The International Conference on Safety of Life at Sea was held in London from April 23 to June 10, 1948. Thirty nations sent delegations. All except the Soviet Socialist Republics and Jugoslavia signed the Convention. The Conference considered it desirable to revise the International Regulations for Preventing Collisions at Sea, i.e., the Rules of the Road, but decided not to annex the revised Rules to the Convention. On the contrary, the Conference invited Great Britain to forward the 1948 Rules to the other governments who have accepted the present (1889) International Rules and, when substantial unanimity has been reached to accept the 1948 Rules, to fix a date, on and after which the International Rules of 1948 shall be applied by the governments, accepting them. A year’s notice is required.
Public Law 172 of the 82nd Congress, as stated in Section 6 of the Law, contains the “Regulations for Preventing Collisions at Sea, 1948,” approved by the above Conference. The President is authorized to proclaim the Regulations contained in the Act.
At this writing, one maritime nation has not accepted the new Rules—Panama. Great Britain has decided that she will not wait any longer for Panama. She has announced that the 1948 Rules will go into effect on January 1, 1954. President Eisenhower will issue a proclamation placing the 1948 Rules in effect for the United States on the first of next year also.
The 1948 International Rules of the Road are divided into 32 “RULES.” The present Rules (1889) are divided into 32 “Articles.” The Rules correspond.
Many of the changes, included in the 1948 Rules, were recommended in the 1929 Rules which never became effective. Some of the changes are new. The great change is to provide Rules for the seaplane, on the water. Comment on the various changes follow.
Public Law 172 states the Rules do “not apply to the harbors, rivers and inland waters of the U. S.,” to the Great Lakes “as far East as the lower exit of the Lachine Canal”; “to the Red River of the North and the rivers emptying into the Gulf of Mexico,” “nor with, respect to aircraft, to any of the territorial waters of the U. S.”
Attention is called to the fact that the line (boundary) dividing the high seas, where the International Rules apply, from the rivers, harbors and inland waters of the U. S., where the Inland Rules govern, for all vessels, is not applicable to sea planes. Their “boundary line” may be the three mile limit, inboard of which are the territorial waters of the U. S.
Section two of the above law, permits the Secretary of the Navy (or Treasury, for Coast Guard vessels), to exempt certain vessels, of the Navy and Coast Guard, by reason of special construction, from compliance with the law in respect to the “number, position, range of visibility, or arc of visibility of lights required to be displayed.” Notice must be published in the Federal Register and in the Notice to Mariners.
The words “steam vessel” are no longer used in the 1948 Rules. “Steam” is replaced by “power-driven” which “means any vessel propelled by machinery.”
1948 Lights and Shapes—Part B
The 1948 Rules require power-driven vessels, when underway between sunset and sunrise, to carry, either forward and below or abaft and above the 20 point masthead light, a second white light similar in construction and character to that light. Vessels of less than 150 feet in length, and vessels engaged in towing, are not required to carry this second white light but may do so. This Rule is a decided improvement over the 1889 Rules. It will reduce the hazard of collision at sea, and enable the officer of the deck of a vessel to determine, with some accuracy, the course of an approaching vessel.
Seaplanes, underway on the water, must carry (a) where it can best be seen, a white light showing over an arc of 110° on each side of dead ahead, visible 3 miles, (b) a green light on the starboard wing tip, showing 110° to starboard from dead ahead, visible 2 miles, (c) a similar red light on the port wing tip, (d) a white tail light, visible 2 miles and showing 70° on both quarters from right aft.
Power-driven and sailing vessels are required to carry a white light (not a flare-up) at the stern, when underway, so constructed to show over an arc of 6 points on both quarters from right aft and visible 2 miles. This Rule provides a needed light, aft, increases the visibility of the light from 1 to 2 miles but does not change the arc of visibility. A lookout, aft, will not be required to turn on the stern light, at sea, when overtaken by another vessel. But a stern lookout will still be required when (a) followed by another vessel closely, (b) towing and (c) for general security.
The present Rules (1889) make no provision for towing lights when a steam vessel is pushing another vessel. The 1948 Rules require a power driven vessel, when pushing another vessel or seaplane, to exhibit two bright white lights, in a vertical line, of the same construction as the masthead light, one of which shall be in place of that light. Side lights are required also. A range light may be Carried. A towing vessel must carry the 12 point stern light or, in lieu of that light, a small white light abaft the funnel or aftermast for the tow to steer by but it shall not show forward of the beam.
A vessel, being pushed ahead, must carry, at the forward end, red and green side lights. A number of vessels, pushed ahead as a group, must be lighted as one vessel.
A seaplane, on the water, when towing one or more seaplanes or vessels, is required to carry side lights, a masthead light, and, in addition, a second white light of the same construction and character as the masthead light, 6 feet above or below that light. This rule is certainly forward-looking.
The present Rules (1889) contain an Article (4) which deals with “A vessel which from any accident is not under command. . . .” The 1948 Rule is the same as the 1889 Article except the words, “from any accident,” which are deleted. It is clear that the scope of the 1948 Rule has been increased. A sailing vessel, in irons or in a calm, a steam vessel, whose steam pressure has dropped to the vanishing point, are now required to comply with this Rule (4) and show two red lights by night and two black balls or shapes, by day. The present Rules (1889) require these lights to be carried at the same height as the masthead light. The new Rules merely require them to be carried “where they can best be seen.”
A seaplane, not under command on the water, may show two red lights, at night, and two black balls or shapes, by day.
The present (1889) Article (4), which prescribed red, white, and red lights for “A vessel employed in laying or picking up telegraph cable,” has been expanded and changed in the 1948 Rules to include “laying or picking up submarine cable or a navigation mark, or a vessel engaged in surveying or underwater operations. . . .”
Vessels and seaplanes, under this Rule (4) when not making way through the water, do not carry colored side lights but, when making way, do carry them.
The Rules for lights on Pilot vessels (Rule 8) have been simplified. There are now three classes:—sailing, power-driven, and all types. Sailing pilot vessels, on duty, underway, and on station carry the usual lights, i.e. a white all-around light at the masthead and exhibit a flare-up light or lights at intervals which shall never exceed 10 minutes. They flash their side lights on the near approach of or to other vessels. The changes in this rule are that the visibility of the masthead light is now 3 miles, and the interval, between successive showings of a flare-up light, has been shortened to 10 minutes.
The present rule about pilot vessels “of such a class as to be obliged to go alongside of a vessel” has been limited by inserting the adjective “sailing” before pilot-vessel. Such a sailing pilot vessel may show a white light instead of carrying it at the masthead and may have, at hand ready for use, a lantern with green glass on one side, and red on the other, to be shown when necessary, instead of the usual fixed side lights.
The power-driven pilot vessel, when on station, on duty and underway, is required to carry the same lights that were required by U. S. law “in waters of the United States,” namely:—an all-around red light, below the white all-around masthead light, the flare and the constant side lights, required to be shown by vessels underway. The distance of visibility of the masthead light has been increased from 2 to 3 miles. The flare may be replaced by a bright, intermittent, all-around white light.
The Courts have ruled that “on station” included areas many miles from the harbor entrance. In one case, a N. Y. pilot vessel was ruled “on station,” off the southern New Jersey coast.
All pilot vessels, on duty, on station and at anchor carry anchor lights and the above lights except the side lights.
Fishing Vessels (Rule 9)
The lights on fishing vessels have been simplified and improved, as follows:
(a) The distance of visibility is now prescribed—2 miles.
(b) No change for vessels trolling. They show lights of a vessel of their class and size when underway.
(c) All vessels, fishing underway by day, except those trolling, show a basket.
(d) Vessels, fishing with nets or lines, are divided into two groups:
(1) Those with gear extending not more than 500 feet show an all-around white light and, when approached, a second white light below and in the direction of the outlying gear. By day they show a basket and, if at anchor with gear out, they show the anchor ball and, when approached, a basket in the direction of the gear.
(2) Those, with gear extending more than 500 feet, show three all-around white lights in a vertical triangle. When making way they show side lights also. By day, they show a basket, forward, and in addition, a black conical shape, apex up. If at anchor, the cone, the anchor ball, and a basket are required.
(e) At night, every vessel, fishing at anchor, is required to show the usual anchor lights, according to its length and, in addition, an all-around white light at least 6 feet below the forward white light and at least 10 feet away from it, in the direction of the outlying gear.
Approaching vessels at night should examine the lights of vessels, at anchor near fishing grounds, to distinguish between vessels fishing and those who are merely anchored and showing two white anchor lights at different heights.
(f) No change has been made for power- driven and sailing, trawling, fishing vessels. They must show a basket, by day.
(g) Vessels, fishing, which become fast to a rock or other obstruction must haul down the basket in the daytime and hoist the anchor ball. By night, they show anchor lights. In fog, etc., they sound, at intervals of 1 minute, a prolonged blast followed by two short blasts.
(h) Vessels, fishing, of 20 tons or upwards, underway, in a fog, sound, at intervals of not more than 1 minute, a blast, followed by ringing a bell. A new, different signal may be sounded if desired. In lieu of the above signals, she may sound a blast consisting of a series of several alternate notes of higher and lower pitch.
(i) There are no special rules for fishing vessels off Japan, Korea, or in the Mediterranean.
The anchor lights of a vessel, under 150 feet in length, must be visible 2 miles and, if 150 feet or over, 3 miles. The 1889 Rules required a visibility of 1 mile.
The anchor ball is required to be shown, forward, where it can best be seen, by all vessels at anchor, between sunrise and sunset.
Vessels engaged in laying or picking up submarine cable or a navigation mark or engaged in surveying or in underwater operations are required to show an anchor light (s) or the anchor ball, when at anchor, in addition to the lights and shapes peculiar to such vessels.
A vessel aground, in any area, whether it is near a fairway or not, must show anchor lights, at night, and the two red lights indicating that they are “not under command.” By day, she must carry three black balls in a vertical line.
A seaplane under 150 feet in length, on the water at anchor, shows the usual single anchor light, visible 2 miles.
Seaplanes 150 feet or upwards, at anchor, carry two white lights, one forward and one aft, visible 3 miles. In addition, if the plane is more than 150 feet in span, it must carry an all-around white light, visible 1 mile, on each side to indicate the maximum span.
Seaplanes, aground, show the usual anchor lights and, in addition, two all-around red lights in a vertical line.
Rule 13 (b) permits each government to determine that certain naval or other military vessels or water borne seaplanes, cannot comply fully with the provisions of these Rules, with respect to number, position, range or arc of visibility of lights or shapes, without interfering with their military functions on account of special construction. However, such vessels or seaplanes must comply with the Rules as closely as possible. There is no mention of notification of the seafaring community of such variations as required by the U. S. law. This Rule covers the construction difficulties on submarines and aircraft carriers.
Article 14 (1889) for “A steam vessel proceeding under sail only,” has been changed. Rule 14 (1948) reads “A vessel proceeding under sail, when also being propelled by machinery.” The old Rule did not cover vessels proceeding under sail and machinery. The 1948 Rule does not cover power-driven vessels proceeding under sail only. Under the new Rule, vessels proceeding under sail and also propelled by machinery, show one black conical shape, apex up. The daytime shape has been changed from a ball or shape to a cone.
Rules 15 and 16 deal with fog signals. Turkish vessels are not mentioned. Fog signals must be sounded in fog, mist, falling snow, heavy rain storms or any other condition similarly restricting visibility. This last phrase is new and covers situations where a dust storm or a large amount of smoke is drifting across navigable water areas.
The 1948 Rules require, definitely, that
(a) Power-driven vessels shall sound fog signals on the whistle.
(b) Sailing vessels on the fog horn.
(c) Vessels, towed, on the whistle or fog horn.
The preliminary definitions state that the word “whistle” means “whistle or siren.” Hence fog signals on a power-driven vessel can be sounded on a siren although naval vessels do not so sound them.
“A power-driven vessel making way through the water” still sounds one prolonged blast, at intervals of not more than two minutes. The 1889 phrase “having way upon her” has been replaced by the quoted one.
Again, the 1889 phrase “steam vessel underway but stopped, and having no way upon her is replaced by “power-driven vessel under way, but stopped and making no way through the water." Such a vessel sounds the familiar two prolonged blasts. “Making (no) way through the water” determines whether one or two prolonged blasts shall be sounded.
The Rule about fog signals, at anchor, has been changed so that vessels, more than 350 feet in length, sound a bell forward and, in addition, a gong or other instrument aft, whose tone and sounding cannot be confused with a bell. This Rule affects most destroyers and all larger vessels.
Every vessel, at anchor, may sound three blasts, one short, one prolonged, one short, in addition to the usual fog signal, in order to give warning to an approaching vessel of her position and of the possibility of collision.
Vessels towing, laying or picking up submarine cable or navigation marks and a vessel underway, which is unable to get out of the way of an approaching vessel through being not under command or unable to maneuver, are required to sound three blasts, a prolonged blast followed by two short blasts, at intervals of not more than 1 minute. The changes in this Rule are:— (a) inclusion of vessels working on navigation marks and (b) reduction of the interval from 2 to 1 minute.
Rule 15 (c) (VI) is new and requires “a vessel towed or, if more than one vessel is towed, only the last vessel of the tow, if manned,” to sound four blasts in succession —-one prolonged followed by three short blasts, at intervals of not more than 1 minute. The signal is to be made after that of the vessel towing. This Rule covers a long felt want which has been required, for some U. S. vessels, by a Court decision. The decision, however, applied to long tows. This Rule applies to all tows.
Another new fog signal prescribes that a vessel aground shall give her usual “at anchor” fog signal and, in addition, “three separate and distinct strokes on the bell immediately before and after each such signal.”
Seaplanes, on the water, i.e. underway, at anchor, aground, towing or towed, in a fog, are required to make some efficient sound signal at intervals of not more than 1 minute.
A seaplane when taxiing on the water in a fog, etc. is required to “go at a moderate speed.”
Steering and Sailing Rules, Part C
The preliminary paragraphs of this Part, contain a new paragraph that “1. In obeying and construing these Rules, any action taken should be positive, in ample time, and with due regard to the observance of good seamanship.”
Again the Rules caution “3. Mariners should bear in mind that seaplanes in the act of landing or taking off, or operating under adverse weather conditions, may be unable to change their intended action at the last moment.”
No changes were made in the 1889 Rules: (a) for two sailing vessels approaching each other so as to involve risk of collision (b) for power-driven (steam) vessels meeting end-on or crossing or (c) for power-driven and sailing vessels meeting or (d) for vessels overtaking any other; except that seaplanes are classed as power-driven vessels for all of the above situations.
Seaplanes on the water are required, in general, to keep clear of all vessels and avoid impeding their navigation before risk of collision exists. After it does exist, a seaplane must comply with the Rules.
Masters of vessels would do well to remember that seaplanes on the water, cannot reverse their engines or maneuver easily when the wind blows strongly.
The narrow channel rule, (25) to keep to starboard, has been modified to apply to a power-driven vessel “when proceeding along the course of the channel.” The Courts have ruled that certain channels are “narrow” and others are not. Some narrow channels pass through navigable water for small vessels. Hence, it is possible for a power-driven vessel to cross a narrow channel, at any angle, in which case the Rule would not apply. The narrow channel Rule also contains a new sub paragraph (b) which prescribes that a power-driven vessel, nearing a bend in a channel where another such vessel cannot be seen around the bend, shall sound one prolonged blast within one half mile of the bend, which signal shall be answered by a similar blast by the other vessel. However, “such bend shall be rounded with alertness and caution” whether an answering blast is heard or not. There are narrow channels, with bends in International waters, hence the adoption of the U. S. Inland Rule.
The whistle signal meanings (Rule 28) are changed thus:
(a) “One short blast to mean ‘I am altering (not directing) my course to starboard’.”
(b) “Two short blasts to mean ‘I am altering my course to port’.”
(c) “Three short blasts to mean ‘my engines are going astern’.” “At full speed” has been deleted.
The wording of the one and two blast signals is more specific and indicates that an actual change of course is being made. This is more in conformity with the accepted meaning of the present (1889) Rules. The deletion of the words “at full speed” now allows the signal to be used, on the high seas, when the engines are backing at less than full speed.
A new sub paragraph (b) of the above Rule adopts the Danger Signal for limited use on the high seas. “At least five short and rapid blasts” may be given “whenever a power-driven vessel which, under these Rules, is to keep her course and speed, is in sight of another vessel and is in doubt whether sufficient action is being taken by the other vessel to avert collision.” This limits, severely, the use of the Danger Signal on the high seas, in comparison with Inland Waters where it can also be used:
(a) In a fog to indicate doubt although the other vessel is not in sight. (The Virginian 238F156)
(b) By the “giving-way” vessel as well as by the “holding-on” vessel in crossing cases.
(c) By the overtaken vessel to deny the overtaking vessel the temporary right to pass.
(d) To indicate that the whistle signal, sounded by the other vessel, proposes a maneuver which is unsafe.
A new Rule 28 (c) states that “nothing in these Rules shall interfere with the operation of any special rules made by the Government of any nation with respect to the use of additional whistle signals between ships of war or vessels sailing under convoy.” This Rule legalizes an old practice.
There are four new Distress Signals, Rule 31:
“(d) A signal made by radio-telegraphy or by any other signalling method consisting of
the group ‘. . . - - - . . .’ in the Morse Code.”
“(e) A signal sent by radio-telephony consisting of the spoken word ‘May day’.”
“(i) A rocket parachute flare showing a red light.”
A note: A signal sent by radio to actuate auto-alarms, consisting of a series of twelve dashes, duration of each dash, 4 seconds, interval 1 second,
Rule 32 has been reworded: “All orders to helmsmen shall be given in the following sense: right rudder or starboard, to mean ‘put the vessel’s rudder to starboard’; left rudder or port, to mean ‘put the vessel’s rudder to port’.” The present Article 32 prescribes “right rudder” to mean “Direct the vessel’s head to starboard.” The new meaning is more consistent.
The International Rules of the Road, 1948, will go into effect on January 1, 1954. The impending adoption brings to the fore, again, the desirability of preparing to change the Inland Rules to conform to the International Rules of 1948. Some measure of conformity had been achieved under the present Rules of 1889 but this will be largely lost when the 1948 Rules are proclaimed.