[Federal Register Volume 86, Number 203 (Monday, October 25, 2021)]
[Notices]
[Pages 58871-58874]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-23181]


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DEPARTMENT OF COMMERCE

International Trade Administration

[A-570-979]


Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled 
Into Modules, From the People's Republic of China: Final Results of 
Antidumping Duty Administrative Review and Final Determination of No 
Shipments; 2018-2019

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

SUMMARY: The Department of Commerce (Commerce) has determined that the 
manufacturers/exporters of crystalline silicon photovoltaic cells, 
whether or not assembled into modules (solar cells), from the People's 
Republic of China (China) listed in the ``Final Results of Review'' 
section below, did not sell subject merchandise in the United States at 
less than normal value during the period of review (POR) December 1, 
2018, through November 30, 2019.

DATES: Applicable October 25, 2021.

FOR FURTHER INFORMATION CONTACT: Jeff Pedersen or Aleksandras Nakutis, 
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) 482-2769 or (202) 
482-3147, respectively.

SUPPLEMENTARY INFORMATION:

Background

    On April 22, 2021, Commerce published the Preliminary Results of 
this review in the Federal Register.\1\ After publication of the 
Preliminary Results, a number of interested parties filed case and 
rebuttal briefs and Commerce held a public hearing (see the Issues and 
Decision Memorandum for details).\2\ On August 12, 2021, Commerce 
extended the deadline for the final results of this review until 
September 24, 2021.\3\ On September 22, 2021, Commerce extended the 
deadline for the final results of this review until October 19, 
2021.\4\ The final weighted-average dumping margins are in the ``Final 
Results of Review'' section of this notice.
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    \1\ See Crystalline Silicon Photovoltaic Cells, Whether or Not 
Assembled Into Modules, from the People's Republic of China: 
Preliminary Results of Antidumping Duty Administrative Review, 
Partial Rescission of Antidumping Administrative Review, and 
Preliminary Determination of No Shipments; 2018-2019, 86 FR 21277 
(April 22, 2021) (Preliminary Results), and accompanying Preliminary 
Decision Memorandum.
    \2\ See Memorandum, ``Issues and Decision Memorandum for the 
Final Results of the 2018-2019 Antidumping Duty Administrative 
Review of Crystalline Silicon Photovoltaic Cells, Whether or Not 
Assembled into Modules, from the People's Republic of China,'' dated 
concurrently with, and hereby adopted by, this notice (Issues and 
Decision Memorandum).
    \3\ See Memorandum, ``Crystalline Silicon Photovoltaic Cells, 
Whether or Not Assembled Into Modules, from the People's Republic of 
China: Extension of Deadline for Final Results of Antidumping Duty 
Administrative Review; 2018-2019,'' dated August 12, 2021.
    \4\ See Memorandum, ``Crystalline Silicon Photovoltaic Cells, 
Whether or Not Assembled Into Modules, from the People's Republic of 
China: Second Extension of Deadline for Final Results of Antidumping 
Duty Administrative Review; 2018-2019,'' dated September 22, 2021.
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Scope of the Order 5
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    \5\ The scope was most recently updated in Crystalline Silicon 
Photovoltaic Cells, Whether or Not Assembled Into Modules, from the 
People's Republic of China: Final Results of Changed Circumstances 
Reviews, and Revocation of the Antidumping and Countervailing Duty 
Orders, 83 FR 65344 (December 20, 2018).
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    The merchandise covered by this order is crystalline silicon 
photovoltaic cells, and modules, laminates, and panels, consisting of 
crystalline silicon photovoltaic cells, whether or not partially or 
fully assembled into other products, including, but not limited to, 
modules, laminates, panels and building integrated materials.\6\ 
Merchandise covered by this order is currently classified in the 
Harmonized Tariff Schedule of the United States (HTSUS) under 
subheadings 8501.61.0000, 8507.20.80, 8541.40.6015, 8541.40.6020, 
8541.40.6025, 8541.40.6030, 8541.40.6035, 8541.40.6045, and 
8501.31.8000. Although these HTSUS subheadings are provided for 
convenience and customs purposes, the written description of the scope 
of this order is dispositive. For a complete description of the scope 
of the order, see the Issues and Decision Memorandum.
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    \6\ For a complete description of the scope of the order, see 
the Issues and Decision Memorandum.
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Analysis of Comments Received

    We addressed all of the issues that were raised in interested 
parties' case and rebuttal briefs in the Issues and Decision 
Memorandum. A list of the sections in the Issues and Decision 
Memorandum, including a list of issues that parties raised, and to 
which we responded, is in the appendix to this notice. The Issues and 
Decision Memorandum is a public document and

[[Page 58872]]

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 https://access.trade.gov. In 
addition, a complete version of the Issues and Decision Memorandum can 
be accessed directly at http://access.trade.gov/public/FRNoticesListLayout.aspx.

Final Determination of No Shipments

    We have continued to find that, during the POR, there were no 
entries of subject merchandise into the United States from, or exports 
or sales of subject merchandise to the United States by, the following 
companies: (1) BYD (Shangluo) Industrial Co., Ltd.; (2) Changzhou Trina 
Solar Energy Co., Ltd., Trina Solar (Changzhou) Science and Technology 
Co., Ltd., Yancheng Trina Solar Energy Technology Co., Ltd., Changzhou 
Trina Solar Yabang Energy Co., Ltd., Turpan Trina Solar Energy Co., 
Ltd., Hubei Trina Solar Energy Co., Ltd., Trina (Hefei) Science and 
Technology Co., Ltd.; and (3) Shanghai BYD Co., Ltd.

Changes Since the Preliminary Results

    Since issuing the Preliminary Results, we corrected certain 
ministerial errors in our calculation of Jinko's weighted-average 
dumping margin, (i.e., programming language regarding the calculation 
of normal value and domestic brokerage and handling expenses). Based on 
comments regarding the draft liquidation instructions to U.S. Customs 
and Border Protection (CBP) that we circulated to the parties, have 
updated the instructions regarding any shipments by Trina.

Separate Rates

    No parties commented on our preliminary separate rate findings. 
Therefore, we have continued to grant Jinko \7\ and Risen,\8\ (the 
mandatory respondents) and the nine other companies/company groups 
listed in the ``Final Results of Review'' section below separate rate 
status. However, we have continued to deny separate rate status to the 
25 companies listed in Appendix II of the Preliminary Results.
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    \7\ We have continued to treat the following companies as a 
single entity: Jinko Solar Import and Export Co., Ltd.; Jinko Solar 
Co., Ltd.; JinkoSolar Technology (Haining) Co., Ltd.; Yuhuan Jinko 
Solar Co., Ltd.; Zhejiang Jinko Solar Co., Ltd.; and Jiangsu Jinko 
Tiansheng Solar Co., Ltd. (collectively, Jinko).
    \8\ We have continued to treat the following companies as a 
single entity: Risen Energy Co. Ltd.; Risen (Wuhai) New Energy Co., 
Ltd.; Zhejiang Twinsel Electronic Technology Co., Ltd.; Risen 
(Luoyang) New Energy Co., Ltd.; Jiujiang Shengchao Xinye Technology 
Co., Ltd.; Jiujiang Shengzhao Xinye Trade Co., Ltd., Ruichang 
Branch; Risen Energy (HongKong) Co., Ltd.; Risen Energy (Changzhou) 
Co., Ltd.; and Risen Energy (YIWU) Co., Ltd. (collectively, Risen).
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Dumping Margin for Non-Individually Examined Respondents Granted 
Separate Rate Status

    The statute and Commerce's regulations do not address the rate to 
apply to respondents not selected for individual examination in a non-
market economy (NME) administrative review who are eligible for a 
separate rate. When considering which rate to apply to such 
respondents, Commerce generally looks to section 735(c)(5) of the 
Tariff Act of 1930, as amended (the Act), which provides instructions 
for calculating the all-others rate in an antidumping duty 
investigation. Section 735(c)(5)(A) of the Act instructs Commerce to 
base the all-others rate on the estimated weighted-average dumping 
margins established for the exporters and producers individually 
investigated, excluding any dumping margins that are zero, de minimis, 
or based entirely on facts available. However, section 735(c)(5)(B) of 
the Act provides that, where all of the estimated dumping margins for 
the exporters and producers individually investigated are either zero, 
de minimis, or are determined entirely under section 776 of the Act, 
Commerce may use any reasonable method to establish the rate for 
exporters and producers not individually examined.\9\
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    \9\ See the Statement of Administrative Action accompanying the 
Uruguay Round Agreements Act (SAA), H.R. Rep. No. 103-316 at 870-873 
(1994), reprinted in 1994 U.S.C.C.A.N. 4040, 4200.
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    The SAA provides that when the dumping margins for all individually 
examined respondents are zero, de minimis, or determined entirely on 
the basis of facts available, the ``expected method'' of determining 
the all-others rate is to weight average the zero and de minimis 
dumping margins with the dumping margins based on facts available, 
provided that volume data are available.\10\ This practice has been 
upheld by both the United States Court of International Trade and 
United States Court of Appeals for the Federal Circuit (CAFC).\11\ In 
Albemarle and Changzhou Hawd 2017, the CAFC held that under the 
``expected method'' the rates determined for the ``mandatory 
respondents are assumed to be representative'' of the experience of the 
non-selected companies.\12\
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    \10\ Id. at 873.
    \11\ See Albemarle Corp. & Subsidiaries v. United States, 821 
F.3d 1345, 1351-52 (Fed. Cir. 2016) (Albemarle); see also Changzhou 
Hawd Flooring Co., v. United States, 848 F.3d 1006, 1012 (Fed. Cir. 
2017) (Changzhou Hawd 2017); and Navneet Publications (India) Ltd. 
v. United States, 999 F. Supp. 2d 1354, 1358 (CIT 2014) (Navneet).
    \12\ See Changzhou Hawd 2017, 843 F.3d at 1012 (citing 
Albemarle, 821 F.3d at 1351-54) (explaining that, under Albemarle, 
Commerce cannot ``deviate from the expected method unless it is 
found, based on substantial evidence, that the separate-rate firms' 
dumping is different from that of the mandatory respondents'').
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    We calculated weighted-average dumping margins of zero percent for 
both mandatory respondents. Accordingly, pursuant to section 
735(c)(5)(B) of the Act and the CAFC's decisions in Albemarle and 
Changzhou Hawd 2017, we assigned a dumping margin of zero percent to 
the separate rate recipients not selected for examination.

Final Results of Review

    We are assigning the following dumping margins to the firms listed 
below for the period December 1, 2018, through November 30, 2019:

------------------------------------------------------------------------
                                                             Weighted-
                                                              average
                   Producers/exporters                    dumping margin
                                                             (percent)
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Jinko Solar Import and Export Co., Ltd./Jinko Solar Co.,            0.00
 Ltd./JinkoSolar Technology (Haining) Co., Ltd./Yuhuan
 Jinko Solar Co., Ltd./Zhejiang Jinko Solar Co., Ltd./
 Jiangsu Jinko Tiansheng Solar Co., Ltd.................
Risen Energy Co. Ltd./Risen (Wuhai) New Energy Co., Ltd./           0.00
 Zhejiang Twinsel Electronic Technology Co., Ltd./Risen
 (Luoyang) New Energy Co., Ltd./Jiujiang Shengzhao Xinye
 Technology Co., Ltd./Jiujiang Shengchao Xinye Trade
 Co., Ltd., Ruichang Branch/Risen Energy (HongKong) Co.,
 Ltd./Risen Energy (Changzhou) Co., Ltd./Risen Energy
 (Yiwu) Co., Ltd........................................
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   Review-Specific Average Rate Applicable to the Following Companies
------------------------------------------------------------------------
Anji DaSol Solar Energy Science & Technology Co., Ltd...            0.00

[[Page 58873]]

 
Canadian Solar International Limited/Canadian Solar                 0.00
 Manufacturing (Changshu), Inc./Canadian Solar
 Manufacturing (Luoyang) Inc./CSI Cells Co., Ltd./CSI-
 GCL Solar Manufacturing (YanCheng) Co., Ltd./CSI Solar
 Power (China) Inc......................................
Chint Solar (Zhejiang) Co., Ltd./Chint New Energy                   0.00
 Technology (Haining) Co., Ltd./Chint Solar (Jiuquan)
 Co., Ltd./Chint Solar (Hong Kong) Company Limited......
LONGi Solar Technology Co., Ltd.........................            0.00
Shenzhen Sungold Solar Co., Ltd.........................            0.00
Shenzhen Topray Solar Co., Ltd..........................            0.00
Wuxi Tianran Photovoltaic Co., Ltd......................            0.00
Yingli Energy (China) Company Limited/Baoding Tianwei               0.00
 Yingli New Energy Resources Co., Ltd./Tianjin Yingli
 New Energy Resources Co., Ltd./Hengshui Yingli New
 Energy Resources Co., Ltd./Lixian Yingli New Energy
 Resources Co., Ltd./Baoding Jiasheng Photovoltaic
 Technology Co., Ltd./Beijing Tianneng Yingli New Energy
 Resources Co., Ltd./Hainan Yingli New Energy Resources
 Co., Ltd./Shenzhen Yingli New Energy Resources Co., Ltd
Zhejiang Aiko Solar Energy Technology Co., Ltd..........            0.00
------------------------------------------------------------------------

    Commerce's policy regarding the conditional review of the China-
wide entity applies to this administrative review.\13\ Under this 
policy, Commerce will not review the China-wide entity in an 
administrative review unless a party specifically requests, or Commerce 
self-initiates, a review of the entity. Because no party requested a 
review of the China-wide entity, and Commerce did not self-initiate a 
review of the entity, the China-wide entity is not under review, and 
the dumping margin assigned to the China-wide entity (i.e., 238.95 
percent) has not changed.\14\
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    \13\ See Antidumping Proceedings: Announcement of Change in 
Department Practice for Respondent Selection in Antidumping Duty 
Proceedings and Conditional Review of the Nonmarket Economy Entity 
in NME Antidumping Duty Proceedings, 78 FR 65963, 65969-70 (November 
4, 2013).
    \14\ See Crystalline Silicon Photovoltaic Cells, Whether or Not 
Assembled Into Modules, from the People's Republic of China: Final 
Results of Antidumping Duty Administrative Review and Final 
Determination of No Shipments; 2015-2016, 83 FR 35616 (July 27, 
2018).
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Disclosure

    Pursuant to 19 CFR 351.224(b), within five days of the publication 
of this notice in the Federal Register, we will disclose to the parties 
to this proceeding, the calculations that we performed for these final 
results of review.

Assessment

    Pursuant to section 751(a)(2)(C) of the Act and 19 CFR 351.212(b), 
Commerce will determine, and CBP shall assess, antidumping duties on 
all appropriate entries of subject merchandise covered by the final 
results of this review. Because the respondents' weighted average 
dumping margins are zero percent, we will instruct CBP to liquidate 
appropriate entries without regard to antidumping duties.\15\ Commerce 
intends to issue assessment instructions to CBP no earlier than 35 days 
after the date of publication date of the final results of this review 
in the Federal Register. If a timely summons is filed at the CIT, the 
assessment instructions will direct CBP not to liquidate relevant 
entries until the time for parties to file a request for a statutory 
injunction has expired (i.e., within 90 days of publication).
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    \15\ See Antidumping Proceedings: Calculation of the Weighted-
Average Dumping Margin and Assessment Rate in Certain Antidumping 
Duty Proceedings; Final Modification, 77 FR 8101, 8103 (February 14, 
2012).
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    Where merchandise was entered into the United States under the case 
number of a mandatory respondent in this review during the POR (i.e., 
entered under the mandatory respondent's cash deposit rate), but the 
mandatory respondent did not report a corresponding sale or entry in 
its U.S. sales database, we will instruct CBP to liquidate such entries 
at the China-wide rate. In addition, for the companies for which we 
determined that there were no entries, exports, or sales of subject 
merchandise during the POR, any suspended entries of subject 
merchandise entered under one of the companies' case numbers during the 
POR will be liquidated at the China-wide rate.\16\
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    \16\ See Non-Market Economy Antidumping Proceedings: Assessment 
of Antidumping Duties, 76 FR 65694 (October 24, 2011), for a full 
discussion of this practice. For reasons described in Comment 8 of 
the IDM, we intend to liquidate certain entries by Trina during the 
POR at the cash deposit rate under which they were entered.
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Cash Deposit Requirements

    The following cash deposit requirements will be effective upon 
publication of the final results of this administrative review in the 
Federal Register. Pursuant to section 751(a)(2)(C) of the Act, for 
shipments of subject merchandise from China entered, or withdrawn from 
warehouse, for consumption on or after the date of publication of this 
notice in the Federal Register, the following cash deposits will be 
required: (1) For the companies/company groups listed in the table in 
the ``Final Results of Review'' section above, the cash deposit rate 
will be the rate listed for each company/company group in the table; 
(2) for previously investigated Chinese and non-Chinese exporters that 
received a separate rate in a prior segment of this proceeding, the 
cash deposit rate will continue to be the existing exporter-specific 
rate; (3) for all Chinese exporters of subject merchandise that have 
not been found to be entitled to a separate rate, the cash deposit rate 
will be the rate previously established for the China-wide entity 
(i.e., 238.95 percent); and (4) for all non-China exporters of subject 
merchandise which have not received their own rate, the cash deposit 
rate will be the rate applicable to the Chinese exporter that supplied 
the non-Chinese exporter. These deposit requirements, when imposed, 
shall remain in effect until further notice.

Notification to Importers

    This notice serves as a reminder to importers of their 
responsibility under 19 CFR 351.402(f)(2) to file a certificate 
regarding the reimbursement of antidumping duties prior to liquidation 
of the relevant entries during this POR. Failure to comply with this 
requirement could result in Commerce's presumption that reimbursement 
of antidumping duties occurred and the subsequent assessment of double 
antidumping duties.

Administrative Protective Orders

    This notice also serves as a reminder to parties subject to an 
administrative protective order (APO) of their responsibility 
concerning the return or destruction of proprietary information

[[Page 58874]]

disclosed under APO in accordance with 19 CFR 351.305, which continues 
to govern business proprietary information in this segment of the 
proceeding. Timely written notification of the return or 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 in accordance with 
sections 751(a)(1) and 777(i)(1) of the Act and 19 CFR 351.221(b)(5).

    Dated: October 19, 2021.
Ryan Majerus,
Deputy Assistant Secretary for Policy and Negotiations, performing the 
non-exclusive functions and duties of the Assistant Secretary for 
Enforcement and Compliance.

Appendix--Issues and Decision Memorandum

I. Summary
II. Background
III. Scope of the Order
IV. Changes Since the Preliminary Results
V. Discussion of the Issues
    Comment 1. Whether to Apply Partial Facts Available or Partial 
Adverse Facts Available
    Comment 2. Whether Certain Sales by Risen are Constructed Export 
Price (CEP) Sales
    Comment 3. Whether Commerce Made Ministerial Errors
    Comment 4. Whether Commerce Should Grant a Double Remedy Offset
    Comment 5. Chint Solar's Name
    Comment 6. The Correct Assessment Rate for Entries of Trina's 
Subject Merchandise
    Comment 7. The Appropriate Surrogate Value for Silver Paste
    Comment 8. The Appropriate Surrogate Value for Marine Insurance
    Comment 9. The Appropriate Surrogate Value for Air Freight
    Comment 10. The Appropriate Surrogate Value for Ocean Freight
    Comment 11. The Appropriate Surrogate Value for Solar Glass
    Comment 12. The Appropriate Surrogate Value for Ethylene Vinyl 
Acetate (EVA) Sheet
    Comment 13. The Appropriate Surrogate Value for Backsheet
    Comment 14. The Appropriate Surrogate Financial Statements
VI. Recommendation

[FR Doc. 2021-23181 Filed 10-22-21; 8:45 am]
BILLING CODE 3510-DS-P