tbt uui o ns
(and thei r l a bor rel a ti o ns
counttrparts
i n managtmcnt).
In l i g ht of thi s , we propose
an i n i t i a l
matti n gBomtti m ei n thcfnl l o f1994md~sthi s mattnfunherurd~rmi o eapl r nof
work for both MARAD ami the u&us.
We
We woul d al s o propose to conduct a si a ai h r
mat&
wi t h empl o yers,
especi a l y
ccnnpanl t s
that have moved toward establ i a bi n g
pmnsncnt
shi p board
j o bs.
Li k e
wi t h the uni o ns,
the subj e ct of our di i o ns
woul d bc an exam&i o n
of ways
companl t s
coul d rcl t ase empl o yees
on a temporary
basi s to crew reserve shi p s,
harmi n g
thti r own optrati o ns.
,$&on
Fi v e:
Augmtut
the U.S. Cunat
Guard
!!i m men’s
those
the meeti n g
tk
wi t hout
Data Base
InIhcUni w l S cates,UIL9COPStGrrardscnrwthtQIl r ol e ofeeni f yi n gthecompctencyof
stsfams,
and then tracki n g
thei i work record through arti c l e s sad di a eharges.
Tbcsc
functi o ns
gi v e ri s e to a potenti a l y
val u abl e
manpower
augmentati o n
tool that coul d be made
avai l a bl e
to the aepeoi n g
uni o us.
Wchavei n mi n dsmodi f i c rti o ntothc~OuMir’ e~~mropowcrdrtPqyaOmwhi c h
woul d Pl l o wrmafarrr(Li c erwdMdual i c cnsed)toi n di E Itchi s orhcrwi l i n gnwstobc
contaettd
ei t l x x by a marhi m e
l a bor uni o n or a government
agcacy (MARAD) i n a aeal i f t
cri s i s i f crewi u g
shottfal l s
are anti c i p ated.
To be effect&e. such a system woul d have to bu
stri c tl y whmtary
for se&rem,
and any data col l e cti
i n thi s manner I-s
-,
ttl c phont
nutnbtta,
de.) woul d have to ht promcted from di s cl o sure
by the Pri v acy Act.
The coast Guard’s dam sysrtmsofftr stvenf uatfl l poi m s of entry for thi s i D fonMti o l : the
i s suance
of ori g i n al
l i c enses
aruI Met&ant
Mari e rr
Documents,
the r~~wal
of these
crtdtnti a l s ,smi l n ~offavoyage.
Totbcdcgruethi s i n formui o uaudi t scol l e cti o n
can bt mtd to tht coast Guds
cKi ! ui n g (ad evol v i n g)
data systtl m wi t hout updut
di s rupti o n,
overal l
&ui n i s tmti v e
burden can l i k el y
be r&mi r ed.
We are very i m aesmd
in
chenrci i o ~ofebcl e rfi r ri n gcanmuni t ytothi s ~l , ~trustLwi l b eaccnmt~s
i n vasi o n
of pri v acy
but sol t l y i t s a tool to be made avai l a bl e
to the uni o ns
to assi s t i n thei r
efforts to provi d e
mamxn#r
to shi p s qui c kl y .
Pa6e
66
GAO/NSIAD-94-177
Strategi c
Seal i f t
Appendi x
VII
Crewi n g
Seal i f t
for Acti o n-Marl t Ime
Department
~cti o tt
a:
Shl p e
i n a Cri s b:
Admmi u tratl o n,
A Proposal
of Transportati o n
Reawcas
Mari n er
Suppl y
Data and
Demand
Ral u l r ementa
The questi o u
of the actual “a vai l a bi l i t y”
of the pool of ci v i l a n
rtuui w zs
acti v el y
empl o y&
(or seeki n g
empl o yment)
aboard U.S.-fl a g vessel s i s a pctsi s tem
theme i n most aoal y ses
and
di s cussi o ns
of thi s subj e ct.
In previ o us
anal y ses
of the suppl y and demand for seafarers i o a
cri s i s , we have tended to deal wi t h thi s i s sue by assumi n g
that some percentage
(usual l y
very
and abl e to vol u nteer
for a j o b on a
hi g h) of the seagoi n g
l a bor force i s ready, wi i l i n g
MARAD or Navy seal i t
vessel .
We al s o ted to assume that there wi l be l i t tl e (or no)
tumover
of personnel
i n the “s urge” phase. and onl y sl i g htl y
more duri n g the proIonged
“r esuppl y ”
peri o d*
These
same hues
qpcmd
In ml ti m e duri n g operori o os
DESERT SHIELDISfORM.
The
was pmcd as fol l o ws:
If cur l a bor force data show manpower-&bi l e t
rati o s of
over 2.5 to 1, where arc al l of the “s urpl u s”
Workars and why are we experi e nci n g
del a ys i n
crewi n gtheacshi p s?
Iauggeettbattheanawerhas(atl e aat)thmeparts.
questi w
Fi r st, the nature of tk so+xl l e d
s‘urpl u s’
has changed
consi d erabl y
over the years. Many
i n di ~ whoarenotsl i l i n g~thi s momcntorei n hctj u stbetweenj o bs.
Tbeybave
become part of a regul a r rotati o n, and i o a growi n g
number of cpscs, they have become part
ofapcrmanaacm.
S~~~~,duy~ynotbeworki n gaboardashi p buttheyarc
ncvcrthcl c sa
unavai l a bl e
for a tempomry j o b on a reserve shi p .
~~,thj o bacl e rtedonRRFshi p sare~l o ngtcrm.~thcshi p s~l v cstc~dto
ol d er and l e ss desi r abl e
i u tk factors of human comfort.
If gi v en a choi c e, many m
(but certai n l y
not al l ) woul d hve a natural p~fercxe
for work aboard a JEW. acti v e shi p
qqwscd
to an ol d ,
~cgerve
as
shi p .
LaPtl y ,thedatl c hrtdcl c ri k thLsmanpower~l y ~ddoUMonrsfattthesi z cofthtpool o f
Iahor. MARAD(wi t hsburoedrta~Coart~hasbui l t al ~ ~,consi s tcntdrta
l a bor force aai o g
di s chuge
certi ~ tcs
as the key pi e ce of
ba!?cdcacri b i t hcmui n cl
“e vi d cmd
of parti c i p ati o n
i u thi s kj r kl of work. However,
the use of aggregated
l a bor force
~~~~~~~t~pn-ti m c~dw~nrrl l a ocspfuredpnd~.
~thra~~~~tbosei o di v i d url r whouenottrul y i n tbe
mari t i m cl a bocfmcfuUti m e.
Bydoi n gsowewi U baverfarbetteri d caoftheteal
magrdtudeoftbl s l a borpool .
0fcourae,thoti e cul l e dfromtbegrouprepresentatl e asta
potdal
source of abort term reserve l a bor.
However,
tht vari o us
reasonsthey
haveopbd
for l e as !bsn ful l ti m e seagoi n g
empl o yment
wi l l i k el y
tend to work agai n at thi s pmaumpti o n;
e.g., som hxl i v l d ual s
may be empl o yed
el s ewhere
l a d have oul y seasonal
avai l a bi l i t y
[l i k e
school tea&m).
hot&r
am mw bei n g studi e d by 1& DOD’s Joi n t Staff i s an aases..unent
requi r rmcnts.
Thi s R‘ ottom-up
Revi e w upcl a te*
(BTJRU) study wi l ta.kx
many changes
that are l i k el y
i n the si z e and composi t i o n
of the RRF. For
anal y sts
have focused on an RRF si z i n g of 140 or more ahi p s; that goal i s
of manpower
i n to ac4mul t tk
many years
bei n g reexami n ed.
9
Page
67
G?AO/NSIAD-94-177
Strategi c
Seal i f t
Appendi x
VII
Crewi n g
Seal i f t
Shi p s hi a Crl s i u :
for Acti o n-Mari t i m e
Admi n l s tratl o n,
Department
of Transportati o n
A Prop04
Li k ewi s e,
much thought i s bei n g gi v en to changi n g
the mi x of shi p s i n the RRF to i n cl u de
removi n g
as many as 28 breakbul k
(hi g h crew) shi p s and repl a ci n g
them wi t h capaci t y
from
acti v e vessel s
(i n cl u di n g
contai n ershi p s).
When oombi
wi t h tk parti a l crew@
i n i t i a ti v es
for Ret shi p s d&cussed
above, we am presented
wi t h a substanti a l y
di e rent
basi s on whi c h
to i m e out manpower
proj e cti o ns
sod requi r ements.
MARAD wi l be prepared to do the
anal y si s
and test i t i n the i n dusay
as soOn as the RRF si z i n g deci s i o ns
are made. We may
fi t d that wi t h a more comprebemi v e
exami n ati o n
of the avai l a bl e
workfot~,
and a
reassessment
of our l u eds, the magni t ude
of the tmergc~l c y
manni n g
probl e m
may have
al t ered corrpi d erabl y .
program
I am di s cussi n g
here i s not a “f eacl v e”.
Rather, the
The emergency
manpower
prognmwoul d bcbui l t ontbeool r cptof~acti v ati o ottams,
Eachteamofl O to
15
peopl e woul d be responsi b l e
for speci f i c
tasks or acti o ns.
At the present ti m e, the hi g hest
pri o ri t y
task for these teams i s to assi s t i n the acti v ati o n
of reserve fl e et shi p s, most Ii k eJy
thoac shi p s of rel a ti v el y
hi g h pri o ri t y
use but not i n a parti a l y
crewed ROS condi t i o n,
Each
team (or gtoup of teams) woul d be compri 4
of bni i v i d ual s
wi t h speci a l experti s e
in
pal t i c ul a rtypesofshi p sandpowerpl a nts.
Ihavesri d scvrral t i m esi n thi s prpcrtbrtourrel ~ on~bcmari t i m euni o ~tocrrw~
RRFi s centml t oourpl a nni n g.
Thi s pmposal ~ thntpremi s e.
Theteams’qui c k
tesponse to acti v ati o ns
woul d gi v e tk uni o ns moxe ti m e to assembl e
regul a r crews from the
commerci r l s ectorti d kctthemtothei i s hi p a.
Tbcteamawoul d stepasi d etouni w cmvs
teporti n gtotbei r j o bs.
In~w~,th~woul d ~coIl I peteforRRFj o ~wi t hthc
uni o ns;
rather, they woul d fi m don
as a safety rm to fdl cmw posi t i o ns
mi s si n g
or
unavai l a bl e fromthcuni o n.
Inthetmsetcammemberswoul d betaskedwi t hfffl i n gthoae
sl o ts onl y for the peri o d of tl m c uni o n crews l c MH avai l a bl e .
The Icams woul d k devel o ped
stri c tl y on a vol u ntary
basi s Erum pmong non-acti v e
gcpfi F MB,
for two reasons:
fnsl , so~~mt~eaapctcwi t hme0nsforthcsunepeopl c ,padJscoad
becruse these i f kti v w
woul d bave tl x requi s i t e
&l l and experi e acc
base. Parti c i p ants
woul d bcroughthnmboth~IDdunl i c ensed~i n ~btrsproporti o l l t o~j e ctcd
weds.
On a tmti m hg
basi s , spcci d
n&s&r
courses @rocurrdbyMAMDftombotb
uni o n school ad mari t i m e
academy
sources) woul d be made avai l a bl e
to team mushers
in
such topi c s as tadar, steam engi n eer&
etc. I&al l y ,
team members woul d al s o parti c i p ate
i n RRF Icti v ati o l r s,
dock tri a l s md sea tri a l s .
Farti c i p ants
woul d be pai d by MARAD for
thei r ti m e at the prevai l i n g
Mustty
wage rate for thei r shi p board
j o b rati n g (master. chi e f
mate, oi l e r, etc.). Thei r travel and pet di e m costs woul d al s o be pai d by MARAD.
The
10
Page
68
GAO/NSl A D-94-177
Strategi c
Seal l f t
Appendi x
VII
Crewi n g
Seal i f t
Shi p a
In a Cri s i s :
for Acti o n-Mari t i m e
Admi n i s trati o n,
Department
of Transportati o n
success
mari t i m e
di s crete
of thi s i n i t i a ti v e
l a bor
uni o ns,
functi o ns.
A Proposal
rests on i t s ocfepcance
and on i t s cl e ar defti t i o n
by
the mari t i m e
i n dustry,
i n parti c ul a r
as a rapi d
response
group
uf teams
the
wi f h
Crcwi n g
reserve
shi p s i n tbc future coul d
be a Si g ni f Lcpnt
probl e m.
dependi n g
on such factors
as the si z e of our mari t i m e
l a bor force, tk pace of the shi p acti v ati o ns,
the l e ngth
of tk
cri s i ,
etc. The seven acti o n
i t ems i d enti f i e d
here prob8My
do not exhaust
al l of tk possi b l e
remedi a l
acti o ns
that coul d
i m pact
thi s probl e m,
but we bdiivc
thy !M p11 pppropri a tc
pol i c y
fumhmud
rel i a tm
ou ci v i l a n
scafprers
to Nl
COUISC. Ausevel l a cti o rl s -out
these cri t i c al
j o bs.
We l o ok
forward
to worki n g
wi t h both mari t i m e
l a bor az~I marugmnt
to hpl e xnent
tbcsk, and other. acti o ns.
11
Page
69
GAO/NSIAD-94477
Strategi c
Seal i f t
Appendi x
VIII
Strategi e s
for Crewi n g
Force-Mary
E. Lyons,
Mari t i m e
Academy
the Ready Reserve
PhD., Cal i f orni a
r-
am
FOR CREWNO
thi s
warkshop
presentati o n
by each
of ti x panel i s ts.
quaker,
to
the assumpti o ns
bear
on crewi n ~
l o cate
grounds
the
exami n ati o n.
contmvemi a l
i s sues
thei r
From
and
for the Reedy
potenti a l
perspecti v es,
they
(RRF)
opened
the parti c ul a r
Sham
eepecl a l y
materi a l ,
6ol u ti o ns
Force
to i d entl t y
of agreement
thi s
REsERVEFORCE
Resew
It l a nOw my Intenti o n
that i n formed
further
THE &ADY
and
those
wi t h
thesi s
ofWed
to i n di t e
some
a66umpti o na
it may
be easi e r
to focus
that have
emerged
throughout
the
of
that mi g ht
On some
the paneMW
dl s cu66i o ne.
Gi v en
workshop
the nature
coul d
bear
a subti t l a .
we are wi n g
desperatel y
status
regard
i s wi t h
WewIng
of thal
are a6 wel l
probl e ms
am.
summary
wi l
i n t6l l 6
Of honesty
the Coast
Guard.
and
Sei b efl i c h
Fi m t,
mari t tme
McGwan
regul a ti o na,
Upgradi n g
the avai l a bi l i t y
abi l i t y
docUmented
mari n ers
who
i n dU6try’E
to create
we heard
may
p6r6pecti v e
l a bor
of
what
fol k %%
the
my
from
by tal k i n g
crew&Q
and
that
needs
&WI faci l i t ate
documents,
a nati o nal
about
RRF
of
and
for aewi n g.
to crew
we
reserve
Guard
marl n er
be avai l a bl e
He sai d
the pempecti v e
Coast
sustai n
Mr. James
ofemd
of per6onnel
and
to the
about
thel
but that mom
Captah
Guard’6
base
honea
of Dsfen66.
He i d enti l ! ed
hasten
our current
6peaker5.
panel i s t
States
becau6e
OUT Weakfl W SW
that the di s ami o n
a6 the pt~i o U6
the U.S. Coaet
repmrented
a bmad
to be real
that the Uni t ed
by rel a xi n g
that woul d
WhSrS m
and
for cmwi n g.
get reel
wi t h regard
about
establ i E tWd,
that thi s
of what
parkuhi y
from the Department
needs.
source6
l e t’s
thi s that represents
of each
not fi r ml y
agres
for tryi n p
as candi d
He emphasi z ed
measures
atso stressed
and
we mi g ht
under&endi n g
and
prerumpti o n
the thesi s
are 6ti l
i n en emergency
ai l l i c ensed
from the
the seal i f t
match
like
pl a ce
a pempectl v e
needs
as the l i k el y
other
A IbtUm
and i m portant
I menti o n
seal i f t
must
crswi n g
get real
be a6 forthfi g ht
personnel
Admi r al
real i s ti i
Fofx!a,
who represented
the nati o n’s
taki n g
to 6ome
j e t6
fer,
Conference:”
Reseerve
promed
In bri e f,
Get Real
to come
force;
1 wi l
tbur
to the Ready
i s a 6afe
establ i s h
the “L et3
as our EtrangthS.
consti l u ents
Johnson
of the prerentatl o ns
data
He
ba6e
of
ve6sel s .
the i m portance
of
1
:
Page
70
GMWNSIAD-94-177
Strategi c
Se*
Appendi x
Strategi e s
Force-Mary
Mari t i m e
Vl I I
for
Crewl n g
E. Lyons,
Academy
seei n g
the Ready
wel l .
He emphasi z ed
Reserve
the Ready
Reserve
PhD., Cal i f orni a
Reserve
Force
the i m portance
Force-espetdal l y
ri s k.
From
natl o nai
mari t i m e
aewi n g
for the Ready
Reserve
that car8ers
at sea
reform
noted
the i n herent
vessel s
that often
the commerci a l
Joseph
to support
rel i a bl e
from
the Master,
asserted
provi d e
our l o gi s ti c
Whi l e
those
perspecti v es
8nd
and
made
support
ch8f8ctwi z e
recent
some
of Cai i o mi a
the Governor
academi c
8Umi n i S l r atOr
prOfeSsOr
8nd
W8S abl e
to dust
8nd
former
Se8m8n
M
col l e ge
hi s
Wofi d
for the Mi l i t ary
not i e SS, repP3SOnt8ti V e
emergency.
whi l e
8nd
little
controversy.
l i v el y
debate.
c8me
to mi n d
surroundi n g
crews
boerd
Mi l e
man
he cl a i m s
Ii ti n tage
Seal i
Of how
the first anecdote
thi s
tells
wi t h
craws
somethi n g
and
achi e vi n g
thi s
superb
pri d e
some
of the
emergenci e s.
Not l o ng
of my i n sti t uti o n
credenti a l s
that duri n g
that
morni n g
a reti r ed
8s a
Desert
Storm
he
docwnent
and
set sai l
8s an Abl e -
Thi s
i n ci d ent,
many
of you
know,
wera
assembl e d
mari n er’s
Command.
RRF
has
Labor
of emergency.
first i u stretes
to the governi n g
to
from the
for any ki n d
The
had
Mari t i m e
the presentati o ns
the RRF.
8s the
CatTi e rS
Carl t On
for advanci n g
is
fol l o wed
fl a g
for Ameri o an
natl o nai
presi d ent,
W8r
on forei g n
for the RRF duri n g
appoi n ted
achOl 8 r.
duri n g
needs
Wal t on
Mr. Bruce
pi e ns
ItI
whet Mr. Joseph
pemonnel
experi e nced
practi c ed
that body
Captai n
depend
Fi n al l y ,
Forte
Mr. Jerome
to consi d er
that argued
he
our conti n gency
undersconrd
of
thi n gs,
Reserve
is currentl y
to meet
and
that we cannot
pl a n
other
line
Addi t i o nal l y ,
0ffi c ers,
Force.
Wal t on
a conti n gency.
anecdotes
wi t h fi n di n g
Mari n e
hi s 7 poi n t
more
of the i s sues
associ a ted
way
Reserve
Captai n
duri n g
onl y
Merchant
the poi n t
offered
and
than
that
a pi p e
the Ready
Mari t i m e
the Ready
Pi l o ts.
generate
Two
more,
States
for both rel i a bl e
theses
al o ne
arouse
these
bodi e d
that the best
to conti n ue
crew@
and
stressed
that, among
experti s e
the Ameri c an
sowoe
as the key
ago
technol o gi c al
for acti v ati n g
Admi n i s trati o n
oddi t i e s
di f ferent
of affordabi l i t y
unattraci l v e.
and
as
to the Ready
Bookman
evi d ence
i n creasi n gl y
by acti v ati n g
Representi n g
Mates,
atready
He offered
Force.
the Uni t ed
sourer
Mr. Charl e s
if we are goi n g
8re becomi n g
strongl y
acti v el y
most
essenti a l
posed
requi r e
sector.
emphasi z ed
Mari t i m e
is absol u tel y
attendi n g
the touchstones
Counci l ,
its wewi n g
end
all the i s sues
needs-agai n st
Research
di f fi c ul t i e s
of aLI U.S. shi p pi n g,
of measuri n g
its crewi n g
the Nati o nal
mi i t tary
suggested
i n the context
about
duri n g
our rel i a nce
is
our l a st
on seni o r
2
Page
71
GAOINSIAD-94-177
Strategi c
Seal l f t
Appendi x
VIII
for Crew@
E. Lyons,
Academy
Strategtee
Force-Msry
Mari t i m e
mari n ers
duri n g
future
mari n ers.
duri n g
whi c h
emergenci e s,
Last
mod
concerns.
shi p ,
Fai l ,
steam
Despi t e
same
shi p
of my own
at sea.
These
exampl e s
si m pl y
poi n ts
that the probl e ms
crews
for the Uni t ed
of our i S Sues
The
fnJrn the goal s
deri v ati v e
Ameri c ans.
mari t i m e
obj e cti v es.
end
mari t i m e
of our Nati o nal
Wi t hout
strategi e s
Trade
Securi t y
dear
trai n i n g
versei .
eChOed
the
current
earl i e r
and
competent
Many
Shi p pi n g.
whom
its
wtth
others’
of worl d wi d e
by thoss
of a dearl y
Act of $994,
the tack of commonl y
understood
strategi e s.
arti w i a ted
wbml t ted
w8 have
not
many
any
bad,
i n thi s
those
assembl y
number
of anti c i p ated
many
obj e cti v es
On the other
hand,
is
however,
remai n
i l u si v e
are charged
wi t h
or unanti c i p ated
of you
makes
PetIe.
deri v es,
goal s
the
mari t i e
by Secreter,
as I am sura
nati o nal
for i n suri n g
nati o nal
or fai l u re
i n ali candor,
Pol i c y.
for meeti n g
8trategy
its 8uccess
di r ecti o n,
is not enti r el y
revi t al i z ati o n
and
an acceptabl e
revi t al i z ati o n.
Thi s
manti m
rWm,
ol d
suc&essfuti y
wtth SustPi n i n g
to deti n e
is the absence
Securi t y
toward
OngSW
I Spoke
to compete
more
but note
WIS 54 War
Academy’s
Sei b etri i c h’s
and
88 B
not hel p
di e SOl
whom
i n the context
more
I coul d
and
bai n kW
spedfi c al l y
nati o ns.
our abi l i t y
for the RRF
Mari t i m e
step
be abte
asscrci a ted
shared
wi t h
Spani s h
the Mexi c o
its automated
Admi r al
be regarded
mari t i m e
compl i c ates
of crew8
an i m portant
the i s Sues
must
600.
Msri t i m e
they
underscore
obtai n i n g
da~~Obmr,
the cadets
woul d
concerns,
consi d ered
What
for most
end
States
are gl o bal
tradi t i o nal l y
strategy.
students:
for j o bs
wi t h
outWed
vessel ,
offi c er-~
about
Msxl C d
de8i g ned
and
faci n Q
(MO) and from
ta address
common
I vi & ted
1980’s
as the Cai i f bmi a
of Mexi c o’s
di f fi c ul t y
great
numberi n g
vessel
i n VenWuz,
aSsembl e d
i n the
its ful l y
to serve
the superi o ri t y
avai l a bi l i t y
bri d ge,
C!ondl t i O nt
Organi z l t i o n
the conference,
cadets,
state-of-the-art
trai n i n g
that conti n ues
cpncems
achooi s
i n the Nethartands
thi s
w
Conference
have
Duri n g
about
Mari t i m e
mari t i m e
materi a l s .
betwwn
Somethi n g
Educati o n
academi e s
for that country’s
bri d ge
“f orei g n”
hand,
mari t i m e
constructed
the contrast
devel o pi n g
Ameri c an
south
IMO ami c ul u m
worki n g
suggests
from the i n ternati o nal
exampl e ,
pi a ttann
Second
a Nauti c al
t attended
and
For
a vesaei
trai n i n g
nati o nal
thi s
rep~ssntati v es
of the Lati n
l a nguage
the Ready
Besewe
PhD., Cal i f orni a
it di f ftcutt
nati o nal
On one
real i z e.
to promote
poi i d eS
can
3
GAWNSIAD-94-177
Strategk
Seal i f t
1
f
Appendi x
Strategi e s
Forc+Mary
Mari t l m e
VIII
for Crewhg
E. Lyons,
Academy
the Ready
Reserve
PhD., Cal i f omh
-
qui c kl y
become
thl p pi n g
obsol e te
demands
and
ri g i d .
The
that we respond
dynami c
and
and
rapi d l y
fl e xi b l y
changi n g
arena
to shi f ti n g
of woddwi d e
economi c
and
pol i t i c rh
condi t i o ns.
Gi v en
the commOn
that we are not atways
gmund
that it is better
rel y
to rel y
on reserve
dri v e
our mari t Ime
conti n ui n g
i n creasi n g
there
reempl o yment
agree
Asi i e
some
further
some
speakers’
wil
aSSWnpti O n
to a nati o nal
thi r d
we cat? al s o
ski l e d
snd
and
enthusi a sm
to exi s t
by many
who
we stil
The
me
or may
mi g ht
come.
to crew
summari z ed
be
In other
any
words,
shi p
is that the best
come
Rel a ted
from
to thi s
trai n i n g,
or implicitly,
If you
sends
to sea,
and
mari n ers
is a commonl y
seal i f t
States
needs
hel d
reveal e d
or may
that the country
of the Uni t ed
not beg
for
i n formed
bui l d
and
l a bw
exi s ts
Another
who woul d
Merchant
i n the past
atti t ude
these
speakers
that may
expl i c i t l y
rel i a bl e
and
needs.
of mari t i m e
strategi c
mari n ers.
our future
by the sl o gan:
onl y
coupl e d
that thi s
Fi n al l y ,
of these
a suffi c i e nt
iS
guaranteei n g
pooi
the ranks
to meet
about
perspecti v es
whi c h,
of agfe@ment
emergenci e s,
not be warranted,
fi r st assumpti o n
on Cast
Sophi s ti c ated
to nati o nal
to agree
i 8 the
pri m ari l y
recogni z es
for l e gi s l a ti o n
do not know
of agreement,
is that our abi l i t y
do it agai n .
respond
seem
for commerci a l
technol o gi c al t y
it IS t0
eH3nti a l y
but ongoi n g
si z es
than
Seal i f t
poi n t
Everyone
of di m i n i s hi n g
agree
that thi s workahop
Another
trai n i n g
hi g hl y
that may
perSpecti v eS
wil
initial
is
concerns
center
of the RRF.
Support
is much
poi n ts
emergency
assumpti o n
not Onl y
the needs
peopl e
for strategi c
nor i n ci d ental
Offi c e.
what
crews
whi c h
Conversati o ns
coi n ci d ental
Accounti n g
requi r ed
for mari n ers
some
they
hel d
hel d
pol i c y.
i n an atmosphere
EOCaml R ati O n.
conti n ue
is that budget
persi s ts
from
MSUmpti O nS,
them,
bel i e f
commonl y
to meet
that th9rS
many
mai n tai n
hoi d er,
i n order
ri g hts
panel i S ts
upon
stake
It is nei t her
for more
experi e nced
second
not nati o nal
is uni v ersal
end
obj e cti v e&
that our panel i s ts
me
affordabi l i t y.
demands
al l ,
it seems
shi p s
crews.
A thi r d
for the RRF
need
Fi t -St of all
pol i c y
uSer, the pri m ary
by the Government
experi e nce,
by nati o nal
commerci a l
reserved
Strategy
and
that the crews
and
and
sponsored
Above
worki n g
of Defense.
is bei n g
we stand?
that me end
effecti v eness
wi t h
whi c h
upon
shi p s
is the recogni t i o n
Department
upon
grounded
respond
Mari n e.
proves
A
that
mat the mere
4
Page
73
GAO/NSIAD-94477
Strategi c
Seal i f t
VIII
Appendi x
Strategi e s
Crewi n g
E. Lyons,
Academy
possessi o n
of a l i c ense
that mi g ht
onl y
subtl y
Al o ng
thi s
of aSS~~mpti o n~
wi t h
suggested
of Defense
RRF
al w ays
thi n k
all
crewl n g
focus
area
of mari n ers
mari n ers
probl e ms
vessai s ?
if thi s
recrui t i n g
mari n ers
the pool ?
0ff1c~S
reserves.
8Wmpti O n
Academy
mqui r es
wmmi s si o ns.
student
Academy’s
work
and
for and
wi t h
than
and
rel a ted
i s sue
be recrui t ed
be supported.
student
ffxpertence
beyond
they
exi s ti n g
As a federal l y
funded
i n sti t uti o n
and
recei v e,
col l e ges.
far 19K3#4
ranged
of 500
from
academy
agency,
had
one
or more
hi g h
school .
They
have
spouses
and
chi l d ren.
had
professi o ns,
The
No hi r i n g
hal l ?
needs
for
Mari n a
Mari n e
more
Reaewr
homogenous
Mari t i m e
Approxi m atel y
years
they
52 year
or the
thi s
the Cal i f orni a
17 to 52.
of
personnel
Merchant
from
have
sc~urce
the Merchant
i n age
pool
the
demographi c s,
a younger,
For exampl e ,
have
maj o r
ha117
student
to have
about
that crawi n g
if offered,
wnti i u es
mari t i m e
popul a ti o n
sources,
academy
I do not
CWWS for thei r
the hi r i n g
is the presumpti o n
wil
has.
What
permanent
of the nati o n’s
i n mari t i m e
to qual i f y
thi s
the State
dass
from
shi f ts
j o bs.
i n smergendes,
the bil .
to the l a bor
strai n s
usi n g
become
of contentl o n
to pay
that there
the wuntry
non-seagoi n g
Very
to the
di s cussi o ns
ought
needs
compani e s
One
It is very,
when
the i n creasi n g
wil
dul l a rd?
i n the assumpti o n
whatever
not DOD
Obl i g ati o ns
or who
If the
a ci v i l a n,
carri e rs.
ari s es
other
i n peaceti m e
of the enti r e
cases
fi n d
shi p pi n g
both
its students
enteMg
i n many
l o ok
for forei g n
some
to Pay?
ought
taxpayers’
wntroVersy
descri b ed
what
Therefore,
body
speaker
the dramati c
cannot
to meet
One
from
the bil
is goi n g
is essenti a l y
hol d ers.
to pay
skil s
di i c uky.
of the RRF,
Mari n e
share
is i n herent
normati v e,
coul d
Gi v en
is goi n g
becomes
Another
l i c ensed
Thus,
Who
user
share
to thei r
aVai l a bl e
associ a ted
Where’s
hal f
on who
end
little
i S SU85 of ConttUVerSY,
is thi s .
it profi t
of market
of controversy
that is sei f -evi d ent.
as professi o nal
shoul d
fronti e rs.
some
Merchant
obl i g ati o ns
nati o nal
A sewnd
potenti a l
why
on the pri m acy
si m i l a r
i n and
that speci a i z ad
rel a ti v el Y
runs
States
end
wi t h
fi r st area
hol d er
i n terest,
have
cross
be a pool
The
if the Uni t ed
profi t -maki n g
l i n e”
be obtai n ed
speakers.
is the stake
hand
commented
about
current
by the
U.S. shi p pers
“b ottom
competency,
can
commerci a l ,
dear
i n di c ates
i n a wntl i d
On the other
speaker
or document
ba needed
Department
pay?
the Ready
Reserve
PhD., CaUfomi a
for
Force-Mary
Mari t i m e
ol d
one
of educati o n
or
have
had
c8reara,
student
has
a
5
Page
74
GAO/NSIAD-94177
Strategi c
Seal I ft
Appendi x
Strategi e s
VIII
for Crewi n g
E. Lyons,
Academy
Force-Mary
MaMIme
Mast&s
Degree
changi n g
caraers.
l a rge
teki n g
comi n g
to these
thei r
martti m e
educati o n
payi n g
bel i e ve
What
to Invest
whether
they
and
thei r
ol d er
somethi n g
wil
pri v ate
teaches
to sit around
by all
changi n g,
not dyi n g.
nati o nal
and
women
and
but as l i c ensed
see
opti o ns
mari t i m e
programto offer
and
mari t i m e
pri m ari l y
as
thei r counterparts
like
and
are
They
somethi n g
themsel v es
in
good
l i c ensi n g
have
i n ternati o nal
at
of dol l a rs
cases
career
and
they
who
women
thousands
i n many
col l e ge
professi o nal s
ba some
rettabl e
requi r es
further
between
sseenti a l
sourcas
and
in
on the tremendous
federal
agenci e s
at the outbnsak
the begi n ni n g
to get thi s
very
Fl n al l y ,
I detected
for rIl a ui t i n g
getti n g
pmbtem
peopl e
of Desert
sol v ed.
and
organi z ed
l a bor.
to protect
of cooperati o n
Reserve
between
It Is for the pri v ate
Thi s
and
publ i c
thei r
“r i m
bowts.”
between
the mari t i m e
Shi e l d /
Desert
Storm.
As si g ntfl c ant
of CDl l a bDrati v e
work
that has
to be done
Commerci a l
are Dbfi g ed
col l a borati o n
tendency
rush
of the kl n d
agenci e s
expenri v e
di f fi c ul t
the natural
for the Ready
great
agenci e s
how
avoi d
of mari n ers
col l a borati o n,
government
but al s o
the tabte
gwemment
~strtcti o ns,
thei r
remarked
is thi s
tacti c s
nsserched
hava
i n order
prD9t whi l e
between
have
at sea--because
wil
how
tt is meral y
si d es
They
careers
sectors,
sectors
and
had
are si m pl y
and
busi n ess.
are not si m pl y
who
j D bs;
a
at our
more
they
thei r
the enswar
workshop
uni o ns
own
In fed,
i n dustrtas
thousends
a cadet
i n vesti n g
are not men
It any,
Cl e arl y
a5 It was,
students,
wi t h
or sduoatl o n.
What,
today
marri e d
spend
l a w,
Many
have
i n a mari t i m e
medi c i n e,
and
hi s
We
savi n gs
for the RRF
publ i c
owned
thel r
crews
F~rca’?
and
to be women.
ol d
befora
executi v e
becomi n g
and
potenti a l
l e vel
and
are careers.
These
a mi d dl e
a busi n ess
and
is 42 years
from the mul t i p l e
to gai n
owned
a j o b.
5eek
i n dustri e s.
end
i n the 968
students,
want
ti m e
or not may
was
happen
they
rel a ted
about
have
as I do that the mari t i m e
wi l i n g
year
al s o
academks
because
j o bs.
thi s
student5
We
ol d ,
up an i n terest
Commander
all the ti m e.
Contractor,
39 years
student,
before
Our Corps
Reserve
is a General
Another
Now the fi r st two of those
our school
Ready
i n Methemati c s,
organi r ati o n
schwl .
the
PhD., Cal i f orni a
to show
shi p per5
accountabi l i t y
are obl i g ed
to the taxpayer.
to show
In
chal l e nge.
501118 potenti a l
mari n er5
on vessel s
contradi c ti o ns
for the RRF.
qui c kl y ,
throughout
On one
maki n g
sure
hand
we can
they
the di s cussi o ns
tal k
are l i c ensed
about
rel a xi n g
or
6
Page
75
GAO/NSIAD-94-177
Strategi c
Seal i f t
Appendi x
Strategi e s
ForceMary
VIII
for Crewi n g
E. Lyons,
Academy
Mari t i m e
documented
as qui c kty
accountabi l i t y
for shi p
Does
the probl e m?
and
because
tha parson
ends
i s that master
exami n i n g
di d
men
and
data
soi u ti o ns.
to be l o oki n g
i n ventory.
The
cdnti n gency
Board
of the Nati o nal
u-awi n g
The
of a nati o nal
promtnent
changi n g
cl o sed
down.
Ci t i e s
Franci s co
like
these
faci l i e s
to cl o se,
hi n ge
greatl y
on i n centi v es
i m portance
understated.
i n c&tveS
and
oparators,
mari t i m e
mi n e
throughout
offerad
i n centl v es
COnCamS
i n creasad
Bay Araa
deteri o rate,
of bui l d i n g
about
the counby
and
di e .
The
to buai n eaaas
cravufng
who
every
efforts
be crawl n g
for government
MARAD
reason,
an
the Mari n e
of mari t i m e
forces
ara
to watch
passi v el y
thei r
i s bei n g
and
paral t al
cannot
predi c tabl y
vessel s ,
agendes
afl o w
communi t i e s
TM
revi t al i z ati o n
these
most
i n stal l a ti o n
Investors.
by whi i
i n part, as part
mi l i t ary
for the RRF woul d
wi l
and
to meet
be seen,
to revi t al i z e
other
for mari t i m e
vassal s
organi z ati o ns,
must
Muse
and
cast
to the congdenca
These
al m ost
and
of a such
for i t s study
i n dustry
where
Guard
For thi s
contri b ute
canversIon.
worl d .
that wa have
oppottuntti s s
fundi n g
mi g ht
i n to the pl a n
for the persons
l a bor
has sought
dafenre
cl e ar
the l i m i t ati o ns
Storm.
wi l t
i n a di e sal
the Coast
trai n i n g
of Desert
of the mari t i m e
that they
to raasunabl e
i h at
recogni z i n g
l e sson
that i n cl u des
i n the San
bass
to provi d e
of that nature
dynami c s
dynami c
data
l e ad
when
contradi i o n
engl n aara
but it i s al s o
that wi l
l a that draw,
that surface
hopi n g
steam
ski l e d
fur tha taSt
harassment
i s the paradn,
IMet whi t e
di r ecti o n,
our abi l i t y
Counci l
out to a8a
i s sues
i s i m portant,
Research
not
or her for sexual
i s the i n herent
the personnel
and trai n i n g.
A study
strategi e s
are dsvai o ped.
has
hi m
wi t h thi s
some
an i m portant
was
been
or
tOa?
merel y
of the hi d den
condusi o ns
to expend
meri n ar
of trai n i n g.
commerci a l
l i a bi l i t y
suspended
Associ a ted
retai n i n g
reasdnabte
OPA-80
are some
for today’s
toward
naed
needs
educati i
These
Certai n l y ,
agai n st
Hme for that ki n d
we a1-6 not wi t hout
to draw
gel
if somebody
vessel s .
women
suspendi n g
Doas
or i n experi e nced
l o dge
i n ol d technol o gi e s,
Cl e arl y ,
ara goi n g
not have
for crewi n g
competence
effacti v e
happens
not di s cussed
owners.
offi c er
a gri e vance
not accountabl e ?
i n prepari n g
Insuf’W ent
l i c ensad
What
up wi t h
opti o ns
Mai n
or the shi p
of a hasti l y
?!j years
But, we have
as possi b l e .
operators
the presenca
compound
the Ready Reserve
PhD., Cal i f orni a
be
dl r nl r ti s h
for shi p
aa
ownera
as wal l ,
7
Page 76
GAO/NSLi D -94-177
Strategi c
Sew
Appendi x
Strategi e s
VIII
for Crewi n g
E. Lyons,
Academy
Force-Mary
Mari t i m e
the scope
it is beyond
program.
However,
Personal
l e adi n g
to mari t i m e
program
col l e ge
i n exchange
l i c enses
proposed
other
countri e s.
What
about
Reserve
Ready
i n novati v e.
Force.
why
pl a tforms
For basi c
RRF
show
may
provi d e
di r ect
and
government
the nature
mari n e
characteri z ed
ki n d
research?
agenci e s
stand
to profi t
resarve
force
servi c e.
stay
as do ao many
at sea
Others
be for some
of our
on behal f
of the
the
mari t i m e
i n dustry
gl o bal
as
advances
in
Is
research
and
devel o pment.
offer thesf~
same
i n dustri e s
corporate
i n terest
i n the
trai n i n g
or
i n creased
from
i n the U.S. Merchant
and other
mi g ht
for exampl e ,
for nati o nal
an these vessel s
enhance
from i n dustry.
Both i n dustry
made
mari n e,
for
there
For exampl e ,
Force
a natl o nal
aSdSl a nW
of partnershi p
to the U.S. mari t i m e
mari t i m e
proposed
a vi t al
mari n er
trai n i n g
and
for the RRF, one that
desi g n
for oommerctai
faci l i t i e s
appl i c ati o n
i n an i n masi n gi y
envi r onment.
sol u ti o ns.
At some
wotl d
are havi n g
a narrow
poi n t
wi t h gl o bal
us how
“m ade
i n Ameri c a.”
for our 21 St century
we must
exami n e
assets
mari n ers
few corporati o ns
Thi s
worl d
defi n i t i o n
mari t i m e
i n al J of our i n dustri e s.
remi n ds
bri g htest
today
OF a “r eady”
Essenti a i y ,
a gl o bal
mi g ht
thi s
to parti c i p ants
regul a tory
expl o i t s
safe
appl i e d
for programs
to servi c e
who
i n centi v e
Reserve
of possi b i l t i e s.
fi n anci a l
mari n ers
to support
of cargo,
as i n vestments
benettts
that program
have
range
IsnY the merchant
retai n i n g
Wet
the Ready
has
recei v e
to U.S. maftners
are attri b uted
no reason
Why
and
Speakers
transportati o n
there
servi c e.
Li n ki n g
contai n eri z ati o n
The
woul d
se&at?
i n centi v e
soho(arshi p s
Presi d ent
of attracttng
corporati o ns
i n cl u de
The
corporati o ns?
mari t i m e
mi g ht
who
tax i n centi v es
affordi n g
mmmerci a i
ooean
way
an enti r e
general
peopl e
for young
of nati o nal
be one
have
mari n ers
for mmmuni t y
to outti n e
a broader
or documents.
desi g ned
pari
may
presentati o n
suggest
for entry-l e vel
servi c e
Mari n e
of thi s
a few exampl e s
i n oenti v es
consi d ered
the Ready
Reserve
PhD., Cal i f orni a
forum
and
for thi s nati o n’s
of thi s
probl e m
offers
the assumpti o ns
and
about
conti n ue
to expand
are purel y
nati o nal ,
j u st
is an i m portant
begi n ni n g
associ a ted
commerce
and
a narrow
scope
we hol d
about
our pl a ce
the mul t i - nati o nal
Fronti e rs
for the chal l e nges
onl y
of
experi e nces
and
contract.
as few products
for those
i n vested
wi t h sustai n i n g
in
we
NAFTA
ara purel y
i n prepari n g
the best
and
securi t y.
8
Page
77
GAO/NSL4D-94-177
Strategk
SeaIi f t
Appendi x
IX
Manni n g
the Ready Reserve Force: The
Probl e m
and Proposed
Sol u ti o ns-A
Joi n t
Statement of the Seafarers Internati o nal
Uni o n and Nati o nal
Mari t i m e
Uni o n
A Joi n t
Seafarers
Nati o nal
Submi t ted
StatefIIefl t
Of the
Internati o nal
Uni o n
and the
Mari t i m e
Uni o n
to the Government
Accounti n g
Apri l 26, 7994
Offi c e
MANNING
THE READY RESERVE FORCE -THE PROBLEM
AND PROPOSED SOLUTIONS
Preface
Despi t e
three wars and numerous
regi o nal
confl i c ts
si n ce Worl d
War II, the Uni t ed
States conti n ues
to grappl e
wi t h the probl e m
of a sound,
effecti v e
method
of maeti n g
the demands
of surge ahi p pi n g,
i n cl u di n g
a break-cut
of a reserve
fl e et, i n the event of
emergenci e s.
Ameri c a’s
reserve
shi p s,
known
as the Ready Reserve
Force [RRFL ar% arstwhi l e
commerci a l
carri e rs
now anchored
i n stand-by
status at three ports, one on each coast.
The RRF, al o ng
wi t h exi s ti n g
U.S.-fl a g
commerci a l
shi p pi n g
operati o ns,
make up a
si g ni f i c ant
pert of the nati o n’s
seal i f t
assets.
As Korea. Vi e tnam,
Operati o n
Desert Shi e l d /Desert
Storm and
such es Granada
and Panama
demonstrate,
the Unl t ed
States
seal i f t
operati o ns
to transport
the preponderance
of matdri e l .
confl i c ts
concerni n g
the Uni t ed
Statss i n the future, as i n the
depl o yed.
Thus,
seal i f t
capabi l i t y
i s now, and wi l conti n ue
to
defense.
a host of l i m i t ed
confl i c ts
ml l t aty
has ral l a d
on
tt i s l i k el y
that the
past, wi l be forwardl y
be, cri t i c al
to the nati o n’s
The %nd-users
of thi s capabi l i t y
an the mi l i t ary’s
branches
of sarvi c a
on the front l i n es.
The U.S. Armed
Forces
i s the customer
whi c h
must be sati s fi e d
that the seal i f t
program,
i n cl u di n g
the RRF, Is 100 percent
rel i a bl e ,
meeti n g
ti m e constrai n ts
wi t hi n
the
boundari e s
of fi s cal
responsi b i l t y
end sensi b l e
management.
Page
78
GAO/BISIAD-94-177
Strategi c
Seal l i t
Appendi x
IX
Manni n g
the Ready
Reserve
Force:
The
Probl e m
and Proposed
Sol u ti o ne-A
Joi n t
Statement
of the Seafarers
Internati o nal
Uni o n
and Nati o nal
Mari t i m e
Uni o n
To meet these
coal s ,
the nati o n
has i n pl a ce an exi s ti n g
i n frastructure
-- the U.S.-fl a g
has proved
its abi l i t y
to meet the operati o nal
and crewi n g
merchant
mari n e
- whi c h
needs
of both a commerci a l
fl e et and a broken-out
and i n creased
U.S.-fl a g
seal i f t
operati o n
i n ti m es
of war or stri f e.
Inherent
i n the U.S.-fl a g
merchant
mari n e
are experi e nced
who shoul d
be deepl y
i n vol v ed
i n any RRf management
i n val u abl e
component
of the nati o n’s
readi n ess
assets.
shi p operators
program.
Thei r
and managers
experti s e
is an
mari n e’s
structure
are uni o n
hi r l n g
hal l s whi c h
through
a
Al s o i n herent
i n the merchant
rotary shi p pi n g
system
mai n tai n
a rati o of 2.5 to 5 seamen
per si n &e
shi p board
j o b,
dependi n g
on condi t i o ns
wi t hi n
the i n dustry.
Whi l e
not worki n g
aboard
a vessel ,
many
of the surpl u s
seamen
are regi s tered
et vari o us
uni o n
hal l s or are attendi n g
courses
at
the uni o ns’
trai n i n g
centers.
Thi s group of mari n ers
represents
an i n stant
pool of
manpower
for an acti v ati o n.
Wi t h much i n pl a ce
to address
crewi n g
needs
i n a mobi l i z ati o n,
the Seafarers
Internati o nal
Uni o n
(SIUI and the Nati o nal
Mari t i m e
Uni o n
INMU) bel i e ve
that i n tackl i n g
the nati o n’s
current
concerns
regardi n g
RRF manni n g,
it is not necessary
to rei n vent
the
wheel ;
the task at hand is to augment
exi s ti n g
systems
and structures
to ensure
that
the nati o n’s
seal i f t
mobi l i z ati o n
capabi l i t y
is swi f t and sure.
The SIU and the NMU bel i e ve
the recommendati o ns
of the Mari t i m e
Admi n i s trati o n
(MarAd),
presented
at an Apri l 5. 1994
conference
of the Government
Accounti n g
Offi c e,
are, i n general ,
meri t ori o us
and provi d e
a sound
basi s for di s cussi o n
and acti o n.
Addi t i o nal l y ,
the study
prepared
by the Nati o nal
Defense
Transportati o n
Associ a ti o n
(NDTA) Seal i f t
Commi t tee
outl i n es
seri o us,
reasoned
proposal s
that the SIU and NMU
thi n k deserve
consi d erati o n.
Both MarAd and the NDTA Seal i f t
Commi t tee
are to be
commended
for thei r efforts to provi d e
di r ecti o n
to the process.
The work of the NDTA Seal i f t
Commi t tee
refl e cts
the fi n di n gs
of the recentl y
i s sued
seal i f t
mobi l i z ati o n
study of the Department
of Defense
(DOD). Ones DOD i s sues
its
tanker
needs
assessment,
the proposal s
of the NDTA Sesl i f t
Commi t tee,
as wel l as
those In thi s paper, wil be adj u sted
to i n cl u de
recommendati o ns
for meeti n g
seal i f t
demands
i n the l i q ui d
bul k carri e r
sector.
.hi t t
Statement
Page
of SW ad
79
NMU on Manmh~
2
the RUF
GAO/NSIAD-94-177
Strategi c
Seal l f t
Appendi x
IX
Mmnl n g
the Ready
Reserve
Force:
The
Probl e m
and Proposed
Sol u ti o m-A
Joi n t
Internati o nal
Statement
of the Seafarers
Uni o n
and Nati o nal
Mari t i m e
Uni o n
-
The
Probl e m
Duri n g
the Operati o n
Desert Shi e l d /
Desert Storm RRF acti v ati o n
i n 1990
and 1991,
the
hi n drance
to on-ti m e
depl o yment
was the decayed
condi t i o n
of the vessel s .
Whi l e
crew
compl e ments
were mobi l i z ed
wi t hi n
the desi g nated
acti v ati o n
ti m es,
the veSsel S ’
deteri o rated
condi t i o ns,
i n many cases,
were not overcome
i n the satne peri o d.
The
shape
of the vessel s ,
as descri b ed
bel o w,
are a matter of record,
i n cl u di n g
accumul a ted
data from i n tervi e ws
wi t h seamen
and shi p operati n g
compani e s
duri n g
the 19961991
acti v ati o n.
No ARF vessel
i n tha Desert Shi e l d /Desert
Storm operati o n
crewmembers.
However,
many
shi p s
sai l e d
wi t h a shortage
bol s tered
onl y by hasti l y
j u ry-ri g ged
systems
whi c h
al l o wed
mi n i m al
government
standards.
Upon reporti n g
to thei r assi g ned
RRF shi p s,
probl e ms.
Among
the most common
were
systems
and sewage
systems.
There
were
drai n s,
dry-rotted
wi r es i n deck gear (cranes,
tubes i n boi l e rs.
Packi n g
and gasket
materi a l
of dehumi d i f i c ati o n.
Immedi a te
attenti o n
to
because
of a l a ck of basi c
deck and engi n e
sai l e d
short
of fai l s afe
the vessel s
of
equi p ment,
to compl y
wi t h
crewrnambers
found
no end to the
fai l u res
i n boi l e rs,
di s ti l e rs,
communi c ati o n
countl e ss
frozen val v es,
rusted-over
deck
wl n chesl ,
ci r cui t
breaker
fai l u res
and fai l e d
was dri e d up due to the prol o nged
effects
these probl e ms
was del a yed
i n many cases
tool s .
Addi t i o nal l y ,
crewmembers
were i n conveni e nced,
but not prevented
from attendi n g
to
thei r j o bs, by the stri p pi n g
of many brass i t ems from the shi p s,
l e avi n g
vessel s
wi t hout
cl o cks
and rudder
i n di c ators,
among
other thi n gs.
In some cases,
crew fo’cs’l ’e s
were
uni n habi t abl e
due to the fl o odi n g
of raw sewage
or uncomfortabl e
due to the l a ck of
mattresses.
Gal l e y
gang members
worked
around
the cl o ck
i n foul water up to thel r
ankl e s.
Food spoi l e d
from the l a ck of worki n g
refri g erati o n.
The readyi n g
of the vessel s
was hampered
by a j a ck of shi p yard
personnel
fami l i a r
wi t h
RRF vessel s .
Accustomed
to bui l d i n g
modern
naval
vessel s
and doi n g
repai r s
on a
worl d
fl e et i n whi c h
the average
age of the shi p s
Is consi d erabl y
younger
than that of
any RRF shi p , qual i f i e d
shi p yard
personnel
ware hard to fi n d.
Addi t i o nal l y ,
because
tha
shi p yard
crews bad to work qui c kl y
on unfami l i a r
shi p s,
mi s takes
were made thst ate up
vi t al ti m e.
Gn one vessel ,
fuel was put i n to the water system,
and correcti n g
the error
took days.
Page
80
GAWNSIAD-94.177
Strategk
Seal I ft
Appendi x
Manni n g
IX
the Ready
Probl e m
and Propoeed
Statement
Uni o n
of the
and Nati o nal
Reserve
Force:
Sol u ti o ns-A
Seafarers
Mari t i m e
The
Joi n t
Internati o nd
Uni o n
Repl a ci n g
broken
parts sl o wed
down the break-out
process.
The obsol e scence
fl o wn
i n from other regi o ns
of the country.
equi p ment
made fi n di n g
parts near i m possi b l e .
Thi s most recent
the most si g ni f i c ant
recommendati o ns
probl e ms.
The
Uni o ns’
Some psrts had to be
of much of the
break-out
of RRF shi p s
i n di c ated
that the condi t i o ns
barri e rs
to on-ti m e
sai l i n g
wi t hi n
the assi g ned
of the SIU and the NMU contai n ed
i n thi s paper
Rok wvl
of the shi p s
posed
readi n ess
status.
The
address
these
Experi e nce
The uni o ns’
experi e nce,
si n ce
Worl d
War II, is based
on the seal i f t
operati o ns
Vi e tnam,
Korea and Desert Shi e l d /Desert
Storm.
In all confl i c ts
the uni o ns
a pi v otal
rol e i n that they have suppl i e d
the greater
part of the empl o yment
have been the canter of empl o yment
of qual i f i e d
seafarers.
of
have pl a yed
pool and
In the most recent acti v ati o n
i n conj u ncti o n
wi t h Operati o n
Desert Shi e l d /Desert
Storm,
the SIU and the NMU uti l i z ed
the pool of seamen
who were regi s tered
to shi p i n the
rotary shi p pi n g
system
of the uni o ns.
Those
seaman
who were regi s tered-on-the-beach
provi d ed
an Immedi a te
base of manpower
for an overni g ht
acti v ati o n.
Those
seamen
who ware on commerci a l
shi p s
were frozen i n pl a ce and not repl 8 Ced
or rel i e ved.
As a
resutt, hundreds
of seamen
extended
thefr four-month
sai l i n g
ti m e to si x -, ei g ht- or tenmonth
peri o ds,
freei n g
thei r schedul e d
rel i e fs
or repl a cements
to serve on RRF shi p s.
The uni o ns
al s o combed
thei r racords,
contacti n g
physi c al l y -fi t
seamen.
Rul e s of the uni o ns’
pensi o n
funds barri n g
reti r ed
work i n the i n dustry
were l i f ted to al l o w
pensi o ners
to sai l
Uni o n
hel l s
manpower
mai n tai n ed
were kept
center
and
desi g nated
pensi o ners
seamen
from
on RRF shi p s.
and i n acti v e
conti n ui n g
open seven
days a week for extended
hours.
The W’s
800 toi l free number
were manned
24 hours a day; the NMU
phone
numbers
on a 24-hour-a-day
basi s
as wel l .
The trai n i n g
school s
of the unfons
i n creased
the number
of young
peopl e
rati n g programs
and offared
accel e rated,
back-to-back
courses
to assi s t
upgrade
to those rati n gs
whi c h
were needed
i n the RRF fl e et.
i n the entry
seamen
to
4
Page
81
GAO/MUD-94-177
Strategi c
Seal i f t
Appendi x
IX
Manni n g
the Beady
Reserve
Force:
The
Probl e m
and Propwed
Sol u ti o ns-A
Joi n t
Statement
of the Seafarers
Internati o nal
Uni o n
and Nati o nal
MarMrne
Uni o n
Many
RRF vessel s
never recei v ed
tha necessary
parts or repai r s
RRF shi p s sai l e d
due to the 24-hour-a-day
efforts of crewmembers.
seamen
brought
the versefs
up to sai l i n g
standards
by canni b al i r i n g,
i n venti n g
and i n novati n g.
before
sai l i n g.
Those
Once onboard,
j u ry-rl g gi n g,
Worki n g
cooperati v el y
wi t h shi p managers
and the MarAd
Offi c e of Mari t i m e
Labor and
Trai n i n g,
the SIU and the NMU ful f i l e d
the manpower
needs
of an RRF break-out.
There
were no gl i t ches
i n suppl y i n g
rel i e f or repl a cement
personnel
for RRF
crewmambers
whi l e
the depl o yment
and re-depl o yment
were i n ful l force.
All RRF shi p s
that were acti v ated
were sustai n ed
wi t h manpower
throughout
the IO-month
peri o d
of
Operati o n
Oesert Shi a l d l D esefi
Storm/Desert
Sorti e .
Addl t l o nal l y ,
the uni o ns
found
that hol i d ays
di d not pose i n surmountabl e
obstacl e s
to
crewi n g
efforts.
For exampl e ,
two years ago at 1500 on December
24, the NMU was
contacted
to acti v ate
an RRF shi p .
By 2300
that eveni n g,
the NMU crew compl e ment
had been secured.
All hands
reported
to tha vessel
by 0800
on Chri s tmas
Day,
December
25.
Posdbl a
Sol u ti o ns
Outl i n ed
bel o w
are recomrnandatl o ns
the uni o ns
bel i e ve
wil assure
the
sustal n ed,
prol o nged
engagement.
of the SIU and the NMU
U.S. mi f i t ary
a prompt,
rapi d
whi c h,
if put i n to effect,
RRF acti v ati o n
and a
Any pl a n of acti o n
must be the responsi b i l t y
of one enti t y
i n order to ba successful .
fi r st step In addressi n g
the i s sues
surroundi n g
the manni n g
of the RRF is to vast
authori t y
i n a l e ad government
agency
to coordi n ate
any programs
or mechani s ms
wil be put In pl a ce to ensure
ful l readi n ess
of RRF shi p s
and thei r craws.
l ‘% e Mari t i m e
Admi n i s trati o n
task.
MarAd was deepl y
requi r ements;
thus, many
of breaki n g
out RRF shi p s,
Joht
stmmont
Page
of si u
82
A
that
stands
out as the agency
most appropri a tel y
sui t ed
for thi s
i n vol v ed
i n meeti n g
the Desert Shi e l d /Desert
Storm seal i f t
MarAd
staff members
not onl y are versant
wi t h the process
but they al s o have fi r sthand
and recant acti v ati o n
and UMU 011 Mm
5
the RRf
GAO/NSIAD-M-177
Strategi c
Seul l f t
Appendi x
IX
Manni n g
the Ready
Reoem
Force:
The
Probl e m
and Proposed
Soi u tl o no-A
Joi n t
Statement
of the Seafarer0
Internati o nal
Unl o n
and Nati o nal
Mari t i m e
Uni o n
experi e nce.
funds most
Al s o, MarAd’s
l i k el y
wil provi d e
budget
i n cl u dea
fundi n g
for mai n tai n i n g
the besi s for future RRF reedi n ess
the RRF.
programs.
Those
Once the MerAd’s
desi g nati o n
as l e ad
RRF agency
is i n pl a ce,
it is appropri a te
that
hol d a ful l scal e conference
wi t h all unl o ns
repratenti n g
sea-goi n g
l a bor.
At another
date,
the agency
shoul d
meet wi t h shi p operators.
Joi n t meeti n gs
of all concerned
perti e s
al s o shoul d
be hel d .
it
A conference
wi t h MarAd and uni o n
representati v es,
as has been proposed
by the
agency,
woul d
al l o w
those
present
to i d enti f y
potenti a l
obstacl e s
to crewi n g
shi p s
in
ti m es of emergency
and devel o p
methods
to overcome
such barri e rs
whi c h
can be
i m pl e mented
i n ti m es of surge shi p pi n g.
The SRJ and the NMU wel c ome
such a
dl s cussi o n
snd are ful l y prepared
to be acti v e
and contri b utory
parti c i p ants.
The SIU and the NMU al s o recommend
that MarAd convene
an
Commi t tee,
made up of agency
representati v es,
offi c i a l s
of the
management
compani e s.
Such a group coul d
meet annual l y
to
seal i f t
needs,
the status of the seal i f t
fl e et, the RRF management
mari n er
msnpower
si t uati o n.
An annual
day-l o ng
sessi o n
coul d
uni o n’s
trai n i n g
faci k ti e s,
al t ernati n g
l o cati o ns
from year to year.
commi t tee
woul d
be to encourage
frank and ongoi n g
communi c ati o n
groups
that wil be cal l e d
on to crew RRF and other seal i f t
assets
emergency.
Crewi n g
ad hoc Saal i f f
marl t i m e
unl o ns
and shi p
revl e w
the mi l i t ary’s
program
and the
be hosted
by one of the
The purpose
of the
between
the
i n ti m es
of
No RRF progrem
wil be successful
wi t hout
bei n g
part of a comprehensi v e
nati o nal
mari t i m e
p&i c y
In whi c h
the U.S. government
ful l y recogni z es
the essenti a l
rol e of
commerci a l
shi p pi n g
to the nati o n’s
economi c
securi t y
and defense
i n terests.
Thi s must
be i n di c ated
i n acts of the admi n i s trati o n
that vi g orousl y
enforce
the nati o n’s
mari t i m e
l a ws and regul a ti o ns.
Such
a comprehensl v e
vi s i o n
of a U.S.-fl a g
fl e et i n the future that befi t s Ameri c a’s
as the worl ds’
l a rgest
economi c
and mi l i t ary
power
must
al s o
encompass
i n i t l a ti v ss
such as the one devel o ped
by the Department
of Transportati o n
and currentl y
before
Congress
to establ i s h
a “M ari t i m e
Securi t y
Program”
wi t h the U.S.-fl a g
l i n er
status
Joi n t
Statwnent
Page
of SW nd
83
NMU on Mmni n p
thhs RRF
0
GAo/NsIAD-f&l 7 7
t&rate*
seawt
Appendi x
IX
Manni n g
the Ready
Reserve
Force:
The
Probl e m
and Proposed
SoWi o wA
Joi n t
Statement
of the Seafarers
Intermti o nal
Uni o n
and Nati o nal
Mari t i m e
Uni o n
fl e et.
Addi t i o nal l y ,
the Uni t ed
States admi n i s trati o n
and Congress
measures
that wil expand
the U.S.-fl a g
crui s e
shi p fl e et and the
carri e rs
as wel l as enhance
tha competl t i v enass
of Ameri c an-fl a g
i n the worl d
trades.
Such acti o ns
wil put scores
of mi l i t ari l y -useful
and cal f of the U.S. Armed
Forces.
However,
recogni z i n g
that such programs
take
support
acti o ns
that wil be taken
i m medi a tel y
crewed
today,
tomorrow
or a year from now.
back the fol l o wi n g
proposal s .
Put 4-Dav
-
.
.
shoul d
promul g ate
number
of U.S.-fl a g
car
l i q ui d
and dry bul k ars
vessel s
at the beck
ti m e to devel o p,
the SIU and the NMU
to guarantee
that the RRF fl e et can be
In thi s context.
the SIU and the NMU
.
.
Reduced
Operati n g
Status (ROS] sol v es
the most si g ni f i c ant
factor -- the di l a pi d ated
state of a vessel
whi c h
l e ads to mechani c al
fai f ures
-- i n del a yed
sai l i n g
ti m es
encountered
i n Operati o n
Desert Shi e l d CDesert
Storm.
A vessel
kept i n repai r wil
amel i o rate
the probl e m
of havi n g
a shi p that cannot
be readi e d
wi t hi n
the desi g nated
ti m eframe.
ROS cal l s
for a mai n tenance
group
compri s ed
of 10 seamen
who do conti n uous
onboard
mai n tenance,
repai r s
and troubl e -shooti n g.
Thi s work can be sensi b l y
schedul e d
and
tested.
Equi p ment
can be mai n tai n ed
and all certi f i c ati o ns
kept current.
As obsol e te
auxi l i a ry
machi n ery
is repl a ced,
ROS craws
wil become
fami l i a r
wi t h the repl a cement
equi p ment
and understand
how it works
when i n tegrated
wi t h the shi ps’
exi s ti n g
systems.
Worki n g
di l i g entl y
of equi p ment
and
make assessments
and thoroughl y ,
uti l i z i n g
l o w-cost
techni q ues
such as i n frared
anal y si s
structures,
ROS crews can uncover
the maj o r defi c i e nci e s
of a vessel ,
and di a gnoses
and propose
and i m pl e ment
repai r s.
Duri n g
Operati o n
Desert Shi e l d /Desert
Storm, the effecti v eness
of ROS crews and
acti v ati o ns
was cl e arl y
noted.
There
was a di r ect corol l a ry
between
the RRF shi p s wi t h
more recent
mai n tenance
work and acti v ati o ns
and the vessels’
abi l i t y
to meat a qui c k
acti v ati o n
deadl i n e.
Conversel y ,
the l o nger
the peri o d
the vessel
had been l a i d up wi t h
no attenti o n,
the l o nger
It took to prepare
the shi p for i n specti o n,
sea tri a l s and sai l i n g.
Joi n t
Stare-t
Pa.ge
of S/u end
84
#Mu
on Manni n g
the RRF
7
GAO/NSIAD-94-177
Strategi c
Se&
Appendi x
Manni n g
IX
the Ready
Probl e m
md
Statement
Uni o n
and
Reserve
Force:
The
Sol u ti o ns-A
Joi n t
SeaParers
Internati o nal
Mari t i m e
Uni o n
Proposed
of the
Nati o nal
The 1 O-seaman
crew
compl e ment
rendered
by MarAd i n cl u des
the fol l o wi n g
posi t i o ns:
chi e f engi n eer,
1st assi s tant
engi n eer,
2nd assl s tant
engi n eer,
3rd assl s tant
engi n eer,
QMED, el e ctri c i a n,
chi e f mate, bosun,
steward/cook
and steward/uti l i t y.
All of the
unl i c ensed
posi t i o ns
are mai n tenance
workers.
It is recommended
that ROS crews l i v e aboard
the vessel ,
dupl i c ati n g
a regul a r
shi p pi n g
on, two months
off). Thi s hel p s ensure
that vessel s
are
schedul e
(such as four months
habi t abl e .
The Desert Shi e l d l D eaert
Storm experi e nce
proved
that a vessel
was more
l i k el y
to meet its break-out
schedul e
if assi g ned
seamen
coul d
l i v e aboard
as soon as
they reported
to the shi p .
Often, as crewmembers
needed
to work around-the-cl o ck,
bei n g
ebl et‘o
sl e ep on the vessel
i n creased
thel r producti v i t y.
Crews whi c h
had to be
put up et hotel s
l a st val u abl e
work ti m e.
An ROS program
for a core number
of RRF shi p s does not necessari l y
cal l for new
moni e s.
Funds
that have been al l o cated
to mai n tai n i n g
and repai r i n g
the fl e et can be
used.
Al s o, evi d ence
and data compi l e d
by MarAd i n di c ate
that RDS programs
reduce
the expense
of breaki n g
out shi p s.
It Is a far costl i e r
proposi t i o n
to bri n g shi p s
up to
seaworthi n ess
standards
i n hours or days then to take months
and years of routi n e,
schedul e d
mai n tenance
coordi n ated
i n e cost-effecti v e
manner.
The di f fi c ul t y
of fi n di n g
rati n gs
speci f i c
to ol d er vessel s
whi c h
have been phased
out,
for the most part, on shi p s
bui l t more recentl y ,
is resol v ed
by an ROS program.
The
rated posi t i o ns
necessary
for an RRF shi p , but whi c h
are not customary
i n the
commerci a l
fl e et (such as the posi t i o n
of fi r eman/oi l e r)
can be i n cl u ded
i n the RDS crew
compl e ment.
To hel p ensure
that RRF crewmembers
have the proper U.S. Coast Guard
meet the agency’s
certi f i c ate
of i n specti o n,
the SIU and the NMU propose
of an oi l e r-mai n tenance
rati n g.
rati n gs
to
the creati o n
Currentl y .
ADS crewmembers
recei v e
seatl m e
servi c e
credi t from the U.S. Coast Guard
on a three-days-worked-for-one-day-of-seeti m e
basi s .
Seati m e
servi c e
is a component
of !he requi r ements
a seaman
must meet i n order to take an exami n ati o n
to upgrade
hi s
or her rati n g or l i c ense.
Thi s pol i c y
stands
i n stark contrast
to the day-for-day
seatl m e
servi c e
awarded
to crewmembers
on vessel s
wi t h regul a r
underway
runs, and it
penal i z es
the ROS seaman
as he or she is onl y credi t ed
wi t h 33 percent
of the ti m e he
Jokt
Statem8m
Page
of SW and #MU
86
on Mumti m
the RRf
8
G4O/hWAD-94477
Strategi c
SeaWt
Appendi x
IX
Manni n g
the Ready
l t eserve
Force:
The
Probl e m
and Proposed
Sol a ti o neA
Joi n t
Statement
of the Seafarers
Intemati o nal
Uni o n
and Nati o nal
Mari t i m e
Uni o n
or she actual l y
works aboard
a vessel
i n si m i l a r
tasks to those performed
on any shi p .
In order to provi d e
RRF ROS mari n ers
the same opportuni t i e s
to upgrade
as seamen
who
work on commerci a l
shi p s,
the SIU and the NMU suggest
that day-for-day
seati m e
servi c e
be appl i e d
by the U.S. Coast Guard to the days seamen
work aboard
RRF shi p s
i n ROS status.
The ROS seamen,
i n cl u di n g
among
them i n di v i d ual s
wfth
wil become
the nucl e us
of sny actl v atl o n
crew compl e ment,
vessel
sai l s wi t hout
the proper
mi x of crew skil s.
the key hard-t&fi n d
thereby
ensuri n g
rati n gs,
no RRF
The ROS program
woul d
assure
the natl o n
an avai l a bl e
suppl y
of seamen
l i k ety to stay
In the Industry,
mal n tal n l n g
and upgradi n g
thei r skil s
whi l e
accumul a ti n g
untradeabl e ,
essenti a l
shi p board
experi e nce.
There
Is no substi t ute
for permanent
empl o yment
as a
means
of attracti n g
dependabl e ,
ski l e d
manpower
for an acti v ati o n.
By offeri n g
job
securi t y
i n the U.S. shi p pi n g
sector,
a seaman
is provi d ed
the wherewi t hal
to be wi t hi n
easy reach of a cal l to j o i n an acti v ated
shl p and stay on it for Indefi n i t e
peri o ds
of ti m e.
ROS j o bs hel p keep accessi b l e
the ki n ds
of peopl e
who wil be needed
for an acti v ati o n.
In order to meet a &day
acti v ati o n
schedul e
for 74 RRF shi p s
deemed
necessary
by the
U.S. mi l i t ary,
the NDTA Seal i f t
Commi t tee
recommends
that those vessel s
not assi g ned
l @ seaman
ROS crews be manned
i n a di f ferent
confi g urati o n.
For the remai n i n g
shi p s,
the NDTA Seal i f t
whi c h
woul d
be responsi b l e
for two- shi p s
woul d
l i v e on a vessel ,
al t ernati n g
between
whi l e
worki n g
on both shi p s.
Comml t tee
that woul d
one and
proposes
a l 4 -seaman
be nested
together.
the other at one-year
crew
The crew
Interval s ,
The NDTA Seal i f t
Commi t tee,
i n its draft proposal ,
envi s i o ns
a crew compl e ment
encompassi n g
the fol l o wl n g
offi c ers
and rated posi t i o ns:
one chi e f engi n eer,
two 1 st
assi s tant
engi n eers,
one 2nd assi s tant
engi n eer,
two 3rd assi s tant
engi n eers,
one
OMED, one el e ctri c i a n,
one chi e f mate, one bosun,
one AB, one steward/cook,
one
steward
assi s tant
and one general
uti l i t y.
Joi n t
Statomont
of SW and
NMU on Mami n g
60
9
RRF
l-
Page
66
GAO~SIAD-94-177
Strategi c
Seal i f t
Appendi x
IX
Marudng
the Ready
Reserve
Force:
The
Probl e m
and Proposed
Sohti o rw-A
Joi n t
Statement
of the Seafarers
Internati o nal
Uni o n
and Nati o nal
Mari t i m e
Uni o n
The benefi t s
day acti v ati o n
cost-effecti v e
acti v ati o n.
of thi s ki n d of program
shi p s.
The S1U and
approach
to securi n g
are outl i n ed
i n the di s cussi o n
above
the NMU endorse
thi s concept
i n the
suffi c i e nt
i m medi a te
seal i f t
capabi l i t y
concerni n g
4bel i e f
it is a
i n any
for swi m
The SIU and the NMU recommend
usi n g
goi n g
l a bor as a fi r st source
for readi n ess
to augment
ROS crews.
the hi r i n g
teams.
Recentl y ,
thi s ki n d of desi g nati o n
has proved
its
teams.
In the oil spil
off Puerto Ri c o on January
ei t her i n the Sl Us’ Santurce
hai l or who were on
turned-to
and became
an i n stantaneous
cl e anup
onboard
a Great Lakes vessel ,
whi c h
necessi t ated
agent i n the regi o n
was contacted
at ni g ht,
after
cal l e d
every NMU member
regi s tered
at hi s hai l
hours.
In the case of ARF shi p s,
the SW and
proxi m i t y
to the three areas i n whi c h
thei r trai n i n g
school s
wi t hi n
easy range
the NMU’s
trai n i n g
program
at Texas
Hai l Center for Mari t i m e
Trai n i n g
and
School ,
i n Pi n ey Poi n t, Maryl a nd.1
hai l s
Such
of uni o ns
acti v ati o n
Stehment
Page
of SRJ and
87
NMU on Manni n g
seabe used
worth i n regard to oil spil cl e anup
7 of thi i year, Seafarers
who were
the i s l a nd
and reached
by phone,
team.
In the case of an oil spil
emergency
cl e anup
crews, the NMU
normal
worki n g
hours.
He, i n turn,
and mustered
a cl e anup
crew wi t hi n
the NMU have uni o n
hai l s wi t hi n
cl o se
geographi c
RRF shi p s are si t uated.
Al s o, the uni o ns
have
of two of the fl e ets.
(Beaumont,
Texas
is near
A&M: Norfol k ,
Vi r gi n i a
is cl o se
to the Si Us’ Paul
Educati o n,
i n cl u di n g
the Lundeberg
Seamanshi p
The SIU and the NMU propose
that the mari t i m e
uni o ns
submi t
names
and rati n gs
of i n di v i d ual s
who have agreed
to be on cal l
assi g nments
duri n g
that peri o d.
Those
Indi v i d ual s ,
who woul d
month
peri o d,
woul d
agree to be near-at-hand
i n order to compl y
noti c e.
Such acti v ati o n
crewmembers
al s o coul d
parti c i p ate
in
RRF shi p s.
Jotnt
representi n g
teams shoul d
on a quarterl y
basi s the
for acti v ati o n
crew
not shi p duri n g
the threewi t h a hai r -tri g ger
dril s
and exerci s es
on
10
the RRF
GAO/NSIAD-94-177
Strategi c
Seal i ft’
Appendi x
IX
Manni n g
the Ready
Beserve
Force:
The
Probl e m
and Proposed
Sol o ti o neA
Jol n t
Statement
of the Seai a rers
Internati o nal
Uni o n
and Nati o nal
Mari t i m e
Uni o n
RRF shi p s and thei r
basi s .
The SIU and
years and compl e te
ROS crews shoul d
engage
In sea tri a l s and
the NW
recommend
underway
acti v ati o ns
dock tri a l s once a year.
dock tri a l s on a regul a r
at l e ast once every two
It is vi t al that the ARF vessel s
go out to sea as a fi n al test on whether
all systems
and
equi p ment
work when the shi p is underway,
Such acti v ati o ns
wil al l o w
ROS crews and
shi p management
compani e s
to determi n e
if mai n tenance
and repai r measures
are
worki n g.
Underway
8XerCi S 8S whi c h
repl i c ate
the ki n ds
of mi l i t ary
assi g nments
i n whi c h
a shi p
wil be i n vol v ed
duri n g
a ti m e of emergency,
i n cl u di n g
underway
r8pl e ni s hment
maneuvers,
wil prepare
a crew and a vessel
to be aware of the ki n ds
of Issues
that can
throw a ki n k i n any acti v ati o n.
For exampl e ,
i n Operati o n
Desert Shi e l d /D8sett
StOrm,
one shi p recei v ed
ni n e el e ctri c
forkl i f t
trucks j u st before getti n g
underway.
It was onl y
when the vessel
was at sea that Cr8WmemberS
di s covered
there was no pl a ce
onboard
to charge
batteri e s.
If that had been a s8a tri a l , i n stead
of a real acti v ati o n,
the mi l i t ary
woul d
have be8n better off.
Meeti n PUr
the RAE
The mari t i m e
unl o ns’
trai n i n g
school s
can i m pl e ment
programs
to generate
whatever
evol v es
i n the way of skll
requi r ements
for seamen
assi g ned
to RRF vessel s .
Thi s
exi s ti n g
asset can prepare
seamen
for the rati n gs
necessary
to man RRF shi p s
but whi c h
are now superfl u ous
i n the commerci a l
fl e et.
Shoul d
addl t i o nal
trai n i n g
demands
become
necessary,
the uni o ns
can i n sti t ute
the
appropri a te
courses
at thei r trai n i n g
school s
and hi r l n g
hal l s .
For exampl e ,
the mi l i t ary
l i k el y
to make us8 of tugboats
and barges
or Great Lakes vessel s .
The SIU and the
NMU not onl y have members
who currentl y
work aboard
thi s ki n d of mari n e
equi p ment,
but both uni o ns
trai n mari n ers
In ths parti c ul a r
skil s
necessary
for work aboard
tugs
barges
and Lakers.
The SIU woul d
trai n i n g
program
Page
lik8
88
to offer its Pi n ey Poi n t faci l i t y
geared
toward
the systems
and
to be used as a prototype
condi t i o ns
of RRF shi p s.
is
and
for a
The program
GAO/NSIAD-94-177
Strategi c
Seal i f t
Appendi x
IX
Manni n g
Probl e m
Statement
Uni o n
the
ad
and
Ready
Reeerve
Force:
The
Proposed
Sol u tl o wA
Joi n t
of the Seafarers
Internati o nal
Nati o nal
Marl t i m e
Uni o n
coul d
become
a model
for future trai n i n g
core curri c ul u m.
As part of the program,
yards from the Pi n ey Poi n t faci l i t y
to ai d
program
as a l a boratory
where prototype
work cl o sel y
wi t h Texas
AIM at Gal v eston,
a course.
programs,
al l o wi n g
an opportuni t y
to devel o p
a
an RRF shl p coul d
be homeported
some 100
i n tral n i n g.
The NMU al s o offers i t s trai n i n g
courses
can be i m pl e mented.
The NMU wi l
the uni o n’s
trai n i n g
center,
to i n sti t ute
such
It i s worthwhi l e
noti n g
that many seamen
who sai f
trai n ed
to work aboard
mi l i t ary
shi p s.
Both the SIU
speci a l i z ed
seel i f t
trai n i n g
for thei r members.
Si n ce
have greduetsd
from the uni o n’s
mi l i t ary
operati o ns
i n the commerci a l
U.S.-fl a g
fl e et are
end the NMU have conducted
1984,
more than 3,500
SIU seamen
preparedness
course.
For some 30 years, whi l e
trai n i n g
for -- end worki n g
on -- MSC preposi t i o ni n g
vessel s ,
test seel i f t
shi p s end other cl a ssi f i c ati o ns
of MSC vessel s ,
SIU end NMU seamen
have
l e arned
and practi c ed
acti o ns
speci f k
to mi l i t ary
seal i f t
operati o ns.
Among
these are
underway
and verti c al
repl e ni s hment
procedures,
hel i c opter
di r ecti o ns,
forkl i f t
maneuvers,
damage
control
processes,
chemi c al
shi e l d
appl i c ati o ns
end Haggl u nds
crane systems.
Thi s experi e nce
as other real i f t
has been
shi p s.
appl i e d
to RRF shi p s
whi c h
have
many
of the same
functi o ns
Currentl y ,
%eaman
obtai n
certai n
certi f i c ati o ns
recogni z ed
by MSC i n order to work
aboard
MSC-subcontracted
shi p s.
The SIU and the NMU recommend
that MSC
certi f i c etl o ns
be coordi n ated
wi t h U.S. Coast Guard certi f i c ati o ns
to avoi d
unnecessary
dupl i c ati o n
of effort.
For exampl e ,
the fi r efi g hti n g
approved
by the U.S. Coast Guard
shoutd
be executed
i n such a way IO es to meet MSC requi r ements.
A standardi z i n g
of mari n er
certi f i c ati o ns
wi l assi s t
seamen
who
peri o d
may work aboard
a commerci a l
shi p , an k&C-subcontracted
shi p i n AOS status.
The broader
the experi e nce
of the mari n er,
or she h i n beheff
of the shi p operator,
whether
i t be a commerci a l
management
company
In the RRF program.
Jo&
Statcmrant of StU and NMU on Manni n g
Page
99
wi t hi n
vessel
the more
carri e r
any
fi v e-year
or en RRF
producti v e
he
or a shi p
the RRF
12
GAO/NSIAD-94.177
Strategi c
Seal i f t
Appendi x
IX
Mannhg
the Ready
Reserve
Force:
The
Sol u ti o ns-A
Joi n t
Probl e m
and Proposed
Statement
of the Seafarers
Internati o nal
Uni o n
and Nati o nal
Mari t i m e
Uni o n
and
The Coast Guard reports
i n formati o n
on mari n ers.
that the merchant
mari n e
the future wil l o ok l i k e a
Uo - w -
Inform
that the agency
is prepari n g
an up-to-date
database
contai n i n g
The resul t of the central i z ed
and computeri z ed
database
is
document
(known
as the z-card1
and mari n e
offi c er
l i c ense
of
credi t card and have a machi n e-readabl e
stri p .
The Coast Guard seamen’s
database
needs.
MarAd
and the Coast Guard
the database
on whether
a seaman
wil be useful
i n the future to meet acti v ati o n
are hol d i n g
tal k s on how to i n cl u de
i n formati o n
woul d
l i k e to be cal l e d
i n ti m es of surge shi p pi n g.
in
The SIU and the NMU recommend
that the Coast Guard work cl o sel y
wi t h the mari t i m e
uni o ns
as it devel o ps
its database
on U.S. mari n ers.
The unl o ns
further recommend
that
whatever
i n formati o n
system
is devel o ped,
the machi n e-readabl e
i n formati o n
shoul d
be
avai l a bl e
to a broader
audi e nce
than the Coast Guard.
In other words,
today
a uni o n
representati v e
or a shi p pi n g
company
offi c i a l
can l o ok at a
be
z-card and obtai n
certai n
i n formati o n.
What is avai l a bl e
by si g ht today shoul d
avai l a bl e
through
a machi n e-readabl e
mechani s m
i n the future.
The equi p ment
necessary
to read the data shoul d
be i n expensi v e
and purchasabl e
by the uni o ns
and
shi p pi n g
compani e s.
The data shoul d
be readabl e
onl y to these parti e s.
The U.S. Coast
Guard sol e l y
shoul d
have the abi l i t y
to mani p ul a te
the data.
Recogni z i n g
that i n ti m es of cri s i s
RRF bi l e ts
must be fi l e d,
and fi l e d
qual i f i e d
seamen,
the SIU and the NMU have formal i z ed
the cooperati o n
had duri n g
Operati o n
Desert Shi e l d /Desert
Storm.
In the
rati n g,
event of an acti v ati o n,
the other uni o n
wil
The
one
SIU and the
pensi o n
pl a n
Jol t
Statement
Page
NMU are commi t ted
or heai t h
care pl a n
of SIU md
90
shoul d
ei t her uni o n
be contacted
by that
NMU on Manni n g
fi n d
uni o n
a temporary
for assi s tance.
to guaranteei n g
that,
wil not be an obstacl e
qui c kl y ,
by
the two uni o ns
shortfal l
of a certai n
at such ti m es,
bel o ngi n g
to fi t ti n g a vi t al j o b.
to
13
the RRF
GAOINSLAD-94-177
strstegtc
setl , l i f t
Appfmdi x IX
Manni n g
the Beady
Btserve
Force:
The
Probl e m
aad Propomd
Sol u ti o ru~-A
Joi n t
Statement
of the Seti m
Ix~ternati o nal
Uni o n md Nati o nal
Mari t i m e
Uni o n
Conch&n
The SIU and
way possi b l e .
be nM&Itei M d
Joht
Stotmmnr
Page
the
The
unti l
NMU art) prepered
to arrl s t on thl e matter of absol u te
urgency
i n any
uni o n6
bel l e ve
that conti n ued
dhcu66i o ns
end communl c atbn
shoul d
an agreeabl e
propo6al
Is reached
between
al l concerned
partl e r.
et SW utd
91
NMIJ WJ M&mi n e
the RRF
14
Appendi x
X
Panel Members
Represented
Panel
Members
Organi z ati o ns
Represented
and Organi z ati o ns
Charl e s A. Bookman,
Di r ector,
Mari n e
Board, Nati o nal
Research
Counci l
Bruce J. Carl t on, Di r ector,
Pol i c y and Pl a ns, Mari t i m e
Admi n i s trati o n
James L. Johnson,
Di r ector,
Proj e cti o n
Forces Di v i s i o n,
Program Anal y si s
and Eval u ati o n,
Offi c e of the Assi s tant
Secretary of Defense
Jerome E. Joseph,
Executi v e
Vi c e Presi d ent,
Ameri c an
Mari t i m e
Offi c ers
Mary E. Lyons, PhD., Presi d ent,
Cal i f orni a
Mari t i m e
Academy
Captai n
Jack McGowan,
Chi e f, Merchant
Vessel Personnel
Di v i s i o n,
U.S. Coast Guard
Rear Admi r al
Carl J. Sei b erl i c h,
U.S. Navy (Ret.), Di r ector,
Mi l i t ary
Programs,
Ameri c an
Presi d ent
Li n es, Ltd.
Don Wal s h, PhD., Presi d ent,
Internati o nal
Mari t i m e
Incorporated
Captai n
John Wal t on,
Assi s tant
to the Internati o nal
Presi d ent,
Internati o nal
Organi z ati o n
of Masters, Mates, and Pi l o ts
Ameri c an
Mari t i m e
Offi c ers
Ameri c an
Mari t i m e
Offi c ers Servi c e
Ameri c an
Overseas
Mari n e
Corporati o n
Ameri c an
Presi d ent
Li n es, Ltd.
Cal i f orni a
Mari t i m e
Academy
Di s tri c t No. l - PCD, Mari n e
Engi n eers
Benefi c i a l
Associ a ti o n
(AFLCIO)
Di s tri c t No. 4-NMU/Mari n e
Engi n eers
Benefi c i a l
Associ a ti o n
(AFL-CIO)
Inspector
General ,
Department
of Defense
Internati o nal
Mari t i m e,
Incorporated
Internati o nal
Organi z ati o n
of Masters, Mates, and Pi l o ts
K Associ a tes
Maersk Li n e, Ltd.
Mari t i m e
Insti t ute
for Research
and Industri a l
Devel o pment
Mari t i m e
Admi n i s trati o n,
Department
of Transportati o n
Mi l i t ary
Seal i f t Command,
Department
of Defense
Mormac
Mari n e
Transport,
Inc.
Nati o nal
Defense Transportati o n
Associ a ti o n
Nati o nal
Research
Counci l ,
Mari n e Board
Offi c e of the Chi e f of Naval Operati o ns
(Strategi c
Seal i f t Di v i s i o n),
Department
of Defense
Offi c e of the Deputy Under Secretary
of Defense (Transportati o n
Pol i c y),
Department
of Defense
Offi c e of the Assi s tant
Secretary of Defense (Program Anal y si s
and
Eval u ati o n),
Department
of Defense
Seafarers Internati o nal
Uni o n
State Uni v ersi t y
of New York Mari t i m e
Col l e ge
The Joi n t Staff, Department
of Defense
Page 92
GAO/NSIAD-94-177
Strategi c
SeaUft
Appendi x
X
Panel
Members
Represented
and
Organi z ati o ns
Transportati o n
Insti t ute
U.S. Coast Guard, Department
of Transportati o n
U.S. Merchant
Mari n e Academy,
Department
of Transportati o n
U.S. Naval Reserve, Department
of Defense
U.S. Transportati o n
Command,
Department
of Defense
(703071)
Page
93
GAO/NSIAD-94-177
Strategk
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