ÿWPC«N Z"ŸœŸÖ{¶Cß¿¤CIž,]s­‹ñ_3g~û±Ø98À‡üÇ‚9 üû(1Ròó»{9 ñ ¯‹POÉG ØP±ÒWíõðºs~†±£3z æ)8C‚e½@t*Ô*e1 Εe[Ô 5È´«*%žEëNzöÆtrN‚ÂÛð¤¼5–£U±Ç97Äè›P°É§±Wä%Á,‚ÒÔhõݰêÐ)1ó¡ßAX¶’3m•å´&¶ðgç˜nzº`öaøê·LmÿI®ÂÈ'¯ü—ClF$SƒIžšb'vø§YÔ`Î]âRpÆ Z$ÁV*RìþÄäy¤A˜46ÚSé¡Ûã‰J\z£0Ðùñ»„ßÎ(¦X ÝQ›+Í«N©?A°vSs|çTšøýÕÉõ2@@ôë°c1ÌŽèTwXŠT•©uÞ®õmÇàzZ蟑׊9ƒÏµå®‰æ‘EßF¥±9ëMž†µõ’SU­•<#|MÐhn™Ù~6\¹™cš?EzËm—6mÈšîñMXÔûš u†÷è×ty=–^a朢: ç5¶Ú£Á´*|$,¦õ&9ŸZ×;‹ý®é\©*¦†–ñòpŽ…)ïK ‘Èr £nkƒ#Á* UFë %1 0:7 U8q B© ^ Æ wÒ 4Ö ê ù mû U: NL bN 0ÔV 0D* ‚n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n n àðøÐÐ<ÈE8Ip"Jñ$};-‘¸/)I2èr3r3‡Z:Šá>+kB@–F©ÖGÖGEIIIÑIYRK˜HP LaserJet 5/5M - StandardÈÈ,,,,ÈÈ0<4šÛ 9Z+‹.Courier New RegularX(üœ$¡¡ÔUSUS.,Ô<4šÛ 9Z+‹ Courier New  d™z/s €M/O_WEST3|xFÿU‹ÿÀÀÀ,°À`   "CG Times Bold- ù-(„(2´c$¤¤Ý ƒó!ÝÔ‡Xº>XXXÔÓ  ÓÝ  ÝÓ=€º>‚ÐXdÐd=Óà  àòòÚ  Ú0Ú  Úóó(#Ã$òòÚ  Ú0Ú  Úóó Ó   ' Turner0Turner .    ÖÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú17Ú  ÚóóÝ  ÝÔ_ÔAnd€volunteering€officers. îÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú18Ú  ÚóóÝ  ÝÔ_ÔU.S.€Coast€Guard,€òò2002€Coast€Guard€Ann.€Rep.óó 2Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú19Ú  ÚóóÝ  ÝÔ_ÔAnalogies€between€state€and€federal€statutes€can€be€aÐ ° Ðhazardous€enterprise.€€òòSeeóó,€òòe.g.óó,€òòNat'l€R.R.€Passenger€Corp.óó€v.òòÐ †Ö ÐAtchison,€Topeka€&€Sante€Fe€Ry.€Co.óó,€470€U.S.€451,€470€(1985)Ð \¬ Ð(refusing€to€transfer,€by€analogy,€the€wording€of€a€state€statuteÐ 2‚ Ðinto€a€federal€statute.) ;Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú20Ú  ÚóóÝ  ÝÔ_ÔIn€pertinent€part,€14€U.S.C.€ðð€88€Ô_Ôprovides:Ð ° ÐÔ_ÔÔ_ÔÐ †Ö  ÐÔ_ÔÔ_ÔÔ_ÔÔ_ÔÔ_Ôà8  àÔ_ÔÔ_ÔÔ_Ô(a)€InÔ_Ô€order€to€render€aid€to€distressed€persons,Ð ° Ðvessels,€and€aircraft€on€and€under€the€high€seas€and€onÐ †Ö Ðand€under€the€waters€over€which€the€United€States€hasÐ \¬ Ðjurisdiction€and€in€order€to€render€aid€to€persons€andÐ 2‚ Ðproperty€imperiled€by€flood,€the€Coast€Guard€Ô_Ômay:Ô_ÔÔ_ÔÐ X Ð(1)€Ô_ÔÔ_ÔperformÔ_Ô€any€and€all€acts€necessary€to€rescue€and€aidÐ Þ. Ðpersons€and€protect€and€save€property;Ð ´  ÐÔ_Ô(2)€takeÔ_Ô€charge€of€and€protect€all€property€saved€fromÐ Š Ú Ðmarine€or€aircraft€disasters,€or€floods,€at€which€theÐ ` ° ÐCoast€Guard€is€present,€until€such€property€is€claimed€byÐ 6 †  Ðpersons€legally€authorized€to€receive€it€or€untilÐ  \  Ðotherwise€disposed€of€in€accordance€with€law€orÐ â 2  Ðapplicable€regulations,€and€care€for€bodies€of€those€whoÐ ¸  Ðmay€have€perished€in€such€catastrophes;Ð ŽÞ  ÐÔ_Ô(3)€furnishÔ_Ô€clothing,€food,€lodging,€medicines,€and€otherÐ d´  Ðnecessary€supplies€and€services€to€persons€succored€byÐ :Š  Ðthe€Coast€Ô_ÔGuard.Ô_Ô .Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú21Ú  ÚóóÝ  ÝÔ_ÔHistorically,€Congress€has€only€employed€the€phrase€"any€andÐ ° Ðall€acts"€when€furnishing€a€newly„created€administrative€agency€orÐ †Ö Ðprogram€with€sufficient€flexibility€to€accomplish€its€centralÐ \¬ Ðstatutory€purposes.€òòSeeóó,€òòe.g.óó,€16€U.S.C.€ðð€583j„2€(establishing€aÐ 2‚ Ðfoundation€under€the€supervision€of€the€Forest€Service€andÐ X Ðauthorizing€that€foundation€to€perform€"any€and€all€acts€necessaryÐ Þ. Ðand€proper"€to€carry€out€the€purposes€of€the€foundation);€16€U.S.C.Ð ´  Ððð€3703€(authorizing€the€National€Fish€and€Wildlife€Foundation€toÐ Š Ú Ðperform€"any€and€all€acts€necessary€and€proper");€20€U.S.C.€ðð€5509Ð ` ° Ð(establishing€the€National€Environmental€Education€and€TrainingÐ 6 †  ÐFoundation€and€authorizing€the€Foundation€to€perform€"any€and€allÐ  \  Ðacts€necessary€and€proper");€43€U.S.C.€ðð€373€(authorizing€theÐ â 2  ÐSecretary€of€the€Interior€to€perform€"any€and€all€acts"€to€makeÐ ¸  Ðrules€necessary€to€implement€a€program€of€reclamation€andÐ ŽÞ  Ðirrigation€of€lands€by€the€federal€government).Ð d´   Ðà  àI€think€it€self„evident€that,€despite€conferring€theseÐ ° Ðagencies€with€the€power€to€perform€"any€and€all€acts"€inÐ †Ö Ðfurtherance€of€some€statutory€purpose,€Congress€did€not€therebyÐ \¬ Ðconfer€unfettered€authority€upon€agencies€such€as€the€ForestÐ 2‚ ÐService€or€National€Fish€and€Wildlife€Foundation. fÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú22Ú  ÚóóÝ  ÝÔ_ÔTo€indulge€in€Ô_ÔhypotheticalsÔ_Ô:€while€the€statute€wouldÐ ° Ðundoubtedly€authorize€the€Coast€Guard€to€spend€money€and€to€useÐ †Ö Ðlabor€conducting€a€rescue,€it€plainly€would€not€authorize€the€CoastÐ \¬ ÐGuard€to€shoot€an€obstreperous€mariner€who€refused€to€comply€withÐ 2‚ Ðthe€suggestions€of€Coast€Guardsmen€providing€rescue€assistance. @Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú23Ú  ÚóóÝ  ÝÔ_ÔThe€majority€also€cites€Coast€Guard€Manuals€to€support€theÐ ° Ðproposition€that€the€Coast€Guard€has€actual€authority€during€Ð †Ö Ðsearch€and€rescue€operations€to€forcefully€remove€a€ship's€crew.€Ð \¬ ÐFirst,€I€do€not€read€any€language€in€that€Manual€indicating€thatÐ 2‚ Ðthe€Coast€Guard€has€the€authority€to€force€a€master€off€his€vessel.€Ð X ÐSecond,€Coast€Guard€manuals€do€no€more€than€serve€as€a€"trainingÐ Þ. Ðand€operational€tool"€for€search€and€rescue€operations.€€U.S.€CoastÐ ´  ÐGuard,€òòNational€Search€and€Rescue€Manualóó€(1991).€€€They€are€nothingÐ Š Ú Ðmore€than€"reference€documents"€to€aid€the€Coast€Guard€and€otherÐ ` ° Ðrescue€groups€outside€the€Coast€Guard.€€òòSeeóó€U.S.€Coast€Guard,€òòCoastÐ 6 †  ÐGuard€Addendum€to€the€National€Search€and€Rescue€Manualóó.€€By€noÐ  \  Ðmeans€can€a€manual€create€authority€for€the€Coast€Guard€when€noÐ â 2  Ðsuch€power€has€been€authorized€by€Congress.€€òòSee€alsoóóÐ ¸  ÐòòChristensenóóv.€òòHarris€Countyóó,€529€U.S.€576,€587€(2000)€(reiteratingÐ ŽÞ  Ðthat€statutory€"interpretations€contained€in€.€.€.€agency€manuals"Ð d´  Ðdo€not€warrant€deference.)€€Third,€the€United€States€NationalÐ :Š  ÐSearch€and€Rescue€Supplement€recognized€that€Coast€Guard€negligenceÐ `  Ð"may,€in€some€circumstances,€create€legal€liability"€if€anÐ æ6 Ð"attempted€rescue€.€.€.€is€conducted€so€that€it€.€.€.€worsens€theÐ ¼  Ðsituation€of€.€.€.€one€in€distress."€€National€Search€and€RescueÐ ’â ÐCommittee,€òòUnited€States€National€Search€and€Rescue€Supplement€toÐ h¸  Ðthe€International€Aeronautical€and€Maritime€Search€and€RescueÐ ° ÐManualóó€(May€2000). sÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú24Ú  ÚóóÝ  ÝÔ_ÔThe€agencies€that€merged€into€the€Coast€Guard€are:€€theÐ ° ÐUnited€States€Lighthouse€Service€(1€Stat.€L.€53)€(1789);€theÐ †Ö ÐRevenue€Cutter€Service€(12€Stat.€L.,€639)€(1863);€the€SteamboatÐ \¬ ÐInspection€Service€(10€Stat.€L.,€1852)€(1852);€the€U.S.€Life-SavingÐ 2‚ ÐService€(20€Stat.€L.,€163)€(1878);€and€the€Bureau€of€Navigation€(23Ð X ÐStat.,€L.€118)€(1884). ‡Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú25Ú  ÚóóÝ  ÝÔ_ÔThe€majority€disagrees€and€contends€that,€in€circumstancesÐ ° Ðsuch€as€the€present,€Coast€Guard€operations€are€relevantlyÐ †Ö Ðdifferent€from€the€situation€in€which€a€private€vessel€comes€to€theÐ \¬ Ðrescue€of€a€distressed€vessel.€€òòMajóó.€òòOpóó.€at€II(B)(3).€€Once€again,Ð 2‚ Ðthe€majority€makes€such€an€assertion€without€any€supportingÐ X Ðcitations€or€referenced€authority. Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú26Ú  ÚóóÝ  ÝÔ_ÔFor€good€reason,€as€the€Coast€Guard€lacks€the€authority€toÐ ° Ðissue€such€an€order. ÞÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú27Ú  ÚóóÝ  ÝÔ_ÔÔ_ÔÔ_ÔLeading€admiraltyÔ_Ô€Ô_Ôtreatises€also€recognize€that€masters€canÐ ° Ðreject€salvage€assistance.€€According€to€Martin€J.€Norris,€"[w]henÐ †Ö Ðthe€master€is€in€command€and€control€of€his€own€ship€he€may€refuseÐ \¬ Ðand€reject€salvage€services.€€A€would„be€salvor,€under€suchÐ 2‚ Ðcircumstances,€cannot€force€his€services€on€the€distressed€vessel."Ð X ÐMartin€J.€Norris,€òòThe€Law€of€Seamenóó€ðð€9:39€(4th€ed.€2002).€Ð Þ. ÐAdditionally,€even€where€a€salvor's€services€have€been€accepted€andÐ ´  Ðassistance€rendered,€"the€salvor€must€cease€his€services€whenÐ Š Ú Ðrequested€to€by€the€salved€ship€.€.€.€.€During€the€time€thatÐ ` ° Ðassistance€is€being€rendered,€the€officers€of€the€distressed€vesselÐ 6 †  Ðare€at€liberty€to€determine€when€the€assistance€rendered€should€beÐ  \  Ðterminated."€€òòId.óó€€Thomas€J.€Ô_ÔSchoenbaumÔ_Ô€echoes€this€view:€"SalvageÐ â 2  Ðcannot€be€forced€upon€an€owner€or€his€agent€in€possession€of€theÐ ¸  Ðvessel;€a€salvor€who€acts€without€the€express€or€implied€consent€ofÐ ŽÞ  Ðthe€owner€is€a€'gratuitous€Ô_ÔintermeddlerÔ_Ô,'€who€is€not€entitled€toÐ d´  Ðany€salvage€award."€€Thomas€J.€Ô_ÔSchoenbaumÔ_Ô,€2€òòAdmiralty€and€MaritimeÐ :Š  ÐLawóó€ðð€16„1€(3d€ed.€2001). }Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú28Ú  ÚóóÝ  ÝÔ_ÔÔ_ÔIt€is€important€to€note€that€Ô_Ôwe€are€only€concerned€with€theÐ ° Ðscope€of€authority€of€the€Coast€Guard€under€ðð€88€to€assistÐ †Ö Ðdistressed€persons,€vessels,€and€aircraft€on€and€under€UnitedÐ \¬ ÐStates€waters.€€Nothing€in€the€majority€opinion€or€in€this€dissent€Ð 2‚ Ðshould€be€construed€to€apply€to€the€Coast€Guard€in€its€military,Ð X Ðlaw€enforcement€or€regulatory€capacities.€€Moreover,€the€right€ofÐ Þ. Ðthe€Coast€Guard€to€evacuate€its€own€personnel€from€a€distressedÐ ´  Ðvessel€is€not€at€issue€here;€had€the€Coast€Guard€simply€withdrawnÐ Š Ú Ðits€personnel€from€the€NORTHERN€VOYAGER,€without€ordering€theÐ ` ° ÐNORTHERN€VOYAGER's€master€and€officers€to€evacuate€as€well,€theÐ 6 †  Ðappellant€would€have€had€no€cause€of€action€against€the€UnitedÐ  \  ÐStates. €Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú29Ú  ÚóóÝ  ÝÔ_ÔCongress€has€expressed€concerns€that€the€Coast€Guard€„„Ð ° Ðacting€as€a€private€salvor€„„€may€unduly€interfere€with€commercialÐ †Ö Ðsalvage€efforts.€€Such€concerns€led€Congress,€in€1982€legislation,Ð \¬ Ðto€direct€the€Coast€Guard€to€"review€Coast€Guard€policies€andÐ 2‚ Ðprocedures€for€towing€and€salvage€of€disabled€vessels€in€order€toÐ X Ðfurther€minimize€the€possibility€of€Coast€Guard€competition€orÐ Þ. Ðinterference€with€private€towing€activities€or€other€commercialÐ ´  Ðenterprise."€€Coast€Guard€Authorization€Act€of€1982,€Pub.€L.€No.Ð Š Ú Ð97„322€ðð€113,€96€Stat.€1581€(1982). !Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú30Ú  ÚóóÝ  ÝÔ_ÔÔ_ÔGoodridgeÔ_Ô€originally€radioed€the€Coast€Guard€on€channel€16Ð ° Ðand,€as€is€customary,€told€the€Coast€Guard€to€switch€to€Channel€22,Ð †Ö Ðthe€channel€where€the€NORTHERN€VOYAGER€communications€were€takingÐ \¬ Ðplace.€€After€switching€to€Channel€22,€the€Coast€Guard€askedÐ 2‚ ÐÔ_ÔGoodridgeÔ_Ô€to€switch€to€Channel€12.€€Upon€doing€so,€Ô_ÔGoodridgeÔ_Ô€wasÐ X Ðtold€not€to€"tie€up"€this€non„emergency€channel,€despite€the€factÐ Þ. Ðthat€Channel€12€did€not€contain€any€emergency€communicationsÐ ´  Ðbetween€the€Coast€Guard€and€the€NORTHERN€VOYAGER.€€Thus,€in€effect,Ð Š Ú Ðthe€Coast€Guard€silenced€and€isolated€Ô_ÔGoodridgeÔ_Ô's€salvage€attempts. 6Ý ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú31Ú  ÚóóÝ  ÝÔ_ÔThe€evidence€showed€that€all€a€diver€had€to€do€was€plug€theÐ ° Ðrudder€shaft,€a€simple€and€quick€maneuver. ŸÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú32Ú  ÚóóÝ  ÝÔ_ÔThis€evidence€should€also€be€viewed€in€light€of€the€fact€thatÐ ° Ðthe€NORTHERN€VOYAGER€was€afloat€for€about€one€hour€after€the€masterÐ †Ö Ðwas€forced€to€abandon€it€and€to€cease€efforts€to€save€it. ÇÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú33Ú  ÚóóÝ  ÝÔ_ÔAlthough€such€a€tradition,€which€has€not€been€altogetherÐ ° Ðfanciful€at€different€times,€has€served€to€establish€a€benchmarkÐ †Ö Ðfor€the€commitment€expected€of€a€ship's€captain€toward€his€ship,Ð \¬ Ðcrew€and€passengers. OÝ ƒ´c$ÝÔ€X§±XXXÔÓ  ÓÓ=€§±‚ÐXdÐd=Óà  àòòÚ  Ú34Ú  ÚóóÝ  ÝÔ_ÔòòSeeóó€John€Stuart€Mill,€òòOn€Libertyóó€14€(John€Gray€ed.,€OxfordÐ ° ÐUniv.€Press€1991)€(1859)€("[T]he€sole€end€for€which€mankind€areÐ †Ö Ðwarranted,€individually€or€collectively,€in€interfering€with€theÐ \¬ Ðliberty€of€action€of€any€of€their€number,€is€self„protection€€[ofÐ 2‚ Ðsociety]€.€.€.€His€own€good,€either€physical€or€moral,€is€not€aÐ X Ðsufficient€warrant.€€He€cannot€rightfully€be€compelled€to€do€orÐ Þ. Ðforbear€because€it€will€be€better€for€him€to€do€so€.€.€.€OverÐ ´  Ðhimself,€over€his€body€and€mind,€the€individual€is€sovereign.")Ý ƒüœ!ÝÔUSUS.,ÔÝ  ÝÔ_Ôò òó óÔ‡ XàäXXXÔÔ‡ °W(°X XàäÔÓ  ÓUnited€States€Court€of€AppealsÐ ° ÐÔ#† XàäX° °W(b#ÔÔ‡ „W„X XàäÔà@@   ìàFor€the€First€CircuitÐ „Ô ÐÓÓÌÔ#†„„„ „WC#ÔÔ‡„„„„ÔÔ#†X§±X„„ã#ÔÔ‡°® °XX§±ÔßA€~) °°` dE<C ` AßÐ D ” ÐÔ#†X§±X°°® ´#ÔÌÓ  ÓVolume€II€of€IIÐ ) y ÐÓMÓNo.à0  à02„1619Ðÿ O(#(# ÐÌà@¸ ¸ ìàTHAMES€SHIPYARD€AND€REPAIR€COMPANY,ˆÐ « û Ðà@| | ìàPlaintiff€in€Cross€Claim,€Appellant,ˆÐ  Ñ  ÐÌà@tt)ìàv.ˆÐ -}  ÐÌà@¤¤#ìàUNITED€STATES,ˆÐ Ù)  Ðà@<< ìàDefendant,€Appellee.ˆÐ ¯ÿ  ÐÌßA€~) °°` d³E<Z` AßÐ [« ÐÌNo.€02„1620Ð @ ÐÌà@@ @ ìàNORTHERN€VOYAGER€LIMITED€PARTNERSHIP;ˆÐ ì< Ðà@  ìàONEBEACON€AMERICA€INSURANCE€COMPANY€f/k/a/ˆÐ  Ðà@¸ ¸ ìàCOMMERCIAL€UNION€INSURANCE€COMPANY,ˆÐ ˜è Ðà@ˆˆìàPlaintiffs,€Appellants,ˆÐ n¾ ÐÌà@tt)ìàv.ˆÐ j ÐÌà@¤¤#ìàUNITED€STATES,ˆÐ Æ Ðà@<< ìàDefendant,€Appellee.ˆÐ œì ÐÌßA€~) °°` dE<G` AßÐ H˜ ÐÌà@` ` ìàAPPEALS€FROM€THE€UNITED€STATES€DISTRICT€COURTˆÐ -}  Ðà@0 0 ìàFOR€THE€DISTRICT€OF€MASSACHUSETTSˆÐ  S! ÐÌà@Œ Œ ìà[Hon.€Rya€W.€Zobel,€òòU.S.€District€Judgeóó]ˆÐ ¯!ÿ# ÐÌßA€~) °°` d³E<Z#` AßÐ [#«% ÐÌà@„„'ìàBeforeˆÐ @$' Ðà@ìàTorruella,€òòCircuit€Judgeóó,ˆÐ %f ( Ðà@  ìàCampbell€and€Stahl,€òòSenior€Circuit€Judgesóó.ˆÐ ì% ÐFERC€"power€to€perform€any€and€all€acts,€and€toÐ Ä Ðprescribe,€issue,€make,€amend,€and€rescind€such€orders,Ð šê Ðrules,€and€regulations€as€it€may€find€necessary€andÐ pÀ  Ðappropriate"),€that€provision€merely€augments€whateverÐ F –! Ðòòexistingóó€powers€have€been€conferred€on€FERC€by€Congress,Ð !l" Ðwithout€itself€comprising€a€source€of€òòindependentóóÐ ò!B# Ðauthority€to€act.ÐÈ"$Ð Ð  ÐÌÓM>ÓòòBoston€Edison€Co.óó€v.€òòFERCóó,€856€F.2d€361,€369„70€(1st€Cir.€1988)Ð t$Ä& Ð(emphasis€in€the€original)€(internal€citations€omitted);€òòsee€alsoóóÐ  &p!( ÐòòNew€England€Power€Co.óó€v.€òòFPCóó,€467€F.2d€425,€430„31€(D.C.€Cir.Ð ° Ð1972).Ð \¬ Ðà  àà ` àThe€phrase€"any€and€all€acts"€authorizes€the€Coast€GuardÐ X Ðto€implement€and€maintain€a€capability€to€conduct€search€and€rescueÐ ´  Ðoperations.€€The€phrase€does€not€literally€mean€that€the€CoastÐ ` ° ÐGuard€may€perform€òòanyóó€action€that€is€tangentially€rescue„related,Ð  \  Ðwithout€regard€to€that€action's€lawfulness,€or€proper€delegation,Ð ¸  Ðor€potential€impact€on€the€rights€of€civilian€mariners.׃q×Ý ƒ#ÃÝòòÚ  Ú22Ú  ÚóóÝ  Ý×  ×Ð d´  Ðà  àà ` àThe€majority€recognizes€the€logic€of€this€argument€inÐ `  Ðpart€when€it€notes€that€the€Coast€Guard's€power€under€the€statuteÐ ¼  Ðis€not€unbridled.€€òòMajóó.€òòOpóó.€at€II(B)(3).€€To€avoid€giving€the€CoastÐ h¸ ÐGuard€the€unlimited€power€it€claims,€yet€still€give€it€enoughÐ d Ðauthority€to€meet€the€discretionary€immunity€test,€the€majorityÐ À Ðjudicially€creates€a€limitation€to€ðð€88€out€of€whole€cloth.€€ItÐ l¼ Ðholds€that€Coast€Guard€authority€exists€only€during€life„Ð h Ðthreatening€situations€when€there€is€an€objectively€reasonableÐ Ä Ðbelief€by€safety€officers€that€a€true€emergency€exists€and€there€isÐ pÀ  Ðan€immediate€need€for€assistance€or€aid.€€Needless€to€say,€there€isÐ !l" Ðno€mention€of€such€a€limitation€in€the€congressional€history€or€inÐ È"$ Ðprevious€case€law€regarding€ðð€88,€yet€the€majority€depends€on€thisÐ t$Ä& Ðlimitation€to€uphold€the€proposition€that€the€Coast€Guard€hadÐ  &p!( Ðactual€authority.Ð ° Ðà  àà ` àThe€problem€with€judicial€legislation€is€that€it€oftenÐ \¬ Ðconflicts€with€the€wording€and€intent€of€the€statute.€€Such€is€theÐ X Ðpresent€case.€€The€majority's€creation€conflicts€with€the€veryÐ ´  Ðpurpose€of€the€discretionary€function€exception.€€The€"basis€of€theÐ ` ° Ðdiscretionary€function€exception€was€Congress'€desire€to€preventÐ  \  Ðjudicial€second€guessing."€€òòBerkovitzóó€v.€òòUnited€Statesóó,€486€U.S.Ð ¸  Ð531,€536„37€(1988)€(internal€citation€and€quotations€omitted).€Ð d´  ÐOnce€a€court€determines€that€an€agency's€decision€wasÐ `  Ðdiscretionary,€it€is€not€thereafter€free€to€determine€whether€theÐ ¼  Ðdecision„maker€properly€perceived€the€emergency€to€be€life„Ð h¸ Ðthreatening€and€whether€such€a€perception€was€objectivelyÐ d Ðreasonable.€€An€agency's€discretionary€decisions€are€immuneÐ À Ð"whether€or€not€the€discretion€involved€be€abused."€€28€U.S.C.€ððÐ l¼ Ð2680(a).€€Therefore,€once€a€decision€is€deemed€to€be€the€kind€ofÐ h Ðdecision€the€exception€was€designed€to€shield,€this€Court's€inquiryÐ Ä Ðmust€come€to€an€end.€€As€the€Supreme€Court€concluded,€"where€theÐ pÀ  Ðgovernment€is€performing€a€discretionary€function,€the€fact€thatÐ !l" Ðthe€discretion€is€exercised€in€a€negligent€manner€does€not€makeÐ È"$ Ð[the€exception]€inapplicable."€€òòAttallahóó€v.€òòUnited€Statesóó,€955€F.2dÐ t$Ä& Ð776,€784€n.13€(1st€Cir.€1992)€(citing€òòDalehiteóó€v.€òòUnited€Statesóó,Ð  &p!( Ð346€U.S.€15,€33€(1952);€òòBerkovitzóó,€486€U.S.€at€539))€(furtherÐ Ì'#* Ðcitations€omitted).€€Likewise,€where€the€Coast€Guard€is€performingÐ x)È$, Ða€discretionary€function,€the€fact€that€the€decision„maker€wronglyÐ $+t&. Ðperceived€the€situation€to€be€life„threatening€will€not€make€theÐ ° Ðexception€inapplicable.Ð \¬ Ðà  àà ` àThe€better€and,€in€my€belief,€the€only€correctÐ X Ðinterpretation€of€ðð€88€is€one€that€does€not€require€judicialÐ ´  Ðlegislation.€€Like€statutes€with€similar€language,€ðð€88€grants€theÐ ` ° ÐCoast€Guard€general€implementary€powers.€€It€does€not€grant€theÐ  \  ÐCoast€Guard€the€authority€to€threaten€an€unwilling€master€toÐ ¸  Ðevacuate€his€vessel€if€Coast€Guard€personnel€determine€that€furtherÐ d´  Ðsalvage€efforts€would€be€dangerous.Ð `  Ðà  àI€am€unaware€of€any€case€or€authority,€nor€does€the€majorityÐ ¼  Ðcite€to€any,€conferring€such€sweeping€authority€upon€the€CoastÐ h¸ ÐGuard€in€the€search€and€rescue€context,€other€than€the€statute€inÐ d Ðquestion.׃r×Ý ƒ#ÃÝòòÚ  Ú23Ú  ÚóóÝ  Ý×  ×€€Keeping€these€general€limitations€in€mind,€we€turn€toÐ À Ðthe€substantive€language€and€purpose€of€ðð€88€to€determine€whetherÐ ° Ðthe€Coast€Guard's€evacuation€order€was€within€the€permissible€rangeÐ \¬ Ðof€actions€authorized€by€the€statute.Ð X Ðò òà  àà ` àB.à ¸ àòòScope€of€authorityóóó óÐ ´  Ðà  àà ` àThe€Coast€Guard€is€the€historical€product€of€five€federalÐ | Ì Ðagencies.׃s<×Ý ƒ#ÃÝòòÚ  Ú24Ú  ÚóóÝ  Ý×  ×€€In€1915€"the€U.S.€Revenue€Cutter€Service€and€the€U.S.Ð ( x  ÐLifesaving€Service€were€merged€to€form€a€new€agency,€the€U.S.€CoastÐ Ô$  ÐGuard."€€D.C.€Baldinelli,€òòThe€U.S.€Coast€Guard's€Assignment€to€theÐ €Ð  ÐDepartment€of€Homeland€Security:€Entering€Uncharted€Waters€or€JustÐ ,|  Ða€Course€Correction?óó€(Dec.€9,€2002),€available€atÐ Ø( Ðhttp://www.uscg.mil/hq€/g-cp/history/Homeland_Security_Baldinelli.Ð „Ô Ðhtml.€€In€the€1930s€and€1940s€the€Coast€Guard€absorbed€the€U.S.Ð 0€ ÐLighthouse€Service,€the€Steamboat€Inspection€Service€and€the€BureauÐ Ü, Ðof€Navigation.€€òòId.óó€€In€1967,€the€Coast€Guard€was€transferred€fromÐ ˆØ Ðthe€Treasury€Department€to€the€Department€of€Transportation.€€òòId.óó€Ð 4„ ÐIn€2003,€the€Coast€Guard€was€transferred€to€the€Department€ofÐ à0 ÐHomeland€Security.€€òòSeeóó6€U.S.C.S.€ðð€101€(2003).Ð ŒÜ  Ðà  àà ` àIt€thus€appears€that€the€Coast€Guard,€or€itsÐ 8!ˆ" Ðpredecessors,€has€been€with€us€since€the€inception€of€the€Republic.€Ð ä"4$ ÐYet,€in€all€of€its€various€forms€there€is€not€a€single€reportedÐ ° Ðcase,€not€a€shred€of€documented€evidence,€not€an€iota€of€coherentÐ \¬ Ðlegislative€history,€sanctioning€the€exercise€of€the€extraordinaryÐ X Ðexecutive€powers€claimed€by€the€Coast€Guard€in€this€case.Ð ´  Ðà  àà ` àThe€earliest€Congressional€statutes€authorizing€aÐ ` ° Ðgovernment€agency€to€perform€search€and€water€rescues€provided€thatÐ  \  Ðrescuers€could€only€aid€distressed€sailors.€€òòSeeóó€Act€of€Dec.€22,Ð ¸  Ð1837,€ch.€1,€5€Stat.€208€(1837)€(cited€in€òòThe€Huntsvilleóó,€12€F.Cas.Ð d´  Ð996€(E.D.S.C.€1860)€(No.€6916)€(Congress€authorized€the€PresidentÐ `  Ð"to€cause€.€.€.€public€vessels€.€.€.€to€cruise€upon€the€coast,€inÐ ¼  Ðthe€severe€portion€of€the€season€.€.€.€to€afford€such€aid€toÐ h¸ Ðdistressed€navigators€as€their€circumstance€and€necessities€mayÐ d Ðrequire;€and€such€public€vessels€shall€go€to€sea€prepared€fully€toÐ À Ðrender€such€assistance")).€€The€authority€granted€by€this€originalÐ l¼ Ðstatute€was€only€to€"aid"€navigators€as€"their"€necessitiesÐ h Ðrequired.€€òòSeeóó€òòid.óó€€Other€Congressional€legislation€similarlyÐ Ä Ðestablished€Coast€Guard€stations€and€provided€Coast€Guard€fundingÐ pÀ  Ðfor€the€purpose€of€"assisting€vessels€.€.€.€from€the€perils€of€theÐ !l" Ðsea."€€Act€of€Apr.€19,€1906,€ch.€1640,€34€Stat.€123;€òòsee€alsoóó€ActÐ È"$ Ðof€Aug.€29,€1916,€ch.€417,€39€Stat.€601€(providing€funding€forÐ t$Ä& Ðcutters€to€be€used€for€"rendering€aid€to€vessels€in€distress");€ActÐ  &p!( Ðof€June€24,€1914,€ch.€124,€38€Stat.€387€(providing€funding€for€twoÐ Ì'#* Ðcutters€to€provide€medical€aid€to€vessels€engaged€in€the€deep„seaÐ x)È$, Ðfisheries);€Act€of€May€12,€1906,€ch.€2454,€34€Stat.€190€(providingÐ $+t&. Ðfunding€for€a€steam€vessel€to€provide€service€at€sea).Ð ° Ðà  àà ` àSimilar€to€previous€statutes€granting€a€governmentalÐ \¬ Ðagency€the€power€to€"aid"€distressed€sailors,€under€ðð€88,€CongressÐ X Ðgranted€the€Coast€Guard€broad€powers€to€"render€aid,"€"rescue€andÐ ´  Ðaid"€and€"furnish€clothing,€food,€lodging,€medicines,€and€otherÐ ` ° Ðnecessary€supplies"€to€distressed€persons€and€vessels.€€14€U.S.C.Ð  \  Ððð88€(a)(3).€€Neither€the€history€of€ðð€88€nor€case€law€interpretingÐ ¸  Ððð€88€support€the€proposition€that€the€Coast€Guard€has€the€authorityÐ d´  Ðto€force€a€master€to€evacuate€his€vessel.Ð `  Ðà  àà ` àCases€involving€ðð€88€focus€exclusively€on€two€issues.€Ð ¼  ÐFirst,€courts€uniformly€hold€that€the€Coast€Guard€is€legallyÐ h¸ Ðindistinguishable€from€private€mariners€regarding€its€duty€toÐ d Ðrescue.׃t×Ý ƒ#ÃÝòòÚ  Ú25Ú  ÚóóÝ  Ý×  ×€€òòSeeóó,€òòe.g.óó,€òòIn€re€American€Oil€Co.óó,€417€F.2d€164,€168€(5thÐ À ÐCir.€1969).€€Second,€reviewing€courts€have€concluded€that€the€CoastÐ l¼ ÐGuard€becomes€liable€for€an€attempted€rescue€when€its€actions€failÐ h Ðto€comply€with€standards€of€ordinary€care€and€acceptableÐ Ä Ðseamanship.€€òòUnited€Statesóó€v.€òòSandra€&€Dennis€Fishing€Corp.óó,€372Ð pÀ  ÐF.2d€189,€195€(1st€Cir.€1967).Ð !l" Ðà  àà ` àò òà ¸ à1.à  àòòDuty€to€rescueóóó óÐ È"$ Ðà  àà ` àThe€Coast€Guard€does€not€have€a€duty€to€provide€aid€orÐ $à& Ðrescue€services€to€distressed€persons€or€vessels.€€òòSeeóó€òòSaganóó€v.€òòÐ ° ÐUnited€Statesóó,€342€F.3d€493,€498€(6th€Cir.€2003)€(finding€thatÐ \¬ Ð"[t]he€United€States€Coast€Guard€does€not€have€an€affirmative€dutyÐ X Ðto€rescue€persons€in€distress");€òòSandra€&€Dennis€Fishingóó,€372€F.2dÐ ´  Ðat€195€(finding€that€the€Coast€Guard€is€under€no€obligation€toÐ ` ° Ð"provide€rescue€service€on€demand").€€So€while€ðð€88€empowers€theÐ  \  ÐCoast€Guard€to€maintain€rescue€facilities€and€carry€out€rescueÐ ¸  Ðefforts,€the€Coast€Guard€is€legally€indistinguishable€from€aÐ d´  Ðprivate€salvor€when€it€comes€to€providing€rescue€assistance.€Ð `  ÐAccordingly,Ð ¼  ÐÓÓà8  à[t]he€Coast€Guard,€like€a€private€salvor,€rendersÐ h¸ Ðvoluntary€assistance€where€no€duty€to€help€is€owed€theÐ >Ž Ðperson€or€vessel€in€distress.€€True,€it€is€a€statutoryÐ d Ðfunction€of€the€Coast€Guard€to€establish€and€operateÐ ê: Ðrescue€facilities.€€Congress€has€also€provided€that€theÐ À Ð"Coast€Guard€may€render€aid€to€persons€and€protect€andÐ –æ Ðsave€property€at€any€time€and€at€any€place€at€which€CoastÐ l¼ ÐGuard€facilities€and€personnel€are€available€and€can€beÐ B’ Ðeffectively€utilized."€14€U.S.C.€ðð€88(b)ò ò.€€ó óBut€thisÐ h Ðlegislation€falls€short€of€creating€a€governmental€dutyÐ üL Ðof€affirmative€action€owed€to€a€person€or€vessel€inÐ Ò" Ðdistress.ШøÐ Ð  ÐÌÓ”nÓòòIn€re€American€Oilóó,€417€F.2d€at€168€(quoting€òòFrankóó€v.€òòUnitedÐ T ¤! ÐStatesóó,€250€F.2d€178,€180€(3d€Cir.€1957))€(internal€citationÐ "P# Ðomitted).€€Thus€while€ðð€88€authorizes€the€Coast€Guard€to€conductÐ ¬#ü% Ðrescues,€it€does€not€impose€any€affirmative€duty€to€do€so.à Ð àÐ X%¨ ' Ðà  àà ` àà ¸ àò ò2.à  àòòAcceptable€seamanship€standardóóó óÐ 'T") Ðà  àà ` àOnce€the€Coast€Guard€engages€in€aid€or€rescue€efforts,Ð Ì($+ Ðthe€United€States,€like€its€private€counterparts,€will€be€liableÐ x*È%- Ðonly€where€there€is€a€failure€to€carry€out€the€rescue€mission€orÐ $,t'/ Ðaid€in€accordance€with€standards€of€"acceptable€seamanship."€Ð ° ÐòòSandra€&€Dennis€Fishingóó,€372€F.2d€at€197.€€That€means€thatÐ \¬ Ð"[w]hatever€may€be€the€limits€of€this€principle€with€respect€toÐ X Ðvolunteered€salvage,€we€believe€that€if€the€Coast€Guard€accepts€aÐ ´  Ðmission€it€should€conduct€its€share€of€the€proceeding€withÐ ` ° Ðacceptable€seamanship."€€òòId.óó€(internal€citation€omitted).Ð  \  Ðà  àà ` àThus,€once€the€Coast€Guard€begins€providing€rescueÐ ¸  Ðassistance€to€a€distressed€vessel€or€persons,€its€authority€underÐ d´  Ððð€88€is€bounded€by€the€duty€of€"acceptable€seamanship"€it€owes€toÐ `  Ðthe€vessel€owner€or€distressed€persons.€€Whatever€else€may€be€saidÐ ¼  Ðabout€the€limits€of€the€statute,€ðð€88€cannot€be€construed€in€aÐ h¸ Ðmanner€which€would€vitiate€the€Coast€Guard's€duty€of€"acceptableÐ d Ðseamanship"€when€carrying€out€volunteer€salvage€services€toÐ À Ðdistressed€vessels€or€persons.Ð l¼ Ðà  àà ` àTherefore€we€are€presented€with€the€relativelyÐ h Ðstraightforward€question€of€whether€the€Coast€Guard's€forcedÐ Ä Ðevacuation€order€was€consistent€with€principles€of€"acceptableÐ pÀ  Ðseamanship."€€I€conclude€it€was€not.€€Had€a€private€salvorÐ !l" Ðcoercively€compelled€the€master€and€crew€to€quit€salvage€effortsÐ È"$ Ðand€abandon€the€NORTHERN€VOYAGER,€there€is€no€question€but€that€theÐ t$Ä& Ðcase€would€have€proceeded€to€trial€to€determine€whether€theÐ  &p!( Ðsalvor's€actions€affirmatively€worsened€the€condition€of€theÐ Ì'#* Ðvessel.€€Here,€the€Coast€Guard,€acting€in€its€capacity€as€a€privateÐ x)È$, Ðsalvor,€violated€numerous€principles€of€"acceptable€seamanship"€byÐ $+t&. Ðcompelling€the€master€to€abandon€the€NORTHERN€VOYAGER€andÐ ° Ðwrongfully€depriving€him€of€the€opportunity€to€halt€furtherÐ \¬ Ðflooding€of€the€vessel€and€await€commercial€salvage€assistance.Ð X Ðà  àà ` àà ¸ àò ò3.à  àòòRight€to€refuse€unwanted€salvage€assistanceóóó óÐ ´  Ðà  àà ` àThough€there€are€no€cases€directly€on€point€as€to€whetherÐ | Ì Ðan€order€such€as€the€one€issued€by€the€Coast€Guard€is€within€theÐ ( x  Ðbounds€of€"acceptable€seamanship,"׃u×Ý ƒ#ÃÝòòÚ  Ú26Ú  ÚóóÝ  Ý×  ×€the€law€of€salvage€providesÐ Ô$  Ðvaluable€guidance€on€this€issue.€€Salvage€law€governs€the€rescueÐ €Ð  Ðand€salvage€of€vessels€in€marine€peril.Ð ,|  Ðà  àà ` àOne€well„established€principle€is€that€shipowners€andÐ Ø( Ðmasters€have€a€right€to€refuse€salvage€assistance.€€The€right€toÐ „Ô Ðrefuse€salvage€is€a€firmly€established€right€of€vessel€owners€andÐ 0€ Ðmasters:€€"[u]nder€nearly€all€supposable€circumstances€when€theÐ Ü, Ðmaster€is€in€command€and€control€of€his€own€ship€he€may€refuse€andÐ ˆØ Ðreject€salvage€services,€and€no€volunteer€salvor€can€force€on€him,Ð 4„ Ðand€be€rewarded€for,€services€which€he€forbids."€€òòThe€Indianóó,€159Ð à0 ÐF.€20,€25€(5th€Cir.€1908).€€This€Court€has€previously€acknowledgedÐ ŒÜ  Ðthe€master's€right€to€refuse€unwanted€assistance.€€In€òòHamburg„Ð 8!ˆ" ÐAmerican€Lineóó€v.€òòUnited€Statesóó,€we€noted€that€"salvage€services€mayÐ ä"4$ Ðnot€be€forced€on€the€unwilling."€168€F.2d€47,€56€(1st€Cir.€1948).€Ð $à& ÐThis€view€is€consistent€with€the€Supreme€Court's€statement€thatÐ <&Œ!( Ð"salvage€cannot€be€exacted€for€assistance€forced€upon€a€ship."€Ð è'8#* ÐòòMerritt€&€Chapman€Derrick€&€Wrecking€Co.óó€v.€òòUnited€Statesóó,€274€U.S.Ð ° Ð611,€613€(1927).€€Other€cases€strongly€support€this€interpretationÐ \¬ Ðof€salvage€law€as€well.׃v×Ý ƒ#ÃÝòòÚ  Ú27Ú  ÚóóÝ  Ý×  ×€€òòSeeóó€òòNew€Harbor€Protection€Co.óó€v.€òòSteamerÐ X ÐCharles€P.€Chouteauóó,€5€F.€463,€464€(D.€La.€1881)€(holding€that€aÐ ´  Ðmaster€has€"a€perfect€right€to€decline€any€assistance€that€may€beÐ ` ° Ðoffered€him:€he€should€not€be€assisted€against€his€will").Ð  \  Ðà  àà ` àThe€majority€claims€that€dicta€in€two€district€courtÐ ¸  Ðcases€limits€the€right€to€decline€salvage€assistance€to€instancesÐ d´  Ðwhere€only€the€owner's€property€interests€are€at€stake.€€First,€itÐ `  Ðis€important€to€remember€that€the€majority€is€relying€on€mereÐ ¼  Ðdicta.€€Second,€this€dicta€is€of€dubious€value€because€the€ruleÐ h¸ Ðespoused€is€contrary€to€the€well„established€law€of€salvage.€Ð d ÐThird,€the€dicta€cited€by€the€majority€limits€the€right€to€declineÐ À Ðsalvage€assistance€from€a€private€salvor€to€instances€when€there€isÐ l¼ Ðdanger€of€large€losses€of€property€to€òòthirdóó€persons€or€when€theÐ h Ðmaster's€decision€to€decline€salvage€assistance€was€"so€palpablyÐ ° Ðand€so€grossly€wrong€as€to€amount€to€positive€misconduct€inÐ \¬ Ðreference€to€the€claims€of€humanity."€€òòRamseyóó€v.€òòPohatcongóó,€77€F.Ð X Ð996€(S.D.N.Y.€1896);€òòSmit€Americas,€Inc.óó€v.€òòM/T€Mantiniaóó,€259€F.Ð ´  ÐSupp.€2d€118,€134€(D.P.R.€2003).€€The€NORTHERN€VOYAGER€did€not€poseÐ ` ° Ða€threat€to€the€property€of€third€persons.€€Captain€Haggerty'sÐ  \  Ðdecision€to€continue€efforts€to€salvage€his€ship€was€also€not€soÐ ¸  Ð"palpably€and€grossly€wrong,"€evidenced€by€the€fact€that€the€shipÐ d´  Ðremained€upright€for€fifty„five€minutes€after€he€was€forced€toÐ `  Ðevacuate€the€NORTHERN€VOYAGER,€and€afloat€for€some€time€afterÐ ¼  Ðcapsizing,€all€of€which€was€more€than€enough€time€to€have€saved€hisÐ h¸ Ðship,€particularly€if€the€Coast€Guard€had€not€interfered€with€theÐ d Ðsalvor.€€The€Coast€Guard€has€never€claimed€that€there€was€anyÐ À Ðregulatory,€military,€or€law€enforcement€basis€for€compelling€theÐ l¼ ÐNORTHERN€VOYAGER's€crew€to€evacuate€their€vessel.€€All€of€theÐ h Ðofficers€who€remained€aboard€the€NORTHERN€VOYAGER€freelyÐ Ä Ðvolunteered€to€do€so,€and€there€is€no€indication€that€any€of€themÐ pÀ  Ðwere€acting€in€a€deranged€or€reckless€manner.Ð !l" Ðà  àà ` àThe€language€of€ðð€88,€as€well€as€the€long€line€of€casesÐ È"$ Ðholding€that€the€Coast€Guard€is€legally€indistinguishable€from€aÐ t$Ä& Ðprivate€party€when€providing€voluntary€salvage€assistance,€compelÐ  &p!( Ðthe€conclusion€that€the€Coast€Guard€lacked€authority€and€actedÐ Ì'#* Ðâ âoutside€the€bounds€of€"acceptable€seamanship"€forcing€the€crew€toÐ x)È$, Ðabandon€the€NORTHERN€VOYAGER.׃x×Ý ƒ#ÃÝòòÚ  Ú28Ú  ÚóóÝ  Ý×  ×Ð ° Ðâ âÓÓà  àà ` àà ¸ àò ò4.à0  àThe€Coast€Guard€is€unlike€state€public€safetyÐ \¬ Ðofficialsó óÐ@(#(# ÐÌÓÓà  àà ` àThe€lack€of€federal€case€law€or€legislative€historyÐ úJ Ðgranting€the€Coast€Guard€authority€to€force€a€captain€from€hisÐ ¦ ö Ðvessel€has€led€the€majority€to€analogize€the€actions€of€the€CoastÐ R ¢  ÐGuard€to€actions€of€state€public€officials€during€times€ofÐ þ N  Ðemergencies€on€land.€€The€majority€concluded€that€it€is€"reasonableÐ ªú  Ðto€òòassumeóó"€(emphasis€added)€that€Congress€intended€to€confer€powersÐ V¦  Ðto€the€Coast€Guard€"analogous€to€those€possessed€by€state€safetyÐ R Ðofficials,€namely,€the€power€to€rescue€a€person€even€against€hisÐ ®þ Ðwill€in€life„threatening€situations."€€òòMaj.óó€òòOpóó.€at€II(B)(3).€€IÐ Zª Ðfind€such€an€assumption€totally€unwarranted€and,€like€other€partsÐ V Ðof€the€majority€opinion,€unsupported€by€any€authority.Ð ² Ðà  àà ` àFirst,€there€is€nothing€in€the€text€of€ðð€88€or€itsÐ ^® Ðlegislative€history€to€support€such€an€assertion,€and€furthermore,Ð  Z Ðthe€assumption€that€Congress€intended€to€confer€such€extraordinaryÐ ¶ Ðpowers€by€analogy€or€by€implication€is€in€itself€a€dubiousÐ b ²! Ðproposition.€€òòSeeóó,€òòe.g.óó,€òòNat'l€R.R.€Passenger€Corp.óó,€470€U.S.€at€Ð ° Ð470€(refusing€to€transfer,€by€analogy,€the€wording€of€a€stateÐ \¬ Ðstatute€into€a€federal€statute€because€"neither€the€language€of€theÐ X Ð[federal]€statute€nor€the€circumstances€surrounding€its€passage"Ð ´  Ðsupported€such€an€analogy).Ð ` ° Ðà  àà ` àSecond,€in€those€cases€where€courts€have€found€that€stateÐ  \  Ðsafety€officials€were€specifically€granted€the€power€to€forceÐ ¸  Ðpeople€from€their€homes€during€life„threatening€emergencies,€thatÐ d´  Ðpower€had€been€authorized€by€specific€legislative€enactment.€€òòSeeóó,Ð `  Ðòòe.g.óó,€Alaska€Stat.€ðð18.70.075(a)(2)€(granting€the€fire€departmentÐ ¼  Ð"authority€to€.€..€order€a€person€to€leave€a€building");€òòsee€alsoóóÐ h¸ ÐConn.€Gen.€Stat.€ðð€7„313b;€Del.€Code€Ann.€tit.€16,€ðð€6701A(2);€N.H.Ð d ÐRev.€Stat.€Ann.€ðð€154:7;€Tenn.€Code€Ann.€ðð€6„21„703;€W.€Va.€Code€Ð À Ððð€29„3A„1.€€In€contrast,€there€is€no€federal€statute€remotelyÐ l¼ Ðsimilar€to€these€state€statutes€specifically€granting€the€CoastÐ h ÐGuard€authority€to€order€a€ship's€master€to€abandon€his€vessel.€Ð Ä ÐMoreover,€unlike€state€governments,€the€federal€government€does€notÐ pÀ  Ðhave€a€general€police€power€„„€something€that€is€probably€beyondÐ !l" Ðthe€authority€of€any€branch€of€the€federal€government€to€createÐ È"$ Ðextra„constitutionally.€€òòSeeóó€òòLottery€Caseóó,€188€U.S.€321€(1903).Ð t$Ä& Ðà  àà ` àThird,€life„threatening€emergencies€on€land€are€veryÐ  &p!( Ðdifferent€from€life„threatening€emergencies€at€sea.€€Many€stateÐ Ì'#* Ðstatutes€grant€the€state€governor€or€local€authorities€the€power€toÐ x)È$, Ðdeclare€an€emergency€which€would€result€in€a€forced€evacuation.€Ð $+t&. ÐòòSeeóó,€òòe.g.óó,€Alaska€Stat.€26.23.020;€Fla.€Stat.€Ann.€ðð€252.38;€Me.Ð ° ÐRev.€Stat.€Ann.€tit.€37-B,€ðð€742;€Minn.€Stat.€Ann.€ðð€12.21;€Or.Ð \¬ ÐRev.€Stat.€ðððð€401.305,€401.309;€Tenn.€Code€Ann.€ðð€58-2-118.€€OnÐ X Ðland,€it€may€be€presumed€that€a€trained€law€enforcement€officialÐ ´  Ðhas€more€knowledge€than€an€average€person€about€an€impendingÐ ` ° Ðemergency,€such€as€a€storm€or€a€fire.€€At€sea,€however,€a€captain'sÐ  \  Ðexpertise€regarding€his€ship€places€him€in€the€best€position€toÐ ¸  Ðdetermine€the€actual€peril€of€his€vessel€and€how€best€to€save€it.€Ð d´  ÐCoast€Guardsmen,€unfamiliar€with€the€vessel€involved€in€theÐ `  Ðemergency,€ought€not€be€able€to€substitute€their€judgment€for€thatÐ ¼  Ðof€the€master€by€forcing€evacuation€upon€him.€€In€an€emergencyÐ h¸ Ðsituation,€it€is€unwise€for€the€least€knowledgeable€to€command€theÐ d Ðmost€knowledgeable.Ð À Ðà  àà ` àFourth,€allowing€the€Coast€Guard€to€dictate€to€the€masterÐ l¼ Ðhow€to€save€his€ship€interferes€with€the€vital€relationship€betweenÐ h Ða€master€and€his€vessel.€€As€one€expert€on€the€duties€of€a€masterÐ Ä Ðhas€testified,€a€master€"has€no€umbilical€cord€of€support.€€He€isÐ pÀ  Ðthe€sole€decision€maker€and€he€lives€with€the€responsibility€thatÐ !l" Ðhe's€got€to€discharge,€under€adverse€and€varied€conditions,€callingÐ È"$ Ðupon€those€levels€of€expertise€at€moments€and€when€he's€leastÐ t$Ä& Ðexpecting€it."€€òòIn€re€Exxon€Valdezóó,€1995€WL€527990,€at€*5€(D.Ð  &p!( ÐAlaska,€Jan.€27,€1995).€€The€exigencies€and€realities€of€life€atÐ Ì'#* Ðsea€require€that€there€be€a€rigid€chain€of€command€aboard€a€ship.€Ð x)È$, ÐA€master's€responsibility€to€his€ship€is€nondelegable€and€should€beÐ $+t&. Ðfree€from€officious€meddling.€€Particularly€in€times€of€life„Ð ° Ðthreatening€emergencies,€it€is€unwise€to€interfere€with€the€chainÐ \¬ Ðof€command€by€forcing€the€master€to€succumb€to€the€orders€andÐ X Ðdirections€of€an€intervening€governmental€bureaucracy,€particularlyÐ ´  Ðone€which€ultimately€disclaims€responsibility€for€its€actions.Ð ` ° Ðà  àà ` àò òII.€€òòCoast€Guard€interference€with€the€commercial€salvoróóó óÐ  \  Ðà  àà ` àI€agree€with€the€majority€that€there€is€sufficientÐ Ô$  Ðevidence€in€the€record€to€create€a€factual€issue€on€the€question€ofÐ €Ð  Ðwhether€the€Coast€Guard's€interference€with€the€commercial€salvor'sÐ ,|  Ðcommunications€prevented€him€from€pursuing€salvage€efforts€andÐ Ø( Ðusing€his€diving€capacity€to€find€and€plug€the€leak.€€I€disagree,Ð „Ô Ðhowever,€with€the€majority's€determination€that€the€district€courtÐ 0€ Ðcorrectly€granted€summary€judgment€because€plaintiffs€failed€toÐ Ü, Ðestablish€a€factual€issue€as€to€whether€the€Coast€Guard€wasÐ ˆØ Ðnegligent€in€delaying€Goodridge,€the€commercial€salvor,€and€as€toÐ 4„ Ðwhether€the€Coast€Guard€was€negligent€in€assuring€Captain€HaggertyÐ à0 Ðthat€it€was€working€on€getting€outside€commercial€salvageÐ ŒÜ  Ðassistance.Ð 8!ˆ" Ðà  àà ` àSummary€judgment€is€proper€if€the€pleadings,€depositions,Ð ä"4$ Ðanswers€to€interrogatories,€and€admissions€on€file€show€that€thereÐ $à& Ðis€no€genuine€issue€as€to€any€material€fact€and€that€the€movingÐ <&Œ!( Ðparty€is€entitled€to€judgment€as€a€matter€of€law.€€òòRosenbergóó€v.€òòÐ è'8#* ÐCity€of€Everettóó,€328€F.3d€12,€17€(1st€Cir.€2003)€(citing€Fed.€R.Ð ”)ä$, ÐCiv.€P.€56(c)).€€We€review€an€award€of€summary€judgment€de€novo,Ð @+&. Ðconstruing€the€record€in€the€light€most€favorable€to€the€plaintiffsÐ ° Ðand€resolving€all€reasonable€inferences€in€their€favor.€€òòId.óóÐ \¬ Ðà  àà ` àò òA.€€òòThe€reliance€argumentóóó óÐ X Ðà  àà ` àThe€parties€agree€that€the€Good€Samaritan€doctrine,Ð Ð  Ð"which€makes€one€person€liable€to€another€for€breach€of€a€dutyÐ | Ì Ðvoluntarily€assumed€by€affirmative€conduct,"€applies€to€this€case.€Ð ( x  ÐòòGoodóó€v.€òòOhio€Edison€Co.óó,€149€F.3d€413,€420€(6th€Cir.€1998)Ð Ô$  Ð(internal€citations€and€quotations€omitted).€€Coast€Guard€liabilityÐ €Ð  Ðmay€be€established€if€the€Coast€Guard's€statements€"mislead€.€.€.Ð ,|  Ð[or]€induce€reliance€upon€a€belief€that€it€is€providing€somethingÐ Ø( Ðwhich,€in€fact,€it€is€not€providing."€€òòSandra€&€Dennis€FishingÐ „Ô ÐCorp.óó,€372€F.2d€at€195.Ð 0€ Ðà  àà ` àThere€are€several€statements€in€the€record€that€create€aÐ Ü, Ðfactual€issue€as€to€whether€the€Coast€Guard€falsely€informedÐ ˆØ ÐCaptain€Haggerty€that€they€were€arranging€for€commercial€assistanceÐ 4„ Ðwhen,€it€is€alleged,€they€were€not.€€Captain€Haggerty€testified,€inÐ à0 Ða€sworn€affidavit,€that€"[b]ecause€the€Coast€Guard€had€told€me€thatÐ ŒÜ  Ðthey€were€working€on€arranging€commercial€assistance,€I€did€notÐ 8!ˆ" Ðmake€any€calls€on€the€radio...to€call€for€help."€€Haggerty€alsoÐ ä"4$ Ðradioed€Station€Gloucester€asking€"if€there€was€anybody€available,Ð $à& Ðif€there€was€any€more€pumps."€€The€Coast€Guard€responded€that€theyÐ <&Œ!( Ðwere€"working€on€that."€€Haggerty€allegedly€relied€on€the€CoastÐ è'8#* ÐGuard's€statements€and€believed€them.€€In€fact,€it€is€claimed€thatÐ ”)ä$, Ðeven€as€he€was€being€forced€off€the€NORTHERN€VOYAGER,€HaggertyÐ @+&. Ðreiterated€to€the€Coast€Guardsman€that€he€wanted€to€remain€aboardÐ ° Ðhis€vessel,€to€stabilize€it€and€await€salvage€assistance.Ð \¬ Ðà  àà ` àIt€is€admitted€that€the€Coast€Guard€never€arranged€forÐ X Ðcommercial€salvage€assistance.׃y×Ý ƒ#ÃÝòòÚ  Ú29Ú  ÚóóÝ  Ý×  ×€€Nor€did€they€inquire€whetherÐ ´  Ðanyone€was€available€or€whether€there€were€any€more€pumps.Ð ` ° Ðà  àà ` àThe€majority€discounts€Haggerty's€sworn€testimony€byÐ  \  Ðconcluding€that€the€"natural€assumption"€is€that€the€Coast€Guard'sÐ ¸  Ðstatement€that€we€are€"working€on€that"€referred€to€the€impendingÐ d´  Ðarrival€of€the€cutter€ADAK.€€It€is€equally,€if€not€a€more€"naturalÐ `  Ðassumption,"€that€Haggerty's€question€asking€if€anyone€wasÐ ¼  Ðavailable€referred€to€the€availability€of€commercial€salvors,€whoÐ h¸ Ðroutinely€carry€pumps€aboard€their€ships.€€Most€important,€thisÐ d ÐCourt€must€view€all€facts€in€favor€of€the€nonmoving€party.€€AnyÐ À Ð"natural€assumptions,"€therefore,€must€be€viewed€in€a€light€mostÐ l¼ Ðfavorable€to€the€plaintiffs.€€Keeping€this€in€mind,€it€is€clearÐ h Ðthat€there€is€enough€evidence€of€detrimental€reliance€to€warrant€aÐ Ä Ðremand€on€that€issue€as€well.Ð pÀ  Ðà  àà ` àò òB.€€òòThe€delay€argumentóóó óÐ !l" Ðà  àà ` àBy€dissecting€the€record,€the€majority€drew€twoÐ ä"4$ Ðconclusions:€€first,€the€Coast€Guard€delayed€Goodridge€by,€at€most,Ð ° Ðtwelve€minutes;€and€second,€twelve€minutes€is€not€a€significantÐ \¬ Ðdelay.€€Both€conclusions€are€wrong.Ð X Ðà  àà ` àAt€9:03€a.m.,€Goodridge€called€Station€Gloucester€toÐ ´  Ðinform€them€that€he€had€equipment€and€was€available€to€assist€inÐ ` ° Ðthe€salvage€efforts.€€The€Coast€Guard€responded€that€"they€wereÐ  \  Ðbusy€and€they€were€going€to€handle€it€.€.€.€they€didn't€need€anyÐ ¸  Ðhelp."€€After€being€rebuffed€by€the€Coast€Guard,€Goodridge€returnedÐ d´  Ðto€work€and€gathered€his€gear€to€prepare€to€salvage€a€boat€that€hadÐ `  Ðsunk€that€morning.€€Goodridge€continued€to€listen€to€his€radioÐ ¼  Ðtransmitting€the€communications€regarding€the€NORTHERN€VOYAGER.€Ð h¸ ÐAfter€further€listening,€Goodridge€concluded€that,€despite€what€theÐ d ÐCoast€Guard€had€said,€the€NORTHERN€VOYAGER€would€need€his€help.€Ð À ÐThus,€at€9:15€a.m.,€Goodridge€called€Cape€Ann€Divers€to€inquire€whoÐ l¼ Ðwould€be€there€to€assist€in€a€dive€and€to€gather€information.€€AtÐ h Ð9:33€a.m.€Goodridge€called€Station€Gloucester€again€and€informedÐ Ä Ðthem€that€he€was€coming€with€equipment.€€At€this€point,€theÐ pÀ  Ðmajority€is€correct€that,€at€most,€the€Coast€Guard€delayedÐ !l" ÐGoodridge€by€twelve€minutes.€€But,€the€Coast€Guard€caused€furtherÐ È"$ Ðdelay€once€Goodridge€arrived€at€his€boat.€€Using€the€radio€onboardÐ t$Ä& Ðhis€boat,€Goodridge€attempted€to€contact€the€Coast€Guard€to€ask€ifÐ  &p!( Ð"we€should€take€the€time€to€load€pumps€or€just€come€with€the€diveÐ Ì'#* Ðâ âgear."€€The€Coast€Guard€responded:€"don't€tie€up€the€channel;€Ô_Ôwe'reÐ x)È$, Ðbusy;€don't€tie€up€the€channel."Ô_Ô׃z×Ý ƒ#ÃÝòòÚ  Ú30Ú  ÚóóÝ  Ý×  ×Ô_Ô€€Since€the€Coast€Guard€did€notÐ ° Ðâ ârespond,€Ô_ÔGoodridgeÔ_Ô€"took€the€time"€to€"run€the€pumps€down€theÐ \¬ Ðdock."€€It€is€unclear€how€much€extra€time€this€took,€but€viewingÐ X Ðthe€evidence€in€a€light€most€favorable€to€the€plaintiffs,€it€isÐ ´  Ðenough€evidence€to€require€a€remand€on€this€issue.€€This€isÐ ` ° Ðespecially€true€considering€that€the€repairs€required€by€Ô_ÔtheÔ_ÔÐ  \  ÐNORTHERN€VOYAGER€would€have€taken€"two€minutes€or€less"€toÐ ¸  Ðcomplete׃{ ×Ý ƒ#ÃÝòòÚ  Ú31Ú  ÚóóÝ  Ý×  ×€and€did€not€even€require€the€use€of€additional€pumps.Ð d´  Ðà  àà ` àFurther,€even€if€it€is€assumed€that€Ô_ÔGoodridgeÔ_Ô€was€delayedÐ `  Ðby€only€twelve€minutes,€viewing€the€evidence€in€a€light€mostÐ ¼  Ðfavorable€to€the€plaintiff,€it€can€be€concluded€that€the€delay€wasÐ h¸ Ðsignificant.׃|Š ×Ý ƒ#ÃÝòòÚ  Ú32Ú  ÚóóÝ  Ý×  ×€€Had€the€delay€not€occurred,€Ô_ÔGoodridgeÔ_Ô€could€haveÐ d Ðarrived€at€the€scene€in€time€to€communicate€with€Captain€Ô_ÔHaggertyÔ_Ô.€Ð À ÐAt€such€time,€further€efforts€could€have€been€taken€to€save€theÐ l¼ ÐNORTHERN€VOYAGER.€€This€issue€should€also€be€remanded€since€theÐ h Ðdelay€could€have€led€to€the€demise€of€the€NORTHERN€VOYAGER.Ð ° Ðà  àò òà ` àIII.à0 ¸ àòòConclusionóóó óÐ\¬¸ (#¸ (# Ðà  àà ` àMost€respectfully,€I€strongly€disagree€with€theÐ $t Ðmajority's€holding€that€the€Coast€Guard€has€the€power€to€remove€aÐ Ð  Ðmaster€of€a€vessel€from€his€ship€by€threat€of€force,€therebyÐ | Ì Ðpreventing€him€from€saving€it.€€My€views€are€not€some€romantic€orÐ ( x  Ðarchaic€notion€to€the€effect€that€the€"captain€should€go€down€withÐ Ô$  Ðthe€ship,"׃×Ý ƒ#ÃÝòòÚ  Ú33Ú  ÚóóÝ  Ý×  ×€or€a€claim€based€on€John€Stuart€Mill„like€theories€ofÐ €Ð  Ðpersonal€liberty€and€autonomy,׃‚è×Ý ƒ#ÃÝòòÚ  Ú34Ú  ÚóóÝ  Ý×  ×€although€some€might€find€suchÐ ,|  Ðarguments€appealing.€€Rather,€they€are€based€on€the€hard€realitiesÐ Ø( Ðof€the€law€of€the€sea€as€it€has€existed€from€time€immemorial€untilÐ „Ô Ðthis€case€ensued.€€The€majority's€unprecedented€holding€is€notÐ 0€ Ðsupported€by€law,€practice€or€maritime€tradition.€€It€contradictsÐ Ü, Ðlegislative€enactments€and€the€very€purpose€of€the€discretionaryÐ ˆØ Ðfunction€exception.€€Congress€has€never€granted€the€Coast€Guard€theÐ 4„ Ðauthority€to€force€a€master€to€abandon€his€vessel.€€Neither€shouldÐ à0 Ðthis€Court.