What GAO Found

The Coast Guard regulates the design, construction, and operation of autonomous ships through existing laws and regulations. Coast Guard officials said they also monitor autonomous ship technology as it develops domestically and internationally. However, officials identified a few factors that could constrain or complicate its ability as a regulator to enable these technologies to be developed and adopted. These factors include a lack of domestic examples demonstrating autonomous ship technologies and challenges in harmonizing international and domestic regulations.

In addition, the Coast Guard has limited statutory authority to reduce crewing on ships. Various statutes establish the minimum number of crew required per vessel, and Coast Guard officials told GAO that they do not have the authority to waive these requirements outside of the limited scope of an at-sea rocket recovery pilot program. Officials said they have heard concerns from industry stakeholders that the additional costs of complying with minimum statutory crew requirements could discourage companies from developing autonomous vessels.

The International Maritime Organization-a specialized agency of the United Nations responsible for the safety, security, and environmental performance of international shipping-is developing a regulatory framework for commercial autonomous ships. It is generally expected to be adopted by member countries on a non-mandatory basis in 2026 and on a mandatory basis in 2030 by amending an existing International Maritime Organization convention. The Coast Guard is the lead agency for the U.S. delegation to the International Maritime Organization and is helping to develop this framework.

Selected countries have taken various approaches to addressing challenges in regulating autonomous ships. According to regulators from Canada, Norway, and the United Kingdom, these approaches include providing guidance to stakeholders on how to comply with existing laws and regulations, modifying regulations, and creating new regulations.

Why GAO Did This Study

Autonomous ships have technologies that are capable of navigating, avoiding collisions, controlling the speed and direction of the ship, or communicating with other ships with little or no human involvement. As autonomous ship technologies develop, countries are pursuing various approaches to regulating them. In the U.S., the Coast Guard is the federal agency responsible for regulating U.S. waterways to ensure that they are safe and secure. The Coast Guard is currently conducting a statutorily directed pilot program for autonomous at-sea rocket recovery that provides Coast Guard the authority to waive certain crew requirements.

This testimony summarizes GAO's August 2024 report entitled Coast Guard: Autonomous Ships and Efforts to Regulate Them and focuses on three areas: (1) U.S. Coast Guard efforts to regulate and monitor autonomous ships operating in U.S. waterways and the challenges it may face in the future, (2) International Maritime Organization efforts to integrate autonomous ships into its regulatory framework, and (3) how selected countries are addressing challenges in regulating autonomous ships in their respective waterways.

To inform the report, GAO reviewed Coast Guard documentation, interviewed agency officials, and obtained information from representatives of Canada, Norway, and the United Kingdom. More detailed information on the scope and methodology of that work can be found in the August 2024 report.

For more information, contact Andrew von Ah at [email protected].