Grapes Grown in a Designated Area of Southeastern California; Increased Assessment Rate, 37213-37216 [2021-14731]

Agencies

• Agricultural Marketing Service
• DEPARTMENT OF AGRICULTURE

[Federal Register Volume 86, Number 133 (Thursday, July 15, 2021)]
[Rules and Regulations]
[Pages 37213-37216]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-14731]



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Rules and Regulations
                                                Federal Register
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having general applicability and legal effect, most of which are keyed 
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under 50 titles pursuant to 44 U.S.C. 1510.

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Federal Register / Vol. 86, No. 133 / Thursday, July 15, 2021 / Rules 
and Regulations

[[Page 37213]]



DEPARTMENT OF AGRICULTURE

Agricultural Marketing Service

7 CFR Part 925

[Doc. No. AMS-SC-20-0093; SC21-925-1 FR]


Grapes Grown in a Designated Area of Southeastern California; 
Increased Assessment Rate

AGENCY: Agricultural Marketing Service, USDA.

ACTION: Final rule.

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SUMMARY: This final rule implements a recommendation from the 
California Desert Grape Administrative Committee (Committee) to 
increase the assessment rate established for the 2021 and subsequent 
fiscal periods. The assessment rate will remain in effect indefinitely 
unless modified, suspended, or terminated.

DATES: Effective August 16, 2021.

FOR FURTHER INFORMATION CONTACT: Bianca Bertrand, Management and 
Program Analyst, or Gary D. Olson, Regional Director, California 
Marketing Field Office, Marketing Order and Agreement Division, 
Specialty Crops Program, AMS, USDA; Telephone: (559) 487-5901 or Email: 
[email protected] or [email protected].
    Small businesses may request information on complying with this 
regulation by contacting Richard Lower, Marketing Order and Agreement 
Division, Specialty Crops Program, AMS, USDA, 1400 Independence Avenue 
SW, STOP 0237, Washington, DC 20250-0237; Telephone: (202) 720-2491, or 
Email: [email protected].

SUPPLEMENTARY INFORMATION: This action, pursuant to 5 U.S.C. 553, 
implements an amendment to regulations issued to carry out a marketing 
order as defined in 7 CFR 900.2(j). This rule is issued under Marketing 
Agreement and Order No. 925, as amended (7 CFR part 925), regulating 
the handling of grapes grown in a designated area of southeastern 
California. Part 925 (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 is comprised of producers and handlers of 
grapes operating within the production area, and a public member.
    The Department of Agriculture (USDA) is issuing this final rule in 
conformance with Executive Orders 12866 and 13563. 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. This action falls within 
a category of regulatory actions that the Office of Management and 
Budget (OMB) exempted from Executive Order 12866 review.
    This final rule has been reviewed under Executive Order 13175--
Consultation and Coordination with Indian Tribal Governments, which 
requires agencies to consider whether their rulemaking actions would 
have tribal implications. AMS has determined this final 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 rule has been reviewed under Executive Order 12988, Civil 
Justice Reform. Under the Order now in effect, grape handlers in the 
production area are subject to assessments. Funds to administer the 
Order are derived from such assessments. It is intended that the 
assessment rate be applicable to all assessable grapes for the 2021 
fiscal period and continue until amended, suspended, or terminated.
    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 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 a 
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 no later than 20 days after the date of the 
entry of the ruling.
    This rule increases the assessment rate from $0.020 per 18-pound 
lug of assessable grapes handled, the rate that was established for the 
2018 and subsequent fiscal periods, to $0.040 per 18-pound lug of 
assessable grapes handled for the 2021 and subsequent fiscal periods.
    The Order authorizes the Committee, with the approval of USDA, to 
formulate an annual budget of expenses and collect assessments from 
handlers to administer the program. The members are familiar with the 
Committee's needs and with the costs of goods and services in their 
local area and are in a position to formulate an appropriate budget and 
assessment rate. The assessment rate is formulated and discussed in a 
public meeting. Thus, all directly affected persons have an opportunity 
to participate and provide input.
    For the 2018 and subsequent fiscal periods, the Committee 
recommended, and USDA approved, an assessment rate of $0.020 per 18-
pound lug of assessable grapes handled. That assessment rate continued 
in effect from fiscal period to fiscal period until modified, 
suspended, or terminated by USDA upon recommendation and information 
submitted by the Committee or other information available to USDA.
    The Committee met on November 4, 2020, and unanimously recommended 
expenditures of $85,500, and an assessment rate of $0.040 per 18-pound 
lug of assessable grapes handled for the 2021 and subsequent fiscal 
periods. In comparison, the previous fiscal period's budgeted 
expenditures were $121,100. The assessment rate of $0.040 is $0.020

[[Page 37214]]

higher than the rate currently in effect. The Committee recommended 
increasing the assessment rate to provide adequate income to cover the 
Committee's budgeted expenses for the 2021 fiscal period, as well as 
add funds to the contingency reserve. Funds in the reserve are expected 
to be approximately $50,100 at the end of the 2021 fiscal period, which 
is within the Order's requirement to carryover no more than 
approximately one fiscal period's budgeted expenses.
    The major expenditures recommended by the Committee for the 2021 
fiscal period include $50,000 for management and compliance expenses, 
$19,500 for direct office expenses, and $16,000 for shared office, 
facilities, and maintenance expenses.
    Budgeted expenses for the 2020 fiscal period were $56,000 for 
management and compliance expenses, $28,500 for production research, 
$20,700 for direct office expenses, and $15,900 for shared office, 
facilities, and maintenance expenses.
    In 2020, the Committee determined that the contingency reserve fund 
had grown too large, so the Committee used $37,100 from the reserve to 
help fund the 2020 budget rather than raise the assessment rate.
    The Committee derived the recommended assessment rate by 
considering anticipated expenses, an estimated crop of 2.5 million 18-
pound lugs of assessable grapes, and the amount of funds available in 
the authorized contingency reserve. Income derived from handler 
assessments, calculated at $100,000 (2.5 million 18-pound lugs of 
assessable grapes multiplied by $0.040 assessment rate), is expected to 
be adequate to cover budgeted expenses of $85,500, as well as add a 
small amount of funds ($14,500) back into the contingency reserve. 
Funds in the reserve are estimated to be $50,100 at the end of the 2021 
fiscal period.
    The assessment rate established in this rule will continue in 
effect indefinitely unless modified, suspended, or terminated by USDA 
upon recommendation and information submitted by the Committee or other 
available information.
    Although this assessment rate will be in effect for an indefinite 
period, the Committee will continue to meet prior to or during each 
fiscal period to recommend a budget of expenses and consider 
recommendations for modification of the assessment rate. The dates and 
times of Committee meetings will be available from the Committee or 
USDA. Committee meetings are open to the public and interested persons 
may express their views at these meetings. USDA will evaluate Committee 
recommendations and other available information to determine whether 
modification of the assessment rate is needed. Further rulemaking would 
be undertaken as necessary. The Committee's 2021 fiscal period budget, 
and those for subsequent fiscal periods, will be reviewed and, as 
appropriate, approved by USDA.

Final Regulatory Flexibility Analysis

    Pursuant to requirements set forth in the Regulatory Flexibility 
Act (RFA) (5 U.S.C. 601-612), the Agricultural Marketing Service (AMS) 
has considered the economic impact of this rule on small entities. 
Accordingly, AMS has prepared this final 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 10 handlers subject to the regulation under 
the Order, and approximately 21 producers of grapes in the production 
area. Small agricultural producers are defined by the Small Business 
Administration (SBA) as those having annual receipts of less than 
$1,000,000, and small agricultural service firms have been defined as 
those whose annual receipts are less than $30,000,000 (13 CFR 121.201).
    According to the Committee data, USDA Market News Shipping Point 
Data, and National Agricultural Statistics Service (NASS), the national 
average producer price data released in 2020 for the 2019 production 
year was approximately $10.62 per 18-pound lug. Assuming that the 2020 
producer price remains the same as that for 2019 and using Committee 
data for the 2020 total grape production of 2,448,021 18-pound lugs, 
the total 2020 value of the grape crop was $25,997,983 (2,448,021 18-
pound lugs times $10.62 per 18-pound lug equals $25,997,983). Dividing 
the total grape crop value by the estimated number of producers (21) 
yields an estimated average receipt per producer of $1,237,999, which 
is above the SBA threshold for small producers.
    According to USDA Market News data, the reported terminal price for 
2020 for grapes ranged between $18.95 to $24.95 per 18-pound lug. The 
average of this range is $21.95 ($18.95 plus $24.95 divided by 2). 
Multiplying the 2020 grape total production of 2,448,021 18-pound lugs 
by the estimated average price per 18-pound lug of $21.95 equals 
$53,734,061.
    Dividing this figure by 10 regulated handlers yields estimated 
average annual handler receipts of $5,373,406, which is below the SBA 
threshold for small agricultural service firms. Therefore, using the 
above data and assuming a normal distribution, the majority of 
producers may be considered large entities while the majority of 
handlers in the production area may be classified as small entities.
    Based upon information from NASS, the grower price reported for 
grapes in 2019 was $1,180 per ton ($10.62 per 18-pound lug) of grapes. 
In order to determine the estimated assessment revenue as a percentage 
of the total grower revenue, we calculate the assessment rate ($0.040 
per 18-pound lug) times the estimated production (2,500,000 18-pound 
lugs), which equals the assessment revenue of $100,000.
    The grower revenue is calculated by multiplying the grower price of 
$10.62 per 18-pound lug times the estimated production (2,500,000 18-
pound lugs), which equals the grower revenue of $26,550,000.
    In the final step, dividing the assessment revenue by the grower 
revenue indicates that, for the 2021 fiscal period, the estimated 
assessment revenue as a percentage of total grower revenue would be 
about 0.38 percent.
    This rule increases the assessment rate collected from handlers for 
the 2021 and subsequent fiscal periods from $0.020 to $0.040 per 18-
pound lug of assessable grapes handled. The Committee unanimously 
recommended 2021 expenditures of $85,500 and an assessment rate of 
$0.040 per 18-pound lug of assessable grapes handled. The assessment 
rate of $0.040 per 18-pound lug of assessable grapes handled is $0.020 
higher than the rate currently in effect. The volume of assessable 
grapes for the 2021 fiscal period is estimated to be 2,500,000 18-pound 
lugs. Thus, the $0.040 per 18-pound lug of assessable grapes handled 
should provide $100,000 in assessment income (2,500,000 multiplied by 
$0.040). Therefore, income derived from handler assessments is expected 
to be adequate to cover budgeted expenses for the 2021 fiscal period.
    The major expenditures recommended by the Committee for the 2021 
fiscal period include $50,000 for management and compliance expenses, 
$19,500 for direct office expenses, and $16,000 for shared office, 
facilities, and maintenance expenses. Budgeted

[[Page 37215]]

expenses for the 2020 fiscal period were $56,000 for management and 
compliance, $28,500 for production research, $20,700 for direct office, 
and $15,900 for shared office, facilities, and maintenance.
    The Committee recommended increasing the assessment rate to provide 
adequate income to cover the Committee's budgeted expenses for the 2021 
fiscal period, while adding funds to its financial reserve. This action 
is expected to maintain the Committee's reserve balance at a level that 
the Committee believes is appropriate and meets the requirements of the 
Order.
    Prior to arriving at this budget and assessment rate 
recommendation, the Committee discussed various alternatives, including 
maintaining the current assessment rate of $0.020 per 18-pound lug of 
assessable grapes handled, and increasing the assessment rate by a 
different amount. However, the Committee determined that the 
recommended assessment rate should fully fund budgeted expenses and add 
funds to the contingency reserve.
    This rule increases the assessment obligation imposed on handlers. 
Assessments are applied uniformly on all handlers, and some of the 
costs may be passed on to producers. However, these costs are expected 
to be offset by the benefits derived by the operation of the Order.
    The Committee's meeting was widely publicized throughout the 
industry. All interested persons were invited to attend the meeting and 
encouraged to participate in Committee deliberations on all issues. 
Like all Committee meetings, the November 4, 2020, meeting was a public 
meeting, and all entities, both large and small, had an opportunity to 
express views on this issue. Finally, interested persons were invited 
to submit comments on this rule, including the regulatory and 
information collection 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. 0581-0189, Fruit Crops. 
No changes in those requirements will be necessary as a result of this 
rule. Should any changes become necessary, they would be submitted to 
OMB for approval.
    This rule will not impose any additional reporting or recordkeeping 
requirements on either small or large southeastern California grape 
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. USDA has not 
identified any relevant Federal rules that duplicate, overlap, or 
conflict with this final rule.
    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.
    A proposed rule concerning this action was published in the Federal 
Register on March 26, 2021 (86 FR 16085). Copies of the proposal were 
provided by the Committee to producers and handlers. Finally, the 
proposed rule was made available through the internet by USDA and the 
Office of the Federal Register. A 45-day comment period ending May 10, 
2021, was provided to allow interested persons to respond to the 
proposal. Seven comments were received.
    Five of the comments received were in favor of the assessment rate 
increase and two were neither in favor nor opposed to the proposal.
    Four of the five comments in favor were generally supportive of the 
assessment rate. The other comment in favor appeared to misunderstand 
the rule's merits, the parties affected, and its potential impact on 
the industry, but was nonetheless supportive of the action.
    Two of the comments referenced the consideration of small 
businesses and the impact of this rule. One of the comments incorrectly 
assumed that small businesses would pay a lower assessment rate than 
their larger counterparts. The comment also believed that assessments 
were paid by ``producers/growers'' and suggested that such assessments 
be proportionate to their production.
    As previously discussed in the rule, assessments are paid only by 
handlers and such assessments are applied uniformly regardless of the 
size of the handler based on the volume of product that they handle. As 
stated above, and in the proposed rule, some of the increased cost of 
assessment may be passed on to producers, but such costs are believed 
to be offset by the benefits derived by the operation of the Order. In 
addition, a RFA analysis was conducted by USDA in consideration of this 
action to ensure that the regulatory action fits the scale of 
businesses subject to the action and that small businesses will not be 
unduly or disproportionately burdened by it.
    One comment raised questions regarding what grapes are assessable 
under this rule. Further, the comment requested clarity in the role of 
the Committee in recommending the assessment increase and the 
Committee's public outreach to ensure that all interested parties were 
able to provide input.
    Under the Order, only grapes produced within the production area as 
defined in the Order are subject to assessment. Also prescribed by the 
Order, the Committee is the administrative body duly appointed by USDA 
to oversee the Order's operation. The Committee is made up of producers 
and handlers operating within the production area, and a public member. 
As such, Committee members are familiar with the program's needs and 
with the costs of goods and services in their local area. They are, 
therefore, in a position to formulate an appropriate budget and to 
recommend the assessment rate. Committee actions are recommended at 
public meetings where the meetings have been duly posted and promoted 
throughout the industry and all industry participants are encouraged to 
attend and provide input.
    Two comments mistakenly associated the assessment rate increase 
with COVID-19 and California wildfire relief efforts that would provide 
economic stimulus for the desert grape industry.
    This action is not correlated with any external event or events, 
nor any economic challenges that may have been precipitated by such 
events. The assessment rate increase is related only to the cost of the 
Committee's budgeted expenditures for the upcoming year and the 
projected size of the desert grape crop for that year.
    One comment questioned why excess assessments collected are held 
over in a financial reserve fund and requested more information with 
regards to what happens with these funds.
    Section 925.42 provides the authority for the Committee to hold 
excess funds as a reserve against future expenditures. The Committee 
may hold no more than approximately one fiscal period's expenses in 
reserve. Funds held in reserve are primarily to be used to: (1) Defray 
expenses, during any fiscal period, prior to the time the assessment 
income is sufficient to cover such expenses; and (2) cover deficits 
incurred during any fiscal period when assessment income is less than 
expenses.
    Lastly, one comment suggested that the assessment rate should only 
be established for one year and that the rate should be reassessed at 
the end of that period. The commentor felt that one year would allow 
the Committee to collect data to assess the impact of the

[[Page 37216]]

increase and determine whether it should be continued in the future.
    As stated above and in the proposed rule, while the assessment rate 
is effective for an indefinite period of time, the Committee will 
continue to meet prior to or during each fiscal period to recommend a 
budget of expenses and consider recommendations for modification of the 
assessment rate. USDA will evaluate Committee recommendations and other 
available information to determine whether modification of the 
assessment rate is needed. Notice and comment rulemaking to adjust the 
assessment rate would be undertaken as necessary.
    Accordingly, no changes will be made to the rule as proposed.
    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 recommendation submitted by the Committee and other 
available information, it is hereby found that this rule will tend to 
effectuate the declared policy of the Act.

List of Subjects in 7 CFR Part 925

    Grapes, Marketing agreements, Reporting and recordkeeping 
requirements.

    For the reasons set forth in the preamble, 7 CFR part 925 is 
amended as follows:

PART 925--GRAPES GROWN IN A DESIGNATED AREA OF SOUTHEASTERN 
CALIFORNIA

0
1. The authority citation for 7 CFR part 925 continues to read as 
follows:

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


0
2. Section 925.215 is revised to read as follows:


Sec.  925.215   Assessment rate.

    On and after January 1, 2021, an assessment rate of $0.040 per 18-
pound lug is established for grapes grown in a designated area of 
southeastern California.

Bruce Summers,
Administrator, Agricultural Marketing Service.
[FR Doc. 2021-14731 Filed 7-14-21; 8:45 am]
BILLING CODE 3410-02-P