[Federal Register Volume 85, Number 21 (Friday, January 31, 2020)]
[Notices]
[Pages 5612-5615]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-01981]


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DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

[Docket No. APHIS-2019-0054]


Import Requirements for the Importation of Unshu Oranges From 
Japan Into the United States

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Notice.

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SUMMARY: We are advising the public of our decision to revise the 
import requirements for the importation of fresh Unshu oranges from 
Japan into the United States and to allow Unshu oranges from the island 
of Kyushu to be imported into any port of entry in the United States, 
excluding territories. We are also removing the fumigation requirement 
for Unshu oranges from the islands of Honshu and Shikoku. Based on the 
findings of our commodity import evaluations, which we made available 
to the public to review and comment through a previous notice, we have 
concluded that the application of one or more designated phytosanitary 
measures will be sufficient to mitigate the risks of introducing or 
disseminating plant pests or noxious weeds via the importation of fresh 
Unshu oranges into the United States from Japan, including the island 
of Kyushu.

DATES: The articles covered by this notice may be authorized for 
importation after January 31, 2020.

FOR FURTHER INFORMATION CONTACT: Mr. Tony Roman, Senior Regulatory 
Policy Specialist, RCC, IRM, PHP, PPQ, APHIS, 4700 River Road, Unit 
133, Riverdale, MD 20737-1236; (301) 851-2242.

SUPPLEMENTARY INFORMATION:  Under the regulations in ``Subpart L--
Fruits and Vegetables'' (7 CFR 319.56-1 through 319.56-12, referred to 
below as the regulations), the Animal and Plant Health Inspection 
Service (APHIS) prohibits or restricts the importation of fruits and 
vegetables into the United States from certain parts of the world to 
prevent plant pests from being introduced into and spread within the 
United States.
    Section 319.56-4 of the regulations contains a notice-based process 
based on established performance standards for authorizing the 
importation of fruits and vegetables. Paragraph (c) of that section 
provides that the name and origin of all fruits and vegetables 
authorized importation into the United States, as well as the 
requirements for their importation, are listed on the internet in 
APHIS' Fruits and Vegetables Import Requirements database, or FAVIR 
(https://epermits.aphis.usda.gov/manual). It also provides that, if the 
Administrator of APHIS determines that any of the phytosanitary 
measures required for the importation of a particular fruit or 
vegetable are no longer necessary to reasonably mitigate the plant pest 
risk posed by the fruit or vegetable, APHIS will publish a notice in 
the Federal Register making its pest risk analysis and determination 
available for public comment.
    In accordance with that process, we published a notice \1\ in the 
Federal Register on September 23, 2019 (84 FR 49707-49708, Docket No. 
APHIS-2019-0054) announcing the availability, for review and comment, 
of commodity import evaluation documents (CIEDs) prepared relative to 
revising the conditions for the importation of fresh Unshu oranges from 
Japan into the United States and allowing Unshu oranges from Kyushu to 
be imported into any port of entry in the United States (excluding 
territories). The notice proposed to remove the fumigation requirement 
for the importation of Unshu oranges to the United States from areas of 
production on the islands of Honshu and Shikoku in Japan and to expand 
the number of ports of entry authorized for importation of Unshu 
oranges from the island of Kyushu.
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    \1\ To view the notice, supporting documents, and the comments 
that we received, go to http://www.regulations.gov/#!docketDetail;D=APHIS-2019-0054.
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    We solicited comments on the CIEDs for 60 days ending on November 
22, 2019. We received six comments by that date. Two of these comments 
were sent by representatives of State government agricultural agencies, 
with the remainder submitted by the public. The comments are discussed 
below.

General Comments

    A commenter stated that the United States should focus more on 
addressing domestic citrus challenges, particularly with respect to 
Asian citrus psyllid.
    Under its obligations as a cosignatory to the International Plant 
Protection Convention, APHIS is required to base its import 
requirements on an

[[Page 5613]]

assessment of plant pest risk; for the reasons stated in the CIEDs, the 
initial notice, and this notice, we have determined that revisions to 
the import requirements for Unshu oranges from Japan are warranted to 
have these requirements be commensurate with respect to risk.
    That being said, as a means to address domestic citrus challenges, 
APHIS has developed the Citrus Health Response Program (CHRP). The CHRP 
provides phytosanitary guidelines for nursery stock, fruit inspection, 
treatment, and certification. The CHRP also works closely with 
regulatory officials from citrus-producing States to identify and 
implement appropriate survey, diagnostic, and mitigation measures to 
reduce the spread of citrus canker, citrus greening, and other citrus 
diseases.
    A commenter asked for assurances that citrus greening will not be 
transported with Unshu oranges from Japan into Hawaii under the 
proposed change to the import requirements.
    Commercially grown and packaged fruit is an epidemiologically 
insignificant pathway for the transmission of citrus greening. 
Moreover, as part of the packinghouse procedures that will be detailed 
in an operational workplan entered into by APHIS and the national plant 
protection organization of Japan, Unshu oranges will be washed with 
sodium hypochlorite solution to mitigate the risk of Asian citrus 
psyllid, the primary vector of citrus greening.
    The commenter added that if APHIS approves these new import 
requirements, then Hawaiian citrus growers should be allowed to import 
scion and propagative material to compete with imported fruit on a 
level playing field.
    We are making no changes in response to the commenter. Under the 
Plant Protection Act (7 U.S.C. 7701 et seq.), we have the authority to 
prohibit or restrict the importation of plants and plant products only 
when necessary to prevent the introduction into or dissemination of 
plant pests or noxious weeds within the United States. Accordingly, any 
decisions made by APHIS regarding the movement of propagative materials 
into Hawaii would be based on phytosanitary safety considerations and 
not on economic effects.
    Another commenter asked if APHIS had conducted research on new 
pests of concern, noting that the Unshu orange regulations are over 17 
years old and that new actionable pests not known to occur in the 
United States or Hawaii may have emerged since the initial assessment.
    No new actionable pests have been found in Japan since APHIS' 
initial assessment for Unshu orange from Japan. APHIS has maintained 
pest interception data on Unshu orange from Japan from 1984 to the 
present. The national plant protection organization (NPPO) of Japan 
also maintains a working relationship with APHIS to keep us informed of 
any actionable pest activity.
    A commenter asked us to confirm that the regulation suggests that 
the same applications and risks used to prevent spread of citrus canker 
in the United States also apply to Japan.
    We can confirm that, with respect to importation of citrus from 
Japan and other countries, APHIS applies pest mitigation measures that 
are equivalent to those mitigations used for movement of citrus within 
the United States.
    Citing pest risks to domestic citrus production, one commenter 
opposed ending the use of methyl bromide fumigation on Unshu oranges 
from Japan but provided no details. Another commenter asked what types 
of pesticides Japan plans to use to replace methyl bromide.
    We have determined that methyl bromide fumigation is no longer 
necessary as a pest mitigation measure for importation of Unshu oranges 
from Japan into the United States. No pesticides are intended to be 
used as a replacement for methyl bromide. The only phytosanitary 
treatment that the Unshu oranges will receive is washing at the 
packinghouse with a solution of sodium hypochlorite. If pests are found 
in the future during phytosanitary inspections in Japan or at ports of 
entry into the United States, the shipments will be treated in 
accordance with 7 CFR part 305.
    A commenter asked that APHIS clarify in Sec.  319.28(b) all areas 
of Japan that are allowed to ship Unshu oranges and suggested listing 
the prefectures for Kyushu included among these areas. The commenter 
also asked APHIS to clarify in Sec.  319.28(b) that any territorial 
destinations are not included for import, noting that the notice is 
confusing and Guam was not included. The commenter also noted that the 
docket background clearly states ``ports of entry in the United States 
(excluding territories)''.
    The commenter is referring to a subpart that was removed from the 
regulations by a final rule published in the Federal Register on 
September 14, 2018 (83 FR 46627-46639, Docket No. APHIS-2010-0084). As 
a result of that rule, import requirements for Unshu oranges from Japan 
are now solely found in FAVIR. The restriction regarding importing 
Unshu oranges from Japan to U.S. territories in FAVIR is unambiguous.
    A commenter stated that the current rule says ``Unshu oranges from 
Kyushu Island, Japan (Prefectures of Fukuoka, Kumanmoto, Nagasaki, and 
Saga only) that have not been fumigated in accordance with part 305 of 
this chapter may not be imported into American Samoa, Arizona, 
California, Florida, Hawaii, Louisiana, the Northern Mariana Islands, 
Puerto Rico, Texas, or the U.S. Virgin Islands.'' The commenter stated 
that it was only logical to mention ``not been fumigated'' if it was 
also true that Unshu would be enterable to citrus growing States if 
they were fumigated. Otherwise, the rule would have simply stated 
``Unshu oranges are prohibited from the Kyushu Prefectures of Fukuoka, 
Kumanmoto, Nagasaki, and Saga into citrus growing States Arizona, 
California, Florida, Hawaii, Louisiana, or Texas.''
    We are making no changes in response to the commenter. We are 
unclear as to the commenter's reference to the ``current rule.'' The 
prohibitions mentioned by the commenter are actually derived from an 
earlier version of 7 CFR part 319. The commenter seems to be stating 
that the import restriction in this outdated version could be reworded 
to communicate the same point in fewer words. As noted above, FAVIR 
contains current import requirements. It indicates that oranges 
originating in Kyushu are only admissible into States other than 
Arizona, California, Florida, Hawaii, and Texas, and fumigation is not 
required. It also indicates that Unshu oranges are prohibited entry 
into the territories of American Samoa, Northern Mariana Islands, 
Puerto Rico, and the U.S. Virgin Islands.

Comments Related to the CIEDs

Bactrocera Tsuneonis

    A commenter suggested that APHIS confirm continuance of the 
Bactrocera tsuneonis trapping protocol suspension of shipping from 
Kyushu Island until negative trapping shows the problem has been 
resolved. The commenter added that longstanding trapping data does not 
in itself justify removal of the trapping safeguards and suggested that 
the current trapping standards could be optional if B. tsuneonis was no 
longer known to occur based on standard APHIS criteria for generational 
eradication for the species, or if other efficacious practices replace 
past ones

[[Page 5614]]

and are required for all exported Unshu oranges.
    We can confirm that trapping will continue for B. tsuneonis in 
Japan even after removal of the mandatory fumigation requirement.
    A commenter expressed concern about the risk that B. tsuneonis 
poses to California's citrus industry because a male trapping lure does 
not exist, making it necessary to use protein-based lures, which are 
less efficacious. The commenter added that standard culling and packing 
procedures are not likely to remove all infested fruit because fruit 
fly larvae are internal feeders. Another commenter agreed, stating that 
allowing shipments of Unshu oranges to enter the United States without 
undertaking mitigation measures for B. tsuneonis could devastate the 
Florida citrus industry.
    Since 2016, Japan has been conducting trapping on Kyushu Island in 
accordance with these trapping protocols with no interceptions of B. 
tsuneonis to date. We acknowledge that Japan has been trapping for B. 
tsuneonis with a protein-based trap, and also agree that a male 
trapping lure for B. tsuneonis would be more efficient than a protein-
based trap, but disagree that protein-based traps are ineffective at 
detecting populations of B. tsuneonis. In the absence of a species-
specific male lure, protein baits may be used reliably to trap for 
fruit flies; the absence of the lure is accounted for by adjusting the 
trapping protocol itself, such as by increasing trap density and 
servicing. This approach is evidenced in the trapping protocols used 
extensively throughout Central and South America for Anastrepha spp.
    The same commenter added that while fruit fly detection trapping is 
done in Japan with APHIS-approved methods, we provided no trapping 
details with the proposal, nor did we provide information on the 
planned response if fruit flies are detected.
    Under an operational workplan entered into by the NPPO of Japan and 
APHIS, trapping protocols and other pest mitigation are agreed upon and 
documented in detail. In the event of an infestation, shipment of 
consignments would be halted from the infested areas until the 
infestation is eradicated and APHIS determines that risk mitigations 
for resumption of shipments will be adequate.

External Feeders

    A commenter noted that the small number of pest interceptions does 
not seem like a solid argument against the risk posed by external pests 
on Unshu oranges. As the economic assessment indicates, the commenter 
opined, small amounts of this fruit were exported to the United States, 
so it would be expected that the number of interceptions would also be 
small.
    We disagree with the commenter's premise that the amount of Unshu 
orange imported into the United States from Japan is proportional to 
the number of pest interceptions. While the volume of Unshu oranges 
imported from Japan into the United States has decreased in recent 
years, import volume has not always been as low. Additionally, APHIS 
has only detected plant pests on Unshu oranges from Japan 45 times 
since 1984, regardless of volume of imports in a particular year. This 
indicates the efficacy of mitigations agreed to between APHIS and the 
NPPO of Japan, and we do not expect this to change substantially if 
shipments of fruit are increased. Nonetheless, APHIS does not expect 
shipments of Unshu orange from Japan to increase significantly as a 
result of this change to the import requirements.
    A commenter agreed that external pests targeted by fumigation could 
be detected during inspection but stated that inspection should not be 
the sole mitigation measure. On this point, the commenter noted that 
post-harvest washing and waxing can reduce the risk of external pests 
but that APHIS failed to provide information regarding post-harvest 
handling procedures of Unshu oranges.
    As part of the packinghouse procedures, Unshu oranges will be 
dipped and washed with approved disinfectants to mitigate for surface 
feeders. Fruit will also be subject to a phytosanitary inspection 
before entering the United States.
    A commenter stated that it is not possible to assess the risk posed 
by unidentified mealybugs and suggested that further identification is 
needed to assess species-specific risk.
    If mealybugs are detected on Unshu oranges destined for importation 
into the United States during a phytosanitary inspection, they are 
subject to fumigation, regardless of species. Identification of species 
is not required for this mitigation.
    A commenter disagreed with discontinuing use of methyl bromide for 
Unshu oranges from the islands of Honshu or Shikoku because of concerns 
over two species of mites, Eotetranychus asiaticus and Eotetranychus 
kankitus, and a fruit fly, Bactrocera tsuneonis. The commenter noted 
that, despite our statement that these pests are surface feeders and 
could be detected during phytosanitary inspections, the small mites 
could easily be missed in a visual inspection.
    We have determined that a visual inspection, combined with other 
requirements detailed in the operational workplan, including 
packinghouse washing with a solution of sodium hypochlorite, 
sufficiently mitigates mites and other surface feeders. Additionally, 
as we discussed earlier in this document, Japan has not detected B. 
tsuneonis since 2016. Any detections of mites or fruit flies on Unshu 
oranges from Japan are treated in accordance with 7 CFR part 305.
    A commenter questioned whether mitigations were necessary for 
mites, as they are already addressed by a fruit scrubbing and washing 
requirement in a 2013 risk analysis. The analysis includes packinghouse 
washing and scrubbing procedures, disinfection, chemical treatment, and 
fruit waxing. The commenter asked if these protocols were required or 
suggested by APHIS.
    Post-harvest/packinghouse protocols, which include washing and 
disinfection of fruit to mitigate mites and other surface feeders, will 
be included in the operational workplan.
    Therefore, in accordance with Sec.  319.56-4(c)(4)(ii) of the 
regulations, we are announcing our decision to revise the requirements 
for the importation of Unshu oranges from Japan by removing the methyl 
bromide requirement for Unshu oranges from the islands of Honshu and 
Shikoku and allowing Unshu oranges from the island of Kyushu to be 
imported into any port of entry in the United States, excluding 
territories. The revised conditions are as follows:
     The oranges must be commercial consignments. In order to 
be considered commercially produced, the oranges must be washed and 
disinfected in accordance with an operational workplan agreed to by 
APHIS and the NPPO of Japan.
     Each consignment must be accompanied by a phytosanitary 
certificate with an additional declaration that the oranges were packed 
and produced in accordance with the requirements authorized under 7 CFR 
319.56-4.
     Each consignment must be free of leaves, twigs, and other 
plant parts, except for stems that are less than 1 inch long and 
attached to the fruit.
     Shipments are prohibited entry into any U.S. territory.
     Each shipment is subject to inspection at the port of 
entry into the United States.
     Each shipment must be imported under an import permit 
issued by APHIS.

[[Page 5615]]

    These revised conditions will be listed in the Fruits and 
Vegetables Import Requirements database (available at http://www.aphis.usda.gov/favir). In addition to these specific measures, 
fresh Unshu oranges from Japan will be subject to the general 
requirements listed in Sec.  319.56-3 that are applicable to the 
importation of all fruits and vegetables.

Paperwork Reduction Act

    In accordance with Section 3507(d) of the Paperwork Reduction Act 
of 1995 (44 U.S.C. 3501 et seq.), the information collection activities 
included in this notice are approved by the Office of Management and 
Budget under control number 0579-0049.

E-Government Act Compliance

    The Animal and Plant Health Inspection Service is committed to 
compliance with the E-Government Act to promote the use of the internet 
and other information technologies, to provide increased opportunities 
for citizen access to Government information and services, and for 
other purposes. For information pertinent to E-Government Act 
compliance related to this notice, please contact Mr. Joseph Moxey, 
APHIS' Information Collection Coordinator, at (301) 851-2483.

Congressional Review Act

    Pursuant to the Congressional Review Act (5 U.S.C. 801 et seq.), 
the Office of Information and Regulatory Affairs designated this action 
as not a major rule, as defined by 5 U.S.C. 804(2).

    Authority: 7 U.S.C. 1633, 7701-7772, and 7781-7786; 21 U.S.C. 
136 and 136a; 7 CFR 2.22, 2.80, and 371.3.

    Done in Washington, DC, this 29th day of January 2020.
Michael Watson,
Acting Administrator, Animal and Plant Health Inspection Service.
[FR Doc. 2020-01981 Filed 1-30-20; 8:45 am]
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