In February 2026, the White House released “America’s Maritime Action Plan” (MAP)—the most comprehensive federal maritime policy initiative in decades. Developed pursuant to Executive Order 14269, “Restoring America’s Maritime Dominance,” signed in April 2025, this sweeping document charts an ambitious course to rebuild U.S. shipbuilding capacity, grow the American-flagged fleet, and strengthen the maritime industrial base.
For ship owners, vessel operators, and shipyards, the MAP represents both significant opportunities and important regulatory changes on the horizon. This guide breaks down the key provisions most relevant to maritime industry stakeholders and what they mean for your operations.
The Big Picture: Why Now?
The MAP opens with a stark assessment: less than one percent of commercial ships globally are built in the United States. With only 66 total shipyards—just eight capable of building vessels over 400 feet—the U.S. lacks the capacity to meet national security and economic demands. The document frames this as both a security vulnerability and an economic opportunity.
The plan is organized around four pillars: rebuilding shipbuilding capacity and capabilities, reforming workforce education and training, protecting the maritime industrial base, and supporting national security and industrial resilience. Each pillar contains specific policy recommendations that will directly impact maritime industry participants.
What Shipyards Need to Know
Expanded Financial Incentives and Loan Programs
The MAP calls for significant expansion of federal financing tools available to shipyards. Key provisions include modernization of the Title XI Federal Ship Financing Program to expand eligibility, improve efficiency, and reduce administrative burden. The Administration is directing DOT to streamline the application and review process, removing “unnecessary, outdated, and overly burdensome requirements.”
Perhaps most significant for shipyards is the proposed “Capital Construction Fund for Shipyards”—a new initiative modeled on MARAD’s successful Capital Construction Fund for vessel owners. This would allow shipyards to establish tax-deferred accounts to reinvest earnings into infrastructure improvements, equipment, or debt payment. With $2.59 billion currently held in vessel-owner CCF accounts, extending this tool to shipyards represents a proven model for accelerating capital investment.
For those pursuing defense work, the plan emphasizes continued use of Defense Production Act Title III authorities, Industrial Base Analysis and Sustainment (IBAS) program funding, and expanded Small Shipyard Grants—potentially including eligibility for medium and large yards.
Maritime Prosperity Zones
The MAP proposes establishing 100 “Maritime Prosperity Zones” (MPZs) modeled on the successful Opportunity Zone program from the first Trump Administration. These zones would offer tax incentives for investment in maritime industries and waterfront communities. Importantly, the plan specifies that MPZs should be “geographically diverse” including river regions, the Great Lakes, Alaska, Hawaii, and U.S. territories—not just traditional coastal shipbuilding centers.
For shipyards considering expansion or modernization, locating within an MPZ could provide significant tax advantages for investors. The Secretary of Commerce would designate these zones for ten-year periods, providing long-term planning certainty.
Defense Contract Opportunities
The MAP emphasizes government procurement reform to benefit domestic shipbuilders. Key changes include expanded use of multiyear and multivessel procurement strategies, reduced administrative burden through simplified reporting and inspection requirements, dramatic reduction or elimination of change orders (which the plan notes should require “an end-use purpose such as increase of production cadence, cost reduction, or solution of a capability or safety issue”), and incentive payments for meeting or exceeding delivery schedules.
The plan also promotes the Vessel Construction Manager (VCM) model, where agencies contract with commercial ship owner-operators to manage construction, who then contract with U.S. shipyards. This approach is being expanded for auxiliary vessel platforms and Ready Reserve Force recapitalization.
What Ship Owners Need to Know
Strategic Commercial Fleet
The MAP’s most significant proposal for vessel owners is the creation of a “Strategic Commercial Fleet” (SCF) consisting of internationally trading U.S.-built vessels. Unlike the existing Maritime Security Program (MSP) and Tanker Security Program (TSP), which support foreign-built vessels under U.S. flag, the SCF would provide financial support for both vessel construction AND operations.
This dual support structure—construction subsidies plus operating subsidies—aims to level the playing field with subsidized foreign competition. For owners considering newbuilds, the SCF could fundamentally change the economics of ordering U.S.-built vessels for international trade.
Enhanced MSP and TSP Funding
The plan calls for funding the Maritime Security Program and Tanker Security Program to their fully authorized levels. For current program participants and those considering enrollment, this signals continued strong federal support for the U.S.-flag international fleet.
Cargo Preference Expansion
Currently, 50 percent of civilian U.S. Government agency cargoes must move on U.S.-flagged vessels. The MAP recommends increasing this percentage as domestic shipbuilding capacity grows, strengthening the cargo base for U.S.-flag operators.
Additionally, the plan proposes modifying the “three-year eligibility rule” for cargo preference. Current reforms are scheduled for 2030, but the MAP calls for “immediate implementation” to accelerate fleet growth and expand mariner availability. For owners considering reflagging vessels to U.S. registry, this could reduce entry barriers while maintaining emergency preparedness commitments.
New Maritime Preference Requirement
Perhaps the most ambitious proposal: the MAP calls for a new “United States Maritime Preference Requirement” (USMPR) that would require high-volume exporting economies to transport a gradually increasing percentage of their U.S.-bound containerized cargo on qualifying U.S. vessels. While implementation details remain to be developed, this could create significant new demand for U.S.-flag capacity in international liner trades.
Regulatory Relief and Modernization
The MAP dedicates substantial attention to deregulation and streamlining, with specific implications for vessel owners and operators:
Mariner Credentialing Reform
The Coast Guard is modernizing its Merchant Credentialing Program with several owner-friendly changes: digitizing credentialing processes, separating medical certificate processing from MMC issuance, allowing approved simulator training to satisfy part of sea-service requirements, reducing duplicate exams, and streamlining military-to-mariner transitions. For operators struggling with crew availability, these changes should help expand the qualified mariner pool.
Inspection and Certification
The plan recommends permitting underwater surveys in lieu of drydocking “where safe and appropriate,” eliminating inspection of unmanned non-tank barges on the Great Lakes, and removing duplicate inspections where classification societies already ensure compliance. These changes could reduce operational costs and scheduling constraints.
Reflagging Streamlined
For owners considering bringing foreign-built vessels under U.S. flag, the MAP calls for streamlining reflagging and equivalency reviews. It also proposes clarifying eligibility for foreign-built vessels to be inspected and certificated under the Maritime Security Program.
EIAPP Certificate Issues Addressed
The plan specifically calls out EPA’s Engine International Air Pollution Prevention (EIAPP) Certificate requirements as creating “frequent barriers” for vessel owners during U.S. flagging. Adjustment of these requirements is recommended to reduce friction in the reflagging process—welcome news for owners who have encountered this issue.
New Funding Mechanisms
Maritime Security Trust Fund
The MAP calls for establishing a Maritime Security Trust Fund (MSTF) to provide “dedicated, mandatory funding” for programs strengthening the maritime industry. This would move key maritime programs from discretionary appropriations to more stable, long-term funding—reducing the year-to-year uncertainty that has hampered industry investment decisions.
Universal Fee on Foreign-Built Vessels
To fund the MSTF, the MAP proposes a “universal infrastructure or security fee on all foreign-built commercial vessels calling at U.S. ports, to be assessed on the weight of the imported tonnage arriving on the vessel.” The document provides striking revenue projections: a fee of 1 cent per kilogram would yield roughly $66 billion over ten years; 25 cents per kilogram would yield nearly $1.5 trillion.
For ship owners and operators, the ultimate fee level will significantly impact economics. Those operating U.S.-built vessels would presumably be exempt, creating potential competitive advantages for domestic construction.
Land Port Maintenance Tax
The plan also proposes a Land Port Maintenance Tax equivalent to the existing Harbor Maintenance Tax (0.125 percent of merchandise value) for goods entering through land ports. This addresses the current disparity that incentivizes routing cargo through land borders rather than maritime ports. For vessel operators, this levels the competitive playing field with trucking from Canada and Mexico.
Workforce Development
The MAP recognizes that expanded shipbuilding and fleet growth require a corresponding expansion of skilled workers. Key provisions affecting industry include:
A new Mariner Incentive Program (MIP) at MARAD providing financial assistance for mariner education, recruitment, training, and retention. Expanded Student Incentive Payments (SIP) for State Maritime Academy students. Tax treatment changes allowing merchant mariners on international routes to exclude foreign earned income similar to U.S. citizens living abroad. Expanded apprenticeship programs and vocational training pipelines for shipyard workers.
For operators facing crew recruitment and retention challenges, these programs could help address chronic workforce shortages.
Autonomous and Robotic Systems
The MAP dedicates significant attention to autonomous maritime technologies, noting they will “play a central role in future conflicts” and can be “built modularly” at facilities throughout the country. Key provisions include:
The Coast Guard is directed to establish one or more designated areas within the U.S. EEZ (including the Great Lakes) for “safe and expedited testing of commercial robotic and autonomous maritime technologies.” The plan acknowledges current regulatory frameworks don’t adequately address autonomous vessels and identifies specific gaps in definitions, manning requirements, remote operations, safety equipment, cybersecurity, and liability frameworks.
For owners and operators exploring autonomous or remotely operated vessels, this signals regulatory modernization is coming—though specific frameworks remain to be developed.
Customs and Trade Implications
Several MAP provisions have direct customs implications for maritime industry participants:
Jones Act and U.S.-Built Definition
The plan calls for “strengthening the ‘U.S.-built’ definition over time to grow supplier capacity that would further require ship materials to be American Made.” This signals potential tightening of what qualifies as U.S.-built for Jones Act and cargo preference purposes. Vessel owners and shipyards should monitor these developments closely. See our Jones Act Compliance guide for current requirements.
Repair Duty Changes
The MAP recommends “tightening repair duty loopholes” to redirect more repair and modification work to U.S. shipyards. Currently, certain foreign repairs may escape the 50% ad valorem duty under 19 U.S.C. § 1466. Stricter enforcement could increase costs for owners routinely performing repairs abroad. Our Maritime Customs Documentation guide covers current repair duty requirements.
Section 301 Actions
The MAP references USTR’s Section 301 investigation of China’s maritime, logistics, and shipbuilding sector dominance. While certain responsive actions (including service fees on Chinese-built vehicle carriers) were suspended for one year in November 2025 following U.S.-China negotiations, the underlying investigation findings remain. Industry participants should monitor potential reinstatement of these measures.
Duty-Free Treatment for Defense
For shipyards with defense contracts, the MAP’s emphasis on DCMA duty-free treatment and Defense Production Act authorities reinforces existing programs allowing duty-free importation of materials for qualifying defense work. Our DCMA Duty-Free Treatment guide provides detailed coverage of these programs.
What Happens Next
The MAP is a policy document, not legislation. Many of its provisions require Congressional action to implement. The Administration has indicated it will transmit a legislative package following the FY 2027 President’s Budget Request.
Key legislation to watch includes the SHIPS Act (Shipbuilding and Harbor Infrastructure for Prosperity and Security Act) and the Building Ships in America Act, both introduced in the 119th Congress. These bills align with many MAP provisions and may serve as vehicles for implementation.
Meanwhile, regulatory changes within existing agency authority are already underway. The Coast Guard finalized 19 deregulatory actions in FY 2025 and has additional actions planned for FY 2026. MARAD has begun eliminating outdated regulatory provisions.
Conclusion: Preparing for a New Maritime Era
America’s Maritime Action Plan represents the most comprehensive federal maritime policy initiative in generations. For ship owners, operators, and shipyards, it signals significant changes ahead—new funding opportunities, expanded incentive programs, regulatory modernization, and shifts in competitive dynamics.
The key takeaways for industry participants:
Shipyards should explore expanded financing options including potential Title XI reforms, the proposed Capital Construction Fund for Shipyards, and Maritime Prosperity Zone incentives. Monitor VCM opportunities for government vessel programs.
Ship owners should evaluate the emerging Strategic Commercial Fleet program for newbuild economics, prepare for potential cargo preference expansion, and monitor reflagging streamlining that may ease U.S.-flag entry.
Operators should track mariner credentialing reforms that may ease crew availability, watch for inspection and drydocking flexibility, and monitor fee proposals that could affect operating costs.
All participants should engage with the legislative process as implementation details develop.
TLR Projects, Marine & Offshore will continue monitoring MAP implementation and providing guidance on customs implications for the maritime industry. Contact us to discuss how these developments may affect your operations and how to position for the opportunities ahead.
About TLR Projects, Marine & Offshore
TLR Projects, Marine & Offshore specializes in customs brokerage, freight forwarding, and turnkey logistics solutions for the maritime and offshore industries. With deep expertise in vessel operations, shipyard services, and offshore compliance, we provide the specialized support that maritime companies require. Contact us to learn how we can support your operations.
TLR Projects, Marine & Offshore
www.shiptlr.com | Expert Customs Brokerage for the Maritime Industry
The MAP proposes establishing 100 “Maritime Prosperity Zones” (MPZs) modeled on the
successful Opportunity Zone program from the first Trump Administration. These zones would
offer tax incentives for investment in maritime industries and waterfront communities.
Importantly, the plan specifies that MPZs should be “geographically diverse” including river
regions, the Great Lakes, Alaska, Hawaii, and U.S. territories—not just traditional coastal
shipbuilding centers.
For shipyards considering expansion or modernization, locating within an MPZ could provide
significant tax advantages for investors. The Secretary of Commerce would designate these
zones for ten-year periods, providing long-term planning certainty.
Defense Contract Opportunities
The MAP emphasizes government procurement reform to benefit domestic shipbuilders. Key
changes include expanded use of multiyear and multivessel procurement strategies, reduced
administrative burden through simplified reporting and inspection requirements, dramatic
reduction or elimination of change orders (which the plan notes should require “an end-use
purpose such as increase of production cadence, cost reduction, or solution of a capability or
safety issue”), and incentive payments for meeting or exceeding delivery schedules.
The plan also promotes the Vessel Construction Manager (VCM) model, where agencies
contract with commercial ship owner-operators to manage construction, who then contract with
U.S. shipyards. This approach is being expanded for auxiliary vessel platforms and Ready
Reserve Force recapitalization.
What Ship Owners Need to Know
Strategic Commercial Fleet
The MAP’s most significant proposal for vessel owners is the creation of a “Strategic
Commercial Fleet” (SCF) consisting of internationally trading U.S.-built vessels. Unlike the
existing Maritime Security Program (MSP) and Tanker Security Program (TSP), which support
foreign-built vessels under U.S. flag, the SCF would provide financial support for both vessel
construction AND operations.
This dual support structure—construction subsidies plus operating subsidies—aims to level the
playing field with subsidized foreign competition. For owners considering newbuilds, the SCF
could fundamentally change the economics of ordering U.S.-built vessels for international trade.
Enhanced MSP and TSP Funding
The plan calls for funding the Maritime Security Program and Tanker Security Program to their
fully authorized levels. For current program participants and those considering enrollment, this
signals continued strong federal support for the U.S.-flag international fleet.
Cargo Preference Expansion
Currently, 50 percent of civilian U.S. Government agency cargoes must move on U.S.-flagged
vessels. The MAP recommends increasing this percentage as domestic shipbuilding capacity
grows, strengthening the cargo base for U.S.-flag operators.
Additionally, the plan proposes modifying the “three-year eligibility rule” for cargo preference.
Current reforms are scheduled for 2030, but the MAP calls for “immediate implementation” to
accelerate fleet growth and expand mariner availability. For owners considering reflagging
vessels to U.S. registry, this could reduce entry barriers while maintaining emergency
preparedness commitments.
New Maritime Preference Requirement
TLR Projects, Marine & Offshore
www.shiptlr.com | Expert Customs Brokerage for the Maritime Industry
Perhaps the most ambitious proposal: the MAP calls for a new “United States Maritime
Preference Requirement” (USMPR) that would require high-volume exporting economies to
transport a gradually increasing percentage of their U.S.-bound containerized cargo on
qualifying U.S. vessels. While implementation details remain to be developed, this could create
significant new demand for U.S.-flag capacity in international liner trades.
Regulatory Relief and Modernization
The MAP dedicates substantial attention to deregulation and streamlining, with specific
implications for vessel owners and operators:
Mariner Credentialing Reform
The Coast Guard is modernizing its Merchant Credentialing Program with several owner-friendly
changes: digitizing credentialing processes, separating medical certificate processing from
MMC issuance, allowing approved simulator training to satisfy part of sea-service requirements,
reducing duplicate exams, and streamlining military-to-mariner transitions. For operators
struggling with crew availability, these changes should help expand the qualified mariner pool.
Inspection and Certification
The plan recommends permitting underwater surveys in lieu of drydocking “where safe and
appropriate,” eliminating inspection of unmanned non-tank barges on the Great Lakes, and
removing duplicate inspections where classification societies already ensure compliance. These
changes could reduce operational costs and scheduling constraints.
Reflagging Streamlined
For owners considering bringing foreign-built vessels under U.S. flag, the MAP calls for
streamlining reflagging and equivalency reviews. It also proposes clarifying eligibility for foreign-
built vessels to be inspected and certificated under the Maritime Security Program.
EIAPP Certificate Issues Addressed
The plan specifically calls out EPA’s Engine International Air Pollution Prevention (EIAPP)
Certificate requirements as creating “frequent barriers” for vessel owners during U.S. flagging.
Adjustment of these requirements is recommended to reduce friction in the reflagging process—
welcome news for owners who have encountered this issue.
New Funding Mechanisms
Maritime Security Trust Fund
The MAP calls for establishing a Maritime Security Trust Fund (MSTF) to provide “dedicated,
mandatory funding” for programs strengthening the maritime industry. This would move key
maritime programs from discretionary appropriations to more stable, long-term funding—
reducing the year-to-year uncertainty that has hampered industry investment decisions.
Universal Fee on Foreign-Built Vessels
To fund the MSTF, the MAP proposes a “universal infrastructure or security fee on all foreign-
built commercial vessels calling at U.S. ports, to be assessed on the weight of the imported
tonnage arriving on the vessel.” The document provides striking revenue projections: a fee of 1
cent per kilogram would yield roughly $66 billion over ten years; 25 cents per kilogram would
yield nearly $1.5 trillion.
For ship owners and operators, the ultimate fee level will significantly impact economics. Those
operating U.S.-built vessels would presumably be exempt, creating potential competitive
advantages for domestic construction.
TLR Projects, Marine & Offshore
www.shiptlr.com | Expert Customs Brokerage for the Maritime Industry
Land Port Maintenance Tax
The plan also proposes a Land Port Maintenance Tax equivalent to the existing Harbor
Maintenance Tax (0.125 percent of merchandise value) for goods entering through land ports.
This addresses the current disparity that incentivizes routing cargo through land borders rather
than maritime ports. For vessel operators, this levels the competitive playing field with trucking
from Canada and Mexico.
Workforce Development
The MAP recognizes that expanded shipbuilding and fleet growth require a corresponding
expansion of skilled workers. Key provisions affecting industry include:
A new Mariner Incentive Program (MIP) at MARAD providing financial assistance for mariner
education, recruitment, training, and retention. Expanded Student Incentive Payments (SIP) for
State Maritime Academy students. Tax treatment changes allowing merchant mariners on
international routes to exclude foreign earned income similar to U.S. citizens living abroad.
Expanded apprenticeship programs and vocational training pipelines for shipyard workers.
For operators facing crew recruitment and retention challenges, these programs could help
address chronic workforce shortages.
Autonomous and Robotic Systems
The MAP dedicates significant attention to autonomous maritime technologies, noting they will
“play a central role in future conflicts” and can be “built modularly” at facilities throughout the
country. Key provisions include:
The Coast Guard is directed to establish one or more designated areas within the U.S. EEZ
(including the Great Lakes) for “safe and expedited testing of commercial robotic and
autonomous maritime technologies.” The plan acknowledges current regulatory frameworks
don’t adequately address autonomous vessels and identifies specific gaps in definitions,
manning requirements, remote operations, safety equipment, cybersecurity, and liability
frameworks.
For owners and operators exploring autonomous or remotely operated vessels, this signals
regulatory modernization is coming—though specific frameworks remain to be developed.
Customs and Trade Implications
Several MAP provisions have direct customs implications for maritime industry participants:
Jones Act and U.S.-Built Definition
The plan calls for “strengthening the ‘U.S.-built’ definition over time to grow supplier capacity
that would further require ship materials to be American Made.” This signals potential tightening
of what qualifies as U.S.-built for Jones Act and cargo preference purposes. Vessel owners and
shipyards should monitor these developments closely. See our Jones Act Compliance guide for
current requirements.
Repair Duty Changes
The MAP recommends “tightening repair duty loopholes” to redirect more repair and
modification work to U.S. shipyards. Currently, certain foreign repairs may escape the 50% ad
valorem duty under 19 U.S.C. § 1466. Stricter enforcement could increase costs for owners
routinely performing repairs abroad. Our Maritime Customs Documentation guide covers current
repair duty requirements.
Section 301 Actions
TLR Projects, Marine & Offshore
www.shiptlr.com | Expert Customs Brokerage for the Maritime Industry
The MAP references USTR’s Section 301 investigation of China’s maritime, logistics, and
shipbuilding sector dominance. While certain responsive actions (including service fees on
Chinese-built vehicle carriers) were suspended for one year in November 2025 following U.S.-
China negotiations, the underlying investigation findings remain. Industry participants should
monitor potential reinstatement of these measures.
Duty-Free Treatment for Defense
For shipyards with defense contracts, the MAP’s emphasis on DCMA duty-free treatment and
Defense Production Act authorities reinforces existing programs allowing duty-free importation
of materials for qualifying defense work. Our DCMA Duty-Free Treatment guide provides
detailed coverage of these programs.
What Happens Next
The MAP is a policy document, not legislation. Many of its provisions require Congressional
action to implement. The Administration has indicated it will transmit a legislative package
following the FY 2027 President’s Budget Request.
Key legislation to watch includes the SHIPS Act (Shipbuilding and Harbor Infrastructure for
Prosperity and Security Act) and the Building Ships in America Act, both introduced in the 119th
Congress. These bills align with many MAP provisions and may serve as vehicles for
implementation.
Meanwhile, regulatory changes within existing agency authority are already underway. The
Coast Guard finalized 19 deregulatory actions in FY 2025 and has additional actions planned for
FY 2026. MARAD has begun eliminating outdated regulatory provisions.
Conclusion: Preparing for a New Maritime Era
America’s Maritime Action Plan represents the most comprehensive federal maritime policy
initiative in generations. For ship owners, operators, and shipyards, it signals significant
changes ahead—new funding opportunities, expanded incentive programs, regulatory
modernization, and shifts in competitive dynamics.
The key takeaways for industry participants:
Shipyards should explore expanded financing options including potential Title XI reforms, the
proposed Capital Construction Fund for Shipyards, and Maritime Prosperity Zone incentives.
Monitor VCM opportunities for government vessel programs.
Ship owners should evaluate the emerging Strategic Commercial Fleet program for newbuild
economics, prepare for potential cargo preference expansion, and monitor reflagging
streamlining that may ease U.S.-flag entry.
Operators should track mariner credentialing reforms that may ease crew availability, watch for
inspection and drydocking flexibility, and monitor fee proposals that could affect operating costs.
All participants should engage with the legislative process as implementation details develop.
TLR Projects, Marine & Offshore will continue monitoring MAP implementation and providing
guidance on customs implications for the maritime industry. Contact us to discuss how these
developments may affect your operations and how to position for the opportunities ahead.
About TLR Projects, Marine & Offshore
TLR Projects, Marine & Offshore
www.shiptlr.com | Expert Customs Brokerage for the Maritime Industry
TLR Projects, Marine & Offshore specializes in customs brokerage, freight forwarding, and
turnkey logistics solutions for the maritime and offshore industries. With deep expertise in vessel
operations, shipyard services, and offshore compliance, we provide the specialized support that
maritime companies require. Contact us to learn how we can support your operations.
