[Federal Register Volume 64, Number 205 (Monday, October 25, 1999)]
[Proposed Rules]
[Pages 57405-57408]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-27743]


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 Proposed Rules
                                                 Federal Register
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 This section of the FEDERAL REGISTER contains notices to the public of 
 the proposed issuance of rules and regulations. The purpose of these 
 notices is to give interested persons an opportunity to participate in 
 the rule making prior to the adoption of the final rules.
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  Federal Register / Vol. 64, No. 205 / Monday, October 25, 1999 / 
Proposed Rules  

[[Page 57405]]


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DEPARTMENT OF AGRICULTURE

Agricultural Marketing Service

7 CFR Part 46

[Docket No. FV99-361]


Perishable Agricultural Commodities Act: Recognizing Limited 
Liability Companies

AGENCY: Agricultural Marketing Service, USDA.

ACTION: Proposed rule.

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SUMMARY: The Department of Agriculture (USDA) is proposing to amend the 
regulations under the Perishable Agricultural Commodities Act (PACA or 
Act) to recognize a limited liability company (LLC) as a legal entity, 
and also to recognize each member of an LLC, and/or any other person 
authorized by the members to conduct business on behalf of an LLC, as 
``responsibly connected'' with the LLC, as defined in the PACA.

DATES: Comments must be received by November 24, 1999.

FOR FURTHER INFORMATION CONTACT: Charles W. Parrott, Acting Chief, PACA 
Branch, Fruit and Vegetable Programs, AMS, USDA, Room 2095-So. Bldg., 
P.O. Box 96456, Washington, DC. 20090-6456, phone (202) 720-2272. 
E[email protected]. All comments should reference the 
docket number and the date and page number of this issue in the Federal 
Register and will be made available for public inspection in the PACA 
Branch during regular business hours and posted on the internet at 
www.ams.usda.gov/fv/paca.htm.

SUPPLEMENTARY INFORMATION: This proposal is issued under authority of 
section 15 of the PACA (7 U.S.C. 499o).

Background

    The Perishable Agricultural Commodities Act (PACA or Act) 
establishes a code of fair trade practices covering the marketing of 
fresh and frozen fruits and vegetables in interstate and foreign 
commerce. The PACA protects growers, shippers, distributors, and 
retailers dealing in those commodities by prohibiting unfair and 
fraudulent trade practices. In this way, the law fosters an efficient 
nationwide distribution system for fresh and frozen fruits and 
vegetables, benefitting the whole marketing chain from farmer to 
consumer. USDA's Agricultural Marketing Service (AMS) administers and 
enforces the PACA.
    Any person who buys or sells commercial quantities of fruits and 
vegetables in interstate or foreign commerce must be licensed under the 
PACA. Under the Act and regulations, the term ``person'' means any 
individual, partnership, corporation, association, or separate legal 
entity. 7 U.S.C. 499a(b)(1); 7 CFR 46.2(i). Separate licenses are 
required for each person. A person is designated as ``responsibly 
connected'' with a firm under the PACA if that person is affiliated as 
an owner, as a partner in a partnership, or as an officer, director or 
holder of more than 10 percent of the outstanding stock of a 
corporation or association. 7 U.S.C. 499a(b)(9); 7 CFR 46.2(ff). In the 
event that a licensee is found to have violated the Act and USDA 
suspends or revokes the firm's license, then the licensee and its 
``responsibly connected'' principals face PACA licensing and employment 
restrictions which may include the denial of a license, a prohibition 
on employment with another PACA licensee, or the requirement that a 
bond be posted as a prerequisite to licensing or employment in the 
fruit and vegetable industry. 7 U.S.C.. 499h.
    Although the PACA and PACA regulations do not specifically define a 
limited liability company as a ``person,'' it is USDA policy to 
recognize an LLC as a separate legal entity, just as LLC's are 
recognized in most states, subject to licensing under the PACA. USDA 
published its current policy about recognizing LLC's in the Federal 
Register on April 14, 1999 (64 FR 18397) and no comments were received 
from the public. The proposed regulatory amendments herein will adopt 
that policy by expanding the current regulations to include LLC's under 
the PACA, especially with regard to the licensing of LLC's and the 
responsibly connected status of LLC members and managers.
    An LLC may be described as a cross between a partnership and a 
corporation. This hybrid business structure is now available to 
businesses in most states. The personal liability protection afforded 
by the LLC is similar to that of a corporation. For example, the 
members are insulated from liability arising solely from being a member 
but are not insulated from liability for the acts of the LLC which 
violate any laws or regulations. Liability issues may vary somewhat 
according to state law and the LLC's organizational agreement.
    Although an LLC affords personal liability protection to its owners 
that is similar to that of a corporation, the ownership characteristics 
of an LLC more closely resemble those of a partnership. The LLC owners 
are often referred to as members, and member-managers may be 
designated. Membership requirements in an LLC can be determined by the 
members; for example, members may join through financial contributions 
or through the performance of services.
    In general, state LLC statutes require the filing of documentation 
similar to articles of incorporation, sometimes called articles of 
organization. In addition, an operating agreement is entered into which 
usually designates who has the authority to run the LLC company. This 
operating agreement usually details the process to be followed in 
choosing the manager(s) and sets forth the manager(s)'' authority and 
the authority retained by the members. The manager(s) is often, but not 
always, a member of the LLC. Specific requirements vary by state.
    Because of the unique composite nature of the LLC, an LLC's members 
are analogous to partners in a partnership, while managers, who are not 
always members, may be analogous to corporate officers, depending on 
the manager's responsibilities as set out by the LLC's operating 
agreement. Therefore, the proposed amendments would clarify that all 
LLC members, regardless of the member's financial contribution, are 
``responsibly connected'' persons under the PACA, just as all partners 
are ``responsibly connected'' with a partnership. In addition, any 
person(s), whether or not a member, who is authorized by the LLC to be 
in charge of the daily business operations, management, and control of 
the LLC, would also be considered responsibly

[[Page 57406]]

connected to the LLC, just as officers in a corporation are under the 
PACA. The determination of whether a person other than a member is 
``responsibly connected'' would depend upon the terms of the LLC's 
operating agreement. These agreements are similar to a partnership 
agreement or corporate bylaws which outline who is in charge of the 
business' daily operations. Those persons whom the LLC authorizes to be 
in charge of the day-to-day operation, management and control of the 
LLC's daily business activities may include, but would not be limited 
to, those with the titles of managers, officers, and/or directors.
    An LLC members' ownership in the company closely resembles a 
partnership. Therefore, the proposed amendments would require that all 
LLC members, including corporations or other entities, be identified on 
the firm's PACA license application. If a member is a corporation or 
other legal entity, more information, such as the names of officers of 
the corporation or other data, would be required by AMS. LLCs 
submitting PACA license applications would be required to submit 
organizational information about the company, including, but not 
limited to, documentation filed with the state in which the LLC is 
legally established, such as its articles of organization and its 
operating agreement. Only one LLC member's signature would be required 
to make a valid PACA application. In addition, just as is required of 
other legal entities, if the articles of organization or the operating 
agreements were to change, the LLC would be required to notify AMS'' 
PACA Branch as soon as possible and submit revised documents to the 
PACA Branch.
    The LLC business structure has become widely accepted throughout 
the United States as a new legal entity. AMS is hereby proposing that 
the PACA regulations be amended to require certain information from an 
LLC in order to obtain a license under the PACA. In addition, the 
proposed amendment would also expand the definition of the term 
``responsibly connected'' to include all LLC members and LLC managers, 
even when they are not also members. The ``responsibly connected'' 
status of LLC managers would be determined on a case-by-case basis, 
depending upon the terms of the LLC's operating agreement and the ways 
in which the person's status is analogous to that of an officer, 
director or shareholder of a corporation. Therefore, both members and 
managers would be subject to PACA sanctions if the Act is violated by 
the LLC.

Executive Orders 12866 and 12988

    This proposed rule, issued under the Perishable Agricultural 
Commodities Act (7 U.S.C. 499 et seq.), as amended, 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 
(OMB).
    This proposed rule has been reviewed under Executive Order 12988, 
Civil Justice Reform and is not intended to have retroactive effect. 
This proposed rule will not preempt any State or local laws, 
regulations, or policies, unless they present an irreconcilable 
conflict with this rule. There are no administrative procedures which 
must be exhausted prior to any judicial challenge to the provisions of 
this rule.

Effects on Small Businesses

    Pursuant to requirements set forth in the Regulatory Flexibility 
Act (RFA) (5 U.S.C. 601 et seq.), USDA has considered the economic 
impact of this proposed rule on small entities. The purpose of the RFA 
is to fit regulatory actions to the scale of businesses subject to such 
actions in order that small businesses will not be unduly or 
disproportionately burdened. Small agricultural service firms have been 
defined by the Small Business Administration (13 CFR part 121) as those 
with less than 500 employees. The PACA requires all businesses that 
operate subject to its provisions to maintain a license issued by USDA. 
There are approximately 15,700 PACA licensees, the majority of which 
may be classified as small entities.
    The proposed revisions to the PACA regulations would recognize a 
limited liability company (LLC) as a legal entity under the PACA 
regulations, and amend the definition of ``responsibly connected'' 
under the regulations to include any member of an LLC, and/or any other 
person authorized by the members to conduct business on behalf of an 
LLC. The LLC business structure has become widely accepted throughout 
the United States as a new legal entity and these proposed revisions to 
the regulations would clarify how USDA deals with these entities and 
their principals under the PACA.
    Like a sole proprietorship, partnership, corporation, or any other 
separate legal entity, a LLC, whether a small or large business, must 
obtain and maintain a valid PACA license if it buys or sells commercial 
quantities of fruits and vegetables in interstate or foreign commerce. 
AMS believes that this proposed rule would have no more impact on an 
LLC than the current PACA regulations have on sole proprietorships, 
partnerships, associations, or corporations operating subject to the 
PACA, whether large or small.
    Since LLC's are required to be licensed under the PACA as a 
``separate legal entity,'' they are subject to disciplinary actions by 
USDA for violating the PACA and regulations. Therefore, these proposed 
revisions would mainly impact those persons USDA considers as 
``responsibly connected'' with the LLC under the PACA. If USDA suspends 
or revokes a firm's license for PACA violations, the firm and any 
person found ``responsibly connected'' with the firm are restricted for 
a certain period of time from holding a PACA license or from being 
employed with another PACA licensee. However, these restrictions apply 
to any firm which has been found to have violated the PACA, regardless 
of the firm's size or type of ownership.
    Given the preceding discussion, AMS has determined that the 
provisions of this proposed rule would not have a significant economic 
impact on a substantial number of small entities.

Paperwork Reduction Act

    The revisions set forth in this proposed rule involve a change in 
the existing information collection and record keeping requirements 
which were previously approved by the Office of Management and Budget 
(OMB) under provisions of 44 U.S.C. Chapter 35. In accordance with the 
Paperwork Reduction Act of 1995, this notice announces AMS' intentions 
to request a revision to a currently approved information collection in 
support of the Reporting and Record Keeping Requirement under the 
Regulations (Other Than Rules of Practice) Under the Perishable 
Agricultural Commodities Act (PACA) (7 U.S.C. 499a--499t).
    Title: Reporting and Record Keeping Requirements Under Regulations 
(Other Than Rules of Practice) Under the Perishable Agricultural 
Commodities Act, 1930.
    OMB Number: 0581-0031.
    Expiration Date of Approval: April 30, 2001.
    Type of Request: Revision of a currently approved information 
collection.
    Abstract: The PACA was enacted by Congress in 1930 to establish a 
code of fair trading practices covering the marketing of fresh and 
frozen fruits and vegetables in interstate or foreign commerce. It 
protects growers, shippers, and distributors dealing in those

[[Page 57407]]

commodities by prohibiting unfair and fraudulent trade practices.
    The law provides for the enforcement of contracts by providing a 
forum for resolving contract disputes, and for the collection of 
damages from anyone who fails to meet contractual obligations. In 
addition, the PACA imposes a statutory trust on licensees for 
perishable agricultural commodities received, products derived from 
them, and any receivables or proceeds due from the sale of the 
commodities for the benefit of suppliers, sellers, or agents that have 
not been paid.
    The PACA is enforced through a licensing system and is user-fee 
financed through a license fee. All commission merchant, dealers, and 
brokers engaged in business subject to the PACA must be licensed. The 
license is effective for three (3) years for retailers and grocery 
wholesalers, and must be renewed on a triennial basis. The license for 
all other licensees is effective for up to three (3) years. These 
licensees must also renew their licenses, but have the option of a 1-
year, 2-year, or 3-year license term. Those who engage in practices 
prohibited by the PACA may have their licenses suspended or revoked.
    The information collected from respondents is used to administer 
licensing provisions under the PACA. The records maintained are used to 
adjudicate reparation and administrative complaints filed against 
licensees to determine the imposition of sanctions on firms and 
responsibly connected individuals who have engaged in unfair trade 
practices. Since the LLC business structure became accepted by states 
and USDA first accepted PACA applications from LLC's, we have found 
that the majority of LLC applicants did not properly report the 
identities of the firms' principals. In most instances, AMS has found 
it necessary to request that LLC's submit copies of their articles of 
organization and operating agreements in order to identify the persons 
responsibly connected with each firm. Under the circumstances, USDA in 
this proposed revision to the PACA regulations would require that an 
LLC submit its articles or organization and its operating agreement as 
part of its application.
    We estimate the paperwork and time burden on the above to be as 
follows:
    Regulations Section 46.4(b)(3)--Application for License: LLC's 
submission of Articles of Organization and Operating Agreement.
    Estimate of Burden: Public reporting burden for the collection of 
information is estimated to average .083 hours per response.
    Respondents: Commission merchants, dealers, and brokers who are 
organized as limited liability companies and are engaged in the 
business of buying, selling, or negotiating the purchase or sale of 
fresh and/or frozen fruits and vegetables in interstate or foreign 
commerce are required to be licensed under the PACA (7 U.S.C. 
499(c)(a)).
    Estimated Number of Respondents: 160.
    Estimated Number of Responses per Respondent: 1.
    Estimated Total Annual Burden on Respondents: 13 hours.
    The revision to the information collection requirements approved 
under 0581-0031 also requests approval of existing requirements 
associated with this program.
    A revision of collection 00581-0031 was submitted on December 1, 
1997, and was subsequently approved by OMB on April 1, 1998. This 
revision allowed for respondents to use a business reply card (Form FV-
232) as a means of informing USDA that a license was not required for 
their firm. We have discontinued the use of Form FV-232, Business Reply 
Card after a trial period. We found that our customers were not 
utilizing the form in sufficient numbers to make it cost effective for 
the program to continue its use. We also found that our customers 
continued to call or write us to verify whether or not they needed a 
PACA license. Under the circumstances, we are reducing the public's 
reporting burden by 330 hours (10,000 respondents  x  2 minutes per 
business reply card = 330 hours).
    In addition, the PACA requires that USDA mail each licensee a 
license renewal application (Form FV-231-1 to non-retailers and non-
grocery wholesalers, who pay license fees, or FV-231-2 to retailers and 
grocery wholesalers, who do not pay license fees) at least 30 days 
prior to the licensee's PACA license anniversary date. If a licensee is 
continuing to operate subject to the PACA, it must renew its license 
prior to its anniversary date. If a licensee fails to renew its license 
prior to that date, the licensee has 30 days under the PACA to 
reinstate its license by submitting the proper license fee plus a $50 
reinstatement fee. Currently, we notify licensees by letter of the need 
to reinstate their licenses and request that they submit Form FV-231-1 
or FV-231-2, along with the license and reinstatement fees, to AMS so 
that the license renewal can be processed.
    We have found this process creates confusion and raises 
difficulties for our licensees. In most instances, the licensees no 
longer have the renewal application (Form FV-231-1 or FV-231-2), or 
they inform us that they never received it in the mail. They usually 
contact one of the PACA programs' regional offices to find out how to 
reinstate a license.
    We have developed Forms FV-231-lA and FV-231-2A, ``Reinstatement 
Notice,'' for use only in the event we do not receive a licensee's 
renewal application. These two new forms are duplicates of the renewal 
applications (Form FV-231-1 or Form FV-231-2). A reinstatement notice 
(Form FV-231-1A or Form FV231-2A) is sent to a licensee only in the 
event AMS does not receive the licensee's renewal application (Form FV-
231-1 or Form FV-231-2). We believe that the development of the 
reinstatement form will reduce confusion and other related problems 
that AMS'' customers have with the reinstatement letter. Either form, 
FV-231-1/FV-231-2, or FV-231-1A/FV-231-2A would be sufficient for a 
licensee to send to AMS, along with the proper fees, for a renewed PACA 
license. We believe that there will be no additional reporting burden 
on the public with the addition of Form FV-231-1A/FV-231-2A.
    AMS is now accepting Visa and MasterCard payments for PACA license 
and complaint fees. This change was adopted for customer convenience. 
Until now, customers/licensees had to pay fees by check, money order, 
or cash. We are updating our license, renewal, and reinstatement 
applications to include an area for the credit number and expiration 
date. No additional burden should result from this change.
    Comments are invited on: (1) Whether the proposed collection of 
information is necessary for the proper performance of the functions of 
the agency, including whether the information will have practical 
utility; (2) the accuracy of the agency's estimate of the burden of the 
proposed collection of information including the validity of the 
methodology and assumptions used; (3) ways to enhance the quality, 
utility and clarity of the information to be collected; and (4) ways to 
minimize the burden of the collection of information on those who are 
to respond, including through the use of appropriate automated, 
electronic, mechanical, or other technological collection techniques or 
other forms of information technology. Comments may be sent to: Charles 
W. Parrott, Acting Chief, PACA Branch, Fruit and Vegetable Programs, 
AMS, USDA, Room 2095-So. Bldg., P.O. Box 96456, Washington, D.C. 20090-
6456. E[email protected].

[[Page 57408]]

All comments received will be available for public inspection during 
regular business hours at the same address.
    All responses to this notice will be summarized and included in the 
request for OMB approval. All comments will also become a matter of 
public record.

List of Subjects in 7 CFR Part 46

    Agricultural commodities, Brokers, Penalties, Reporting and record 
keeping requirements.
    For the reasons set forth in the preamble, 7 CFR part 46 is 
proposed to be amended as follows:

PART 46--[AMENDED]

    1. The authority citation for part 46 continues to read as follows:

    Authority: Sec. 15, 46 Stat. 537; 7 U.S.C. 499o

    2. In Sec. 46.2, paragraph (i) and (ff) would be revised to read as 
follows:


Sec. 46.2  Definitions.

* * * * *
    (i) Person means any individual, partnership, limited liability 
company, corporation, association, or separate legal entity.
* * * * *
    (ff) Responsibly connected means affiliation as individual owner, 
partner in a partnership, member, manager, officer, director or holder 
of more than a 10 percent ownership stake in a limited liability 
company, or officer, director or holder of more than 10 percent of the 
outstanding stock of a corporation or association.
* * * * *
    3. Section 46.4, is amended as follows:
    a. Paragraphs (b)(3) and (b)(4) are revised,
    b. Paragraphs (b)(6)(ii) and (b)(6)(iii) are removed,
    c. Paragraph (b)(6)(iv) is redesignated as paragraph (b)(6)(ii) and 
revised,
    d. Paragraphs (b)(6)(v) and (b)(6)(vi) are redesignated as 
paragraphs (b)(6)(iii) and (b)(6)(iv), and
    e. The introductory text of paragraph (b)(6) and paragraph (c) are 
revised to read as follows:


Sec. 46.4  Application for license.

* * * * *
    (b)* * *
* * * * *
    (3) Type of ownership. If a corporation or limited liability 
company, the applicant shall furnish the month, day, and year 
incorporated or organized; the State in which incorporated or 
organized; the name in which incorporated or organized; and the address 
of the principal office. A limited liability company shall also furnish 
a copy of its articles of organization and its operating agreement.
    (4) Full legal name, all other names used, if any, and home address 
of owner. If a partnership, the applicant shall furnish the legal 
names, all other names used, if any, and home address of all partners, 
indicating whether general, limited, or special partners. If a limited 
liability company, the applicant shall furnish the full legal names, 
all other names used, if any, and home address of all members, 
managers, officers, directors and holders of more than 10 percent of 
the ownership stake, and the percentage of ownership in the company 
held by each such person. If an association or corporation, the 
applicant shall furnish the full legal names, all other names used, if 
any, and home address of all officers, directors and holders of more 
than 10 percent of the outstanding stock and the percentage of stock 
held by each such person. Minors shall also furnish the full name and 
home address of their guardian. If the applicant is a trust, the name 
of the trust and the full name and home address of the trustee must be 
furnished. If the applicant is a limited liability company and a member 
or holder of more than 10 percent of the ownership stake is a 
partnership, another limited liability company, corporation, 
association, or separate legal entity, the applicant shall furnish the 
full legal names and home address of that member's partners, members, 
managers, directors, and officers.
* * * * *
    (6) Whether the applicant, or in case the applicant is a 
partnership, any partner, or in case the applicant is a limited 
liability company, any member, manager, officer, director or holder of 
more than 10 percent of the ownership stake, or in case the applicant 
is an association or corporation, any officer, director, or holder of 
more than 10 percent of the outstanding stock, has prior to the filing 
of the application:
    (i)* * *
    (ii) Within three years been adjudicated or discharged as a 
bankrupt or was an officer, director, stockholder, partner, member, 
manager or owner of a firm adjudicated or discharged as a bankrupt.* * 
*
* * * * *
    (c) The application shall be signed by the owner, all general 
partners, or in case the applicant is a limited liability company, a 
member or manager, or in case the applicant is an association, or 
corporation, a duly authorized officer.
* * * * *
    4. The first sentence of Sec. 46.11 would be revised to read as 
follows:


Sec. 46.11  What constitutes valid license, form and use.

    Each license shall bear a serial number, the names in which 
authorized to conduct business, type of ownership, if the business is 
individually owned, the name of the owner; if a partnership, the names 
of all general partners; if a limited liability company, the names of 
all members, managers, officers, directors and holders of more than 10 
percent of the ownership stake, and the percentage of ownership in the 
company held by each such person; if a corporation or association, the 
names of all officers, directors, and shareholders of more than 10 
percent of the outstanding stock and the percentage of stock held by 
each such person; the facsimile signature of the Deputy Administrator, 
the seal of the Department and shall be duly countersigned. * * *
    5. Section 46.13 would be amended by revising paragraphs (a)(2) and 
(a)(5) to read as follows:


Sec. 46.13  Address, ownership, changes in trade name, changes in 
number of branches, changes in members of partnership, and bankruptcy.

    The licensee shall:
    (a) * * *
    (2) Any changes in officers, directors, members, managers, holders 
of more than 10 percent of the outstanding stock in a corporation, with 
the percentage of stock held by such person, and holders of more than 
10 percent of the ownership stake in a limited liability company, and 
the percentage of ownership in the company held by each such person;
* * * * *
    (5) When the licensee, or if the licensee is a partnership, any 
partner is subject to proceedings under the bankruptcy laws. A new 
license is required in case of a change in the ownership of a firm, the 
addition or withdrawal of partners in a partnership, or in case 
business is conducted under a different corporate charter, or in case a 
limited liability company conducts business under different articles or 
organization from those under which the license was originally issued.
* * * * *
    Dated: October 18, 1999.
Eric M. Forman,
Acting Deputy Administrator, Fruit and Vegetable Programs.
[FR Doc. 99-27743 Filed 10-22-99; 8:45 am]
BILLING CODE 3410-02-P