[Federal Register Volume 62, Number 221 (Monday, November 17, 1997)]
[Rules and Regulations]
[Pages 61210-61213]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-30107]


-----------------------------------------------------------------------

DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

7 CFR Part 301

[Docket No. 96-061-2]
RIN 0579-AA85


Interstate Movement of Imported Plants and Plant Parts

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Final rule.

-----------------------------------------------------------------------

SUMMARY: We are establishing a new generic domestic quarantine notice. 
This domestic quarantine notice provides that, subsequent to their 
importation, foreign plants and plant parts prohibited under our 
foreign quarantine notices from being imported into certain States or 
areas are also prohibited from being moved interstate into those States 
or areas. This action will clarify and strengthen our ability to 
enforce restrictions on the movement in commerce of imported plants and 
plant parts that present a risk of introducing foreign plant pests and 
diseases. In conjunction with this action, we are also removing a 
domestic quarantine notice that prohibits certain interstate movements 
of Unshu oranges, subsequent to their importation into the United 
States, because the new domestic quarantine notice makes a specific one 
for Unshu oranges unnecessary.

EFFECTIVE DATE: December 17, 1997.

FOR FURTHER INFORMATION CONTACT: Mr. Stephen Poe, Operations Officer, 
Domestic and Emergency Operations, PPQ, APHIS, 4700 River Road Unit 
134, Riverdale, MD 20737-1236, (301) 734-8899.

SUPPLEMENTARY INFORMATION:

Background

    The regulations at title 7, part 301, of the Code of Federal 
Regulations (CFR) contain domestic quarantine notices designed to 
prevent the spread of certain plant pests and diseases through the 
interstate movement of regulated articles. The regulations at 7 CFR 319 
contain foreign quarantine notices designed to prevent the introduction 
of foreign plant pests and diseases through the importation of 
regulated articles into the United States.
    Some of the foreign quarantine notices in part 319 include 
destination restrictions for specified imported plants and plant parts. 
That is, these notices allow specified foreign plants or plant parts to 
be imported into some parts of the United States but not into other 
specified States or areas because movement into those States or areas 
could present a plant pest or disease risk. However, only one domestic 
quarantine notice (7 CFR 301.83, ``Subpart-Unshu Oranges'') prohibits 
the subsequent movement of an imported plant or plant part into or 
through certain portions of the United States based on importation 
restrictions specified in a foreign quarantine notice (7 CFR 319.28, 
``Subpart-Citrus Fruit'').
    On October 2, 1996, we published in the Federal Register (61 FR 
51376-51377, Docket No. 96-061-1) a proposal to amend the regulations 
in title 7 by establishing a new generic domestic quarantine notice in 
part 301. We stated that the proposed quarantine notice would prohibit 
the subsequent interstate movement of imported plants and plant parts 
into or through areas identified in a foreign quarantine notice as 
being a prohibited destination for the imported plants and plant parts.
    In conjunction with the action just described, we also proposed to 
remove the domestic quarantine notice, ``Subpart-Unshu Oranges,'' 
contained in Sec. 301.83. As mentioned previously, that subpart serves 
to reinforce the destination restrictions for imported Unshu oranges 
specified in the foreign quarantine notice ``Subpart-Citrus Fruit.'' 
The establishment of the generic domestic quarantine notice described 
above would make the prohibitions in ``Subpart-Unshu Oranges'' 
redundant and, therefore, no longer necessary.
    We solicited comments concerning our proposal for 45 days ending 
November 18, 1996. We received four comments by that date. They were 
from an industry group, a scientific organization, and two State 
governments.
    While we will discuss specific comments below, we believe several 
of the concerns expressed in the comments stemmed from confusion about 
the language we used in the proposed domestic quarantine notice. We 
regret any misunderstanding that resulted from the proposal as written 
and will attempt to explain more clearly in this document our goal in 
promulgating this regulation. We also are revising the proposed 
regulatory language to clarify it.
    To begin, we would like to emphasize that this generic domestic 
quarantine notice adds no new quarantine restrictions; it simply 
reiterates in the domestic quarantine notices (title 7, part 301) 
restrictions that are already stated in the foreign quarantine notices 
(title 7, part 319). Therefore, this notice will have no effect on the 
legal importation or interstate transport of foreign plants or plant 
parts. What this domestic quarantine notice will do is clarify that 
shipping an imported plant or plant part interstate to an area of the 
United States that is a prohibited destination for that plant or plant 
part under a foreign quarantine notice is a violation of Federal 
regulations. Because this notice clearly states that such interstate 
movement of certain imported plants and plant parts is prohibited, we 
believe that this notice strengthens our ability to take regulatory 
action against persons who engage in such prohibited interstate 
transport.
    This new quarantine notice logically places any regulations setting 
forth restrictions on the interstate movement of imported plants and 
plant parts in the domestic quarantine notices in part 301 of the 
regulations instead of in the foreign quarantine notices in part 319. 
Any member of the public who might check the CFR to determine whether 
the domestic movement of an imported plant or plant part is prohibited 
or restricted could not reasonably be expected to look for that 
information in the foreign quarantine notices. Placing this quarantine 
notice and prohibition on interstate movement in a more logical 
position in the CFR will increase public awareness of and accessibility 
to these restrictions in the regulations.

Specific Concerns

    One commenter expressed concern that the language in the proposed 
domestic quarantine notice was ``vague and confusing and could easily 
result in misinterpretation as to its intent, especially where it 
states that the limited distribution areas are essentially quarantined 
areas.''
    As our proposal was worded, areas of the United States into which a 
plant or plant part may be imported under part 319 would be quarantined 
with respect to that plant or plant part; all other areas of the United 
States would not be quarantined with respect to that plant or plant 
part, and movement of the plant or plant part would be prohibited into 
nonquarantined areas.
    We recognize that designating as ``quarantined areas'' the States 
and areas into which the foreign plants or plant parts may move could 
be confusing to some people. Under many plant pest

[[Page 61211]]

quarantines, certain articles may not be moved from a quarantined area 
because there is an infestation in that area. The States and areas 
quarantined for a particular plant or plant part under the generic 
domestic quarantine notice will be ``quarantined'' because of the way 
in which our authorizing statute is written. According to 7 U.S.C. 161, 
the Secretary of Agriculture is authorized and directed to quarantine 
any portion of the United States he deems necessary to prevent the 
spread of a dangerous plant disease or insect infestation that is new 
to or not widely prevalent within the United States. Further, 7 U.S.C. 
161 prohibits the interstate movement of any plants, plant parts, or 
other articles capable of carrying the disease or insect pest from any 
quarantined portion of the United States into or through any other part 
of the United States, except as prescribed by the Secretary of 
Agriculture.
    We would like to illustrate how this authority is used in regard to 
the foreign quarantine notices in part 319. The purpose of the 
destination restrictions in the foreign quarantine notices that have 
such restrictions is to prevent the movement of an imported article 
that presents a risk of carrying a foreign plant pest or disease into 
an area of the United States where the pest or disease could become 
established. In the case of imported Unshu oranges, for example, all 
areas of the United States except for American Samoa, Arizona, 
California, Florida, Louisiana, the Northern Mariana Islands, Puerto 
Rico, Texas, and the Virgin Islands of the United States are 
quarantined. The listed States and territories are the primary citrus-
producing areas of the United States. Because we want to prevent the 
possibility that imported Unshu oranges could introduce citrus canker 
(a disease of citrus) into the United States, we prohibit these oranges 
from being moved into U.S. citrus-production areas, where the disease 
could become established. Therefore, according to 7 CFR 301.83 and 
319.28, imported Unshu oranges grown in Japan or on Cheju Island, 
Republic of Korea, may be moved only into quarantined areas of the 
United States (all areas of the United States except for American 
Samoa, Arizona, California, Florida, Louisiana, the Northern Mariana 
Islands, Puerto Rico, Texas, and the Virgin Islands of the United 
States).
    Because of the way in which our statutory authority is written, the 
generic domestic quarantine notice will work in the same way as the 
Unshu orange quarantine: The areas into which a foreign plant or plant 
part may be moved are quarantined with respect to that plant or plant 
part, and any subsequent movement of the imported plant or plant part 
into nonquarantined areas is prohibited. However, as a result of the 
confusion generated by the language in the proposal, we are adding some 
introductory text to the quarantine notice in an attempt to make the 
rule more clear.
    Some of the commenters expressed concern regarding the development 
of the destination restrictions on imported plants and plant parts 
contained in the foreign quarantine notices. One commenter questioned 
how the ``protected'' States and areas would be selected. Another 
commenter wanted us to make provision for several actions: Allowing 
exemptions to the restrictions for research purposes, consulting the 
scientific community during the selection process, conducting risk 
assessments of the imported plants and plant parts and associated plant 
pests, conducting periodic reviews of such plants and pests, and 
conducting reviews of taxonomic classifications.
    We want to make clear that the process we follow to add a foreign 
plant or plant part to part 319 to allow the plant's or plant part's 
importation with or without destination restrictions will not change as 
a result of this rule. Moreover, we will not add to part 301 lists of 
plants or plant parts with domestic movement restrictions as a result 
of this rule. As stated previously, this proposed quarantine notice 
adds no new regulatory requirements; it simply restates in part 301 
restrictions on interstate movement of plants and plant parts that have 
always been prohibited through the destination restrictions in part 
319.
    Before we add a foreign plant or plant part to part 319 to allow 
the plant's or plant part's importation, we publish in the Federal 
Register for public comment a proposal explaining our reasons for 
believing the plant or plant part could be imported under certain 
conditions without presenting a threat to the health of U.S. 
agriculture. All comments submitted are then carefully considered 
before we issue a final rule. If, after evaluating the comments 
received and all available scientific data, we believe the foreign 
plant or plant part presents a plant pest or disease risk to certain 
areas of the United States only, we may choose to add the plant or 
plant part to part 319 with destination restrictions and other risk-
mitigation measures. (Destination restrictions are always only one part 
of a systems approach to pest and disease exclusion.) As part of this 
rulemaking process, we conduct periodic reviews and risk assessments of 
foreign plants and plant pests, track changes in taxonomy, and issue 
permits for movement of plants and plant parts for research purposes.
    A couple of commenters raised concerns about enforcement of the 
proposed generic quarantine notice. The commenters were concerned that 
no additional enforcement mechanisms were provided in the notice and 
that enforcement would become the responsibility of the States.
    It is true that no new enforcement mechanisms are included in the 
notice. They were not necessary, and no new enforcement 
responsibilities will devolve upon the States as a result of this 
action. Our goal in promulgating this action was simply to clarify our 
authority to take enforcement action, should the need arise, against 
persons who have moved imported plants or plant parts interstate in 
violation of destination restrictions in a foreign quarantine notice.
    One commenter opposed the general concept of using limited 
distribution of an article as a means of mitigating pest or disease 
risk because enforcing restrictions on the distribution of commodities 
is difficult. We realize that some prohibited shipments, most often 
small shipments made by private citizens, may take place as the result 
of either ignorance of the regulations or purposeful deceit. However, 
limited distribution of a foreign plant or plant part is never the sole 
measure used to mitigate the pest or disease risks associated with 
importing the plant or plant part; destination restrictions are one of 
usually a series of risk-mitigation measures, or multiple safeguards, 
used to reduce a commodity's pest or disease risk to a negligible 
level. Moreover, we believe that the vast majority of commercial 
shippers try to abide by Federal requirements and that unscrupulous 
distributors are the exception rather than the norm.
    One commenter requested that the proposed quarantine notice include 
a requirement that the shipping containers for plants and plant parts 
covered by the quarantine be labeled to indicate that reshipment to the 
restricted areas is prohibited. While the proposal includes no 
additional labeling requirements, the majority of foreign quarantine 
notices that have destination restrictions require that the containers 
carrying the product be labeled ``not for distribution in'' the 
restricted areas.
    One commenter expressed concern that the proposed generic 
quarantine notice could infringe on a State's authority to restrict the 
entry from other States of plants and plant parts that present a plant 
pest risk to that State.

[[Page 61212]]

    This quarantine notice will have no effect on a State's authority 
to regulate the interstate movement of domestic plants or plant parts. 
The Plant Quarantine Act (7 U.S.C. 151 et seq.) allows a State to 
regulate the interstate movement of plants and plant parts coming into 
that State from a State where a plant pest or disease exists until the 
Secretary of Agriculture promulgates a quarantine or regulation 
regarding the plant pest or disease. Once the Secretary acts by 
promulgating a quarantine or regulation regarding a plant pest or 
disease, the States are precluded, or preempted, from regulating for 
that particular plant pest or disease, except that they may have 
regulations that parallel the Federal quarantine or regulations. 
However, the new domestic quarantine notice does not establish any new 
quarantine or regulations affecting the interstate movement of domestic 
plants or plant parts.
    With respect to imported plants and plant parts, our new domestic 
quarantine notice prohibits the subsequent interstate movement of 
imported plants or plant parts into States or areas named in part 319 
as States or areas into which the plants or plant parts may not be 
imported. If part 319 allows a foreign plant or plant part to be 
imported into a State, that State does not have authority to refuse the 
plant or plant part entry, either directly from the port of arrival, or 
from another State. The Federal Government retains jurisdiction over 
all plants and plant parts while they are in foreign commerce. If the 
Secretary of Agriculture does not prohibit or restrict the importation 
of a plant or plant part, any such prohibition or restriction is deemed 
to be unnecessary. When foreign commerce ceases is a question of fact 
that must be addressed in each individual case. However, the Department 
of Agriculture has taken the position that fresh fruits and vegetables 
imported into the United States for immediate distribution and sale 
remain in foreign commerce until they are sold to the ultimate 
consumer. Other questions regarding when foreign commerce ceases must 
be addressed on a case-by-case basis and will be resolved based on the 
facts in each particular case.
    For these reasons, a State may not legally prohibit the interstate 
movement of a foreign plant or plant part into the State if the plant 
or plant part is allowed importation into the State under part 319, 
whether or not the plant or plant part is considered to be in foreign 
commerce or in interstate commerce. If an imported plant or plant part 
is deemed to be in interstate commerce (which could happen with plants 
and plant parts other than fresh fruits and vegetables), a State may 
not enforce regulations that are different from the Department's 
regulations. Any State that believes it should or should not be 
included as a restricted destination in part 319 should present its 
case to the Administrator of the Animal and Plant Health Inspection 
Service (APHIS).
    One commenter expressed concern that a State wishing to be included 
as a restricted destination in part 319 might be required first to 
conduct surveys to establish that the State is free of the pest of 
concern and then establish an official control program to prevent 
interstate movement of the pest into the State. The commenter was 
further concerned that this process could require funding and other 
resources that the State might not have.
    We have no plans to require that, before a State may be considered 
for inclusion as a restricted destination in part 319, the State would 
need to conduct surveys to prove that it is free of a particular 
foreign pest or establish an official control program to prevent 
interstate movement of that pest into its jurisdiction. Any decision to 
include a State as a restricted destination in part 319 is based upon a 
risk assessment, conducted by the Department, that indicates that 
destination restrictions appear warranted to reduce the pest risk to 
susceptible crops within that State. The establishment of an official 
control program by a State would not be a prerequisite to a State's 
being listed as a restricted destination in part 319.
    Therefore, based on the rationale set forth in the proposed rule 
and in this document, we are adopting the provisions of the proposal as 
a final rule with the changes discussed in this document.

Executive Order 12866 and Regulatory Flexibility Act

    This rule has been reviewed under Executive Order 12866. The rule 
has been determined to be not significant for the purposes of Executive 
Order 12866 and, therefore, has not been reviewed by the Office of 
Management and Budget.
    We do not anticipate that this action will have a significant 
economic impact on any small entities. Imported plants and plant parts, 
including fruits and vegetables, that are prohibited from being 
imported into specified States or areas under our foreign quarantine 
notices are, under those same notices, prohibited from being 
distributed in those States or areas. This action clarifies and 
strengthens the agency's ability to enforce these restrictions.
    Under these circumstances, the Administrator of the Animal and 
Plant Health Inspection Service has determined that this action will 
not have a significant economic impact on a substantial number of small 
entities.

Executive Order 12372

    This program/activity is listed in the Catalog of Federal Domestic 
Assistance under No. 10.025 and is subject to Executive Order 12372, 
which requires intergovernmental consultation with State and local 
officials. (See 7 CFR part 3015, subpart V.)

Executive Order 12988

    This rule has been reviewed under Executive Order 12988, Civil 
Justice Reform. This rule: (1) Preempts all State and local laws and 
regulations that are inconsistent with this rule; (2) has no 
retroactive effect; and (3) does not require administrative proceedings 
before parties may file suit in court challenging this rule.

Paperwork Reduction Act

    This rule contains no information collection or recordkeeping 
requirements under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 
et. seq.).

Regulatory Reform

    This action is part of the President's Regulatory Reform 
Initiative, which, among other things, directs agencies to remove 
obsolete and unnecessary regulations and to find less burdensome ways 
to achieve regulatory goals.

List of Subjects in 7 CFR Part 301

    Agricultural commodities, Plant diseases and pests, Quarantine, 
Reporting and recordkeeping requirements, Transportation.

    Accordingly, 7 CFR part 301 is amended as follows:

PART 301--DOMESTIC QUARANTINE NOTICES

    1. The authority citation for part 301 continues to read as 
follows:

    Authority: 7 U.S.C. 147a, 150bb, 150dd, 150ee, 150ff, 161, 162, 
and 164-167; 7 CFR 2.22, 2.80, and 371.2(c).

    2. A new subpart, Subpart-Imported Plants and Plant Parts, is added 
to part 301 to read as follows:

Subpart--Imported Plants and Plant Parts

Sec.
301.10  Definitions.
301.11  Notice of quarantine; prohibition on the interstate movement 
of certain imported plants and plant parts.

[[Page 61213]]

Subpart--Imported Plants and Plant Parts


Sec. 301.10  Definitions.

    Move (moved, movement). Shipped, offered to a common carrier for 
shipment, received for transportation or transported by a common 
carrier, or carried, transported, moved, or allowed to be moved.
    State. Any State, territory, district, or possession of the United 
States.


Sec. 301.11  Notice of quarantine; prohibition on the interstate 
movement of certain imported plants and plant parts.

    (a) In accordance with part 319 of this chapter, some plants and 
plant parts may only be imported into the United States subject to 
certain destination restrictions. That is, under part 319, some plants 
and plant parts may be imported into some States or areas of the United 
States but are prohibited from being imported into, entered into, or 
distributed within other States or areas, as an additional safeguard 
against the introduction and establishment of foreign plant pests and 
diseases.
    (b) Under this quarantine notice, whenever any imported plant or 
plant part is subject to destination restrictions under part 319:
    (1) The State(s) or area(s) into which the plant or plant part is 
allowed to be imported is quarantined with respect to that plant or 
plant part; and
    (2) No person shall move any plant or plant part from any such 
quarantined State or area into or through any State or area not 
quarantined with respect to that plant or plant part.

Subpart--Unshu Oranges--[Removed and Reserved]

    3. Subpart-Unshu Oranges, consisting of Sec. 301.83, is removed and 
reserved.

    Done in Washington, DC, this 10th day of November 1997.
Terry L. Medley,
Administrator, Animal and Plant Health Inspection Service.
[FR Doc. 97-30107 Filed 11-14-97; 8:45 am]
BILLING CODE 3410-34-P