VES-3/VES-10-03 CO:R:P:C 109649 PH
Brack J. Jaskey, Esq.
Williams, Kastner & Gibbs
1400 Washington Building
1325 Fourtg Avenue
Post Office Box 21926
Seattle, Washington 98111-0040
RE: Coastwise Transportation in a Foreign-Built Barge of
Merchandise Owned by the Barge Owner
Dear Mr. Jaskey:
This in response to your letter of July 12, 1988, in
which you request a ruling on the applicability of the
coastwise laws to the transportation from Bellingham,
Washington, to Ketchikan, Alaska, in a foreign-built barge of
merchandise owned by the barge owner.
FACTS:
You state that your client, a construction company, owns
a foreign bottom barge. Your client proposes to use this
barge to transport some of his equipment from Bellingham,
Washington, to Ketchikan, Alaska. The barge would be towed
by a United States registered tug. You state that your
client neither intends to resell nor in any way distribute
the equipment which will be transported. You contend that
this transportation of the equip- ment is not violative of 46
U.S.C. App. 883 because the equipment would not be considered
"merchandise" for purposes of that statute.
ISSUE:
Does the transportation between points in the United
States in a foreign-built vessel of articles owned by the
owner of the vessel violate 46 U.S.C. App. 883 when the
articles are intended for his use and not for resale or
distribution?
LAW AND ANALYSIS:
Section 27 of the Act of June 5, 1920, as amended (41
Stat. 999; 46 U.S.C. App. 883, often called the Jones Act),
provides, in pertinent part, that:
No merchandise shall be transported by water, or by
land and water, on penalty of forfeiture of the
merchandise (or a monetary amount up to the value
thereof as determined by the Secretary of the
Treasury, or the actual cost of the transportation,
whichever is great- er, to be recovered from any
consignor, seller, owner, importer, consignee,
agent, or other person or persons so transporting
or causing said merchandise to be transported),
between points in the United States ... embraced
within the coastwise laws, either directly or via a
foreign port, or for any part of the transporta-
tion, in any other vessel than a vessel built in
and documented under the laws of the United States
and owned by persons who are citizens of the United
States
....
Section 4370 of the Revised Statutes, as amended (R.S.
4370; 46 U.S.C. App. 316(a), the coastwise towing statute),
prohibits the towing of any vessel, other than a vessel in
distress, by a vessel not documented under the United States
flag to engage in the coastwise or Great Lakes trade between
ports or places in the United States embraced within the
coastwise laws, either directly or by way of a foreign port
or place, or for any part of such towing, or such towing
between points in a harbor of the United States.
Each of the above laws was recently amended by the Act of
June 7, 1988 (Public Law 100-329). Section 883 was amended
so that the term "merchandise" includes valueless material
and so that it applies to the transportation of "valueless
material or any dredged material regardless of whether it has
commercial value, from a point or place in the United States
or a point or place on the high seas within the Exclusive
Economic Zone as de- fined in the Presidential Proclamation
of March 10, 1983 [(EEZ)], to another point or place in the
United States or a point or place on the high seas within
that [EEZ]." Section 883 was also amended so that the
penalty for violation of the statute now is forfeiture of the
merchandise transported or a monetary amount up to the value
thereof, "or the actual cost of the transportation, whichever
is greater." Section 316(a) was amended so that it applies
to the towing of "any vessel transporting valueless material
or any dredged material, regardless of whether it has
commercial value, from a point or place in the United States
or a point or place on the high seas within the [EEZ] to
another point or place in the United States or a point or
place on the high seas within that [EEZ]."
The term "merchandise," as used in 46 U.S.C. App. 883, is
not defined for purposes of that provision. We have used the
definition of "merchandise" found in section 401(c), Tariff
Act of 1930, as amended (19 U.S.C. 1401(c)) in our
application of section 883. "Merchandise" is defined in
section 1401(c) as meaning "goods, wares, and chattels of
every description, and [including] merchandise the
importation of which is prohibited, and monetary instruments
as defined in section 5312 of Title 31."
We have held that baggage which is accompanied by its
owner as a passenger aboard a vessel is not "merchandise" for
purposes of section 883 and its coastwise transportation is
governed by the coastwise statute applicable to passengers
(section 8, Act of June 19, 1886, 24 Stat. 81; 46 U.S.C.
App. 289) (see Autolog Corp. v. Regan, 731 F.2d 25 (1983),
sustaining this position). However, we have never held that
cargo which is owned by the owner of a vessel and is
transported solely for the use of the owner is not
"merchandise" for purposes of section 883. Indeed, we have
held that "[i]t is immaterial [for purposes of section 883]
that any cargo so transported [i.e., transported between
coast- wise points] may be owned by the vessel owner." This
position is consistent with the intent of the Congress as
shown in its enactment of the so-called sixth proviso to
section 883 (the Acts of September 21, 1965, and August 11,
1968; Public Law 89-194, 79 Stat. 823 and Public Law 90-474,
82 Stat. 700, respectively).
Accordingly, the transportation of your client's
equipment in his foreign-built barge from Bellingham to
Ketchikan would be prohibited by 46 U.S.C. App. 883. The
towing of your client's barge from Bellingham to Ketchikan
would be prohibited by 46 U.S.C. App. 316(a) unless the
towing vessel is documented to engage in the coastwise trade
or the Great Lakes trade.
HOLDING:
The transportation between points in the United States in
a foreign-built vessel of articles owned by the owner of the
vessel and intended for his use and not for resale or
distribution does violate 46 U.S.C. App. 883.
Sincerely,
B. James Fritz
Chief
Carrier Rulings Branch