Procedures for Debarring Vessels From Entering U.S. Ports, 23501-23504 [2024-07169]
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Federal Register / Vol. 89, No. 66 / Thursday, April 4, 2024 / Rules and Regulations
§ 301.38–2
[Amended]
2. Amend § 301.38–2, in paragraph
(a), by adding the words ‘‘,
Mahoberberis, and Mahonia’’ after the
word ‘‘Berberis’’ in the first sentence.
■
Done in Washington, DC, this 28th day of
March 2024.
Donna Lalli,
Acting Administrator, Animal and Plant
Health Inspection Service.
[FR Doc. 2024–07038 Filed 4–3–24; 8:45 am]
BILLING CODE 3410–34–P
DEPARTMENT OF HOMELAND
SECURITY
8 CFR Part 258
[Docket No. USCBP–2022–0016]
RIN 1651–AB20
[CBP Dec. 24–07]
Procedures for Debarring Vessels
From Entering U.S. Ports
U.S. Customs and Border
Protection, Department of Homeland
Security.
ACTION: Final rule.
AGENCY:
This final rule amends
Department of Homeland Security
(DHS) regulations by adding procedures
regarding DHS’s authority to debar from
entering U.S. ports vessels owned or
chartered by an entity found to be in
violation of certain laws and regulations
relating to the performance of longshore
work by nonimmigrant crew members.
The new procedures govern how U.S.
Customs and Border Protection (CBP)
provides notice to a vessel owner or
operator of a debarment and how the
owner or operator may request
mitigation. The new procedures will
ensure that the vessel debarment
process is consistent, fair, and
transparent.
SUMMARY:
This final rule is effective on
May 6, 2024.
FOR FURTHER INFORMATION CONTACT: Lisa
Santana Fox, Director, Fines, Penalties
and Forfeitures Division, Office of Field
Operations, U.S. Customs and Border
Protection, at 202–344–2730 or
Lisa.K.SanatanaFox@cbp.dhs.gov.
SUPPLEMENTARY INFORMATION:
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DATES:
I. Background and Legal Authority
Section 258 of the Immigration and
Nationality Act of 1952 (INA) (Pub. L.
82–414, 66 Stat. 163), as amended,
prohibits alien crew members (classified
as nonimmigrants under section
101(a)(15)(D) of the INA, 8 U.S.C.
1101(a)(15)(D)) from entering the United
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States to perform longshore work,1
subject to certain statutory exceptions.
See INA 258, 8 U.S.C. 1288; see also
INA 101(a)(15)(D) and 214(f), 8 U.S.C.
1101(a)(15)(D) and 1184(f). The INA
authorizes the Department of Homeland
Security (DHS) and the Secretary of
Labor to investigate violations of, and
enforce the INA provisions relating to,
the performance of longshore work by
nonimmigrant crew members. See INA
251(d) and 258(c)(4)(E)(i), 8 U.S.C.
1281(d) and 1288(c)(4)(E)(i); see also 20
CFR 655.600 and 655.605. The Secretary
of Labor will notify the Secretary of
Homeland Security (Secretary) if the
Secretary of Labor determines that a
violation has occurred. See INA
258(c)(4)(E)(i), 8 U.S.C. 1288(c)(4)(E)(i).
The INA then directs the Secretary to
debar any vessel or vessels owned or
chartered by the violating entity from
entering U.S. ports for a period not to
exceed one year. See INA 258(c)(4)(E)(i),
8 U.S.C. 1288(c)(4)(E)(i); 8 CFR
258.1(a)(2). The Secretary has delegated
to the Commissioner of U.S. Customs
and Border Protection (CBP) the
authority to enforce and administer INA
provisions relating to longshore work,
including the authority to debar a
vessel. See DHS Delegation No.
7010.3(B)(11) (Revision No. 03.1).
DHS regulations implementing the
longshore work requirements are set
forth in title 8 of the Code of Federal
Regulations (CFR) parts 251 and 258.
See 8 CFR 251 and 258. However, DHS
regulations do not include procedures
for CBP to follow when debarring a
vessel, nor do they state how a vessel
owner or operator may request
mitigation of a debarment. In 2022, DHS
published a notice of proposed
rulemaking (NPRM) to add procedures
for how CBP would notify an entity of
a debarment and how a vessel owner or
operator, or its authorized
representative, may request mitigation
of the debarment. See 87 FR 21582
(April 12, 2022). The NPRM proposed
procedures to generally codify the steps
CBP took in 2009 and 2010, the only
times CBP has imposed debarments.
1 Longshore work is defined as any activity in the
United States or in U.S. coastal waters relating to
the loading or unloading of cargo, the operation of
cargo-related equipment (whether or not integral to
the vessel), and the handling of mooring lines on
the dock when the vessel is made fast or let go. See
INA 258(b)(1), 8 U.S.C. 1288(b)(1). Longshore work
does not include the loading or unloading of certain
cargo including oil and hazardous substances and
materials for which the Secretary of Transportation
has prescribed regulations governing cargo handling
or storage; the manning of vessels and the duties,
qualifications, and training of the officers and crew
of vessels carrying such cargo; and, the reduction
or elimination of discharge during ballasting, tank
cleaning, and handling of such cargo. See INA
258(b)(2), 8 U.S.C. 1288(b)(2).
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The purpose of the NPRM was to
establish consistent, fair, and
transparent debarment procedures for
both CBP and the entity subject to the
debarment.
The NPRM provided for a 60-day
comment period, which closed on June
13, 2022. No comments were received.
DHS is adopting the NPRM as final
without change.
II. Procedures for Debarring Vessels
From Entering U.S. Ports
This final rule adds 8 CFR 258.4,
which specifies the procedures that CBP
will take prior to issuing a debarment
and describe how a vessel owner or
operator, or its authorized
representative, may request mitigation
of the debarment. These new procedures
are described below.
A. Definitions
Paragraph (a) of section 258.4 sets
forth definitions for the following terms
for purposes of CBP’s debarment
proceedings: good cause, mitigation,
and mitigation meeting. Good cause, for
purposes of extending the deadline for
filing an answer, includes technical
difficulties or natural disasters that
affect the violating entity’s ability to
receive, process, or transmit relevant
information or data; or other instances
in which CBP, in its discretion,
determines an undue hardship on the
violating entity warrants an extension of
the deadline for filing an answer. See 8
CFR 258.4(a).
Mitigation in a debarment proceeding
means determining the length of the
debarment, the ports covered by the
debarment, and the vessels subject to
the debarment. It does not include
revocation of the requirement to debar.
See 8 CFR 258.4(a).
CBP notes that a violating entity may
mitigate its length of debarment by
showing that a specific period of
debarment would have a negative
impact on the U.S. economy and/or U.S.
citizens/consumers. Examples of this
include showing that a specific period
of business activity (i.e., fishing season)
will be negatively impacted if a vessel
were debarred, or that a vessel will be
transporting produce or a type of
perishable consumer good to the United
States within a specific time frame for
which debarment would be detrimental.
Mitigation meeting is a personal
appearance before a designated CBP
official in which representatives of the
violating entity can provide information
and explain why CBP should mitigate
the debarment. See 8 CFR 258.4(a).
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B. Notice of Intent To Debar
Paragraph (b) of section 258.4 sets
forth the procedures pertaining to the
issuance of a notice of intent to debar
and specifies the information to be
included in such notice. After receiving
notice from the Secretary of Labor that
an entity has violated the relevant
statutes or regulations, CBP will serve a
notice of intent to debar on the entity
subject to the notice of violation. See 8
CFR 258.4(b)(1). Service will be by a
method that demonstrates receipt, such
as certified mail with return receipt or
express courier delivery, by the entity
identified in the notice of violation
received from the Secretary of Labor.
The date of service is the date of receipt.
See 8 CFR 258.4(b)(3).
The notice of intent to debar will
include specific information, including:
the proposed period of debarment, not
to exceed one year; the ports covered by
the proposed debarment; a brief
explanation of the reasons for the
proposed debarment; the statutory and
regulatory authority for the proposed
debarment; a statement that the entity
subject to the debarment may file an
answer and request a mitigation
meeting; the procedures for filing an
answer and requesting a mitigation
meeting, including the date by which
the answer must be received and the
address to which it may be submitted;
and, a statement that in the absence of
a timely filed answer, the proposed
debarment will become final 30 days
after service of the notice of intent to
debar. See 8 CFR 258.4(b)(2)(i) through
(vii).
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C. Answer and Request for Mitigation
Meeting
Paragraph (c) of section 258.4
describes how an entity should file an
answer with CBP and how to request
mitigation and a mitigation meeting.
Any entity upon which the notice of
intent to debar has been served, or its
authorized representative, may file with
CBP an answer that indicates the
specific reasons why the proposed
debarment should be mitigated and
whether a mitigation meeting is
requested. CBP must receive the answer
within 30 days from the date of service
of the notice of intent to debar. See 8
CFR 258.4(c)(1). As explained
previously, the date of service of the
notice of intent to debar is the date the
entity received the notice. See 8 CFR
258.4(b)(3).
CBP, in its discretion, may extend the
deadline for filing an answer up to an
additional 30 days upon a showing of
good cause as defined in 8 CFR 258.4(a).
Upon receipt of a request to extend the
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deadline, CBP will respond within five
business days by certified mail or
express courier. See 8 CFR
258.4(c)(2)(iv).
The answer must by dated,
typewritten or legibly written, signed
under oath, and include the address at
which the entity, or its authorized
representative, desires to receive further
communication. CBP may require that
the answer and any supporting
documentation be in English or be
accompanied by an English translation,
certified by a competent translator. See
8 CFR 258.4(c)(2)(i).
In addition to an answer, any entity
responding to a notice of intent to debar
must submit documentary evidence in
support of any request for mitigation
and may file a brief in support of any
arguments made. The entity may also
present evidence in support of any
request for mitigation at a mitigation
meeting. See 8 CFR 258.4(c)(2)(ii). A
mitigation meeting will be conducted if
the entity subject to the proposed
debarment requests one in accordance
with the requirements of this rule, or if
directed at any time by CBP. See 8 CFR
258.4(c)(2)(iii).
D. Disposition of Case
Paragraph (d) of section 258.4
describes how CBP will determine a
final order of debarment for each case.
The proposed debarment specified in
the notice of intent to debar will
automatically become a final order of
debarment 30 days after service of the
notice of intent to debar if no answer is
timely filed or if the answer admits the
allegations and does not request
mitigation or a mitigation meeting. See
8 CFR 258.4(d)(1). If CBP grants a good
cause extension to the deadline for
filing an answer, but no answer is
timely filed, the proposed debarment
will automatically become a final order
of debarment when the time for filing an
answer expires. See 8 CFR
258.4(c)(2)(iv) and (d)(1).
If an entity timely files an answer that
requests mitigation or a mitigation
meeting, CBP will determine a final
debarment and will issue to the entity
a final order of debarment in writing.2
CBP will also send notice, by certified
mail or express courier, to all interested
parties, including the relevant U.S. ports
of entry, that the entity subject to the
debarment is debarred and stating the
terms of the debarment. No appeal from
a final order of debarment will be
available. See 8 CFR 258.4(d)(2)–(3).
E. Debarment
Paragraph (e) of section 8 CFR 258.4
describes the information CBP will
consider when determining a proposed
debarment or a final debarment. It
specifies that CBP, in determining a
proposed and a final debarment, will
consider the information received from
the Secretary of Labor, any evidence or
arguments timely presented by the
entity subject to the debarment, and
other relevant factors. See 8 CFR
258.4(e)(1). Other relevant factors
include, but are not limited to: the
entity’s previous history of violations of
any provision of the INA; the number of
U.S. workers adversely affected by the
violation; the gravity of the violation;
the entity’s efforts to comply in good
faith with regulatory and statutory
requirements governing performance of
longshore work by nonimmigrant crew
members; the entity’s remedial efforts
and commitment to future compliance;
the extent of the entity’s cooperation
with the investigation; and, the entity’s
financial gain/loss due to the violation.
CBP will also consider the potential
financial loss, injury, or adverse effect to
other parties, including U.S. workers,
likely to result from the debarment. See
8 CFR 258.4(e)(2).
F. Notice of Completion of Debarment
Paragraph (f) of section 258.4 states
that upon completion of any debarment,
CBP will send notice, by certified mail
or express courier, to all interested
parties, including the entity subject to
the debarment and the relevant U.S.
ports of entry, that the entity subject to
the debarment has completed the
debarment and is once again permitted
to enter U.S. ports.
G. Record
Paragraph (g) of section 258.4 states
that CBP will keep a record of the
debarment proceedings, which includes,
but is not limited to, the materials
exchanged between CBP and the parties.
The provision further states that CBP
will retain the records in accordance
with CBP’s Records Retention Schedule
and the Freedom of Information Act.
Currently, this means CBP will retain
records for five years, after which the
records will be sent to the National
Archives.
III. Statutory and Regulatory Analysis
2 The
information received from the Secretary of
Labor, evidence or arguments timely presented by
the entity subject to the debarment, and any other
relevant factors that CBP considers in its
determination of the debarment will be disclosed in
its final determination of debarment to the violating
entity.
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A. Executive Orders 12866 and 13563
Executive Orders 12866 (Regulatory
Planning and Review), as amended by
Executive Order 14094 (Modernizing
Regulatory Review), and 13563
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(Improving Regulation and Regulatory
Review), 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,
reducing costs, harmonizing rules, and
promoting flexibility.
The Office of Management and Budget
(OMB) has not designated this rule a
significant regulatory action under
section 3(f) of Executive Order 12866, as
amended by Executive Order 14094.
Accordingly, OMB has not reviewed
this regulation.
Pursuant to section 258 of the INA,
CBP has the authority to debar vessels.
See INA 258, 8 U.S.C. 1288. This final
rule does not create that requirement.
Rather, this final rule would codify and
clarify existing practice, with some
exceptions, that CBP follows in carrying
out that requirement. Accordingly, even
without this rule, CBP still has the
authority to debar vessels. This rule is
being promulgated to avoid confusion
and to have, in writing, a clear and
consistent process for the debarment of
vessels.
CBP has debarred vessels in only two
instances in its recorded history, in
2009 and 2010. As described above, the
final rule will generally codify the
procedures CBP followed when
debarring vessels in 2009 and 2010,
with changes only to the type of mail
service CBP uses to serve notices of
intent to debar. The process for
debarring vessels that CBP has followed
is not changing as a result of this rule.
Therefore, this rule has no economic
impact on violating entities.
B. 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
as any independently owned and
operated business not dominant in its
field that qualifies as a small business
per the Small Business Act); or a small
not-for-profit organization; or a small
governmental jurisdiction (locality with
fewer than 50,000 people).
As explained above, pursuant to
section 258 of the INA, CBP is required
to debar vessels in certain situations.
This rule does not create such a
requirement. Instead, this final rule
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would codify and clarify the existing
procedures, with some exceptions, that
CBP follows in carrying out that
requirement. These procedures are
seldom used, as CBP has debarred
vessels in only two instances, once in
2009 and a second instance occurring in
2010. Furthermore, CBP is generally
adopting existing practices, and
accordingly, costs to violating entities
will not change as a result of this final
rule. CBP thus certifies that this final
rule will not have a significant
economic impact on a substantial
number of small entities.
C. Paperwork Reduction Act
The Paperwork Reduction Act (PRA)
of 1995 (44 U.S.C. 3507(d)) requires that
CBP consider the impact of paperwork
and other information collection
burdens imposed on the public. An
agency may not conduct, and a person
is not required to respond to, a
collection of information unless the
collection of information displays a
valid control number assigned by the
Office of Management and Budget.
There is no information collection
associated with this final rule, so the
provisions of the PRA do not apply.3
D. Congressional Review Act
The Congressional Review Act (5
U.S.C. 801 et seq.), as amended,
generally provides that before a major
rule may take effect, the agency
promulgating the rule must submit a
rule report, which includes a copy of
the rule, to each House of the Congress
and to the Comptroller General of the
United States. Under the Congressional
Review Act, a major rule is one that is
likely to result in an annual effect on the
U.S. economy of $100,000,000 or more.
See 5 U.S.C. 804(2). This final rule is
not a ‘‘major rule’’ as defined by the
Congressional Review Act.
E. Unfunded Mandates Reform Act
Title II of the Unfunded Mandates
Reform Act of 1995, enacted as Public
Law 104–4 on March 22, 1995, requires
each Federal agency, to the extent
permitted by law, to prepare a written
assessment of the effects of any Federal
mandate in a proposed or final agency
rule that may result in the expenditure
by state, local, and tribal governments,
in the aggregate, or by the private sector,
of $100 million or more (adjusted
annually for inflation) in any one year.
See 2 U.S.C. 1532(a). This rule will not
result in the expenditure by state, local,
and tribal governments, in the aggregate,
or by the private sector, of $100 million
3 The required Department of Labor attestations
are covered by OMB Control Number 1205–0309.
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23503
or more in any one year. Therefore, no
actions were deemed necessary under
the provisions of the Unfunded
Mandates Reform Act of 1995.
IV. Signing Authority
This regulation is being issued in
accordance with 19 CFR 0.2(a)
pertaining to the Secretary of Homeland
Security’s authority (or that of his
delegate) to approve regulations that are
not related to customs revenue
functions.
List of Subjects in 8 CFR Part 258
Aliens, Longshore and harbor
workers, Reporting and recordkeeping
requirements, Seamen.
For the reasons stated in the
preamble, DHS amends part 258 of title
8 of the Code of Federal Regulations as
follows:
PART 258—LIMITATIONS ON
PERFORMANCE OF LONGSHORE
WORK BY ALIEN CREWMEN
1. The authority citation for part 258
continues to read as follows:
■
Authority: 8 U.S.C. 1101, 1103, 1281; 8
CFR part 2.
■
2. Add new § 258.4 to read as follows:
§ 258.4
Debarment of vessels.
(a) Definitions. The following
definitions apply throughout this
section:
Good cause, for purposes of extending
the deadline for filing an answer,
includes: technical difficulties or
natural disasters that affect the violating
entity’s ability to receive, process, or
transmit relevant information or data; or
other instances in which CBP, in its
discretion, determines that an undue
hardship on the violating entity
warrants an extension of the deadline
for filing an answer.
Mitigation in a debarment proceeding
means determining the length of the
debarment, the ports covered by the
debarment, and the vessels subject to
the debarment. It does not include
revocation of the requirement to debar.
Mitigation meeting is a personal
appearance before a designated CBP
official in which representatives of the
violating entity can provide information
and explain why CBP should mitigate
the debarment.
(b) Notice of intent to debar.
(1) Issuance of notice. Upon receipt of
a notice of violation from the Secretary
of Labor pursuant to section 258 of the
Immigration and Nationality Act (8
U.S.C. 1288(c)(4)(E)(i)), CBP will serve a
notice of intent to debar on the entity
subject to the notice of violation, as
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provided in paragraph (b)(3) of this
section.
(2) Contents of notice. The notice of
intent to debar will include the
following:
(i) The proposed period of debarment,
not to exceed one year;
(ii) The ports covered by the proposed
debarment;
(iii) A brief explanation of the reasons
for the proposed debarment;
(iv) The statutory and regulatory
authority for the proposed debarment;
(v) A statement that the entity subject
to the debarment may file an answer
and request a mitigation meeting
pursuant to paragraph (c) of this section;
(vi) The procedures for filing an
answer and requesting a mitigation
meeting, including the date by which
the answer must be received and the
address to which it may be submitted;
and
(vii) A statement that in the absence
of a timely filed answer, the proposed
debarment will become final 30 days
after service of the notice of intent to
debar.
(3) Service. The notice of intent to
debar will be served by a method that
demonstrates receipt, such as certified
mail with return receipt or express
courier delivery, by the entity identified
in the notice of violation received from
the Secretary of Labor. The date of
service is the date of receipt.
(c) Answer; request for mitigation
meeting.
(1) General. Any entity upon which
the notice has been served, or its
authorized representative, may file with
CBP an answer that indicates the
specific reasons why the proposed
debarment should be mitigated and
whether a mitigation meeting is
requested. CBP must receive the answer
within 30 days from the date of service
of the notice of intent to debar.
(2) Procedures.
(i) Form. The answer must be dated,
typewritten or legibly written, signed
under oath, and include the address at
which the entity or its authorized
representative desires to receive further
communications. CBP may require that
the answer and any supporting
documentation be in English or be
accompanied by an English translation
certified by a competent translator.
(ii) Supporting documentation
required. In addition to an answer, any
entity responding to a notice of intent to
debar must submit documentary
evidence in support of any request for
mitigation and may file a brief in
support of any arguments made. The
entity may present evidence in support
of any request for mitigation at a
mitigation meeting.
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(iii) Mitigation meeting. A mitigation
meeting will be conducted if requested
by the entity subject to the proposed
debarment in accordance with the
requirements of this section, or if
directed at any time by CBP.
(iv) Good cause extension. CBP, in its
discretion, may extend the deadline for
filing an answer up to an additional 30
days from the original receipt of CBP’s
notice upon a showing of good cause.
Upon receipt of a request to extend the
deadline for filing an answer, CBP will
respond to the request for an extension
within 5 business days by certified mail
or express courier.
(d) Disposition of case.
(1) No response filed or allegations
not contested. If no answer is timely
filed or the answer admits the
allegations in the notice of intent to
debar and does not request mitigation or
a mitigation meeting, the proposed
debarment specified in the notice of
intent to debar automatically will
become a final order of debarment 30
days after service of the notice of intent
to debar. If CBP grants a good cause
extension pursuant to paragraph
(c)(2)(iv) of this section, and no answer
is timely filed, the proposed debarment
automatically will become a final order
of debarment when the time for filing an
answer expires.
(2) Answer filed; mitigation meeting
requested. If an answer is timely filed
that requests mitigation and/or a
mitigation meeting, CBP will determine
a final debarment in accordance with
paragraph (e) of this section.
(3) Unavailability of appeal. The final
order of debarment is not subject to
appeal.
(4) Notice of final order of debarment.
(i) CBP will issue to the entity subject
to the debarment a final order of
debarment in writing.
(ii) CBP will send notice, by certified
mail or express courier, to all interested
parties, including the relevant U.S. ports
of entry, that the entity subject to the
debarment is debarred and stating the
terms of the debarment.
(e) Debarment.
(1) Generally. In determining a
proposed debarment and a final
debarment, CBP will consider the
information received from the Secretary
of Labor, any evidence or arguments
timely presented by the entity subject to
the debarment, and any other relevant
factors.
(2) Other relevant factors. Other
relevant factors include, but are not
limited to, the following:
(i) The previous history of violations
of any provision of the INA by the entity
subject to the debarment;
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(ii) The number of U.S. workers
adversely affected by the violation;
(iii) The gravity of the violation;
(iv) The efforts made by the entity
subject to the debarment to comply in
good faith with the regulatory and
statutory requirements governing
performance of longshore work by
nonimmigrant crewmen;
(v) The remedial efforts by the entity
subject to the debarment;
(vi) The commitment to future
compliance by the entity subject to the
debarment;
(vii) The extent of cooperation with
the investigation by the entity subject to
the debarment;
(viii) The extent of financial gain/loss
to the entity subject to the debarment
due to the violation; and
(ix) The potential financial loss,
injury, or adverse effect to other parties,
including U.S. workers, likely to result
from the debarment.
(f) Notice of completion of debarment.
Upon completion of any debarment,
CBP will send notice, by certified mail
or express courier, to all interested
parties, including the entity subject to
the debarment, and the relevant U.S.
ports of entry, that the entity subject to
the debarment has completed the
debarment and is once again permitted
to enter U.S. ports.
(g) Record. CBP will keep a record of
the debarment proceedings which
includes, but is not limited to, the
materials exchanged between CBP and
the parties. Records will be retained in
accordance with CBP’s Records
Retention Schedule and the Freedom of
Information Act.
Alejandro N. Mayorkas,
Secretary, U.S. Department of Homeland
Security.
[FR Doc. 2024–07169 Filed 4–3–24; 8:45 am]
BILLING CODE 9111–14–P
DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
14 CFR Part 25
[Docket No. FAA–2024–0448; Special
Conditions No. 25–859–SC]
Special Conditions: Jet Aviation AG,
The Boeing Company Model 737–8
Series Airplane; Dynamic Test
Requirements for Single Occupant
Oblique Seats With or Without Airbags
and/or 3-Point Restraints
Federal Aviation
Administration (FAA), DOT.
ACTION: Final special conditions; request
for comments.
AGENCY:
E:\FR\FM\04APR1.SGM
04APR1
Agencies
[Federal Register Volume 89, Number 66 (Thursday, April 4, 2024)]
[Rules and Regulations]
[Pages 23501-23504]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2024-07169]
=======================================================================
-----------------------------------------------------------------------
DEPARTMENT OF HOMELAND SECURITY
8 CFR Part 258
[Docket No. USCBP-2022-0016]
RIN 1651-AB20
[CBP Dec. 24-07]
Procedures for Debarring Vessels From Entering U.S. Ports
AGENCY: U.S. Customs and Border Protection, Department of Homeland
Security.
ACTION: Final rule.
-----------------------------------------------------------------------
SUMMARY: This final rule amends Department of Homeland Security (DHS)
regulations by adding procedures regarding DHS's authority to debar
from entering U.S. ports vessels owned or chartered by an entity found
to be in violation of certain laws and regulations relating to the
performance of longshore work by nonimmigrant crew members. The new
procedures govern how U.S. Customs and Border Protection (CBP) provides
notice to a vessel owner or operator of a debarment and how the owner
or operator may request mitigation. The new procedures will ensure that
the vessel debarment process is consistent, fair, and transparent.
DATES: This final rule is effective on May 6, 2024.
FOR FURTHER INFORMATION CONTACT: Lisa Santana Fox, Director, Fines,
Penalties and Forfeitures Division, Office of Field Operations, U.S.
Customs and Border Protection, at 202-344-2730 or
[email protected].
SUPPLEMENTARY INFORMATION:
I. Background and Legal Authority
Section 258 of the Immigration and Nationality Act of 1952 (INA)
(Pub. L. 82-414, 66 Stat. 163), as amended, prohibits alien crew
members (classified as nonimmigrants under section 101(a)(15)(D) of the
INA, 8 U.S.C. 1101(a)(15)(D)) from entering the United States to
perform longshore work,\1\ subject to certain statutory exceptions. See
INA 258, 8 U.S.C. 1288; see also INA 101(a)(15)(D) and 214(f), 8 U.S.C.
1101(a)(15)(D) and 1184(f). The INA authorizes the Department of
Homeland Security (DHS) and the Secretary of Labor to investigate
violations of, and enforce the INA provisions relating to, the
performance of longshore work by nonimmigrant crew members. See INA
251(d) and 258(c)(4)(E)(i), 8 U.S.C. 1281(d) and 1288(c)(4)(E)(i); see
also 20 CFR 655.600 and 655.605. The Secretary of Labor will notify the
Secretary of Homeland Security (Secretary) if the Secretary of Labor
determines that a violation has occurred. See INA 258(c)(4)(E)(i), 8
U.S.C. 1288(c)(4)(E)(i). The INA then directs the Secretary to debar
any vessel or vessels owned or chartered by the violating entity from
entering U.S. ports for a period not to exceed one year. See INA
258(c)(4)(E)(i), 8 U.S.C. 1288(c)(4)(E)(i); 8 CFR 258.1(a)(2). The
Secretary has delegated to the Commissioner of U.S. Customs and Border
Protection (CBP) the authority to enforce and administer INA provisions
relating to longshore work, including the authority to debar a vessel.
See DHS Delegation No. 7010.3(B)(11) (Revision No. 03.1).
---------------------------------------------------------------------------
\1\ Longshore work is defined as any activity in the United
States or in U.S. coastal waters relating to the loading or
unloading of cargo, the operation of cargo-related equipment
(whether or not integral to the vessel), and the handling of mooring
lines on the dock when the vessel is made fast or let go. See INA
258(b)(1), 8 U.S.C. 1288(b)(1). Longshore work does not include the
loading or unloading of certain cargo including oil and hazardous
substances and materials for which the Secretary of Transportation
has prescribed regulations governing cargo handling or storage; the
manning of vessels and the duties, qualifications, and training of
the officers and crew of vessels carrying such cargo; and, the
reduction or elimination of discharge during ballasting, tank
cleaning, and handling of such cargo. See INA 258(b)(2), 8 U.S.C.
1288(b)(2).
---------------------------------------------------------------------------
DHS regulations implementing the longshore work requirements are
set forth in title 8 of the Code of Federal Regulations (CFR) parts 251
and 258. See 8 CFR 251 and 258. However, DHS regulations do not include
procedures for CBP to follow when debarring a vessel, nor do they state
how a vessel owner or operator may request mitigation of a debarment.
In 2022, DHS published a notice of proposed rulemaking (NPRM) to add
procedures for how CBP would notify an entity of a debarment and how a
vessel owner or operator, or its authorized representative, may request
mitigation of the debarment. See 87 FR 21582 (April 12, 2022). The NPRM
proposed procedures to generally codify the steps CBP took in 2009 and
2010, the only times CBP has imposed debarments. The purpose of the
NPRM was to establish consistent, fair, and transparent debarment
procedures for both CBP and the entity subject to the debarment.
The NPRM provided for a 60-day comment period, which closed on June
13, 2022. No comments were received. DHS is adopting the NPRM as final
without change.
II. Procedures for Debarring Vessels From Entering U.S. Ports
This final rule adds 8 CFR 258.4, which specifies the procedures
that CBP will take prior to issuing a debarment and describe how a
vessel owner or operator, or its authorized representative, may request
mitigation of the debarment. These new procedures are described below.
A. Definitions
Paragraph (a) of section 258.4 sets forth definitions for the
following terms for purposes of CBP's debarment proceedings: good
cause, mitigation, and mitigation meeting. Good cause, for purposes of
extending the deadline for filing an answer, includes technical
difficulties or natural disasters that affect the violating entity's
ability to receive, process, or transmit relevant information or data;
or other instances in which CBP, in its discretion, determines an undue
hardship on the violating entity warrants an extension of the deadline
for filing an answer. See 8 CFR 258.4(a).
Mitigation in a debarment proceeding means determining the length
of the debarment, the ports covered by the debarment, and the vessels
subject to the debarment. It does not include revocation of the
requirement to debar. See 8 CFR 258.4(a).
CBP notes that a violating entity may mitigate its length of
debarment by showing that a specific period of debarment would have a
negative impact on the U.S. economy and/or U.S. citizens/consumers.
Examples of this include showing that a specific period of business
activity (i.e., fishing season) will be negatively impacted if a vessel
were debarred, or that a vessel will be transporting produce or a type
of perishable consumer good to the United States within a specific time
frame for which debarment would be detrimental.
Mitigation meeting is a personal appearance before a designated CBP
official in which representatives of the violating entity can provide
information and explain why CBP should mitigate the debarment. See 8
CFR 258.4(a).
[[Page 23502]]
B. Notice of Intent To Debar
Paragraph (b) of section 258.4 sets forth the procedures pertaining
to the issuance of a notice of intent to debar and specifies the
information to be included in such notice. After receiving notice from
the Secretary of Labor that an entity has violated the relevant
statutes or regulations, CBP will serve a notice of intent to debar on
the entity subject to the notice of violation. See 8 CFR 258.4(b)(1).
Service will be by a method that demonstrates receipt, such as
certified mail with return receipt or express courier delivery, by the
entity identified in the notice of violation received from the
Secretary of Labor. The date of service is the date of receipt. See 8
CFR 258.4(b)(3).
The notice of intent to debar will include specific information,
including: the proposed period of debarment, not to exceed one year;
the ports covered by the proposed debarment; a brief explanation of the
reasons for the proposed debarment; the statutory and regulatory
authority for the proposed debarment; a statement that the entity
subject to the debarment may file an answer and request a mitigation
meeting; the procedures for filing an answer and requesting a
mitigation meeting, including the date by which the answer must be
received and the address to which it may be submitted; and, a statement
that in the absence of a timely filed answer, the proposed debarment
will become final 30 days after service of the notice of intent to
debar. See 8 CFR 258.4(b)(2)(i) through (vii).
C. Answer and Request for Mitigation Meeting
Paragraph (c) of section 258.4 describes how an entity should file
an answer with CBP and how to request mitigation and a mitigation
meeting. Any entity upon which the notice of intent to debar has been
served, or its authorized representative, may file with CBP an answer
that indicates the specific reasons why the proposed debarment should
be mitigated and whether a mitigation meeting is requested. CBP must
receive the answer within 30 days from the date of service of the
notice of intent to debar. See 8 CFR 258.4(c)(1). As explained
previously, the date of service of the notice of intent to debar is the
date the entity received the notice. See 8 CFR 258.4(b)(3).
CBP, in its discretion, may extend the deadline for filing an
answer up to an additional 30 days upon a showing of good cause as
defined in 8 CFR 258.4(a). Upon receipt of a request to extend the
deadline, CBP will respond within five business days by certified mail
or express courier. See 8 CFR 258.4(c)(2)(iv).
The answer must by dated, typewritten or legibly written, signed
under oath, and include the address at which the entity, or its
authorized representative, desires to receive further communication.
CBP may require that the answer and any supporting documentation be in
English or be accompanied by an English translation, certified by a
competent translator. See 8 CFR 258.4(c)(2)(i).
In addition to an answer, any entity responding to a notice of
intent to debar must submit documentary evidence in support of any
request for mitigation and may file a brief in support of any arguments
made. The entity may also present evidence in support of any request
for mitigation at a mitigation meeting. See 8 CFR 258.4(c)(2)(ii). A
mitigation meeting will be conducted if the entity subject to the
proposed debarment requests one in accordance with the requirements of
this rule, or if directed at any time by CBP. See 8 CFR
258.4(c)(2)(iii).
D. Disposition of Case
Paragraph (d) of section 258.4 describes how CBP will determine a
final order of debarment for each case. The proposed debarment
specified in the notice of intent to debar will automatically become a
final order of debarment 30 days after service of the notice of intent
to debar if no answer is timely filed or if the answer admits the
allegations and does not request mitigation or a mitigation meeting.
See 8 CFR 258.4(d)(1). If CBP grants a good cause extension to the
deadline for filing an answer, but no answer is timely filed, the
proposed debarment will automatically become a final order of debarment
when the time for filing an answer expires. See 8 CFR 258.4(c)(2)(iv)
and (d)(1).
If an entity timely files an answer that requests mitigation or a
mitigation meeting, CBP will determine a final debarment and will issue
to the entity a final order of debarment in writing.\2\ CBP will also
send notice, by certified mail or express courier, to all interested
parties, including the relevant U.S. ports of entry, that the entity
subject to the debarment is debarred and stating the terms of the
debarment. No appeal from a final order of debarment will be available.
See 8 CFR 258.4(d)(2)-(3).
---------------------------------------------------------------------------
\2\ The information received from the Secretary of Labor,
evidence or arguments timely presented by the entity subject to the
debarment, and any other relevant factors that CBP considers in its
determination of the debarment will be disclosed in its final
determination of debarment to the violating entity.
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E. Debarment
Paragraph (e) of section 8 CFR 258.4 describes the information CBP
will consider when determining a proposed debarment or a final
debarment. It specifies that CBP, in determining a proposed and a final
debarment, will consider the information received from the Secretary of
Labor, any evidence or arguments timely presented by the entity subject
to the debarment, and other relevant factors. See 8 CFR 258.4(e)(1).
Other relevant factors include, but are not limited to: the entity's
previous history of violations of any provision of the INA; the number
of U.S. workers adversely affected by the violation; the gravity of the
violation; the entity's efforts to comply in good faith with regulatory
and statutory requirements governing performance of longshore work by
nonimmigrant crew members; the entity's remedial efforts and commitment
to future compliance; the extent of the entity's cooperation with the
investigation; and, the entity's financial gain/loss due to the
violation. CBP will also consider the potential financial loss, injury,
or adverse effect to other parties, including U.S. workers, likely to
result from the debarment. See 8 CFR 258.4(e)(2).
F. Notice of Completion of Debarment
Paragraph (f) of section 258.4 states that upon completion of any
debarment, CBP will send notice, by certified mail or express courier,
to all interested parties, including the entity subject to the
debarment and the relevant U.S. ports of entry, that the entity subject
to the debarment has completed the debarment and is once again
permitted to enter U.S. ports.
G. Record
Paragraph (g) of section 258.4 states that CBP will keep a record
of the debarment proceedings, which includes, but is not limited to,
the materials exchanged between CBP and the parties. The provision
further states that CBP will retain the records in accordance with
CBP's Records Retention Schedule and the Freedom of Information Act.
Currently, this means CBP will retain records for five years, after
which the records will be sent to the National Archives.
III. Statutory and Regulatory Analysis
A. Executive Orders 12866 and 13563
Executive Orders 12866 (Regulatory Planning and Review), as amended
by Executive Order 14094 (Modernizing Regulatory Review), and 13563
[[Page 23503]]
(Improving Regulation and Regulatory Review), 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, reducing costs, harmonizing rules, and promoting flexibility.
The Office of Management and Budget (OMB) has not designated this
rule a significant regulatory action under section 3(f) of Executive
Order 12866, as amended by Executive Order 14094. Accordingly, OMB has
not reviewed this regulation.
Pursuant to section 258 of the INA, CBP has the authority to debar
vessels. See INA 258, 8 U.S.C. 1288. This final rule does not create
that requirement. Rather, this final rule would codify and clarify
existing practice, with some exceptions, that CBP follows in carrying
out that requirement. Accordingly, even without this rule, CBP still
has the authority to debar vessels. This rule is being promulgated to
avoid confusion and to have, in writing, a clear and consistent process
for the debarment of vessels.
CBP has debarred vessels in only two instances in its recorded
history, in 2009 and 2010. As described above, the final rule will
generally codify the procedures CBP followed when debarring vessels in
2009 and 2010, with changes only to the type of mail service CBP uses
to serve notices of intent to debar. The process for debarring vessels
that CBP has followed is not changing as a result of this rule.
Therefore, this rule has no economic impact on violating entities.
B. 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 as any
independently owned and operated business not dominant in its field
that qualifies as a small business per the Small Business Act); or a
small not-for-profit organization; or a small governmental jurisdiction
(locality with fewer than 50,000 people).
As explained above, pursuant to section 258 of the INA, CBP is
required to debar vessels in certain situations. This rule does not
create such a requirement. Instead, this final rule would codify and
clarify the existing procedures, with some exceptions, that CBP follows
in carrying out that requirement. These procedures are seldom used, as
CBP has debarred vessels in only two instances, once in 2009 and a
second instance occurring in 2010. Furthermore, CBP is generally
adopting existing practices, and accordingly, costs to violating
entities will not change as a result of this final rule. CBP thus
certifies that this final rule will not have a significant economic
impact on a substantial number of small entities.
C. Paperwork Reduction Act
The Paperwork Reduction Act (PRA) of 1995 (44 U.S.C. 3507(d))
requires that CBP consider the impact of paperwork and other
information collection burdens imposed on the public. An agency may not
conduct, and a person is not required to respond to, a collection of
information unless the collection of information displays a valid
control number assigned by the Office of Management and Budget. There
is no information collection associated with this final rule, so the
provisions of the PRA do not apply.\3\
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\3\ The required Department of Labor attestations are covered by
OMB Control Number 1205-0309.
---------------------------------------------------------------------------
D. Congressional Review Act
The Congressional Review Act (5 U.S.C. 801 et seq.), as amended,
generally provides that before a major rule may take effect, the agency
promulgating the rule must submit a rule report, which includes a copy
of the rule, to each House of the Congress and to the Comptroller
General of the United States. Under the Congressional Review Act, a
major rule is one that is likely to result in an annual effect on the
U.S. economy of $100,000,000 or more. See 5 U.S.C. 804(2). This final
rule is not a ``major rule'' as defined by the Congressional Review
Act.
E. Unfunded Mandates Reform Act
Title II of the Unfunded Mandates Reform Act of 1995, enacted as
Public Law 104-4 on March 22, 1995, requires each Federal agency, to
the extent permitted by law, to prepare a written assessment of the
effects of any Federal mandate in a proposed or final agency rule that
may result in the expenditure by state, local, and tribal governments,
in the aggregate, or by the private sector, of $100 million or more
(adjusted annually for inflation) in any one year. See 2 U.S.C.
1532(a). This rule will not result in the expenditure by state, local,
and tribal governments, in the aggregate, or by the private sector, of
$100 million or more in any one year. Therefore, no actions were deemed
necessary under the provisions of the Unfunded Mandates Reform Act of
1995.
IV. Signing Authority
This regulation is being issued in accordance with 19 CFR 0.2(a)
pertaining to the Secretary of Homeland Security's authority (or that
of his delegate) to approve regulations that are not related to customs
revenue functions.
List of Subjects in 8 CFR Part 258
Aliens, Longshore and harbor workers, Reporting and recordkeeping
requirements, Seamen.
For the reasons stated in the preamble, DHS amends part 258 of
title 8 of the Code of Federal Regulations as follows:
PART 258--LIMITATIONS ON PERFORMANCE OF LONGSHORE WORK BY ALIEN
CREWMEN
0
1. The authority citation for part 258 continues to read as follows:
Authority: 8 U.S.C. 1101, 1103, 1281; 8 CFR part 2.
0
2. Add new Sec. 258.4 to read as follows:
Sec. 258.4 Debarment of vessels.
(a) Definitions. The following definitions apply throughout this
section:
Good cause, for purposes of extending the deadline for filing an
answer, includes: technical difficulties or natural disasters that
affect the violating entity's ability to receive, process, or transmit
relevant information or data; or other instances in which CBP, in its
discretion, determines that an undue hardship on the violating entity
warrants an extension of the deadline for filing an answer.
Mitigation in a debarment proceeding means determining the length
of the debarment, the ports covered by the debarment, and the vessels
subject to the debarment. It does not include revocation of the
requirement to debar.
Mitigation meeting is a personal appearance before a designated CBP
official in which representatives of the violating entity can provide
information and explain why CBP should mitigate the debarment.
(b) Notice of intent to debar.
(1) Issuance of notice. Upon receipt of a notice of violation from
the Secretary of Labor pursuant to section 258 of the Immigration and
Nationality Act (8 U.S.C. 1288(c)(4)(E)(i)), CBP will serve a notice of
intent to debar on the entity subject to the notice of violation, as
[[Page 23504]]
provided in paragraph (b)(3) of this section.
(2) Contents of notice. The notice of intent to debar will include
the following:
(i) The proposed period of debarment, not to exceed one year;
(ii) The ports covered by the proposed debarment;
(iii) A brief explanation of the reasons for the proposed
debarment;
(iv) The statutory and regulatory authority for the proposed
debarment;
(v) A statement that the entity subject to the debarment may file
an answer and request a mitigation meeting pursuant to paragraph (c) of
this section;
(vi) The procedures for filing an answer and requesting a
mitigation meeting, including the date by which the answer must be
received and the address to which it may be submitted; and
(vii) A statement that in the absence of a timely filed answer, the
proposed debarment will become final 30 days after service of the
notice of intent to debar.
(3) Service. The notice of intent to debar will be served by a
method that demonstrates receipt, such as certified mail with return
receipt or express courier delivery, by the entity identified in the
notice of violation received from the Secretary of Labor. The date of
service is the date of receipt.
(c) Answer; request for mitigation meeting.
(1) General. Any entity upon which the notice has been served, or
its authorized representative, may file with CBP an answer that
indicates the specific reasons why the proposed debarment should be
mitigated and whether a mitigation meeting is requested. CBP must
receive the answer within 30 days from the date of service of the
notice of intent to debar.
(2) Procedures.
(i) Form. The answer must be dated, typewritten or legibly written,
signed under oath, and include the address at which the entity or its
authorized representative desires to receive further communications.
CBP may require that the answer and any supporting documentation be in
English or be accompanied by an English translation certified by a
competent translator.
(ii) Supporting documentation required. In addition to an answer,
any entity responding to a notice of intent to debar must submit
documentary evidence in support of any request for mitigation and may
file a brief in support of any arguments made. The entity may present
evidence in support of any request for mitigation at a mitigation
meeting.
(iii) Mitigation meeting. A mitigation meeting will be conducted if
requested by the entity subject to the proposed debarment in accordance
with the requirements of this section, or if directed at any time by
CBP.
(iv) Good cause extension. CBP, in its discretion, may extend the
deadline for filing an answer up to an additional 30 days from the
original receipt of CBP's notice upon a showing of good cause. Upon
receipt of a request to extend the deadline for filing an answer, CBP
will respond to the request for an extension within 5 business days by
certified mail or express courier.
(d) Disposition of case.
(1) No response filed or allegations not contested. If no answer is
timely filed or the answer admits the allegations in the notice of
intent to debar and does not request mitigation or a mitigation
meeting, the proposed debarment specified in the notice of intent to
debar automatically will become a final order of debarment 30 days
after service of the notice of intent to debar. If CBP grants a good
cause extension pursuant to paragraph (c)(2)(iv) of this section, and
no answer is timely filed, the proposed debarment automatically will
become a final order of debarment when the time for filing an answer
expires.
(2) Answer filed; mitigation meeting requested. If an answer is
timely filed that requests mitigation and/or a mitigation meeting, CBP
will determine a final debarment in accordance with paragraph (e) of
this section.
(3) Unavailability of appeal. The final order of debarment is not
subject to appeal.
(4) Notice of final order of debarment.
(i) CBP will issue to the entity subject to the debarment a final
order of debarment in writing.
(ii) CBP will send notice, by certified mail or express courier, to
all interested parties, including the relevant U.S. ports of entry,
that the entity subject to the debarment is debarred and stating the
terms of the debarment.
(e) Debarment.
(1) Generally. In determining a proposed debarment and a final
debarment, CBP will consider the information received from the
Secretary of Labor, any evidence or arguments timely presented by the
entity subject to the debarment, and any other relevant factors.
(2) Other relevant factors. Other relevant factors include, but are
not limited to, the following:
(i) The previous history of violations of any provision of the INA
by the entity subject to the debarment;
(ii) The number of U.S. workers adversely affected by the
violation;
(iii) The gravity of the violation;
(iv) The efforts made by the entity subject to the debarment to
comply in good faith with the regulatory and statutory requirements
governing performance of longshore work by nonimmigrant crewmen;
(v) The remedial efforts by the entity subject to the debarment;
(vi) The commitment to future compliance by the entity subject to
the debarment;
(vii) The extent of cooperation with the investigation by the
entity subject to the debarment;
(viii) The extent of financial gain/loss to the entity subject to
the debarment due to the violation; and
(ix) The potential financial loss, injury, or adverse effect to
other parties, including U.S. workers, likely to result from the
debarment.
(f) Notice of completion of debarment. Upon completion of any
debarment, CBP will send notice, by certified mail or express courier,
to all interested parties, including the entity subject to the
debarment, and the relevant U.S. ports of entry, that the entity
subject to the debarment has completed the debarment and is once again
permitted to enter U.S. ports.
(g) Record. CBP will keep a record of the debarment proceedings
which includes, but is not limited to, the materials exchanged between
CBP and the parties. Records will be retained in accordance with CBP's
Records Retention Schedule and the Freedom of Information Act.
Alejandro N. Mayorkas,
Secretary, U.S. Department of Homeland Security.
[FR Doc. 2024-07169 Filed 4-3-24; 8:45 am]
BILLING CODE 9111-14-P