History of the Division of Watercraft
Prior to the late 1800s, most boating in Ohio was done out of necessity for transportation and commerce. The Ohio and Erie Canal, which became operative from Akron to Cleveland in 1827, provided Ohio with an economic boon as well as a link to needed resources. The Miami and Erie Canal, which comprised three canals (the Miami Canal running from Cincinnati to Dayton, the Miami Extension, and the Wabash and Erie Canal), was officially designated in 1849.
Boating as a recreational activity was popularized by sailing regattas held on Lake Erie in the late 1800s. The first international sailing regatta on the Great Lakes was held at Put-in-Bay in September 1871. The Inter-Lake Yachting Association (ILYA) was conceived in July 1884 at Put-in-Bay Harbor and was formally organized at a January 1885 meeting of the Cleveland Yachting Association and the Cleveland Canoe Club. Interest in regatta sailing races was so great that in 1900 carrier pigeons were dispatched from a boat at the finish line to fly the results to the Sandusky Star, the local evening newspaper.
For many Ohioans, Lake Erie weekends were not a recreational option, so inland Ohioans flocked to the rivers for recreational boating and fishing opportunities. Popular family vacation destinations were the Maumee, Miami, Muskingum, Tuscarawas, and Ohio rivers, which provided ample opportunity to spend on-the-water time with family and friends.
Production of the first Evinrude outboard motor in 1909 opened the doors to modern recreational boating. In the 1920s, the high cost of owning and operating powerboats relegated their recreational use to mostly wealthy individuals. The Depression of the 1930s tremendously slowed the growth of recreational boating, but following World War II, the demand for leisure time activities dramatically increased.
At that time, boat owners registered their boats locally, for a particular body of water -- thus requiring multiple registrations for a single vessel if it was used in different bodies of water. Also after World War II, sailing enjoyed a resurgence, with competitive racing becoming very popular.
In response to the dramatic increase in the number of recreational boats following World War II, the 101st General Assembly created the Waterways Safety Fund in 1955 (Ohio Revised Code, Section 1545.75). The fund was originally administered by the Division of Shore Erosion and was established to provide monies for construction and improvement of public facilities for boating on the navigable waters within Ohio. The fund also enabled the state to obtain federal matching funds for the establishment of harbors of refuge.
In 1958, the Federal Boating Act was passed in Congress. This Act enabled the United States Coast Guard to develop and administer a uniform numbering system for all of the states and allowed for a single statewide registration. A statewide registration replaced multiple, local registrations. The 103rd Ohio General Assembly passed Amended Substitute House Bill 928 in 1959, conforming Ohio law to the concepts and objectives of the Federal Boating Act and created the Division of Watercraft within the Ohio Department of Natural Resources. The main functions of the Division, which became operative January 1, 1960, were to register boats and motors and to fund capital improvement projects such as launch ramps and marinas. Local political subdivisions and sister state agencies applied yearly for funds to build or improve boating facilities.
The enactment of House Bill 949 in 1960 made Ohio the first state in the nation to adopt a uniform system of buoy markers to designate controlled operation areas of waters used for recreational boating.
Ohio law established a Waterways Safety Commission consisting of four members who served without pay and acted in an advisory capacity to the Administrator of the Division of Watercraft. In 1963, legislation changed the Commission's name to the Waterways Safety Council, expanded the membership to five, and changed "Administrator" to "Chief" of the Division of Watercraft.
In 1963, the Division began providing assistance to political subdivisions, conservancy districts, and state agencies to establish and maintain local marine patrols.
The issuance of Certificates of Titles and recording of liens (mortgages on watercraft and outboard motors) was initiated on January 1, 1964. With the enactment of Senate Bill 350 in 1971, boat and motor titling was transferred from the Bureau of Motor Vehicles and became the responsibility of the Division of Watercraft on December 21, 1971.
The increase of recreational boating and the Federal Boat Safety Act of 1971 marked the beginning of the Division’s education and enforcement program. The first training academy for Watercraft Officers was held at the Ohio State Highway Patrol Academy in 1972 and consisted of 16 officers. Six district offices were established throughout the state to serve the boating communities, enforce boating laws, and provide education programs.
In 1978, the Division pioneered the development of the first river rescue program in the United States and Canada. An ad hoc committee on fast water rescue composed of canoeists, emergency medical technicians, and park rangers was spearheaded by the Division to develop safe, simple, and practical rescue techniques. This program has received national and international awards and recognition.
In 1980, boat registrations were changed from a one-year to a three-year registration period, and a renewal-by-mail system was established which provided added convenience to boaters while also serving as a very cost-effective procedure. The Division also stopped licensing outboard motors separately, and fees were established by watercraft length classifications.
In 1983, legislation was enacted to enable the Division to award grants for boater safety education to political subdivisions (non-profit groups became eligible in 1990). Over $2 million has thus far been awarded to community recreation departments, state universities, cities, counties, and townships. These grants make boating safety programs available at the local levels.
A volunteer program was established in 1983 to support the efforts of paid staff by expanding available services. Volunteers donate thousands of hours each year by teaching courses, assisting in training, supporting law enforcement, and representing the Division at special events and shows.
In 1985, the Division of Watercraft applied for and received a State Agency Grant from the Division of Recycling and Litter Prevention. With the funding, the Division of Watercraft implemented a comprehensive litter prevention, recycling, education/awareness, and waterway cleanup program. Major projects supported under this program include the Lake Erie Waterways Cleanup, the Little Miami River Cleanup, the Licking River Round-up, and the Ohio River Sweep.
In 1986, Ohio passed the "Implied Consent" statute requiring potentially intoxicated boat operators to submit to chemical tests when requested by law enforcement officers. Operating a watercraft while under the influence continues to be a major concern of the Division of Watercraft, as alcohol is involved in a high percentage of boating accidents. The original legislation prohibiting the operation of watercraft while under the influence (OUI) was enacted in 1970. With the passage of the revised legislation, the Division enhanced its ability to enforce OUI laws with the purchase of portable breath-testing equipment.
In 1988, the federal government passed legislation that required the U.S. Coast Guard to develop a Vessel Identification System (VIS) to share individual states’ vessel information as well as information on federally documented vessels. With such a system, it was thought that the Coast Guard and state law enforcement officials could more effectively identify information on vessels in our nation’s ports and waterways -- the need for which has heightened since the September 11 terrorist attacks. The federal VIS program has not yet been fully implemented and participation remains voluntary for states.
In 1991, a study was conducted to document the basic structure, functions, activities, and related data of the Division of Watercraft’s information system. In January 1992, 12 computers were connected to the ODNR computer user network, allowing the Division to share registration data and to better serve law enforcement and other needs.
In 1992, the Automated Titling Process System (ATPS) was initiated. All 88 counties were online by 1993. ATPS allows daily networking of all county titling offices with the Division of Watercraft.
Also in 1992, the Division of Watercraft began offering a standardized basic boating course. In 1993, volunteers, marine patrol officers, and staff were trained as instructors in what is now named the Ohio Boating Education Course. This course is approved by the National Association of State Boating Law Administrators and is offered throughout the state. The course includes topics on safety equipment requirements, operational laws, navigation rules, trailering, and launching.
In 1993, the Splash Test Dummies™, a family of characters used to promote boating safety, were first featured at the Ohio State Fair. Created by the Public Information and Education Section, the Splash Test Dummies™ won the National Safe Boating Council’s 1995 Idea Fair. The two main characters, Splish and Splash continue to promote boating safety. They have been featured in coloring books for youth, public service announcements, posters, and the 1996 National Safety Council Youth Congress at Disney World in Orlando, Florida. Videos and public service announcements using these characters help boaters assess and reduce risks through risk management.
In 1996, Senate Bill 295 was introduced to address the changing trends in boat types and the increasing problems associated with these trends. Senate Bill 295 was passed and the changes became effective March 17, 1997. The law changed the minimum operator age to 16 for personal watercraft (e.g., Jet Ski, Waverunner, Sea Doo; generically referred to as PWC), prohibited persons under 12 years of age to operate a watercraft over ten horsepower unless a person 18 years or older is on board, and created new regulations for exhaust mufflers on boats (effective January 1, 2000). Several additional changes were made to existing laws to address PWC operation.
In 1996, the Division of Watercraft entered into memoranda of understanding with the United States Coast Guard Auxiliary and the United States Power Squadron to provide educational assistance with Ohio laws and safety requirements. These cooperative agreements greatly increased the Division’s long-standing, professional and successful relationships with both of these outstanding volunteer boating safety organizations. The diversity and convenience of the course offerings provided by these agencies collectively allow all Ohio boaters an opportunity to receive boating safety information and training at minimal cost and in proximity to their homes.
Ohioans witnessed the introduction and enactment of more boating legislation in 1998. House Bill 502, signed by Governor George Voinovich on June 25, established a graduated mandatory education requirement for individuals born on or after January 1, 1982, when operating powerboats over ten horsepower. The law requires the successful completion of a course approved by the National Association of State Boating Law Administrators or passing a proficiency exam. The effective date for the law was January 1, 2000.
Senate Bill 187 was signed by the governor on December 18, 1998, and addressed a number of issues including operating requirements and prohibitions, operating vessels when under the influence of alcohol or drugs, temporary registration of watercraft, a process for dealing with unclaimed vessels and outboard motors, the sale of specified items, titling requirements for PWCs and other vessels, and insurance fraud. The major portions of the law went into effect March 18, 1999, with some parts becoming effective January 1, 2000.
In 1998, the Watercraft Information System (WIS) was implemented. WIS is the database system used by the Division to keep track of registration and titling records and the history of the records. Annual upgrades to the system were performed for renewal of registrations via the Internet and the capability of changing addresses electronically. In 2004, a planned upgrade will be completed that allows for the issuance of online registrations by Watercraft Registration Agents.
In 1999, a new exhaust muffler law for vessels set acceptable noise levels when on the water. Noise testing devices were purchased and training was conducted for division staff and marine patrol agencies.
In March of 1999, boaters were given the option of obtaining a temporary boat registration while waiting for title work to be completed. This means boaters can register and legally operate their boats sooner.
In 1999, the Division of Watercraft, Ohio Sea Grant, the Lake Erie Commission, the Boating Associations of Ohio, and the Lake Erie Marine Trades Association conducted a recreational boating economic impact study. The study revealed that Ohio’s economy is much richer due to nearly $1.4 billion spent each year by boaters and approximately 19,500 jobs exist in Ohio due to recreational boating.
In 1999, a Field Restructure Plan began implementation. Four regional field offices were created to better manage law enforcement and education services. The Alum Creek Watercraft field office was opened and officer satellite sites were established in New Philadelphia, Wapakoneta, and Chillicothe.
In 2000, the U.S. Coast Guard agreed to lease their station in Ashtabula to the Division to use as an officer satellite site. This collaboration was the first of its kind in Ohio. Satellite sites were also established at Buckeye Lake and Newton Falls.
As a result of receiving an increase in its percentage of the state’s motor fuel tax, and as a component to the Field Restructure Plan, an increase in law enforcement staff took place in 2000 with the hiring of 13 Watercraft officer cadets and 18 established term Watercraft officers. The established term officers were assigned to various waterways to assist with law enforcement and to provide needed assistance to boaters for ten-month terms.
A Comprehensive Management System, which encompasses our strategic plan, an operational plan, and an evaluation component, was implemented in the Division in July of 2001. This system drives the budgeting and project management for the agency and assists managers in planning for and utilizing division resources for maximum customer service.
In 2001, a Memorandum of Understanding was signed with the U.S. Coast Guard Auxiliary to partner with them in the Vessel Safety Check program. If Ohio boaters pass a vessel safety inspection, they benefit by receiving a state-issued decal that is recognized nationally. Substitute Senate Bill 59 was enacted in 2001 to enable boat dealers and owners to title watercraft in any Ohio county. The effective date was April 30, 2002.
Senate Bill 80, requiring markings for restricted areas on inland bodies of water, became effective October 26, 2001.
Senate Bill 150 was signed into law in 2002. This law gives owners of hand powered canoes, kayaks, rowboats, racing shells, rowing sculls and inflatable watercraft an option to exempt their boats from the traditional numbering system. The law also requires all watercraft in the state of Ohio to have a correct 12-character HIN at the time a registration or title is issued for boats that were built in 1973 or later and after a transfer of ownership for boats that were built before 1973.
In 2002, with authority from the U.S. Supreme Court, Ohio and Kentucky signed an agreement to mutually promote boating safety education and boating law enforcement on the portion of the Ohio River that divides these two states. This agreement represents an important partnership and mutual understanding with our neighboring state that will benefit boating interests along the Ohio River.
To enhance customer service, ten more State Watercraft Officers were hired to provide law enforcement throughout the state primarily on state park lakes. The Cincinnati Watercraft field office was moved to East Fork State Park in Clermont County in 2003. The Division also established a remote work site in Marietta in 2003.
House Bill 87 became effective July 1, 2003. This bill modified the offenses of the state law relating to boating while under the influence of alcohol by reducing the specified concentrations of alcohol that can be present in a person’s blood, breath or urine from 0.10% to 0.08%.
The governor signed House Bill 50 on July 22, 2003. The law increases the penalties for hit-and-run offenders when the incident results in the death of a person. In addition, it establishes the offenses of aggravated vehicular homicide and aggravated vehicular assault for watercraft operators under the influence of alcohol or drugs if injury or death occurs during an incident. With this law, watercraft operators are held to the same penalties as motor vehicle operators who violate these laws.
As state boating laws change from year to year and as the Division of Watercraft continues to upgrade the programs and services it provides to the public, the Division will persist in its tradition of working hard to enhance the state’s boating safety program. As the only state agency with marine capabilities and authority, the Division of Watercraft will continue to provide assistance to and foster partnerships with federal, state, and local authorities such as the U.S. Secret Service for the protection of the President, the Ohio State Highway Patrol for the protection of the Governor, sister state departments and divisions, county sheriffs’ offices, and local political subdivisions. The Division will continue to grow our partnerships with boating organizations such as the U.S. Coast Guard, the U.S. Coast Guard Auxiliary, the U.S. Power Squadrons, our many boating education partners, and our corps of dedicated, statewide volunteers. |