[Federal Register Volume 65, Number 250 (Thursday, December 28, 2000)]
[Rules and Regulations]
[Pages 82251-82254]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 00-33142]


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DEPARTMENT OF AGRICULTURE

Agricultural Marketing Service

7 CFR Part 930

[Docket No. FV00-930-4 FIR]


Tart Cherries Grown in the States of Michigan, et al.; 
Authorization of Japan as an Eligible Export Outlet for Diversion and 
Exemption Purposes

AGENCY: Agricultural Marketing Service, USDA.

ACTION: Final rule.

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SUMMARY: The Department of Agriculture (Department) is adopting, as a 
final rule, without change, the provisions of an interim final rule 
which authorizes Japan as an eligible export market under the diversion 
and exemption provisions of the Federal tart cherry marketing order 
(order). Previously, shipments to Canada, Mexico, or Japan did not 
qualify for diversion credit and could not be approved as exempt uses. 
The Cherry Industry Administrative Board (Board) recommended allowing 
shipments to Japan to qualify as exempt use shipments and to be 
eligible for diversion credit. The order regulates the

[[Page 82252]]

handling of tart cherries grown in the States of Michigan, New York, 
Pennsylvania, Oregon, Utah, Washington, and Wisconsin and is 
administered locally by the Board.

EFFECTIVE DATE: January 29, 2001.

FOR FURTHER INFORMATION CONTACT: Patricia A. Petrella or Kenneth G. 
Johnson, Marketing Order Administration Branch, F&V, AMS, USDA, Suite 
2A04, Unit 155, 4700 River Road, Riverdale, Maryland 20737, (301) 734-
5243; Fax: (301) 734-5275, or George Kelhart, Technical Advisor, 
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: [email protected].

SUPPLEMENTARY INFORMATION: This rule is issued under Marketing 
Agreement and Order No. 930 (7 CFR part 930) regulating the handling of 
tart cherries grown in the States of Michigan, New York, Pennsylvania, 
Oregon, Utah, Washington, and Wisconsin, hereinafter referred to as the 
``order.'' This order is 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 or USDA) 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.
    This rule continues to authorize shipments of tart cherries to 
Japan to qualify as exempt use shipments and to be eligible for 
diversion credit. Currently, exports to countries other than Canada or 
Mexico may receive diversion credit, and may qualify as exempt 
shipments. Prior to the issuance of the interim final rule published 
June 2, 2000 (65 FR 35265), Japan was not eligible for diversion and 
exemption in the past because, according to the Board, tart cherry 
markets were well established in that country. The Board, at its March 
2, 2000, meeting, recommended allowing Japan to become an eligible 
export outlet for diversion credit and exempt uses in order to 
stimulate sales to that country. This was because exports to Japan have 
greatly decreased industry-wide.
    The order authorizes the use of volume regulation. In years when 
volume regulation is implemented to stabilize supplies, a certain 
percentage of the cherry crop is required to be set aside as restricted 
tonnage, and the balance may be marketed freely as free tonnage. The 
restricted tonnage is required to be maintained in handler-owned 
inventory reserve pools. Handlers in volume regulated States may 
fulfill their restricted tonnage requirements with diversion credits 
earned by diverting cherries or cherry products. Handlers are permitted 
to divert (at plant or with grower-diversion certificates from growers 
choosing not to deliver their crop) as much of their restricted 
percentage (reserve pool) requirements as they deem appropriate. 
Handlers also may divert cherries by using cherries or cherry products 
for exempt purposes, including the development of export markets. 
Presently, these markets do not include Canada and Mexico.
    Section 920.62 of the order (Exemptions) provides that cherries 
which are diverted in accordance with Sec. 930.59, which are used for 
new product and new market development, which are used for experimental 
purposes, or which are used for any other purposes designated by the 
Board, including cherries processed into products for markets for which 
less than 5 percent of the preceding 5-year average production of 
cherries was utilized, may be exempt from the assessment, quality 
control, volume regulation, and reserve provisions of the order.
    Currently, Sec. 930.162 of the rules and regulations under the 
order authorizes the sale of cherries and cherry products, including 
the development of sales for new and different tart cherry products or 
the expansion of sales for existing tart cherry products, to countries 
other than Canada and Mexico.
    When the Board initially recommended regulations for exempt uses 
and handler diversion in 1997-98, exports to Japan were averaging about 
3.0 million pounds per season. The industry considered Japan, as well 
as Canada and Mexico, to be a premium markets for tart cherries, not 
outlets for which exemptions and diversion credit should be given. With 
regard to Canada and Mexico, the industry also was concerned about 
transshipments of lower-priced cherries because of their close 
proximity to the primary domestic market. In 1998-99, sales to Japan 
fell to 1.6 million pounds, and in 1999-00 sales further dropped to 
943,000 pounds. The Board, therefore, recommended that exports to Japan 
be eligible for diversion and exemption. This, in the Board's opinion, 
would provide an incentive for handlers throughout the industry to make 
shipments to that country and stimulate activity.

The Regulatory Flexibility Act and Effects on Small Businesses

    The Agricultural Marketing Service (AMS) has considered the 
economic impact of this action on small entities and has prepared this 
final regulatory flexibility analysis. The Regulatory Flexibility Act 
(RFA) will allow AMS to certify that regulations do not have a 
significant economic impact on a substantial number of small entities. 
However, as a matter of general policy, AMS' Fruit and Vegetable 
Programs (Programs) no longer opt for such certification, but rather 
perform regulatory flexibility analyses for any rulemaking that would 
generate the interest of a significant number of small entities. 
Performing such analyses shifts the Programs' efforts from determining 
whether regulatory flexibility analyses are required to the 
consideration of regulatory options and economic or regulatory impacts.
    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 rules thereunder, are unique in that they are 
brought about through

[[Page 82253]]

group action of essentially small entities acting on their own behalf. 
Thus, both statutes have small entity orientation and compatibility.
    There are approximately 40 handlers of tart cherries who are 
subject to regulation under the order and approximately 900 producers 
of tart cherries in the regulated area. Small agricultural service 
firms, which include handlers, have been defined by the Small Business 
Administration (13 CFR 121.201) 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.
    The principal demand for tart cherries is in the form of processed 
products. Tart cherries are dried, frozen, canned, juiced, and pureed. 
During the period 1995/96 through 1999/00, approximately 90 percent of 
the U.S. tart cherry crop, or 280.3 million pounds, was processed 
annually. Of the 280.3 million pounds of tart cherries processed, 63 
percent were frozen, 29 percent canned and 8 percent utilized for 
juice. Exports to Japan in 1999-00 were 943,000 pounds.
    This rule continues to authorize tart cherry shipments to Japan to 
qualify as exempt use shipments and to be eligible for diversion 
credit. The objective of this action is to stimulate and expand sales 
of tart cherries
    This rule is expected to benefit growers and handlers by assisting 
growers market a greater proportion of their crop to handlers having 
access to export markets. Handlers, instead of diverting at-plant or 
in-orchard or placing product in reserves, could ship product to Japan 
and receive diversion certificates that could be used to offset any 
restricted percentage obligations. Handlers also would benefit from 
this action as they would be able to process greater amounts of tart 
cherries, as a result of receiving more product from growers for 
shipment to Japan, through their facilities, thus spreading their 
operation costs and increasing returns to growers.
    One alternative to this action considered by the Board was to 
disallow exemptions and diversion credit for shipments to Japan. 
However, this was not expected to be favorable to cherry growers and 
handlers throughout the production area because it might cause a 
further decline in the Japanese market, as occurred in 1999-00.
    The Board's meetings were widely publicized throughout the tart 
cherry industry and all interested persons were invited to attend them 
and participate in Board deliberations. Like all Board meetings, the 
March 2000 meeting was a public meeting and all entities, both large 
and small, were able to express their views on these issues. The Board 
itself is composed of 18 members, of which 17 members are growers and 
handlers and one represents the public. Also, the Board has a number of 
appointed committees to review certain issues and make recommendations.
    This rule will not impose any additional recordkeeping requirements 
on either small or large tart cherry 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 which duplicate, overlap or conflict with this 
rule.
    In compliance with Office of Management and Budget (OMB) 
regulations (5 CFR part 1320) which implement the Paperwork Reduction 
Act of 1995 (44 U.S.C. Chapter 35), the information collection and 
recordkeeping requirements imposed by this order have been previously 
approved by OMB and assigned OMB Number 0581-0177.
    An interim final rule concerning this action was published in the 
Federal Register on June 2, 2000 (65 FR 35265). Copies of the rule were 
mailed by the Board's staff to all Board members and cherry handlers. 
In addition, the rule was made available through the Internet by the 
Office of the Federal Register. That rule provided a 60-day comment 
period which ended August 1, 2000. Two comments were received. One 
comment was received from the Oregon Farm Bureau and the other was 
received from a tart cherry grower and handler in Oregon.
    The two commenters opposed making Japan an eligible export market 
under the diversion and exemption provisions of the order. Prior to the 
issuance of the interim final rule, shipments to Canada, Mexico, or 
Japan did not qualify for diversion credit and could not be approved as 
exempt uses. Japan was considered a premium market similar to the 
domestic market. The markets in Canada and Mexico also were considered 
similar to the domestic market. This was because these markets were in 
close proximity to the United States and the industry was concerned 
about transshipments of lower-priced cherries if shipments to these 
markets were eligible for diversion credit in meeting volume control 
obligations.
    Under the volume control mechanism, the industry has established a 
price system with diversion credit shipments commanding lower prices 
than those shipped domestically. Handlers purchase the free percentage 
portion of the grower deliveries which can be marketed, and pay low 
prices for the excess cherries which are disposed of under the 
diversion and exemption provisions of the order. The cherries that are 
not disposed of in this manner are held in reserve. Some States in the 
production area, like Oregon, are not subject to volume regulation and 
handlers purchase all of the marketable production delivered by their 
growers. Generally, higher quality and condition cherries return more 
money to the grower.
    Total U.S. exports to Japan have fallen from 3.2 million pounds in 
1996-97 to 1.6 million pounds in 1998-99. During the 1999-00 crop year, 
total exports to Japan fell further to 943,000 pounds. This represents 
a 70 percent decrease in exports from 1996-97. Under the interim final 
rule, shipments to Japan qualify as exempt use shipments and are 
eligible for diversion credit. This is expected to stimulate shipments 
to Japan industry-wide.
    Both commenters claim that Japan is a well-established and premium 
market which should not be eligible for diversion credit. The buyers in 
Japan are willing to pay a premium for cherries of the quality and 
condition they desire. One of the commenters, stated that its customers 
consistently pay top-dollar, and are rewarded with the very best his 
firm can offer. This commenter indicated that his firm has not 
experienced a comparable sense of ``premium'' in its exports to Canada. 
Nonetheless, the industry concerns on the transshipment of lower-priced 
cherries to the United States weigh heavily in considering Canada a 
primary market under the order. Oregon comprised about 1.4 percent of 
the domestic production during the last three shipping seasons (1997-
1999).
    Both commenters agree that exports to Japan have fluctuated over 
the years, but contend that the fluctuations are a function of the size 
of the Oregon crop and not a softening of the market. The goal of the 
Board in recommending this action was to stimulate shipments to Japan 
by providing growers and handlers from other parts of the production 
area with a means of competing in Japan. The intent of the action is 
not to negatively impact the Oregon growers and handlers shipping to 
Japanese markets, but to expand markets in Japan in the interest of the 
entire U.S. tart cherry industry. Although the action is expected to 
enable firms from the other parts of the production area to gain a 
foothold in the

[[Page 82254]]

price conscious markets in Japan, it is not expected to prevent the 
firms in Oregon from supplying the needs of their quality conscious 
customers, willing to pay premium prices.
    Shipments to markets under the diversion and exemption provisions 
of the order can be sold at lower prices than those shipped 
domestically because growers are paid less for the tart cherries 
subject to the diversion and exemption provisions. Because cherries 
produced in Oregon are not subject to volume regulation under the 
order, tart cherries are not subject to the diversion credit and 
exemption provisions of the order, and growers are paid for all of the 
cherries delivered.
    The primary purpose of the order is to strengthen marketing 
conditions in the primary domestic market through volume regulation. In 
implementing volume controls and the related procedures, the 
Department's goal is to apply the requirements uniformly in as 
equitable a manner as possible, and to assure that any regulatory 
action is in the interest of the entire industry covered under the 
order, not just one segment or part of the industry. Authorizing Japan 
as an eligible export market under the diversion and exemption 
provisions of the order is expected to help the industry further 
develop the Japanese market. This is in the long term interest of all 
growers and handlers of tart cherries covered under the order.
    In view of this, these comments are denied.
    A small business guide on complying with fruit, vegetable and 
specialty crop marketing agreements and orders may be viewed at: 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 information and recommendation submitted by the Board and other 
available information, it is found that finalizing this interim final 
rule, without modifications, as published in the Federal Register (65 
FR 35265), will tend to effectuate the declared policy of the Act.

List of Subjects in 7 CFR Part 930

    Marketing agreements, Reporting and recordkeeping requirements, 
Tart cherries.

    For the reasons set forth in the preamble, 7 CFR part 930 is 
amended as follows:

PART 930--TART CHERRIES GROWN IN THE STATES OF MICHIGAN, NEW YORK, 
PENNSYLVANIA, OREGON, UTAH, WASHINGTON, AND WISCONSIN

    Accordingly, the interim final rule amending 7 CFR part 930 which 
was published at 65 FR 35265 on June 2, 2000, is adopted as a final 
rule without change.

    Dated: December 21, 2000.
Robert C. Keeney,
Deputy Administrator, Fruit and Vegetable Programs.
[FR Doc. 00-33142 Filed 12-27-00; 8:45 am]
BILLING CODE 3410-02-P