The reintroduction of the SHIPS for America Act is adding further uncertainty to the ocean container shipping market, according to a new analysis by Xeneta, which said this raises concerns among industry stakeholders about potential financial and operational disruptions.
The legislation, which now includes a fee structure targeting carriers based on their shipbuilding orders, compounds the financial pressures already facing shippers amid ongoing tariff and regulatory changes.
"The SHIPS for America Act introduces yet another layer of complexity for ocean freight operators in 2025," Xeneta said in a statement. "With additional fees now in play, the ability to maintain cost-effective and resilient supply chains becomes even more challenging."
The bill imposes fees on vessels owned or operated by Chinese carriers, as well as ships registered in China, at a rate of US$5 per ton. It also extends the levy to non-Chinese carriers with more than 50% of their new vessel orders placed in designated foreign shipyards.
Additionally, operators with between 25% and 49% of ships on order in affected yards face a reduced fee of US$3.5 per ton, while those with an existing fleet built or repaired at restricted shipyards will be subject to a penalty tax of US$1.25 per ton.
Xeneta noted that these fees, combined with upcoming U.S. Trade Representative (USTR) regulations, could force alliances and individual carriers to reconfigure their fleet deployments.
"If regulatory conditions change so drastically from one week to the next, freight procurement and operations must account for shifting dynamics and service provider strategies," the statement said.
The complexity escalates when considering alliances such as the Ocean Alliance, comprising COSCO, CMA CGM, Evergreen, and OOCL. With carriers facing varied exposure to fees under both the SHIPS for America Act and the USTR proposals, re-aligning fleet usage could prove difficult.
The Danish freight market intelligence company said shippers are likely to bear the financial burden as carriers adjust pricing strategies to mitigate the effects of these new charges.
"There are major questions surrounding how carriers will pass on these additional costs," Xeneta stated. "Shippers should be prepared to negotiate aggressively against surcharges arising from these legislative changes."
Beyond financial concerns, the Act introduces new logistical challenges, particularly with its mandate requiring a percentage of goods imported from China to be transported on U.S.-built vessels, increasing incrementally to 10% over time.
Xeneta warned that the enforcement of such provisions could introduce administrative hurdles for shippers navigating compliance.
"The potential financial and regulatory headaches associated with these measures underscore the broader difficulties facing global container shipping in the months ahead," the analysis said.
