[Federal Register Volume 63, Number 54 (Friday, March 20, 1998)]
[Rules and Regulations]
[Pages 13482-13485]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-7330]


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DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

7 CFR Part 319

[Docket No. 96-082-2]


Bamboo

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Final rule.

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SUMMARY: We are consolidating the regulations pertaining to the 
importation of bamboo, contained in ``Subpart--Bamboo Capable of 
Propagation,'' and the regulations pertaining to propagative material 
in general, contained in ``Subpart--Nursery Stock, Plants, Roots, 
Bulbs, Seeds, and Other Plant Products.'' This change will simplify and 
clarify our regulations. We are also amending the regulations in 
``Subpart--Fruits and Vegetables'' to add provisions allowing fresh 
bamboo shoots without leaves or roots to be imported into the United 
States from various countries for consumption. This action is based on 
assessments that indicate that bamboo shoots without leaves or roots 
may be imported into the United States from certain countries without a 
significant risk of introducing plant pests.

EFFECTIVE DATE: April 20, 1998.

FOR FURTHER INFORMATION CONTACT: Mr. James Petit de Mange, Staff 
Officer, Phytosanitary Issues Management Team, PPQ, APHIS, 4700 River 
Road Unit 140, Riverdale, MD 20737-1231, telephone (301) 734-6799; or 
e-mail [email protected].

SUPPLEMENTARY INFORMATION:

Background

    The regulations at 7 CFR part 319 prohibit or restrict the 
importation of plants, plant parts, and related materials to prevent 
the introduction of foreign plant pests into the United States.
    The importation into the United States of any variety of bamboo 
seed, bamboo plants, and bamboo cuttings capable of propagation, 
including all genera and species of the tribe Bambuseae, has been 
regulated under ``Subpart-- Bamboo Capable of Propagation,'' contained 
in 7 CFR 319.34. Section 319.34(a) provides that all varieties of 
bamboo seeds, bamboo plants, and bamboo cuttings capable of propagation 
are prohibited importation into the United States unless they are 
imported: (1) For experimental or scientific purposes by the United 
States Department of Agriculture; (2) for export, or for transportation 
and exportation in bond, in accordance with 7 CFR part 352; or (3) into 
Guam, in accordance with Sec. 319.37-4(b).
    ``Subpart--Nursery Stock, Plants, Roots, Bulbs, Seeds, and Other 
Plant Products'' (referred to below as ``Subpart--Nursery Stock''), 
contained in 7 CFR 319.37 through 319.37-14, regulates the importation 
into the United States of most other propagative plant material. 
Regulated articles are designated as either prohibited or restricted.
    On September 11, 1997, we published in the Federal Register (62 FR 
47770-47772, Docket No. 96-082-1) a proposal to consolidate ``Subpart--
Bamboo Capable of Propagation'' and ``Subpart--Nursery Stock'' by 
adding bamboo seed, bamboo plants, and bamboo cuttings capable of 
propagation, except those imported into Guam, to the list of prohibited 
articles in Sec. 319.37(a). In conjunction with this action, we 
proposed to remove ``Subpart--Bamboo Capable of Propagation'' and all 
references to Sec. 319.34 contained in part 319.
    Under this proposal, bamboo seeds, bamboo plants, and bamboo 
cuttings capable of propagation would have continued to be eligible for 
importation into Guam as restricted articles. (The term restricted 
article is defined in Sec. 319.37-1 of ``Subpart--Nursery Stock'' as 
any class of nursery stock or other class of plant, root, bulb, seed, 
or other plant product for, or capable of, propagation, excluding any 
prohibited articles listed in Sec. 319.37-2 (a) or (b) of ``Subpart--
Nursery Stock,'' and excluding any articles regulated under other 
subparts of part 319.)
    The importation of bamboo seeds, bamboo plants, and bamboo cuttings 
for experimental or scientific purposes by the United States Department 
of Agriculture also would not have been affected by this change. In 
``Subpart-- Nursery Stock,'' Sec. 319.37-2(c) provides that any article 
listed as a prohibited article in Sec. 319.37(a) may be imported for 
experimental or scientific purposes by the Department of Agriculture.
    In addition, bamboo seeds, bamboo plants, and bamboo cuttings 
capable of propagation would have continued to be eligible for movement 
through the United States for export, or for transportation and 
exportation in bond, in accordance with 7 CFR part 352. The regulations 
at 7 CFR part 352, ``Plant Quarantine Safeguard Regulations,'' allow 
plants and plant parts that are not eligible for entry into the United 
States to move through the United States for export to other countries 
under safeguards intended to prevent the introduction of plant pests.

[[Page 13483]]

    We also proposed to amend ``Subpart--Fruits and Vegetables,'' 
contained in Secs. 319.56 through 319.56-8, by adding provisions 
allowing fresh bamboo shoots without leaves or roots to be imported 
into the United States for consumption from China, the Dominican 
Republic, Japan, and Taiwan. We proposed to add bamboo shoots without 
leaves or roots to the list of fruits and vegetables in Sec. 319.56-2t 
that may be imported from specified countries or places in accordance 
with Sec. 319.56-6 and all other applicable provisions of the 
regulations. (Section 319.56-6, among other things, provides for 
inspection and, if necessary, disinfection of imported fruits and 
vegetables at the port of first arrival.) This proposed action was 
based on assessments that show that fresh bamboo shoots without leaves 
or roots may be imported from the countries listed into the United 
States for consumption without presenting a significant pest or plant 
disease risk.
    We solicited comments concerning our proposal for 60 days ending 
November 10, 1997. We received six comments by that date. Two were from 
State government officials, and four were from representatives of the 
domestic bamboo industry. Five commenters asked that we consider 
amending one or more aspects of our proposal. One commenter expressed 
disapproval with our proposal. Their concerns are addressed below by 
topic.

Removal of the Prohibition on Importing Bamboo Nursery Stock

    Comment: The prohibition on the importation of bamboo propagative 
material should be removed since our domestic bamboo industry needs 
more and better species if it is to become a viable industry. The 
present quarantine system is not suited for the growing bamboo 
industry, as it performs both the functions of keeping plant pests out, 
and keeping industry growth down. The prohibition on the importation of 
bamboo seeds and tissue-cultured embryos should be removed as well, 
because the pathogens that were the original basis for the regulations 
are not carried on the seeds, and therefore, the Animal and Plant 
Health Inspection Service should allow their importation along with 
shoots.
    Response: Any change in the nursery stock regulations that would 
eliminate the prohibition on the importation of bamboo would need to be 
based on a pest risk assessment for each genus of bamboo to be 
imported. At present, we do not have the resources to complete such 
pest risk assessments in a timely fashion, as the tribe Bambuseae is 
made up of approximately 50-120 different genera. However, anyone 
wishing to import a specific genus may submit such a request to the 
Phytosanitary Issues Management Team at the address listed above in the 
FOR FURTHER INFORMATION CONTACT section of this rule, and we will 
conduct a pest risk assessment for that genus. We invite the submission 
of any pest risk information, preferably published data, with such a 
request to import bamboo.

Propagative Bamboo into Guam

    Comment: The importation of bamboo nursery stock into Guam should 
be prohibited, since it is prohibited everywhere else in the United 
States. At present, there are no bamboo pests on Guam, and by 
continuing to allow the importation of bamboo by standard permit, such 
bamboo pests or diseases or other plant pests may be brought to Guam.
    Response: We have decided to make the change requested in regard to 
the prohibition of the importation of bamboo nursery stock into Guam. 
Though the regulations currently allow bamboo nursery stock to be 
imported into Guam under permit, we have concluded for the reasons 
stated in the comment that bamboo nursery stock should not be imported 
into Guam unless a pest risk assessment is conducted that documents 
that the importation of bamboo nursery stock will not present a 
significant risk of introducing plant pests into Guam.

Bamboo Shoots

    Comment: Mexico should be added to the list of countries eligible 
to export bamboo shoots to the United States.
    Response: In order to add Mexico to the list, a pest risk 
assessment must be conducted and must indicate that the importation of 
bamboo shoots from Mexico will not present a significant risk of 
introducing plant pests into the United States. Anyone who is 
interested in importing bamboo shoots from Mexico or any other country 
for consumption should submit a request to the Phytosanitary Issues 
Management Team at the address listed above in the FOR FURTHER 
INFORMATION CONTACT section of this rule, and we will conduct a pest 
risk assessment on bamboo shoots from that particular country.
    Comment: Bamboo shoots can and might be used for propagation, and 
thus may introduce new plant pests to the United States.
    Response: We are adding edible bamboo shoots without leaves or 
roots to the list of acceptable imports in Sec. 319.56-2t, which deals 
with nonpropagative material. We acknowledge that it is possible to 
propagate a plant from bamboo shoots, but bamboo shoots are allowed 
importation under Sec. 319.56-2t for consumption only. We currently 
require prospective importers to state the purpose of their 
importation(s) on their application for an import permit. In this case, 
a permit is issued only for bamboo shoots that are without leaves or 
roots and that are intended for human consumption. If we have reason to 
believe that bamboo shoots are being imported for the purpose of 
planting, we have the authority to investigate and take enforcement 
action, which could include the revocation of an importer's permit, 
denial of future permits, and seizure of the propagated bamboo, as well 
as civil or criminal penalties. We do not believe, however, that 
propagation of shoots imported for consumption is likely, due to the 
fragile nature and decreased viability of imported bamboo shoots. It is 
our understanding that propagative bamboo plants that are imported 
under special scientific permits have limited survival rates even 
though such plants are packed and shipped individually with great care. 
When contrasted with packing and shipping procedures for bulk 
quantities of fresh bamboo shoots imported for consumption, it is clear 
that such shoots have a very limited potential to propagate themselves, 
even if planted. Under these circumstances, we continue to believe that 
the proposed importation of bamboo shoots for consumption would present 
a negligible pest risk and are, therefore, making no change in the rule 
in response to this comment.
    Comment: The importation of bamboo shoots will hurt U.S. growers' 
business.
    Response: We anticipate that less than 200 metric tons of fresh 
bamboo shoots will be imported into the United States under this rule. 
Data on imported bamboo shoots in general suggests that fresh bamboo 
shoots occupy a minimal part of the overall market for bamboo shoots in 
general (less than one percent of the overall market). In 1995, 8,632 
metric tons of frozen bamboo shoots and 29,824 metric tons of canned 
bamboo shoots were imported into the United States. Though we could not 
determine the amount of domestic production of fresh bamboo shoots, we 
anticipate that, given the quantity of expected imports (200 metric 
tons) relative to the overall size of the market for imported bamboo 
shoots in general (over 38,000 metric tons), a large economic impact on 
the domestic industry is unlikely.
    Therefore, based on the rationale set forth in the proposed rule 
and in this document, we are adopting the

[[Page 13484]]

provisions of the proposal as a final rule, with the change 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 purposes of Executive 
Order 12866 and, therefore, has not been reviewed by the Office of 
Management and Budget.
    In accordance with 5 U.S.C. 604, we have performed a Final 
Regulatory Flexibility Analysis, which is set out below, regarding the 
impact of this final rule on small entities.
    Under the Plant Quarantine Act and the Federal Plant Pest Act (7 
U.S.C. 150dd, 150ee, 150ff, 151-167), the Secretary of Agriculture is 
authorized to regulate the importation of fruits and vegetables to 
prevent the introduction of injurious plant pests.
    This rule consolidates the regulations pertaining to the 
importation of bamboo, contained in ``Subpart--Bamboo Capable of 
Propagation,'' and the regulations pertaining to propagative material 
in general, contained in ``Subpart--Nursery Stock, Plants, Roots, 
Bulbs, Seeds, and Other Plant Products.'' This change is 
nonsubstantive, and will simplify and clarify our regulations.
    This rule also amends the regulations in ``Subpart--Fruits and 
Vegetables'' by adding provisions that allow fresh bamboo shoots 
without leaves or roots to be imported into the United States from 
certain countries.
    One commenter on the proposed rule expressed concern that the 
importation of fresh bamboo shoots would have a negative impact on 
domestic producers of bamboo shoots.
    It is estimated that less than 200 metric tons of fresh bamboo 
shoots will be imported into the United States as a result of this 
rule. This is compared to imports of 8,632 metric tons of frozen bamboo 
shoots and imports of 29,824 metric tons of canned bamboo shoots in 
1995. While we could not determine the amount of domestic production of 
fresh bamboo shoots, we anticipate that the imports would supply part 
of an expanding demand for fresh, rather than frozen or canned, bamboo 
shoots.
    The additional information necessary to determine the impacts on 
U.S. growers, including estimates of domestic production, is not 
available. It is possible that this rule could lead to price effects 
that could affect producers. Although bamboo shoot growers do not 
constitute a separate category for classification of small entities by 
the Small Business Administration, it is likely that the majority of 
these growers would be considered small. Therefore, any economic 
impacts of this rule would affect small entities. However, given the 
quantity of expected imports of fresh bamboo shoots relative to the 
overall size of the market for imported bamboo shoots in general (over 
38,000 metric tons), a large economic impact is unlikely.
    Several alternatives to this rule were suggested in public comments 
on our proposed rule. Two commenters suggested that we remove the 
prohibition on the importation of bamboo nursery stock so as to 
facilitate the growing industry in its search for a better crop base. 
We did not adopt this alternative, based on a lack of scientific pest 
risk data on bamboo nursery stock. We also did not adopt another 
proposal to include Mexico on the list of regions we will import fresh 
bamboo shoots from, based on a similar lack of available data at this 
time. We did adopt a change suggested by two commenters from Guam who 
felt that Guam also should be subject to the same prohibition on the 
importation of bamboo nursery stock as the rest of the United States.
    A final alternative to this rule was to make no changes in the 
regulations. However, we have done pest risk assessments which indicate 
that bamboo shoots without leaves or roots may be imported into the 
United States from certain countries without a significant risk of 
introducing plant pests. Further, we lack the pest risk assessment data 
needed to demonstrate that there is no significant pest risk associated 
with the importation of bamboo nursery stock into Guam. Therefore, we 
have adopted the provisions concerning bamboo shoots, as proposed, and 
the new provisions concerning bamboo nursery stock into Guam, as 
suggested by public comment.

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 new 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 319

    Bees, Coffee, Cotton, Fruits, Honey, Imports, Incorporation by 
reference, Nursery Stock, Plant diseases and pests, Quarantine, 
Reporting and record keeping requirements, Rice, Vegetables.

    Accordingly, 7 CFR part 319 is amended as follows:

PART 319--FOREIGN QUARANTINE NOTICES

    1. The authority citation for part 319 continues to read as 
follows:

    Authority: 7 U.S.C. 150dd, 150ee, 150ff, 151-167, 450, 2803, and 
2809; 21 U.S.C. 136 and 136a; 7 CFR 2.22, 2.80, and 371.2(c).

Subpart--Bamboo Capable of Propagation [Removed]

    2. Subpart--Bamboo Capable of Propagation, consisting of 
Sec. 319.34, is removed.


Sec. 319.37-1  [Amended]

    3. In Sec. 319.37-1, the definition for Restricted article is 
amended by removing the reference to ``319.34'' and adding ``319.24'' 
in its place.


Sec. 319.37-2  [Amended]

    4. In Sec. 319.37-2(a), the table is amended as follows:
    a. By adding, in alphabetical order, an entry for ``Bambuseae,'' to 
read as set forth below.
    b. By amending the entry for ``Poaceae'' by revising the text in 
the first column, to read as set forth below.


Sec. 319.37-2  Prohibited Articles

    (a) * * *

[[Page 13485]]



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                                                                                                  Plant pests   
                                                                                                existing in the 
                                                                                                places named and
 Prohibited article (includes seeds            Foreign places from which prohibited             capable of being
  only if specifically mentioned)                                                               transported with
                                                                                                 the prohibited 
                                                                                                    article     
----------------------------------------------------------------------------------------------------------------
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
Bambuseae (seeds, plants, and        All.....................................................  Various plant    
 cuttings).                                                                                     diseases,       
                                                                                                Including bamboo
                                                                                                smut (Ustilago  
                                                                                                shiraiana)      
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
Poaceae (vegetative parts of all     *    *    *                                               *    *    *      
 grains and grasses, except species                                                                             
 of Bambuseae).                                                                                                 
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
----------------------------------------------------------------------------------------------------------------

* * * * *


Sec. 319.40-2  [Amended]

    5. In Sec. 319.40-2, paragraph (c) is amended by removing the words 
``; Sec. 319.34, ``Subpart--Bamboo Capable of Propagation'';'' and by 
adding in their place a comma immediately after the word ``Diseases''.
    6. In Sec. 319.56-2t, the table is amended by adding entries, in 
alphabetical order, to read as follows:


Sec. 319.56-2t  Administrative instructions; conditions governing the 
entry of certain fruits and vegetables.

* * * * *

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           Country/locality                  Common name             Botanical name           Plant part(s)     
----------------------------------------------------------------------------------------------------------------
                                                                                                                
*                  *                  *                  *                  *                  *                
China................................  Bamboo.................  Bambuseae spp..........  Edible shoot, free of  
                                                                                          leaves and roots.     
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
Dominican Republic...................  Bamboo.................  Bambuseae spp..........  Edible shoot, free of  
                                                                                          leaves and roots.     
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
Japan................................  Bamboo.................  Bambuseae spp..........  Edible shoot, free of  
                                                                                          leaves and roots.     
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
Taiwan...............................  Bamboo.................  Bambuseae spp..........  Edible shoot, free of  
                                                                                          leaves and roots.     
                                                                                                                
*                  *                  *                  *                  *                  *                
                                                        *                                                       
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* * * * *
    Done in Washington, DC, this 16th day of March 1998.
Craig A. Reed,
Acting Administrator, Animal and Plant Health Inspection Service.
[FR Doc. 98-7330 Filed 3-19-98; 8:45 am]
BILLING CODE 3410-34-P