[Senate Report 116-299]
[From the U.S. Government Publishing Office]


                                                          Calendar No. 592
                                                      

116th Congress  }                                              {   Report
                               SENATE                          
2d Session      }                                              {   116-299
_______________________________________________________________________

                                     

                                                       
                   FEDERAL MARITIME COMMISSION NATIONAL

                    SHIPPER ADVISORY COMMITTEE ACT OF 2019

                               __________

                              R E P O R T

                                 of the

           COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION

                                   on

                                S. 2894






               November 17, 2020.--Ordered to be printed
               
               
                           ______

             U.S. GOVERNMENT PUBLISHING OFFICE 
 19-010                WASHINGTON : 2020               
               
               
       SENATE COMMITTEE ON COMMERCE, SCIENCE, AND TRANSPORTATION
                     one hundred sixteenth congress
                             second session

                 ROGER F. WICKER, Mississippi, Chairman
JOHN THUNE, South Dakota             MARIA CANTWELL, Washington
ROY BLUNT, Missouri                  AMY KLOBUCHAR, Minnesota
TED CRUZ, Texas                      RICHARD BLUMENTHAL, Connecticut
DEB FISCHER, Nebraska                BRIAN SCHATZ, Hawaii
JERRY MORAN, Kansas                  EDWARD J. MARKEY, Massachusetts
DAN SULLIVAN, Alaska                 TOM UDALL, New Mexico
CORY GARDNER, Colorado               GARY C. PETERS, Michigan
MARSHA BLACKBURN, Tennessee          TAMMY BALDWIN, Wisconsin
SHELLEY MOORE CAPITO, West Virginia  TAMMY DUCKWORTH, Illinois
MIKE LEE, Utah                       JON TESTER, Montana
RON JOHNSON, Wisconsin               KYRSTEN SINEMA, Arizona
TODD C. YOUNG, Indiana               JACKY ROSEN, Nevada
RICK SCOTT, Florida
                       John Keast, Staff Director
               David Strickland, Minority Staff Director
               
               



                                                        Calendar No. 592
                                                       
                                                       
116th Congress  }                                              {   Report
                                 SENATE
 2d Session     }                                              {  116-299

======================================================================



 
FEDERAL MARITIME COMMISSION NATIONAL SHIPPER ADVISORY COMMITTEE ACT OF 
                                  2019

                                _______
                                

               November 17, 2020.--Ordered to be printed

                                _______
                                

       Mr. Wicker, from the Committee on Commerce, Science, and 
                Transportation, submitted the following

                              R E P O R T

                         [To accompany S. 2894]

      [Including cost estimate of the Congressional Budget Office]

    The Committee on Commerce, Science, and Transportation, to 
which was referred the bill (S. 2894) to establish a National 
Shipper Advisory Committee, having considered the same, reports 
favorably thereon with amendments and recommends that the bill 
(as amended) do pass.

                          Purpose of the Bill

    The purpose of this legislation is to establish a Federal 
advisory committee to provide policy recommendations to the 
Federal Maritime Commission (FMC) on policies relating to the 
competitiveness, reliability, integrity, and fairness of the 
international ocean freight delivery system.

                          Background and Needs

    S. 2894, Federal Maritime Commission National Shipper 
Advisory Committee Act of 2019, establishes an advisory 
committee to advise the FMC on policies relating to the 
competitiveness, reliability, integrity, and fairness of the 
international ocean freight delivery system. The advisory 
committee is one of the recommendations from Fact Finding 
Investigation No. 28 led by Commissioner Rebecca F. Dye.\1\ 
Fact Finding Investigation No. 28 was an 18-month inquiry to 
determine the nature and full extent of demurrage and detention 
issues in the ocean transportation system, and find ways to 
address identified problems. In addition to the advisory 
committee, Commissioner Dye also recommended the FMC issue an 
interpretive rule regarding how it will assess the 
reasonableness of detention and demurrage rules and practices 
of ocean carriers and marine terminal operators.\2\ The 
interpretive rule was finalized on April 28, 2020. Finally, 
Commissioner Dye recommended the FMC continue to support the 
work of the Supply Chain Innovation Teams established during 
Fact Finding Investigation No. 28.
---------------------------------------------------------------------------
    \1\Federal Maritime Commission, ``Fact Finding 28'' (https://
www.fmc.gov/fact-finding-28/) (accessed Aug. 21, 2020).
    \2\Federal Maritime Commission, Notice of Proposed Rulemaking, 
Docket No. 19-05 (https://www2.fmc.gov/readingroom/docs/19-05/19-
05_NPRM.pdf/) (accessed Aug. 21, 2020).
---------------------------------------------------------------------------

                         Summary of Provisions

    If enacted, S. 2894, Federal Maritime Commission National 
Shipper Advisory Committee Act of 2019, would do the following:
   Establish the National Shipper Advisory Committee.
   Require the Advisory Committee to consist of 24 
        members appointed by the FMC with expertise relating to 
        the competitiveness, reliability, integrity, and 
        fairness of the international ocean freight delivery 
        system. Twelve members would represent entities who 
        import cargo to the United States using ocean common 
        carriers. Twelve members would represent entities who 
        export cargo from the United States using ocean common 
        carriers.
   Require the Advisory Committee to submit its 
        recommendations to the FMC in writing.
   Require the FMC to publish any recommendations 
        within 60 days on a public website. Additionally, the 
        FMC would have to respond, in writing, to the Advisory 
        Committee regarding the recommendations, with an 
        explanation of actions taken regarding the 
        recommendations.
   Require the FMC to submit to Congress the advice, 
        reports, and recommendations it receives from the 
        Advisory Committee.

                          Legislative History

    S. 2894, the Federal Maritime Commission National Shipper 
Advisory Committee Act of 2019, was introduced on November 19, 
2019, by Senator Wicker and was referred to the Committee on 
Commerce, Science, and Transportation of the Senate. On May 20, 
2020, the Committee met in open Executive Session and, by voice 
vote, ordered S. 2894 reported favorably with amendments.

                                HEARING

    The Committee held a hearing entitled ``Federal Maritime 
Agencies: Ensuring a Safe, Secure, and Competitive Future'' on 
April 4, 2019, to assess the state of the maritime sector, and 
priorities for 2020. FMC Chairman Michael A. Khouri updated the 
Committee on the FMC's work, including Fact Finding 
Investigation No. 28. In November 2019, Senator Wicker sent a 
letter to FMC Chairman Michael A. Khouri asking to be updated 
on the work of the Supply Chain Innovation Team in Memphis 
established during Fact Finding Investigation No. 28.

                            Estimated Costs

    In accordance with paragraph 11(a) of rule XXVI of the 
Standing Rules of the Senate and section 403 of the 
Congressional Budget Act of 1974, the Committee provides the 
following cost estimate, prepared by the Congressional Budget 
Office:




    S. 2894 would require the Federal Maritime Commission (FMC) 
to establish the National Shipper Advisory Committee to advise 
the FMC on matters related to the system for delivering 
international ocean freight. The 24-member committee would 
consist of representatives from entities that import or export 
cargo using ocean-going common carriers. The FMC would be 
required to report the committee's recommendations to the 
Congress.
    S. 2894 would not authorize additional funding to support 
the activities required under the bill. However, based on the 
cost of similar activities, CBO estimates that implementing S. 
2894 would cost $1 million over the 2020-2025 period; such 
spending would be subject to the availability of appropriated 
funds.
    The CBO staff contact for this estimate is Aaron Krupkin. 
The estimate was reviewed by H. Samuel Papenfuss, Deputy 
Director of Budget Analysis.

                      Regulatory Impact Statement

    In accordance with paragraph 11(b) of rule XXVI of the 
Standing Rules of the Senate, the Committee provides the 
following evaluation of the regulatory impact of the 
legislation, as reported:

                       number of persons covered

    As reported, S. 2894 would establish the National Shipper 
Advisory Committee to provide the FMC with advice on policies 
relating to the competitiveness, reliability, integrity, and 
fairness of the international ocean freight delivery system. 
These recommendations could affect millions of Americans by 
improving the efficiency and reliability of American ocean 
transportation.

                            economic impact

    As reported, S. 2894 is not expected to have a negative 
impact on the Nation's economy.

                                privacy

    As reported, S. 2894 is not expected to impact the personal 
privacy of individuals.

                               paperwork

    As reported, S. 2894 would not create increases in 
paperwork burdens if enacted.

                   Congressionally Directed Spending

    In compliance with paragraph 4(b) of rule XLIV of the 
Standing Rules of the Senate, the Committee provides that no 
provisions contained in the bill, as reported, meet the 
definition of congressionally directed spending items under the 
rule.

                      Section-by-Section Analysis


Section 1. Short title.

    This section would provide that the bill may be cited as 
the ``Federal Maritime Commission National Shipper Advisory 
Committee Act of 2019''.

Section 2. Advisory committee.

    This section would establish the advisory committee. The 
advisory committee would consist of 24 members appointed by the 
FMC with expertise relating to the competitiveness, 
reliability, integrity, and fairness of the international ocean 
freight delivery system. Twelve members would be required to 
represent entities that import cargo to the United States using 
ocean common carriers. Twelve members would be required to 
represent entities that export cargo from the United States 
using ocean common carriers. This section would require the FMC 
to solicit nominations for the advisory committee in the 
Federal Register, prohibit the FMC from considering political 
affiliation in making appointments, prohibit Federal employees 
from being appointed, and set the term for members of the 
advisory committee. Additionally, it would require the FMC to 
post publicly all recommendations received from the advisory 
committee within 60 days. Finally, it would require the FMC to 
submit to Congress the advice, reports, and recommendations 
received from the advisory committee. This section would also 
provide that the advisory committee shall terminate on 
September 30, 2029.

Section 3. No funding authorized.

    This section states that no additional funds would be 
authorized to carry out the Act or the amendment made by this 
bill, as enacted.

                        Changes in Existing Law

    In compliance with paragraph 12 of rule XXVI of the 
Standing Rules of the Senate, changes in existing law made by 
the bill, as reported, are shown as follows (existing law 
proposed to be omitted is enclosed in black brackets, new 
material is printed in italic, existing law in which no change 
is proposed is shown in roman):

UNITED STATES CODE

           *       *       *       *       *       *       *


TITLE 46--SHIPPING

           *       *       *       *       *       *       *


Subtitle IV--Regulation of Ocean Shipping

           *       *       *       *       *       *       *


PART B--ACTIONS TO ADDRESS FOREIGN PRACTICES

           *       *       *       *       *       *       *


            CHAPTER 424--NATIONAL SHIPPER ADVISORY COMMITTEE

Sec.
42401. Definitions.
42402. National Shipper Advisory Committee.
42403. Administration.

Sec. 42401. Definitions

    In this chapter:
            (1) Commission.--The term ``Commission'' means the 
        Federal Maritime Commission.
            (2) Committee.--The term ``Committee'' means the 
        National Shipper Advisory Committee established by 
        section 42402.

Sec. 42402. National Shipper Advisory Committee

    (a) Establishment.--There is established a National Shipper 
Advisory Committee.
    (b) Function.--The Committee shall advise the Federal 
Maritime Commission on policies relating to the 
competitiveness, reliability, integrity, and fairness of the 
international ocean freight delivery system.
    (c) Membership.--
            (1) In general.--The Committee shall consist of 24 
        members appointed by the Commission in accordance with 
        this section.
            (2) Expertise.--Each member of the Committee shall 
        have particular expertise, knowledge, and experience in 
        matters relating to the function of the Committee.
            (3) Representation.--Members of the Committee shall 
        be appointed as follows:
                    (A) Twelve members shall represent entities 
                who import cargo to the United States using 
                ocean common carriers.
                    (B) Twelve members shall represent entities 
                who export cargo from the United States using 
                ocean common carriers.

Sec. 42403. Administration

    (a) Meetings.--The Committee shall, not less than once each 
year, meet at the call of the Commission or a majority of the 
members of the Committee.
    (b) Employee Status.--A member of the Committee shall not 
be considered an employee of the Federal Government by reason 
of service on such Committee, except for the purposes of the 
following:
            (1) Chapter 81 of title 5.
            (2) Chapter 171 of title 28 and any other Federal 
        law relating to tort liability.
    (c) Volunteer Services Required.-- Notwithstanding any 
other provision of law, a member of the Committee shall serve 
on such committee on a voluntary basis without pay.
    (d) Status of Members.--
            (1) In general.--Except as provided in paragraph 
        (2), with respect to a member of the Committee whom the 
        Commission appoints to represent an entity or group--
                    (A) the member is authorized to represent 
                the interests of the applicable entity or 
                group; and
                    (B) requirements under Federal law that 
                would interfere with such representation and 
                that apply to a special Government employee (as 
                defined in section 202(a) of title 18), 
                including requirements relating to employee 
                conduct, political activities, ethics, 
                conflicts of interest, and corruption, do not 
                apply to the member.
            (2) Exception.--Notwithstanding subsection (b), a 
        member of the Committee shall be treated as a special 
        Government employee for purposes of the committee 
        service of the member if the member, without regard to 
        service on the committee, is a special Government 
        employee.
    (e) Service on Committee.--
            (1) Solicitation of nominations.--Before appointing 
        an individual as a member of the Committee, the 
        Commission shall publish a timely notice in the Federal 
        Register soliciting nominations for membership on such 
        Committee.
            (2) Appointments.--
                    (A) In general.--After considering 
                nominations received pursuant to a notice 
                published under paragraph (1), the Commission 
                may appoint a member to the Committee.
                    (B) Prohibition.--The Commission shall not 
                seek, consider, or otherwise use information 
                concerning the political affiliation of a 
                nominee in making an appointment to the 
                Committee.
            (3) Service at pleasure of the commission.--Each 
        member of the Committee shall serve at the pleasure of 
        the Commission.
            (4) Security background examinations.--The 
        Commission may require an individual to have passed an 
        appropriate security background examination before 
        appointment to the Committee.
            (5) Prohibition.--A Federal employee may not be 
        appointed as a member of the Committee.
            (6) Terms.--
                    (A) In general.--The term of each member of 
                the Committee shall expire on December 31 of 
                the third full year after the effective date of 
                the appointment.
                    (B) Continued service after term.--When the 
                term of a member of the Committee ends, the 
                member, for a period not to exceed 1 year, may 
                continue to serve as a member until a successor 
                is appointed.
            (7) Vacancies.--A vacancy on the Committee shall be 
        filled in the same manner as the original appointment.
            (8) Special rule for reappointments.--
        Notwithstanding paragraphs (1) and (2), the Commission 
        may reappoint a member of a committee for any term, 
        other than the first term of the member, without 
        soliciting, receiving, or considering nominations for 
        such appointment.
    (f) Staff Services.--The Commission shall furnish to the 
Committee any staff and services considered by the Commission 
to be necessary for the conduct of the Committee's functions.
    (g) Chair; Vice Chair.--
            (1) In general.--The Committee shall elect a Chair 
        and Vice Chair from among the committee's members.
            (2) Vice chairman acting as chairman.--The Vice 
        Chair shall act as Chair in the absence or incapacity 
        of, or in the event of a vacancy in the office of, the 
        Chair.
    (h) Subcommittees and Working Groups.--
            (1) In general.--The Chair of the Committee may 
        establish and disestablish subcommittees and working 
        groups for any purpose consistent with the function of 
        the Committee.
            (2) Participants.--Subject to conditions imposed by 
        the Chair, members of the Committee may be assigned to 
        subcommittees and working groups established under 
        paragraph (1).
    (i) Consultation, Advice, Reports, and Recommendations.--
            (1) Consultation.--Before taking any significant 
        action, the Commission shall consult with, and consider 
        the information, advice, and recommendations of, the 
        Committee if the function of the Committee is to advise 
        the Commission on matters related to the significant 
        action.
            (2) Advice, reports, and recommendations.--The 
        Committee shall submit, in writing, to the Commission 
        its advice, reports, and recommendations, in a form and 
        at a frequency determined appropriate by the Committee.
            (3) Explanation of actions taken.--Not later than 
        60 days after the date on which the Commission receives 
        recommendations from the Committee under paragraph (2), 
        the Commission shall--
                    (A) publish the recommendations on a public 
                website; and
                    (B) respond, in writing, to the Committee 
                regarding the recommendations, including by 
                providing an explanation of actions taken 
                regarding the recommendations.
            (4) Submission to congress.--The Commission shall 
        submit to the Committee on Transportation and 
        Infrastructure of the House of Representatives and the 
        Committee on Commerce, Science, and Transportation of 
        the Senate the advice, reports, and recommendations 
        received from the Committee under paragraph (2).
    (j) Observers.--The Commission may designate a 
representative to--
            (1) attend any meeting of the Committee; and
            (2) participate as an observer at such meeting.
    (k) Termination.--The Committee shall terminate on 
September 30, 2029.

           *       *       *       *       *       *       *