[Federal Register Volume 67, Number 199 (Tuesday, October 15, 2002)]
[Rules and Regulations]
[Pages 63529-63536]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-26063]



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  Federal Register / Vol. 67, No. 199 / Tuesday, October 15, 2002 / 
Rules and Regulations  

[[Page 63529]]


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DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

7 CFR Parts 300, 301, and 319

[Docket No. 02-071-1]


Cold Treatment of Fruits

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Interim rule and request for comments.

-----------------------------------------------------------------------

SUMMARY: We are amending the Plant Protection and Quarantine Treatment 
Manual, which is incorporated by reference into the Code of Federal 
Regulations, by revising the cold treatment schedules under which 
fruits are treated for the Mediterranean fruit fly (Medfly) and other 
specified pests. Based on a review of those treatment schedules, we 
have determined that it is necessary to extend the duration of cold 
treatment for Medfly. We are also amending the regulations for 
importing fruits and vegetables to provide that inspectors at the port 
of first arrival will sample and cut fruit from each shipment cold 
treated for Medfly to monitor the effectiveness of the cold treatment. 
These actions are necessary to protect against the introduction and 
dissemination of Medflies into and within the United States.

DATES: This interim rule is effective October 15, 2002. The 
incorporation by reference provided for by this rule is approved by the 
Director of the Federal Register as of October 15, 2002. We will 
consider all comments that we receive on or before December 16, 2002.

ADDRESSES: You may submit comments by postal mail/commercial delivery 
or by e-mail. If you use postal mail/commercial delivery, please send 
four copies of your comment (an original and three copies) to: Docket 
No. 02-071-1, Regulatory Analysis and Development, PPD, APHIS, Station 
3C71, 4700 River Road Unit 118, Riverdale, MD 20737-1238. Please state 
that your comment refers to Docket No. 02-071-1. If you use e-mail, 
address your comment to [email protected]. Your comment must 
be contained in the body of your message; do not send attached files. 
Please include your name and address in your message and ``Docket No. 
02-071-1'' on the subject line.
    You may read any comments that we receive on this docket in our 
reading room. The reading room is located in room 1141 of the USDA 
South Building, 14th Street and Independence Avenue SW., Washington, 
DC. Normal reading room hours are 8 a.m. to 4:30 p.m., Monday through 
Friday, except holidays. To be sure someone is there to help you, 
please call (202) 690-2817 before coming.
    APHIS documents published in the Federal Register, and related 
information, including the names of organizations and individuals who 
have commented on APHIS dockets, are available on the Internet at 
http://www.aphis.usda.gov/ppd/rad/webrepor.html.

FOR FURTHER INFORMATION CONTACT: Dr. I. Paul Gadh, Import Specialist, 
Phytosanitary Issues Management Team, PPQ, APHIS, 4700 River Road Unit 
140, Riverdale, MD 20737-1236; (301) 734-6799.

SUPPLEMENTARY INFORMATION:

Background

    The Plant Protection and Quarantine Treatment Manual (PPQ Treatment 
Manual), which is maintained by the U.S. Department of Agriculture's 
(USDA) Animal and Plant Health Inspection Service (APHIS), contains 
approved treatment schedules for agricultural commodities and is 
incorporated by reference into the Code of Federal Regulations at 7 CFR 
300.1.
    The PPQ Treatment Manual contains three cold treatment schedules 
for the treatment of fruits for the Mediterranean fruit fly (Medfly). 
Those schedules are prescribed to treat commodities for a variety of 
pests, including Medfly, that occur in the regions from which the 
commodities originate. The three schedules are:
    T107-a. Target pests: Ceratitis capitata (Medfly) or Eutetranychus 
orientalis (Oriental citrus mite).

------------------------------------------------------------------------
                                                               Exposure
                        Temperature                             Period
                                                                (days)
------------------------------------------------------------------------
32 [deg]F or below.........................................           10
33 [deg]F or below.........................................           11
34 [deg]F or below.........................................           12
35 [deg]F or below.........................................           14
36 [deg]F or below.........................................           16
------------------------------------------------------------------------

    T107-c. Target pests: Species of Anastrepha (other than Anastrepha 
ludens) or C. capitata (Medfly).

------------------------------------------------------------------------
                                                               Exposure
                        Temperature                             period
                                                                (days)
------------------------------------------------------------------------
32 [deg]F or below.........................................           11
33 [deg]F or below.........................................           13
34 [deg]F or below.........................................           15
35 [deg]F or below.........................................           17
------------------------------------------------------------------------

    T107-f. Target pests: Bactrocera cucurbitae (Melon fly), Bactrocera 
dorsalis (Oriental fruit fly), C. capitata (Medfly), and Eutetranychus 
orientalis (Oriental citrus mite).

------------------------------------------------------------------------
                                                               Exposure
                        Temperature                             period
                                                                (days)
------------------------------------------------------------------------
32 [deg]F or below.........................................           10
33 [deg]F or below.........................................           11
34 [deg]F or below.........................................           12
35 [deg]F or below.........................................           14
------------------------------------------------------------------------

    T107-a generally applies to commodities imported from Europe, 
Africa, western Asia, and Central America, while T107-c generally 
applies to commodities from South America and the Caribbean. T107-f 
applies to a few select commodities imported from eastern Asia. T107-a 
and T107-f are also used to treat fruits moving interstate from Hawaii 
or from any areas of the continental United States that may, from time 
to time, be quarantined because of Medfly.

Medfly in Cold-Treated Clementines

    Between November 20 and December 11, 2001, live Medfly larvae were 
intercepted in clementines from Spain that had been imported into the 
United States subject to cold treatment schedule T107-a. In response to 
the Medfly interceptions, APHIS suspended the importation of Spanish 
clementines pending an investigation into the cause of the 
infestations. Prior to November and December 2001, there had never been 
multiple confirmed finds of

[[Page 63530]]

Medfly larvae in fruit of any kind that had been legally imported into 
the mainland United States from any source.
    As part of its response to the Medfly larvae finds in Spanish 
clementines, APHIS is sponsoring additional research on the application 
of cold treatments for imported fruits. In addition, APHIS asked a 
panel composed of APHIS regulatory personnel and USDA technical experts 
on fruit flies to conduct a review of available scientific literature 
related to the efficacy of the T107-a cold treatment for Medfly, with 
the intention of using the panel's findings as guidelines on the future 
application of cold treatment for Medfly.
    The panel completed its evaluation and found that the previously 
approved T107-a cold treatment schedule, while providing a very high 
level of Medfly mortality, lacks evidence to support that it provides 
Probit 9 level quarantine security (e.g., a survival rate of no more 
than 0.0032 percent of target pests) in all cases. Based on its review 
of the available scientific literature and of all factors involved in 
quarantine cold treatments against Medfly eggs and larvae, the panel 
recommended increasing the length of the required cold treatment at 
each temperature by 2 days. The panel's recommendations are contained 
in a document entitled ``Evaluation of cold storage treatment against 
Mediterranean Fruit Fly, Ceratitis capitata (Wiedemann) 
(Diptera:Tephritidae)'' (May 2, 2002) (referred to elsewhere in this 
document as the ``cold treatment evaluation''). To provide support for 
the panel's recommendations, USDA's Office of Risk Assessment and Cost-
Benefit Analysis did a quantitative analysis of available data, 
including data recently made available by the Australian Department of 
Agriculture. This analysis, entitled ``Quantitative Analysis of 
Available Data on the Efficacy of Cold Treatment Against Mediterranean 
Fruit Fly Larvae'' (September 2002) (referred to elsewhere in this 
document as the ``quantitative analysis''), concluded that there is 
uncertainty as to whether treatments of less than 14 days and at 
temperatures in the 32-33 [deg]F range will achieve the Probit 9 level 
of security. Therefore, we have decided to eliminate those treatment 
options. Both the cold treatment evaluation and the quantitative 
analysis can be viewed on the Internet at http://www.aphis.usda.gov/oa/clementine/index.html. Copies may also be obtained from the person 
listed under FOR FURTHER INFORMATION CONTACT.

Determination by the Secretary

    In this document, APHIS is revising the cold treatment schedules 
that are used to treat fruits for infestation with Medfly in order to 
prevent the introduction of Medfly into the United States or the 
dissemination of Medfly within the United States.
    Under Sec.  412(a) of the Plant Protection Act (7 U.S.C. 7712), the 
Secretary of Agriculture may prohibit or restrict the importation, 
entry, and interstate movement of any plant product if the Secretary 
determines that the prohibition or restriction is necessary to prevent 
the introduction or dissemination of a plant pest or noxious weed into 
or within the United States.
    The Secretary has determined that it is not necessary to prohibit 
the importation or interstate movement of the fruits that have been 
eligible for entry or interstate movement if cold treated with 
schedules T107-a, T107-c, or T107-f. This determination is based on the 
finding that the application of the extended cold treatment as 
described in this document, in addition to all other existing 
applicable requirements, will provide the protection necessary to 
prevent the introduction and dissemination of plant pests into the 
United States. The factors considered in arriving at this determination 
include: (1) The findings of the cold treatment evaluation, (2) the 
findings of the quantitative analysis on the efficacy of cold 
treatment, and (3) the findings of USDA technical experts.
    Therefore, we are amending the PPQ Treatment Manual by revising 
treatment schedules T107-a, T107-c, and T107-f. Treatment T107-a is 
revised by eliminating cold treatment options of less than 14 days and 
lower than 34 [deg]F and extending the remaining treatments by 2 days, 
as shown in the following table, and by removing the Oriental citrus 
mite from the list of target pests. (Cold treatment for the Oriental 
citrus mite will now be applied according to the revised T107-f, which 
is described later in this document.) There should be no effect on 
fruit quality due to the increased holding times, based on anecdotal 
information from New Zealand's Ministry of Agriculture and Forestry. We 
are confident that the revised treatment schedules will provide Probit 
9 level quarantine security.
    T107-a. Target pests: Ceratitis capitata (Medfly).

[[Page 63531]]



------------------------------------------------------------------------
                              Previous
                              exposure
        Temperature            period       Revised exposure  period
                               (days)
------------------------------------------------------------------------
32 [deg]F or below.........         10  No longer an approved treatment.
33 [deg]F or below.........         11  No longer an approved treatment.
34 [deg]F or below.........         12  14 days.
35 [deg]F or below.........         14  16 days.
36 [deg]F or below.........         16  18 days.
------------------------------------------------------------------------

    We are also establishing a new treatment schedule for use in cases 
where commodities need to be treated for both Medfly and Anastrepha 
spp. fruit flies (other than A. ludens). Such commodities, which have 
been subject to treatment T107-c in the past, will now need to be 
treated in accordance with treatment T107-a-1, as follows:
    T107-a-1. Target pests: Ceratitis capitata (Medfly) and species of 
Anastrepha (other than A. ludens).

------------------------------------------------------------------------
                                                               Exposure
                        Temperature                             period
                                                                (days)
------------------------------------------------------------------------
34 [deg]F or below.........................................           15
35 [deg]F or below.........................................           17
------------------------------------------------------------------------

    In conjunction with changing treatment schedule T107-a and 
establishing treatment schedule T107-a-1, we are changing treatment 
schedules T107-c and T107-f by removing Medfly from the list of target 
pests for each treatment. Treatment T107-c, which had been used for 
commodities requiring treatment for Medfly and Anastrepha spp. fruit 
flies (except A. ludens), will now be limited to species of Anastrepha 
(other than A. ludens). Similarly, treatment T107-f, which had been 
used for commodities requiring treatment for Medfly, melon fly, 
Oriental fruit fly, or Oriental citrus mite, will now be limited to 
melon fly, oriental fruit fly, or oriental citrus mite. The revised 
T107-c and T107-f treatment schedules are as follows:
    T107-c. Target pests: Species of Anastrepha (other than Anastrepha 
ludens).

------------------------------------------------------------------------
                                                               Exposure
                        Temperature                             period
                                                                (days)
------------------------------------------------------------------------
32 [deg]F or below.........................................           11
33 [deg]F or below.........................................           13
34 [deg]F or below.........................................           15
35 [deg]F or below.........................................           17
------------------------------------------------------------------------

    T107-f. Target pests: Bactrocera cucurbitae (Melon fly), Bactrocera 
dorsalis (Oriental fruit fly), and Eutetranychus orientalis (Oriental 
citrus mite).

------------------------------------------------------------------------
                                                               Exposure
                        Temperature                             period
                                                                (days)
------------------------------------------------------------------------
32 [deg]F or below.........................................           10
33 [deg]F or below.........................................           11
34 [deg]F or below.........................................           12
35 [deg]F or below.........................................           14
 
------------------------------------------------------------------------

    Following is a list of all fruits, by country, that are affected by 
these changes to the PPQ Treatment Manual.

    (Note: In the following table, which was drawn from the PPQ 
Treatment Manual, varieties of Citrus reticulata such as clementines 
and satsumas are covered by the general term ``tangerines.'')


--------------------------------------------------------------------------------------------------------------------------------------------------------
              Country                           Commodity                        Previous treatment                           New treatment
--------------------------------------------------------------------------------------------------------------------------------------------------------
Algeria............................  Ethrog Grape,\1\ Grapefruit,    T107-a...................................  T107-a (revised).
                                      Tangerine, Pear, Plum.
Argentina..........................  Apple, Apricot, Cherry,         T107-c...................................  T107-a-1.
                                      Grape,\2\ Kiwi, Peach, Pear,
                                      Plum, Nectarine, Quince,
                                      Pomegranate.
Armenia............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Austria............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Azerbaijan.........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Belarus............................  Grape \1\.....................  T107-a...................................  T107-a-1.
Belize.............................  Ethrog........................  T107-a...................................  T107-a (revised).
                                     Carambola.....................  T107-c...................................  T107-c.
Bosnia.............................  Ethrog........................  T107-a...................................  T107-a (revised).
Brazil.............................  Apple, Grape..................  T107-c...................................  T107-a-1.
Bulgaria...........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Chile \3\..........................  Apple, Apricot,\4\ Cherry,      T107-a...................................  T107-a (revised).
                                      Grape \5\ Kiwi,\6\ Loquat,
                                      Nectarine,\4\ Peach,\4\ Pear,
                                      Persimmon, Plum, Plumcot,
                                      Quince, Sand Pear.
China..............................  Sand Pear, Ya Pear............  T107-f...................................  T107-f.
Columbia...........................  Grape.........................  T107-c...................................  T107-c.
Costa Rica.........................  Ethrog........................  T107-a...................................  T107-a (revised).
Croatia............................  Ethrog........................  T107-a...................................  T107-a (revised).
Cyprus.............................  Ethrog, Grape \1\, Grapefruit,  T107-a...................................  T107-a (revised).
                                      Orange, Tangerine.
Dominican Republic.................  Grape.........................  T107-c...................................  T107-c.
Ecuador............................  Ethrog........................  T107-a...................................  T107-a (revised).
                                     Apple, Grapefruit, Orange,      T107-c...................................  T107-a-1.
                                      Tangerine.
Egypt..............................  Grape \1\, Orange, Pear.......  T107-a...................................  T107-a (revised).
El Salvador........................  Ethrog........................  T107-a...................................  T107-a (revised).
Estonia............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
France.............................  Apple, Ethrog, Grape \1\,       T107-a...................................  T107-a (revised).
                                      Kiwi, Pear.
Georgia............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Germany............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Greece.............................  Ethrog, Grape,\1\ Kiwi,         T107-a...................................  T107-a (revised).
                                      Orange, Pomegranate,
                                      Tangerine.
Guatemala..........................  Ethrog........................  T107-a...................................  T107-a (revised).
Guyana.............................  Apple, Orange.................  T107-c...................................  T107-c.
Haiti..............................  Apricot, Pomegranate..........  T107-c...................................  T107-c.
Honduras...........................  Ethrog........................  T107-a...................................  T107-a (revised).
Hungary............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
India..............................  Litchi........................  T107-f...................................  T107-f.
Israel, incl. Gaza.................  Apple, Apricot, Ethrog,         T107-a...................................  T107-a (revised).
                                      Grape,\1\ Grapefruit, Litchi,
                                      Loquat, Nectarine, Orange,
                                      Peach, Pear, Persimmon,
                                      Pomegranate, Pummelo, Plum,
                                      Tangerine.

[[Page 63532]]

 
Italy..............................  Ethrog (North Atlantic ports    T107-a...................................  T107-a (revised).
                                      only), Grape,\1\ Grapefruit,
                                      Kiwi, Orange, Persimmon,
                                      Tangerine.
Jordan.............................  Apple Persimmon...............  T107-a...................................  T107-a (revised).
Kazakhstan.........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Kyrgyzstan.........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Latvia.............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Lebanon............................  Apple.........................  T107-a...................................  T107-a (revised).
Libya..............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Lithuania..........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Luxembourg.........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Macedonia..........................  Ethrog........................  T107-a...................................  T107-a (revised).
Martinique.........................  Ethrog........................  T107-a...................................  T107-a (revised).
Mexico.............................  Carambola.....................  T107-c...................................  T107-c.
Moldova............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Morocco............................  Apricot, Ethrog, Grape,\1\      T107-a...................................  T107-a (revised).
                                      Grapefruit, Orange, Peach,
                                      Pear, Plum, Tangerine.
Panama.............................  Ethrog........................  T107-a...................................  T107-a (revised).
Peru...............................  Grape.........................  T107-c...................................  T107-a-1.
Portugal...........................  Ethrog, Grape \1\.............  T107-a...................................  T107-a (revised).
Russia.............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Slovenia...........................  Ethrog........................  T107-a...................................  T107-a (revised).
South Africa.......................  Apple, Grape, Pear............  T107-a...................................  T107-a (revised).
Spain..............................  Apple, Ethrog, Grape,\1\        T107-a...................................  T107-a (revised).
                                      Grapefruit, Loquat, Orange,
                                      Ortanique, Tangerine.
                                     Kiwi..........................  T107-c...................................  T107-a (revised).
Switzerland........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Syrian Arab Republic...............  Ethrog, Grape \1\.............  T107-a...................................  T107-a (revised).
Taiwan.............................  Carambola.....................  T107-f...................................  T107-f.
Tajikistan.........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Trinidad & Tobago..................  Grapefruit, Orange, Tangerine.  T107-c...................................  T107-c.
Tunisia............................  Ethrog, Grape,\1\ Grapefruit,   T107-a...................................  T107-a (revised).
                                      Orange, Peach, Pear, Plum,
                                      Tangerine.
Turkey.............................  Ethrog, Grape, Orange.........  T107-a...................................  T107-a (revised).
Turkmenistan.......................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Ukraine............................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Uruguay............................  Apple, Grape,\1\ Nectarine,     T107-c...................................  T107-a-1.
                                      Peach, Pear, Plum.
Uzbekistan.........................  Grape \1\.....................  T107-a...................................  T107-a (revised).
Venezuela..........................  Grape, Grapefruit, Orange,      T107-c...................................  T107-a-1.
                                      Tangerine.
Zimbabwe...........................  Apple, Kiwi, Pear.............  T107-a...................................  T107-a (revised).
--------------------------------------------------------------------------------------------------------------------------------------------------------
\1\ Treatment T101-h-2 also required for this commodity if imported from designated country.
\2\ Treatment T101-i-2 also required for this commodity if imported from designated country.
\3\ From Arica Province of Region 1 or Chanaral Township of Region 3 only.
\4\ Treatment T101-a-3 also required for this commodity if imported from designated country.
\5\ Treatment T101-i-2-1 also required for this commodity if imported from designated country.
\6\ Treatment T104-a-1 also required for this commodity if imported from designated country.

Movement of Domestically Produced Fruits

    In our domestic quarantine notices in 7 CFR part 301, Subpart-
Mediterranean Fruit Fly (Sec. Sec.  301.78 through 301.78-10) contains 
regulations pertaining to the interstate movement of host material from 
areas of the continental United States that may, from time to time, be 
quarantined because of Medfly. In Sec.  301.78-10, paragraph (b)(3) 
sets out a cold treatment schedule for regulated citrus fruit that has 
been harvested. That schedule has been the same as schedule T107-a in 
the PPQ Treatment Manual, so we are revising Sec.  301.78-10(b)(3) in 
this interim rule so that the schedule set out in that paragraph is 
consistent with the revised schedule T107-a in the PPQ Treatment 
Manual.
    The Hawaiian and Territorial Quarantine Notices are contained in 7 
CFR part 318. Part 318 does not set out any cold treatment schedules, 
but refers instead to the PPQ Treatment Manual. Therefore, no changes 
need to be made to part 318.

Monitoring Treatment Effectiveness

    In our foreign quarantine notices in 7 CFR part 319, Subpart-Fruits 
and Vegetables (Sec. Sec.  319.56 through 319.56-6) contains 
regulations for importing fruits and vegetables into the United States. 
In conjunction with the changes to the cold treatment schedules for 
Medfly, we are also amending Sec.  319.56-2d, ``Administrative 
instructions for cold treatments of certain imported fruits.'' 
Specifically, we are providing that, at the port of first arrival in 
the United States, an inspector will sample and cut fruit from each 
shipment that has been cold treated for Medfly to monitor treatment 
effectiveness. If a single live Medfly in any stage of development is 
found, the shipment will be held until an investigation is completed 
and appropriate remedial actions have been implemented. If APHIS 
determines at any time that the prescribed cold treatments do not 
appear to be effective against Medfly, APHIS may suspend the 
importation of fruit from the originating country and conduct an 
investigation into the cause of the deficiency. We believe that these 
additional precautions will provide assurance that the revised cold 
treatment schedules are effective against Medfly.
    This rule does not allow the importation or interstate movement of 
any commodities that were not previously allowed to be imported or 
moved interstate subject to cold treatment and other applicable 
requirements.

Immediate Action

    Immediate action is necessary to protect against the introduction 
into and

[[Page 63533]]

dissemination within the United States of Medflies. Under these 
circumstances, the Administrator has determined that prior notice and 
opportunity for public comment are contrary to the public interest and 
that there is good cause under 5 U.S.C. 553 for making this action 
effective less than 30 days after publication in the Federal Register.
    We will consider comments we receive during the comment period for 
this interim rule (see DATES above). After the comment period closes, 
we will publish another document in the Federal Register. The document 
will include a discussion of any comments we receive and any amendments 
we are making to the rule.

Executive Order 12866 and Regulatory Flexibility Act

    This rule has been reviewed under Executive Order 12866. For this 
action, the Office of Management and Budget has waived its review under 
Executive Order 12866.
    In accordance with 5 U.S.C. 603, we have performed an initial 
regulatory flexibility analysis, which is set out below, regarding the 
economic effects of this interim rule on small entities. Based on the 
information we have, there is no basis to conclude that adoption of 
this interim rule will result in any significant economic effect 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 interim 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 interim rule.
    The Plant Protection Act (7 U.S.C. 7701-7772) authorizes the 
Secretary of Agriculture to prohibit or restrict the importation, 
entry, and interstate movement of any plant, plant product, article, or 
means of conveyance if the Secretary determines that the prohibition or 
restriction is necessary to prevent the introduction or dissemination 
of a plant pest into or within the United States.
    In this interim rule, we are amending the PPQ Treatment Manual, 
which is incorporated by reference into the Code of Federal 
Regulations, by revising the cold treatment schedules under which 
fruits are treated for Medfly and other specified pests. We are also 
amending the cold treatment schedule in our domestic Medfly regulations 
to be consistent with the changes to the PPQ Treatment Manual. Based on 
a review of those treatment schedules, we have determined that it is 
necessary to extend the duration of cold treatment for Medfly.\1\ The 
revisions are described in detail earlier in this document. This action 
is necessary to protect against the introduction or dissemination of 
Medflies into and within the United States.
---------------------------------------------------------------------------

    \1\ Certain commodities that are subject to the extended cold 
treatment, i.e., commodities that are subject to treatment for 
Medfly and Anastrepha spp. (except Anastrepha ludens), will not 
necessarily be subject to additional days of cold treatment due to 
the fact that treatment for Anastrepha spp. is already longer than 
the extended Medfly treatment requires. Thus, such commodities may 
be subject to 1 additional day of treatment, or none at all, 
depending on the temperature at which they are held. Nevertheless, 
for the purposes of this analysis, we assume that all commodities 
will be subject to additional days of treatment.
---------------------------------------------------------------------------

    In addition, we are amending the regulations for importing fruits 
and vegetables to provide that inspectors at the port of first arrival 
will sample and cut fruit from each shipment cold treated for Medfly to 
monitor the effectiveness of the cold treatment. If a single live 
Medfly in any stage of development is found, the shipment will be held 
until an investigation is completed and appropriate remedial actions 
have been implemented. If APHIS determines at any time that the 
prescribed cold treatments do not appear to be effective against 
Medfly, APHIS may suspend the importation of fruit from the originating 
country and conduct an investigation into the cause of the deficiency.
    Fruit cutting and inspection charges associated with the interim 
rule will more than likely be small. APHIS, in a regulatory impact 
analysis (RIA) conducted for a rulemaking related to the importation of 
clementines from Spain (referred to below as the clementine RIA),\2\ 
indicates that bulk shipments of fruit will more than likely pass 
inspection because the proportion of fruit infested with live Medfly 
will more than likely be extremely low after the application of the 
revised cold treatment schedules. In addition, the amount of fruit that 
is cut in the United States will more than likely be low relative to 
the value of imports, amounting to between 0.24 percent and 0.31 
percent of gross import value. As a result, we state at the outset that 
costs associated with cutting and inspecting fruit will not have a 
significant negative economic impact on a substantial number of small 
importers.
---------------------------------------------------------------------------

    \2\ ``Amending Import Rules for Clementines from Spain: 
Regulatory Impact Analysis.'' Animal and Plant Health Inspection 
Service. Riverdale, MD. Available on the Internet at http://www.aphis.usda.gov/oa/clementine/index.html.
---------------------------------------------------------------------------

    The United States Small Business Administration (SBA) defines a 
small fruit importer (NAICS 42248, Fresh Fruit and Vegetable 
Wholesalers) as one with 100 or fewer employees. It is not clear if the 
majority of U.S. importers of fruits from countries known to be 
infested with Medfly are designated as small entities under SBA's size 
standards; however as we demonstrate below, economic impacts associated 
with this rule are not expected to be significant.
    Import data for 1996-2000 for fruits that require cold treatment 
for Medfly under the revised schedule T107-a are shown in Table 1. 
Import data are not reported separately for all of the fruits that are 
subject to cold treatment for Medfly, so similar fruits are combined 
into categories in Table 1.\3\ Import data for litchis, pomegranates, 
and carambola are not available, and there were no imports of mountain 
papaya and very few imports of cherries that required cold treatment 
for Medfly during 1996-2000; therefore, data for these fruits are not 
included in Table 1.
---------------------------------------------------------------------------

    \3\ USDA-FAS, ``U.S. imports and import values for various 
fruit.'' Available on the Internet at: http://www.fas.usda.gov/ustrade/.
---------------------------------------------------------------------------

    In order to estimate costs associated with extending Medfly cold 
treatment periods, it is necessary to estimate 2002 import levels, 
because additional cold treatment expenses vary with the amount of 
imported fruit. We base the 2002 import level for ethrogs on the 5-year 
average, because annual growth rates were extremely volatile during 
1996-2000. We base the 2002 import level for pears and quinces on the 
2000 import level because the import data provided little guidance 
regarding a likely value for 2002. We base the 2002 import level for 
clementines, ortaniques, and tangerines on the 2000 import level and 
annual import growth in 2000 because growth rates were highly volatile 
during the preceding years and imports apparently leveled off in 
1999.\4\ We report estimates of 2002 import levels for these and the 
remaining fruits in Table 1.
---------------------------------------------------------------------------

    \4\ In particular, expected imports for 2002 are given by x(1 + 
y)\2\, where x denotes the import value for 2000 and y denotes 
import growth for 2000.

[[Page 63534]]



                                      Table 1.--Fruit Imports That Are Subject to T107 Cold Treatment for Medfly.*
--------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                 Average import
                           Commodity                              level  (1,000    Weighted import   Average import     Percentage of   Expected imports
                                                                       kg)          level  ($/kg)    value  ($1,000)    world imports   2002  (1,000 kg)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Apple.........................................................             4,128             $0.86            $3,550              2.52         \1\ 4,128
Apricot.......................................................                 4              2.48                10              0.23              \1\4
Clementine, ortanique, and tangerine..........................            52,176              1.43            74,354             86.32        \2\ 95,952
Ethrog........................................................               160              2.79               446             32.17           \1\ 160
Grape.........................................................            33,399            426.18            14,234              3.29        \3\ 52,369
Grapefruit and pummelo........................................               356              0.91               323              3.31           \1\ 356
Kiwi..........................................................             6,080              1.05             6,384              6.91         \1\ 6,080
Orange........................................................             6,361              1.07             6,776              8.34         \1\ 6,361
Peach and nectarine...........................................                10              0.95                10              0.02            \3\ 17
Pear and quince...............................................            35,915              0.96            34,478             44.81        \4\ 58,228
Plum, loquat, persimmon, and plumcot..........................               124              0.99               123              0.54          \4\ 513
--------------------------------------------------------------------------------------------------------------------------------------------------------
* Imports, prices, and percentages of world imports are averages for 1996-2000. Prices are weighted averages converted to 2002 dollars, using the
  consumer price index for fresh fruit (from U.S. Bureau of Labor Statistics). Data are from USDA-FAS, ``U.S. imports and import values for various
  fruit,'' except for grapes, which are from Bureau of Census data: 080610, U.S. fresh grape imports. Quantity data for grapes are in cubic meters;
  grape prices are in dollars per cubic meter.
\1\ Five-year average.
\2\ Based on the 2000 import level and annual import growth for 2000.
\3\ Based on the 2000 import level and average annual import growth for 1999 and 2000.
\4\ The 2000 import level.

    As shown in Table 1, very low percentages of apple, apricot, 
cherry, grape, grapefruit and pummelo, kiwi, mountain papaya, orange, 
peach and nectarine, and plum, loquat, persimmon, and plumcot imports 
undergo cold treatment for Medfly; as a result, the interim rule will 
likely not affect a substantial number of small importers of these 
fruits. Thirty-two percent of ethrogs, 44 percent of pears and quinces, 
and 86 percent of clementines, ortaniques, and tangerines must be cold 
treated for Medfly. Therefore, the interim rule may affect a 
substantial number of U.S. importers of these fruits and we estimate 
economic impacts for these fruits. We do not estimate economic impacts 
for the remaining fruits because it is unlikely that a substantial 
number of small importers of those fruits will be significantly 
affected by the interim rule. Furthermore, economic impacts for 
ethrogs, pears and quinces, and clementines, ortaniques, and tangerines 
can be considered as representative of the economic impacts for the 
other fruits.
    The overwhelming majority of cold-treated fruit imports are treated 
aboard ship while in transit to the United States, although treatment 
can also be carried out at authorized ports. When cold treatment is 
conducted in transit, the treatment period must be met before 
unloading. For countries with sailing times to the United States longer 
than the extended treatment periods, the interim rule will only lead to 
increases in cold treatment costs. For countries with sailing times to 
the United States shorter than the extended treatment periods, the 
interim rule will lead to increases in cold treatment and shipping 
costs. To account for the extended treatment periods in these 
instances, vessels will either adjust sailing times to coincide with 
the length of the treatment period, sit at the dock, or go into 
anchorage near the U.S. port. As a result, labor, fuel, and opportunity 
costs associated with delaying shipments of other cargoes will more 
than likely be added to shipping charges.
    Costs associated with extending treatment periods have been 
estimated for clementine imports from Spain, in the clementine RIA 
cited earlier in this analysis. We use the same parameters and methods 
to estimate additional cold treatment expenses for clementines, 
ortaniques, and tangerines. It costs approximately $0.50 per day to 
cold treat a pallet of fruit at U.S. ports. This provides an 
approximate upper bound on cold treatment costs because most fruits are 
cold treated in transit, which may be less expensive on average. We 
therefore use this as our unit cost to calculate cold treatment 
expenses in the analysis.
    Historically, the Spanish have exported clementines, ortaniques, 
and tangerines to the United States under the 11 day (33 [deg]F) or 12 
day (34 [deg]F) cold treatment schedules. As a result, Spanish 
clementines, ortaniques, and tangerines shipped to the United States 
will undergo at least 2 to 3 days (34 [deg]F) of extra cold treatment. 
We assume the average bulk shipment will undergo an additional 2.5 days 
of cold treatment. The following daily charges will likely be added to 
the cost of shipping clementines, ortaniques, and tangerines to the 
United States: $10,000 chartering fee (although this fee is highly 
variable depending on the availability of bulk ships); $2,160 docking 
fee ($0.27 per metric ton with an average ship size of 8,000 metric 
tons); $990 fuel at anchorage fee (five to six tons at $180 per ton); 
and $0.50 per pallet cold treatment fee.
    These cost figures are based on recent charges quoted by a 
representative from Lauritzen, a company that specializes in the bulk 
shipment of fruit. Ninety percent of clementines, ortaniques, and 
tangerines shipments come into the United States in bulk shipments. 
Using a bioeconomic model, which incorporates variation in clementines 
designated for export to the United States and fruit cutting and 
rejection of shipments in Spain according to farm-level variation in 
numbers of fruit infested with Medflies, additional shipping and cold 
treatment expenses averaged $1.23 million (+/-$15,000, with 95 percent 
confidence). U.S. imports of clementines averaged 88,461 metric tons 
(+/-1,042 metric tons). As a result, total regulatory expenses were 
$13.92 per metric ton, or $5.57 per metric ton per day. Average import 
price in the United States was $1.05 per kilogram, thus import value 
averaged $92.65 million. Total regulatory expenses were therefore 1.33 
percent of gross value.
    These estimates can be used to estimate regulatory costs associated 
with shipments of clementines, ortaniques, and tangerines from Spain, 
Morocco, Israel, and Italy. Applying the $13.92 per metric ton fee to 
95,952 metric tons (Table 1), total regulatory costs, assuming fruits 
are cold treated for an additional 2.5 days on average, are $1.34 
million. To determine whether

[[Page 63535]]

these costs are significant, we estimated the value of clementine, 
ortanique, and tangerine imports for 2002 using the Spanish clementine 
import demand curve estimated in the clementine RIA. Plugging in the 
expected 2002 import level and converting the price to 2002 dollars 
using the consumer price index for oranges, including tangerines,\5\ 
gives a price of $0.84 per kilogram.\6\ Using this expected price, the 
expected value of imports for 2002 is approximately $78.47 million. 
Additional treatment expenses associated with the interim rule amount 
to only 1.7 percent of this total and, as a result, the interim rule 
will likely not have a significant negative economic impact on small 
importers of clementines, ortaniques, and tangerines, even in the 
unlikely event that importers bear the entire economic burden.\7\
---------------------------------------------------------------------------

    \5\ U.S. Bureau of Labor Statistics, ``Consumer price index-
oranges, including tangerines, not seasonally adjusted.'' Available 
on the Internet at http://data.bls.gov/labjava/outside.jsp?survey=cu.
    \6\ The y-intercept of the demand curve is $3.71 and the 
coefficient on kilograms of imports is -3.01E-08.
    \7\ This would be the case, for example, if import demand was 
perfectly inelastic and export supply was perfectly elastic. 
Available data indicate that import demand is elastic and that 
export supply is not perfectly elastic.
---------------------------------------------------------------------------

    We use the same parameters and methods to estimate additional cold 
treatment expenses for ethrogs, pears, and quinces under the assumption 
that these fruits and clementines, ortaniques, and tangerines have 
roughly the same dimensions. For ethrogs, assuming an additional 2.5 
days of cold treatment and shipping expenses, total regulatory costs 
for 2002 came to $2,227. This amounts to only 0.5 percent of the 
estimated value of ethrog imports for 2002 ($446,400), which is based 
on the estimated import level (160 metric tons) and the weighted 
average price ($2.79 per kilogram) during 1996-2000 (see Table 1). As a 
result, the interim rule will more than likely not have a significant 
negative economic impact on small importers of ethrogs.
    For pears and quinces, additional cold treatment expenses for 2002 
came to $1.3 million, which amounts to 2.32 percent of the estimated 
value of pear and quince imports for 2002 ($56 million), based on the 
estimated import level (58,228 metric tons) and weighted average price 
($0.96 per kilogram) during 1996-2000 (see Table 1). During 1996-2000, 
95 percent of the pear and quince imports from regions with Medfly came 
from Argentina, and the remainder came from China, South Africa, and 
Spain. The direct sailing time from Argentina is approximately 10 days, 
which is 4 days less than the shortest treatment period. As a result, 
this rule will add an additional 4 days of cold treatment and shipping 
charges for shipments of pears and quinces to the United States from 
Argentina. Total regulatory expenses for 2002 are $1.30 million, which 
amounts to 2.32 percent of the estimated value of pear and quince 
imports for 2002 ($56 million), based on the estimated import level 
(58,228 metric tons) and weighted average price ($0.96 per kilogram) 
during 1996-2000 (Table 1).
    Countries that import citrus from the United States may change 
their cold treatment guidelines to reflect the changes being made to 
our cold treatment requirements; however, such changes would only 
affect U.S. exporters in the event of a Medfly outbreak in the 
continental United States. Indirect impacts of this rule, therefore, 
are highly uncertain and depend on the probability that Medflies are 
introduced and become established, as well as the regional extent of 
outbreaks and the efficiency with which they are controlled and 
eradicated. Because potential economic impacts on U.S. fruit importers 
are low relative to import values and because Medfly outbreaks within 
the United States will more than likely be confined to particular areas 
and eradicated efficiently, this rule will likely not have a 
significant negative economic impact on a substantial number of small 
exporters in the United States. However, in the event of a Medfly 
outbreak, exporters who wish to export affected commodities from areas 
quarantined for Medfly should expect to pay an additional $5.57 per 
metric ton per day of extra cold treatment. For example, exports from 
quarantined areas on the west coast to Asia would have to undergo an 
additional 2.5 days of cold treatment; therefore, each metric ton of 
affected produce would cost an additional $13.92 to ship. The same cost 
schedule applies to affected commodities on the east coast destined for 
European markets. Because shipment times from the west coast to Europe 
and from the east coast to Asia are longer than the revised cold 
treatment periods, this rule would have no impact on the cost schedules 
associated with those exports.

Summary

    With the exception of small importers of ethrogs, clementines, 
ortaniques, pears, quinces, and tangerines, our analysis shows that the 
interim rule will more than likely not significantly affect a 
substantial number of small importers of fruits in the United States. 
Further, our analysis shows that the economic impact on small importers 
of ethrogs, clementines, ortaniques, pears, quinces, and tangerines 
will more than likely not be significant. Further, our analysis shows 
that the interim rule will not significantly affect a substantial 
number of small fruit exporters. Nonetheless, we request public 
comments on our analysis and invite the submission of additional data 
regarding affected entities, whether small or large.
    This interim rule contains no new information collection 
requirements.

Executive Order 12988

    This rule has been reviewed under Executive Order 12988, Civil 
Justice Reform. This rule: (1) Preempts all State and local laws and 
regulations that are inconsistent with this rule; (2) has no 
retroactive effect; and (3) does not require administrative proceedings 
before parties may file suit in court challenging this rule.

Paperwork Reduction Act

    This rule contains no new information collection or recordkeeping 
requirements under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 
et seq.).

List of Subjects

7 CFR Part 300

    Incorporation by reference, Plant diseases and pests, Quarantine.

7 CFR Part 301

    Agricultural commodities, Plant diseases and pests, Quarantine, 
Reporting and recordkeeping requirements, Transportation.

7 CFR Part 319

    Bees, Coffee, Cotton, Fruits, Honey, Imports, Logs, nursery Stock, 
Plant diseases and pests, Quarantine, Reporting and recordkeeping 
requirements, Rice, Vegetables.


    Accordingly, we are amending 7 CFR Chapter III as follows:

PART 300--INCORPORATION BY REFERENCE

    1. The authority citation for part 300 continues to read as 
follows:

    Authority: 7 U.S.C. 7701-7772; 7 CFR 2.22, 2.80, and 371.3.


    2. In Sec.  300.1, paragraph (a) is amended as follows:
    a. In paragraph (a)(3), by removing the word ``and''.
    b. In paragraph (a)(4), by removing the period and adding the word 
``; and'' in its place.
    c. By adding a new paragraph (a)(5) to read as set forth below.

[[Page 63536]]

Sec.  300.1  Plant Protection and Quarantine Treatment Manual.

    (a) * * *
    (5) Treatments T107-a, T107-a-1, T107-c, and T107-f, dated 
September 2002.
* * * * *

PART 301--DOMESTIC QUARANTINE NOTICES

    3. The authority citation for part 301 continues to read as 
follows:

    Authority: 7 U.S.C. 166, 7711, 7712, 7714, 7731, 7735, 7751, 
7752, 7753, and 7754; 7 CFR 2.22, 2.80, and 371.3.
    Section 301.75-15 also issued under Sec. 204, Title II, Pub. L. 
106-113, 113 Stat. 1501A-293; sections 301.75-15 and 301.75-16 also 
issued under Sec. 203, Title II, Pub. L. 106-224, 114 Stat. 400 (7 
U.S.C. 1421 note).


    4. In Sec.  301.78-10, paragraph (b)(3) is revised to read as 
follows:


Sec.  301.78-10  Treatments.

* * * * *
    (b) * * *
    (3) Cold treatment: 14 days at 1.11 [deg]C. (34 [deg]F.) or below; 
16 days at 1.67 [deg]C. (35 [deg]F) or below; or 18 days at 2.22 
[deg]C. (36 [deg]F.) or below.
* * * * *

PART 319--FOREIGN QUARANTINE NOTICES

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

    Authority: 7 U.S.C. 166, 450, 7711-7714, 7718, 7731, 7732, and 
7751-7754; 21 U.S.C. 136 and 136a; 7 CFR 2.22, 2.80, and 371.3.


    6. In Sec.  319.56-2d, a new paragraph (b)(8) is added to read as 
follows:


Sec.  319.56-2d  Administrative instructions for cold treatments of 
certain imported fruits.

* * * * *
    (b) * * *
    (8) Inspection of fruits after cold treatment for Mediterranean 
fruit fly. An inspector will sample and cut fruit from each shipment 
cold treated for Mediterranean fruit fly (Medfly) to monitor treatment 
effectiveness. If a single live Medfly in any stage of development is 
found, the shipment will be held until an investigation is completed 
and appropriate remedial actions have been implemented. If APHIS 
determines at any time that the safeguards contained in this section do 
not appear to be effective against the Medfly, APHIS may suspend the 
importation of fruits from the originating country and conduct an 
investigation into the cause of the deficiency.
* * * * *

    Done in Washington, DC, this 8th day of October, 2002.
Peter Fernandez,
Acting Administrator, Animal and Plant Health Inspection Service.
[FR Doc. 02-26063 Filed 10-11-02; 8:45 am]
BILLING CODE 3410-34-P