[Federal Register Volume 63, Number 236 (Wednesday, December 9, 1998)]
[Proposed Rules]
[Pages 67809-67813]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-32654]


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DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

9 CFR Part 94

[Docket No. 98-028-1]


Importation of Poultry Products

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Proposed rule.

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[[Page 67810]]

SUMMARY: We are proposing to amend the regulations for importing animal 
products to allow the importation of poultry carcasses and parts or 
products of poultry carcasses from regions where exotic Newcastle 
disease (END) is considered to exist if they originated in a region 
free of END and meet certain conditions with respect to processing and 
shipping. This action would remove some restrictions on the importation 
of poultry products from regions where END is considered to exist. We 
believe the proposed conditions for importation will continue to 
protect the United States from END.

DATES: Consideration will be given only to comments received on or 
before February 8, 1999.

ADDRESSES: Please send an original and three copies of your comments to 
Docket No. 98-028-1, Regulatory Analysis and Development, PPD, APHIS, 
suite 3C03, 4700 River Road Unit 118, Riverdale, MD 20737-1238. Please 
state that your comments refer to Docket No. 98-028-1. Comments 
received may be inspected at USDA, room 1141, South Building, 14th 
Street and Independence Avenue SW., Washington, DC, between 8 a.m. and 
4:30 p.m., Monday through Friday, except holidays. Persons wishing to 
inspect comments are requested to call ahead on (202) 690-2817 to 
facilitate entry into the comment reading room.

FOR FURTHER INFORMATION CONTACT: Dr. Michael David, Senior Staff 
Veterinarian, Animals and Germplasm Programs, National Center for 
Import and Export, VS, APHIS, 4700 River Road Unit 39, Riverdale, MD 
20737; (301) 734-5034; or e-mail: [email protected].

SUPPLEMENTARY INFORMATION:

Background

    The regulations in 9 CFR part 94 govern the importation of certain 
animals, birds, poultry, meat, animal products, animal byproducts, hay, 
and straw into the United States in order to prevent the introduction 
of communicable diseases of livestock and poultry. The regulations in 
94.6 (referred to below as the regulations) govern, among other things, 
the importation of poultry carcasses, parts, and products from regions 
where exotic Newcastle disease (END) is considered to exist.
    Under the regulations, poultry carcasses and parts or products of 
poultry carcasses may be imported into the United States from regions 
where END is considered to exist only under one of the following 
conditions:
    1. If they are imported for consignment to a museum, educational 
institution, or other establishment that has been approved by the 
Administrator of the Animal and Plant Health Inspection Service 
(APHIS), United States Department of Agriculture (USDA). Approval is 
based on the establishment providing the Administrator with evidence 
that it has the equipment, facilities, and capabilities to store, 
handle, process, or disinfect the articles to prevent the introduction 
or dissemination of END into the United States.
    2. If they are packed in hermetically sealed containers and 
afterward cooked by a commercial method to produce articles that are 
shelf stable without refrigeration.
    3. If they are thoroughly cooked, and, upon inspection by a 
representative of the United States Department of Agriculture at the 
port of arrival, have a thoroughly cooked appearance throughout.
    4. If they are imported under permit granted by the Administrator 
of APHIS after he or she determines that the importation will not 
constitute a risk of introducing or disseminating END into the United 
States.
    We are proposing to amend Sec. 94.6 to also allow poultry carcasses 
and parts or products of poultry carcasses to be imported into the 
United States from regions where END is considered to exist if they 
originated in a region free of END and meet certain requirements with 
respect to processing and shipping. The primary purpose of this change 
is to allow poultry meat that originates in the United States to be 
shipped for processing to a country where END is considered to exist, 
and then returned to the United States. The proposal would also allow 
poultry meat that originates in another END-free region to be processed 
in a region where END is considered to exist and then be shipped to the 
United States. This action would remove some restrictions on the 
importation of poultry carcasses and parts or products of poultry 
carcasses from regions where END is considered to exist. We believe 
this action poses only a negligible risk of introducing END into the 
United States.

Shipment to Approved Establishments

    Under this proposed rule, the poultry carcasses and parts or 
products of poultry carcasses that originate in a region free of END 
must be shipped for processing to the region where END is considered to 
exist in closed containers sealed with serially-numbered seals applied 
by an official of the national government of the region of origin. The 
shipments would have to be accompanied by a certificate that was signed 
by an official of the national government of the region of origin and 
that specifies the products' region of origin, the processing 
establishment to which the products are consigned, and the numbers of 
the seals applied to the shipping containers.
    Upon arrival at the processing establishment, the poultry carcasses 
and parts or products of poultry carcasses could only be removed from 
the containers after an official of the foreign region's national 
government had determined that the seals were intact and free of any 
evidence of tampering.
    The official would have to attest to this fact by signing the 
certificate accompanying the shipment. The signed certificate would 
have to be kept on file at the processing establishment for at least 2 
years after export of the processed products to the United States, and 
must be made available to USDA inspectors to demonstrate compliance 
with our regulations, if requested, during announced or unannounced 
inspections.

Handling at Approved Establishments

    Under this proposed rule, the poultry carcasses and parts or 
products of poultry carcasses would be eligible for importation into 
the United States only if they were handled and processed in accordance 
with the following criteria:
    1. Establishments in regions where END is considered to exist that 
process poultry carcasses and parts or products of poultry carcasses 
for export to the United States may not receive or process any live 
poultry since END is easily spread in environments where live birds are 
caged or slaughtered.
    2. Processing establishments are not required to be facilities 
dedicated to processing poultry products from END-free regions. Poultry 
carcasses and parts or products of poultry carcasses that originate in 
regions where END is considered to exist may be processed at the same 
facility as poultry carcasses and parts or products of poultry 
carcasses from END-free regions provided the following conditions are 
met:

     All areas, utensils, and equipment liable to contact the 
poultry carcasses and parts or products of poultry carcasses to be 
processed, including areas, utensils, and equipment for skinning, 
deboning, cutting, and packing, must be cleaned and disinfected between 
processing poultry from regions where END is considered to exist and 
poultry from END-free regions in order to avoid contamination.

[[Page 67811]]

     Poultry carcasses and parts or products of poultry 
carcasses intended for export to the United States may not be handled, 
cut, or otherwise processed at the same time as poultry carcasses and 
parts or products of poultry carcasses not eligible for export to the 
United States in order to avoid contamination.
     Poultry carcasses and parts or products of poultry 
carcasses intended for export to the United States must be packed in 
clean, new packaging that is clearly distinguishable from that 
containing poultry carcasses and parts or products of poultry carcasses 
not eligible for export to the United States. Poultry carcasses and 
parts or products of poultry carcasses must be stored in a manner that 
ensures that no cross-contamination occurs.

    3. Under the proposed rule, establishment operators would have to 
enter into a cooperative service agreement with APHIS to ensure that 
all expenses incurred by APHIS in inspecting the establishment would be 
paid by the operators of the processing establishment. APHIS 
anticipates that such inspections would occur once a year. The 
cooperative service account would be required to contain a balance at 
least equal to the cost of one inspection. APHIS would charge the 
cooperative service account for travel, salary, and subsistence of 
APHIS employees, as well as administrative overhead and other 
incidental expenses (including excess baggage charges up to 150 
pounds).

Shipment to the United States

    Poultry carcasses and parts or products of poultry carcasses to be 
imported into the United States must be shipped from the region where 
they were processed in closed containers sealed with serially-numbered 
seals applied by an official of the national government of that region. 
The shipments would have to be accompanied by a certificate signed by 
an official of the national government of the region where the poultry 
carcasses and parts or products of poultry carcasses were processed. 
The certificate would have to state that all of the above conditions 
have been met and would also have to list the numbers of the seals 
applied. A copy of this certificate must also be kept on file at the 
processing establishment for at least 2 years after the products were 
shipped to the United States.
    We believe the conditions described above would ensure that the 
poultry products present a negligible risk of introducing END into the 
United States.

Executive Order 12866 and Regulatory Flexibility Act

    This proposed 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.
    In accordance with 5 U.S.C. 603, we have performed an Initial 
Regulatory Flexibility Analysis, which is set out below, regarding the 
impact of this proposed rule on small entities. Based on the 
information we have, there is no basis to conclude that this rule will 
result in any significant economic impact on a substantial number of 
small entities. However, we do not currently have all of the data 
necessary for a comprehensive analysis of the effects of this proposed 
rule on small entities. Therefore, we are inviting comments on 
potential effects. In particular, we are interested in determining the 
number and kind of small entities that may incur benefits or costs from 
the implementation of this proposed rule.
    This proposed rule would amend the regulations for importing animal 
products to allow the importation of poultry carcasses and parts or 
products of poultry carcasses from regions where exotic Newcastle 
disease (END) is considered to exist if they originated in a region 
free of END and meet certain conditions with respect to processing and 
shipping. This proposal would remove some restrictions on the 
importation of poultry carcasses and parts or products of poultry 
carcasses from regions where END is considered to exist.
    In accordance with 21 U.S.C. 111-113, 114a, 115, 117, 120, 123, and 
134a, the Secretary of Agriculture has the authority to promulgate 
regulations and take measures to prevent the introduction into the 
United States, and the interstate dissemination within the United 
States, of communicable diseases of livestock and poultry.
    This proposal would allow poultry carcasses and parts or products 
of poultry carcasses that originated in any END-free region to be 
processed in any region where END is considered to exist, and then be 
shipped to the United States. At this time, however, the most likely 
outcome of this proposal is that U.S.-origin poultry carcasses and 
parts or products of poultry carcasses would be shipped to Mexico for 
processing and then returned to the United States. It is unlikely that 
any poultry processed in countries other than Mexico would enter the 
United States as a result of this proposal. The high cost of shipping 
processed poultry from END-free countries in the eastern hemisphere to 
the United States makes it unlikely that such exports could compete in 
the U.S. market. Further, countries other than Mexico in the western 
hemisphere that could export processed poultry to the United States 
under this proposal generally do not produce enough poultry and poultry 
products to meet their own domestic demand. Western countries other 
than Mexico may also have difficulty competing in the U.S. market due 
to costs of shipping, unless the products exported were specialty items 
not otherwise produced domestically in the United States. Therefore, we 
anticipate that Mexico would be the only country to export any 
processed poultry to the United States under this proposal, and our 
analysis is based on this scenario. We welcome public comment on other 
potential sources of processed poultry which would be allowed 
importation into the United States if this proposal were adopted.

Poultry From Mexico

    Poultry products to be imported into the United States from Mexico 
under the proposed regulations would be required to originate in an 
END-free region. Under Sec. 94.6 of the regulations, the only END-free 
regions in the western hemisphere are Canada, Chile, Costa Rica, and 
the United States. Poultry carcasses and parts or products of poultry 
carcasses from Costa Rica could potentially be imported into Mexico for 
processing and export to the United States, but Costa Rica does not 
appear to produce enough poultry carcasses and parts or products of 
poultry carcasses domestically to make such exports feasible or 
profitable. It is unlikely that any Canadian poultry would be shipped 
to Mexico for processing under this rule since U.S. poultry is 
available for processing at lower cost. Further, the costs of shipping 
the poultry carcasses and parts or products of poultry carcasses to 
Mexico from Canada, Costa Rica, Chile, or any other END-free foreign 
region, and subsequent costs of shipping poultry products from Mexico 
to the United States, would likely be too high for the processed 
poultry to be competitive in the U.S. market.
    Therefore, it is likely that any poultry carcasses and parts or 
products of poultry carcasses to be imported into Mexico for processing 
in accordance with our proposal would originate in the United States 
due to the United States' proximity to Mexico, its status as a net 
poultry exporter, and the low cost of its unprocessed poultry. Poultry

[[Page 67812]]

carcasses and parts or products of poultry carcasses would likely be 
ground-shipped by southwestern and border State poultry producers to 
facilities in northern Mexico for processing and reexportation to the 
United States. Exactly how many U.S. poultry producers would take 
advantage of this proposal and ship poultry carcasses or products to 
Mexico to be processed and reexported to the United States is not 
known. It is possible that U.S. producers would ship poultry carcasses 
or products to Mexico for processing to take advantage of lower 
processing costs or to use Mexican processing plants as supplements to 
the existing U.S. workforce and facilities.
    In 1997, the United States produced 33,115 million pounds of 
poultry products, valued at $17 billion, and exported poultry meat 
valued at over $2.2 billion (with 10 percent exported to Mexico). We 
anticipate that whatever volume of processed poultry may be imported as 
a result of this proposal would be minimal in relation to the overall 
volume of poultry products currently available in the United States.
    In 1997, the United States imported poultry meat valued at $11.2 
million. Less than 2 percent of that total ($247,000) was imported from 
Mexico, while over 93 percent ($10.5 million) was imported from Canada. 
We anticipate that whatever volume of processed poultry that is 
imported as a result of this proposal will be minimal in relation to 
the total volume of all processed poultry imported into the United 
States.

Trade Relations

    This proposal would remove some restrictions on the importation of 
poultry carcasses and parts or products of poultry carcasses from 
regions where END is considered to exist and would encourage a positive 
trading environment between the United States and Mexico and other 
regions where END is considered to exist by stimulating economic 
activity and providing export opportunities to foreign poultry 
processing industries.

Effect on Small Entities

    This proposal may have an effect on domestic poultry processors, 
who could potentially lose business to Mexican poultry processors as a 
result of the proposed rule. This proposal may also benefit U.S. 
truckers and haulers, wholesale traders, and poultry producers and 
packers, who stand to benefit from increased Mexican trade. However, 
the extent to which small entities may be affected by this proposal 
cannot be determined at this time.

Alternatives Considered

    In developing this proposed rule, we considered: (1) Making no 
changes to the regulations governing the importation of poultry from 
regions where END is considered to exist; (2) proposing to allow the 
importation of poultry carcasses and parts or products of poultry 
carcasses that originated in a region free of END but that were 
processed in a region where END is considered to exist under conditions 
different from those proposed; or (3) proposing to allow the 
importation of poultry carcasses and parts or products of poultry 
carcasses that originated in a region free of END but that were 
processed in a region where END is considered to exist under the 
conditions proposed in this document.
    We rejected the first alternative because the proposal appears to 
provide a way to remove trade restrictions while maintaining adequate 
safeguards against the introduction of END into the United States. 
Under these circumstances, making no changes to the regulations would 
be contrary to trade agreements entered into by the United States.
    We also rejected the second alternative because it appeared that 
conditions less stringent than those proposed would increase the risk 
of the introduction of END into the United States to more than a 
negligible level and that more stringent conditions would be 
unnecessarily restrictive. We consider the proposed conditions to be 
both effective and necessary in keeping at a negligible level the risk 
of imported poultry products introducing END into the United States.
    The proposed changes to the regulations would result in new 
information collection or recordkeeping requirements, as described 
below under the heading ``Paperwork Reduction Act.''

Executive Order 12988

    This proposed rule has been reviewed under Executive Order 12988, 
Civil Justice Reform. If this proposed rule is adopted: (1) All State 
and local laws and regulations that are inconsistent with this rule 
will be preempted; (2) no retroactive effect will be given to this 
rule; and (3) administrative proceedings will not be required before 
parties may file suit in court challenging this rule.

Paperwork Reduction Act

    In accordance with section 3507(d) of the Paperwork Reduction Act 
of 1995 (44 U.S.C. 3501 et seq.), the information collection or 
recordkeeping requirements included in this proposed rule have been 
submitted for approval to the Office of Management and Budget (OMB). 
Please send written comments to the Office of Information and 
Regulatory Affairs, OMB, Attention: Desk Officer for APHIS, Washington, 
DC 20503. Please state that your comments refer to Docket No. 98-028-1. 
Please send a copy of your comments to: (1) Docket No. 98-028-1, 
Regulatory Analysis and Development, PPD, APHIS, suite 3C03, 4700 River 
Road Unit 118, Riverdale, MD 20737-1238, and (2) Clearance Officer, 
OCIO, USDA, room 404-W, 14th Street and Independence Avenue SW., 
Washington, DC 20250. A comment to OMB is best assured of having its 
full effect if OMB receives it within 30 days of publication of this 
proposed rule.
    This proposed rule would amend the regulations to relieve certain 
restrictions on the importation of poultry carcasses and parts or 
products of poultry carcasses from regions where exotic Newcastle 
disease (END) is considered to exist if they originated in a region 
free of END and meet certain conditions with respect to processing and 
shipping.
    Implementing this proposed rule would necessitate the use of two 
paperwork collection activities: The completion of a foreign meat 
inspection certificate and the placing of seals on shipping containers.
    We are asking OMB to approve our use of these information 
collections.
    We are soliciting comments from the public (as well as affected 
agencies) concerning our proposed information collection and 
recordkeeping requirements. We need this outside input to help us:
    (1) Evaluate whether the proposed information collection is 
necessary for the proper performance of our agency's functions, 
including whether the information will have practical utility;
    (2) Evaluate the accuracy of our estimate of the burden of the 
proposed information collection, including the validity of the 
methodology and assumptions used;
    (3) Enhance the quality, utility, and clarity of the information to 
be collected; and
    (4) Minimize the burden of the proposed information collection on 
those who are to respond, (such as through the use of appropriate 
automated, electronic, mechanical, or other technological collection 
techniques or other forms of information technology, e.g., permitting 
electronic submission of responses).
    Estimate of burden: Public reporting burden for this proposed 
collection of information is estimated to average 0.147 hours per 
response.

[[Page 67813]]

    Respondents: Full-time, salaried veterinarians of the agency of the 
Government of Mexico responsible for animal health.
    Estimated annual number of respondents: 4.
    Estimated annual number of responses per respondent: 51.
    Estimated annual number of responses: 204.
    Estimated total annual burden on respondents: 30 hours.
    Copies of this information collection can be obtained from 
Clearance Officer, OCIO, USDA, room 404-W, 14th Street and Independence 
Avenue SW., Washington, DC 20250.

List of Subjects 9 CFR Part 94

    Animal diseases, Imports, Livestock, Meat and meat products, Milk, 
Poultry, and poultry products, Reporting and recordkeeping 
requirements.

    Accordingly, we are proposing to amend 9 CFR part 94 as follows:

PART 94--RINDERPEST, FOOT-AND-MOUTH DISEASE, FOWL PEST (FOWL 
PLAGUE), EXOTIC NEWCASTLE DISEASE, AFRICAN SWINE FEVER, HOG 
CHOLERA, AND BOVINE SPONGIFORM ENCEPHALOPATHY: PROHIBITED AND 
RESTRICTED IMPORTATIONS.

    1. The authority citation for part 94 would continue to read as 
follows:

    Authority: 7 U.S.C. 147a, 150ee, 161, 162, and 450; 19 U.S.C. 
1306; 21 U.S.C. 111, 114a, 134a, 134b, 134c, 134f, 136, and 136a; 31 
U.S.C. 9701; 42 U.S.C. 4331 and 4332; 7 CFR 2.22, 2.80, and 
371.2(d).

    2. In Sec. 94.6, the section heading would be revised, paragraph 
(c)(5) would be redesignated as paragraph (c)(6), and a new paragraph 
(c)(5) would be added to read as follows:


94.6  Carcasses, parts or products of carcasses, and eggs (other than 
hatching eggs) of poultry, game birds, or other birds; importations 
from regions where exotic Newcastle disease (END) or S. enteritidis is 
considered to exist.

* * * * *
    (c) * * *
    (5) Poultry carcasses and parts or products of poultry carcasses 
that originated in a region considered to be free of END and are 
processed (cut, packaged, and/or cooked) in a region where END is 
considered to exist may be imported under the following conditions:
    (i) Shipment to approved establishments.
    (A) The poultry carcasses or parts or products of poultry carcasses 
must be shipped from the END-free region where they originated in 
closed containers sealed with serially-numbered seals applied by an 
official of the national government of that region. They must be 
accompanied by a certificate that is signed by an official of that 
region's national government and specifies the products' region of 
origin, the processing establishment to which the poultry carcasses or 
parts or products of poultry carcasses are consigned, and the numbers 
of the seals applied to the shipping containers.
    (B) The poultry carcasses or parts or products of poultry carcasses 
may be removed from containers at the processing establishment in the 
region where END is considered to exist only after an official of the 
foreign region's national government has determined that the seals are 
intact and free of any evidence of tampering. The official must attest 
to this fact by signing the certificate accompanying the shipment.
    (ii) Handling of poultry carcasses and parts or products of poultry 
carcasses. Establishments 1 in regions where END is 
considered to exist that process poultry carcasses or parts or products 
of poultry carcasses for export to the United States:
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    \1\ As a condition of entry into the United States, poultry or 
poultry products must also meet all of the requirements of the 
Poultry Products Inspection Act (21 U.S.C. 451 et seq.) and 
regulations thereunder (9 CFR part 381), including requirements that 
the poultry or poultry products be prepared only in approved 
establishments.
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    (A) May not receive or handle any live poultry.
    (B) Must keep any records required by this section on file at the 
facility for a period of at least 2 years after export of processed 
products to the United States, and must make those records available to 
USDA inspectors during inspections.
    (C) May process poultry carcasses and parts or products of poultry 
carcasses that originate in both END-free regions and regions where END 
is considered to exist, provided that:
    (1) All areas, utensils, and equipment liable to contact the 
poultry carcasses and parts or products of poultry carcasses to be 
processed, including skinning, deboning, cutting, and packing areas, 
are cleaned and disinfected between processing poultry from regions 
where END is considered to exist and poultry carcasses and parts or 
products of poultry carcasses from END-free regions.
    (2) Poultry carcasses and parts or products of poultry carcasses 
intended for export to the United States are not handled, cut, or 
otherwise processed at the same time as any poultry not eligible for 
export to the United States.
    (3) Poultry carcasses and parts or products of poultry carcasses 
intended for export to the United States are packed in clean new 
packaging that is clearly distinguishable from that containing any 
poultry not eligible for export to the United States.
    (4) Poultry carcasses and parts or products of poultry carcasses 
are stored in a manner that ensures that no cross-contamination occurs.
    (iii) Cooperative service agreement. Operators of processing 
establishments must enter into a cooperative service agreement with 
APHIS to pay all expenses incurred by APHIS in inspecting the 
establishment. APHIS anticipates that such inspections will occur once 
a year. The cooperative service account must always contain a balance 
that is at least equal to the cost of one inspection. APHIS will charge 
the cooperative service account for travel, salary, and subsistence of 
APHIS employees, as well as administrative overhead and other 
incidental expenses (including excess baggage charges up to 150 
pounds).
    (iv) Shipment to the United States. Poultry carcasses and parts or 
products of poultry carcasses to be imported into the United States 
must be shipped from the region where they were processed in closed 
containers sealed with serially-numbered seals applied by an official 
of the national government of that region. The shipments must be 
accompanied by a certificate signed by an official of the national 
government of the region where the poultry was processed that lists the 
numbers of the seals applied and states that all of the conditions of 
this section have been met. A copy of this certificate must be kept on 
file at the processing establishment for at least 2 years.
* * * * *
    Done in Washington, DC, this 2nd day of December 1998.
Joan M. Arnoldi,
Acting Administrator, Animal and Plant Health Inspection Service.
[FR Doc. 98-32654 Filed 12-8-98; 8:45 am]
BILLING CODE 3410-34-P