[Federal Register Volume 85, Number 100 (Friday, May 22, 2020)]
[Notices]
[Pages 31141-31144]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2020-11070]


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DEPARTMENT OF COMMERCE

International Trade Administration

[C-570-115]


Certain Glass Containers From the People's Republic of China: 
Final Affirmative Countervailing Duty Determination

AGENCY: Enforcement and Compliance, International Trade Administration, 
Department of Commerce.

SUMMARY: The Department of Commerce (Commerce) determines that 
countervailable subsidies are being provided to producers and exporters 
of certain glass containers (glass containers) from the People's 
Republic of China (China).

DATES: Applicable May 22, 2020.

FOR FURTHER INFORMATION CONTACT: Maliha Khan or Stephen Bailey, AD/CVD 
Operations, Office IV, Enforcement and Compliance, International Trade 
Administration, U.S. Department of Commerce, 1401 Constitution Avenue 
NW, Washington, DC 20230; telephone: (202) 482-0895 or (202) 482-0193, 
respectively.

SUPPLEMENTARY INFORMATION: 

Background

    On March 2, 2020, Commerce published the Preliminary Determination 
of this investigation.\1\ The petitioner is the American Glass 
Packaging Coalition. The mandatory respondents in this investigation 
are Guangdong Huaxing Glass Co. Ltd. (Guangdong Huaxing) and Qixia 
Changyu Glass Co. Ltd. (Qixia Changyu).
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    \1\ See Certain Glass Containers from the People's Republic of 
China: Preliminary Affirmative Countervailing Duty Determination, 85 
FR 12256 (March 2, 2020) (Preliminary Determination) and 
accompanying Preliminary Decision Memorandum.
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    A summary of the events that occurred since Commerce published the 
Preliminary Determination, as well as a full discussion of the issues 
raised by parties for this final determination, are discussed in the 
Issues and Decision Memorandum.\2\ The Issues and Decision Memorandum 
is a public document and is on file electronically via Enforcement and 
Compliance's Antidumping and Countervailing Duty Centralized Electronic 
Service System (ACCESS). ACCESS is available to registered users at 
http://access.trade.gov. In addition, a complete version of the Issues 
and Decision Memorandum can be accessed directly at http://enforcement.trade.gov/frn/. The signed and electronic versions of the 
Issues and Decision Memorandum are identical in content.
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    \2\ See Memorandum, ``Issues and Decision Memorandum for the 
Final Determination in the Countervailing Duty Investigation of 
Certain Glass Containers from the People's Republic of China,'' 
dated concurrently, and hereby adopted by, this notice (Issues and 
Decision Memorandum).
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Period of Investigation

    The period of investigation (POI) is from January 1, 2018 through 
December 31, 2018.

Scope of the Investigation

    The products covered by this investigation are glass containers 
from China. For a complete description of the scope of this 
investigation, see Appendix I.

Scope Comments

    During the course of this investigation and the concurrent less 
than fair value (LTFV) investigation of certain glass containers from 
China, Commerce received scope comments from interested parties. On 
April 3, 2020, Commerce issued a Preliminary Scope

[[Page 31142]]

Decision Memorandum.\3\ Several interested parties submitted case and 
rebuttal briefs concerning the scope of this investigation. For a 
summary of the product coverage comments and rebuttal comments 
submitted to the record for this final determination, and accompanying 
discussion and analysis of all comments timely received, see the Final 
Scope Decision Memorandum.\4\ Based on the comments received, Commerce 
is not modifying the scope language as it appeared in the Preliminary 
Determination. The scope in Appendix I remains unchanged from that 
which appeared in the Preliminary Determination.
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    \3\ See Memorandum, ``Certain Glass Containers from the People's 
Republic of China: Preliminary Scope Decision Memorandum,'' dated 
April 3, 2020.
    \4\ See Memorandum, ``Certain Glass Containers from the People's 
Republic of China: Final Scope Decision Memorandum,'' dated 
concurrently with this memorandum.
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Analysis of Subsidy Programs and Comments Received

    All issues raised in the case and rebuttal briefs by parties in 
this investigation, other than those issues related to scope, are 
discussed in the Issues and Decision Memorandum. A list of the issues 
raised by parties and addressed in Commerce's Issues and Decision 
Memorandum is attached at Appendix II.

Methodology

    Commerce is conducting this investigation in accordance with 
section 701 of the Tariff Act of 1930, as amended (the Act). For each 
of the subsidy programs found countervailable, Commerce determines that 
there is a subsidy, i.e., a financial contribution by an ``authority'' 
that gives rise to a benefit to the recipient, and that the subsidy is 
specific.\5\ Following the Preliminary Determination, and as explained 
in a letter to all interested parties dated March 16, 2020, during the 
course of this investigation, a Level 4 Travel Advisory was imposed for 
all of China, preventing Commerce personnel from traveling to China to 
conduct verification.\6\ Pursuant to section 776(a)(4)(D) of the Act, 
in situations where information has been provided but the information 
cannot be verified, Commerce will use the facts otherwise available in 
reaching the applicable determination. Accordingly, and as Commerce 
explained, because Commerce was unable to proceed to verification for 
reasons beyond its control, Commerce has relied on the information 
submitted on the record, which it relied on in making its Preliminary 
Determination, as facts available in making this final determination, 
pursuant to section 776(a)(2)(D) of the Act.\7\ In addition, in certain 
circumstances, Commerce has also resorted to facts available for 
certain aspects of its analysis, pursuant to section 776(a)(1), and 
(a)(2)(A)-(C) of the Act.
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    \5\ See sections 771(5)(B) and (D) of the Act regarding 
financial contribution; section 771(5)(E) of the Act regarding 
benefit; and section 771(5A) of the Act regarding specificity.
    \6\ See Memorandum, ``Verification, New Subsidy and 
Creditworthiness Allegations,'' dated March 16, 2020.
    \7\ Id.; see also Issues and Decision Memorandum.
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    Furthermore, at the outset of this investigation, several companies 
failed to respond to Commerce's quantity and value (Q&V) 
questionnaire.\8\ Moreover, the GOC failed to cooperate to the best of 
its ability in certain respects in providing information necessary to 
Commerce's analysis in this investigation. Because Commerce finds that 
certain respondents did not act to the best of their ability to respond 
to Commerce's requests for information, it drew an adverse inference 
where appropriate in selecting from among the facts otherwise 
available, in accordance with section 776(b) of the Act. For a 
description of the methodology underlying our final determination, see 
the Issues and Decision Memorandum.
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    \8\ The companies that failed to properly respond to Commerce's 
quantity and value questionnaire were: Cangzhou Roter Faden Glass 
Products, Choicest International, Guangzhou Idealpak Business, 
Haimen Sanlong Glass Products, Hebei Anyu Glass Products Co. Ltd., 
Hebei Zhengi Glass Products Co. Ltd., Huazhong Glass Co. Ltd. 
(Changxing), Iboya Glass, Jiangmen Zhong'an Import and Export, 
Jining Baolin Glass Product Co. Ltd., Kisco Trading Shanghai, 
Lianyungang Chinamex Trade, Linlang (Shanghai) Glass Products Co. 
Ltd., Ningbo Vifa International Trade Co., Qingdao Auro Pack, 
Rockwood & Hines (Jiaxing) Co. Ltd., Shandong Hongda Glassware Co. 
Ltd., Shandong Mounttai Sheng Li Yuan GLA, Shandong Wensheng Glass 
Technology Co. Ltd., ShangHai Misa Glass Co. Ltd., Shanghai Vista 
Packaging, Suzhou Yunbo Glass, Value Chain Glass Ltd. (VCG), Wheaton 
Glass, Wuhan Vanjoin Packaging Co. Ltd., Xiamen Cheer Imp & Exp Co. 
Ltd., Xuzhou Dahua Glass Products Co. Ltd., Xuzhou Fangbao 
Glassware, Xuzhou Huajing Glass Products, Xuzhou Livlong Glass 
Products Co. Ltd., Xuzhou Pretty Glass Products, Xuzhou Yanjia 
Glassware, Yantai NBC Glass Packaging Co. Ltd., Yuncheng Jinpeng 
Glass Co. Ltd., Zheijiang Industrial Minerals Foreign Trade Co Ltd., 
Zibo CY International Trade Co. Ltd., Zibo Regal Glassware and Zibo 
Rongdian Glass Co. Ltd. (collectively, the 38 non-responsive 
companies). We refer to these companies, collectively, as the ``non-
responsive companies.''
    See sections 776(a) and (b) of the Act.
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Changes Since the Preliminary Determination

    Based on our analysis of the comments received from parties, we 
made certain changes to the mandatory respondents' subsidy rate 
calculations set forth in the Preliminary Determination. For a 
discussion of these changes, see the Issues and Decision Memorandum.

All-Others Rate

    In accordance with section 705(c)(5)(A) of the Act, Commerce shall 
determine an estimated all-others rate for companies not individually 
examined. Generally, under section 705(c)(5)(A)(i) of the Act, this 
rate shall be an amount equal to the weighted average of the estimated 
subsidy rates established for those companies individually examined, 
excluding any zero and de minimis rates and any rates based entirely 
under section 776 of the Act. However, section 705(c)(5)(A)(ii) of the 
Act provides that if the countervailable subsidy rates established for 
all companies individually examined are zero or de minimis rates, or 
are determined entirely under section 776 of the Act, then Commerce may 
use ``any reasonable method'' to establish an all-others rate, 
``including averaging the weighted-average countervailable subsidy 
rates determined for the exporters and producers individually 
investigated.''
    As explained above, all of the countervailable subsidy rates for 
this final determination are based on the facts otherwise available. As 
explained above, the mandatory respondents in this investigation, 
Guangdong Huaxing and Qixia Changyu, are receiving rates based entirely 
on the facts available. In the specific circumstances of this case, 
because we were unable to verify Guangdong Huaxing and Qixia Changyu 
because of the Level 4 Travel Advisory, we find that a reasonable 
method to determine the all-others rate under section 705(c)(5)(A)(ii) 
of the Act here is to apply a simple average of Guangdong Huaxing's and 
Qixia Changyu's individual estimated subsidy rates, using each 
company's values for the merchandise under consideration because 
publicly ranged sales data was unavailable.\9\
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    \9\ With two respondents under examination, Commerce normally 
calculates (A) a weighted-average of the estimated subsidy rates 
calculated for the examined respondents; (B) a simple average of the 
estimated subsidy rates calculated for the examined respondents; and 
(C) a weighted-average of the estimated subsidy rates calculated for 
the examined respondents using each company's publicly-ranged U.S. 
sale quantities for the merchandise under consideration. Commerce 
then compares (B) and (C) to (A) and selects the rate closest to (A) 
as the most appropriate rate for all other producers and exporters. 
See, e.g., Ball Bearings and Parts Thereof from France, Germany, 
Italy, Japan, and the United Kingdom: Final Results of Antidumping 
Duty Administrative Reviews, Final Results of Changed-Circumstances 
Review, and Revocation of an Order in Part, 75 FR 53661, 53663 
(September 1, 2010). As complete publicly ranged sales data was 
unavailable, Commerce based the all-others rate on a simple average 
of the mandatory respondents' rates. For a complete analysis of the 
data, please see the All-Others' Rate Calculation Memorandum.

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[[Page 31143]]

Final Determination

    In accordance with section 705(c)(1)(B)(i)(I) of the Act, we 
established individual estimated countervailable subsidy rates, as 
follows:

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                                                                 Subsidy
                            Company                               rate
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Guangdong Huaxing Glass Co., Ltd.\10\.........................     27.10
Qixia Changyu Glass Co., Ltd..................................     25.46
Cangzhou Roter Faden Glass Products...........................    320.53
Choicest International........................................    320.53
Guangzhou Idealpak Business...................................    320.53
Haimen Sanlong Glass Products.................................    320.53
Hebei Anyu Glass Products Co. Ltd.............................    320.53
Hebei Zhengi Glass Products Co. Ltd...........................    320.53
Huazhong Glass Co. Ltd. (Changxing)...........................    320.53
Iboya Glass...................................................    320.53
Jiangmen Zhong'an Import and Export...........................    320.53
Jining Baolin Glass Product Co. Ltd...........................    320.53
Kisco Trading Shanghai........................................    320.53
Lianyungang Chinamex Trade....................................    320.53
Linlang (Shanghai) Glass Products Co. Ltd.....................    320.53
Ningbo Vifa International Trade Co............................    320.53
Qingdao Auro Pack.............................................    320.53
Rockwood & Hines (Jiaxing) Co. Ltd............................    320.53
Shandong Hongda Glassware Co. Ltd.............................    320.53
Shandong Mounttai Sheng Li Yuan GLA...........................    320.53
Shandong Wensheng Glass Technology Co. Ltd....................    320.53
ShangHai Misa Glass Co. Ltd...................................    320.53
Shanghai Vista Packaging......................................    320.53
Suzhou Yunbo Glass............................................    320.53
Value Chain Glass Ltd. (VCG)..................................    320.53
Wheaton Glass.................................................    320.53
Wuhan Vanjoin Packaging Co. Ltd...............................    320.53
Xiamen Cheer Imp & Exp Co. Ltd................................    320.53
Xuzhou Dahua Glass Products Co. Ltd...........................    320.53
Xuzhou Fangbao Glassware......................................    320.53
Xuzhou Huajing Glass Products.................................    320.53
Xuzhou Livlong Glass Products Co. Ltd.........................    320.53
Xuzhou Pretty Glass Products..................................    320.53
Xuzhou Yanjia Glassware.......................................    320.53
Yantai NBC Glass Packaging Co. Ltd............................    320.53
Yuncheng Jinpeng Glass Co. Ltd................................    320.53
Zheijiang Industrial Minerals Foreign Trade Co Ltd............    320.53
Zibo CY International Trade Co. Ltd...........................    320.53
Zibo Regal Glassware..........................................    320.53
Zibo Rongdian Glass Co. Ltd...................................    320.53
All Others....................................................     26.28
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Continuation of Suspension of Liquidation
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    \10\ Guangdong Huaxing reported the following cross-owned 
companies, which also will receive Guangdong Huaxing's subsidy rate: 
Foshan Huaxing Glass Co. Ltd., Fujian Huaxing Glass Co. Ltd., Daye 
Huaxing Glass Co. Ltd., Hunan Huaxing Glass Co. Ltd., Guizhou 
Huaxing Glass Co. Ltd., Zhejiang Huaxing Glass Co. Ltd., Foshan City 
San Shui Hua Xing Glass Co. Ltd., Fujian Changcheng Huaxing Glass 
Co. Ltd., Jiangsu Huaxing Glass Co. Ltd., Hebei Huaxing Glass Co. 
Ltd., Henan Huaxing Glass Co Ltd., and Xinjiang Huaxing Glass Co. 
Ltd.
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    As a result of our Preliminary Determination, and pursuant to 
sections 703(d)(1)(B) and (d)(2) of the Act, Commerce instructed U.S. 
Customs and Border Protection (CBP) to suspend liquidation of entries 
of subject merchandise under consideration from China that were entered 
or withdrawn from warehouse, for consumption on or after March 2, 2020, 
the date of publication of the Preliminary Determination in the Federal 
Register.
    In accordance with section 705(c)(1)(B)(ii) of the Act, we are 
directing CBP to continue to suspend liquidation of all imports of the 
subject merchandise from China that are entered, or withdrawn from 
warehouse, for consumption on or after the date of publication of this 
notice in the Federal Register. The suspension of liquidation 
instructions will remain in effect until further notice. We are also 
directing CBP to collect cash deposit of estimated countervailing 
duties at the rates identified above.
    If the U.S. International Trade Commission (ITC) issues a final 
affirmative injury determination, we will issue a CVD order and require 
a cash deposit of estimated countervailing duties for such entries of 
subject merchandise in the amounts indicated above, in accordance with 
section 706(a) of the Act. If the ITC determines that material injury, 
or threat of material injury, does not exist, this proceeding will be 
terminated, and all estimated duties deposited or securities posted as 
a result of the suspension of liquidation will be refunded or canceled.

Disclosure

    Commerce intends to disclose its calculations and analysis 
performed in this proceeding to interested parties within five days of 
its public announcement, or if there is no public announcement, within 
five days of the date of this notice in accordance with 19 CFR 
351.224(b).

ITC Notification

    In accordance with section 705(d) of the Act, Commerce will notify 
the ITC of its final affirmative determination that countervailable 
subsidies are being provided to producers and exporters of certain 
glass containers from China. As Commerce's final determination is 
affirmative, in accordance with section 705(b) of the Act, the ITC will 
determine, within 45 days, whether the domestic industry in the United 
States is materially injured, or threatened with material injury, by 
reason of imports of certain glass containers from China, or sales (or 
the likelihood of sales) for importation of certain glass containers 
from China. In addition, we are making available to the ITC all non-
privileged and nonproprietary information related to this 
investigation. We will allow the ITC access to all privileged and 
business proprietary information in our files, provided the ITC 
confirms that it will not disclose such information, either publicly or 
under an administrative protective order (APO), without the written 
consent of the Assistant Secretary for Enforcement and Compliance.

Notification Regarding APO

    In the event that the ITC issues a final negative injury 
determination, this notice will serve as the only reminder to parties 
subject to the APO of their responsibility concerning the destruction 
of proprietary information disclosed under APO in accordance with 19 
CFR 351.305(a)(3). Timely written notification of the return/
destruction of APO materials or conversion to judicial protective order 
is hereby requested. Failure to comply with the regulations and terms 
of an APO is a violation which is subject to sanction.

Notification to Interested Parties

    This determination is issued and published pursuant to sections 
705(d) and 777(i) of the Act and 19 CFR 351.210(c).

    Dated: May 11, 2020.
Jeffrey I. Kessler,
Assistant Secretary for Enforcement and Compliance.

Appendix I

Scope of the Investigation

    The merchandise covered by this investigation is certain glass 
containers with a nominal capacity of 0.059 liters (2.0 fluid 
ounces) up to and including 4.0 liters (135.256 fluid ounces) and an 
opening or mouth with a nominal outer diameter of 14 millimeters up 
to and including 120 millimeters. The scope includes glass jars, 
bottles, flasks and similar containers; with or

[[Page 31144]]

without their closures; whether clear or colored; and with or 
without design or functional enhancements (including, but not 
limited to, handles, embossing, labeling, or etching).
    Excluded from the scope of the investigation are: (1) Glass 
containers made of borosilicate glass, meeting United States 
Pharmacopeia requirements for Type 1 pharmaceutical containers; (2) 
glass containers without ``mold seams,'' ``joint marks,'' or 
``parting lines;'' and (3) glass containers without a ``finish'' 
(i.e., the section of a container at the opening including the lip 
and ring or collar, threaded or otherwise compatible with a type of 
closure to seal the container's contents, including but not limited 
to a lid, cap, or cork).
    Glass containers subject to this investigation are specified 
within the Harmonized Tariff Schedule of the United States (HTSUS) 
under subheadings 7010.90.5005, 7010.90.5009, 7010.90.5015, 
7010.90.5019, 7010.90.5025, 7010.90.5029, 7010.90.5035, 
7010.90.5039, 7010.90.5045, 7010.90.5049, and 7010.90.5055. The 
HTSUS subheadings are provided for convenience and customs purposes 
only. The written description of the scope of the investigation is 
dispositive.

Appendix II

List of Topics Discussed in the Issues and Decision Memorandum

I. Summary
II. Background
III. Scope of the Investigation
IV. Scope Comments
V. Use of Facts Otherwise Available and Adverse Inferences
VI. Subsidies Valuation Information
VII. Analysis of Programs
VIII. Analysis of Comments
IX. Recommendation

[FR Doc. 2020-11070 Filed 5-21-20; 8:45 am]
 BILLING CODE 3510-DS-P