[Federal Register Volume 76, Number 169 (Wednesday, August 31, 2011)]
[Rules and Regulations]
[Pages 54078-54093]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-22159]


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DEPARTMENT OF AGRICULTURE

Agricultural Marketing Service

7 CFR Part 1205

[Doc.  AMS-CN-11-0026; CN-11-002]


Cotton Board Rules and Regulations: Adjusting Supplemental 
Assessment on Imports

AGENCY: Agricultural Marketing Service, USDA.

ACTION: Final rule.

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SUMMARY: The Agricultural Marketing Service (AMS) is amending the 
Cotton Board Rules and Regulations by updating the value assigned to 
imported cotton for the purpose of calculating supplemental assessments 
collected for use by the Cotton Research and Promotion Program. An 
amendment is required to adjust the supplemental assessment and to 
ensure that assessments collected on imported raw cotton and the cotton 
content of imported cotton-containing products are the same as 
assessments collected on domestically produced cotton. In addition, AMS 
is updating the textile trade conversion factors used to determine the 
raw fiber equivalents of imported cotton-containing products and 
expanding the number of Harmonized Tariff Schedule (HTS) statistical 
reporting numbers from the current 706 to 2,371 to assess all imported 
cotton and cotton-containing products.

DATES: Effective Date: September 30, 2011.

FOR FURTHER INFORMATION CONTACT: Shethir M. Riva, Chief, Research and 
Promotion Staff, Cotton and Tobacco Programs, AMS, USDA, Stop 0224, 
1400 Independence Ave., SW., Room 2635-S, Washington, DC 20250-0224, 
telephone (540) 361-2726, facsimile (202) 690-1718, or e-mail at 
[email protected].

SUPPLEMENTARY INFORMATION: 

Executive Order 12866

    The Office of Management and Budget has waived the review process 
required by Executive Order 12866 for this action.

Executive Order 12988

    This rule has been reviewed under Executive Order 12988, Civil 
Justice Reform. It is not intended to have retroactive effect.
    The Cotton Research and Promotion Act (7 U.S.C. 2101-2118) (Act) 
provides that administrative proceedings must be exhausted before 
parties may file suit in court. Under section 12 of the Act, any person 
subject to an order may file with the Secretary of Agriculture 
(Secretary) a petition stating that the order, any provision of the 
plan, or any obligation imposed in connection with the order is not in 
accordance with law and requesting a modification of the order or to be 
exempted therefrom. Such person 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 person is an inhabitant, or has his 
principal place of business, has jurisdiction to review the Secretary's 
ruling, provided a complaint is filed within 20 days from the date of 
the entry of ruling.

Background

Import Assessment

    Amendments to the Act were enacted by Congress under Subtitle G of 
Title XIX of the Food, Agriculture, Conservation, and Trade Act of 1990

[[Page 54079]]

(Pub. L. 101-624, 104 Stat. 3909, November 28, 1990). These amendments 
contained two provisions that authorized changes in the funding 
procedures for the Cotton Research and Promotion Program.
    These provisions are: (1) The authority to assess imported cotton 
and cotton products; and (2) the termination of the right of cotton 
producers to demand a refund of assessments.
    As amended, the Cotton Research and Promotion Order (7 CFR part 
1205) (Order) was approved by cotton producers and importers voting in 
a referendum held July 17-26, 1991, and the amended Order was published 
in the Federal Register on December 10, 1991, (56 FR 64470). A proposed 
rule implementing the amended Order was published in the Federal 
Register on December 17, 1991, (56 FR 65450). Implementing rules were 
published on July 1 and 2, 1992, (57 FR 29181) and (57 FR 29431), 
respectively.
    This rule increases the value assigned to imported cotton in the 
Cotton Board Rules and Regulations (7 CFR 1205.510(b)(2)). The total 
value of assessments levied is determined using a two-part assessment. 
The first part of the assessment is levied on the weight of cotton 
imported at a rate of $1 per 500-pound bale of cotton or $1 per 226.8 
kilograms of cotton. The second part of the assessment--known as the 
supplemental assessment--is levied at a rate of five-tenths of one 
percent of the value of imported raw cotton or the cotton content of 
imported cotton-containing products. The supplemental assessment is 
combined with the per bale equivalent to determine the total value and 
assessment of the imported cotton or imported cotton-containing 
products.
    Section 1205.510(b)(2) of the Cotton Research and Promotion Rules 
and Regulations provides for the calendar year weighted average price 
received by U.S. farmers for Upland cotton to represent the value of 
domestically produced cotton, imported raw cotton and the cotton 
content of imported cotton-containing products. Use of the same 
weighted average price ensures that assessments paid on domestically 
produced cotton and assessments on imported cotton are the same. The 
source of price statistics is Agricultural Prices, a publication of the 
National Agricultural Statistics Service (NASS) of the Department of 
Agriculture.
    The current value of imported cotton as published in the Federal 
Register (74 FR 32400) for the purpose of calculating assessments on 
imported cotton is $0.010880 per kilogram. Using the weighted average 
price received by U.S. farmers for Upland cotton for the calendar year 
2010, the new value of imported cotton is $0.012665 per kilogram.
    An example of the complete assessment formula and how the figures 
are obtained is as follows:
    One bale is equal to 500 pounds.
    One kilogram equals 2.2046 pounds.
    One pound equals 0.453597 kilograms.

One Dollar Per Bale Assessment Converted to Kilograms

    A 500-pound bale equals 226.8 kg. (500 x .453597).
    $1 per bale assessment equals $0.002 per pound or 0.2 cents per 
pound (1/500) or $0.004409 per kg or 0.4409 cents per kg. (1/226.8).

Supplemental Assessment of 5/10 of One Percent of the Value of the 
Cotton Converted to Kilograms

    The 2010 calendar year weighted average price received by producers 
for Upland cotton is $0.749 per pound or $1.651 per kg. (0.749 x 
2.2046).
    Five tenths of one percent of the weighted average price in 
kilograms equals $0.008256 per kg. (1.651 x .005).

Total Assessment

    The total assessment per kilogram of raw cotton is obtained by 
adding the $1 per bale equivalent assessment of $0.004409 per kg. and 
the supplemental assessment $0.008256 per kg., which equals $0.012665 
per kg.
    The current assessment on imported cotton is $0.01088 per kilogram 
of imported cotton. The new assessment is $0.012665, an increase of 
$0.001785 per kilogram. This increase reflects the increase in the 
average weighted price of Upland Cotton Received by U.S. Farmers during 
the period January through December 2010. The Import Assessment Table 
in section 1205.510(b)(3) indicates the conversion factors used to 
estimate cotton equivalent quantities and the total assessment per 
kilogram due for each HTS number subject to assessment. Since the 
weighted average price of cotton that serves as the basis of the 
supplemental assessment calculation has changed, total assessment rates 
reported in this table have been revised.

Conversion Factors

    USDA's Economic Research Service (ERS) regularly publishes textile 
trade data which includes estimates of the amount of cotton contained 
in imported cotton products. The raw cotton equivalent is the estimated 
weight of the cotton fiber in the garment adjusted for waste that 
occurs in spinning, weaving, and cutting. To estimate raw cotton 
equivalents, ERS uses a set of cotton textile trade conversion factors. 
The Agricultural Marketing Service (AMS) currently uses a subset of 
these conversion factors to estimate cotton equivalents contained in 
cotton textile products imported into the U.S., which serve as the 
basis for collecting cotton import assessments for the Cotton Research 
and Promotion Program.
    ERS periodically evaluates how technology-driven improvements in 
textile production efficiencies--reductions in yarn waste--impacts the 
total quantity of raw cotton consumed in the production of various 
textile products. Such an evaluation was conducted initially in 1989 
shortly after the U.S. adopted the international system of harmonized 
tariff codes, again in 2000, and most recently in 2009. The 2009 
evaluation of conversion factors, which was based on two published 
studies,\1\ concluded that technological advancements in textile 
production processes have significantly changed since the current 
conversion factors were established. Furthermore, factors used to 
convert imported textile products into raw cotton bale-equivalent 
quantities were revised. Results of the ERS study were published in 
Cotton and Wool Outlook, October 13, 2009.\2\
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    \1\ MacDonald, Stephen. China's Cotton Supply and Demand: Issues 
and Impact on the World Market, CWS-071-01, November 2007, U.S. 
Department of Agriculture, Economic Research Service, http://www.ers.usda.gov/publications/CWS/2007/11Nov/CWS07I01/.
    MacDonald, Stephen and Sarah Whitley. Fiber Use for Textiles and 
China's Cotton Textile Exports, CWS-08i-01, March 2009, U.S. 
Department of Agriculture, Economic Research Service, http://www.ers.usda.gov/Publications/CWS/2009/03Mar/CWS08i01/.
    \2\ Meyer, Leslie, Stephen MacDonald and James Kiawu. Cotton and 
Wool Outlook, CWS-09h, October 13, 2009, U.S. Department of 
Agriculture, Economic Research Service, http://usda.mannlib.cornell.edu/usda/ers/CWS//2000s/2009/CWS-10-13-2009.pdf.
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    An analysis of these cotton trade conversion factors for a subset 
of cotton textile imports on which cotton import assessments are 
collected revealed that the differences between the current conversion 
factors and revised conversion factors represent an approximate 4.7 
percent reduction in cotton (177 million kilogram) or $1.93 million 
less in assessments (177 million kilograms * $0.01088/kilogram = $1.93 
million). Therefore, AMS adopts the revised and expanded textile trade 
conversion factors in the Import Assessment Table that appears in 
section 1205.510(b)(3)(ii) in the regulations to reflect updated 
textile technologies and to more accurately estimate the amount of 
cotton contained

[[Page 54080]]

in cotton-containing imports. This will assure a more fair and accurate 
assessment of imported cotton-containing products.

HTS Codes

    In a 2010 report, ERS determined that the current set of HTS codes 
used by AMS for research and promotion assessment purposes accounted 
for 89 percent of the total U.S. cotton product imports leaving 11 
percent (442 million kilograms) of imported cotton products unassessed. 
By expanding AMS' list to include 2,371 HTS codes and using the current 
assessment rate of $0.01088 per kilogram, the Cotton Research and 
Promotion Program could have collected approximately $4.81 million more 
in 2009. Based on these findings, the Board requested that AMS take 
necessary steps to publish its annual import assessment update with 
updated conversion factors and to increase the number of HTS codes from 
706 to 2,371 so that the program collects close to 100 percent on 
imported cotton and cotton-containing products, as it does with the 
domestic producer assessment. AMS is expanding the list of HTS codes 
included in 7 CFR part 1205 to include all HTS codes for cotton and 
cotton-containing products for the collection of import assessments.

Summary of Comments

    A proposed rule was published on June 3, 2011, with a comment 
period of June 3, 2011, through July 5, 2011 (76 FR 32088). AMS 
received 12 comments from individuals and various organizations 
representing segments of the cotton or manufacturing industry. Eight 
comments came from those supporting the proposed rule, including one 
from the Cotton Board who administers the Cotton Research and Promotion 
Program. AMS received three opposing comments and one comment from an 
individual who took no position but questioned parts of the proposed 
rule. All comments received are available for public inspection at 
Cotton and Tobacco Programs, AMS, USDA, Stop 0224, 1400 Independence 
Ave., SW., Room 2635-S, Washington, DC 20250-0224 during regular 
business hours. Comments may also be found at http://www.regulations.gov.
    Overall, the comments were favorable in support of both the 
proposed changes and the Cotton Research and Promotion Program.
    Of the commenters, two commenters opposed the proposed rule, but 
believed that the Cotton Research and Promotion Program has merit and 
numerous benefits. The commenters expressed concerned over the proposed 
increase in the cotton assessment and argued that it would burden 
companies. The commenters referenced the volatility of the cotton 
market and increases in cotton prices witnessed over the past 12-18 
months, and they objected to any revised assessment that would result 
in an increase in the amount of fees that are paid by importers under 
the Cotton Research and Promotion Program. In addition, one individual 
stated that this is not an appropriate time to pass along additional 
fees or cost to consumers given the burdens of unemployment and 
suggested decreasing the producers assessment to coincide with the 
current importer fee. Section 1205.510, ``Levy of assessments'', 
provides ``the rate of the supplemental assessment on imported cotton 
will be the same as that levied on cotton produced within the United 
States.'' In addition, section 1205.510 provides that the 12-month 
average of monthly weighted average prices received by U.S. farmers 
will be used as the value of imported cotton for the purpose of levying 
the supplemental assessment on imported cotton. AMS used the 2010 price 
statistics found in Agricultural Prices, a publication of the National 
Agricultural Statistics Service of the Department of Agriculture, to 
calculate the average weighted price and convert it to arrive at the 
new rate of 1.2665 cents per kilogram. Therefore, AMS has made no 
changes to the proposed rule based on these comments.
    Four organizations encouraged USDA to streamline the process for 
annually calculating the value of cotton and ensure that the value is 
calculated at approximately the same time each year. AMS is currently 
exploring possible options to streamline the process.
    AMS received a comment questioning the proposed list of HTS codes 
and identified some examples of proposed codes that are categorized in 
the HTS as containing only man-made fibers. The commenter surmised that 
if no cotton is contained in these HTS codes, then the codes should not 
be assessed the cotton fee or have a conversion factor.
    The proposed rule contained all HTS codes identified by ERS in its 
2009 study as containing some cotton. AMS in turn uses these HTS codes 
for assessment purposes. While the HTS codes noted by the commenter are 
indeed HTS codes classified by the International Trade Commission as 
being man-made fiber products, they are not considered 100 percent man-
made fibers and, therefore, are estimated to contain small percentages 
of other fibers, like cotton. This would also hold true for mostly 
cotton fiber products, as not all codes labeled as cotton products are 
considered 100 percent cotton. In fact, only about 11 percent of the 
total textile codes noted is considered 100 percent cotton.
    According to ERS, the goal of the estimation process established by 
ERS is to determine the accumulated quantities of raw fiber contained 
in both imported and exported textile products and how these quantities 
change over time. While it is possible for an individual textile 
product--or even a particular shipment within a given textile product 
code--to contain a larger (or smaller) percentage of an individual 
fiber than estimated by ERS, the purpose is to estimate the most common 
and average fiber makeup of each textile HTS code.
    It is the responsibility of the Cotton Board to collect assessments 
on cotton and cotton-containing products. ERS concluded that products 
classified with man-made fiber HTS codes are estimated to contain other 
fibers, including cotton, and conversion factors have been calculated 
to determine the average amount. The Cotton Research and Promotion 
Program will used the amount of cotton to calculate the assessment.
    AMS agrees that there is a possibility of select import products 
identified as containing cotton actually being composed of 100 percent 
man-made fibers. The Cotton Research and Promotion regulations in 
section 1205.336 provides for a remedy. If an importer has paid 
assessments and can prove that such assessment was made on fiber other 
than Upland cotton, the importer has the right to request and receive a 
reimbursement from the Cotton Board.

Regulatory Flexibility Act and Paperwork Reduction Act

    In accordance with the Regulatory Flexibility Act (RFA) [5 U.S.C. 
601-612], AMS examined the economic impact of this rule on small 
entities. The purpose of the RFA is to fit regulatory actions to the 
scale of businesses subject to such action so that small businesses 
will not be unduly or disproportionately burdened. The Small Business 
Administration defines, in 13 CFR part 121, small agricultural 
producers as those having annual receipts of no more than $750,000 and 
small agricultural service firms (importers) as having receipts of no 
more than $7,000,000. An estimated 13,000 importers are subject to the 
rules and regulations issued pursuant to the Cotton Research and 
Promotion Order. Most are considered small entities as defined by the 
Small Business Administration.
    This final rule only affects importers of cotton and cotton-
containing products, and it raises the assessments

[[Page 54081]]

paid by the importers under the Cotton Research and Promotion Order. 
The current assessment on imported cotton is $0.01088 per kilogram, 
which is equivalent to 1.088 cents per kilogram, of imported cotton. 
The new assessment is $.012665 which is equivalent to 1.2665 cents per 
kilogram and was calculated based on the 12-month average of monthly 
weighted average prices received by U.S. cotton farmers. Section 
1205.510, ``Levy of assessments'', provides ``the rate of the 
supplemental assessment on imported cotton will be the same as that 
levied on cotton produced within the United States.'' In addition, 
section 1205.510 provides that the 12-month average of monthly weighted 
average prices received by U.S. farmers will be used as the value of 
imported cotton for the purpose of levying the supplemental assessment 
on imported cotton. AMS used the 2010 price statistics found in 
Agricultural Prices, a publication of the National Agricultural 
Statistics Service of the Department of Agriculture, to calculate the 
average weighted price and convert it to arrive at the new rate of 
1.2665 cents per kilogram as detailed in the Background section.
    Under the Cotton Research and Promotion Program, assessments are 
used by the Cotton Board to finance research and promotion programs 
designed to increase consumer demand for Upland cotton within the 
United States and international markets. In 2010, producer assessments 
totaled $46.5 million and importer assessments totaled $38.2 million. 
According to the Cotton Board, should the volume of cotton products 
imported into the U.S. remain at the same level in 2011, one could 
expect the increased importer assessment to generate approximately 
$10.8 million.
    Importers with line-items appearing on U.S. Customs and Border 
Protection documentation with value of the cotton contained therein 
results of an assessment of two dollars ($2.00) or less will not be 
subject to assessments. In addition, imported cotton and products may 
be exempt from assessment if the cotton content of products is U.S. 
produced, cotton other than Upland, or imported products that are 
eligible to be labeled as 100 percent organic under the National 
Organic Program (7 CFR part 205) and who is not a split operation.
    There are no Federal rules that 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 (PRA) (44 U.S.C. Chapter 35) the information collection 
requirements contained in the regulation that needed to be amended have 
been previously approved by OMB and were assigned control number 0581-
0093. This rule does not result in a change to the information 
collection and recordkeeping requirements previously approved.

List of Subjects in 7 CFR Part 1205

    Advertising, Agricultural research, Cotton, Marketing agreements, 
Reporting and recordkeeping requirements.

    For the reasons set forth in the preamble 7 CFR part 1205 is 
amended as follows:

PART 1205--COTTON RESEARCH AND PROMOTION

0
1. The authority citation for part 1205 continues to read as follows:

    Authority: 7 U.S.C. 2101-2118.


0
2. In Sec.  1205.510, paragraph (b)(2) and the table in paragraph 
(b)(3)(ii) are revised to read as follows:


Sec.  1205.510  Levy of assessments.

* * * * *
    (b) * * *
    (2) The 12-month average of monthly weighted average prices 
received by U.S. farmers will be calculated annually. Such weighted 
average will be used as the value of imported cotton for the purpose of 
levying the supplemental assessment on imported cotton and will be 
expressed in kilograms. The value of imported cotton for the purpose of 
levying this supplemental assessment is 1.2665 cents per kilogram.
    (3) * * *
    (ii) * * *

                         Import Assessment Table
                           [Raw cotton fiber]
------------------------------------------------------------------------
                                                   Conv.
                    HTS No.                        fact.      Cents/kg.
------------------------------------------------------------------------
5201000500....................................            0       1.2665
5201001200....................................            0       1.2665
5201001400....................................            0       1.2665
5201001800....................................            0       1.2665
5201002200....................................            0       1.2665
5201002400....................................            0       1.2665
5201002800....................................            0       1.2665
5201003400....................................            0       1.2665
5201003800....................................            0       1.2665
5204110000....................................       1.0526       1.3332
5204200000....................................       1.0526       1.3332
5208112020....................................       1.0852       1.3744
5208112040....................................       1.0852       1.3744
5208112090....................................       1.0852       1.3744
5208114020....................................       1.0852       1.3744
5208114040....................................       1.0852       1.3744
5208114060....................................       1.0852       1.3744
5208114090....................................       1.0852       1.3744
5208116000....................................       1.0852       1.3744
5208118020....................................       1.0852       1.3744
5208118090....................................       1.0852       1.3744
5208124020....................................       1.0852       1.3744
5208124040....................................       1.0852       1.3744
5208124090....................................       1.0852       1.3744
5208126020....................................       1.0852       1.3744
5208126040....................................       1.0852       1.3744
5208126060....................................       1.0852       1.3744
5208126090....................................       1.0852       1.3744
5208128020....................................       1.0852       1.3744
5208128090....................................       1.0852       1.3744
5208130000....................................       1.0852       1.3744
5208192020....................................       1.0852       1.3744
5208192090....................................       1.0852       1.3744
5208194020....................................       1.0852       1.3744
5208194090....................................       1.0852       1.3744
5208196020....................................       1.0852       1.3744
5208196090....................................       1.0852       1.3744
5208198020....................................       1.0852       1.3744
5208198090....................................       1.0852       1.3744
5208212020....................................       1.0852       1.3744
5208212040....................................       1.0852       1.3744
5208212090....................................       1.0852       1.3744
5208214020....................................       1.0852       1.3744
5208214040....................................       1.0852       1.3744
5208214060....................................       1.0852       1.3744
5208214090....................................       1.0852       1.3744
5208216020....................................       1.0852       1.3744
5208216090....................................       1.0852       1.3744
5208224020....................................       1.0852       1.3744
5208224040....................................       1.0852       1.3744
5208224090....................................       1.0852       1.3744
5208226020....................................       1.0852       1.3744
5208226040....................................       1.0852       1.3744
5208226060....................................       1.0852       1.3744
5208226090....................................       1.0852       1.3744
5208228020....................................       1.0852       1.3744
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5208230000....................................       1.0852       1.3744
5208292020....................................       1.0852       1.3744
5208292090....................................       1.0852       1.3744
5208294020....................................       1.0852       1.3744
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5208296090....................................       1.0852       1.3744
5208298020....................................       1.0852       1.3744
5208298090....................................       1.0852       1.3744
5208312000....................................       1.0852       1.3744
5208314020....................................       1.0852       1.3744
5208314040....................................       1.0852       1.3744
5208314090....................................       1.0852       1.3744
5208316020....................................       1.0852       1.3744
5208316040....................................       1.0852       1.3744
5208316060....................................       1.0852       1.3744
5208316090....................................       1.0852       1.3744
5208318020....................................       1.0852       1.3744
5208318090....................................       1.0852       1.3744
5208321000....................................       1.0852       1.3744
5208323020....................................       1.0852       1.3744
5208323040....................................       1.0852       1.3744
5208323090....................................       1.0852       1.3744
5208324020....................................       1.0852       1.3744
5208324040....................................       1.0852       1.3744
5208324060....................................       1.0852       1.3744
5208324090....................................       1.0852       1.3744
5208325020....................................       1.0852       1.3744
5208325090....................................       1.0852       1.3744
5208330000....................................       1.0852       1.3744

[[Page 54082]]

 
5208392020....................................       1.0852       1.3744
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5208412000....................................       1.0852       1.3744
5208414000....................................       1.0852       1.3744
5208416000....................................       1.0852       1.3744
5208418000....................................       1.0852       1.3744
5208421000....................................       1.0852       1.3744
5208423000....................................       1.0852       1.3744
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5208425000....................................       1.0852       1.3744
5208430000....................................       1.0852       1.3744
5208492000....................................       1.0852       1.3744
5208494010....................................       1.0852       1.3744
5208494020....................................       1.0852       1.3744
5208494090....................................       1.0852       1.3744
5208496010....................................       1.0852       1.3744
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5208592015....................................       1.0852       1.3744
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5208596090....................................       1.0852       1.3744
5208598020....................................       1.0852       1.3744
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------------------------------------------------------------------------

* * * * *

    Authority: 7 U.S.C. 2101-2118.

    Dated: August 22, 2011.
David R. Shipman,
Acting Administrator, Agricultural Marketing Service.
[FR Doc. 2011-22159 Filed 8-30-11; 8:45 am]
BILLING CODE 3410-02-P