Preproposal statement of inquiry was filed as WSR 06-12-044.
Title of Rule and Other Identifying Information: WAC 363-116-078 Training program.
Hearing Location(s): 2901 3rd Avenue, Fourth Floor Rainier Conference Room, Seattle, WA 98121, on September 14, 2006, at 9:30 a.m.
Date of Intended Adoption: September 14, 2006.
Submit Written Comments to: Captain Harry Dudley, Chairman, 2901 3rd Avenue, Seattle, WA 98121, e-mail LarsonP@wsdot.wa.gov, fax (206) 515-3906, by September 7, 2006.
Assistance for Persons with Disabilities: Contact Peggy Larson by September 11, 2006, (206) 515-3904.
Purpose of the Proposal and Its Anticipated Effects, Including Any Changes in Existing Rules: The proposed rule modifies subsection (10) of WAC 363-116-078 entitled "Stipend." The purpose of the proposal is to clarify the criteria for a pilot trainee to earn a training stipend. The proposed rule addresses the requirements and expectations for pilot trainees while engaged in a training program, whether in a stipend or nonstipend status. It also establishes the process for administering the stipend payments.
Entitlement to a monthly stipend payment will be based upon a pilot trainee's commitment to full-time training, fulfillment of a set minimum number of monthly training trips, timely completion of hard-to-get trips, and proper documentation of completed training trips.
The proposed rule also modifies subsection (5) of WAC 363-116-078 entitled "Initial evaluation." The purpose of the proposed amendment is to require board approval of the initial evaluation portion of each applicant's training program established by the trainee evaluation committee.
Reasons Supporting Proposal: It is recommended by the trainee evaluation committee that the proposed rule be adopted in order to resolve the difficulty in understanding the qualifications and administration of the stipend program.
Statutory Authority for Adoption: RCW 88.16.105.
Statute Being Implemented: Chapter 88.16 RCW.
Rule is not necessitated by federal law, federal or state court decision.
Agency Comments or Recommendations, if any, as to Statutory Language, Implementation, Enforcement, and Fiscal Matters: The board may adopt a rule that varies from the proposed rule upon consideration of presentations and written comments from the public and other interested parties.
Name of Proponent: Board of pilotage commissioners, governmental.
Name of Agency Personnel Responsible for Drafting, Implementation and Enforcement: Board of Pilotage Commissioners, 2901 Third Avenue, Seattle, WA 98121, (206) 515-3904.
No small business economic impact statement has been prepared under chapter 19.85 RCW. The Washington state board of pilotage commissioners concludes that implementation of this new rule is for purposes of clarifying the existing rule. It does not impact small businesses.
A cost-benefit analysis is not required under RCW 34.05.328. RCW 34.05.328 does not apply to this rule adoption. The Washington state board of pilotage commissioners is not a listed agency in RCW 34.05.328 (5)(a)(i).
July 25, 2006
AMENDATORY SECTION(Amending WSR 05-18-021, filed 8/29/05, effective 10/1/05)
WAC 363-116-078 Training program. After passing the written examination and simulator evaluation, applicants pursuing a pilot license must enter and successfully complete a training program specified by the board.
(1) Notification. Applicants on the list waiting to enter the training program shall provide the board with a current address to be used for notification for entry into the training program. Such address shall be a place at which mail is delivered. In addition, an applicant may provide the board with other means of contact such as a phone number, fax number, and/or an e-mail address. The mailing address will, however, be considered the primary means of notification by the board. It will be the responsibility of the applicant to ensure that the board has a current mailing address at all times. If an applicant cannot personally receive mail at the address provided to the board for any period of time, another person may be designated in writing with a notarized copy to the board as having power of attorney specifically to act in the applicant's behalf regarding such notice. If notice sent to the address provided by the applicant is returned after three attempts to deliver, that applicant will be skipped and the next applicant on the list will be contacted for entry into the training program. A person so skipped will remain next on the list. An applicant or his designated attorney in fact shall respond within fifteen calendar days of receipt of notification to accept, refuse, or request a delayed entry into the training program.
(2) Entry. At such time that the board chooses to start an applicant in the training program, notification shall be given to the first person on the list. Applicants shall be eligible in the order of their total combined scores on the written examination and simulator evaluation. Any applicant who refuses entry into the program will be removed from the waiting list with no further obligation by the board to offer a position in the training program. An applicant who is not able to start the training program within two months of the board's notice may, with written consent of the board, delay entry into the training program. The board will then give notice to the next applicant on the list to enter the training program. The applicant who delays entry, shall remain eligible for the next position in the training program, provided that the next position becomes available within the earlier of:
(a) Four years from the applicant's taking the written examination; or
(b) The date scheduled for the next pilotage examination. Applicants not able to start in the training program within two months of the board's notice of eligibility and who do not obtain the board's written consent to delay entry into the training program shall no longer be eligible for the training program without retaking the examination provided in WAC 363-116-076 and the simulator evaluation provided in WAC 363-116-077.
(3) Training license. Prior to receiving a training license applicants must pass a physical examination by a physician designated by the board and in accordance with the requirements of WAC 363-116-120 for initial applicants. A form provided by the board must be completed by the physician and submitted to the board along with a cover letter indicating the physician's findings and recommendations as to the applicant's fitness to pilot. The physical examination must be taken not more than forty-five days before issuance of the training license. Holders of a training license will be required to pass a general physical examination annually within forty-five days prior to the anniversary date of that license. Training license physicals will be at the expense of the applicant. All training licenses shall be signed by the chairperson or his/her designee and shall have an expiration date and fee established by the board. Training licenses shall be surrendered to the board upon completion or termination of the training program.
(4) Development. As soon as practical after receiving notification of eligibility for entry into the training program as set forth in this section, the applicant shall meet with the trainee evaluation committee for the purpose of devising a training program for that applicant. The training program shall be tailored to the ability and experience of the individual applicant and shall consist of observation trips, training trips in which the applicant pilots the vessel under the supervision of licensed pilots, ship assist tug trips, and such other forms of learning and instruction that may be designated. The trainee evaluation committee shall recommend a training program for adoption by the board. After adoption by the board, it will be presented to the applicant. If the applicant agrees in writing to the training program, the board shall issue a training license to the applicant, which license shall authorize the applicant to take such actions as are contained in the training program. If the applicant does not agree to the terms of the training program in writing within fifteen business days of it being received by the applicant, that applicant shall no longer be eligible for entry into the training program and the board may give notice to the next available applicant that he/she is eligible for the training program.
(5) Initial evaluation.
(a) The trainee evaluation committee shall create an initial evaluation at the beginning of each applicant's training program subject to approval by the board. The goal of the initial evaluation is to, as soon as practical after adequate observation trips, have the pilot trainee involved in hands-on piloting and ship handling under the supervision of licensed pilots and subject to the evaluation of training pilots. To this end the trainee evaluation committee shall devise an initial evaluation of a specified length not to exceed six months if the pilot trainee is on stipend and nine months if not on stipend. The initial evaluation shall:
(i) Afford the pilot trainee early and concentrated exposure to a commonly navigated waterway, channel or tributary within the pilotage district and the main ship channel routes between such area and the seaward boundary of the pilotage district;
(ii) Except for pilot trainees taking an examination prior to July 1, 2008, provide the pilot trainee the opportunity to study for and pass any local knowledge examination provided by the board as to the conditions found in such waterway, channel or tributary;
(iii) Specify a number of training trips in which the pilot trainee pilots vessels under the supervision of licensed pilots; and
(iv) Specify a number of training trips in which the pilot trainee pilots vessels under the supervision of training pilots and the pilot members of the trainee evaluation committee.
(b) As a condition of completing the initial evaluation, the pilot trainee shall:
(i) Pass any required local knowledge examination given by the board covering the routes described in (a)(i) of this subsection. This examination can be repeated as necessary, provided that it may not be taken more than once in any thirty day period and further provided that it must be successfully passed before the expiration date of the initial evaluation; and
(ii) Possess a first class pilotage endorsement without tonnage or other restrictions on his/her United States government license to pilot in at least one route in the pilotage district in which the pilot applicant seeks a license.
(c) After completion of the initial evaluation, the trainee evaluation committee shall make a recommendation to the board and the board shall determine, whether the pilot trainee has demonstrated the potential for superior piloting and ship handling and has demonstrated the ability to assimilate and retain the local knowledge necessary to pilot. Unless the board finds that such superior potential exists, it shall terminate the pilot trainee's participation in the training program.
(6) Specification of trips. To the extent possible, the training program shall provide a wide variety of assignments, observation and training trips. The training program may contain deadlines for achieving full or partial completion of certain necessary actions. Where relevant, it may specify such factors as route, sequence of trips, weather conditions, day or night, stern or bow first, draft, size of ship and any other relevant factors. The board may designate specific trips or specific numbers of trips that shall be made with training pilots or with the pilot members of the trainee evaluation committee or with pilots of specified experience. In the Puget Sound pilotage district, applicants taking an examination before July 1, 2008, shall have a minimum of one hundred thirty trips. After July 1, 2008, all Puget Sound applicants shall have a minimum of one hundred fifty trips. The board shall set from time to time the minimum number of trips for applicants in the Grays Harbor pilotage district. The board will ensure that during the training program the pilot trainee will get significant review by training pilots and the pilot members of the trainee evaluation committee.
(7) Local knowledge. The training program shall provide for the education and testing of pilot trainees on the local knowledge necessary to become a pilot. This education program shall be developed by the trainee evaluation committee and recommended to the board for adoption and shall be tailored to the needs of the individual pilot trainee. Prior to the completion of the training program, the board, or its designee, shall give a local knowledge examination(s) to the pilot trainees who shall be required to pass such examination(s) before completing the training program. Pilot trainees taking an examination before July 1, 2008, shall not be required to take local examinations. These local examinations can be repeated as necessary, except that an examination for the same local area may not be taken more than once in any thirty day period and all required local knowledge examinations must be successfully passed before the expiration date of the training program. The local knowledge examination(s) may include the following subjects as they pertain to the pilotage district for which the pilot trainee seeks a license:
(a) Area geography;
(b) Waterway configurations including channel depths, widths and other characteristics;
(c) Hydrology and hydraulics of large ships in shallow water and narrow channels;
(d) Tides and currents;
(e) Winds and weather;
(f) Local aids to navigation;
(g) Bottom composition;
(h) Local docks, berths and other marine facilities including length, least depths and other characteristics;
(i) Mooring line procedures;
(j) Local traffic operations e.g., fishing, recreational, dredging, military and regattas;
(k) Vessel traffic system;
(l) Marine VHF usage and phraseology, including bridge-to-bridge communications regulations;
(m) Air draft and keel clearances;
(n) Submerged cable and pipeline areas;
(o) Overhead cable areas and clearances;
(p) Bridge transit knowledge - signals, channel width, regulations, and closed periods;
(q) Lock characteristics, rules and regulations;
(r) Commonly used anchorage areas;
(s) Danger zone and restricted area regulations;
(t) Regulated navigation areas;
(u) Naval operation area regulations;
(v) Maneuvering behavior for different vessel types;
(w) Impact of propulsion and maneuvering machinery on vessel navigation;
(x) Local ship assist and escort tug characteristics;
(y) Tanker escort rules - state and federal;
(z) Use of anchors and knowledge of ground tackle;
(aa) Applicable federal and state marine and environmental safety law requirements;
(bb) Marine security and safety zone concerns;
(cc) Marine port security regulations;
(dd) Harbor safety plan and harbor regulations; and
(ee) Chapter 88.16 RCW and other relevant state and federal regulations.
(a) In the Puget Sound pilotage district, for applicants taking an examination before July 1, 2008, the minimum length of the training program shall be seven months. For applicants who take an examination on or after July 1, 2008, the minimum length of the training program shall be eight months. The maximum length of the training program shall be thirty-six months if the applicant elects to receive a stipend. The length of the training program shall be established by the board based on the recommendation of the trainee evaluation committee.
(b) In the Grays Harbor pilotage district, the length of the training program shall be set by the board based on the recommendation of the trainee evaluation committee.
(9) Rest. It is the pilot trainee's responsibility to provide adequate rest time so that he/she is fully able to pilot on training trips. Pilot trainees shall not take pilot training trips in which they will be piloting the vessel without observing the rest rules in place by federal or state law or regulation. For purposes of calculating rest required before a training trip in which the pilot trainee will be piloting after an observation trip in which the pilot trainee did not pilot the vessel, such observation trip shall be treated as though it had been a normal pilotage assignment. Nothing herein shall be construed as requiring any particular amount of rest before any observation trip in which the pilot trainee will not be piloting.
(a) At the initial meeting with the trainee evaluation committee the applicant shall indicate whether he/she wishes to receive a stipend during the training program. In the Puget Sound pilotage district, as a condition of receiving such stipend, applicants will agree to forego during the training program other full- or part-time employment which prevents them from devoting themselves on a full-time basis to the completion of the training program. With the consent of the board and the restructuring of the training program, pilot trainees may elect to change from a stipend to nonstipend status, and vice versa, during the training program. The stipend paid to pilot trainees shall be six thousand dollars per month (or such other amount as may be set by the board from time to time), shall be contingent upon the board's setting of a training surcharge fee in the tariffs levied pursuant to WAC 363-116-185 and 363-116-300 sufficient to cover the expense of the stipend and shall be paid from a pilot training account as directed by the board and pursuant thereto shall be paid to pilot trainees as set forth below:
(i) The stipend will be paid on a full calendar month basis except that prorations may be used for the first and last months in which the trainee is found unfit for duty and in which the trainee changes to a nonstipend status.
(ii) Determinations as to stipend entitlement will be made on a calendar month basis and documentation of trips will be submitted to the board by the fifth day of the following month. The stipend will be paid on an all or nothing basis for each month except that prorations shall be allowed at the rate of two hundred dollars per day (or such other amount as may be set by the board from time to time), under the following circumstances:
(A) For the first and last months of the training program (unless the training program starts on the first or ends on the last day of a month); or
(B) The trainee is deemed unfit for duty by the board during a training month; or
(C) A trainee requests a change to a nonstipend status as set forth in (a)(vii) of this subsection.
(iii) A certain minimum number of trips are required each month for eligibility to receive the stipend. To obtain eligibility for the stipend, trips must be required in the training program. These will be documented at the end of the month.
(iv) It is the trainee's responsibility to make all hard-to-get trips before the end of the training program. A trainee can expect that if a training program is extended due to a failure to get all of these trips, the extension will be without payment of a stipend if the missing trips were available to the trainee but not taken.
(v) The trainee evaluation committee with approval by the board may allocate, assign or specify training trips among multiple trainees. Generally, the trainee who finished the qualifying examination and simulator evaluation with the highest score has the right to first choice of training trips provided that the trainee evaluation committee may with approval by the board allocate or assign training trips differently as follows:
(A) When it is necessary to accommodate any trainee's initial evaluation program;
(B) When it is necessary to spread hard-to-get trips among trainees so that as many as possible complete required trips on time. If a trainee is deprived of a hard-to-get trip by the trainee evaluation committee, that trip will not be considered "available" under (a)(iii) of this subsection. However, the trainee will still be required to complete the minimum number of trips for the month in order to receive a stipend, and the minimum number of trips as required to complete his/her training program;
(vi) If a trainee elects to engage in any full- or part-time employment, the terms and conditions of such employment must be submitted to the trainee evaluation committee for prior determination by the board of whether such employment complies with the intent of this section prohibiting employment that "prevents (trainees) from devoting themselves on a full-time basis to the completion of the training program."
(vii) If a trainee requests to change to a nonstipend status as provided in this section such change shall be effective for a minimum nonstipend period of thirty days, provided that before any change takes effect the board and the trainee must agree in writing on the terms of a revised training program.
(b) Any approved pilot association or other organization collecting the pilotage tariff levied by WAC 363-116-185 or 363-116-300 shall transfer the pilot training surcharge receipts to the board at least once a month or otherwise dispose of such funds as directed by the board. The board may set different training stipends for different pilotage districts. Receipts from the training surcharge shall not belong to the pilot providing the service to the ship that generated the fee or to the pilot association or other organization collecting the surcharge receipts, but shall be disposed of as directed by the board. Pilot associations or other organizations collecting surcharge receipts shall provide an accounting of such funds to the board on a quarterly basis or at such other intervals as may be requested by the board. Any audited financial statements filed by pilot associations or other organizations collecting pilotage tariffs shall include an accounting of the collection and disposition of these surcharge fees. The board shall direct the disposition of all funds in the account.
(11) Trainee evaluation committee. There is hereby created a trainee evaluation committee to which members shall be appointed by the board. The committee shall include: Three active licensed Washington state pilots, who, to the extent possible, shall be from the district in which the pilot trainee seeks a license and at least one of whom shall be a member of the board; one representative of the marine industry from the relevant pilotage district (who may be a board member) who holds, or has held, the minimum U.S. Coast Guard license required by RCW 88.16.090; and one public representative member of the board. The committee shall be chaired by a pilot member of the board and shall meet as necessary to complete the tasks accorded it.
(12) Training pilots. The board shall designate as training pilots those pilots with a minimum of seven years of piloting in the relevant district who are willing to undergo such training as the board may require and provide. The board may establish a lower experience level for the Grays Harbor pilotage district. Training pilots shall receive such training from the board to better enable them to give guidance and training to pilot trainees and to properly evaluate the performance of pilot trainees. The board shall keep a list of training pilots available for public inspection at all times. All pilot members of the trainee evaluation committee shall also be training pilots.
(13) Evaluation. When a pilot trainee pilots a vessel under the supervision of another pilot, the supervising pilot shall, to the extent possible, communicate with and give guidance to the pilot trainee in an effort to make the trip a valuable learning experience. After each such trip, the supervising pilot shall complete a form provided by the board evaluating the pilot trainee's performance. The board shall prepare different forms to be used by supervising pilots who are training pilots and those who are not. Evaluation forms prepared by licensed pilots who are not training pilots shall be used by the trainee evaluation committee and the board for assessing a pilot trainee's progress, providing guidance to the pilot trainee and for making alterations to the training program. All evaluation forms shall be delivered or mailed by the supervising pilot to the board. They shall not be given to the pilot trainee. The supervising pilot may show the contents of the form to the trainee, but the pilot trainee has no right to see the form until it is filed with the board. The trainee evaluation committee shall review these evaluation forms from time to time and the chairperson of the trainee evaluation committee shall report the progress of all pilot trainees at each meeting of the board. If it deems it necessary, the trainee evaluation committee may recommend, and the board may make, changes from time to time in the training program requirements applicable to a pilot trainee, including the length of the training program.
(14) Removal. A pilot trainee may be removed from the training program by the board if it finds any of the following:
(a) Failure to maintain the minimum federal license required by RCW 88.16.090;
(b) Conviction of an offense involving drugs or involving the personal consumption of alcohol;
(c) Failure to devote full time to training in the Puget Sound pilotage district if receiving a stipend;
(d) The pilot trainee is not physically fit to pilot;
(e) Failure to make satisfactory progress toward timely completion of the program or timely meeting of interim performance requirements in the training program;
(f) Inadequate performance on examinations or other actions required by the training program;
(g) Failure to demonstrate the superior skills required in the initial evaluation;
(h) Inadequate performance on training trips; or
(i) Violation of a training program requirement, law, regulation or directive of the board.
(15) Completion of the training program shall include the requirement that the pilot trainee:
(a) Successfully complete the requirements set forth in the training program;
(b) Possess a valid first class pilotage endorsement without tonnage or other restrictions on his/her United States government license to pilot in all of the waters of the pilotage district in which the pilot applicant seeks a license; and
(c) Successfully complete any local knowledge examination(s) required by the board and specified in the training program.
[Statutory Authority: Chapter 88.16 RCW and 2005 c 26. 05-18-021, § 363-116-078, filed 8/29/05, effective 10/1/05.]