[Federal Register Volume 89, Number 17 (Thursday, January 25, 2024)]
[Proposed Rules]
[Pages 4835-4841]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2024-01247]


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 Proposed Rules
                                                 Federal Register
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 This section of the FEDERAL REGISTER contains notices to the public of 
 the proposed issuance of rules and regulations. The purpose of these 
 notices is to give interested persons an opportunity to participate in 
 the rule making prior to the adoption of the final rules.
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  Federal Register / Vol. 89, No. 17 / Thursday, January 25, 2024 / 
Proposed Rules  

[[Page 4835]]



DEPARTMENT OF AGRICULTURE

Agricultural Marketing Service

7 CFR Part 985

[Doc. No. AMS-SC-23-0068]


Marketing Order Regulating the Handling of Spearmint Oil Produced 
in the Far West; Salable Quantities and Allotment Percentages for the 
2024-2025 Marketing Year

AGENCY: Agricultural Marketing Service, USDA.

ACTION: Proposed rule.

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SUMMARY: This proposed rule would implement a recommendation from the 
Far West Spearmint Oil Administrative Committee (Committee) to 
establish salable quantities and allotment percentages for Class 1 
(Scotch) and Class 3 (Native) spearmint oil produced in Washington, 
Idaho, and Oregon and parts of Nevada and Utah (Far West) for the 2024-
2025 marketing year. This proposed rule would also remove references to 
past volume regulation no longer in effect.

DATES: Comments must be received by February 26, 2024.

ADDRESSES: Interested persons are invited to submit written comments 
concerning this proposed rule. Comments can be sent to the Docket 
Clerk, Market Development Division, Specialty Crops Program, AMS, USDA, 
1400 Independence Avenue SW, STOP 0237, Washington, DC 20250-0237. 
Comments can also be submitted to the Docket Clerk electronically by 
Email: [email protected] or via the internet at: https://www.regulations.gov. Comments should reference the document number and 
the date and page number of this issue of the Federal Register. 
Comments submitted in response to this proposed rule will be included 
in the record and will be made available to the public and can be 
viewed at: https://www.regulations.gov. Please be advised that the 
identity of the individuals or entities submitting the comments will be 
made public on the internet at the address provided above.

FOR FURTHER INFORMATION CONTACT: Josh Wilde, Marketing Specialist, or 
Barry Broadbent, Acting Chief, West Region Branch, Market Development 
Division, Specialty Crops Program, AMS, USDA; Telephone: (503) 326-
2282, or Email: [email protected] or [email protected].
    Small businesses may request information on complying with this 
regulation by contacting Richard Lower, Market Development Division, 
Specialty Crops Program, AMS, USDA, 1400 Independence Avenue SW, STOP 
0237, Washington, DC 20250-0237; Telephone: (202) 720-8085, or Email: 
[email protected].

SUPPLEMENTARY INFORMATION: This action, pursuant to 5 U.S.C. 553, 
proposes to amend regulations issued to carry out a marketing order as 
defined in 7 CFR 900.2(j). This proposed rule is issued under Marketing 
Order No. 985, as amended (7 CFR part 985), regulating the handling of 
spearmint oil produced in the Far West. Part 985 (referred to as the 
``Order'') is effective under the Agricultural Marketing Agreement Act 
of 1937, as amended (7 U.S.C. 601-674), hereinafter referred to as the 
``Act.'' The Committee locally administers the Order and comprises 
spearmint oil producers operating within the area of production, and a 
public member.
    The Agricultural Marketing Service (AMS) is issuing this proposed 
rule in conformance with Executive Orders 12866, 13563, and 14094. 
Executive Orders 12866 and 13563 direct agencies to assess all costs 
and benefits of available regulatory alternatives and, if regulation is 
necessary, to select regulatory approaches that maximize net benefits 
(including potential economic, environmental, public health and safety 
effects, distributive impacts, and equity). Executive Order 13563 
emphasizes the importance of quantifying both costs and benefits, 
reducing costs, harmonizing rules, and promoting flexibility. Executive 
Order 14094 reaffirms, supplements, and updates Executive Order 12866 
and further directs agencies to solicit and consider input from a wide 
range of affected and interested parties through a variety of means. 
This proposed action falls within a category of regulatory actions that 
the Office of Management and Budget (OMB) exempted from Executive Order 
12866 review.
    This proposed rule has been reviewed under Executive Order 13175--
Consultation and Coordination with Indian Tribal Governments, which 
requires Federal agencies to consider whether their rulemaking actions 
would have Tribal implications. AMS has determined that this proposed 
rule is unlikely to have substantial direct effects on one or more 
Indian Tribes, on the relationship between the Federal Government and 
Indian Tribes, or on the distribution of power and responsibilities 
between the Federal Government and Indian Tribes.
    This proposed rule has been reviewed under Executive Order 12988--
Civil Justice Reform. This proposed rule is not intended to have 
retroactive effect. Under the Order now in effect, salable quantities 
and allotment percentages may be established for classes of spearmint 
oil produced in the Far West. This proposed rule would establish 
salable quantities and allotment percentages for Scotch and Native 
spearmint oil for the 2024-2025 marketing year, which begins on June 1, 
2024.
    The Act provides that administrative proceedings must be exhausted 
before parties may file suit in court. Under section 608c(15)(A) of the 
Act, any handler subject to an order may file with the U.S. Department 
of Agriculture (USDA) a petition stating that the order, any provision 
of the order, or any obligation imposed in connection with the order is 
not in accordance with law and request a modification of the order or 
to be exempted therefrom. Such handler is afforded the opportunity for 
a hearing on the petition. After the hearing, USDA would rule on the 
petition. The Act provides that the district court of the United States 
in any district in which the handler is an inhabitant, or has his or 
her principal place of business, has jurisdiction to review USDA's 
ruling on the petition, provided an action is filed not later than 20 
days after the date of the entry of the ruling.
    Pursuant to the requirements in Sec.  985.50 of the Order, the 
Committee meets each year to consider supply and demand of spearmint 
oil and to adopt a marketing policy for the ensuing marketing year. In 
determining such marketing policy, the Committee

[[Page 4836]]

considers several factors, including, but not limited to, the current 
and projected supply of oil, estimated future demand, production costs, 
and producer prices for both classes of spearmint oil. Input from 
spearmint oil handlers and producers are considered as well.
    Pursuant to the provisions in Sec.  985.51, when the Committee's 
marketing policy considerations indicate a need to establish or to 
maintain stable market conditions through volume regulation, the 
Committee subsequently recommends to AMS the establishment of a salable 
quantity and allotment percentage for such class or classes of oil for 
the upcoming marketing year. Recommendations for volume control are 
intended to ensure market requirements for Far West spearmint oil are 
satisfied and orderly marketing conditions are maintained.
    Salable quantity represents the total quantity of each class of oil 
(Scotch or Native) which handlers may purchase from, or handle on 
behalf of, producers during a given marketing year. The allotment 
percentage for each class of spearmint oil is the salable quantity for 
that class of oil divided by the total of all producers' allotment base 
for the same class of oil. A producer's allotment base is their 
calculated share of the spearmint oil market based on a statistical 
representation of past spearmint production and sales. In order to 
account for changes in production and demand over time, the Committee 
periodically reviews and adjusts each producer's allotment base in 
accordance with a formula prescribed by the Committee and approved by 
AMS. Each producer's annual allotment of the salable quantity is 
calculated by multiplying their respective allotment base for each 
class of spearmint oil by the allotment percentage for that class of 
spearmint oil. The total allotment base is revised each year on June 1 
to account for producer allotment base being lost as a result of the 
``bona fide effort'' production provision of Sec.  985.53(e) and 
additional base made available pursuant to the provisions of Sec.  
985.153.
    Salable quantities and allotment percentages are established at 
levels intended to maintain orderly marketing conditions while also 
ensuring that markets are adequately supplied. Further, Committee 
recommendations for volume control are made in advance of the upcoming 
marketing year in which the regulations are to be effective, thereby 
allowing producers ample time to adjust their production decisions 
accordingly.
    The Committee met on October 11, 2023, to consider its marketing 
policy for the 2024-2025 marketing year. At that meeting, the Committee 
determined that, based on the current market and supply conditions, 
volume regulation for both classes of oil would be necessary. The 
Committee unanimously recommended, with a vote of seven in favor and 
none opposed, a salable quantity and allotment percentage for Scotch 
spearmint oil of 663,648 pounds and 29 percent, respectively. In 
addition, the Committee unanimously recommended a salable quantity and 
allotment percentage for Native spearmint oil of 678,980 pounds and 26 
percent, respectively.
    This proposed action would establish the amount of Scotch and 
Native spearmint oil that handlers may purchase from, or handle on 
behalf of, producers during the 2024-2025 marketing year, which begins 
on June 1, 2024. Salable quantities and allotment percentages have been 
in effect each season since the Order's inception in 1980.

Scotch Spearmint Oil

    The Committee recommended a Scotch spearmint oil salable quantity 
of 663,648 pounds and an allotment percentage of 29 percent for the 
2024-2025 marketing year. The proposed salable quantity of 663,648 
pounds is 109,056 pounds less than the salable quantity of 772,704 
pounds established for the 2023-2024 marketing year. The recommended 29 
percent allotment percentage for the 2024-2025 marketing year is 5 
percent less than the 34 percent in effect the previous marketing year.
    The total allotment base for the coming marketing year is estimated 
to be 2,288,442 pounds. This figure represents a one-percent increase 
over the revised 2023-2024 marketing year total allotment base of 
2,265,784 pounds. The proposed salable quantity (663,648 pounds) is the 
product of total allotment base (2,288,442 pounds) times the proposed 
allotment percentage (approximately 28.999 percent, rounded to 29 
percent).
    The Committee considered several factors in making its 
recommendation, including the current and projected future supply, 
estimated future demand, production costs, and producer prices. The 
Committee's recommendation also accounts for the established acreage of 
Scotch spearmint, consumer demand, existing carry-in, reserve pool 
volume, and production in competing markets.
    According to the Committee, as costs of production have increased 
and spearmint oil prices have decreased, many producers have forgone 
new plantings of Scotch spearmint. This has resulted in a significant 
decline in production of Scotch spearmint oil in recent years. 
Production has decreased from 1,113,346 pounds produced in 2016 to an 
estimated 483,617 pounds of Scotch spearmint production in 2023.
    Industry reports indicate that trade demand for Far West Scotch 
spearmint oil, which had been declining in recent years, has begun to 
stabilize. Sales of Far West Scotch spearmint oil declined from a high 
of 1,060,232 pounds during the 2014-2015 marketing year to a low of 
488,484 pounds in the 2020-2021 marketing year. Sales of Far West 
Scotch spearmint oil totaled 597,852 pounds during the 2022-2023 
marketing year, the last full year of available data. The Committee 
indicates that production of Scotch spearmint oil in competing markets, 
most notably by Canadian producers, continues to exert downward 
pressure on trade demand for Scotch spearmint oil from the Far West.
    Given the anticipated market conditions for the coming year, the 
Committee estimates that Scotch spearmint oil trade demand for the 
2024-2025 marketing year will be 600,000 pounds, which is 35,000 pounds 
lower than the prior year estimate and just below the 5-year moving 
sales average of 614,157 pounds. Should the proposed volume regulation 
levels prove insufficient to adequately supply the market, the 
Committee has the authority to recommend intra-seasonal increases of 
the salable quantity and allotment percentage, as it has in previous 
marketing years.
    The Committee calculated the minimum salable quantity of Scotch 
spearmint oil that would be required during the 2024-2025 marketing 
year (266,880 pounds) by subtracting the estimated salable carry-in on 
June 1, 2024, (333,120 pounds) from the estimated trade demand (600,000 
pounds). This minimum salable quantity represents the estimated minimum 
amount of Scotch spearmint oil that would be needed to satisfy 
estimated trade demand for the coming year. To ensure that the market 
would be fully supplied, the Committee recommended a 2024-2025 
marketing year salable quantity of 663,648 pounds. The recommended 
salable quantity, combined with an estimated 333,120 pounds of salable 
carry-in from the previous year, would yield a total available supply 
of 996,768 pounds of Scotch spearmint oil for the 2024-2025 marketing 
year. With the recommended salable quantity and current market 
environment, the Committee estimates that as much as 396,768 pounds of 
salable Scotch spearmint oil could be

[[Page 4837]]

carried into the 2025-2026 marketing year.
    Salable carry-in is the primary measure of excess spearmint oil 
supply under the Order, as it represents overproduction in prior years 
that is currently available to the market without restriction. Under 
volume regulation, spearmint oil that is designated as salable 
continues to be available to the market until it is sold and may be 
marketed at any time at the discretion of the owner.
    The Committee estimates that there will be 333,120 pounds of 
salable carry-in of Scotch spearmint oil on June 1, 2024. If current 
market conditions are maintained and the Committee's projections are 
correct, salable carry-in would increase to 396,768 pounds at the 
beginning of the 2025-2026 marketing year. This level would be above 
the quantity that the Committee generally considers favorable (150,000 
pounds). However, the Committee believes that, given the current 
economic conditions in the Scotch spearmint oil industry, some Scotch 
spearmint oil producers may not produce their annual allotment for the 
2024-2025 marketing year. Further, the Committee estimates that as much 
as 296,118 pounds of the 2023-2024 marketing year annual allotment may 
not be filled by producers. While the Committee has not projected 
unused base allotment for the upcoming 2024-2025 marketing year, it 
anticipates that the actual quantity of Scotch spearmint oil carried 
into the 2024-2025 marketing year will be much less than the quantity 
calculated above (333,120 pounds).
    Spearmint oil held in reserve is oil that has been produced in 
excess of a producer's annual allotment, either in the current 
marketing year or in prior years, and is restricted from freely 
entering the market. After December 1 of each marketing year, reserve 
pool oil is not available to the market in the current marketing year 
without an increase in the salable quantity and allotment percentage. 
The Order does include provision for reserve oil to be released for 
limited market development projects, with approval of the Secretary, 
but this provision is rarely utilized.
    Oil held in the reserve pool is another indicator of excess supply. 
Scotch spearmint oil held in reserve was 26,062 pounds as of May 31, 
2023, up from 23,667 pounds as of May 31, 2022. This quantity of 
reserve pool oil should be an adequate buffer to supply the market, if 
necessary, should the industry experience an unexpected increase in 
demand.
    The Committee recommended an allotment percentage of 29 percent for 
the 2024-2025 marketing year for Scotch spearmint oil. During its 
October 11, 2023, meeting, the Committee calculated an initial 
allotment percentage by dividing the minimum required salable quantity 
(266,880 pounds) by the total estimated allotment base (2,288,442 
pounds), resulting in 11.7 percent. However, producers and handlers at 
the meeting indicated that the computed percentage (11.7 percent) might 
not adequately satisfy potential 2024-2025 marketing year Scotch 
spearmint oil market demand and may also result in a less than 
desirable carry-in for the subsequent marketing year. After 
deliberation, the Committee recommended an allotment percentage of 29 
percent. The total estimated allotment base (2,288,442 pounds) for the 
2024-2025 marketing year, multiplied by the recommended allotment 
percentage (29 percent), yields 663,648 pounds, which is the 
recommended salable quantity for the 2024-2025 marketing year.
    The 2024-2025 marketing year computational data for the Committee's 
recommendations is detailed below.
    (A) Estimated carry-in of Scotch spearmint oil on June 1, 2024: 
333,120 pounds. This figure is the difference between the 2023-2024 
marketing year total available supply of 933,120 pounds and the revised 
2023-2024 marketing year estimated trade demand of 600,000 pounds.
    (B) Estimated trade demand of Scotch spearmint oil for the 2024-
2025 marketing year: 600,000 pounds. This figure was established at the 
Committee meeting held on October 11, 2023.
    (C) Minimum salable quantity of Scotch spearmint oil required from 
the 2024-2025 marketing year production: 266,880 pounds. This figure is 
the difference between the estimated 2024-2025 marketing year trade 
demand (600,000 pounds) and the estimated carry-in on June 1, 2024 
(333,120 pounds). This salable quantity represents the minimum amount 
of Scotch spearmint oil that would be needed to satisfy estimated 
demand for the coming year.
    (D) Total estimated Scotch spearmint oil allotment base of for the 
2024-2025 marketing year: 2,288,442 pounds. This figure represents a 
one-percent increase over the 2023-2024 marketing year total actual 
allotment base of 2,265,784 pounds, as prescribed by Sec.  985.53(d). 
The one-percent increase equals 22,658 pounds. This total estimated 
allotment base is revised each year on June 1 in accordance with Sec.  
985.53(e).
    (E) Computed Scotch spearmint oil allotment percentage for the 
2024-2025 marketing year: 11.7 percent. This percentage is computed by 
dividing the minimum required salable quantity (266,880) by the total 
estimated allotment base (2,288,442 pounds).
    (F) Recommended Scotch spearmint oil allotment percentage for the 
2024-2025 marketing year: 29 percent. This is the Committee's 
recommendation and is based on the computed allotment percentage (11.7 
percent) and input from producers and handlers at the October 11, 2023, 
meeting. The recommended 29 percent allotment percentage reflects the 
Committee's belief that the computed percentage (11.7 percent) may not 
adequately supply the anticipated 2024-2025 marketing year Scotch 
spearmint oil market demand.
    (G) Recommended Scotch spearmint oil salable quantity for the 2024-
2025 marketing year: 663,648 pounds. This figure is the product of the 
recommended salable allotment percentage (29 percent) and the total 
estimated allotment base (2,288,442 pounds) for the 2024-2025 marketing 
year.
    (H) Estimated total available supply of Scotch spearmint oil for 
the 2024-2025 marketing year: 996,768 pounds. This figure is the sum of 
the 2024-2025 marketing year recommended salable quantity (663,648 
pounds) and the estimated carry-in on June 1, 2024 (333,120 pounds).
    For the reasons stated above, the Committee believes that the 
recommended salable quantity and allotment percentage would adequately 
satisfy trade demand, would result in a reasonable carry-in for the 
following year, and would contribute to the orderly marketing of Scotch 
spearmint oil.

Native Spearmint Oil

    The Committee recommended a Native spearmint oil salable quantity 
of 678,980 pounds and an allotment percentage of 26 percent for the 
2024-2025 marketing year. These figures are, respectively, 355,512 
pounds and 14 percentage points lower than the levels established for 
the 2023-2024 marketing year. The Committee utilized handlers' 
estimated trade demand of Native spearmint oil for the coming year, 
historical and current Native spearmint oil production, inventory 
statistics, and international market data obtained from consultants for 
the spearmint oil industry to arrive at these recommendations.
    The Committee anticipates that 2023 Native spearmint oil production 
will total 1,015,570 pounds, up from the previous year's production of 
941,026 pounds. Committee records indicate

[[Page 4838]]

that spearmint-producing acres in the Far West declined from a recent 
high of 9,013 acres in 2019 to 6,078 acres of Native spearmint 
production in 2022, before rebounding to an estimated 6,761 acres in 
2023 on the strength of new plantings.
    Sales of Native spearmint oil have been trending downward since the 
2017-2018 marketing year, falling from a recent high of 1,332,260 
pounds during the 2020-2021 marketing year to 988,536 pounds for the 
2021-2022 marketing year, representing a 10-year low. However, sales of 
Native spearmint oil improved slightly to 1,044,835 pounds for the 
2022-2023 marketing year, the last full year for which data is 
available. The Committee expects demand to remain fairly stable, 
estimating trade demand for Native spearmint oil at 1,000,000 pounds 
for the 2024-2025 marketing year.
    The Committee anticipates that 447,520 pounds of salable Native 
spearmint oil from prior years will be carried into the 2024-2025 
marketing year. This amount is up from the 308,440 pounds of salable 
oil carried into the 2023-2024 marketing year and well above the level 
that the Committee generally considers favorable (150,000 pounds).
    The Committee estimates that there will be 1,048,733 pounds of 
Native spearmint oil in the reserve pool at the beginning of the 2024-
2025 marketing year. Native reserve pool oil has been fairly stable 
over the past several marketing years. The reserve pool increased from 
996,050 pounds at the start of the 2016-2017 marketing year to 
1,219,122 pounds to start the 2021-2022 marketing year. However, the 
pool was reduced to 1,055,135 pounds by the start of the 2022-2023 
marketing year, in line with the 1,048,733 pounds of Native spearmint 
oil that the Committee projects will be held in the reserve pool to 
begin the 2024-2025 marketing year.
    The Committee expects end users of Native spearmint oil to continue 
to rely on Far West production as their primary source of high-quality 
Native spearmint oil. However, increases in domestic production of 
Native spearmint from regions outside of the Far West production area 
has created additional competition for market share. For example, there 
were fewer than 2,000 acres of Native spearmint production in the U.S. 
Midwest region in 2016, compared with over 10,000 acres of Native 
spearmint oil production in the Far West. However, the Committee's 2023 
estimates indicate that Far West acreage has declined to approximately 
6,761 acres, compared to Native spearmint producing acreage of around 
3,000 acres in the Midwest. This situation has contributed to declining 
trade demand for Far West Native spearmint oil and led to downward 
pressure on producer prices.
    Given the anticipated market conditions for the coming year, the 
Committee estimated the 2024-2025 marketing year Native spearmint oil 
trade demand to be 1,000,000 pounds. This figure is based on input 
provided by producers at six production area meetings held in September 
and October 2023, as well as estimates provided by handlers and other 
meeting participants at the October 11, 2023, Committee meeting. This 
figure represents a decrease of 150,000 pounds from the previous year's 
estimated trade demand for the 2023-2024 marketing year. The average 
estimated trade demand for Native spearmint oil derived from the 
production area meetings was 1,020,833 pounds, whereas the handlers' 
estimates ranged from 950,000 to 1,200,000 pounds. The quantity 
marketed over the most recent full marketing year, 2022-2023, was 
1,044,835 pounds.
    The estimated June 1, 2024, carry-in of 447,520 pounds of Native 
spearmint oil, plus the recommended 2024-2025 marketing year salable 
quantity of 678,980 pounds, would result in an estimated total 
available supply of 1,126,500 pounds of Native spearmint oil during the 
2024-2025 marketing year. With the corresponding estimated trade demand 
of 1,000,000 pounds, the Committee projects that 126,500 pounds of 
salable oil will be carried into the 2025-2026 marketing year. The 
Committee estimates that there will be 1,048,733 pounds of Native 
spearmint oil held in the reserve pool at the beginning of the 2024-
2025 marketing year. Should the industry experience an unexpected 
increase in trade demand, oil in the Native spearmint oil reserve pool 
could be released through an intra-seasonal increase in the salable 
quantity and allotment percentage to satisfy that demand.
    The Committee recommended a Native spearmint oil allotment 
percentage of 26 percent for the 2024-2025 marketing year. During its 
October 11, 2023, meeting, the Committee calculated an initial 
allotment percentage of 21.2 percent by dividing the minimum required 
salable quantity to satisfy estimated trade demand (552,480 pounds) by 
the total allotment base (2,611,463 pounds). However, producers and 
handlers at the meeting expressed concern that the computed percentage 
of 21.2 percent may not adequately supply the potential 2024-2025 
marketing year Native spearmint oil market demand. Further, it could 
result in a less than adequate carry-in for the subsequent marketing 
year. After deliberation, the Committee increased its allotment 
percentage recommendation to 26 percent. The total estimated Native 
spearmint oil allotment base (2,611,463 pounds) multiplied by the 
recommended salable allotment percentage (26 percent) yields 678,980 
pounds, the recommended Native spearmint oil salable quantity for the 
2024-2025 marketing year.
    The 2024-2025 marketing year computational data for the Committee's 
recommendation is further outlined below.
    (A) Estimated carry-in of Native spearmint oil on June 1, 2024: 
447,520 pounds. This figure is the difference between the estimated 
2023-2024 marketing year total available supply of 1,447,520 pounds and 
the revised 2023-2024 marketing year estimated trade demand of 
1,000,000 pounds.
    (B) Estimated trade demand of Native spearmint oil for the 2024-
2025 marketing year: 1,000,000 pounds. This estimate was established by 
the Committee at its October 11, 2023, meeting.
    (C) Minimum salable quantity of Native spearmint oil required from 
the 2024-2025 marketing year production: 552,480 pounds. This figure is 
the difference between the 2024-2025 marketing year estimated trade 
demand (1,000,000 pounds) and the estimated carry-in on June 1, 2024 
(447,520 pounds). This is the minimum amount of Native spearmint oil 
that the Committee believes would be required to meet the anticipated 
2024-2025 marketing year trade demand.
    (D) Total estimated allotment base of Native spearmint oil for the 
2024-2025 marketing year: 2,611,463 pounds. This figure represents a 
one-percent increase over the 2023-2024 marketing year actual total 
allotment base of 2,585,607 pounds as prescribed in Sec.  985.53(d). 
The one-percent increase equals 25,856 pounds of oil. This estimate is 
revised each year on June 1, to adjust for the bona fide effort 
production provisions of Sec.  985.53(e).
    (E) Computed Native spearmint oil allotment percentage for the 
2024-2025 marketing year: 21.2 percent. This percentage is calculated 
by dividing the required minimum salable quantity (552,480 pounds) by 
the total estimated allotment base (2,611,463 pounds) for the 2024-2025 
marketing year.
    (F) Recommended Native spearmint oil allotment percentage for the 
2024-2025 marketing year: 26 percent. This is the Committee's 
recommendation based on the computed allotment percentage

[[Page 4839]]

(21.2 percent) and input from producers and handlers at the October 11, 
2023, meeting. The recommended 26 percent allotment percentage is also 
based on the Committee's belief that the computed percentage (21.2 
percent) may not adequately supply the potential market for Native 
spearmint oil in the 2024-2025 marketing year or allow for sufficient 
salable Native spearmint oil to be carried into the beginning of the 
2024-2025 marketing year.
    (G) Recommended Native spearmint oil 2024-2025 marketing year 
salable quantity: 678,980 pounds. This figure is the product of the 
recommended allotment percentage (26 percent) and the total estimated 
allotment base (2,611,463 pounds).
    (H) Estimated available supply of Native spearmint oil for the 
2024-2025 marketing year: 1,126,500 pounds. This figure is the sum of 
the 2024-2025 marketing year recommended salable quantity (678,980 
pounds) and the estimated carry-in on June 1, 2024 (447,520 pounds). 
This amount could be increased, as needed, through an intra-seasonal 
increase in the salable quantity and allotment percentage.
    The Committee's recommended Scotch and Native spearmint oil salable 
quantities and allotment percentages of 663,648 pounds and 29 percent, 
and 678,980 pounds and 26 percent, respectively, would match the 
available supply of each class of spearmint oil to the estimated demand 
of each, thus avoiding extreme fluctuations in inventories and prices. 
This proposed rule is similar to regulations issued in prior seasons.
    The salable quantities in this proposed rule are not expected to 
cause a shortage of either class of spearmint oil. Any unanticipated or 
additional market demand for either class of spearmint oil which may 
develop during the marketing year could be satisfied by an intra-
seasonal increase in the salable quantity and corresponding allotment 
percentage. The Order contains a provision in Sec.  985.51 for intra-
seasonal increases to allow the Committee the flexibility to respond 
quickly to changing market conditions.
    Under volume regulation, producers who produce more than their 
annual allotments during the marketing year may transfer such excess 
spearmint oil to producers who have produced less than their annual 
allotment. In addition, on December 1 of each year, producers who have 
not transferred their excess spearmint oil to other producers must 
place their excess spearmint oil production into the reserve pool to be 
released in the future. Each producer controls the disposition of their 
respective reserve pool spearmint oil, in accordance with market needs 
and the Order's volume regulation provisions, and under the Committee's 
oversight.
    In conjunction with the issuance of this proposed rule, AMS has 
reviewed the Committee's marketing policy statement for the 2024-2025 
marketing year. The Committee's marketing policy statement, a 
requirement whenever the Committee recommends volume regulation, meets 
the requirements of Sec. Sec.  985.50 and 985.51.
    The establishment of the proposed salable quantities and allotment 
percentages would allow for anticipated market needs. In determining 
anticipated market needs, the Committee considered historical sales, as 
well as changes and trends in production and demand. This proposal 
would also provide producers with information regarding the amount of 
spearmint oil that should be produced for the 2024-2025 and subsequent 
marketing years to meet anticipated market demand.

Initial Regulatory Flexibility Analysis

    Pursuant to requirements set forth in the Regulatory Flexibility 
Act (RFA) (5 U.S.C. 601-612), the AMS has considered the economic 
impact of this proposed rule on small entities. Accordingly, AMS has 
prepared this initial regulatory flexibility analysis.
    The purpose of the RFA is to fit regulatory actions to the scale of 
businesses subject to such actions in order that small businesses will 
not be unduly or disproportionately burdened. Marketing orders issued 
pursuant to the Act, and the rules issued thereunder, are unique in 
that they are brought about through group action of essentially small 
entities acting on their own behalf.
    There are approximately 39 producers of Scotch spearmint oil and 92 
producers of Native spearmint oil operating within the regulated 
production area. In addition, there are approximately 7 spearmint oil 
handlers (both Scotch and Native spearmint) subject to regulation under 
the Order. Small agricultural service firms are defined by the Small 
Business Administration (SBA) as those having annual receipts of equal 
to or less than $34.0 million (Postharvest Crop Activities, NAICS code 
11514). Small agricultural producers of spearmint oil are defined as 
those having annual receipts of equal to or less than $2.5 million (All 
Other Miscellaneous Crop Farming, NAICS code 111998) (13 CFR 121.201).
    The Committee reported that recent producer prices for spearmint 
oil have ranged from $18.00 to $22.00 per pound. The National 
Agricultural Statistics Service (NASS) reported that the 2022 U.S. 
season average spearmint oil producer price per pound was $20.40. 
Spearmint oil utilization for the 2022-2023 marketing year, as reported 
by the Committee, was 597,852 pounds and 1,044,835 pounds for Scotch 
and Native spearmint oil, respectively, for a total of 1,642,687 
pounds. Multiplying $20.40 per pound by 2022-2023 marketing year 
spearmint oil utilization of 1,642,687 pounds yields a crop value 
estimate of about $33.5 million.
    Given the accounting requirements for the volume regulation 
provisions of the Order, the Committee maintains accurate records of 
each producer's production and sales. Using the $20.40 average 
spearmint oil price and Committee production data for each producer, 
the Committee estimates that 38 of the 39 Scotch spearmint oil 
producers and all of the 92 Native spearmint oil producers could be 
classified as small entities under the SBA definition.
    There is no third-party or governmental entity that collects and 
reports spearmint oil prices received by spearmint oil handlers. 
However, the Committee estimates an average spearmint oil handling 
markup at approximately 20 percent of the price received by producers. 
Twenty percent of the 2022 producer price ($20.40) is $4.08, which 
results in a handler Free on Board (f.o.b.) price per pound estimate of 
$24.48 ($20.40 + $4.08).
    Multiplying this estimated handler f.o.b. price by the 2022-2023 
marketing year total spearmint oil utilization of 1,642,687 pounds 
results in an estimated handler-level spearmint oil value of $40.2 
million. Dividing this figure by the number of handlers (7) yields 
estimated average annual handler receipts of about $5.7 million, which 
is well below the $34.0 million SBA threshold for small agricultural 
service firms.
    Furthermore, using confidential data compiled by the Committee on 
the pounds of spearmint oil handled by each handler and the 
abovementioned estimated handler price per pound, the Committee 
reported that it is not likely that any of the seven handlers had 2022-
2023 marketing year spearmint oil sales that exceeded SBA's threshold.
    Therefore, in view of the foregoing, the majority of producers of 
spearmint oil may be classified as small entities, and all of the 
handlers of spearmint oil may be classified as small entities.
    This proposed rule would establish the quantity of spearmint oil 
produced in the Far West, by class, which

[[Page 4840]]

handlers may purchase from, or handle on behalf of, producers during 
the 2024-2025 marketing year. The Committee recommended this proposed 
action to help maintain stability in the spearmint oil market by 
matching supply to estimated demand, thereby avoiding extreme 
fluctuations in supplies and prices. Establishing quantities that may 
be purchased from or handled on behalf of producers during the 
marketing year through volume regulation allows producers to coordinate 
their spearmint oil production with the expected market demand. 
Authority for this proposal is provided in Sec. Sec.  985.50, 985.51, 
and 985.52 of the Order.
    The Committee estimates the total trade demand for the 2024-2025 
marketing year for both classes of oil at 1,600,000 pounds. In 
addition, the Committee expects that the combined salable carry-in for 
both classes of spearmint oil will be 780,640 pounds. As such, the 
combined required salable quantity for the 2024-2025 marketing year is 
estimated to be 819,360 pounds (1,600,000 pounds trade demand less 
780,640 pounds carry-in). Under volume regulation, total sales of 
spearmint oil by producers for the 2024-2025 marketing year would be 
held to 2,123,268 pounds (the recommended salable quantity for both 
classes of spearmint oil of 1,342,628 pounds plus 780,640 of carry-in).
    This total available supply of 2,123,268 pounds should be more than 
adequate to supply the 1,600,000 pounds of anticipated total trade 
demand for spearmint oil. In addition, as of May 31, 2023, the total 
reserve pool for both classes of spearmint oil stood at 1,081,197 
pounds. That quantity is expected to remain relatively unchanged over 
the course of the 2023-2024 marketing year, with current Committee 
reserve pool estimates totaling 1,082,744 pounds on May 31, 2024. 
Should trade demand increase unexpectedly during the 2024-2025 
marketing year, reserve pool spearmint oil could be released into the 
market to supply that increase in demand.
    The recommended allotment percentages, upon which 2024-2025 
marketing year annual producer allotments are based, are 29 percent for 
Scotch spearmint oil and 26 percent for Native spearmint oil. Without 
volume regulation, producers would not be held to these allotment 
levels and would be able to sell unrestricted quantities of spearmint 
oil.
    The AMS econometric model used to evaluate the Far West spearmint 
oil market estimated that the season average producer price per pound 
(for both classes of spearmint oil) would decline about $1.55 per pound 
without volume regulation. The surplus situation for the spearmint oil 
market that would exist without volume regulation in the 2024-2025 
marketing year also would likely dampen prospects for improved producer 
prices in future years because of the excessive buildup in stocks.
    In addition, spearmint oil prices would likely fluctuate with 
greater amplitude in the absence of volume regulation. The coefficient 
of variation, or CV (a standard measure of variability), of Far West 
spearmint oil producer prices for the period 1980-2022 (the years in 
which the Order has been in effect, and for which NASS data is 
available), is 24 percent, compared to 49 percent for the 20-year 
period (1960-1979) immediately prior to the establishment of the Order. 
Since higher CV values correspond to greater variability, this is an 
indicator of the price-stabilizing impact of the Order.
    The use of volume regulation allows the industry to fully supply 
spearmint oil markets while avoiding the negative consequences of over-
supplying these markets. The use of volume regulation is believed to 
have little or no effect on consumer prices of products containing 
spearmint oil and would not result in fewer retail sales of such 
products.
    The Committee discussed alternatives to the recommendations 
contained in this rule for both classes of spearmint oil. The Committee 
rejected the idea of not regulating volume for either class of 
spearmint oil because of the severe, price-depressing effects that are 
more likely to occur without volume regulation. The Committee also 
discussed and considered salable quantities and allotment percentages 
that were above and below the levels that were eventually recommended 
for both classes of spearmint oil. Ultimately, the action recommended 
by the Committee was to reduce the allotment percentage and salable 
quantity for both Scotch spearmint oil and Native spearmint oil from 
the levels established for the 2023-2024 marketing year.
    As noted earlier, the Committee's recommendation to establish 
salable quantities and allotment percentages for both classes of 
spearmint oil was made after careful consideration of all available 
information including: (1) The estimated quantity of salable oil of 
each class held by producers and handlers; (2) the estimated demand for 
each class of oil; (3) the prospective production of each class of oil; 
(4) the total of allotment bases of each class of oil for the current 
marketing year and the estimated total of allotment bases of each class 
for the ensuing marketing year; (5) the quantity of reserve oil, by 
class, in storage; (6) producer prices of oil, including prices for 
each class of oil; and (7) general market conditions for each class of 
oil, including whether the estimated season average price to producers 
is likely to exceed parity.
    Based on its review, the Committee believes that the salable 
quantities and allotment percentages recommended would achieve the 
objectives sought. The Committee also believes that, should there be no 
volume regulation in effect for the upcoming marketing year, the Far 
West spearmint oil industry would return to the pronounced cyclical 
price patterns that occurred prior to the promulgation of the Order. As 
previously stated, annual salable quantities and allotment percentages 
have been issued for both classes of spearmint oil since the Order's 
inception. The salable quantities and allotment percentages proposed 
herein are expected to facilitate the goal of maintaining orderly 
marketing conditions for Far West spearmint oil for the 2024-2025 and 
future marketing years.
    This proposed rule would establish the salable quantities and 
allotment percentages for Scotch and Native spearmint oil produced in 
the Far West during the 2024-2025 marketing year. Costs to producers 
and handlers, large and small, resulting from this proposal are 
expected to be offset by the benefits derived from a more stable market 
and increased returns. The benefits of this proposed rule are expected 
to be equally available to all producers and handlers regardless of 
their size.
    The Committee's meeting was widely publicized throughout the 
spearmint oil industry and all interested persons were invited to 
attend the meeting and participate in Committee deliberations on all 
issues. Like all Committee meetings, the October 11, 2023, meeting was 
a public meeting and all entities, both large and small, were able to 
express views on this issue. Finally, interested persons are invited to 
submit comments on this proposed rule, including the regulatory and 
informational impacts of this action on small businesses.
    In accordance with the Paperwork Reduction Act of 1995, (44 U.S.C. 
Chapter 35), the Order's information collection requirements have been 
previously approved by OMB and assigned OMB No. 0581-0178, Vegetable 
and Specialty Crops. No changes in those requirements would be 
necessary as a result of this proposed rule. Should any changes become

[[Page 4841]]

necessary, they would be submitted to OMB for approval.
    This proposed rule would not impose any additional reporting or 
recordkeeping requirements on either small or large Far West spearmint 
oil handlers. As with all Federal marketing order programs, reports and 
forms are periodically reviewed to reduce information requirements and 
duplication by industry and public sector agencies.
    AMS is committed to complying 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.
    AMS has not identified any relevant Federal rules that duplicate, 
overlap, or conflict with this proposed rule.
    A small business guide on complying with fruit, vegetable, and 
specialty crop marketing agreements and orders may be viewed at: 
https://www.ams.usda.gov/rules-regulations/moa/small-businesses. Any 
questions about the compliance guide should be sent to Richard Lower at 
the previously mentioned address in the FOR FURTHER INFORMATION CONTACT 
section.
    After consideration of all relevant material presented, including 
the information and recommendations submitted by the Committee and 
other available information, USDA has determined that this proposed 
rule is consistent with and would effectuate the purposes of the Act.
    A 30-day comment period is provided to allow interested persons to 
respond to this proposed rule. All written comments timely received 
will be considered before a final determination is made on this rule.

List of Subjects in 7 CFR Part 985

    Marketing agreements, Oils and fats, Reporting and recordkeeping 
requirements.

    For the reasons set forth in the preamble, the Agriculture 
Marketing Service proposes to amend 7 CFR part 985 as follows:

PART 985--MARKETING ORDER REGULATING THE HANDLING OF SPEARMINT OIL 
PRODUCED IN THE FAR WEST

0
1. The authority citation for 7 CFR part 985 continues to read as 
follows:

    Authority: 7 U.S.C. 601-674.

0
2. Revise Sec.  985.233 to read as follows:


Sec.  985.233   Salable quantities and allotment percentages--2023-2024 
marketing year.

    The salable quantity and allotment percentage for each class of 
spearmint oil during the marketing year beginning on June 1, 2023, 
shall be as follows:
    (a) Class 1 (Scotch) oil--a salable quantity of 772,704 pounds and 
an allotment percentage of 34 percent.
    (b) Class 3 (Native) oil--a salable quantity of 1,034,492 pounds 
and an allotment percentage of 40 percent.
0
3. Revise Sec.  985.234 to read as follows:


Sec.  985.234   Salable quantities and allotment percentages--2024-2025 
marketing year.

    The salable quantity and allotment percentage for each class of 
spearmint oil during the marketing year beginning on June 1, 2024, 
shall be as follows:
    (a) Class 1 (Scotch) oil--a salable quantity of 663,648 pounds and 
an allotment percentage of 29 percent.
    (b) Class 3 (Native) oil--a salable quantity of 678,980 pounds and 
an allotment percentage of 26 percent.


Sec. Sec.  985.235 through 985.238   [Removed]

0
4. Remove Sec. Sec.  985.235 through 985.238.

Erin Morris,
Associate Administrator, Agricultural Marketing Service.
[FR Doc. 2024-01247 Filed 1-24-24; 8:45 am]
BILLING CODE P