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October 26, 2020
Coast Guard Waterways Commerce Cutter (WCC) Program:
Background and Issues for Congress
Introduction
Figure 1. Coast Guard River Buoy Tender (WLR)
The Coast Guard’s Waterways Commerce Cutter (WCC)
program envisages procuring up to 35 replacements for the
Coast Guard’s 35 aging river buoy tenders (WLRs), inland
construction tenders (WLICs), and inland buoy tenders
(WLIs). The Coast Guard wants to award the first contract
for constructing the new WCCs in FY2022, and to have the
first new WCC be in service by 2025. The Coast Guard’s
proposed FY2021 budget requests $25.0 million in
procurement funding for the WCC program.
The issue for Congress is whether to approve, reject, or
modify the Coast Guard’s proposed acquisition strategy and
Source: Coast Guard photograph.
FY2021 funding request for the WCC program. Decisions
that Congress makes on this issue could affect Coast Guard
Geographic Distribution
capabilities and funding requirements, the U.S. shipbuilding
industry, and U.S. waterway commerce.
As of 2019, the 18 WLRs were based at cities along the
Mississippi and other inland rivers in Alabama, Arkansas,
Terminology
Illinois, Iowa, Kentucky (two cutters), Mississippi (three
cutters), Missouri, Nebraska, Oklahoma, Pennsylvania, and
Cutters are Coast Guard vessels that are more than 65 feet
long and have accommodations for a crew. (Coast Guard
Tennessee (four cutters). Although these locations are in the
vessels less than 65 feet long are called boats.) The term
central and eastern United States, the rivers in question are
referred to by the Coast Guard as the western rivers.
waterways refers here to the intra-coastal waterways along
the U.S. East and Gulf coasts, and U.S. inland waterways,
such as the Mississippi River. Tenders are vessels whose
As of 2019, the 13 WLICs were based at cities along the
U.S. East and Gulf coasts in Alabama, Florida (three
primary mission is to maintain or repair something. The
designations of Coast Guard tenders begin with WL,
cutters), Louisiana (two cutters), Maryland, North Carolina,
meaning Coast Guard vessel (W) and tender (L). (The W in
South Carolina, Texas (three cutters), and Virginia. As of
the acronym WCC, however, stands for waterways.)
2019, the four WLIs were based at locations in Alaska,
Michigan, Oregon, and North Carolina.
WCC Missions
Coast Guard Rationale for Building New
WCCs perform three primary missions under the Coast
WCCs
Guard’s statutory role of providing aids to navigation
(ATON): river buoy tending; inland construction tending
The Coast Guard wants to replace the 35 existing
waterways cutters because their annual maintenance costs
(which involves driving and removing piles and erecting
and repairing range towers and major lights); and inland
are rising rapidly, they break down frequently (and can
buoy tending. The waterborne commerce supported by
remain out of operation for periods of 30 to 45 days while
being repaired), and they have poor living conditions for
WCCs is important to the U.S. economy. Additional
missions for WCCs include ports, waterways, and coastal
their crew members. The Coast Guard argues that replacing
security (PWCS); search and rescue (SAR); marine
the aging cutters will be more cost effective than continuing
environmental protection; and marine safety.
to operate and maintain them.
Existing Waterways Cutters
WCC Program
The Coast Guard’s 35 existing WCCs (one of which is
Program Initiation and Name
shown in Figure 1), are built to nine different designs, and
The WCC program was initiated in the Coast Guard’s
include 18 WLRs, 13 WLICs, and four WLIs. As of 2020,
FY2018 budget submission. It was originally called the
the 35 vessels were an average of 56 years old, with the
oldest two being 76 and 75 years old, the youngest two
Inland Waterways and Western Rivers Tender (or Cutter)
being 30 years old, and the others 44 to 66 years old.
program. It was renamed the WCC program in the FY2019
budget submission. Some budget documents may continue
to use the program’s older name.
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Coast Guard Waterways Commerce Cutter (WCC) Program: Background and Issues for Congress
Acquisition Strategy
The Coast Guard wants to award the WLR/WLIC contract
The Coast Guard is proposing to replace the 35 existing
in FY2022. The WLR/WLIC acquisition is to be a small
waterway commerce cutters with 35 or fewer new WCCs,
business set-aside. Large businesses could team with a
with the exact number depending on the capabilities of the
small business for the WLR/WLIC acquisition, but the
new WCCs. The Coast Guard states that it
small business would need to be responsible for at least
51% of the total cost of the contract. The Coast Guard is
has taken steps to accelerate the WCC Program by
still determining the WLI acquisition strategy. The winner
more than a year, following direction in the FY
of the WLR/WLIC contract would be able to compete for
2018 DHS Appropriations Act (P.L. 115-141)….
the WLI contract as well.
On the basis of market research, design studies, and
an independent analysis, the Coast Guard has
The Coast Guard wants the first new WCC to enter service
determined that three WCC variants will meet
by 2025, and for all the WCCs to be in service by 2030. To
mission needs best. Each variant will perform one
meet this schedule, up to six WCCs might be procured each
mission set (river buoy tending, inland construction,
year.
or inland buoy tending). The Coast Guard is
Program Funding
planning to acquire the WLRs and WLICs on one
The WCC program through FY2020 has received $33.6
contract; these variants are expected to be common
million in procurement funding, which has been used for
except for hull length, working deck layouts, and
studies and analyses of program requirements and
deck equipment, including the crane…. The WLIs
acquisition strategies, and for other program-management
will be procured separately from the WLRs and
activities. As mentioned earlier, the Coast Guard’s
WLICs. The Coast Guard is examining whether
proposed FY2021 budget requests $25.0 million in
commercial vessels will meet this variant’s top-
procurement funding for the program, which would be used
level requirements….
for continued program-management activities.
(U.S. Coast Guard, Inland Waterways and Western
Recent Program Events
River Tenders, Fiscal Year 2020 Report to
On January 10, 2020, the Coast Guard released a request for
Congress, April 27, 2020, p. 4.)
information (RFI) for the prospective WLIs. On July 29,
The Coast Guard states that the new WLRs are to be 170
2020, the Coast Guard released a draft request for proposal
feet to 180 feet long, the new WLICs are to be 150 feet
(RFP) for the WLR/WLIC contract.
to 160 feet long, and the new WLIs are to be 100 to 120
feet long (Figure 2). Vessels of this size can be built by
April 2020 Report to Congress
smaller U.S. shipyards. In 2018, the Commandant of the
The Senate Appropriations Committee’s report (S.Rept.
Coast Guard stated that WCCs might have a notional
116-125 of September 26, 2019) on the FY2020
unit procurement cost of roughly $25 million, but the
Department of Homeland Security (DHS) appropriations
WCCs’ estimated unit procurement costs may have
act (S. 2582) directed the Coast Guard to provide an
changed since then.
acquisition plan and requirements document detailing the
Coast Guard’s plans to acquire new WCCs. The Coast
Figure 2. Coast Guard Notional Designs for WLR,
Guard provided the information in the report dated April
WLIC, and WLI
27, 2020, from which the earlier quote is taken.
Congressional Action on FY2021 Funding
Request
House
In its report (H.Rept. 116-458 of July 20, 2020) on the
FY2021 DHS appropriations act (H.R. 7669), the House
Appropriations Committee recommends approving the
Coast Guard’s request for $25.0 million in procurement
funding for the WCC program.
Ronald O'Rourke, Specialist in Naval Affairs
Source: Coast Guard il ustration showing indicative (i.e., notional)
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designs for the WLR (right), WLIC (middle), and WLI (left).
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Coast Guard Waterways Commerce Cutter (WCC) Program: Background and Issues for Congress
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