Federal Maritime Commission Fiscal Year 2021 Budget Justification February 2020 

Federal Maritime Commission

Fiscal Year 2021

Budget Justification

February 2020

Michael A. Khouri

Chairman
Federal Maritime Commission i

FY 2021 Budget Justification

Table of Contents

About the Federal Maritime Commission.......................................................................................2

Mission ........................................................................................................................................ 3

Statutory Authority ..................................................................................................................... 3

Regulatory Functions................................................................................................................... 3

Members of the Commission...................................................................................................... 5

Commission Bureaus and Offices................................................................................................ 6

Proposed Appropriation Language: Salaries and Expenses...........................................................8

Fiscal Year 2021 Budget Request ....................................................................................................8

FMC Strategic Plan and the FY 2021 Budget Request............................................................... 11

FMC Activities and Performance Highlights.............................................................................. 12

Supporting the President’s Management Agenda.................................................................... 25

Additional Initiatives and Efforts to Increase Efficiencies, Create Awareness, 

 and Benefit the Taxpayer...................................................................................................... 33

Appendices....................................................................................................................................36

Appendix A: Resource Allocation by Program.......................................................................... 37

Appendix B: FTEs and Positions Allocation by Program........................................................... 38

Appendix C: Obligations by Object Class.................................................................................. 39

Appendix D: Relationship of Obligations to Outlays................................................................ 40

Appendix E: Performance Measures by Strategic Goals.......................................................... 41

Appendix F: Workload Summary.............................................................................................. 42

Appendix G: IT Resources Statements..................................................................................... 43

Appendix H: OIG Certification .................................................................................................. 48
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FY 2021 Budget Justification

About the Federal Maritime Commission

The Federal Maritime Commission (FMC or Commission) is an independent agency that regulates 

the international ocean transportation supply system (both liner carriers and ocean transportation 

intermediaries). The FMC’s mission is ensuring a competitive and reliable international ocean 

transportation supply system that supports the U.S. economy and protects the public from 

unlawful, unfair, and deceptive ocean transportation practices. This system is vital to the Nation’s 

commerce.

The FMC is composed of five Commissioners nominated by the President and confirmed by the 

Senate, each serving a staggered five-year term. The Commission is a bipartisan body; no more 

than three members of the Commission may be of the same political party. One Commissioner, 

designated by the President, serves as Chairman, Chief Executive, and Chief Administrative Officer 

of the Commission.

*This is the current organization chart for the Commission, depicting a Congressionally-authorized realignment of the Office of 

Consumer Affairs and Dispute Resolution Services under the Managing Director, approved April 27, 2018. Counterpart changes in 

46 C.F.R. Part 501 are currently pending publication.
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Mission

Ensure a competitive and reliable international ocean transportation supply system that 

supports the U.S. economy and protects the public from unfair and deceptive practices.

Fulfilling this mission involves achieving two primary goals:

1. Competition

Maintain a competitive and reliable international ocean transportation supply system.

2. Integrity

Protect the public from unlawful, unfair, and deceptive practices.

Statutory Authority

The principal statutes administered by the Commission, codified at 46 U.S.C. §§ 40101-44106 and 

§ 3503, are:

• The Shipping Act of 1984, as amended (Shipping Act);

• The Foreign Shipping Practices Act of 1988 (FSPA);

• Section 19 of the Merchant Marine Act, 1920 (1920 Act); 

• Sections 2 and 3 of Pub. L. No. 89-777, 80 Stat. 1350; and

• Section 834 of the Frank LoBiondo Coast Guard Authorization Act of 2018 (LoBiondo Act)

Regulatory Functions

The FMC maintains a competitive and reliable ocean transportation supply system by:

• Reviewing and monitoring agreements among and between vessel-operating common 

carriers (VOCCs or carriers) and among and between marine terminal operators (MTOs)

serving the U.S. foreign oceanborne trades to ensure they do not cause unreasonable 

increases in transportation costs or decreases in transportation services;

• Requiring reports and other information filed by MTOs and ocean transportation 

intermediaries (OTIs);

• Maintaining and reviewing confidentially-filed service contracts which provides a critical 

source of data and information on trends in carrier pricing and services;

• Providing a forum for exporters, importers, and other members of the shipping public to 

obtain relief from ocean shipping practices or disputes that impede the flow of commerce;

• Ensuring common carriers’ tariff rates and charges are published in private, automated 

tariff systems and publicly available;
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FY 2021 Budget Justification

• Providing regulatory oversight of competition and remedies for violations of the Shipping 

Act’s antitrust provisions;

• Monitoring rates, charges, and rules of government-owned or -controlled carriers to 

ensure they are just and reasonable; and

• Acting to address unfavorable conditions caused by foreign government or foreign business 

practices in U.S. foreign shipping trades.

The FMC protects the public from financial harm and contributes to the integrity and security of 

the Nation’s import and export supply chains and ocean transportation system. The FMC’s

activities include:

• Licensing and registering non-vessel-operating common carriers (NVOCCs), and licensing 

U.S.-based freight forwarders, collectively OTIs; 

• Administering and enforcing a surety bond program to ensure payment of judgments for 

damages by OTIs;

• Investigating and prosecuting violations of the Shipping Act and related statutes;

• Registering and annually verifying VOCC status of ocean common carriers operating in U.S. 

trades and the status of U.S.-based MTOs;

• Helping resolve disputes involving the shipment of goods or the carriage of passengers;

• Adjudicating private party complaints alleging Shipping Act violations; and

• Ensuring that passenger vessel operators maintain proper financial coverage to reimburse 

cruise passengers in the event their cruise is cancelled or to cover liability in the event of 

death or injury at sea.
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Members of the Commission 

 Chairman Michael A. Khouri

 Appointed 2009

 Term Expires 2021

 Commissioner Daniel B. Maffei Commissioner Rebecca F. Dye

 Appointed 2016 Appointed 2002

 Term Expires 2022 Term Expires 2020

 

 Commissioner Louis E. Sola Commissioner Carl Bentzel

 Appointed 2019 Appointed 2019

 Term Expires 2023 Term Expires 2024
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Commission Bureaus and Offices

The FMC staff is comprised of economists, attorneys, and experts in ocean transportation. While 

most of the workforce is located at its Washington, D.C. headquarters, the Commission maintains 

a presence in six major port locations nationwide. 

In addition to the Commissioners’ offices, the staff of the FMC is organized into 10 bureaus and 

offices: 

Bureau of Certification and Licensing (BCL) protects the public from financial harm through its OTI

licensing, registration, and surety bonding programs. BCL also protects the public by requiring 

Passenger Vessel Operators (PVOs) to maintain adequate financial coverage to reimburse cruise 

cancellations or to cover liability in the event of death or injury at sea. 

Bureau of Enforcement (BOE) is the prosecutorial arm of the Commission. Bureau attorneys serve 

as trial counsel in formal proceedings and protect the shipping public by working closely with the 

Commission’s Area Representatives in investigations of potential violations of the Shipping Act and 

Commission regulations. BOE negotiates settlements and informal compromises of civil penalties 

and may act as investigative officers in formal fact-finding investigations.

Bureau of Trade Analysis (BTA) analyzes and monitors the concerted activities of VOCCs and

MTOs to detect and guard against possible anticompetitive abuse of authority contained in filed 

agreements under the Shipping Act which could result in substantial increases in transportation 

costs or decreases in transportation services; and to identify and address other prohibited 

activities. BTA also reviews and analyzes service contracts, monitors rates of foreign, governmentowned controlled carriers; and reviews carrier-published tariff systems under the accessibility and 

accuracy standards of the Shipping Act. 

Office of the Administrative Law Judges (OALJ) resolves cases of alleged violations of the Shipping 

Act and other laws within the Commission’s jurisdiction. Through trial hearings and the issuance of 

an initial decision, the OALJ ensures that the rights of all parties are preserved.

Office of Consumer Affairs and Dispute Resolution Services (CADRS) provides assistance to 

shippers, OTIs, cruise operators and passengers, truckers, MTOs, and VOCCs by providing 

alternative dispute resolution (ADR) services, ombuds assistance, mediation, facilitation, and 

arbitration to resolve disputes involving cargo shipments, household goods shipments, and 

cruises.

Office of Equal Employment Opportunity (OEEO) advises and assists the Commission in carrying 

out its responsibilities relative to Titles VI and VII of the Civil Rights Act of 1964 (as amended), 
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other laws, executive orders, and regulatory guidelines implementing affirmative employment, 

and the processing of EEO complaints.

Office of the Inspector General (OIG) is an independent and objective oversight office created 

within the FMC by the Inspector General Act of 1978 (as amended) to conduct and supervise 

audits, inspections, and investigations relating to the FMC’s programs; detect and prevent waste, 

fraud, and abuse; promote economy, efficiency, and effectiveness; review existing and proposed 

legislation and regulations; keep the Chairman, Commissioners, and Congress fully informed of 

serious problems and deficiencies and recommend corrective actions; and, as appropriate, report 

violations of law to the U.S. Attorney General.

Office of the General Counsel (OGC). The General Counsel is the Commission’s Chief Legal Officer. 

The OGC provides legal services to the Commission and staff as it fulfills responsibilities that 

include: preparing final decisions, orders, and regulations for Commission approval and issuance; 

representing the Commission in litigation before the courts; providing technical and policy 

assistance to other government agencies engaged in international negotiations or discussions on 

shipping matters; and providing legal opinions to the Commission, its staff, and the general public 

in appropriate instances. OGC also oversees the Commission’s international affairs activities. 

Office of the Managing Director (OMD) is responsible for implementing the administrative 

directives of the Chairman; the management and coordination of Commission program offices and 

bureaus; and overseeing the agency’s Area Representatives located in six major port areas 

nationwide. It has direct oversight of the administrative offices of the Commission, which include 

the offices of Budget and Finance, Human Resources, Information Technology, and Management 

Services. The Managing Director is the Commission’s Chief Financial and Operating Officer.

Office of the Secretary (OS) serves as the office through which all filings are made in Commission 

proceedings, notices of proceedings are given, and from which all official actions are issued by the 

Commission. The OS prepares and maintains agenda matters and actions taken by the 

Commission; maintains official files and records of formal proceedings; ensures compliance with 

the Freedom of Information, Government in the Sunshine, and Privacy Acts; responds to 

information requests from the public; issues publications and authenticates instruments and 

documents of the Commission; maintains a public reference/law library and a docket library; and 

oversees the organization and content of the Commission’s website.
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Proposed Appropriation Language: Salaries and Expenses

For necessary expenses of the Federal Maritime Commission as authorized by section 201(d) of 

the Merchant Marine Act, 1936, as amended (46 U.S.C. 307), including services as authorized by 

5 U.S.C. § 3109; hire of passenger motor vehicles as authorized by 31 U.S.C. 1343(b); and uniforms 

or allowances therefore, as authorized by 5 U.S.C. 5901 - 5902, $28,000,000 $28,900,000:

Provided, That not to exceed $2,000 $5,000 shall be available for official reception and 

representation expenses. (Proposed text derived from: Transportation, Housing and Urban 

Development, and Related Agencies Appropriations Act, 2020.)

Fiscal Year 2021 Budget Request

The FMC’s Fiscal Year (FY) 2021 Budget Request is $28,900,000 to support 116 FTEs. This reflects a

funding increase of $900,000 above the net Non-Defense Discretionary total provided to the 

Commission for FY 2020. 

International ocean shipping is vital to the Nation’s commerce, moving more than $1 trillion in U.S. 

exports and imports each year. The FMC’s significant statutory mandate – to ensure a competitive 

and reliable international ocean transportation supply system that supports the U.S. economy and 

protects the public from unfair and deceptive practices – is an undertaking accomplished by a 

relatively small number of talented and dedicated shipping industry experts with a very modest 

budget and workforce complement. Continuing a trend that has spanned the past decade, the 

international ocean transportation industry continues to adjust and react to challenging market 

conditions. Carriers and MTOs have been forced to find ways to cut costs and realize greater

efficiencies, whether individually or through consolidation, mergers, or operational cooperation 

with their competitors under agreements filed with the FMC. These changes in carrier and MTOconcerted activity and market structure likewise require the FMC to quickly respond by timely and 

efficiently analyzing the competitive impact of proposed agreements in the VOCC and MTO 

industries to guard against possible anticompetitive abuse of the filed agreement authority; to

avoid unreasonable increases in transportation costs or decreases in transportation services; and 

to address other activities prohibited by the Shipping Act.

The FMC ensures a competitive and reliable international ocean transportation supply system in 

part by balancing the cost-containment strategies and cooperative working arrangements among 

carriers or MTOs with the legitimate business needs of the Nation’s many exporters/importers to 

ensure their goods reach international markets efficiently and reliably. As the industry continues 

to evolve and change, the FMC will continue its focus upon competition and integrity for America’s 

ocean supply chain by:

• Analyzing and monitoring key U.S. trade lanes; 

• Assessing the competitive effects of agreement parties’ activities, particularly focusing on 

issues of costs (freight rates), vessel capacity (supply) and equipment availability upon the 

business community; 
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FY 2021 Budget Justification

• Licensing our Nation’s OTIs, registering foreign-based NVOCCs, and administering an 

effective surety bond program to ensure payment of judgments for damages by OTIs; and

• Monitoring changes taking place in the provision of chassis for the inland movement of 

containerized goods, and the competitive effects of changing carrier alliance structures, 

particularly as they may affect concerted procurement of carrier services in U.S. ports.   

For many years, the appointed Commissioners and career staff of the FMC have honed a working 

agency budget consistent with its statutorily-mandated mission and the Administration’s needs 

and objectives. The Commission’s past budgets were targeted and fiscally responsible. Workload 

and staffing needs, stated in full-time equivalents (FTEs), were balanced and reconciled annually 

against supplemental contract support and information system development, intended to manage 

FTE growth and improve the quality and timeliness of FMC decision-making. 

Over successive budget cycles, the FMC has prioritized IT development, inclusive of mission-critical

IT contract support. The agency committed a dedicated funding stream to planned IT initiatives for

both currently underway and projected initiative development. For the present, the FMC’s 

continued investments in IT development will prove key in sustaining and improving future 

performance and quality of the IT network systems and programs essential to support the FMC’s 

mission and operations. The Commission’s Office of Information Technology (OIT) relies upon 

contractor-provided software engineer services to assist the Commission’s IT staff in modernizing

its infrastructure, server platforms, and mission-critical web applications, while providing on-site, 

hands-on training and knowledge transfer. Although prior years’ IT expenditures have set the 

stage for implementing the FMC’s application modernization plan, the FMC proposes to commit 

additional funding in FY 2021 with the objective of completing and successfully deploying our 

modernized FMC-18 enterprise application.

Without IT development to facilitate processing of agency workload and delivery of services to the 

shipping industry, critical staffing requirements will continue to increase commensurate with the 

volume of license applications filed, license renewals processed, carrier and MTO agreements

requiring review and analysis, etc. These IT improvements are critical to restraining future 

personnel growth and permitting options for the FMC to reallocate existing personnel to the 

strategic program needs of the future, consistent with the Commission’s 5-year plan responsive to 

OMB Memorandum M-17-22, Reforming the Federal Government and Reducing the Federal 

Workforce. 

The FMC’s budget request includes a specific budget allowance for awards to recognize high 

performing employees. The total projected FMC employee performance awards spending for 

FY 2020 and FY 2021 are $265,000 and $400,000, respectively. Requested FMC FY 2021 non-SES 

performance award spending for FY 2021 is approximately $305,000, or 2.2 percent of estimated 

non-SES salaries. This is 1.0 percentage point higher than the FY 2020 non-SES performance award 

spending of approximately $172,000, equivalent to 1.2 percent of non-SES salaries.
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The FMC’s FY 2021 Budget Request also includes an increase in the agency contributions for the 

Federal Employee Retirement System as described in OMB Circular A-11, Section 32.3. This

increase has been incorporated under Personnel Benefits in Appendix C hereof, Obligations by

Object Code. 

The FMC’s headquarters lease will expire on October 31, 2022. The FMC has employed contractor 

support to review its current use and develop future space requirements. This process was

recommended to the FMC by other Federal agencies that recently went through the process of 

executing a new lease, relocating, and/or reconfiguring existing space or building-out new space. 

In conformance with best practices, the contractor will work alongside the FMC and the General 

Services Administration (GSA) to limit rental payments while procuring office space adequate and 

appropriate to meet the FMC’s mission. Contractor support for lease, change and construction 

services will continue through FY 2021, and diminish thereafter, at such time as the FMC occupies 

new (or renewed) leased space.

Pursuant to OMB Memorandum M-19-21, Transition to Electronic Records, Federal agencies must 

transition all business processes and recordkeeping to a fully electronic environment by December 

31, 2022. During FY 2019, the FMC initiated a contract solution to digitize approximately 1.6 

million pages of paper into an indexed and fully searchable records management system, and to 

securely dispose of paper records following scanning. This project will span three years for 

completion. 

Consistent with its past budgets, the FMC’s FY 2021 Budget Request remains fiscally responsible, 

seeking carefully to balance workforce requirements to meet strategic performance goals, while 

continuing to develop and deploy the modernized IT applications expected of the Commission by 

American businesses and taxpayers. The FMC will continue in the future to pursue cost-reduction 

strategies across all budget accounts, including personnel, contracting, travel, and training. 

FY 2021 Budget Request Explanatory Materials

The Commission’s budget allocations are organized by “program, project, or activity (PPA).” The 

FMC has two PPAs: (1) Operational and Administrative, and (2) Office of the Inspector General. 

This FY 2021 Budget Request includes several graphs and tables which explain the funding and FTE 

resources needed to meet the Commission’s mission and statutory mandates: 

Appendices A and B provide detailed funding and FTE requirements at the program level; 

Appendix C categorizes the funding resources needed for FY 2019 through FY 2021 by 

object class;  

Appendix D provides funding by program areas and the relationship of the Commission’s 

obligations to outlays by fiscal year;

Appendix E provides an overview of the FMC’s Strategic Goals, Objectives, and 

Performance Measures covering FY 2019-2022; 

Appendix F provides the Commission’s Workload Summary statistics; 

Appendix G sets forth the IT Resources Statements for the Commission; and 
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Appendix H is the Certification of the Office of the Inspector General’s FY 2021 Budget 

Request.

FMC Strategic Plan and the FY 2021 Budget Request

International ocean transportation continues to evolve rapidly. Container ships revolutionized 

ocean shipping sixty years ago, allowing for intermodalism, where a container’s cargo could be 

transported by ship and over land without being unloaded. Globalized international trade has 

significantly increased over the past several decades. The FMC has adapted to and evolved with 

the industry. From its creation over a hundred years ago, and in its current form since 1961, the 

FMC’s mission remains vital. While the specifics of U.S. maritime policy and legislation have 

changed markedly during the last few decades, the FMC’s goal of protecting American exporters, 

importers, and consumers remains the cornerstone of today’s regulatory efforts. Consequently, 

the Commission focuses on maintaining a competitive international ocean transportation system

for U.S. exporters and importers and protecting the shipping public from financial harm. 

The Commission’s FY 2018-2022 Strategic Plan provides the framework to address current and 

anticipated challenges in the ocean transportation industry. The Strategic Plan calibrates

performance measures to ensure the Commission is meeting its statutory mission and the needs 

of a rapidly-changing ocean shipping industry. The FMC’s Strategic Plan is a living document, 

flexible and adaptable, as the shipping industry and the challenges facing the industry continue to 

evolve, while providing clear and measurable targets that will drive continuous improvement in 

the FMC’s performance. The Commission’s next cycle of strategic planning will be underway in 

FY 2021.

The Commission’s FY 2018-2022 Strategic Plan contains two strategic goals. The first goal –

maintain a competitive and reliable international ocean transportation supply system –

encompasses the critical tasks of reviewing and monitoring carrier and MTO agreements, and 

monitoring foreign shipping practices. The second goal – protect the public from unlawful, unfair, 

and deceptive practices – encompasses a broader mandate to protect the shipping public. The 

following graphic displays the FMC’s resource utilization by strategic goal.

In addition to the FMC’s Strategic Goals, the Commission’s budget request supports the 

President’s vision of reform through accountability, excellent customer service, and fiscal 

stewardship. By contributing to government-wide initiatives that increase efficiencies, improve 

customer service, and support transparency, the FMC will make a positive difference in the lives of 

the American people and the economy. The FMC’s mission supports the President’s commitment 

to economic growth and job creation.

FMC action items to support the President’s Management Agenda, addressed on pages 25-32

identify the FMC’s ongoing commitment to fiscal stewardship by continually looking to improve its 

operational infrastructure, as well as the availability of informational resources for the benefit of 

the public and industry stakeholders.
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FMC Activities and Performance Highlights

This section provides an overview of the programs and work of the FMC that this budget request 

supports. The FMC’s two strategic goals guide the Commission’s planning and performance. By 

measuring performance and meeting its strategic goals, the Commission remains an efficient and 

effective steward of taxpayer funds. 

Additional information on the work of the Commission and its accomplishments can be found in 

the FMC’s Annual Reports and Performance and Accountability Reports (PAR), published at 

www.fmc.gov. The PAR outlines the efficacy of the FMC’s programs and ensures that strategic 

goals are tied to objectives and performance measures that capture actions and results. 

Strategic Goal 1: Maintain a competitive and reliable international ocean transportation 

supply system

Objective: Ensure that actions under filed agreements do not result in unreasonable increases in 

transportation costs and/or unreasonable decreases in transportation services

The Commission works to ensure that America’s international ocean transportation supply system 

provides the public with competitive and reliable movements of goods by monitoring, analyzing, 

and evaluating the competitive impact of the shipping industries’ practices, detecting and 

addressing as necessary, any unreasonable increases in transportation costs and/or unreasonable 

decreases in transportation services. 

The Commission has statutory authorities and regulations to accomplish this goal, including the 

authority to require the filing of written agreements with the Commission that memorialize 

agreements or cooperation among carriers and/or MTOs. The Commission analyzes these 

agreements when they are initially filed and on an ongoing basis thereafter to determine the 
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FY 2021 Budget Justification

competitive impact on the industry. The Commission’s regulations require VOCCs to file their 

service contracts with the Commission, which provides a critical source of data and information on 

existing or emerging trends in carrier pricing and service behavior. The Commission classifies and 

monitors controlled carriers subject to Section 9 of the Shipping Act. Common carriers owned or 

controlled by foreign governments are required to adhere to certain requirements under the 

Shipping Act, and their rates are subject to Commission review. 

VOCC and MTOs file agreements with the Commission, which ensures that the parties’ activities 

comply with U.S. shipping statutes and regulations. In carrying out this responsibility, the FMC 

reviews agreement monitoring reports, including commercially-sensitive data; prepares economic 

analyses; and researches and produces studies and profiles on agreements, carrier organizations, 

MTOs, and market conditions in key U.S. liner trades. The Commission identifies and researches 

economic or commercial issues that may distort competition in, or impair access to, U.S. liner 

markets and remains informed about developments in international trade and the global 

economy. 

The FMC monitors international ocean shipping rates. Historically, tariffs that specify the rate 

charged for a commodity and the destination were filed with the Commission – first in paper 

tariffs, then in a fixed electronic format – to memorialize the applicable rate and combat unjust 

discrimination among shippers. Through a series of deregulatory efforts, and with the growth of 

technology, tariffs are no longer filed with the Commission, but instead are published 

electronically and available to the shipping public through the Internet. The Commission has 

authorized additional flexibilities for the industry to memorialize applicable rates in formats

commonly used in the industry. A regularly utilized format is the service contract, in which a 

shipper makes a commitment to provide a certain volume or portion of cargo over a fixed period, 

and an ocean common carrier commits to a specified rate and a defined service level. These 

confidential contracts are filed with the Commission in the automated SERVCON system.

Commission rules permit NVOCCs to enter into NVOCC service arrangements (NSAs) with their 

shipper customers, a non-tariff alternative similar to service contracts between VOCCs and 

shippers. In addition, the FMC maintains an up-to-date electronic listing of ocean carrier tariff 

locations on its website used by the public to identify ocean carriers’ publicly available rules and 

rates for transportation of cargo. 

FY 2019 Accomplishments

Ocean Carrier Agreements

As the basis for its analytic work, the FMC receives, reviews, and monitors minutes of agreement 

meetings and regular informational reports, confidentially filed by parties, to potentially 

anticompetitive agreements, such as those that discuss freight rates, service contract guidelines, 

cargo or revenue pooling, and/or the rationalization of vessel capacity. In FY 2019, the 

Commission received 170 agreement filings, including amendments to existing agreements, and 

terminations of existing agreements. The FMC reviewed, evaluated, and processed 186 filings
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FY 2021 Budget Justification

during the fiscal year, including those pending at the end of the prior fiscal year. (See Appendix F

for these and other workload statistics.)

Carrier agreement-related activities in FY 2019 included:

• completing a review and economic analysis of the MED/USEC Vessel Sharing Agreement, 

FMC No. 201271, between several members of THE Alliance and OCEAN Alliance to 

coordinate their operations between the western Mediterranean and the U.S. Atlantic

Coast;

• completing a review and economic analysis of the Australia New Zealand South Pacific 

Islands Agreement, FMC No. 201295, to allow carriers to cooperatively operate service 

strings between American Samoa, on the one hand, and Australia and New Zealand, on the 

other hand;

• completing a review and economic analysis of the Digital Container Shipping Association 

Agreement, FMC No. 201288, to allow carriers to discuss and develop uniform standards 

for information technology used in the movement of containers or ancillary services;

• preparing an economic analysis of the potential competitive impacts of joint purchasing 

agreements by global ocean carrier alliances; 

• conducting semi-annual meetings with ocean carrier representatives of the three major 

alliance agreements to monitor the agreement parties’ planned service changes and 

activities, and preparing a memorandum to the Commission on the relevant details 

discussed at each meeting;

• continuing development of a Quality Management System for the monitoring of filed 

agreements involving the ongoing review, analysis and monitoring of operational and 

revenue data and information submitted by parties to ocean carrier and MTO agreements;

timely review and summary of agreement parties’ discussions and activities reported in 

minutes of agreement meetings; preparing quarterly reports on the data and information 

submitted by the parties to assess the competitive impact of the agreement in accordance 

with the standards of the Shipping Act; and statistical tests of changes to prices and 

independence of pricing among carriers; and

• briefing Congressional staff concerning FMC competitive analysis process and monitoring 

of carrier alliances

Marine Terminal Operator Agreements

The Commission oversees 80 marine terminal agreements across the U.S. East, Gulf, and Pacific 

coasts. To facilitate operations, some U.S. marine terminals enter into agreements on rates 

and/or terminal charges, or cooperate in their daily terminal operations and related practices. For 

example, during FY 2019, the Commission reviewed MTO agreements that included:

• a review and economic analysis of the West Coast MTO Agreement (WCMTOA), FMC No. 

201143, responses to the Commission’s Request For Additional Information to replace the 
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FY 2021 Budget Justification

PierPASS extended gates program with a truck appointment system and a flat fee at marine 

terminals at the Ports of Los Angeles and Long Beach;

• a review and economic analysis of the Puerto Nuevo Terminals LLC Agreement, FMC No. 

201292, to authorize a joint venture among terminals in San Juan, Puerto Rico; and 

• a review and economic analysis of an amendment to the South Atlantic Chassis Pool 

Agreement, FMC No. 011980-002, updating its membership and clarifying membership 

language.

Commission staff and legal counsel review of agreement filings and discussions with filing counsel 

surrounding potential issues often result in negotiated revisions to agreements that resolve issues

without formal Commission action. In FY 2019, the review and economic analysis of the GeorgiaSouth Carolina Marine Terminal Operator Cooperative Working Agreement, FMC No. 201293

resulted in the withdrawal of the agreement. Further, the updates made to the Southern States 

Chassis Pool (SSCP) Agreement, FMC No. 201262, were alternatives to potentially implementing a 

single provider in that agreement.

A comprehensive audit of all MTO agreements on file with the Commission was also completed

during fiscal year 2019. The audit eliminated obsolete and inactive agreements from the FMC’s

publicly available online agreements library and now contains all current MTO agreements which 

receive antitrust immunity. Additionally, all MTO agreements may now be filed and amended 

using the online eAgreements system, which eliminated the administrative burden associated with 

paper agreement filings.

As part of the Commission’s MTO agreements audit, entities no longer providing MTO services to 

ocean common carriers were removed from the Commission’s website and are deemed to operate 

outside the FMC’s substantive jurisdiction. In addition, for those MTOs that elect to make their 

MTO schedules publicly available, staff verified the internet location where those schedules are 

published and updated the FMC website accordingly to provide more current information to the 

public. 

Recent Statutory Changes to Agreement Activities and Commission Analysis

On December 4, 2018, the “Frank LoBiondo Coast Guard Authorization Act of 2018” (LoBiondo Act) 

was enacted as Public Law No. 115-282. Among other changes, the LoBiondo Act placed 

restrictions on cooperation between or among ocean carriers and marine terminal operators 

(MTOs), including removing antitrust immunity for certain activities, prohibiting certain joint 

procurement activities, restricting overlapping agreement participation, and modifying the legal 

standard for enjoining agreements to jointly procure certain covered services, including: the 

berthing or bunkering of a vessel; the loading or unloading of cargo to/from a vessel, or to/from a 

point on a wharf or terminal; the positioning, removal, or replacement of buoys related to the 

movement of the vessel; or towing vessel services provided to a vessel.

Section 703 of the LoBiondo Act also requires that the Commission annually provide to Congress: 

(1) an analysis of the competitive impact of ocean carrier alliance joint purchases of the covered 
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FY 2021 Budget Justification

services mentioned above; and (2) a summary of actions, including corrective actions, taken by the 

Commission to promote competition.

The Commission may issue a request for additional information on an agreement, and/or

negotiate a language change with filing parties to alleviate reduction in competition concerns. 

Agreements with potential competition issues may ultimately be withdrawn by filing counsel after 

negotiations with the Commission. Additionally, the LoBiondo Act permits the Commission to seek 

an injunction if it determines that an agreement is likely, “to substantially lessen competition in 

the purchasing of certain covered services.” 46 U.S.C. § 41307(b)(1). This new legal standard may 

be applied to existing agreements as well as any agreements filed in the future.

To determine the extent to which existing agreements contain language that could potentially 

represent a reduction in competition in the purchasing of certain covered services, the 

Commission reviews all filed ocean carrier agreements. If an agreement is viewed as potentially 

authorizing the joint negotiation or purchase of covered services by two or more VOCCs, the 

Commission contacts filing counsel for that agreement. The Commission analyzes agreements 

reached under the authority and contacts filing counsel for agreements to ensure agreements are 

properly filed, and to terminate any agreements no longer in use.

With respect to vessels operated by an ocean common carrier in the United States, the LoBiondo 

amendments to the Shipping Act stipulate that no group of two or more common carriers may 

negotiate for the purchase of certain covered services unless the negotiations and any resulting 

agreements are not in violation of the U.S. antitrust laws (46 U.S.C. § 41105(6)). The U.S. 

Department of Justice (DOJ) and the Federal Trade Commission (FTC) (collectively, the Agencies) 

jointly have issued guidance on the appropriate safeguards that should be implemented when 

market participants engage in joint purchasing.

When structured properly so as to produce efficiency-enhancing or pro-competitive outcomes, 

joint purchasing activities (i.e., agreements among buyers) are lawful under U.S. antitrust laws, but 

arrangements that aim to simply fix the price that each group member will pay for the services 

rendered are not legitimate under the antitrust laws. Additionally, an arrangement could run afoul 

of the antitrust laws if it includes other features that unduly restrict or distort competition. Other 

principles in the guidelines stress that group buying activity should not be used as a vehicle for 

exchanging commercially sensitive information between or among competitors, and that members 

should be free to make purchases outside the joint purchasing arrangement. The FMC monitors 

jointly negotiated terminal and stevedoring services agreements to ensure conformity with the 

DOJ/FTC guidelines for joint purchasing arrangements. 

The LoBiondo Act also mandated that the Comptroller General of the United States conduct a 

study that examines the aftermath of a major ocean carrier bankruptcy and its impact through the 

supply chain. The study is to consider any financial mechanisms that could be used to mitigate the 

impact of any future bankruptcy events on the supply chain. Throughout the year, the 

Commission participated in the U.S. Government Accountability Office (GAO)’s effort, meeting 
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FY 2021 Budget Justification

with GAO representatives, advising on Commission’s statutory mandate, processes, and relevant 

industry information. 

Service Contracts and Tariffs

Under service contracts, shippers make a commitment to provide a certain volume or portion of 

cargo over a fixed period of time, and carriers commit to a specified rate and a defined service 

level. These confidential contracts are filed with the Commission in its automated SERVCON 

system. Commission rules also permit NVOCCs to enter into NVOCC service arrangements (NSAs) 

with their shipper customers, which are similar to service contracts between VOCCs and shippers. 

While NSAs were filed in SERVCON for years, pursuant to the Commission’s rulemaking in 

Docket 17-10, effective August 22, 2018, NVOCCs are no longer required to file original NSAs and 

amendments into SERVCON. The corresponding NSA Essential Terms publication requirements 

were also eliminated in the rulemaking. 

The Commission continues to process and monitor service contracts and amendments. During 

FY 2019, there were 47,214 service contracts and 752,090 contract amendments filed into the 

SERVCON system by 87 VOCCs. The Commission received, processed, and reviewed 1,145 Form 

FMC-1 filings, making the locations of those tariffs available to the public through the FMC 

website. At the end of the fiscal year, the Commission had posted 5,867 active/current tariff 

locations to the agency’s website. (See Appendix F for these and other workload statistics.) 

The rulemaking in Docket 17-10 expanded commercial flexibilities for NVOCC rate arrangements 

(NRAs) and eased the regulatory burden associated with NSAs. The Commission regularly provides

guidance to NVOCCs seeking to expand NRA offerings to their shippers or to introduce NRAs as a 

pricing option to their customers. NVOCCs are advised of the regulatory relief for NSA 

requirements and the Commission conducts outreach efforts to facilitate the industry’s ability to 

take advantage of the NRA and NSA regulatory changes. 

The Commission anticipates that its workload through 2020 and 2021 will remain relatively steady.

The potential decrease in the filing of amendments to service contracts due to the Commission’s 

rulemaking allowing carriers up to 30 days in which to file service contract amendments is being 

monitored.

The workload is also impacted by the continual entry and exit of OTIs from the market, which 

requires ongoing monitoring to ensure that an accurate listing of tariff publication locations on the 

Commission’s website is maintained and also to ensure that published tariffs meet the 

Commission’s regulatory requirements. In addition, there are substantial responsibilities 

associated with monitoring VOCC tariffs for compliance and verification that VOCCs continue to 

operate as common carriers in the U.S. waterborne foreign commerce.

International Affairs 

The Commission’s international affairs program monitors foreign shipping laws and practices that 

may have an adverse effect on the industry and makes recommendations to the Commission for 
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FY 2021 Budget Justification

investigating and addressing such practices. The Commission has the authority to address

restrictive foreign shipping practices under section 19 of the Merchant Marine Act of 1920 and the 

Foreign Shipping Practices Act (FSPA). Section 19 empowers the Commission to make rules and 

regulations governing shipping in the foreign trade to adjust or meet conditions unfavorable to 

shipping. The FSPA directs the Commission to address adverse conditions that affect U.S. carriers 

in the foreign trade and that do not exist for foreign carriers in the United States.

In FY 2019, the Commission informally pursued several matters that involved potentially restrictive 

foreign practices including new legislation, new interpretations of existing legislation, and 

potential regulations concerning surcharges. The Commission continued to monitor and 

participate, both formally and informally, in international agreement negotiations that could affect 

foreign-borne cargo shipments to the United States. In addition, the Commission tracked 

consumer inquiries regarding possible foreign restrictive shipping practices.

The Commission continued its international outreach efforts by attending and coordinating events 

with foreign embassies and counterparts. In FY 2019, the Commission, in conjunction with other 

Federal agencies, participated in bilateral international negotiations and discussions on shipping 

matters. In October 2018, the Commission participated in the Global Maritime Forum Annual 

Summit in Hong Kong. In addition to participating in the Summit, which brought together various 

industry stakeholders and regulators from around the world, Commission representatives met 

with representatives from the Hong Kong Competition Commission and the Transport and Housing 

Bureau. In late October 2018, the Commission attended a Dialogue Meeting between the 

Consultative Shipping Group, a group of 18 countries in Europe, Asia, and North America that 

monitor shipping policies internationally, and the U.S. shipping industry. In November 2018, the 

Commission participated in the U.S.-Republic of Korea Maritime Bilateral Meeting, which took

place at the Maritime Administration and included representatives from the Maritime 

Administration, the U.S. Coast Guard, and the Department of State, to discuss matters pertaining 

to the state of the industry at large. In July 2019, the Commission hosted the 4th Global Regulatory 

Summit, which included representatives of the European Union and the People’s Republic of 

China, to discuss the competitive landscape of the ocean shipping industry as well as recent 

international regulatory developments.

Strategic Goal 2: Protect the public from unlawful, unfair, and deceptive practices

Objective 1: Identify and take action to end unlawful, unfair, and deceptive practices

The Commission effectively uses both its enforcement and compliance programs to identify and 

act to end unlawful, unfair, and deceptive practices. Major investigations during FY 2019

continued to address ongoing practices of certain OTIs operating in the volatile China-U.S. inbound 

trades, as well as VOCCs seeking to operate pursuant to agreements that were not filed with the 

Commission. Enforcement-based initiatives will continue to address VOCCs and NVOCCs that 

engage in unfair service contracting practices, particularly those practices which permit unlicensed 

OTIs to compete unlawfully with carriers and OTIs operating in compliance with U.S. laws. The 
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FY 2021 Budget Justification

FMC will pursue enforcement actions against those who pursue market-distorting, fraudulent, or 

anticompetitive practices harmful to the industry and the public.

FY 2019 Accomplishments

Fact Finding Investigation

In March 2018, the FMC initiated Fact Finding 28 to investigate port demurrage, detention, and 

free time practices. Specifically, reports about uncertainty stemming from differing practices 

between MTOs and VOCCs on the collection of charges from shippers, consignees, drayage 

providers, or carriers led to questions about whether current practices allow for a competitive and 

reliable American freight delivery system. Commissioner Rebecca F. Dye was appointed as the 

Fact Finding Officer. 

Commissioner Dye’s December 2018 Report on findings recommended in part that the 

Commission organize FMC Innovation Teams composed of industry leaders who will meet on a 

limited, short-term basis to refine commercially viable demurrage and detention approaches. In 

the spring of 2019, FMC Innovation Teams met and worked on demurrage and detention 

practices. In May 2019, Commissioner Dye testified at the U.S. Surface Transportation Board 

oversight hearing on demurrage and accessorial charges, speaking about the Commission’s 

innovation team approach to develop commercial solutions to freight delivery system operational 

problems. On August 27, 2019, Commissioner Dye submitted three proposals to address detention 

and demurrage charge issues developed through the Fact Finding: (1) the agency should publish 

an interpretive rule that clarifies how the Commission will assess the reasonableness of detention 

and demurrage practices; (2) the FMC should establish a Shipper Advisory Board; and (3) continue 

FMC support for the Supply Chain Innovation Team working to address chassis availability issues in 

Memphis, TN. In September 2019, the Commission approved the Fact Finding recommendations

and issued a proposed interpretive rule on detention and demurrage. The rulemaking is currently 

ongoing.

Enforcement Actions

The Commission completed a significant informal enforcement action involving four VOCCs in the

American Samoa trades with Australia and New Zealand pursuant to agreements that were neither 

filed nor effective as required by the Shipping Act. The efforts resulted in a compromise 

agreement with the four VOCCs, including a payment of $350,000 and in the filing of an agreement 

with the Commission that complies with the Shipping Act.

During the fiscal year, 24 investigative matters were referred for enforcement action or informal 

compromise; 32 were compromised and settled or administratively closed. The Commission 

completed notable compromise agreements with several major NVOCCs serving the inbound Far 

East-U.S. trades, addressing a variety of service contracting malpractices. (See Appendix F for 

these and other workload statistics.)
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FY 2021 Budget Justification

Compliance Program

In FY 2019, the compliance and audit program continued as a major focus in reviewing the 

operations of licensed OTIs to assist them in complying with statutory and regulatory 

requirements, as well as reviewing entities holding out as VOCCs to determine existence of actual 

vessel operations. During FY 2019, 121 audits were commenced and 113 were completed. (See 

Appendix F for these and other workload statistics.)

Cross-Agency Cooperation

The FMC is active in security initiatives as they relate to U.S. ocean commerce, and coordinates the 

use of available database systems with agencies engaged in homeland security to improve 

identification of entities providing and utilizing maritime transportation services. To facilitate 

these activities, the FMC executed a Memorandum of Understanding (MOU) with the U.S. 

Customs and Border Protection (CBP) to provide a more efficient utilization of existing systems and 

services, such as CBP’s Automated Commercial Environment (ACE). The FMC also has an active 

Inter-Agency Agreement (IAA) with the Census Bureau at the U.S. Department of Commerce for

access to the Census’ Automated Export System (AES) database. A new MOU with the U.S. Coast 

Guard was executed in 2020. These relationships allow the FMC to access confidential U.S. export 

shipment data to accomplish its mission and to protect the Nation’s security interests. The 

Commission also supports the Nation’s economic and security interests by partnering with the 

National Intellectual Property Rights Coordination Center (IPR Center), a U.S. Department of 

Homeland Security-led partnership of 25 federal and international agencies targeting intellectual 

property- and trade-related crimes. This partnership has resulted in coordinated enforcement 

efforts to address international criminal activity. 

Objective 2: Prevent public harm through licensing and financial responsibility requirements

Ocean transportation intermediaries are transportation middlemen for oceanborne cargo moving 

in the U.S.-foreign trades. Before the FMC grants licenses to OTIs, each OTI applicant must 

establish that it has the necessary character and a minimum of three years of experience in the 

U.S., as well as establish its financial responsibility by means of a bond, insurance, or other 

instrument, as mandated by the Shipping Act. 

FY 2019 Accomplishments

Licensing

Over 6,600 OTIs are regulated by the Commission, consisting of approximately 4,900 licensed 

entities and more than 1,700 foreign-based registered NVOCCs. (See Appendix F for these and 

other workload statistics.) During FY 2019, the Commission continued to streamline its OTI 

licensing process, resulting in a reduction in the time to process applications and render a decision, 

supporting the Commission’s goal of completing 75 percent of all OTI license applications within 

60 days. The Commission exceeded its 75 percent target, completing 90 percent of all OTI license 

applications within 60 days for the second year in a row. More than 600 new and amended OTI 

applications were received during the fiscal year, and of those, approximately 75 percent were 
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FY 2021 Budget Justification

accepted and processed for formal determination of approval. The remaining 25 percent were 

returned to the applicant due to lack of completeness or lack of appropriate qualifications. All 

licensed and registered OTIs must maintain proof of financial responsibility with the Commission. 

At present, this amounts to approximately $700 million in surety bonds to protect the shipping 

public.

The FMC’s triennial renewal program for OTIs licensed with the Commission provides a userfriendly, online renewal process for OTIs to review and update their essential information on file 

with the Commission within minutes. In FY 2019, approximately 1,800 OTI licenses were renewed, 

with most reviewed and processed within 48 hours of submission.

Passenger Vessels

The FMC also oversees a program to ensure financial responsibility for passenger vessels that have 

berth or stateroom accommodations for 50 or more passengers and embark passengers at U.S. 

ports and territories. The requirement for Certificates of Performance, which provide financial 

responsibility for the indemnification of passengers for non-performance of transportation, 

prevents unscrupulous or financially vulnerable operators from serving U.S. ports. The Passenger 

Vessel Operator (PVO) program includes 244 vessels and 51 passenger vessel operators, with 

aggregate evidence of financial responsibility coverage of $684 million for non-performance and 

$771 million for casualty. PVO Certificates of Performance for passenger vessels are reissued 

every five years, with 19 reissued during FY 2019. Through its website and the CADRS office, the 

FMC offers information and guidance to the cruising public on passenger rights and obligations 

regarding monies paid to cruise lines that fail to perform voyages.

Modernization of Licensing Processes

The Commission continues to streamline its licensing processes. In May 2019, the Commission 

voted to update its OTI rules to clarify who is eligible to be a Qualified Individual when 

partnerships are involved; require NVOCCs to file a Form FMC-1 at the Commission before being 

issued a license; and to clarify renewal processes and timelines to allow the Commission to evenly 

distribute the number of licenses renewed each month, assuring efficient and timely 

responsiveness to industry.

In FY 2020, the Commission will consider additional regulatory reforms related to PVO monitoring 

procedures. Further, the Commission will continue to leverage its existing data collection of surety 

bond usage to measure how effectively bonds are protecting the industry and the public. 

Objective 3: Enhance public awareness of agency resources, remedies, and regulatory 

requirements through education and outreach

The Commission provides information in many forms to educate regulated entities, stakeholders,

and the public about its resources, remedies, and regulatory requirements. The Commission’s 

website offers brochures, how-to guides, forms and applications, reference libraries, news 

releases, information on investigations, and advice on topics such as FMC regulations, OTI 
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FY 2021 Budget Justification

licensing, household goods moves, and use of alternative dispute resolution (ADR) services to 

assist parties with resolving cruise- and cargo-related disputes. Staff from the various operating 

bureaus and offices participate in presentations and instructional opportunities to educate 

consumers, regulated entities, various shipper and industry trade associations, as well as academic 

institutions regarding regulations, shipping trends, and the effective use of available FMC 

resources to resolve formal proceedings, cruise and cargo-related disputes, service contract 

matters, and other commercial shipping disputes.

FY 2019 Accomplishments

In FY 2019, the Commission completed a redesign of its public-facing website, www.fmc.gov. The

newly designed website significantly improves public access to Commission resources and key 

content. All content was migrated to a mobile responsive platform to meet new government-wide

website requirements and to make materials easier to locate. The Commission’s IT plan will

increase availability of public documents, including the docket library, historical document 

repository, and minutes of Commission actions under the Sunshine Act, on the FMC’s website. In 

addition, the Commission continues to enhance its technological capabilities to caption and live 

stream the agency’s public meetings under the Sunshine Act over the world wide web.

Objective 4: Impartially and timely resolve international shipping disputes through alternative 

dispute resolution and adjudication 

The FMC offers informal dispute resolution, and adjudicates claims of unlawful practices by 

carriers, MTOs, and OTIs. The Commission’s Area Representatives and CADRS educate industry 

members and the public on the Shipping Act and shipping regulations, and help to address 

international ocean transportation disputes. 

Alternative Dispute Resolution

The FMC, through CADRS, offers both facilitation and arbitration services to the industry and 

shipping public to resolve disputes. An online mediation tutorial and tool was created for parties 

to use to prepare for mediation. The Commission supports mediation and collaborative dispute 

resolution when feasible, and requires parties involved in formal Commission docketed 

proceedings to attend mandatory mediation conferences.

FY 2019 Accomplishments

During the fiscal year, the Commission assisted with informal (ombuds) international ocean 

shipping dispute resolution settlements including: 

• Staff assisted parties resolve a dispute in which an importer relied on a carrier’s 

information regarding the last free day at a marine terminal; the carrier agreed to refund 

over $25,000 in demurrage charges.

• In a formal docket before the Commission with multiple respondents, staff provided 

mediation and all parties reached settlements. The matter was discontinued. 
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FY 2021 Budget Justification

• Staff assisted with a number of requests from the offices of U.S. Senators and Members of 

the House of Representatives on behalf of their constituents relating to shipping and 

passenger disputes. 

• Through staff efforts, parties succeeded in locating and releasing one container in a 7-

container import shipment lost in transit from Turkey to Baltimore via Long Beach.

• In a dispute between a licensed OTI and a carrier regarding demurrage on an export 

shipment, staff assisted the parties in reaching a compromise, refunding half of the 

demurrage the OTI had paid.

• In a dispute between foreign OTIs that caused a cargo hold at destination, staff achieved an 

agreement by which the carrier mitigated damages to the shipper and discounted the 

accrued demurrage charges; the shipper and OTIs ultimately agreed to share the payment 

of the reduced charges, and the shipment was released.

• An importer who bought paper products from a manufacturer in China under Cost, 

Insurance and Freight (CIF) terms sought Commission assistance. Upon receipt of the 

arrival notice, the importer was advised that it had to pay additional charges before the 

shipment would be released. Staff contacted the destination agent regarding these 

concerns and was advised shortly thereafter that the disputed charges (over $3,500) had 

been waived, and the cargo was released. 

• In a dispute between an OTI and a carrier, the OTI alleged that the carrier had unfairly 

charged for demurrage on an import shipment. Staff contacted the carrier, who reported 

that it would waive the charges (over $7,400). 

Proceedings before the FMC

The Commission’s Administrative Law Judges (ALJs) operate independently under the 

Administrative Procedure Act, 5 U.S.C. Subchapter II, to resolve cases involving alleged violations 

of the Shipping Act and other laws within the Commission’s jurisdiction. Cases may be initiated 

either by private parties or by the Commission (represented by the Bureau of Enforcement) to 

seek civil penalties for statutory violations. Small claims complaints, valued at up to $50,000, may 

be assigned to a Small Claims Officer for resolution.

FY 2019 Accomplishments

Representative Adjudications and Litigation

In FY 2019, the Commission heard international shipping disputes filed by complainants and 

enforced the Shipping Act and its regulations through adjudication before the Commission. In 

FY 2019, the Commission, including its ALJs and legal staff, issued numerous legal opinions, 

recommendations, case summaries, decisions, and final orders.
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FY 2021 Budget Justification

Commission Decisions 

The following cases are representative of those considered by the Commission in FY 2019:

• In re: Vehicle Carrier Services [Docket Nos. 16-01, 16-07, 16-10, 16-11]

Complainants in these four consolidated cases alleged that Respondents violated multiple 

provisions of the Shipping Act for nearly two decades by secretly agreeing and conspiring 

to fix, raise, and stabilize prices and allocate customers and market share in the roll on/roll 

off (RoRo) shipping trade. Complainants shipped or purchased new assembled cars and 

trucks transported on Respondents’ RoRo ships and alleged that Respondents’ illegallyinflated charges were passed along to them, either directly as freight charges or indirectly 

in the purchase prices of vehicles. Complainants sued on their own behalf and on behalf of 

similarly-situated members of a class. The ALJ dismissed Complainants’ claims as timebarred, and for lack of standing, and also provisionally ruled that the Commission does not 

have authority to adjudicate class actions. On October 21, 2019, the Commission affirmed

the Initial Decision’s dismissal of the Docket No. 16-07, Docket No. 16-10, and Docket No. 

16-11 complaints with prejudice for lack of standing under the direct purchaser rule; 

affirmed the Initial Decision’s dismissal of the complaint as to reparations in Docket No. 16-

01 as untimely; reversed the Initial Decision insofar as it allowed the Docket No. 16-01 

complainants to pursue cease-and-desist relief, and dismissed those complaints in their 

entirety with prejudice.

• Port Elizabeth Terminal & Warehouse Corp. v. Port Authority of New York & New Jersey 

[Docket No. 17-07]

Complainant alleged that Respondent violated numerous sections of the Shipping Act in 

connection with certain leasing decisions and negotiations at Port Newark. Specifically, 

Complainant alleged that Respondent decided to lease property occupied by Complainant 

to another tenant, while at the same time declining to lease additional property to 

Complainant. Complainant claimed that in so doing, Respondent violated 46 U.S.C. §§ 

41102(c), 41106(2), and 41106(3). On January 12, 2018, Respondent moved to partially 

dismiss the complaint. The ALJ granted the motion and dismissed two of Complainants’

claims on the merits. The ALJ also found that Complainant was barred from seeking 

reparations for the surviving claims. Subsequently, the ALJ dismissed the surviving claims 

on the merits. On November 20, 2019, the Port Authority filed an unopposed motion 

requesting dismissal of this case with prejudice pursuant to a settlement agreement 

between the parties. On December 19, 2019, the Commission granted the Port Authority’s 

motion and discontinued the proceeding.
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FY 2021 Budget Justification

Litigation before Courts

The following is representative of the Commission’s cases in federal courts.

• Santa Fe Discount Cruise Parking v. The Board of Trustees of the Galveston Wharves and 

the Galveston Port Facilities Corporation [FMC Docket No. 14-06; D.C. Cir. Case No. 17-

1089]

Complainants are businesses that operate parking lots for cruise passengers departing from 

the Port of Galveston. Complainants filed a complaint with the Commission alleging, 

among other things, that Respondents’ tariff imposing charges on Complainants’ shuttles 

violated three sections of the Shipping Act. The ALJ denied Complainants’ claims and 

dismissed them with prejudice on December 4, 2015. The Commission affirmed the ALJ’s 

decision, and two of the Complainants subsequently petitioned the D.C. Circuit for review. 

In May 2018, the D.C. Circuit vacated and remanded the Commission decision, and the 

Commission in turn remanded this case to the ALJ. The ALJ dismissed the claims on remand

on November 16, 2018, and Complainants’ exceptions to that decision are before the 

Commission. 

Supporting the President’s Management Agenda

The FMC is committed to provide excellent service and to effectively steward taxpayer dollars by 

making smart investments and using management strategies to deliver effective and efficient 

government that rapidly reacts to the changing needs of its citizens and supports economic 

growth. The President’s Management Agenda (PMA) sets forth a long-term vision for modernizing 

the Federal Government in key areas to improve mission outcomes, provide excellent service, and 

effectively steward taxpayer dollars on behalf of the American People. Although the FMC is a 

small agency, it supports the Administration’s Cross-Agency Priority (CAP) Goals and invests in the 

PMA’s key drivers of transformation: IT modernization; Data, Accountability and Transparency; 

and People - Workforce for the 21st Century. 

IT Modernization

The FMC is committed to continuous enhancement of its IT systems, making it faster and easier for 

individuals and businesses to find information and complete required filings with the FMC. IT 

investments are critical to transforming government. Modern IT “will function as the backbone of 

how Government serves the public in ways that meet their expectations and keep sensitive data 

and systems secure.” PMA at 7. The Commission has identified several overarching challenges 

and is implementing plans to: consolidate and upgrade legacy applications and infrastructure with 

newer technologies; implement IT automation to streamline workflow processes and improve 

efficiency; and integrate security standards and frameworks to protect from cybersecurity risks, 

agency-owned/issued assets and commercially sensitive data collected from the shipping public. 

FY 2021 IT-related spending, excluding personnel costs, is $1,811,895. This amount includes 

$1,223,040 in funding for ongoing major IT application development and $588,855 in IT network 
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FY 2021 Budget Justification

device and security upgrades; maintenance of IT infrastructure, A/V equipment, applications and 

IT software; cloud computing services and hosting; and telecommunications. 

One of the Commission’s highest IT investment priorities remains the ongoing development and 

upgrade of its internal and public-facing web applications. The FMC’s IT Strategic Plan outlines the 

core objectives and timelines for: 

• managing and delivering quality IT systems and services critical for the FMC to fulfill its 

mission and support related administrative, business, and operational functions; 

• maintaining IT policies, procedures, and practices that support efficient and effective FMC 

business, administrative, and mission processes; 

• expanding on current progress to strengthen cybersecurity of the FMC’s networks and 

systems; and

• ensuring reliability and accuracy of federal information technology as required by statutes, 

government-wide requirements, directives, or guidance.

When implemented, these investments will fulfill the PMA goal of IT modernization to enhance

mission effectiveness by improving the quality and efficiency of critical citizen-facing services. The 

planned investments will automate, streamline, and improve the Commission’s business 

processes; expand research and analysis capabilities; provide better transparency and public 

access to information; and eliminate paper-based systems in favor of web applications. The

shipping public uses these web applications to file license applications, carrier and MTO 

agreements, and commercially-sensitive operational data which is analyzed and reported on by 

the Commission’s expert economist staff in their competition analyses.

The Commission continues to automate workflow documents for both Commission staff and the 

public to reduce dependency on paper filings. Further, the Commission will increase transparency 

and availability of documents through its website, including Sunshine Act meeting materials. Work 

has begun on development of an online docket filing tool. Also important are FMC initiatives to 

improve visibility of critical information, archiving, and streamlining of content to improve 

information delivery and accuracy.

The Commission uses IT contractor support to modernize its IT systems and web applications.

Given the Commission’s overall FTE level and relatively small number of IT staff, the Commission 

relies on IT contractor skills and specialized knowledge to supplement the Commission’s IT staff,

rather than incur the costs to maintain all necessary resources and specialized skills in-house. This 

approach has proven effective in meeting its IT automation needs while containing FTE levels. 

Contractor-provided software engineer services are used to assist the Commission’s IT staff 

modernize its infrastructure, server platforms, and develop mission-critical web applications; while 

providing on-site, hands-on training and knowledge transfer. This lays the groundwork for shifting 

the responsibility of maintenance and troubleshooting of custom and in-house built applications 

from contractors to FMC IT staff. By leveraging outside contractor support for the most specialized 
Federal Maritime Commission 27

FY 2021 Budget Justification

development tasks, this approach has decreased the Commission’s overall IT staffing needs for all 

previously identified and upcoming application development efforts. As the Commission’s needs 

mature, contractor services and future funding requirements can be reduced accordingly. 

Successful workflow automation allows staff to handle ever-increasing case, filing, and application 

volumes, or to permit staff to be allocated to other critical program areas. Subject to funding 

availability, the FMC will continue with its systematic application modernization in FY 2021 and 

beyond, updating and deploying the applications needed by program staff in the various operating 

bureaus, and used by the regulated shipping community to comply with FMC-administered 

shipping statues and regulations.

Prior years’ IT expenditures have set the stage for implementing the next phase of the FMC’s 

application modernization plan, and for building or updating the IT systems and web applications. 

Under the previous Information Resources Management Strategic Plan, the Commission 

engineered and implemented critical hardware and software upgrades to its network 

infrastructure to support a more resilient and secure cloud-based environment, and also pursued 

proof-of-concept testing to validate applications identified for development in the Microsoft Azure 

environment. 

The first application upgraded and migrated to the cloud platform was the Commission’s existing

Service Contract Filing System (SERVCON) application. SERVCON is a statutorily required, webfacing filing system for ocean common carrier service contracts and NVOCC service arrangements. 

The FMC uses SERVCON to review service contracts and NVOCC arrangements to ensure that these 

commercial pricing agreements and the parties to them, comport with the requirements of the 

Shipping Act. 

The SERVCON upgrade was successfully launched in July 2018 without service disruptions or 

operational problems, and resulted in a more robust and resilient system. This application 

upgrade and migration to the more secure cloud-based environment was executed with FMC IT 

staff taking the lead on the programming enhancements, supplemented with specialized IT 

contractor support. The FY 2021 budget request provides for planned initiatives and projects, 

including IT contractor support needed to continue the work to modernize and integrate the 

Commission’s OTI licensing applications. Upgrades and development of new applications are 

shown in Appendix G, Table 2. 

In FY 2019 and continuing in FY 2020, the Commission’s application modernization program 

focused on the back-end development for one keystone application: the new OTI License

Application, Registration, and Renewal Processing System (formally known as Form FMC-18). The 

application is used by the public to apply for ocean freight forwarder and NVOCC licenses. 

Currently, the “back-office” process is not automated and requires manual entry, review, and 

manipulation of the data received from applicants. This project will combine five disparate agency 

applications currently used to process license applications for OTIs, track the issuance and validity 

of required surety bonds, collect and publish the location of carrier tariffs, and process renewals of 
Federal Maritime Commission 28

FY 2021 Budget Justification

OTI licenses and registrations. When complete, modernization of this FMC application will

automate the entire process, cut redundancy, improve efficiency, decrease processing time, and 

support the PMA’s objectives by better serving the public.

This initiative will also develop and implement enterprise data storage technology to be shared 

among four offices under two operational Bureaus. The FMC’s Bureau of Certification and 

Licensing has projected that business process collaboration will be significantly improved, 

duplication of data entry eliminated, and overall OTI application processing time will decrease. 

Against the backdrop of continuing year-on-year increases in the number of licensees and 

registrants (6,600 and growing); over 1,750 yearly OTI license and registration renewals under a 

new user-friendly processing system; and thousands of bonding transactions annually; IT 

automation offers the most potent, effective, and efficient alternative to increase the FMC’s 

licensing workforce. New technology and programming will enable instant access to documents, 

data, and real-time status of applications, licenses and registrations, improving the quality of staff 

processing, and decreasing the time required for management oversight.

Having successfully modernized the SERVCON system to a more secure and reliable platform, using 

IT contractor support, the FMC is pursuing the next phase in the modernization of our systems -

development and implementation of an advanced licensing system. 

During FY 2020 and FY 2021, the FMC also anticipates commencing programming to replace the 

Commission’s existing (primarily manually maintained) electronic reading room and document 

repository. This initiative will replace that portion of the FMC’s current online electronic reading 

room containing the activity logs of the public filings and documents issued by the Commission or 

FMC ALJs in FMC formal and informal adjudicatory proceedings, rulemakings, petitions, fact 

findings, and investigations, with a new web-based information system. The new electronic 

reading room and dockets filing system will provide public filers the ability to submit documents 

directly into the system, and automatic posting to the appropriate docket/proceeding log for 

immediate access through the FMC’s public website. The new system will streamline internal 

processes by eliminating current manual steps for website posting and placement of filings in the 

current document repository, as well as streamline the internal circulation and review process for 

filed documents. These improvements will directly support the Commission’s aggressive 

performance metric requiring timely publication, as set forth in its agency-wide Strategic Plan. 

The Commission is fulfilling the PMA’s goal to reduce cybersecurity risks to its mission by 

leveraging current commercial capabilities and implementing cutting edge cybersecurity 

capabilities. To ensure cybersecurity readiness and facilitate document management and online 

collaboration, the FMC has increasingly moved its mission-critical applications and data to a cloudbased computing infrastructure. This budget request supports: (1) cloud-based services that 

deliver FMC continuity of operations, disaster recovery, and secure backup routines; (2) agencywide Voice Over Internet Protocol (VOIP) communications services in-office, on the Web, and 

through hand-held devices; and (3) multiple enterprise licensed agreements essential to 
Federal Maritime Commission 29

FY 2021 Budget Justification

supporting remote and shared access by all employees for their day-to-day execution of the 

Commission’s mission. 

Compliance with the Department of Homeland Security (DHS), National Institute of Standards and 

Technology (NIST), and the United States Computer Emergency Readiness Team (US-CERT) 

monitoring requirements for network security demand near-continuous data protection. The 

agency invests in internal security tools to effectively monitor network operations, including 

integrity of files, password sufficiency, probing for open ports and other externally visible points of 

attack. Planned software investments will meet a number of government-wide requirements,

including mandatory cybersecurity and Federal Information Security Modernization Act (FISMA) 

requirements; government-wide MTIPS (Managed Trusted Internet Protocol Service) 

requirements; OMB Memorandum M-17-25, Reporting Guidance for Executive Order on 

Strengthening the Cybersecurity of Federal Networks and E.O. 13800; as well as OMB 

Memorandum M-17-12, Preparing for and Responding to a Breach of Personally Identifiable 

Information. 

Data Accountability and Transparency

The FMC supports the PMA’s plan to develop a Federal Data Strategy to leverage data as a 

strategic asset to grow the economy, increase the effectiveness of the Federal Government, 

facilitate oversight, and promote transparency. In addition to the IT modernizations described 

above, which will, in part, enhance public-facing FMC regulatory data, such as the Regulated 

Parties Index, the Commission’s efforts to leverage data include agency performance and 

accountability. The Commission’s published FY 2019 Performance and Accountability Report 

reflects an unmodified (clean) financial audit. Further, the Commission participates in 

governmentwide tracking of its spending. The Digital Accountability and Transparency Act of 2014 

(DATA Act) was enacted May 9, 2014, to expand the reporting requirements on federal spending

and provide free public access to reliable information on federal spending. Reliable data allows 

the public to trust in the information that the government provides, and allows federal and 

elected officials to use that data to make informed decisions about government programs and 

projects. It also provides assurance to the public and those with oversight functions that agencies 

and programs are accountable for the federal funds spent.

The Commission contracts with the Bureau of the Fiscal Service (BFS) to meet its federal financial 

reporting requirements. Through this cross-service provider, the FMC obtains a full range of 

financial management and accounting services, including DATA Act reporting services. 

In June 2019, the FMC’s IG commenced the DATA Act Audit, 2019. This audit, completed in

November 2019, assessed the Commission’s (1) completeness, timeliness, and accuracy of fiscal 

year 2019, first quarter financial and award data submitted for publication on USAspending.gov; 

and (2) implementation and use of the Government-wide financial data standards established by 

OMB and Treasury. Management completed the agreed-upon work to remediate the OIG’s 

recommendations prior to the end of the first quarter of FY 2020. The OIG also followed-up on the 
Federal Maritime Commission 30

FY 2021 Budget Justification

FMC’s implementation of the 2017 DATA Act audit recommendation. The IG determined that, with 

few exceptions, the FMC’s audited transactions were complete, accurate, timely, and of good 

quality.

People – Workforce for the 21st Century

The PMA lays out strategies to realign human capital to serve America’s priorities. Actively 

managing the workforce, and improving employee performance management and engagement, is 

a key part of the PMA’s effort to improve the Federal workforce. The FMC strongly supports this 

type of realignment to ensure employees are productive and well-utilized. 

The FMC has a small, dedicated workforce to carry out its mission. The FY 2021 budget request 

allocates 70.6 percent to salaries and benefits for these employees. Additionally, 1.38 percent of 

the budget request has been allocated to reward performance. The FMC has internally reviewed 

its organizational structure to increase productivity. In FY 2019, the FMC continued to implement 

initiatives outlined in its 5-year Workforce Reform Plan in response to OMB Memorandum M-17-

22, Reforming the Federal Government and Reducing the Federal Workforce, including removing 

management layers and reallocating existing personnel to critical program needs. As part of its 5-

year Plan, future workforce needs will be tied directly to improving results for the American 

taxpayer. 

The Commission also supports the PMA’s efforts to acquire top talent and bring in the right skills 

for the job – to ensure that the FMC attracts and retains qualified candidates with the necessary 

skillsets, the FMC has taken concrete steps to maintain and improve employee satisfaction in the 

workplace. The FMC provides relevant training for job skills, leadership development, and 

employee professional growth. By creating a dynamic, positive workplace, talented applicants will 

be drawn to, and stay in, Federal service. 

The FMC has institutionalized improving workplace satisfaction and employee morale. The FMC is 

committed to positively improving workplace satisfaction particularly in the areas of leadership, 

transparency, matching skills to its mission, and work/life balance. Agency-wide employee teams 

have been used to address employee suggestions, training needs assessments, peer recognition, 

updates to Commission policies, and other workplace initiatives. Senior leadership continues to 

encourage involvement and provide opportunities for participation in agency-sponsored 

programs. These efforts have resulted in the FMC being recognized as one of the Top 10 Best 

Places to Work (Small Agency) by the Partnership for Public Service.

A cornerstone to the Commission’s efforts to improve the workplace is its Workforce 

Improvement Plan (WIP). Over the past five years, the WIP has identified and communicated a 

number of projects or initiatives through the Management Team (consisting of its Senior 

Executives and senior managers), working with the approval and guidance of the Chairman, to 

improve and support a positive and effective working environment with engaged employees. The 
Federal Maritime Commission 31

FY 2021 Budget Justification

WIP is updated annually to incorporate input from the entire agency, as well as marking the 

addition, revision, and completion of specific projects and initiatives.

The agency’s success in employee engagement is measured in part through the results of the 

anonymously conducted FEVS. Using the FEVS data, the Partnership for Public Service calculates

the annual rankings of the best places to work. The FMC remains a top 10 Best Places to Work for 

Small Agencies for 2019.

Based on its 2019 FEVS results, the Commission continues to show a positive trend in key 

indicators, including: 

• Increasing the FMC’s overall Employee Engagement 

Index (EEI) score by 3 percent over last year’s score 

to 76 percent, inclusive of an impressive 4 

percentage point increase in both the Leaders Lead 

and Supervisors categories;

• Increasing the number of items identified as Strengths from 56 to 62 (Items rated at 65 

percent positive or higher are considered strengths.); and 

• Continuing to have no items identified as Challenges (Items rated 35 percent or more 

negative are considered a challenge.).

Moving forward, the FMC will continue to build on these successes, guided by its WIP, to increase 

employee engagement and make the FMC a consistent Top 10 best small agency to work for in the 

Federal government.

Continuous Learning

The PMA emphasizes the importance of continuous learning in strategic workforce management. 

The FMC offers job and professional training opportunities to all employees to reduce skills-gaps

and support effective practices. In FY 2019, the Commission continued to provide training 

opportunities under the Leadership Development Program launched in 2018, offering leadership 

development to all grade level employees via a competitive process.

The FMC also provides online training to all employees through a commercial vendor. Online 

training is a cost-effective way to ensure that appropriate training is available year-round. The 

online offerings include classes in IT technical skills, project management, communication, 

leadership, management, and writing. 

Required training is provided on an as needed or periodic basis, covering topics such as EEO, IT 

security, risk management, performance management, records management, whistleblower 

protections, and telework. The FMC also announces opportunities for employees to participate in 

ad hoc classes offered by the Small Agency Council and to liaise with counterparts at other small 

agencies to share best practices. 

The FMC is currently ranked 

in the Top 10 Best Places to 

Work for Small Agencies.
Federal Maritime Commission 32

FY 2021 Budget Justification

Sharing Quality Services 

The PMA directs agencies to reduce costs and increase efficiency by sharing purchases, modern 

technology and experts across agencies. The FMC uses shared services to efficiently accomplish 

some of its fiscal and personnel-related administrative functions. Each service is regularly 

reviewed to ensure that the best value is provided to the public. 

The FMC maintains an effective job-sharing arrangement for the EEO Director position with a

similarly-sized agency, the U.S. Surface Transportation Board. This job-sharing arrangement 

ensures that the FMC’s limited resources are used efficiently while maintaining solid support of 

our EEO principles to ensure that the FMC fully meets its responsibilities in affirmative 

employment and the appropriate handling of EEO complaints. 

In addition to the shared EEO position, the Commission currently uses shared service providers for 

several financial and personnel-related functions as follows:

National Finance Center 

The National Finance Center (NFC) currently provides the Commission with several human 

resources services, including payroll and web-based time and attendance (T&A) transaction 

processing, managing employee debt, and employee separation payments. 

Office of Personnel Management

The Commission maintains an MOU with the OPM for hiring functions. The Commission’s Office of 

Human Resources provides the agency with full service hiring functions, including the recruitment, 

assessment, referral, and onboarding of candidates. Under the MOU, OPM assists with necessary 

services in cases where demand may exceed internal staffing capabilities. 

Bureau of the Fiscal Service

Due to its size, it is cost prohibitive for the FMC to internally maintain an integrated federal 

financial reporting system. The Commission contracts with the Bureau of the Fiscal Service (BFS) to 

meet its federal financial reporting requirements.

The FMC utilizes the Oracle platform services provided by the Administrative Resource Center 

(ARC) of BFS. Through this cross-service provider, the FMC obtains a full range of financial 

management and accounting services, including a financial management system platform, vendor 

and employee record maintenance and reporting services, budget processing, budget reporting, 

payroll accounting services, accounts payable and accounts receivable services, and procurement 

system platform services, including purchase and fleet card services. Additionally, the FMC 

contracts for ARC Travel services, including e-Gov travel service, travel card administration, travel 

payments, and relocation services, as well as DATA Act reporting services.
Federal Maritime Commission 33

FY 2021 Budget Justification

Additional Initiatives and Efforts to Increase Efficiencies, 

Create Awareness, and Benefit the Taxpayer

Efficient Government — Reducing Regulatory Burden and Improving Necessary 

Information Collection 

As economic conditions alter the state of our trades, FMC regulations are revised to respond to 

new circumstances. Toward the goal of eliminating or reforming outdated regulations, the 

Commission designated its Managing Director as the Regulatory Reform Officer, who now leads an 

internal team to identify regulations that have become less relevant or are unduly burdensome. 

The Commission’s Plan for Regulatory Reform of Existing FMC Rules (Regulatory Reform Plan), 

outlines the FMC’s plan to identify regulations that may be suitable for reform or elimination, and 

establishing a schedule to consider further review and action on each identified regulation. The 

Regulatory Reform Plan’s list of administrative and regulatory provisions, when amended or 

eliminated, will make it easier and less costly for companies to do business, while permitting the 

FMC to maintain competition and integrity for America’s ocean supply chain. In recent years, the 

Commission has expanded flexibilities for OTIs through regulatory reform, issued an interpretive 

rule addressing unjust and unreasonable practices and regulations under the Shipping Act, and is 

currently working on updating OTI rules to clarify licensing requirement and processes. 

Rulemakings 

The following represents notable Commission rulemakings in FY 2019: 

• Unreasonable Practices Under the Shipping Act of 1984 [Docket No. 18-06]

The Commission issued an interpretive rule on December 17, 2018, clarifying the 

Commission’s interpretation of the scope of 46 U.S.C. § 41102(c) (section 10(d)(1) of the 

Shipping Act of 1984). Section 41102(c) prohibits common carriers, terminal operators, and 

ocean transportation intermediaries from failing to establish, observe, and enforce just and 

reasonable regulations and practices relating to or connected with receiving, handling, 

storing, or delivering property. The interpretive rule clarifies that, in order to violate this 

provision, a regulated entity must be engaged in a practice or regulation on a normal, 

customary, and continuous basis and such practice or regulation must be unjust or 

unreasonable. 

• Licensing, Registration and Financial Responsibility Requirements for Ocean 

Transportation Intermediaries [Docket No. 18-11] 

The Commission proposed minor changes to the requirements for ocean transportation 

intermediaries in a Notice of Proposed Rulemaking published on December 17, 2018. The 

proposed changes involve minor adjustments to the application and renewal procedures 

for licenses and registrations, such as changes to the form, type, and timing of information 
Federal Maritime Commission 34

FY 2021 Budget Justification

required to be submitted to the Commission. On November 15, 2019, the Commission 

published in the Federal Register a final rule amending its regulations, effective December 

16, 2019.

• Petition of the World Shipping Council for an Exemption and Rulemaking [P3-18]

The World Shipping Council, a trade association of ocean common carriers, petitioned the 

Commission for an exemption from the service contract filing and essential terms 

publication requirements set forth at 46 U.S.C. § 40502(b) and (d), and further petitioned 

for the initiation of a rulemaking proceeding to amend the Commission’s service contract 

regulations in 46 C.F.R. Part 530 consistent with the requested exemption. On 

December 20, 2019, the Commission granted the petitioner’s request that VOCCs be 

exempted from the requirement to file a concise statement of essential terms when 

confidentially filing service contracts with the Commission, and denied the petitioner’s 

request that VOCCs be exempted from the requirement to file service contracts. The 

Commission ordered that the staff prepare and initiate a rulemaking proceeding to 

implement the exemptions to file a concise statement of essential terms when 

confidentially filing service contracts with the Commission. The rulemaking is ongoing. 

Improving Customer Experience with Federal Services

The FMC provides direct services to the public. Commissioners regularly interact with the industry 

and shippers. CADRS receives time-sensitive requests for assistance from shippers, carriers, and 

cruise line passengers. The Commission’s Area Representatives are located near key maritime 

ports (Los Angeles/Long Beach, Seattle, New York, Houston, New Orleans, and Miami) and operate 

as the front line for questions and issues facing the industry. The Office of the Secretary updates 

the FMC’s website and social media frequently, providing timely and important information to the 

public. The FMC responds to requests for information from the media and the public. Other 

offices interact with the industry and the public by providing information and assistance with 

tariffs, licensing, and competition-related issues. The FMC works diligently to provide the public 

with exceptional customer service. 

The public can speak with FMC staff on the telephone, but can also receive a plethora of 

information that the FMC makes available online 24/7. The FMC has made numerous investments 

to enhance filing documents and accessing information to date. The continuation of the FMC’s IT 

modernization efforts will allow carriers and OTIs to even more easily file documents and 

information with the FMC in the future.
Federal Maritime Commission 35

FY 2021 Budget Justification

Rental Payments for Space

The FMC strives to be a good steward of government resources. In looking to better align the size 

of federal real property assets with actual program needs, the FMC continues to evaluate its space 

needs going forward. The FMC is headquartered in Washington, D.C. It also maintains a small 

field presence in six port locations. All FMC office space is leased through the GSA. The FMC’s 

annual FY 2021 rent estimate for physical space is $3,285,630 and an additional $175,000 for 

estimated escalation of taxes for a total of $3,460,630. The FMC’s current headquarters lease, 

which comprises the greatest portion of the FMC’s rental cost, expires on October 31, 2022.

The FMC’s federal office space leasing process is currently underway for the FMC’s headquarters. 

The Commission is reviewing its current use and future space needs to ensure the government is 

acquiring the correct space to meet agency needs. The FMC will work with the GSA to limit rental 

payments while balancing the space necessary to meet the FMC’s mission.

User Fees

The FMC charges user fees for services as required by Section 8 of OMB Circular A-25. The FMC 

overhauled its fee system effective on October 1, 2016, accurately aligning fees with the costs 

associated with each provided service. 

The Commission completed its biennial review of user fees under Docket No. 18-08, Update of 

Existing User Fees, with a very limited set of new user fees which became effective January 2019. 

Agencies are required by the Chief Financial Officers Act of 1990 to conduct biennial reviews of 

fees and other charges that they impose, and to revise these fees and charges to cover program 

and administrative costs incurred as necessary. User fee rates will next be examined in FY 2020.
Federal Maritime Commission 36

FY 2021 Budget Justification

Appendices

Appendix A: Resource Allocation by Program

Appendix B: FTEs and Positions Allocation by Program

Appendix C: Obligations by Object Class

Appendix D: Relationship of Obligations to Outlays 

Appendix E: Performance Measures by Strategic Goals

Appendix F: Workload Summary

Appendix G: IT Resources Statements

Appendix H: OIG Certification
Federal Maritime Commission 37

FY 2021 Budget Justification

Appendix A: Resource Allocation by Program

The chart below details the Commission’s current two programs, Operational and Administrative

(O&A), and Office of the Inspector General (OIG).

O&A $26,682,899 $27,512,841 $10,164,540 $18,181,716 $28,346,256 $1,663,356 $833,415

OIG $463,058 $487,159 $55,374 $498,370 $553,744 $90,686 $66,585

Totals $27,145,957 $28,000,000 $10,219,914 $18,680,086 $28,900,000 $1,754,043 $900,000

Difference 

From 

FY 2020 

Resource Allocation by Program

FY 2021

Program

FY 2019 

Actual

FY 2020 

Enacted

FY 2021 Request

FY 2021 

Request

Difference 

From 

FY 2019 

Strategic 

Goal # 1

Strategic 

Goal # 2
Federal Maritime Commission 38

FY 2021 Budget Justification

Appendix B: FTEs and Positions Allocation by Program

Program/Office FTE FTP FTE FTP FTE FTP FTE FTP

O&A 110 114 126 127 114 127 (12) 0

OIG 2 2 2 2 2 2 0 0

Agency Total 112 116 128 129 116 129 (12) 0

O&A: Operational and Administrative

OIG: Office of the Inspector General

Actual Enacted Estimate From FY 2020

Full Time Equivalents (FTE) and Positions (FTP) by Program

FY 2019 - FY 2021

FY 2019 FY 2020 FY 2021 Difference
Federal Maritime Commission 39

FY 2021 Budget Justification

Appendix C: Obligations by Object Class

FY 2019 FY 2020 FY 2021

Category Actual Enacted Request

 (11.1) Full-time Permanent Employees $13,847,697 $15,563,000 $15,273,482 ($289,518)

 (11.3) Part-time and Temporary Employees $49,844 $0 $0 $0

 (11.7) Performance Awards $271,903 $265,000 $400,000 $135,000

 (12.1) Personnel Benefits $4,249,824 $4,810,000 $4,736,655 ($73,345)

Total Personnel Compensation & Benefits $18,419,268 $20,638,000 $20,410,137 ($227,863)

 (21.0) Travel and Transportation of Personnel $163,511 $274,000 $198,300 ($75,700)

 (22.0) Transportation of Things $14,834 $17,000 $15,500 ($1,500)

 (23.1) Rental Payments to GSA $3,403,607 $3,419,000 $3,460,630 $41,630

 (23.5) Telephones $144,935 $211,000 $248,836 $37,836

 (23.8) Postage $4,546 $2,000 $3,500 $1,500

 (24.0) Printing $85,000 $63,000 $83,000 $20,000

 (25.1) Consulting $1,534,823 $897,825 $1,297,578 $399,753

 (25.2) Goods & Services from Commercial Accounts $1,384,762 $575,720 $1,075,000 $499,280

 (25.3) Goods & Services from Government Accounts $1,444,468 $1,547,455 $1,711,265 $163,810

 (25.7) Equipment Maintenance $46,092 $20,000 $26,500 $6,500

 (26.0) Supplies and Materials $89,473 $125,000 $65,000 ($60,000)

 (31.0) Hardware and Software $410,637 $210,000 $304,754 $94,754

Total Travel and Administrative Expenses $8,726,689 $7,362,000 $8,489,863 $1,127,863

Total Budget Authority $27,145,957 $28,000,000 $28,900,000 $900,000

The Obligations by Object Class chart identifies the Commission's actual funding expenses of FY 2019, the enacted FY 

2020 expense allocation and the FY 2021 request. Costs are reported by object codes.

Obligations by Object Class

FY 2019 - FY 2021

Difference 

From FY 2020

Personnel Compensation & Benefits

Travel and Administrative Expenses
Federal Maritime Commission 40

FY 2021 Budget Justification

Appendix D: Relationship of Obligations to Outlays

Operational and Administrative

Office of the Inspector General

Unobligated

Budget Authority

Obligations

Outlays*

Outlay Rate**

Obligation Rate

Total outlays for FY 2014 disbursed in FY 2019

Total outlays for FY 2015 disbursed in FY 2019

Total outlays for FY 2016 disbursed in FY 2019

Total outlays for FY 2017 disbursed in FY 2019

Total outlays for FY 2018 disbursed in FY 2019

Total outlays for FY 2019

* Represents outlays for FY 2019 as of 09/30/19.

Relationship of Obligations to Outlays

FY 2019 - FY 2021

$26,682,899 $27,512,841 $28,346,256

$463,058 $487,159 $553,744

$344,043 $0 $0

83.7% 83.7% 83.7%

$27,490,000 $28,000,000 $28,900,000

$27,145,957 $28,000,000 $28,900,000

The relationship of obligations to outlays identifies the actual outlay 

percentage for FY 2019. The chart also depicts the estimated outlay expenses 

for FY 2020 and FY 2021.

FY 2019 

Actual

FY 2020 

Estimate

FY 2021 

Request

Gross Outlays for FY 2019

 Outlays

** Represents the percentage of FY 2019 obligations that were disbursed 

during FY 2019.

$2,790

$15,723

$115,413

$3,392,989

$22,717,860

$22,717,860 $23,432,590 $24,185,780

$26,244,775

$0

98.7% 100.0% 100.0%
Federal Maritime Commission 41

FY 2021 Budget Justification

Appendix E: Performance Measures by Strategic Goals

Summary of Strategic Goals, Objectives, and Performance Measures

STRATEGIC GOAL 1: Maintain a competitive and reliable international ocean transportation supply system

OBJECTIVE 1: Ensure that actions under filed agreements do not result in unreasonable increases in transportation 

costs and/or unreasonable decreases in transportation services.

Performance Measure: Percentage of FMC-filed agreements 

reviewed at Commission level which are modified through 

negotiation to mitigate anticompetitive effects.

2019 Target 2020 Target 2021 Target 2022 Target

51% 52% 53% 54%

2019 Actual: 67%

Performance Measure: Percentage of agreement monitoring 

reports reviewed within 30 days of receipt to detect actionable 

information, including market-distorting behavior.

2019 Target 2020 Target 2021 Target 2022 Target

66% 67% 68% 69%

2019 Actual: 79%

STRATEGIC GOAL 2: Protect the public from unlawful, unfair, and deceptive ocean transportation practices

OBJECTIVE 2.1: Identify and take action to end unlawful, unfair, and deceptive practices.

Performance Measure: Percentage of enforcement actions taken 

under the Shipping Act successfully resolved through favorable 

judgment, settlement, issuance of default judgment, or 

compliance letter or notice.

2019 Target 2020 Target 2021 Target 2022 Target

77.5% 77.5% 77.5% 77.5%

2019 Actual: 97%

OBJECTIVE 2.2: Prevent public harm through licensing and financial responsibility requirements.

Performance Measure: Percentage of decisions on completed OTI 

license applications rendered within 60 calendar days of receipt, 

facilitating lawful operation of OTIs with appropriate character and 

experience requirements.

2019 Target 2020 Target 2021 Target 2022 Target

75% 75% 75% 75%

2019 Actual: 96%

Performance Measure: Percentage of PVOs examined during the 

year that have the full financial coverage required by regulation to 

protect against loss from non-performance or casualty.

2019 Target 2020 Target 2021 Target 2022 Target

95% 95% 95% 95%

2019 Actual: 96%

OBJECTIVE 2.3: Enhance public awareness of agency resources, remedies, and regulatory requirements through 

education and outreach.

Performance Measure: Percentage of Commission issuances, 

orders and reports available through the Commission’s website 

within 5 working days of receipt.

2019 Target 2020 Target 2021 Target 2022 Target

84% 86% 88% 90%

2019 Actual: 99%

OBJECTIVE 2.4: Impartially and timely resolve international shipping disputes through alternative dispute resolution and 

adjudication.

Performance Measure: Percentage of ombuds and ADR matters 

closed within 6 months of request for assistance.

2019 Target 2020 Target 2021 Target 2022 Target

61% 63% 65% 67%

2019 Actual: 98%

Performance Measure: Percentage of formal complaints or 

Commission-initiated orders of investigation completed within 2 

years of filing or Commission initiation.

2019 Target 2020 Target 2021 Target 2022 Target

66% 68% 70% 72%

2019 Actual: 43%*

* 43% of 7 matters instituted in FY 2017 were completed within the 2-year period. Four cases were not concluded – 2 were heavily 

litigated, leading to more procedural complexity, discovery issues, and delay than is customary. Two others were delayed as they 

involved a legal issue which required substantial consideration by the Commission because of potentially wide-ranging implications.
Federal Maritime Commission 42

FY 2021 Budget Justification

Appendix F: Workload Summary 

Workload Summary

Workload Category

On Hand 

9/30/2018

FY 2019 Actual FY 2020 Estimate FY 2021 Estimate

Received Output Received Output Received Output

Formal Proceedings (OALJ) 6 7 9 8 8 8 8

Informal Proceedings (OALJ) 0 2 2 4 4 4 4

Decisions, Reports, in Docketed Proceedings 

before the Commission 5 11 16 25 25 25 25

Federal Register Notices 0 69 69 100 100 100 100

FOIA Requests 5 22 23 28 28 28 28

Ombuds 45 280 287 500 500 500 500

ADR Matters (formal dockets and requests) 8 13 12 15 13 15 15

Legislation* 0 65 65 65 65 65 65

Legal Opinions, Recommendations, Case 

Summaries, Decisions, and Final Orders 10 195 195 195 195 200 200

Audits and Monitoring Activities (BOE) 19 121 113 225 225 230 230

OTI Applicant and License Checks (BOE) 0 704 704 655 655 655 655

Formal Proceedings (BOE) 0 0 0 2 2 3 3

Civil Penalty Cases 14 24 32 24 22 25 25

Agreements Filed 18 170 186 185 190 185 185

Agreement Reports 129 1,209 1,253 1,377 1,395 1,389 1,388

Service Contracts 0 47,214 47,214 47,000 47,000 47,500 47,500

Service Contract Amendments 0 752,090 752,090 760,000 760,000 765,000 765,000

FMC-1 Form 0 1,145 1,145 1,200 1,200 1,300 1,300

OTI Applications – NEW 44 333 327 340 340 340 340

OTI Business Change Applications 79 349 360 310 310 310 310

OTI License Renewals 0 1,797 1,797 1,500 1,500 1,500 1,500

Foreign NVOCC Registrations (New, Amended,

and Renewal) 0 650 650 816 816 450 450

OTI License Terminations 0 314 314 320 320 320 320

OTI Bond Transactions** 0 4,453 4,453 4,500 4,500 4,500 4,500

Passenger Vessel Applications (Performance) 9 22 19 17 17 18 18

Passenger Vessel Applications (Casualty) 5 9 13 17 17 18 18

Passenger Vessel Certificates (Performance) 

Reissued*** 0 19 19 0 0 0 0

*This number does not reflect the Commission’s total legislative workflow, just matters in which OGC is consulted.

**Includes OTI bond terminations, bond riders, and new or replacement bonds. 

***Commenced in FY 2018, PVO Certificates (Performance) are now reissued every 5 years.
Federal Maritime Commission 43

FY 2021 Budget Justification

Appendix G: IT Resources Statements

FEDERAL MARITIME COMMISSION

Washington, DC 20573

Statement of the Chief Financial Officer and Senior Agency Official for Privacy

As Managing Director, I serve as both the Federal Maritime Commission’s Chief Financial Officer 

(CFO) and Senior Agency Official for Privacy (SAOP). The FMC’s planning and oversight efforts, in 

conjunction with strong fiscal management principles, ensures that necessary IT investments are 

funded to accomplish the Commission’s mission with time-saving technology and innovations, 

while maintaining critical information security. 

The FMC is a small agency, currently with approximately 115 employees. All investments are 

closely reviewed by myself, the Deputy Managing Director, Chief Information Officer, and the 

Director, Office of Information Technology. I have reviewed and approved IT investments detailed 

in this budget submission including all planned IT support for major programs and significant 

increases and decreases in IT resources necessary to ensure critical functionality and security. 

The Commission safeguards personally identifiable information (PII) in its records. In my role as 

SAOP, I have reviewed the IT investments portion of the budget request to ensure that privacy 

requirements, as well as any associated costs, are explicitly identified and included with respect 

to any IT resources that will be used to create, collect, use, process, store, maintain, disseminate, 

disclose, or dispose of PII. 

The FMC will continue to maintain the highest IT management standards. 

/s/

Karen V. Gregory

Chief Financial Officer and

Managing Director
Federal Maritime Commission 44

FY 2021 Budget Justification

FEDERAL MARITIME COMMISSION

Washington, DC 20573

Statement of the Chief Information Officer (CIO)

The FMC’s planning for IT investments protects the integrity of Commission data and provides 

tools for staff and external users to maximize efficiency. The provided IT investments budget 

identifies the planned IT support for major programs at the Commission. As CIO, I have

collaborated with the Senior Agency Official for Privacy (SAOP) and the CFO on the IT budget for 

this FY 2021 submission. I have reviewed and approved the cost estimates and acquisition plans 

included in this submission. In my role as CIO, I have provided guidance to the Managing Director 

in identifying crucial IT resources for strategic goals and objectives. The Commission performed 

incremental IT development for its applications/IT investments. 

The FMC is not subject to the requirements of the Federal Information Technology Acquisition 

Reform Act (FITARA) (P.L. 113-291). 

/s/

Anthony Haywood

Chief Information Officer
Federal Maritime Commission 45

FY 2021 Budget Justification

IT TABLES

Table 1 - IT SPENDING

IT Category

Unique 

Investment 

Identifier

FY 2019 FY 2020 FY 2021

Spending FTEs Spending FTEs Spending FTEs

Application Development 

(Table 2)

251001 $754,000 3 $836,825 3 $1,223,040 2

Nondevelopmental IT

Initiatives (Hardware, 

Maintenance, Software, 

Services,

Telecommunications)

(Table 3)

233301

233304

251001

257102

310202

310302

$369,772 6 $538,437 6 $588,855 6

TOTAL $1,123,772 9 $1,375,262 9 $1,811,895 8
Federal Maritime Commission 46

FY 2021 Budget Justification

Table 2 - IT DEVELOPMENT

IT Systems to be Updated

Unique 

Investment 

Identifier

FY 2019

Actual

FY 2020

Enacted FY 2021 Notes

OTI License Application,

Registration, and Renewal 

Processing System (aka FMC18)

251001 $754,000 $836,825 $1,223,040

E-bonds (Electronic Bonds) 

Filing System 251001

User 

Acceptance 

testing

Deploy --

E-filing system for OTI surety 

companies developed in 

conjunction with FMC-18. Target 

completion FY 2019/2020.

FMC-1 Filing System 251001 Future

In 

development

User Acceptance 

testing/Deploy

Stand-alone FMC-1 tariff locator will 

be integrated into updated FMC-18. 

Target completion in FY 2020.

FMC-18 License Renewal 

for OTI Licensees

251001 Future

In 

development

User Acceptance 

testing/Deploy

Developed in production system, 

will migrate to new FMC-18 system 

when deployed.

FMC-18 OTI Applications & 

Bonds Fillable/Fileable 

Forms

251001 Future

In 

development

User Acceptance 

testing/Deploy

Will migrate to new FMC-18 system 

when deployed in FY 2020.

FMC-65 Registration 

Renewal for Foreign-Based 

OTIs

251001 Future

In 

development

User Acceptance 

testing/Deploy

Developed in production system, 

will migrate to new FMC-18 system

when deployed.

FMC-18 OTI License & 

Registration Application 

(back end) 

251001 Future Future In development

Internal workflow processes to be 

integrated with public-facing front 

end, and with related applications

below.

Regulated Persons Index 

(RPI) (Data Store 

integration)

251001 Future Future In development Stand-alone RPI will be integrated 

into updated FMC-18 system.

OS Electronic Reading Room 

& Dockets Filing System 251001 Future Future Future

Initial Electronic Reading Room 

completed in FY 2019. Development 

of Dockets Filing System and 

Laserfiche upgrades projected to 

begin in FY 2021. 

Passenger Vessel Operator

(BCL system for application 

filing, processing, reports)

251001 Future Future Future To begin in FY 2021 or later.

PIERS Interactive

(BTA internal data store) 251001 Future Future Future To begin in FY 2021 or later.

Total IT consulting services 

(in $ per current fiscal year) $754,000 $836,825 $1,223,040 Subsequent OIT deployments contingent on funding.
Federal Maritime Commission 47

FY 2021 Budget Justification

Table 3 – Non-Development IT Investment Initiatives

 Major IT Investment Initiatives

Title

Unique 

Investment 

Identifier

2019 2020 2021

IT Systems Hardware and Network Infrastructure

Laptop Computers 310302 Refreshed in FY 2018 – no planned spending through FY 2021

Data Storage 310302 Reallocated to Cloud Computing

Disaster Recovery 251001 Reallocated to Cloud Computing

Server Virtualization Equipment 310202 Reallocated to Cloud Computing

Backup Devices & Media 310302

Reallocated to Cloud Computing awaiting 

supporting application development to 

be finalized

$8,000

 Network Devices 310302 $5,000 $5,000 -

Audio/Visual (A/V) Equipment 310302 -- -- $10,000

Datacenter Environmental and 

Uninterruptible Power Supply (UPS) 310902 -- -- $11,000

Maintenance

Equipment (Switches, UPS servicing, etc.) 257102 -- -- $8,000

A/V Equipment 257102 -- -- $12,000

Server Room Supplemental Cooling (A/C) 257102 -- -- $6,500

Cloud Computing Services and Hosting; Software and Services 

Software Renewals/Services 310202 Included in FY 2018 Laptop Costs $59,000

Cloud Hosting and Related Application 

Services / Software Assurance 310202 $110,000 $233,000 $153,000

Desktop OS Management Software 310202 $15,000 $20,000 $18,754

Cybersecurity

IT Security Support Services 3102021 $15,000 $35,000 $35,000

Continuous Diagnostic and Monitoring 310202 -- $18,765 $18,765

Telecommunications

Managed Trusted Internet Protocol 

Service (MTIPS), Voice over Internet 

Protocol (VoIP), Data, and Analog

233301 $149,972 $149,972 $168,871

Mobile Communications Services 233304 $38,500 $39,500 $42,765

Data links for Regional Offices (T1) 233301 $36,300 $37,200 $37,200

TOTAL $369,772 $538,437 $588,855

1

IT Security Support Services was previously referenced by Unique Investment Identifier/Budget Object Code 251001 in earlier budget request 

submissions. This has been updated to reflect the code for government contracts. 
Federal Maritime Commission 48

FY 2021 Budget Justification

Appendix H: OIG Certification

Office of Inspector General

FEDERAL MARITIME COMMISSION

Washington, DC 20573

January 6, 2020

The Inspector General Reform Act (Pub. L. 110-149) was signed by President George W. Bush on 

October 14, 2008. Section 6(f)(1) of the Inspector General Act of 1978, 5 U.S.C. app. 3, was

amended to require certain specifications concerning Office of Inspector General (OIG) budget

submissions each fiscal year (FY).

Each inspector general (IG) is required to transmit a budget request to the head of the establishment 

or designated Federal entity to which the IG reports specifying:

• the aggregate amount of funds requested for the operations of the OIG,

• the portion of this amount requested for OIG training, including a certification from the 

IG that the amount requested satisfies all OIG training requirements for the fiscal year, 

and

• the portion of this amount necessary to support the Council of the Inspectors General on

Integrity and Efficiency (CIGIE).

The head of each establishment or designated Federal entity, in transmitting a proposed budget to 

the President for approval, shall include:

• an aggregate request for the OIG,

• the portion of this aggregate request for OIG training,

• the portion of this aggregate request for support of the CIGIE, and

• any comments of the affected IG with respect to the proposal.

The President shall include in each budget of the U.S. Government submitted to Congress:

• a separate statement of the budget estimate submitted by each IG,

• the amount requested by the President for each OIG,

• the amount requested by the President for training of OIGs,

• the amount requested by the President for support of the CIGIE, and

• any comments of the affected IG with respect to the proposal if the IG concludes that the 

budget submitted by the President would substantially inhibit the IG from performing 

duties of the OIG.
Federal Maritime Commission 49

FY 2021 Budget Justification

Following the requirements as specified above, the Federal Maritime Commission

(FMC) Inspector General submits the following information relating to the OIG’s requested

budget for FY 2021:

• the aggregate budget request for the operations of the OIG, to include overhead, is $553,744,

• the portion of this amount needed for OIG training is $3,500, and

• the portion of this amount needed to support the CIGIE is $1,300.

I certify as the Inspector General of the FMC that the amount requested satisfies the needs of the 

OIG for FY 2021, including all FMC OIG training requirements, and resources to support CIGIE.

/s/

Jon Hatfield, Inspector General

Federal Maritime Commission