ENHANCEMENTS TO SMALL
PASSENGER VESSEL SAFETY

Transport Canada has a comprehensive safety framework in place for small passenger vessels. This framework includes regulations and standards, an ongoing review of existing requirements, educational and awareness campaigns and inspection programs. The department continuously works to further enhance this framework. Below are some examples of enhancements to small passenger vessel safety undertaken by the department over the past several years.

Construction and stability

• Incorporated Construction Standards for Small Vessels into the Small Vessel Regulations that apply to vessels up to 15 gross tons and carrying no more than 12 passengers. New vessels will be required to meet construction standards including stability and buoyancy requirements. Existing vessels will be required to comply with the construction standards so far as it is reasonable and practicable to do so. These proposed amendments were published in the Canada Gazette, Part I on December 6, 2003 and are expected to come into effect in 2004.
• Until the above regulations come into effect, and to enhance the stability of existing vessels, Transport Canada has developed a policy that recommends minimum stability and buoyancy requirements for these vessels, and gives owners guidance on meeting the requirements. Transport Canada will provide owners and operators with information on this policy by means of a Ship Safety Bulletin to be issued in September 2004.

Crew certification, training and procedures

• Developed new requirements for mandatory safety training for all operators and crews of fishing vessels and other small commercial vessels. These courses, called Marine Emergency Duties (MED), have been designed specifically for fish harvestors and operators of small commercial vessels previously exempt from mandatory training. A backgrounder on MED training requirements can be found at http://www.tc.gc.ca/mediaroom/backgrounders/b03-M008.htm.
• Is developing a requirement for commercial passenger vessels less than five gross tons to have a certified master, and for masters to complete the MED course before obtaining their Master Limited certificate. The proposed amendments to the Crewing Regulations and Marine Certification Regulations are expected to be published in the Canada Gazette, Part I in 2006.
• Developed a Small Vessel Operator Proficiency Course syllabus for use by course providers in training operators of small passenger vessels less than five tons. The course provides basic information on marine hazards, prevention of incidents, emergency preparedness, and how to safely operate a vessel in sheltered waters. While this course is currently optional for small vessel operators, Transport Canada is considering making the course mandatory.
• Amended its Crewing Regulations to include a requirement for owners of all commercial vessels to provide masters with written instructions on policies and procedures to be followed with respect to the ship, their duties and the coordination of their activities to prevent and mitigate pollution. The regulations also require the master to ensure that crew members are trained and carry out these policies and procedures. This requirement came into effect in
  April 2002.

Safety equipment and emergency preparedness

• Introduced a requirement for life-jackets carried by vessels over 15 gross tons or carrying more than 12 passengers to be stowed in a readily accessible manner. This requirement came into effect on March 10, 2004 under the Life Saving Equipment Regulations.
• Amended the Small Vessel Regulations to require all safety equipment (including life-jackets and lifebuoys, for example) carried on vessels up to 15 gross tons and carrying no more than 12 passengers to be readily accessible and available for immediate use. These proposed regulations were published in the Canada Gazette, Part I on December 6, 2003 and are expected to come into effect in 2004.
• Amended regulations for passenger vessels over 15 gross tons or carrying more than 12 passengers to carry appropriately sized life-jackets for every child. This expands on the existing requirement for vessels to carry at least 10 per cent of their total life-jackets in sizes suitable for children. This requirement came into force on March 10, 2004 under the Life Saving Equipment Regulations.
• Amended regulations applying to passenger vessels up to 15 gross tons and carrying no more than 12 passengers to clarify that the approved life-jackets they carry must also be properly sized for every person on board. These proposed regulations were published in the
  Canada Gazette, Part I on December 6, 2003 and are expected to come into effect in 2004.
• Worked with the Canadian General Standards Board to develop a new Canadian standard for life-jackets. This new standard will recognize several new categories of life-jackets that will enhance the safety of passengers by increasing buoyancy, improving wear characteristics and providing for increased thermal protection in cold water. The new standard will be in place in 2004.
• Introduced a requirement for any life-rafts carried by vessels greater than 15 gross tons or carrying more than 12 passengers to float free in the event of a vessel sinking. This requirement came into force under the Life Saving Equipment Regulations on March 14, 2002.

Communications equipment

• Proposed an amendment to existing regulations to require commercial vessels carrying one or more passengers to have a VHF radiotelephone for general communications purposes as well as to alert others in the event of a distress or emergency situation. The proposed amendments to the Ship Station Radio Regulations were published in the Canada Gazette, Part I on
  April 12, 2003 and are expected to come into force in 2004.
• Proposed an amendment to existing regulations to require passenger ships on a voyage outside VHF coverage and carrying more than six passengers to carry radio equipment capable of establishing continuous two-way communications with a Marine Communications and Traffic Services centre or a person ashore. This proposed requirement was published in the Canada Gazette, Part I on April 12, 2003 and is expected to come into force in 2004.

Review of existing requirements

• Is actively reviewing the feasibility of implementing a Safety Management System for operators of Canadian domestic vessels (including small passenger vessels). Safety Management Systems provide a process for managing safety risks, and would include elements such as procedures for the reporting of accidents and hazardous situations and for handling emergency situations. In the interim, Transport Canada continues to support the voluntary adoption of Safety Management Systems by vessels operating in Canadian waters.
• Is reviewing all Canada Shipping Act regulations as part of a regulatory reform initiative. The department is committed to this regulatory reform which aims to develop modernized regulations that are more effective, applicable and easily understood. Further enhancements to the safety framework for small passenger vessels will be established as part of this initiative and would come into effect in 2006.

Sharing of information

• Developed and distributed a Small Commercial Vessel Safety Guide to holders of small commercial vessel licences across the country. This guide is designed specifically for vessels up to 15 gross tons and carrying no more than 12 passengers (that are not a fishing vessel or pleasure craft). It provides information on regulations, standards and safe practices
  (e.g., licensing and registration, crewing and certification requirements, requirements for new vessels, construction standards, safety equipment and emergency procedures). Distribution of the guide began in the spring 2004 and is ongoing.
• Is examining ways to ensure that owners of new vessels notify Transport Canada when modifications to their vessels will be made (e.g., by including more references to this requirement in registration documents). Transport Canada has also enhanced its tracking systems for changes in ownership in order to enquire, with new owners, as to whether they will make or have made modifications to the vessel.
• Initiated a review of the existing distribution system for Ship Safety Bulletins to determine the most effective method of communicating relevant safety information to specific audiences.
• Is revising and expanding Transport Canada web pages pertaining to small commercial vessels to make information on requirements easier for owners and operators to find and understand.

Awareness campaigns

• Developed various safety messages relating to boat tours for broadcast on the Weather Network and MétéoMédia (which began in 2003) to raise the awareness of boat operators and the general public of the importance of pre-departure safety briefings and of being prepared in the event of an emergency.
• Developed an inspection decal awareness campaign to make it easier for passengers to recognize inspected vessels by looking for a bright yellow sticker near the boarding area of the vessel, and to raise the importance of safety briefings and knowing where the life-jackets are and what to do in the event of an emergency. The campaign consists of posters, brochures and bookmarks for distribution at tourist centres. It was piloted in the Atlantic region in 2003 and will be implemented across the country in the coming months.

Inspection and training programs

• Developed the Small Vessel Monitoring and Inspection Program (SVMIP), a risk-based inspection framework that focuses on small passenger vessels under 15 gross tons and carrying no more than 12 passengers. The SVMIP was recently implemented.
• Developed the Small Vessel Inspection System, an enhanced inspection database system (including all evidence of non-compliance) for small passenger vessels operating in Canada that are under 15 gross tons and carrying no more than 12 passengers. This system supports the SVMIP by facilitating the targeting of inspections and serves as a tool for managers to audit and harmonize inspection reports. The system was implemented in 2003 to complement existing database systems for larger vessels.
• Developed a variety of technological tools for inspectors - such as checklists, computer applications and procedures manuals - to further enhance the efficiency of the inspection program.
• Developed a training program for inspectors that focuses on small passenger vessel inspections and seeks to instill a stronger safety culture within Transport Canada’s inspector community.

Requirements specific to amphibious passenger vehicles

• Initiated a study on the design, construction and operation of amphibious vehicles currently operating in Canada. This study, scheduled to be completed in September 2004, examines regulatory requirements in Canada, Australia, the United States and the United Kingdom. The study will help to determine which requirements are recommended for amphibious passenger vehicles to address issues related to intact and damaged stability, swamping and means of escape.
• Shared important information with operators of amphibious passenger vehicles to further enhance their knowledge and understanding of requirements that apply to their operations by:
  • Sending a letter to manufacturers and commercial operators of amphibious passenger vehicles across the country with reminders relating to lifesaving equipment, pre-departure safety briefings, means of escape, watertight integrity, precautionary measures and best practices concerning bilge pumping systems, daily maintenance and operational practices, the importance of advising Transport Canada of changes to safety equipment and modifications to vessels, and emergency reporting for amphibious vehicles (letter sent on
    July 11 and 12, 2002)
  • Issuing a Ship Safety Bulletin to remind all passenger vessel operators of their responsibility to provide safety briefings to their passengers prior to the departure of the vessel, and of the importance of these briefings (bulletin issued on July 25, 2002)
  • Issuing a Ship Safety Bulletin to highlight the importance of bilge pumping and alarm systems on small commercial vessels (bulletin issued on August 23, 2002).

Transport Canada is committed to working with the marine community and its partners in government and industry, including the Transportation Safety Board, to pursue these and other initiatives to continuously enhance the safety of small passenger vessels in Canada.

August 2004