[Federal Register Volume 88, Number 220 (Thursday, November 16, 2023)]
[Rules and Regulations]
[Pages 78637-78639]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2023-25280]


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DEPARTMENT OF HOMELAND SECURITY

U.S. Customs and Border Protection

19 CFR Part 101

[CBP Dec. No. 23-05]
RIN 1651-AB44


Management of Customs Ports of Entry and Customs Stations

AGENCY: U.S. Customs and Border Protection, DHS.

ACTION: Final rule.

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SUMMARY: In this final rule, the Department of Homeland Security 
clarifies that the Secretary of Homeland Security has the authority to 
establish, rearrange or consolidate, and discontinue Customs ports of 
entry and Customs stations and revises the Customs and Border 
Protection regulations to reflect this clarification.

DATES: This rule is effective on November 16, 2023.

FOR FURTHER INFORMATION CONTACT: Siobhan Chambers, Branch Chief, 
Modeling and Optimization, Office of Field Operations, Planning, 
Program Analysis and Evaluation, Operational and Enterprise Analytics, 
U.S. Customs and Border Protection, at [email protected] 
or (202) 325-3935.

SUPPLEMENTARY INFORMATION: 

I. Background

    U.S. Customs and Border Protection (CBP), a component of the 
Department of Homeland Security, operates two types of ports of entry, 
commonly referred to as immigration ports of entry and Customs ports of 
entry. Immigration ports of entry are those ports of entry used for the 
processing of travelers arriving by any means of travel into the United 
States. See title 8 Code of Federal Regulations (CFR) section 235.1 (8 
CFR 235.1). Customs ports of entry, which include customs service 
ports, are those entry locations authorized to receive entries of 
merchandise for the collection of duties and for the enforcement of the 
various provisions of the customs and navigation laws. See 19 CFR 
101.1. In addition, CBP operates Customs stations, which are locations 
outside the boundaries of Customs ports of entry, but which, like 
Customs ports of entry, are authorized to receive entries of 
merchandise and enforce the various provisions of the customs and 
navigation laws.\1\ See 19 CFR 101.1.
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    \1\ 19 CFR 101.3 lists both the Customs ports of entry and the 
Customs service ports. 19 CFR 101.4 lists the Customs stations, all 
of which are supervised by a Customs port of entry. The supervising 
port of entry for each Customs station is also listed in 19 CFR 
101.4.

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[[Page 78638]]

    In most cases, Customs ports of entry and Customs stations exist 
within the same physical location as immigration ports and utilize the 
same CBP personnel for processing travelers and merchandise. Despite 
the use of the same location and personnel, there are separate 
regulations governing the authority to establish, rearrange, 
consolidate, and close the immigration and Customs ports and stations. 
Authority regarding management of immigration ports is addressed in 
title 8 of the CFR, while Customs port and Customs station authority is 
addressed in title 19 of the CFR. See 8 CFR 100.4 and 234.4; 19 CFR 
101.3 and 101.4.
    With regard to customs ports of entry, 19 U.S.C. 2, authorizes the 
President ``to discontinue [customs] \2\ ports of entry by abolishing 
the same or establishing others in their stead.'' President Truman 
delegated this authority to the Secretary of the Treasury in 1951.\3\ 
The Secretary of the Treasury then delegated this authority to the 
Deputy Assistant Secretary (Regulatory, Tariff, and Trade Enforcement) 
through the regulation in Section 101.3 of Title 19 of the CFR (19 CFR 
101.3). That regulation authorizes the Assistant Secretary to 
``establish, rearrange or consolidate, and to discontinue customs ports 
of entry as the needs of the Customs Service may require.'' The 
Homeland Security Act of 2002 (the Act) transferred this authority to 
the Secretary of DHS.\4\ See Public Law 107-22296, Section 403, 6 
U.S.C. 203. Despite this transfer of authority to the Secretary of DHS, 
the regulation at 19 CFR 101.3 still refers to the Treasury officers.
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    \2\ The word ``customs'' added here for clarity. Although the 
word ``customs'' does not appear in this section, Title 19 of the 
U.S. Code specifically deals with customs duties and therefore this 
section relates to customs ports as defined herein.
    \3\ Executive Order 10289 (16 FR 9499).
    \4\ In 2006, the Secretary of Homeland Security issued a 
Delegation Order in which he delegated certain authorities to the 
Commissioner of CBP but specifically reserved to himself the 
authority to ``discontinue [Customs] ports of entry by abolishing 
the same and establishing others in their stead.'' See DHS 
Delegation Order 7010.3.
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    The authority to establish, rearrange or consolidate, and to 
discontinue Customs stations is held by the Secretary of DHS pursuant 
to the Act. See Sec. 403, Public Law 107-296, 6 U.S.C. 203. This 
authority is not specifically referenced in the title 19 CFR 
regulations.
    Prior to the passage of the Act, the authority to manage 
immigration ports of entry was held by the Commissioner of the 
Immigration and Nationality Service (INS). The Act transferred 
immigration related authorities, including those related to immigration 
ports of entry, from the Commissioner of the INS to the Secretary of 
DHS. See title IV, Public Law 107-296, 6 U.S.C. Chapter 1. The 
applicable regulations, 8 CFR 100.4 and 234.4, specify that the 
Commissioner of CBP (the Commissioner) has the authority to manage 
immigration ports of entry.\5\
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    \5\ 8 CFR 1.2 provides that after March 1, 2003, references to 
``Commissioner'' mean the Director of U.S. Citizenship and 
Immigration Services, the Commissioner of U.S. Customs and Border 
Protection, and the Director of U.S. Immigration and Customs 
Enforcement, as appropriate in the context in which the term 
appears. In the context of immigration port authority in 8 CFR 100.4 
and 234.4, ``Commissioner'' means the Commissioner of CBP.
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    In this rule, DHS is clarifying that the authority to establish, 
rearrange or consolidate, and to discontinue Customs ports of entry and 
Customs stations rests with the Secretary of Homeland Security and not 
the Secretary of the Treasury. This rule revises the applicable 
regulations in title 19 of the CFR so that they are consistent with the 
Act.
    Specifically, DHS is amending 19 CFR 101.3 to reflect that the 
Secretary of DHS has the authority to establish, rearrange or 
consolidate, and discontinue Customs ports of entry and Customs service 
ports. DHS is also amending this section to include a reference to 
``Customs service ports,'' which are a type of ``Customs port of 
entry'' as noted above. The specific reference to ``Customs service 
ports'' clarifies that the Secretary has the authority to establish, 
rearrange or consolidate, and to discontinue all Customs ports of 
entry, including service ports.
    DHS is also amending 19 CFR 101.4 to reflect that the Secretary has 
the authority to establish, rearrange or consolidate, and discontinue 
Customs stations as operational needs may require.

II. Statutory and Regulatory Requirements

A. Administrative Procedure Act

    The Administrative Procedure Act (APA) generally requires agencies 
to publish a notice of proposed rulemaking in the Federal Register and 
provide interested persons the opportunity to submit comments. 5 U.S.C. 
553(b), (c). The APA also generally requires that substantive rules 
have a 30-day delayed effective date from the date of publication. See 
5 U.S.C. 553(d). However, certain exceptions are provided.
    The APA provides an exception from notice and comment procedures as 
well as the requirement for a 30-day delayed effective date when the 
rule is a matter relating to agency management. See 5 U.S.C. 553(a)(2). 
In this rule DHS is merely updating regulations to reflect that the 
Secretary of DHS has the authority to establish, rearrange or 
consolidate, and discontinue Customs ports of entry and Customs service 
ports. Therefore, this is merely a matter of agency management.
    Additionally, the APA provides an exception to notice and comment 
requirements when the rule is one of ``agency organization, procedure, 
or practice.'' See 5 U.S.C. 553(b)(A). This exception also applies 
because this rule merely amends the regulations to accurately reflect 
the Secretary of DHS's authority regarding ports and has no effect on 
the public.
    Based on the above considerations, this rule is exempt from the 
notice and comment and delayed effective date provisions of the APA 
pursuant to 5 U.S.C. 553(a)(2) and 5 U.S.C. 553(b)(A).

B. Executive Orders 13563 and 12866

    Executive Orders 13563 and 12866 direct agencies to assess the 
costs and benefits of available regulatory alternatives and, if 
regulation is necessary, to select regulatory approaches that maximize 
net benefits (including potential economic, environmental, public 
health and safety effects, distributive impacts, and equity). Executive 
Order 13563 emphasizes the importance of quantifying both costs and 
benefits, of reducing costs, of harmonizing rules, and of promoting 
flexibility. This rule is not a ``significant regulatory action,'' 
under section 3(f) of Executive Order 12866. Accordingly, OMB has not 
reviewed this regulation.
    These regulatory changes are being made to reflect the transfer of 
authority to establish, rearrange and close Customs ports of entry and 
Customs stations from the Secretary of the Treasury to the Secretary of 
DHS pursuant to the Act. These changes have no effect on the public as 
there will be no changes to services at the ports and no economic costs 
or benefits. Therefore, this rule has no economic impact.

C. Regulatory Flexibility Act

    The Regulatory Flexibility Act (5 U.S.C. 601 et seq.), as amended 
by the Small Business Regulatory Enforcement and Fairness Act of 1996, 
requires agencies to assess the impact of regulations on small 
entities. A small entity may be a small business (defined

[[Page 78639]]

as any independently owned and operated business not dominant in its 
field that qualifies as a small business per the Small Business Act); a 
small not-for-profit organization; or a small governmental jurisdiction 
(locality with fewer than 50,000 people). Since a notice of proposed 
rulemaking was not necessary, a regulatory flexibility analysis is not 
required.

List of Subjects in 19 CFR Part 101

    Harbors, Organization and functions (Government agencies), Seals 
and insignia, and Vessels.

    For reasons set forth in the preamble, part 101 of title 19 of the 
Code of Federal Regulations is amended as set forth below:

PART 101--GENERAL PROVISIONS

0
1. The authority citation for part 101 continues to read as follows:

    Authority:  5 U.S.C. 301; 6 U.S.C. 101, et. seq.; 19 U.S.C. 2, 
66, 1202 (General Note 3(i), Harmonized Tariff Schedule of the 
United States), 1623, 1624, 1646a. Section 101.3 and 101.4 also 
issued under 19 U.S.C. 1 and 58b; Section 101.5 also issued under 19 
U.S.C. 1629; Section 101.9 also issued under 19 U.S.C. 1411-1414.


0
2. Amend Sec.  101.3 by revising paragraph (a) to read as follows:


Sec.  101.3  Customs service ports and ports of entry.

    (a) Designation of Customs field organization. The Secretary of 
Homeland Security is authorized to establish, rearrange or consolidate, 
and to discontinue Customs ports of entry and Customs service ports as 
operational needs may require.
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0
3. Amend Sec.  101.4 by revising paragraph (c) to read as follows:


Sec.  101.4  Entry and clearance of vessels at Customs stations.

* * * * *
    (c) Customs stations designated.
    (1) The Secretary of Homeland Security is authorized to establish, 
rearrange, or consolidate, and to discontinue Customs stations as 
operational needs may require.
    (2) The Customs stations and the ports of entry having supervision 
thereof are listed below:

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              Customs station                 Supervisory port of entry
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                                 Alaska
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Barrow....................................  Fairbanks.
Dutch Harbor..............................  Anchorage.
Eagle.....................................  Alcan.
Fort Yukon................................  Fairbanks.
Haines....................................  Dalton Cache.
Hyder.....................................  Ketchikan.
Kaktovik (Barter Island)..................  Fairbanks.
Kenai (Nikiski)...........................  Anchorage.
Northway..................................  Alcan.
Pelican...................................  Juneau.
Petersburg................................  Wrangell.
------------------------------------------------------------------------
                               California
------------------------------------------------------------------------
Campo.....................................  Tecate.
Otay Mesa.................................  San Diego.
San Ysidro................................  San Diego.
------------------------------------------------------------------------
                                Colorado
------------------------------------------------------------------------
Colorado Springs..........................  Denver.
------------------------------------------------------------------------
                                Delaware
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Lewes.....................................  Philadelphia, PA.
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                                 Florida
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Fort Pierce...............................  West Palm Beach.
Green Cove Springs........................  Jacksonville.
Port St. Joe..............................  Panama City.
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                                 Indiana
------------------------------------------------------------------------
Fort Wayne................................  Indianapolis.
------------------------------------------------------------------------
                                  Maine
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Bucksport.................................  Belfast.
Coburn Gore...............................  Jackman.
Daaquam...................................  Jackman.
Easton....................................  Fort Fairfield.
Estcourt..................................  Fort Kent.
Forest City...............................  Houlton.
Hamlin....................................  Van Buren.
------------------------------------------------------------------------
                                Maryland
------------------------------------------------------------------------
Salisbury.................................  Baltimore.
------------------------------------------------------------------------
                              Massachusetts
------------------------------------------------------------------------
Provincetown..............................  Plymouth.
------------------------------------------------------------------------
                                Michigan
------------------------------------------------------------------------
Alpena....................................  Saginaw-Bay City-Flint.
Detour....................................  Sault Ste. Marie.
Escanaba..................................  Sault Ste. Marie.
Grand Haven...............................  Muskegon.
Houghton..................................  Sault Ste. Marie.
Marquette.................................  Sault Ste. Marie.
Rogers City...............................  Saginaw-Bay City-Flint.
------------------------------------------------------------------------
                                Minnesota
------------------------------------------------------------------------
Crane Lake................................  Duluth, MN-Superior, WI.
Ely.......................................  Duluth, MN-Superior, WI.
Lancaster.................................  Noyes.
Oak Island................................  Warroad.
------------------------------------------------------------------------
                               Mississippi
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Biloxi....................................  Mobile, AL.
------------------------------------------------------------------------
                                 Montana
------------------------------------------------------------------------
Wild Horse................................  Great Falls.
Willow Creek..............................  Great Falls.
------------------------------------------------------------------------
                               New Jersey
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Atlantic City.............................  Philadelphia-Chester, PA and
                                             Wilmington, DE.
Port Norris...............................  Philadelphia-Chester, PA and
                                             Wilmington, DE.
Tuckerton.................................  Philadelphia-Chester, PA and
                                             Wilmington, DE.
------------------------------------------------------------------------
                                New York
------------------------------------------------------------------------
Cannons Corners...........................  Champlain-Rouses Point.
Churubusco................................  Trout River.
------------------------------------------------------------------------
                              New Hampshire
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Pittsburg.................................  Beecher Falls, VT.
Monticello................................  Houlton, ME.
Orient....................................  Houlton, ME.
Ste. Aurelie..............................  Jackman, ME.
St. Pamphile..............................  Jackman, ME.
------------------------------------------------------------------------
                               New Mexico
------------------------------------------------------------------------
Antelope Wells (Mail: Hachita, NM)........  Columbus, NM.
------------------------------------------------------------------------
                              North Dakota
------------------------------------------------------------------------
Grand Forks...............................  Pembina.
Minot.....................................  Pembina.
------------------------------------------------------------------------
                                  Ohio
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Akron.....................................  Cleveland.
Fairport Harbor...........................  Ashtabula/Conneaut.
Lorain....................................  Sandusky.
Marblehead-Lakeside.......................  Sandusky.
Put-in-Bay................................  Sandusky.
------------------------------------------------------------------------
                                Oklahoma
------------------------------------------------------------------------
Muskogee..................................  Tulsa.
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                                  Texas
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Amistad Dam...............................  Del Rio.
Boquillas.................................  Presidio.
Falcon Dam................................  Roma.
Fort Hancock..............................  Fabens.
Los Ebanos................................  Rio Grande City.
Marathon..................................  El Paso.
------------------------------------------------------------------------
                                 Vermont
------------------------------------------------------------------------
Beebe Plaine..............................  Derby Line.
Canaan....................................  Beecher Falls.
East Richford.............................  Richford.
Newport...................................  Derby Line.
North Troy................................  Derby Line.
West Berkshire............................  Richford.
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* * * * *

Alejandro N. Mayorkas,
Secretary.
[FR Doc. 2023-25280 Filed 11-15-23; 8:45 am]
BILLING CODE 9111-14-P