Docket 20-15 OMB Narrative Supporting Statement Final

NARRATIVE SUPPORTING STATEMENT
FOR 46 CFR PART 540 AND
RELATED FORMS 132A AND 133A

A.

Justification

1.
Explain the circumstances that make the collection of information necessary.
Identify any legal or administrative requirements that necessitate the collection. Attach a
copy of the appropriate section of each statute and regulation mandating or authorizing the
information collection.
The Commission administers Sections 2 and 3 of Public Law 89-777 (46 U.S.C. 4410144106), which require vessel owners, charterers and operators of passenger vessels with
passenger berths or stateroom accommodations for at least 50 passengers, and embarking
passengers at United States ports, to establish their financial responsibility to meet liability
incurred for death or injury and to indemnify passengers in the event of nonperformance of
transportation.
46 CFR Part 540, entitled Passenger Vessel Financial Responsibility, implements Public
Law 89-777. The regulation (and its related application Form FMC-131, Application for
Certificate of Financial Responsibility) requires owners, operators or charterers of passenger
vessels subject to Public Law 89-777 to apply for an initial certificate or to file an amendment to
existing certificates. The Commission’s rules require that applications be filed at least 60 days
prior to any advertising, promotion or collection of deposits and fares for a Certificate
(Performance), and at least 60 days prior to sailing for a Certificate (Casualty).
Applicants may apply separately for each certificate or for both certificates on one
application. The method of establishing financial responsibility may be different for each
certificate. The applicant has the option of using (1) insurance, (2) escrow accounts,
(3) guaranties, (4) surety bonds, or (5) self-insurance (for casualty only) to establish financial
responsibility to qualify for a Certificate (Casualty) evidencing compliance with Section 2 of
Public Law 89-777, or to qualify for a Certificate (Performance) evidencing compliance with
Section 3 of Public Law 89-777.
Upon receipt, examination, and approval of the application form and evidence of
financial responsibility, a Certificate of Financial Responsibility for Indemnification of
Passengers for Nonperformance of Transportation and Certificate of Financial Responsibility to
Meet Liability Incurred for Death or Injury to Passengers or Other Persons on Voyages are
issued to the applicant/certificant. The certificates must be presented to U.S. Customs and
Border Protection (CBP) or Coast Guard officials at the time the vessel clears a United States
port.
The cap on passenger vessel financial responsibility under Section 3 (Performance) of
Public Law 89-777, 46 U.S.C. 44101-44106, is adjusted biennially to the nearest $1 million
using the Bureau of Labor Statistics’s Consumer Price Index for all Urban Consumers (CPI-U).

Smaller passenger vessel operators’ (PVO) financial responsibility requirements may be adjusted
by requesting consideration for alternative forms of protection from the Director of the Bureau of
Certification and Licensing.
The FMC’s PVO Certificates (Performance) are required to be renewed every 5 years.
The renewal of the certificates assists U.S. Customs and Border Protection officers in
determining the validity of a certificate, and ensures that the FMC periodically confirms PVO
information previously submitted.
2.
Indicate how, by whom, and for what purpose the information is to be used. Except
for a new collection, indicate the actual use the agency has made of the information
received from the current collection.
The information is used by the Commission’s staff to determine whether PVOs meet the
financial responsibility requirements and qualify for passenger vessel certificates, to keep the
information current, and to assure a domestic agent for service of process. The information is
required to ensure that PVOs have adequate financial responsibility to indemnify passengers in
the event of nonperformance or casualty. The Commission will be unable to fulfill its statutory
responsibility without the collection of this information. Additionally, Public Law 89-777
provides civil penalties for persons who operate passenger vessels embarking passengers from
United States ports without establishing their financial responsibility.
3.
Describe whether, and to what extent, the collection of information involves the use
of automated, electronic, mechanical, or other technological collection techniques or other
forms of information technology, e.g., permitting electronic submission of responses.
The Commission continues to look at new technology to improve the efficiency of the
program and reduce the burden on its respondents. The forms associated with this program are
available to the public from the Internet at https://www.fmc.gov/forms-and-applications/. The
regulations allow optional electronic filing of a PVO’s semiannual statement under 46 CFR
540.9(h). Forms FMC-132A, Passenger Vessel Surety Bond (Performance), and 133A,
Guaranty in Respect of Liability for Nonperformance, Section 3 of the Act, can also be filed
electronically.
4.

Describe efforts to identify duplication.

The information requested is unique to passenger vessel certification and is not available
from any other source. The information is collected every five years, unless there are changes in
ownership, charterers, or operators, or an application needs to be amended to reflect a material
change in fact.
5.
If the collection of information impacts small businesses or other small entities,
describe any methods used to minimize burden.
This collection of information does not have a significant impact on small businesses or
other small entities.

6.
Describe the consequence to Federal program or policy activities if the collection is
not conducted or is conducted less frequently, as well as any technical or legal obstacles to
reducing burden.
The information is required to ensure that PVOs have adequate financial responsibility to
indemnify passengers in the event of nonperformance or casualty. If the information were not
collected, passengers might not be indemnified as required by Public Law 89-777.
7.
Explain any special circumstances that require the collection to be conducted in a
manner inconsistent with OMB guidelines. (a) requiring respondents to report information
to the agency more often than quarterly; (b) requiring respondents to prepare a written
response to a collection of information in fewer than 30 days after receipt of it; (c)
requiring respondents to submit more than an original and two copies of any document;
(d) requiring respondents to retain records, other than health, medical government
contract, grant-in-aid, or tax records, for more than three years; (e) in connection with a
statistical survey, that is not designed to product valid and reliable results that can be
generalized to the universe of study; (f) requiring the use of statistical data classification
that has not been reviewed and approved by OMB; (g) that includes a pledge of
confidentially that is not supported by authority established in statute of regulation, that is
not supported by disclosure and data security policies that are consistent with the pledge,
or which unnecessarily impedes sharing of data with other agencies for compatible
confidential use; (h) requiring respondents to submit proprietary trade secrets, or other
confidential information unless the agency can demonstrate that it has instituted
procedures to protect the information’s confidentiality to the extent permitted by law.
This information collection (IC) does not: require respondents to report information to the
agency more often than quarterly, except for weekly recomputation certificates for escrow
arrangements; require respondents to submit more than an original of any document; contain a
statistical survey; require respondents to retain records for more than three years; include
confidentiality pledges that are not supported by established statutory authority; require
respondents to submit proprietary information without protecting such information to the full
extent of the law. Respondents are not required to prepare a written response to a collection of
information in fewer than 30 days, except that in the event of a material change in the facts as
reflected in a respondent’s application, an amendment to the application shall be filed no later
than 15 days following such change.
8.
If applicable, provide a copy and identify the date and page number of publication
in the Federal Register of the agency’s notice, required by 5 CFR 1320.8(d), soliciting
comments on the information collection prior to submission to OMB. Summarize public
comments received in response to that notice and describe actions taken in response to the
comments. Specifically address comments received on cost and hour burden. Describe
efforts to consult with persons outside FMC to obtain their views on the availability of data,
frequency of collection, the clarity of instructions and recordkeeping, disclosure, or
reporting format (if any), and on the data elements to be recorded, disclosed, or report.

In accordance with the Paperwork Reduction Act and OMB’s regulations, notice was
published in the Federal Register on August 25, 2021, at 86 FR 47441, requesting public
comments. Respondents had 60 days to respond with their views regarding the collection of
information. The Commission received no comments.
The FMC also occasionally consults with U.S. CBP and Coast Guard since the PVO
certificates are subject to inspection by these agencies. A vessel may be refused clearance to
embark passengers without these certificates (see 46 U.S.C. 44105 and 46 U.S.C. 60105).
9.
Explain any decision to provide any payment or gift to respondents, other than
remuneration of contractors or grantees.
Not applicable – The Commission does not provide any payments or gifts to respondents.
10.
Describe any assurance of confidentiality provided to respondents and the basis for
the assurance in statute, regulation, or agency policy.
The information filed by applicants, certificants and underwriters is subject to the
limitations of the Freedom of Information Act, Trade Secrets Act, and the Privacy Act. Financial
data is treated as confidential pursuant to 46 CFR 540.9(g) and 46 CFR 540.27(g), except in
instances where information becomes relevant in connection with hearings which may be
requested by an applicant.
11.
Provide additional justification for any questions of a sensitive nature, such as
sexual behavior and attitudes, religious beliefs, and other matters that are commonly
considered private. This justification should include the reasons why FMC considers the
questions necessary, the specific uses to be made of the information, the explanation to be
given to persons from whom the information is requested, and any steps to be taken to
obtain their consent.
The regulation and forms do not ask information of a sensitive nature.
12.
Provide estimates of the hour burden of the collection of information. The statement
should indicate the number of respondents, frequency of response, annual hour burden,
and an explanation of how the burden was estimated. Unless directed to do so, FMC should
not conduct special surveys to obtain information on which to base hour burden estimates.
Consultation with a sample fewer than 10 potential respondents is desirable.
The estimated reporting respondent universe is 236. Of the potential respondents, the
number of reports filed is not duplicated. The majority of certificants possess both Performance
and Casualty Certificates and file one report, which satisfies similar requirements in Subparts A
and B of 46 CFR part 540. For example, if a certificant possesses both Performance and
Casualty Certificates, it is required to file one semiannual statement of changes in compliance
with both 46 CFR 540.9(h) and 46 CFR 540.27(h).

The number of responses filed annually is based on a review of FY2021 submissions. All
certificate holders are required to file semiannual statements to report any changes since their
initial application. Certificate holders that established financial responsibility with an escrow
account are required to provide weekly, monthly, and quarterly reports. In addition to required
reports, certificate holders may file reports to change the financial coverage amount, change the
type of financial responsibility instrument, or terminate their financial coverage. Certificate
holders arrive at such business decisions independently based upon their unique business
circumstances. Thus, the number of such reports can vary from year to year and cannot be
accurately predicted. That being said, below are the FMC’s burden estimates relative to this IC
extension:
a. 46 CFR Part 540: Estimates for the reporting and recordkeeping requirements
contained in the rules are based on the type and complexity of the reports required
(1043 hours). 1
b. Application Form FMC-131: At present there is a maximum estimated
respondent universe of 236 from 48 cruise line operators. They have changes in
owners, charterers, operators, and changes in the amount and type of financial
responsibility. They also enter and exit the U.S. trades to accomplish their
commercial purposes. The Commission estimates that it receives an average of
25 applications annually where operators seek new certificates for both casualty
and performance on a single application. Based upon the Commission’s
knowledge of the industry, an average of 8 hours is required to complete a single
Form FMC-131 to obtain casualty and performance certificates (200 hours).
The annual cost to respondents for wages, benefits and overhead is estimated at
$154,077. The cost has been calculated in consideration of the time to gather information and
furnish it to the Commission, and comply with the requirements of 46 CFR Part 540. It also
includes clerical time as well as overhead and operational expenses. [See Attachment 1.]
13.
Provide an estimate for the total annual cost burden to respondents or record
keepers resulting from the collection of information. (Do not include the cost of any hour
burden already reflected on the burden worksheet).

1

The Commission estimated the cumulative amount of time required of certificate holders to prepare and submit each
IC based upon an estimate of the submissions received in FY2021. A majority of the ICs require the calculation,
verification and submission of a PVO’s unearned passenger revenue, which is money collected from passengers as
deposits for cruises or payment of fares for voyages that have not yet been performed. This unearned passenger
revenue is the basis for the amount of financial responsibility a PVO is required to provide. The amount of
recordkeeping hours primarily declined from the previous submission due to a decline in PVOs electing to use an
escrow agreement as their financial instrument. Because escrow agreements have the most stringent reporting
requirements, i.e., weekly recomputation certificates, a decline in those instruments results in a more substantial
decline in the burden for that IC than occurred with other ICs. Conversely, an increase in the filing of escrow
agreements will result in a substantial increase in reports received. As the type of financial instrument used to satisfy
the Commission’s passenger vessel financial responsibility requirements is determined as a business decision by the
PVO, the associated burden can vary as well.

* The cost estimate should be split into two components: (a) a total capital and start-up cost
component (annualized over its expected useful life) and (b) a total operation and
maintenance and purchase of services component. The estimates should take into account
costs associated with generating, maintaining, and disclosing or providing the information.
Include descriptions of methods used to estimate major cost factors including system and
technology acquisition, expected useful life of capital equipment, the discount rate(s), and
the time period over which costs will be incurred. Capital and start-up costs include,
among other items, preparations for collecting information such as purchasing computers
and software; monitoring, sampling, drilling and testing equipment; and record storage
facilities.
* If cost estimates are expected to vary widely, agencies should present ranges of cost
burdens and explain the reasons for the variance. The cost of purchasing or contracting out
information collections services should be a part of this cost burden estimate. In developing
cost burden estimates, agencies may consult with a sample of respondents (fewer than 10),
utilize the 60-day pre-OMB submission public comment process and use existing economic
or regulatory impact analysis associated with the rulemaking containing the information
collection, as appropriate.
* Generally, estimates should not include purchases of equipment or services, or portions
thereof, made: (1) prior to October 1, 1995, (2) to achieve regulatory compliance with
requirements not associated with the information collection, (3) for reasons other than to
provide information or keep records for the government, or (4) as part of customary and
usual business or private practices.
Respondents incur costs for required filing fees 2 as follows -- 46 CFR 540.4(e):
Passenger Vessel Certificate (Performance) - $4,332; Addition or Substitution of Vessel $2,180; 46 CFR 540.23(b): Passenger Vessel Certificate (Casualty) - $1,889; and Addition or
Substitution of Vessel - $921.

The total costs for filing fees in FY 2021 are shown below:
Passenger Vessel Certificate (Performance)
Add/Substitute Vessel (Performance)
Add/Substitute Vessel (Casualty)

2 @ $4,332
18 @ $2,180
18 @ $ 921
TOTAL

$ 8,664
$39,240
$16,578
$64,482

Aside from the foregoing filing fees, respondents have no capital or start-up costs associated
with this regulation.

2
When a passenger vessel operator first seeks to enter the Commission’s passenger vessel financial responsibility
program, the operator files an initial application. Each vessel must have its own Certificate (Performance) to advertise
water transportation in the U.S. and a Certificate (Casualty) to embark passengers from a U.S. port. There is an
application fee of $4,332 for an initial Certificate (Performance) and $1,889 for an initial Certificate (Casualty). To
add subsequent vessels under the Commission’s passenger vessel program, the application fees are $2,180 for a
Certificate (Performance) and $921 for a Certificate (Casualty). There are no filing fees to amend an application.

14.

Provide estimates of annualized cost to the Federal government.

Total annual cost to the Federal Government for this rule and application form is
estimated to be approximately $165,280, including overhead and benefits. This cost includes a
consideration of maintenance and follow-up actions necessary to ensure respondents’ compliance
with the requirements of 46 CFR Part 540. [See Attachment 2.] This cost is offset by the
collection of $64,482 in required filing fees. The net estimated total annual cost to the
government of this collection of information is $100,798.

15.
Explain the reasons for any program changes or adjustments reported in Items 13
(or 14) of OMB Form 83-I.
Form FMC-131 is being revised to include a required field for PVOs to provide the web
page address of their refund instructions on how passengers may obtain refunds in the event of
nonperformance of transportation. The process for obtaining refunds in the event of
nonperformance are outlined in revised forms FMC-132A, FMC-133A, and the escrow account.
The passenger must make a written request for a refund from the PVO in accordance with the
respective PVO’s claims procedures. If the PVO claims procedure provides less than 180 days for
submission of claims after nonperformance of transportation, the passenger may seek reimbursement
from the financial instrument provider after providing written notification to the PVO.
In the event the passenger is unable to resolve the claim within 180 days after
nonperformance of transportation occurs or if the claim is denied by the PVO, the passenger may
submit a claim against the financial instrument as per instructions on the Commission website. The
claim must include a copy of the boarding pass, proof and amount of payment, the cancellation or
delay notice, and dated proof of properly filed claim against the PVO or written notification as
required in the paragraph above. All documentation must clearly display the vessel and voyage with
the scheduled and actual date of sailing.

Additionally, every person who has been issued a Certificate (Performance) will include
within their semi-annual statement any instances of nonperformance of transportation. The
information will be collected in a data format, as opposed to receiving this information in a
narrative format, which will assist us in analyzing the submissions.
16.
For collections whose results will be published, outline the plans for tabulation and
publication.
The Commission does not intend to publish any information collected under this
regulation.

17.
If seeking approval to not display the expiration date for OMB approval of the
information collection, explain the reasons why display would be inappropriate.
The Commission is not seeking approval to exclude the display of the expiration date for
OMB approval of this information collection.

18.
Explain each exception to the certification statement identified in Item 19 of OMB
Form 83-I.
The Commission proposes no exception to the certification statement identified on OMB
form 83-I.

B.

Collections of Information Employing Statistical Methods
This collection of information does not employ statistical methods.

Attachment 1
12.

Estimated Burden and Costs, Including Overhead, to Respondents

1043 hours (reporting and recordkeeping requirements) + 200 hours (Form FMC-131) = 1,243
total hours
10% CEO (124 hours)
20% Lawyer (249 hours)
60% CPA (746 hours)
10% Secretary (124 hours)
The annual salary calculations have been formulated using the Department of Labor’s May 2020
National Industry-Specific Occupational Employment and Wages Estimates for Water
Transportation (overhead of 114.89% has been added to the basic salary).
Formula: Annual salary/2080 + overhead rate = adjusted hourly salary
$262,360/2080 + 114.89% = $271.04 = CEO adjusted hourly salary
$169,860/2080 + 114.89% = $175.48 = Lawyer adjusted hourly salary
$90,050/2080 + 114.89% = $93.03 = CPA adjusted hourly salary
$57,560/2080 + 114.89% = $59.46 = Secretary adjusted hourly salary
Employee
CEO
Lawyer
CPA
Secretary
TOTALS

Hourly Salary
$271.04
$175.48
$93.03
$59.46

Number of Hours
124
249
746
124
1,243

Total
$ 33,609
$ 43,695
$ 69,400
$ 7,373
$154,077

Attachment 2
14.

Estimated Burden and Costs, Including Overhead, to Federal Government

The annual salary calculations have been formulated using the Federal Government’s 2022
salary table (overhead of 114.89% has been added to the basic salary).
Bureau Director (GS 15/5) – 3% (62 hours)
$168,282/2080 + 114.89% = $173.84 adjusted hourly salary
Program Manager (GS 14/5) – 10% (208 hours)
$143,064/2080 + 114.89% = $147.80 adjusted hourly salary
Sr. Industry Analyst (GS 13/5) – 12% (250 hours)
$121,065/2080 + 114.89% = $125.07 adjusted hourly salary
5 Industry Analyst (GS 7/5) – 15% (1560 hours)
$57,393/2080 + 114.89% = $59.29 adjusted hourly salary
Employee
Bureau Director
Program Manager
Sr. Industry Analyst
Industry Analyst
Industry Analyst
Industry Analyst
Industry Analyst
Industry Analyst
TOTALS

Hourly Salary
$173.84
$147.80
$125.07
$59.29
$59.29
$59.29
$59.29
$59.29

Estimated Burden Cost to the Federal Government:
Offset by Respondent Filing Fees:
Total Cost to Government

Submitted: 10/19/2021

Number of Hours
62
208
250
312
312
312
312
312
2,080

$165,280
$ 64,482
$ 100,798

Total
$ 10,778.08
$ 30,742.40
$ 31,267.50
$ 18,498.48
$ 18,498.48
$ 18,498.48
$ 18,498.48
$ 18,498.48
$165,280.38