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7 U. S. DEPARTMENT OF HOMELAND SECURITY UNITED STATES COAST GUARD REPORT ON AVAILABILITY & USE OF EPIRBS FOR RECREATIONAL VESSELS

8 TABLE OF CONTENTS PAGE Mandate For This Report 2 Current Availability and Use of EPIRBS by Operators of Recreational Vessels 2 Types of Emergency Position Indicating Radio Beacons 4 Testing And Maintenance of Emergency Position Indicating Radio Beacons 6 Registration of 406 Emergency Position Indicating Radio Beacons 6 EPIRB Use by Operators of Recreational and Commercial Vessels 7 Actual and Potential Contribution of EPIRBS to Recreational Boating Safety 9 Recommendations on Policies and Programs to Encourage the Availability and 9 Use of EPIRBS by Operators of Recreational Vessels Grant Agreement Phase I (63,000 Dollars) 9 Grant Agreement Phase II (99,000 Dollars) 9 Grant Agreement Phase III ($25,000) 11 Grant Agreement Phase IV ($40,000) 12 Status of the 406 Mhz EPIRB Rental Program 13 Policy Recommendations 13 APPENDIX A: Comparison of the 406 Mhz And 121.5mhz Distress Beacons 14 Appendix B: EPIRB Rental Program Stastics 15 Appendix C: Press Releases: 25 Appendix D: EPIRB Rental Program Online Order Form 27 1

9 I. MANDATE FOR THIS REPORT Title III of the Coast Guard Authorization Act of 1998 (Public Law ) contained a requirement in Sec. 309 (Availability and Use of EPIRBs for Recreational Vessels) to assess and report to Congress, in consultation with the National Transportation Safety Board and recreational boating organizations, on the use of Emergency Position Indicating Radio Beacons (EPIRBs) and similar devices by operators of recreational vessels on the Intra-coastal Waterway and operators of recreational vessels beyond the Boundary Line. The United States Coast Guard is the lead agency for coordinating national search and rescue (SAR) policy in the maritime environment. The statutory authority for the Coast Guard to conduct SAR missions is contained in 14 U.S.C. 2, 88, and 141. The Code states that the Coast Guard shall develop, establish, maintain and operate SAR facilities and may render aid to distressed persons and protect and save property on and under the high seas and waters subject to the jurisdiction of the United States. The following requirements are addressed in this report: (a) The current availability and use of EPIRBs and similar devices by the operators of recreational vessels; (b) The actual and potential contribution of such devices to recreational boating safety; and (c) Recommendations on policies and programs to encourage the availability and use of EPIRBS and similar devices by the operators of recreational vessels. II. THE CURRENT AVAILABILITY AND USE OF EPIRBs BY OPERATORS OF RECREATIONAL VESSELS The U.S. Coast Guard is responsible for an area that includes 95,000 miles of coastline in the continental United States, Alaska, Hawaii, Guam, and Puerto Rico, as well as the navigable rivers and lakes in the United States. These waterways are used for recreation, commerce, and tourism by more than 76 million adult boaters. The Coast Guard responds to distress calls and emergency signals from commercial and recreational boaters via cell phones, handheld Very High Frequency (VHF) radios, marine VHF radios, High Frequency (HF) radios, flares, flashlights, and signal flags. The Coast Guard s backbone communications network is the National Distress and Response System (NDRS). Established more than 30 years ago, this VHF-FM-based radio communication system has a range of up to 20 nautical miles along most of the shoreline in the United States. The primary distress alerting and SAR communications method for U.S. coastal water is the 2

10 VHF-FM Distress Net standard; which is 100 percent VHF-FM continuous coverage to receive a one watt signal out to 20 nautical miles around the U.S. Atlantic, Pacific, Gulf of Mexico, and Great Lakes coasts. While this system has served the Coast Guard, commercial, and recreational vessel traffic well over the years, it consists of out-of-date and non-standard equipment with limitations that include: Imprecise or no direction finding capability; Numerous geographic coverage gaps; Lack of interoperability with other emergency response services; and Single-channel radio operation. In response to the need to improve maritime distress and safety communication, the Global Maritime Distress and Safety System (GMDSS) was developed. GMDSS currently provides the communication support needed to implement the SAR plan. This system, which the world's maritime nations are implementing, is based upon a combination of satellite and terrestrial radio services, and has changed international distress communications from being primarily ship-toship based to ship-to-shore (Rescue Coordination Center) based. GMDSS provides for automatic distress alerting and locating in cases where a radio operator does not have time or the opportunity to send an SOS or MAYDAY call. Two complimentary components of GMDSS are digital selective calling (DSC) and Emergency Position Indicating Radio Beacon (EPIRB) technology. These components improve maritime distress communication and have the potential to enhance the safety of recreational boaters. The Coast Guard s Rescue 21 system represents a significant improvement in coastal distress communications by providing the capability to receive DSC transmissions that instantly transmit a vessel's identity, exact location and other vital information when properly registered and used in conjunction with an integrated Global Positioning System (GPS) receiver. The Rescue 21 system enables Coast Guard SAR personnel to respond faster since this modern communications system includes direction-finding equipment that will aid in locating distressed vessels within 20 miles of the shore. This system fills existing coverage gaps; enables rescuers to quickly playback recorded communications; allows simultaneous communications on six channels; and provides enhanced interoperability with other federal, State and local communications systems. When traveling outside of reliable VHF radio range or when radio transmission is not possible, EPIRBs are an effective technology recreational boaters can use to improve their chances of survival when in distress. EPIRBs are devices that range from 500 dollars to 1,500 dollars in cost and are designed to save the lives of boaters in distress by alerting rescue authorities and indicating a boater s position. When a boater activates their EPIRB, it alerts satellites within the COSPAS-SARSAT system. COSPAS-SARSAT is an international search and rescue system involving 36 participating countries that use American, European, Indian and Russian satellites to detect and locate emergency beacons that may be indicating distress. In the United States, the program is operated and funded by the National Oceanic and Atmospheric Administration (NOAA), (provides its Polar-orbating Operational Environmental Satellites, POES, and 3

11 Geostationary Operational Environmental Satellites, GOES, as platforms for search and rescue instruments), the U.S. Coast Guard (maritime search and rescue coordinator), the U.S. Air Force (in-land search and rescue coordinator), and the National Aeronautics and Space Administration (NASA)(supporting research and development of search and rescue technology). It operates 24 hours a day, 365 days a year and aims to reduce the time required to alert rescue authorities whenever a distress situation occurs. A. Types of Emergency Position Indicating Radio Beacons There are two types of EPIRBs. One type transmits an analog signal on Megahertz (MHz) and the other type transmits a digital identification code on 406 MHz and a low-power "homing" signal on MHz. The most common and least expensive types of EPIRBs in use by operators of recreational vessels are MHz Class A, Class B, and Class S. These devices are designed to be detected by commercial or military aircraft, and although not designed for transmission to satellites, can also be detected by satellites. However, due to performance limitations and a high false alert rate, the Coast Guard no longer recommends the use of MHz EPIRBS. Furthermore, MHz EPIRBS are no longer legally available for purchase in the United States and their use is being phased out by the Federal Communications Commission (FCC). Types of MHz EPIRBs Class A: 121.5/243 MHz: A float-free, automatically activating device detectable by aircraft and satellite. Response to this type of beacon may be delayed up to six hours. This is due to the need for multiple satellite passes to differentiate distress signals from false alert signals. Accuracy of the satellite generated position for a 121.5/243 MHz is approximately 12 miles. Class B: 121.5/243 MHz: A manually activated version of Class A. Class S: 121.5/243 MHz. Similar to a Class B device except that it floats or is an integral part of a survival craft. All MHz beacons are designed to work with the low-earth orbiting satellite system. These devices do not work as well as 406 MHz beacons because unlike the 406 MHz beacons, they cannot provide a unique identifying digital beacon identification number. Additionally, they cannot be detected by the geostationary satellites that provide instantaneous alerting for the 406 MHz system. Furthermore, MHz beacon false alerts are a large source of wasted effort by search and rescue (SAR) responders. Most 406 MHz false alerts can be resolved easily with a phone call. In contrast, every MHz false alert must be tracked to the source using direction-finding equipment. Therefore, class A, B and S devices are no longer recommended for the following reasons: MHz signal processing by the satellite system will cease as of These EPIRBS are no longer legal for sale in the United States; 2. Satellite detection, processing and positioning is limited for these devices due to the analog nature of the signal and position accuracy is less than optimal; 4

12 3. Frequency congestion in the band used by these devices cause a high satellite false alert rate; consequently, confirmation of an actual SAR event by multiple satellite passes is required before SAR responders can be deployed; and 4. EPIRBs manufactured before October 1989 may have design or construction problems (e.g. some models will leak and cease operating when immersed in water), or may not be detectable by satellite. On October 2000, COSPAS-SARSAT, based on guidance from the International Civil Aviation Organization and the International maritime Organization, announced that satellite processing 121.5/243 MHz emergency beacons will be terminated on February 1, Global Satellite processing will be switched off on that date and there are no plans to carry 121.5MHz instrumentation on future satellite series. Class A and B EPIRBs must be phased out by that date. Boaters who have a MHz EPIRB will find the device no longer works with the COSPAS-SARSAT satellites after that date and will need to switch to a 406 MHz EPIRB. Technologically more advanced, a 406 MHz EPIRB is a boater s best line of defense in an emergency situation beyond VHF radio range because it provides offshore boaters with a unique combination of distress alerting and position indicating. This type of EPIRB is designed to operate with satellites and the signal frequency (406 MHz) has been designated internationally for distress use only. Other communications and interference, such as on MHz, are not present on a 406 MHz frequency. Additionally, the 406 MHz signal allows a satellite local user terminal to locate the EPIRB much more accurately than the 121.5/243 MHz devices. Position accuracy from the 406 MHz beacons is to within three miles. Most importantly, the 406 MHz EPIRB emits a digital signal that contains a unique registration code. The registration code is used to look up information in a national beacon registration database that provides information on the vessel, the crew and emergency points of contact on land. This information enables a quicker and more effective response. Another major advantage of the 406 MHz EPIRB is that additional satellites are capable of receiving the distress signal. These beacons function with both the low earth (polar) orbiting satellite system like the MHz EPIRBs; but as discussed earlier, this coverage is not continuous, and it may take up to a couple of hours for an EPIRB position to be determined by the satellite. To overcome this limitation, COSPAS-SARSAT has 406 MHz EPIRB repeaters on three geostationary satellites (GEOSARs). GEOSARs cannot calculate the location of a 406MHz beacon, but they provide worldwide coverage constantly. Any 406MHz EPIRB activation is immediately picked up by a GEOSAR satellite. Once activated, the alert information, including the beacon registration information, is forwarded immediately to SAR responders. This allows SAR responders to commence efforts to locate the EPRIB and those in distress even before the position is determined by the low earth orbiting satellites. Please see Appendix (A) for more information on the differences between MHz and 406 MHz beacons. Types of 406 MHz EPIRBs 5

13 Category I EPIRB: A Category I EPIRB should be purchased if the device can be properly installed and is activated either manually or automatically. The automatic activation is triggered when the EPIRB is released from its bracket, which is equipped with a hydrostatic release. This mechanism releases the EPIRB at a water depth of three to ten feet. Category II EPIRB: Category II EPIRBs are manual activation units. If a boater owns one of these devices, it should be stored in the most accessible location on board where it can be quickly accessed in case of an emergency. Integral GPS Navigation Receiver: A new type of 406 MHz EPIRB with an integral Global Positioning System (GPS) navigation receiver became available in This type of EPIRB is the best available device a boater can purchase and will send an encoded GPS position (accurate to within 100 meters, as well as identification information, to rescue authorities immediately upon activation through GEOSAR. Along with this autonomous positioning capability, these beacons function as any other 406 MHz EPIRB within the COSPAS-SARSAT system. Personal Locator Beacons (PLBs): In October 2002, the FCC granted a request by NOAA to permit the nationwide use of personal locator beacons, commonly known as PLBs, beginning July 1, While not specifically designed for use in the maritime environment and thus not labeled as EPIRBs, PLBs are a type of 406 MHz beacon that may see increased use by recreational boaters. PLBs are designed to be carried by an individual person instead of on a boat or aircraft. Unlike some EPIRBs, they can only be activated manually and operate exclusively on 406 MHz. Unlike cellular phones, which have limited range and spotty coverage in remote areas, PLBs have the capability of being detected anywhere in the world by the COSPAS-SARSAT system. B. Testing and Maintenance of Emergency Position Indicating Radio Beacons The Coast Guard advises EPIRB owners to periodically examine them for water tightness, battery expiration date and signal presence. FCC rules allow Class A, B, and S EPIRBs to be turned on briefly (for three audio sweeps, or one second only) during the first five minutes of each hour. Signal presence can be detected by an FM radio tuned to 99.5 MHz, or an AM radio tuned to any vacant frequency and located close to an EPIRB. 406 MHz EPIRBs can be tested through their self-test function, which is an integral part of the device. 406 MHz EPIRBs can also be tested inside a container designed to prevent their reception by the satellite. Testing a 406 MHz EPIRB by allowing it to radiate outside such a container is illegal. 406 MHz EPIRBs use a special type of lithium battery designed for long-term, low-power consumption operation. Batteries must be replaced by the date indicated on the EPIRB label using the model specified by the manufacturer and should be replaced by a dealer approved by the manufacturer. If the replacement battery is not the proper type, the EPIRB will not operate for the duration specified in a distress. New batteries cost approximately 200 dollars each. 6

14 C. Registration of 406 Emergency Position Indicating Radio Beacons Proper registration of the 406 MHz EPIRB is intended for life saving purposes and is mandated by FCC regulations. The Coast Guard has the authority to enforce this FCC registration rule. If an EPIRB is properly registered, the Coast Guard will be able to use the registration information to immediately begin action on a search and rescue mission. If the EPIRB is unregistered, a distress alert may take as much as two hours longer to reach the Coast Guard over the international satellite system. If an unregistered EPIRB transmission is abbreviated for any reason, the satellite will be unable to determine the EPIRB's location, and the Coast Guard will be unable to respond to the distress alert. The registration information provided by boaters is entered into the U.S. 406 MHz Beacon Registration Database maintained by NOAA. If an EPIRB is activated, registration information will be sent automatically to the appropriate Coast Guard SAR Rescue Coordination Center (RCC) for response. RCC watch standers will attempt to contact the owner/operator at the phone number listed in the database to determine if the vessel is underway (thus ruling out the possibility of a false alarm due to accidental activation or EPIRB malfunction), the intended route of the vessel if underway, and the number of people on board. If there is no answer at the number provided, the other numbers listed in the database will be called to get the information needed to assist the RCC in responding appropriately to the EPIRB alert. D. EPIRB Use by Operators of Recreational and Commercial Vessels The MHz EPIRBs provide a 12 mile circle search area. These devices have been in use for twenty years. From October 2001 to October 2002, there were 3,605 satellite composites positions derived from EPIRB signals on recreational and commercial vessels combined, with 80 (2.2% of the 3,605 composites) of them being actual SAR incidents. Three lives were saved (lives saved refer to individuals whose lives were put in peril and without assistance of SAR personnel would have perished). The 406 MHz EPIRBs provide a three mile circle search area. These devices have been in use since From October 2001 to October 2002, there were 1,727 satellite composition positions derived from EPIRB signals on recreational and commercial vessels, with 158 (9.1% of the 1,727 composites) actual SAR incidents. 172 lives were saved from these SAR incidents. [NOTE: Of the three lives saved in FY 2002 (121.5 MHz EPIRBs) and 172 lives saved in FY 2002 (406 MHz EPIRBs), 11 involved recreational vessels.] Coast Guard Search and Rescue (SAR) Cases Involving Recreational Vessels Only with MHz and 406 MHz EPIRB Alerting by Coast Guard District for the Three-Year Period: 7

15 Fiscal Years Number of District SAR Cases First District 15 Fifth District (Atlantic Area) 31 Seventh District 67 Eighth District 48 Ninth District 8 Eleventh District/Pacific Area Command 99 Thirteenth District 9 Fourteenth District 18 Seventeenth District 3 TOTAL 297 Coast Guard Search and Rescue (SAR) Cases Involving Recreational Vessels Only with MHz and 406 MHz EPIRB Alerting by Distance Offshore for the Three-Year Period: Fiscal Years Location Number of SAR Cases Number of Lives Saved No Entry/On Land 26 0 Inland Waterways miles offshore miles offshore miles offshore miles offshore 28 7 Beyond 50 miles 34 7 TOTAL Coast Guard Search and Rescue (SAR) Cases Involving Recreational Vessels Only with MHz and 406 MHz EPIRB Alerting: Fiscal Years Year Number of SAR Cases Number of Lives Saved TOTAL * 71 7 *Note: The 2003 numbers provided are estimates. 8

16 2002 National Recreational Boating Survey The United States Coast Guard recently completed the 2002 National Recreational Boating Survey (NRBS). The purpose of this survey was to obtain information from recreational boat operators in regard to the types and sizes of recreational boats they operated, safety equipment carried and used on their boat, and characteristics (i.e., safety instruction, experience) of the recreational boat operator. A total of 25,547 surveys were completed by recreational boat operators between September 2001 and September Of those who carried safety equipment, an EPIRB was reported to be the least common type of safety equipment carried and utilized. Less than four percent of boat operators carried EPIRBs and just five percent of those who carried an EPIRB reported using it. III. ACTUAL AND POTENTIAL CONTRIBUTION OF EPIRBs TO RECREATIONAL BOATING SAFETY 406 MHz EPIRBs are highly accurate, reliable and improve the chances of survival in an offshore distress situation. By giving near-shore and offshore boaters improved emergency communication and position indicating equipment, we improve the possibility of saving lives while also reducing the time and expense of SAR operations. When search time can be reduced, a boater s survival rate increases. More efficient, safer, and less costly rescues will result from increased usage of the 406 MHz EPIRB and implementation of the Coast Guard s Rescue 21 Program. IV. RECOMMENDATIONS ON POLICIES AND PROGRAMS TO ENCOURAGE THE AVAILABILITY AND USE OF EPIRBs BY OPERATORS OF RECREATIONAL VESSELS In Fiscal Year 1995, the Coast Guard initiated a program assessing cost effective ways to increase the use of EPIRBs among recreational boaters as a means of saving more lives and enhancing SAR operations efficiency. This program was funded under the boating safety grant program from the Aquatic Resources (Wallop-Breaux) Trust Fund administered by the U.S. Coast Guard. The grantee was the BOAT/U.S. Foundation for Boating Safety. The EPIRB program consisted of four grant projects and has enhanced the safety of thousands of recreational boaters by making EPIRBs available to them. Findings from the 406 MHz EPIRB program are significant and serve as the foundation for the current program administered by the BOAT/U.S. Foundation, which makes 406 MHz EPIRBs available to operators of recreational vessels on the Intra-coastal Waterway, near shore, inland, and beyond the Boundary Line. Grant Agreement Phase I (63,000 dollars) Phase I analyzed boating casualties and a reviewed of distress alerting and position indicating technology. All relevant aspects of the nature of Coast Guard SAR distress calls were examined and include: method of notification, cause of distress, environmental conditions, distance 9

17 offshore, and severity of incident. Other boat operator actions were also considered: timely distress alerting (notification with accurate distress position information), signaling to enhance detection, and survival gear appropriate for the environment. An objective of the project was to determine how existing technologies (EPIRBs, VHF radios, GPS, and Loran) could positively impact search time by providing quick distress alerting and accurate position indicating. Grant Agreement Phase II (99,000 dollars) Findings from Phase I were used to implement a Pilot EPIRB Rental Demonstration Project for loaning Alerting, Locating and Response Maximizing (ALARM) kits to recreational boaters. Phase II was funded to run from June 1996 through February Forty-four Emergency Alarm Kits were assembled and made available to recreational boaters at BOAT/U.S. marine centers located in Fort Lauderdale, Florida and Brick, New Jersey. Each marine center had more than 20 ALARM kits available to rent. Each kit contained a 406 MHz EPIRB, a handheld VHF radio, a portable Global Positioning System (GPS), and two SOLAS flares. The complete kit was valued at more than 1,000 with rental fees of 15 dollars for any three-day period or 25 dollars per week. The kits included a set of operating instructions, a policy and procedures manual, an application form, waivers, and a post-trip questionnaire. All equipment and instructions for operation were housed in a rugged, waterproof case and packed in foam to protect the equipment. The benefit of this Pilot EPIRB Rental Demonstration Project was that a recreational vessel operator could now rent a waterproof ALARM kit containing an 800 dollar EPIRB that broadcasts an accurate, coded distress signal identifying the vessel to a passing satellite. The FCC and NOAA were contacted to ensure compliance with all licensing and registration requirements. Additionally, BOAT/U.S. emergency dispatch personnel were trained in the procedures for receiving rental agreements and rental return forms and how to respond to SAR operations should they receive a call that a rental EPIRB was activated. If an ALARM kit EPIRB was activated, NOAA would verify the EPIRB s unique, encoded signal and search their database for information on the vessel. The 44 ALARM kit EPIRBs were recorded in NOAA s database as belonging to BOAT/U.S. RCC s were instructed to contact the emergency dispatch office at BOAT/U.S. to obtain specific information about the vessel carrying the activated EPIRB. If a call was received from a rescue coordination agency, such as the Coast Guard, the dispatch coordinator would compare the EPIRB number dictated by the Coast Guard to a specific reference number. This would allow the dispatch coordinator to pull the correct rental agreement and obtain vessel information, providing the Coast Guard with all available information on the vessel, number of people on board, and trip itinerary. The promotion of ALARM kit availability resulted in a heightened awareness among boaters on the importance of carrying communication and signaling devices appropriate to their activities and distance traveled. BOAT/U.S. promoted this program through public relations channels and with the Coast Guard s public relations staff. The program was promoted at the national and local levels to ensure maximum usage rates for the ALARM kits. This program was brought to the public s attention through: advertisements in BOAT U.S. publications and their Internet site, a national press release to 3,000 boating publications and promotion at participating BOAT/U.S. marine centers. Media announcements were diversified to attract many different types of 10

18 offshore boaters. During this phase of the program, BOAT/U.S. received approximately 225 inquiries from boaters in 30 States. The ALARM kit demonstration project provided an excellent means of putting vital, lifesaving equipment directly into the hands of recreational boaters. ALARM kits were designed to be used in emergency situations only and enabled boaters to alert SAR units to the nature of their distress and to their location. By giving near-shore and offshore boaters improved emergency communication and position indicating, the Coast Guard provided a means of saving more lives while reducing the time and expense of SAR operations. Grant Agreement Phase III ($25,000) Activities associated with this phase ran through December The primary objective of Phase III was to increase awareness of the 406 MHz EPIRB Rental Program. This was accomplished by making a maximum number of boaters aware of the program through promotional activities, heightening boaters awareness of the benefits and importance of carrying a 406 MHz EPIRB, promoting recreational boating safety to a nationwide audience, and giving boaters easy access to the highly accurate life-saving device. During this phase, equipment that retailed between 800 and 1,500 dollars could be rented for 35 dollars per week. A key element of the program was to educate boaters about the important safety advantages of the 406 MHz EPIRB. The program was designed to provide opportunities for boaters to receive information, and program staff were trained to answer all types of questions about the 406 MHz EPIRB and its operation. Every renter received a program brochure that featured an educational section providing contact information for a variety of organizations, including the Coast Guard and NOAA. Every renter also received a comprehensive brochure published by NOAA that detailed EPIRB operation and registration. In 1998, a total of 50, MHz EPIRBs were registered in the United States. NOAA estimated that 13,000 of these were registered to recreational vessels. In May 1997, a mail order program was launched and eight BOAT/U.S. marine centers began offering rentals. In the spring of 1998, two more marine centers were added, bringing the total to ten. Kits containing a 406 MHz EPIRB, a handheld GPS, a handheld VHF radio and two SOLAS flares were available at all participating marine centers. Participating marine centers were strategically placed in an effort to target recreational boaters who were more likely to travel outside of reliable VHF radio range and thus need a 406 MHz EPIRB. Locations are as follows: - Fort Lauderdale, Florida - Pensacola, Florida - Marina del Rey, California - San Diego, California - Annapolis, Maryland - Fairhaven, Massachusetts - Charleston, South Carolina - Brick, New Jersey - Detroit, Michigan 11

19 - Chicago, Illinois Phase III accomplishments from May 1997 November 1998 include the following: - More than 700 boaters from 40 States, the Caribbean, Canada and Panama rented 406 MHz EPIRBs. - Renters participated in diverse activities that include offshore fishing, cruising, and racing. - Approximately 3,200 people made voyages aboard boats with rented 406 MHz EPIRBs. - With an average trip of 14 days per rental, at least 10,000 days of 406 MHz EPIRB coverage was realized. Further, 65 percent of rental EPIRBs were carried aboard sailboats and 35 percent on powerboats. Boats averaged 35 feet in length and averaged 4.2 people on board. Grant Agreement Phase IV ($40,000) In earlier phases, it was recognized that a larger and more diverse advertising campaign would benefit the EPIRB Rental Program by reaching a wider variety of boaters. Thus, an advertising campaign for the 406 MHz EPIRB Rental Program was conducted in Phase IV. The primary objectives of the advertising campaign were three-fold: to diversify and expand promotional activities, raise awareness of the program, and serve to educate more boaters about the unique benefits of 406 MHz EPIRBs. The campaign began in January 2000 with regional boating publications from Florida and California. Quarter page advertisements were placed in the Argonout, Burgee, Florida Marine Times, Florida Mariner, Latitude 38, the Log, Southwinds, Waterfront News and Waterway Times during January and February As a result of increased program awareness, the mail order program rental activity in 2000 was higher from January to June than rental activity in 1999 during that same period. Through calendar year 2000, the audience for the EPIRB Rental Program expanded to include more recreational boaters who had not been previously reached through BOAT/U.S. channels. The advertising campaign increased program visibility, especially in well-known periodicals in the boating community such as Cruising World, Marlin, Offshore, Sail, Soundings and Southwinds. Result: The advertising campaign funded 31 advertisements that were seen by over 700,000 boaters, creating about 1.5 million media impressions. Under the duration of this grant project (calendar year 2000), 47 of 599 mail order rental customers heard about the program from advertisements in regional and national publications. Thirty-eight of 272 marine center rental customers reported they heard about the program from BOAT/U.S. advertisements in Florida and California regional publications. Ten percent of all mail order renters heard about the program through national and regional magazines, as opposed to seven percent before the campaign began. The increase in boaters hearing about the program in national and regional boating periodicals is also suggested by the 14 percent of marine center renters who participated in the program as a result of seeing the advertisements. The advertisements ran during January and February 2000, yet the majority of renters responding to the advertisements participated in the program from March to September. 12

20 The advertisements demonstrated a proactive initiative by the Coast Guard to promote the use of 406 MHz EPIRBs and educate the public about their availability. Most boaters who called BOAT/U.S. brought a 406 MHz EPIRB on board for the first time, and some customers did not have any offshore boating experience. Because they were unfamiliar with the device, there was great potential for educational outreach. Boaters who called the EPIRB line often had the following questions about the 406 EPIRB and its use: - The capabilities of a 406 MHz EPIRB and how to activate one; - Involved government agencies and their roles; - How to properly maintain a 406 MHz EPIRB; - How to register a 406 MHz EPIRB. In order to ensure optimal maintenance of all equipment, minimize the space and requirements necessary to implement the program, and focus on the benefits of the 406 MHz EPIRB, the flares, GPS and VHF radio were eliminated from the kits in Streamlining made it possible to expand the program and purchase more 406 MHz EPIRBs. During this period, BOAT/U.S. had 181 EPIRBs available for rent. Renter demand around the country was met by the mail order program and by the addition of two marine centers, bringing the total number of BOAT/U.S. marine centers who participated in the program to 12. Status of the 406 MHz EPIRB Rental Program Currently in its ninth year of operation, the EPIRB Rental Program provides inexpensive access to costly rescue beacons that are registered with NOAA and offer worldwide satellite coverage. In January 2003, EPIRB rental availability through BOAT/U.S. marine centers was discontinued. The beacons are currently available to rent only through the BOAT/U.S. Foundation mail order process. The rentals consist of a 406 MHz EPIRB in a protective case. Reservations are accepted up to six months in advance and can be rented for a maximum of six weeks. The rental fee is 50 dollars per week, which includes round-trip shipping of the equipment. Most of the funding support for the program comes from individual donations by the 500,000 members of BOAT/U.S. Results: Since January 2001, 1, MHz EPIRBs were rented for carriage onboard vessels with an average length of 36 feet. The most popular vessel models renting the devices are sloops, sport fish, and express cruisers. Three rental EPIRBs were activated in These activations occurred in waters off the Florida coast and were the only ones activated in the period covered by the data. Prior to 2003, the last rental activation was in V. POLICY RECOMMENDATIONS 1) The Coast Guard recommends that recreational boaters acquire, carry and learn how to properly use a Very High Frequency (VHF) radio equipped with Digital Selective Calling (DSC) and registered with a Mobile Maritime Service Identity (MMSI) number, used in conjunction with an integrated Global Positioning System (GPS) receiver. 2) The Coast Guard no longer recommends the use of the MHz Emergency Position Indicating Radio Beacon (EPIRB) and advocates a complete transition to the 406 MHz beacon. 13

21 3) To enhance public safety, the Coast Guard supports the maximum use of the 406 MHz EPIRB and recommends recreational boaters planning to travel outside of reliable VHF radio range to carry a 406 MHz beacon, preferably one with an integral GPS navigation receiver. 14

22 APPENDIX A: Comparison of the 406 MHz and 121.5MHz distress beacons 15

23 APPENDIX B: Current statistics on the following: rentals by State, rentals by boat model and length, and how renters heard about the EPIRB Rental Program 16

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33 APPENDIX C: PRESS RELEASES: 406 MHz EPIRBs contributed to saving the lives of eight individuals in /28/2003 BOATU.S. RENTAL EPIRB ASSISTS IN RESCUE OF STRICKEN SAILING VESSEL OFF FLORIDA COAST March 28, A rented EPIRB (Emergency Position Indicating Radio Beacon) from the BoatU.S. Foundation for Boating Safety and Clean Water s EPIRB Rental Program contributed to the safe return early this morning of a 42 sailing vessel stricken with mechanical difficulties during gale-force weather off the Florida coast. With five aboard, the 42-foot sloop PatentColorado.com was 15 miles into a 42-mile Miami to Bimini crossing yesterday when a tornado-laden weather front struck the vessel. Forced to drop sail and start motoring, the vessel tossed in heavy seas killing the engine. Clogged fuel filters were suspected. Things went from bad to worse quickly, said BoatU.S. member and skipper, Rick Martin. With a change in wind direction, temperatures dropped 10 degrees, visibility went to zero in minutes, the seas turned nasty and three crew rapidly fell ill to seasickness, said Martin. Electrical problems also began to effect the boat. With no engine and an uncontrollable vessel in dangerous seas, Martin raised the U.S. Coast Guard on his VHF radio. When he was unable provide GPS coordinates, the Coast Guard asked him to activate the EPIRB. Activation allowed rescuers to easily locate the vessel and arrive on scene. It was later towed safely to harbor by a private tower. Back at the docks this morning, Martin commented, The BoatU.S. EPIRB helped save the day. The BoatU.S. Foundation makes these $900 life-saving devices available for $50 a week as a public service, said Ruth Wood, president of the BoatU.S. Foundation. The program is funded by the voluntary contributions of 535,000 members of BoatU.S. For more information, call or visit The mission of the Foundation is to promote safe and environmentally sensitive boating, reduce accidents and fatalities, and increase stewardship of our water resources. The Foundation also operates the only accredited, free, online boating safety course, a free Kids Life Jacket Loaner program, and awards grants to non-profit groups for boating safety and environmental projects. 5/27/2003 BOATU.S. FOUNDATION RENTAL EBIRB SAVES THREE OFF FLORIDA COAST A rented EPIRB (Emergency Position Indicating Radio Beacon) from the BoatU.S. Foundation for Boating Safety and Clean Water s EPIRB Rental Program helped save the lives of three sailors who were forced to abandon their sinking 30-foot sloop near Cape San Blas, FL on the evening of May 6. Just before midnight, a U.S. Coast Guard helicopter crew from Aviation Training Center Mobile, LA, picked up Fernando and Vickie Daleccio and their friend Gary Crayne after they reported that their vessel, Southern Breeze, was taking on water after striking an unknown object around 9:30 pm. The sloop s rudder had dislodged, leaving a gaping hole below the waterline that could not be closed. At 10:45 pm, as the vessel slid beneath the waves, the life-jacketed three abandoned ship, gathered around the rental EPIRB and held onto each other tightly in an effort to reduce hypothermia. Water intrusion quickly rendered the trio s only other communications device, a handheld VHF, inoperative. The EPIRB s activation led to a phone call by the Coast Guard to the BoatU.S. 24-hour Dispatch Center, which identified the Southern Breeze. Due to low visibility, Coast Guard rescuers had to use night-vision goggles to locate the sailors. Helicopter pilot Lt. Tom Meyer said, The [boaters] use of safety equipment was a huge factor in us finding them. 26

34 The Daleccio s go further. In a note to BoatU.S. along with the returned EPIRB, they commented, This [EPIRB] might have been the item that s solely responsible for saving our lives after we left our boat. The BoatU.S. Foundation makes these $900 life-saving devices available for $50 a week as a public service, said Ruth Wood, president of the BoatU.S. Foundation. The program is funded by the voluntary contributions of 535,000 members of BoatU.S. For more information, call or visit The mission of the Foundation is to promote safe and environmentally sensitive boating, reduce accidents and fatalities, and increase stewardship of our water resources. The Foundation also operates the only accredited, free, online boating safety course, a free Kids Life Jacket Loaner Program, and awards grants to non-profit groups for boating safety and environmental projects. 27

35 APPENDIX D: EPIRB Rental Program Online Order Form 28

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