Offshore Patrol Cutter Acquisition Program; Preparation of a Programmatic Environmental Impact Statement/Overseas Environmental Impact Statement, 73491-73495 [2020-25452]

Agencies

• Coast Guard
• DEPARTMENT OF HOMELAND SECURITY

[Federal Register Volume 85, Number 223 (Wednesday, November 18, 2020)]
[Notices]
[Pages 73491-73495]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-25452]


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DEPARTMENT OF HOMELAND SECURITY

Coast Guard

[Docket Number USCG-2020-0667]


Offshore Patrol Cutter Acquisition Program; Preparation of a 
Programmatic Environmental Impact Statement/Overseas Environmental 
Impact Statement

AGENCY: Coast Guard, DHS.

ACTION: Notice of intent to prepare a Programmatic Environmental Impact 
Statement (PEIS)/Overseas Environmental Impact Statement (POEIS); 
request for comments.

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SUMMARY: The United States (U.S.) Coast Guard (Coast Guard), as the 
lead agency, announces its intent to prepare a Programmatic 
Environmental Impact Statement (PEIS)/Overseas Environmental Impact 
Statement (POEIS) for the Offshore Patrol Cutter (OPC) Program's Stage 
2 acquisition of up to 21 OPCs and operation of up to 25 total OPCs. 
This acquisition is a continuation of the OPC Program of Record for 
acquiring up to 25 total cutters. Notice is hereby given that the 
public scoping process has begun for the preparation of a PEIS/POEIS 
that will address the reasonable alternatives and potential 
environmental impacts associated with implementing the Proposed Action. 
The scoping process solicits public comments regarding the range of 
issues, information and analyses relevant to the Proposed Action, 
including potential environmental impacts and reasonable alternatives 
to address in the PEIS/POEIS. The Coast Guard has determined that a 
PEIS/POEIS is the most appropriate type of NEPA document for this 
action because of the scope and complexity of the proposed acquisition 
and operation of up to 25 OPCs.

SUPPLEMENTARY INFORMATION: 

Purpose and Need for the Proposed Action

    The Coast Guard's current fleet of Medium Endurance Cutters (MEC) 
consists of 28 operational vessels homeported in the Coast Guard's area 
of responsibility (AOR) in the Atlantic, Pacific, and Gulf of Mexico. 
MECs primarily operate outside the 12 nm territorial seas and within 
the 200 nm Exclusive Economic Zone and primarily execute maritime law 
enforcement and search and rescue missions. Additional MEC operations 
occur in the Gulf of Mexico, the Caribbean Sea, and the Pacific between 
California and Panama. Current operational MECs have exceeded their 
designed 30-year service life and can no longer meet this need for the 
Coast Guard. Therefore, the Coast Guard must replace the aging MECs 
because they are too old and costly to be operationally effective. Some 
of the oldest MECs are already more than 55 years old and do not have 
sufficient hull life remaining to justify any attempts to modernize 
them. Therefore, the purpose of the Proposed Action is the acquisition 
and operation of up to 25 OPCs to replace the capabilities of the 
current operational MECs. OPCs have identical missions and operational 
characteristics as the MECs they replace. OPC differences include 
increased length to accommodate a fixed hanger for assigned aircraft, 
larger flight deck, greater at-sea endurance, an increased number of 
cutter boats, and modernized Command, Control, Computers, Navigation, 
and Combat systems. OPCs also feature enhanced environmental standards 
for clean air, noise, sewage, trash, and ballast.

Preliminary Proposed Action and Alternatives

    Preliminary Proposed Action (Alternative 1): Under the preliminary 
Proposed Action, the Coast Guard would acquire and operate up to 25 
OPCs with planned design lives of 30 years to fulfill mission 
requirements in the proposed action areas in the Atlantic Ocean, Gulf 
of Mexico, the Caribbean Sea, and Pacific Ocean, including Alaska, 
Hawaii, and Pacific Islands. Similar to the current fleet's operations, 
the Proposed Action would include vessel and aircraft operations as 
well as shipboard training exercises to meet the Coast Guard's mission 
responsibilities. OPCs would support the Coast Guard's missions that 
generally occur more than 50 nm (92 km) from shore and require long 
transit time to reach the farthest extent of the Coast Guard's AORs, 
forward deployment of forces with the U.S. Navy for National Defense, 
and an extended on-scene vessel presence.
    An OPC's typical deployment schedule would be to perform law 
enforcement activities, which include interdicting any vessel suspected 
of illegal or unsafe activity in U.S. waters (e.g., fishing without 
appropriate permits, carrying excessive passengers, or transporting 
contraband). However, the OPC would be expected to perform other 
federally-mandated emergent (e.g., hurricane disaster response) or non-
emergent missions, typically without sufficient time to return to port 
for additional provisions or reconfiguration. These missions include 
Ports, Waterways, and Coastal Security, Search and Rescue, Drug 
Interdiction, Migrant Interdiction, Living Marine Resource, Other Law 
Enforcement, and Defense Readiness. The OPC would also be required to 
enforce maritime environmental laws and regulations, escort vessels to 
protect national security, and to ensure safe maritime navigation. 
Coast Guard mandated missions are covered under Title 14 U.S.C. and 6 
U.S.C. 468.
    OPCs would carry up to three small, ridged hull inflatable over the 
horizon (OTH) boats, but only one to two OTH boats would be launched in 
support of OPC operations. Operations with OTH boats would enhance 
operational effectiveness by allowing for simultaneous boarding, 
inspecting, seizing, and neutralizing of surface targets of interest 
(i.e., civilians suspected of breaking the law or requiring 
assistance). The OTH boats would also perform in situations and areas 
where it is either physically impossible or dangerous for the OPC to 
navigate. OTH boats would support activities such as vessel boardings, 
passenger transfers, and rescue of a person in distress.
    All OPCs would be flight deck-equipped with the ability to launch, 
recover, hangar, and maintain manned (i.e., helicopters) aircraft. The 
flight deck of the OPC would be capable of launching and recovering 
helicopters including all variants up to equivalent weight of a 
Sikorsky S-92. In general, helicopters supporting an OPC would either 
be from an embarked aviation detachment, or would fly from an 
established airstrip on shore either to the OPC or from the OPC to 
shore. Helicopter flights associated with the Proposed Action would 
occur in all Coast Guard AORs, and could be used for transport of 
personnel and equipment and for conducting training (e.g., landing 
qualifications), in addition to supporting all OPC missions. All 
aircraft would follow the Coast Guard's Air Operations Manual 
(COMDTINST M3710.1H, October 2018).
    All OPCs would also be flight deck-equipped with the ability to 
launch, recover, hangar, and maintain an Unmanned Aircraft System 
(UAS). Depending on available space, multiple UAS may be utilized. The 
OPC would have the capability to operate video-equipped UAS that would 
extend the visual capability of the OPC when conducting operations. The 
UAS would be deployed and recovered from the OPC. At this time, the 
specific type of UAS that would be deployed from the OPC is not known 
because the Coast Guard would acquire the most current UAS technology 
after the OPCs are operational. Coast Guard UAS Division sets policies 
and Standard Operating Procedures specific to UAS operations, including 
regulations that differ from those governing manned flight operations
    Every 18-24 months, the OPC crew would undergo 3-4 weeks of 
training and evaluation, including over 100 drills and exercises in 
different scenarios (e.g., flooding, combat, fires, refueling at sea, 
towing, active shooter) to demonstrate the crew's abilities to safely 
and effectively run the ship. During this training evaluation, a 
significant administrative portion is dedicated to ensure the ship's 
compliance with applicable laws, regulations, and policies. Some of the

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activities are integral to Coast Guard emergency response. Although 
emergency response is not a part of the Proposed Action, training is 
required. Therefore, training on an OPC for an emergency response is 
considered part of the Proposed Action. Training would entail 
practicing response to a simulated emergency while continuing the safe 
operation and navigation of the OPC.
    Gunnery training may occur up to four times per year on each OPC 
vessel and would only occur in ranges authorized by the Coast Guard and 
when possible, in established Navy ranges, particularly when live 
ammunition is used. Areas with sensitive marine resources would not be 
used for gunnery training.
    Vessel performance testing would occur up to annually and would 
typically occur near that vessel's homeport similar to testing 
currently conducted for MECs.
    Coast Guard OPC operations and training would occur after delivery 
of each OPC from the shipbuilder to the Coast Guard. For example, OPC-1 
delivery to the Coast Guard is expected in 2022 and would undergo 
approximately one year of training to become ``Ready for Operations.'' 
OPC-1 would then become operational in 2023. The last OPC (i.e., OPC-
25) is expected to be delivered in 2037 and would then become 
operational in 2038.
    Under Alternative 2, Reduced Acquisition: The Coast Guard would 
explore the acquisition of fewer OPCs after the completion of OPC-1 
through OPC-4 which are under contract. The Coast Guard would consider 
five, ten, or fifteen OPCs via a re-competition of the original OPC 
contract as replacements for a corresponding number of in-service MECs. 
The Coast Guard would then need to replace the remaining MECs on a one-
for-one basis, using whatever replacement hulls the Coast Guard could 
obtain when deterioration or obsolescence requires decommissioning. The 
life cycle training and logistical costs of maintaining several unique 
hulls would exceed the corresponding costs of maintaining a class of 25 
cutters that would be built specifically to conduct missions in the 
Coast Guard's AORs. Costs and challenges are similar to what is 
described under Alternative 3.
    Under Alternative 3, Purchase, Lease, and Inherit: The Coast Guard 
would explore various forms of cutter purchase or lease, or inherit 
vessels from the U.S. Navy, as the need arises. This would mean that as 
a MEC reaches or surpasses the end of its economic service life, that 
cutter would not necessarily be replaced with the same type of asset or 
by an asset with similar capabilities. One-for-one MEC replacement 
would cost far more per replacement hull because it eliminates any 
workforce savings associated with a ship with capabilities designed 
specifically to conduct Coast Guard missions in areas that may exceed 
50 nm (93 km) from shore.
    Other drawbacks to the purchase, lease, and inherit alternative 
include the lack of an existing domestic commercial vessel capable of 
meeting available options to Purchase and Build[hyphen]to[hyphen]Lease.
    One of the major challenges with this approach is that Coast Guard 
systems would not be properly integrated, limiting ability of assets to 
communicate in real time and resulting in decreased efficiency 
throughout the system, as well as higher maintenance costs.
    No Action Alternative: The evaluation of a No Action Alternative is 
required by the regulations implementing NEPA. Under the No Action 
Alternative, the Coast Guard would acquire OPC-1 through OPC-4, then 
would fulfill its missions in the Atlantic and Pacific Oceans and Gulf 
of Mexico using existing assets, which are reaching the end of their 
service lives. The existing assets would continue to age, causing a 
decrease in efficiency of machinery as well as an increased risk of 
equipment failure or damage, and would not be considered reliable for 
immediate emergency response. In addition, it would become more 
difficult for an ageing fleet to remain in compliance with 
environmental laws and regulations and standards for safe operation. 
Further Service Life Extensions become more challenging as significant 
systems and parts are no longer available, which requires contracting 
for systems or parts to be made specifically for the vessel.
    The No Action Alternative would also not meet the Coast Guard's 
statutory mission requirements in the Atlantic and Pacific Oceans and 
Gulf of Mexico by providing air, surface, and shore-side presence in 
those areas. The Coast Guard also enforces the Marine Mammal Protection 
Act (MMPA) and Endangered Species Act (ESA), and without reliable Coast 
Guard presence, enforcement of these laws would be significantly 
reduced. As such, the No Action Alternative does not meet the purpose 
and need.

Summary of Expected Impacts

    While the Coast Guard must work toward environmental compliance 
during the design and acquisition of OPCs, each vessel is not expected 
to impact the environment or biological resources until it is 
operational. In addition, vessel construction in commercial shipyards 
is not expected to impact any physical or biological resources.
    Although the total number of OPCs may be subject to change, 
Congressional Authorization is for no more than 25. Therefore, the 
PEIS/POEIS analyzes the potential impact associated with the proposed 
acquisition and operation of up to 25 OPCs, as this would be the 
highest number projected to be operational in the Coast Guard's AORs. 
Acoustic and physical stressors associated with the Proposed Action may 
potentially impact the physical and biological environment in the AORs. 
Potential acoustic stressors include: Underwater transmissions (depth-
sounder/navigation system), vessel noise, aircraft noise, and gunnery 
noise. OPCs would not feature SONAR, but would employ navigational 
systems. Potential physical stressors include: Vessel movement, 
aircraft movement (helicopters, UAS), and marine expended materials 
(MEM).
    Since the OPC AORs cover a broad geographic area, stressors 
associated with the Proposed Action may potentially impact air quality, 
ambient sound, biological resources (including critical habitat), and 
socioeconomic resources. The PEIS/POEIS evaluates the likelihood that a 
resource would be exposed to or encounter a stressor and identifies the 
potential impact associated with that exposure or encounter. The 
likelihood of an exposure or encounter is based on the stressor, 
location, and timing relative to the spatial and temporal distribution 
each biological resource or critical habitat.
    Under the Proposed Action, underwater acoustic transmissions, 
vessel noise, aircraft noise, gunnery noise, vessel movement, aircraft 
movement, and MEM associated with the Proposed Action is not expected 
to result in significant impacts to the following resources: Air 
quality, ambient sound, marine vegetation, marine invertebrates, flying 
insects, birds, bats, marine fish, Essential Fish Habitat, marine 
reptiles, marine mammals, commercial fishing, marine construction, 
mineral extraction, oil and gas extraction, recreation and tourism, 
renewable energy, research, transportation and shipping, and 
subsistence fishing and hunting. The Proposed Action may affect, but is 
not likely to adversely affect any ESA-listed marine invertebrates, 
flying insects, birds, bats, fish, marine reptiles, and marine mammals.
    There would be no effect to the critical habitat of black abalone, 
staghorn coral, and elkhorn coral. The

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Proposed Action is not expected to result in the destruction or adverse 
modification of federally-designated critical habitat for the piping 
plover, spectacled eider, Steller's eider, western snowy plover, 
bocaccio, eulachon, green sturgeon, Gulf sturgeon, smalltooth sawfish, 
yelloweye rockfish, green sea turtle, hawksbill sea turtle, leatherback 
sea turtle, loggerhead sea turtle, humpback whale, North Atlantic right 
whale, North Pacific right whale, false killer whale, Southern resident 
killer whale, Steller sea lion, Hawaiian monk seal, ringed seal, West 
Indian manatee, sea otter, and polar bear. Pursuant to the Migratory 
Bird Treaty Act (MBTA; 16 U.S.C. 703-712 et seq.), the Proposed Action 
would not result in a significant adverse effect on migratory bird 
populations. Pursuant to the Magnuson-Stevens Fishery Conservation and 
Management Act (MSA; 16 U.S.C. Sections 1801-1882), underwater acoustic 
transmissions, vessel noise, vessel movement, and MEM associated with 
the Proposed Action would not adversely affect the quality or quantity 
of EFH within the Coast Guard's AORs.

Anticipated Permits and Authorizations

    The Coastal Zone Management Act (CZMA; 16 U.S.C. 1451 et seq.) was 
enacted to protect the coastal environment from demands associated with 
residential, recreational, and commercial uses. The Coast Guard would 
determine the impact of the Proposed Action and provide a Coastal 
Consistency Determination or Negative Determination to the appropriate 
state agency for anticipated concurrence once the homeports are 
selected for the OPCs.
    The Endangered Species Act (ESA) of 1973 (16 U.S.C. 1531 et seq.) 
provides for the conservation of endangered and threatened species and 
the ecosystems on which they depend. The Coast Guard anticipates 
consulting under Section 7 of the ESA with the services, the National 
Marine Fisheries Service and the U.S. Fish and Wildlife Service that 
have jurisdiction over the species (50 CFR part 402.14(a)).
    The Marine Mammal Protection Act (MMPA; 16 U.S.C. 1361 et seq.) 
established, with limited exceptions, a moratorium on the ``taking'' of 
marine mammals in waters or on lands under U.S. jurisdiction, and on 
the High Seas by vessels or persons under U.S. jurisdiction. The MMPA 
further regulates ``takes'' of marine mammals in U.S. waters and by 
U.S. citizens on the High Seas. The term ``take,'' as defined in 
Section 3 (16 U.S.C. 1362) of the MMPA, means ``to harass, hunt, 
capture, or kill, or attempt to harass, hunt, capture, or kill any 
marine mammal''. ``Harassment'' was further defined in the 1994 
amendments to the MMPA as any act of pursuit, torment, or annoyance 
which (i) has the potential to injure a marine mammal or marine mammal 
stock in the wild (i.e., Level A Harassment); or (ii) has the potential 
to disturb a marine mammal or marine mammal stock in the wild by 
causing disruption of behavioral patterns, including, but not limited 
to, migration, breathing, nursing, breeding, feeding, or sheltering 
(i.e., Level B Harassment). The Coast Guard anticipates requesting a 
Letter of Authorization to ``take'' marine mammals, defined as Level B 
harassment.

Schedule for the Decision-Making Process

    The first OPC is expected to be operational by 2023 with a 
projected construction completion date of all 25 OPCs by 2037. Because 
the first OPC would not be operational until at least 2023 and the last 
not until at least 2038, new information may become available after the 
completion of the PEIS/POEIS. In that case, supplemental NEPA/E.O. 
12114 documentation may be prepared in support of new information or 
changes in the Proposed Action considered under the PEIS/POEIS. Some 
examples of new information that may be included in supplemental NEPA/
E.O. 12114 documentation are substantial changes in the Proposed Action 
relevant to environmental concerns, significant new environmental 
changes or information bearing on the Proposed Action, or information 
that arises to further the purposes of NEPA/E.O. 12114. The PEIS/OEIS 
is expected to be completed within 24 months of the date from which 
this notice is published in the Federal Register.

Public Scoping Process

    The notice of intent initiates the scoping process, which guides 
the development of a PEIS/POEIS. The Coast Guard is seeking comments on 
the potential environmental impacts that may result from the 
acquisition, testing (post-dockside), and operation of up to 25 OPCs, 
and any associated onboard training to help in the development of a 
PEIS/POEIS. The Coast Guard is also seeking input on relevant 
information, studies, or analyses of any kind concerning impacts 
potentially affecting the quality of the human environment as a result 
of the Proposed Action. NEPA requires federal agencies to consider 
environmental impacts that may result from a Proposed Action, to inform 
the public of potential impacts and alternatives, and to facilitate 
public involvement in the assessment process. E.O. 12114, Environmental 
Effects Abroad of Major Federal Actions (44 Federal Register [FR] 
1957), directs federal agencies to be informed of and take account of 
environmental considerations when making decisions regarding major 
federal actions outside of the U.S., its territories, and possessions. 
E.O. 12114 requires federal agencies to assess the effects of their 
actions outside the U.S. that may significantly harm the physical and 
natural environment. A PEIS/POEIS would include, among other topics, 
discussions of the purpose and need for the Proposed Action, a 
description of alternatives, a description of the affected environment, 
and an evaluation of the environmental impact of the Proposed Action 
and alternatives. The Coast Guard proposes to combine the PEIS and 
POEIS into one document, as permitted under NEPA and E.O. 12114, to 
reduce duplication.
    The Coast Guard will evaluate a range of reasonable alternatives, 
and will analyze the No Action Alternative as a baseline for comparing 
the impacts of the Proposed Action. For the purposes of this Proposed 
Action, the No Action Alternative is defined as not approving the 
acquisition of OPC Stage 2 cutters (OPC cutters 5-25) and only 
replacing up to four of the current operational MECs using the four 
OPCs already under contract. Alternatives could include a reduction in 
the number of acquired vessels, upgrading the existing MEC fleet to 
further extend their useful life, and exploring various forms of cutter 
purchase or lease, or inheriting vessels from the U.S. Navy. The 
scoping period will begin upon publication of this notice in the 
Federal Register and continue for a period of forty-five (45) days.
    The Coast Guard intends to follow the Council on Environmental 
Quality (CEQ) regulations implementing the NEPA (40 Code of Federal 
Regulations 1500 et seq.) by scoping through public comments. Scoping, 
which is integral to the process for implementing NEPA, provides a 
process to ensure that (1) issues are identified early and properly 
studied; (2) issues of little significance do not consume substantial 
time and effort; (3) the draft PEIS/POEIS is thorough and balanced; and 
(4) delays caused by an inadequate PEIS/POEIS are avoided.
    Public scoping is a process for determining the scope of issues to 
be addressed in this PEIS/POEIS and for identifying the issues related 
to the Proposed Action that may have a significant effect on the 
environment. The scoping process begins with

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publication of this notice and ends after the Coast Guard has:
     Invited the participation of Federal, State, and local 
agencies, any affected Indian tribe, and other interested persons;
     Consulted with affected Federally Recognized Tribes on a 
government-to-government basis, and with affected Alaska Native 
corporations, in accordance with E.O. 13175 and other policies. Native 
American concerns, including impacts on Indian trust assets and 
potential impacts to cultural resources, will be given appropriate 
consideration;
     Determined the scope and the issues to be analyzed in 
depth in the PEIS/POEIS;
     Indicated any related environmental assessments or 
environmental impact statements that are not part of the PEIS/POEIS;
     Identified other relevant environmental review and 
consultation requirements, such as Coastal Zone Management Act 
consistency determinations, and threatened and endangered species and 
habitat impacts; and
     Indicated the relationship between timing of the 
environmental review and other aspects of the application process.
    With this Notice of Intent, we are asking federal, state, Tribal, 
and local agencies with jurisdiction or special expertise with respect 
to environmental issues in the project area to formally cooperate with 
us in the preparation of the PEIS/POEIS.
    Once the scoping process is complete, Coast Guard will prepare a 
draft PEIS/POEIS, and will publish a Federal Register notice announcing 
its public availability. We will provide the public with an opportunity 
to review and comment on the draft PEIS/POEIS. After Coast Guard 
considers those comments, we will prepare the final PEIS/POEIS and 
similarly announce its availability and solicit public review and 
comment. Comments received during the draft PEIS/POEIS review period 
will be available in the public docket and made available in the final 
PEIS/POEIS.
    Pursuant to the CEQ regulations, Coast Guard invites public 
participation in the NEPA process. This notice requests public 
participation in the scoping process, establishes a public comment 
period, and provides information on how to participate.
    The 45-day public scoping period begins November 18, 2020 and ends 
January 04, 2021. Comments and related material must be received by the 
Coast Guard and submitted to the online docket via https://www.regulations.gov/ gov/., or otherwise reach the OPC Program Manager on 
or before January 04, 2021.
    We encourage you to submit specific, timely comments through the 
Federal portal at https://www.regulations.gov, on the site provided when 
searching on the above docket number or searching for Offshore Patrol 
Cutter. If your material cannot be submitted using https://www.regulations.gov, contact the OPC program manager at [email protected]. If you cannot submit comments electronically, written 
comments can be sent to: OPC Program Manager (CG-9322), U.S. Coast 
Guard Headquarters, 2703 Martin Luther King Jr. Ave. SE, Stop 7800, 
Washington, DC 20593.
    In your submission, please include the docket number for this 
notice of intent and provide a reason for each suggestion or 
recommendation.
    We accept anonymous comments. All comments received will be posted 
without change to https://www.regulations.gov and will include any 
personal information you have provided. For more about privacy and the 
docket, visit https://www.regulations.gov/privacyNotice. Documents 
mentioned in this notice of intent as being available in the docket, 
and all public comments, will be in our online docket at https://www.regulations.gov and can be viewed by following that website's 
instructions.

Public Meeting

    Coast Guard does not plan to hold public meetings during the 
scoping period, however if sufficient requests for public comment are 
received, Coast Guard will consider holding public meetings and will 
announce the dates, times, and locations in a separate document 
published in the Federal Register. To receive an email notice whenever 
a comment or notice, including the notice announcing when any meetings 
are to be held, is submitted or issued, go to the online docket and 
select the sign-up-for-email-alerts option. When it is published, we 
will place a copy of the announcement in the docket, and you will 
receive an email alert from www.regulations.gov. Comments received in 
response to this solicitation, including names and addresses of those 
who comment, will be part of the public record for this Proposed 
Action. Comments submitted anonymously will be accepted and considered, 
however.

    Authority: This PEIS/POEIS is being prepared in compliance with 
the National Environmental Policy Act (NEPA; 40 CFR 1502.14(d)) and 
Executive Order (E.O.) 12114.

    Dated: November 13, 2020.
Andrew T. Pecora,
Captain, U.S. Coast Guard, OPC Program Manager (CG-9322).
[FR Doc. 2020-25452 Filed 11-17-20; 8:45 am]
BILLING CODE 9110-04-P