[Federal Register Volume 64, Number 238 (Monday, December 13, 1999)]
[Rules and Regulations]
[Pages 69380-69383]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-32230]


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DEPARTMENT OF AGRICULTURE

Agricultural Marketing Service

7 CFR Part 915

[Docket No. FV00-915-1 IFR]


Avocados Grown in South Florida; Relaxation of Container and Pack 
Requirements

AGENCY: Agricultural Marketing Service, USDA.

ACTION: Interim final rule with request for comments.

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SUMMARY: This rule changes the container and pack requirements 
currently prescribed under the Florida avocado marketing order. The 
marketing order regulates the handling of avocados grown in South 
Florida and is administered locally by the Avocado Administrative 
Committee (Committee). Currently, avocados packed in 33-pound 
containers must weigh at least 16 ounces. Avocados weighing less than 
16 ounces must be packed in smaller containers. This rule removes the 
requirement that avocados packed in 33-pound containers must weigh at 
least 16 ounces. This change will provide greater flexibility in 
avocado packing operations.

DATES: Effective December 14, 1999; comments received by February 11, 
2000 will be considered prior to issuance of a final rule.

ADDRESSES: Interested persons are invited to submit written comments 
concerning this rule. Comments must be sent to the Docket Clerk, Fruit 
and Vegetable Programs, AMS, USDA, room 2525-S, P.O. Box 96456, 
Washington, DC 20090-6456; Fax: (202) 720-5698; or E-mail: 
[email protected]. All comments should reference the docket 
number and the date and page number of this issue of the Federal 
Register and will be made available for public inspection in the Office 
of the Docket Clerk during regular business hours.


[[Page 69381]]


FOR FURTHER INFORMATION CONTACT: Doris Jamieson, Marketing Specialist, 
Southeast Marketing Field Office, Marketing Order Administration 
Branch, F&V, AMS, USDA, P.O. Box 2276, Winter Haven, Florida 33883; 
telephone: (863) 299-4770, Fax: (863) 299-5169; or Anne Dec, Team 
Leader, Marketing Order Administration Branch, Fruit and Vegetable 
Programs, AMS, USDA, room 2525-S, P.O. Box 96456, Washington, DC 20090-
6456; telephone: (202) 720-2491, Fax: (202) 720-5698. Small businesses 
may request information on complying with this regulation by contacting 
Jay Guerber, Marketing Order Administration Branch, Fruit and Vegetable 
Programs, AMS, USDA, P.O. Box 96456, room 2525-S, Washington, DC 20090-
6456; telephone (202) 720-2491, Fax: (202) 720-5698, or E-mail: 
Jay.G[email protected].

SUPPLEMENTARY INFORMATION: This rule is issued under Marketing 
Agreement No. 121 and Marketing Order No. 915, both as amended (7 CFR 
part 915), regulating the handling of avocados grown in South Florida, 
hereinafter referred to as the ``order.'' The marketing agreement and 
order are effective under the Agricultural Marketing Agreement Act of 
1937, as amended (7 U.S.C. 601-674), hereinafter referred to as the 
``Act.''
    The Department of Agriculture (Department) is issuing this rule in 
conformance with Executive Order 12866.
    This rule has been reviewed under Executive Order 12988, Civil 
Justice Reform. This rule is not intended to have retroactive effect. 
This rule will not preempt any State or local laws, regulations, or 
policies, unless they present an irreconcilable conflict with this 
rule.
    The Act provides that administrative proceedings must be exhausted 
before parties may file suit in court. Under section 608c(15)(A) of the 
Act, any handler subject to an order may file with the Secretary a 
petition stating that the order, any provision of the order, or any 
obligation imposed in connection with the order is not in accordance 
with law and request a modification of the order or to be exempted 
therefrom. A handler is afforded the opportunity for a hearing on the 
petition. After the hearing the Secretary would rule on the petition. 
The Act provides that the district court of the United States in any 
district in which the handler is an inhabitant, or has his or her 
principal place of business, has jurisdiction to review the Secretary's 
ruling on the petition, provided an action is filed not later than 20 
days after the date of the entry of the ruling.
    Under the terms of the order, fresh market shipments of Florida 
avocados are required to be inspected and are subject to grade, size, 
maturity, and pack and container requirements. Current pack and 
container requirements outline the designated net weight of the 
containers used to pack avocados and the minimum weight of the avocados 
packed in the containers.
    This rule removes the requirement that avocados packed in 33-pound 
containers must weigh at least 16 ounces. This change will provide 
greater flexibility in avocado packing operations. The Committee met on 
September 8, 1999, and unanimously recommended this change.
    Section 915.51 of the order provides authority to issue regulations 
establishing specific pack and container requirements. Section 915.52 
further authorizes the Committee to make recommendations to the 
Secretary to modify, suspend, or terminate regulations, including pack 
and container requirements. The pack and container requirements are 
specified under sections 915.305 and 915.306. These sections specify, 
in part, container weight and other applicable requirements, including 
the minimum weight of the avocados packed in the containers. Current 
regulations authorize the use of 33-pound, 31-pound, 24-pound, and 12-
pound containers, and 8.5-pound containers for export shipments only.
    The requirements of Section 915.305(a)(1) currently specify that 
avocados packed in 33-pound containers must weigh at least 16 ounces. 
Avocados weighing less than 16 ounces must be packed in smaller 
containers. The Committee has determined that retailers prefer 
shipments of avocados packed in larger containers. The size of the 
fruit is not a concern to retailers. By allowing smaller fruit to be 
packed in the larger containers, the retailer is able to offer avocados 
to the consumer in a variety of sizes. The larger containers are ideal 
for displaying the fruit. Upon receipt of the avocado shipment, the 
retailer can remove the lid from the larger container. Without removing 
the fruit from the box, fruit can be offered for consumers to purchase. 
This is time saving for retailers.
    Removing the requirement that avocados packed in 33-pound 
containers weigh at least 16 ounces would give handlers the flexibility 
to pack both large and small avocados in one container. California 
avocado handlers have already adopted the practice of shipping smaller 
avocados in larger containers with a great deal of success. Florida 
avocado handlers would like to remain competitive with other avocado 
growing areas. In order to meet the needs of the customer and remain 
competitive with other avocado handlers, this rule removes the 
requirement that avocados packed in 33-pound containers must weigh at 
least 16 ounces. The avocados must meet all other requirements of the 
marketing order, including maturity requirements.
    In addition, the flexibility to pack both large and small avocados 
in one container would allow handlers to use the smaller avocados to 
create a tighter pack with less open space inside the containers. The 
tighter pack would restrict movement of the avocados during shipment 
which would prevent damage to the fruit. This would improve the quality 
of the fruit reaching the consumer, save handling costs, and provide 
greater returns to the grower.
    Section 8e of the Act provides that when certain domestically 
produced commodities, including avocados, are regulated under a Federal 
marketing order, imports of that commodity must meet the same or 
comparable grade, size, quality, and maturity requirements. This rule 
changes the pack and container requirements currently in effect which 
do not apply to imports. Therefore, no change is necessary in the 
avocado import regulations.
    Pursuant to requirements set forth in the Regulatory Flexibility 
Act (RFA), the Agricultural Marketing Service (AMS) has considered the 
economic impact of this action on small entities. Accordingly, AMS has 
prepared this initial regulatory flexibility analysis.
    The purpose of the RFA is to fit regulatory actions to the scale of 
business subject to such actions in order that small businesses will 
not be unduly or disproportionately burdened. Marketing orders issued 
pursuant to the Act, and the rules issued thereunder, are unique in 
that they are brought about through group action of essentially small 
entities acting on their own behalf. Thus, both statutes have small 
entity orientation and compatibility.
    There are approximately 141 avocado producers in the production 
area and approximately 49 avocado handlers subject to regulation under 
the marketing order. Small agricultural service firms have been defined 
by the Small Business Administration (SBA) (13 CFR 121.601) as those 
having annual receipts of less than $5,000,000, and small agricultural 
producers are defined as those having annual receipts of less than 
$500,000.

[[Page 69382]]

    The average price for fresh avocados during the 1997-98 season was 
$14.60 per 55 pound bushel box equivalent for all domestic shipments 
and the total shipments were 937,568 bushels. Many avocado handlers 
ship other tropical fruit and vegetable products which are not included 
in the Committee's data but would contribute further to handler 
receipts. Using these prices, about 90 percent of avocado handlers 
could be considered small businesses under the SBA definition. The 
majority of Florida avocado producers and handlers may be classified as 
small entities.
    Under sections 915.51 and 915.52 of the marketing order for 
avocados grown in South Florida, the Committee has the authority to 
recommend to the Secretary changes to the pack and container 
requirements for avocados handled under the order. Current pack and 
container requirements outline the designated net weight of the 
containers used to pack avocados and the minimum weight of the avocados 
packed in the containers. Current regulations authorize the use of 33-
pound, 31-pound, 24-pound, and 12-pound containers, and 8.5-pound 
containers for export shipments only.
    This rule makes changes to section 915.305(a)(1) of the rules and 
regulations concerning the pack and container requirements for 
avocados. This rule removes the requirement that avocados packed in 33-
pound containers must weigh at least 16 ounces. The avocados must meet 
all other requirements, including maturity requirements. This change 
will provide greater flexibility in avocado packing operations.
    This rule will have a positive impact on affected entities. The 
change was recommended to provide additional flexibility in packing 
avocados. None of the changes are expected to increase costs associated 
with the pack and container requirements. This rule may, in fact, 
reduce costs associated with the pack and container requirements.
    The Committee believes this change will benefit both large and 
small packing operations. It would be particularly beneficial to small 
handlers since a single container can be used to ship avocados to 
retail customers. This would reduce the need to maintain a large 
inventory of smaller containers. Further, the Committee has determined 
that retailers prefer the larger containers; the size of the fruit in 
those containers is of lesser concern to the retailer. By allowing 
smaller fruit to be packing in the larger containers, the retailer is 
able to offer avocados to the consumer in a variety of sizes. The 
larger containers are ideal for displaying the fruit. Upon receipt of 
the avocado shipment, the retailer can remove the lid from the larger 
container. Without removing the fruit from the box, fruit can be 
offered for consumers to purchase. This is time saving for retailers.
    Removing the requirement that avocados packed in 33-pound 
containers weigh at least 16 ounces would give handlers the flexibility 
to pack both large and small avocados in one container. Florida avocado 
handlers would like to remain competitive with other avocado growing 
areas. For example, California avocado handlers have already adopted 
the practice of shipping smaller avocados in larger containers with a 
great deal of success. In order to meet the needs of the customer and 
remain competitive with other avocado handlers, this rule removes the 
requirement that avocados packed in 33-pound containers must weigh at 
least 16 ounces. The avocados must meet all other requirements of the 
marketing order, including maturity requirement.
    In addition, the flexibility to pack both large and small avocados 
in one container would allow handlers to use the smaller avocados to 
create a tighter pack with less open space inside the containers. The 
tighter pack would restrict movement of the avocados during shipment 
which would prevent damage to the fruit. This would save handling costs 
and provide greater returns to the grower.
    Other alternatives to the action were considered by the Committee 
prior to making the recommendation. One alternative discussed by the 
Committee was to continue to require that avocados packed in 33-pound 
containers weigh at least 16 ounces. The Committee believed that this 
alternative provided little benefit and would still limit flexibility.
    This rule will not impose any additional reporting or recordkeeping 
requirements on either small or large avocado handlers. As with all 
Federal marketing order programs, reports and forms are periodically 
reviewed to reduce information requirements and duplication by industry 
and public sectors. In addition, the Department has not identified any 
relevant Federal rules that duplicate, overlap or conflict with this 
rule.
    Further, the Committee's meeting was widely publicized throughout 
the avocado industry and all interested persons were invited to attend 
the meeting and participate in Committee deliberations. Like all 
Committee meetings, the September 8, 1999, meeting was a public meeting 
and all entities, both large and small, were able to express their 
views on this issue. The Committee itself is composed of 10 members, of 
which 5 are growers, 4 are handlers, and one is a public member. 
Finally, interested persons are invited to submit information on the 
regulatory and informational impacts of this action on small 
businesses.
    A small business guide on complying with fruit, vegetable, and 
speciality crop marketing agreements and orders may be viewed at the 
following website: http://www.ams.usda.gov/fv/moab.html. Any questions 
about the compliance guide should be sent to Jay Guerber at the 
previously mentioned address in the FOR FURTHER INFORMATION CONTACT 
section.
    After consideration of all relevant material presented, including 
the Committee's recommendation, and other information, it is found that 
this interim final rule, as hereinafter set forth, will tend to 
effectuate the declared policy of the Act.
    This rule invites comments on a change to the pack and container 
requirements currently prescribed under the Florida avocado marketing 
order. Any comments timely received will be considered prior to 
finalization of this rule.
    Pursuant to 5 U.S.C. 553, it is also found and determined upon good 
cause that it is impracticable, unnecessary, and contrary to the public 
interest to give preliminary notice prior to putting this rule into 
effect and that good cause exists for not postponing the effective date 
of this rule until 30 days after publication in the Federal Register 
because: (1) Handlers are currently shipping avocados; (2) the 
Committee unanimously recommended this change at a public meeting and 
interested persons had an opportunity to provide input; (3) this rule 
relaxes pack requirements; (4) Florida avocado handlers are aware of 
this rule and need no additional time to comply with the relaxed 
requirements; and (5) this rule provides a 60-day comment period and 
any comments timely received will be considered prior to finalization 
of this rule.

List of Subjects in 7 CFR Part 915

    Avocados, Marketing agreements, Reporting and recordkeeping 
requirements.

    For the reasons set forth in the preamble, 7 CFR part 915 is 
amended as follows:

[[Page 69383]]

PART 915--AVOCADOS GROWN IN SOUTH FLORIDA

    1. The authority citation for 7 CFR part 915 continues to read as 
follows:

    Authority: 7 U.S.C. 601-674.

    2. In Sec. 915.305, paragraph (a)(1) is revised to read as follows:


Sec. 915.305  Florida Avocado Container Regulation 5.

    (a) * * *
    (1) Containers shall not contain less that 33-pounds net weight of 
avocados, except that for avocados of unnamed varieties, which are 
avocados than have not been given varietal names, and for Booth 1, 
Fuchs, and Trapp varieties, such weight shall be not less than 31 
pounds. With respect to each lot of such containers, not to exceed 10 
percent, by count, of the individual containers in the lot may fail to 
meet the applicable specified weight, but no container in such lot may 
contain a net weight of avocados exceeding 2 pounds less than the 
specified net weight; or
* * * * *
    Dated: December 8, 1999.
James R. Frazier,
Acting Deputy Administrator, Fruit and Vegetable Programs.
[FR Doc. 99-32230 Filed 12-10-99; 8:45 am]
BILLING CODE 3410-02-P