[Federal Register Volume 76, Number 107 (Friday, June 3, 2011)]
[Proposed Rules]
[Pages 32088-32102]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-13495]


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DEPARTMENT OF AGRICULTURE

Agricultural Marketing Service

7 CFR Part 1205

[Doc.  AMS-CN-11-0026; CN-11-002]


Cotton Board Rules and Regulations: Adjusting Supplemental 
Assessment on Imports

AGENCY: Agricultural Marketing Service, USDA.

ACTION: Proposed rule.

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SUMMARY: The Agricultural Marketing Service (AMS) is proposing the 2011 
amendments to the Cotton Board Rules and Regulations by increasing the 
value assigned to imported cotton for the purpose of calculating 
supplemental assessments collected for use by the Cotton Research and 
Promotion Program. An amendment is required to adjust the supplemental 
assessment and ensure that assessments collected on imported raw cotton 
and the cotton content of imported cotton-containing products and 
assessments collected on domestically produced cotton are the same. In 
addition, AMS proposes to update textile trade conversion factors used 
to determine the raw fiber equivalents of imported cotton-containing 
products and to expand the number of Harmonized Tariff Schedule (HTS) 
statistical reporting numbers from the current 706 to 2,371 to assess 
all imported cotton and cotton-containing products.

DATES: Comments must be received on or before July 5, 2011.

ADDRESSES: Interested persons are invited to submit written comments 
concerning this proposed rule to Shethir M. Riva, Chief, Research and 
Promotion Staff, Cotton and Tobacco Programs, AMS, USDA, Stop 0224, 
1400 Independence Ave., SW., Room 2635-S, Washington, DC 20250-0224. 
Comments should be submitted in triplicate. Comments may also be 
submitted electronically through http://www.regulations.gov. All 
comments received will be made available for public inspection at 
Cotton and Tobacco Programs, AMS, USDA, Stop 0224, 1400 Independence 
Ave., SW., Room 2635-S, Washington, DC 20250-0224 during regular 
business hours. A copy of this notice may be found at http://www.regulations.gov.

[[Page 32089]]


FOR FURTHER INFORMATION CONTACT: Shethir M. Riva, Chief, Research and 
Promotion Staff, Cotton and Tobacco Programs, AMS, USDA, Stop 0224, 
1400 Independence Ave., SW., Room 2635-S, Washington, DC 20250-0224, 
telephone (540) 361-2726, facsimile (202) 690-1718, or e-mail at 
Shethir.Riva@ams.usda.gov.

SUPPLEMENTARY INFORMATION: 

Executive Order 12866

    The Office of Management and Budget has waived the review process 
required by Executive Order 12866 for this action.

Executive Order 12988

    This proposed rule has been reviewed under Executive Order 12988, 
Civil Justice Reform. It is not intended to have retroactive effect.
    The Cotton Research and Promotion Act (7 U.S.C. 2101-2118) (Act) 
provides that administrative proceedings must be exhausted before 
parties may file suit in court. Under Section 12 of the Act, any person 
subject to an order may file with the Secretary of Agriculture 
(Secretary) a petition stating that the order, any provision of the 
plan, or any obligation imposed in connection with the order is not in 
accordance with law and requesting a modification of the order or to be 
exempted therefrom. Such person is afforded the opportunity for a 
hearing on the petition. After the hearing, the Secretary would rule on 
the petition. The Act provides that the District Court of the United 
States in any district in which the person is an inhabitant, or has his 
principal place of business, has jurisdiction to review the Secretary's 
ruling, provided a complaint is filed within 20 days from the date of 
the entry of ruling.

Background

Import Assessment

    Amendments to the Act were enacted by Congress under Subtitle G of 
Title XIX of the Food, Agriculture, Conservation, and Trade Act of 1990 
(Pub. L. 101-624, 104 Stat. 3909, November 28, 1990). These amendments 
contained two provisions that authorized changes in the funding 
procedures for the Cotton Research and Promotion Program.
    These provisions are: (1) The authority to assess imported cotton 
and cotton products; and (2) the termination of the right of cotton 
producers to demand a refund of assessments.
    As amended, the Cotton Research and Promotion Order (7 CFR part 
1205) (Order) was approved by cotton producers and importers voting in 
a referendum held July 17-26, 1991, and the amended Order was published 
in the Federal Register on December 10, 1991 (56 FR 64470). A proposed 
rule implementing the amended Order was published in the Federal 
Register on December 17, 1991 (56 FR 65450). Implementing rules were 
published on July 1 and 2, 1992 (57 FR 29181), and (57 FR 29431), 
respectively.
    This proposed rule would increase the value assigned to imported 
cotton in the Cotton Board Rules and Regulations (7 CFR 
1205.510(b)(2)). The total value of assessments levied is determined 
using a two-part assessment. The first part of the assessment is levied 
on the weight of cotton imported at a rate of $1 per 500-pound bale of 
cotton or $1 per 226.8 kilograms of cotton. The second part of the 
assessment--known as the supplemental assessment--is levied at a rate 
of five-tenths of one percent of the value of imported raw cotton or 
the cotton content of imported cotton-containing products. The 
supplemental assessment is combined with the per bale equivalent to 
determine the total value and assessment of the imported cotton or 
imported cotton-containing products.
    Section 1205.510(b)(2) of the Cotton Research and Promotion Rules 
and Regulations provides for the calendar year weighted average price 
received by U.S. farmers for Upland cotton to represent the value of 
domestically produced cotton, imported raw cotton and the cotton 
content of imported cotton-containing products. Use of the same 
weighted average price ensures that assessments paid on domestically 
produced cotton and assessments on imported cotton are the same. The 
source of price statistics is Agricultural Prices, a publication of the 
National Agricultural Statistics Service (NASS) of the Department of 
Agriculture. The current value of imported cotton as published in the 
Federal Register (74 FR 32400) for the purpose of calculating 
assessments on imported cotton is $0.010880 per kilogram. Using the 
weighted average price received by U.S. farmers for Upland cotton for 
the calendar year 2010, the new value of imported cotton is $0.012665 
per kilogram.
    An example of the complete assessment formula and how the figures 
are obtained is as follows:
    One bale is equal to 500 pounds.
    One kilogram equals 2.2046 pounds.
    One pound equals 0.453597 kilograms.

One Dollar per Bale Assessment Converted to Kilograms

    A 500-pound bale equals 226.8 kg. (500 x .453597).
    $1 per bale assessment equals $0.002 per pound or 0.2 cents per 
pound (1/500) or $0.004409 per kg or 0.4409 cents per kg. (1/226.8).

Supplemental Assessment of 5/10 of One Percent of the Value of the 
Cotton Converted to Kilograms

    The 2010 calendar year weighted average price received by producers 
for Upland cotton is $0.749 per pound or $1.651 per kg. (0.749 x 
2.2046).
    Five tenths of one percent of the weighted average price in kg. 
equals $0.008256 per kg. (1.651 x .005).
Total Assessment
    The total assessment per kilogram of raw cotton is obtained by 
adding the $1 per bale equivalent assessment of $0.004409 per kg. and 
the supplemental assessment $0.008256 per kg., which equals $0.012665 
per kg.
    The current assessment on imported cotton is $0.01088 per kilogram 
of imported cotton. The proposed assessment is $0.012665, an increase 
of $0.001785 per kilogram. This increase reflects the increase in the 
average weighted price of Upland Cotton Received by U.S. Farmers during 
the period January through December 2010. Should the volume of cotton 
products imported into the U.S. in 2011 remain at the same level as in 
2009, one could expect the revised assessment rate to generate 
approximately an additional $6.67 million in revenue (3.736 billion 
kilograms * $0.001785/kilogram = $6.67 million).
    The Import Assessment Table in section 1205.510(b)(3) indicates the 
conversion factors used to estimate cotton equivalent quantities and 
the total assessment per kilogram due for each HTS number subject to 
assessment. Since the weighted average price of cotton that serves as 
the basis of the supplemental assessment calculation has changed, total 
assessment rates reported in this table have been revised.

Conversion Factors

    USDA's Economic Research Service (ERS) regularly publishes textile 
trade data which includes estimates of the amount of cotton contained 
in imported cotton products. The raw cotton equivalent is the estimated 
weight of the cotton fiber in the garment adjusted for waste that 
occurs in spinning, weaving, and cutting. To estimate raw cotton 
equivalents, ERS uses a set of cotton textile trade conversion factors. 
The Agricultural Marketing Service (AMS)

[[Page 32090]]

currently uses a subset of these conversion factors to estimate cotton 
equivalents contained in cotton textile products imported into the 
U.S., which serve as the basis for collecting cotton import assessments 
for the Cotton Research and Promotion Program.
    ERS periodically evaluates how technology-driven improvements in 
textile production efficiencies--reductions in yarn waste--impacts the 
total quantity of raw cotton consumed in the production of various 
textile products. Such an evaluation was conducted initially in 1989 
shortly after the U.S. adopted the international system of harmonized 
tariff codes, again in 2000, and most recently in 2009. The 2009 
evaluation of conversion factors, which was based on two published 
studies \1\, concluded that technological advancements in textile 
production processes have significantly changed since the current 
conversion factors were established. Furthermore, factors used to 
convert imported textile products into raw cotton bale-equivalent 
quantities were revised. Results of the ERS study were published in 
Cotton and Wool Outlook, October 13, 2009 \2\.
---------------------------------------------------------------------------

    \1\ MacDonald, Stephen. China's Cotton Supply and Demand: Issues 
and Impact on the World Market, CWS-071-01, November 2007, U.S. 
Department of Agriculture, Economic Research Service, http://www.ers.usda.gov/publications/CWS/2007/11Nov/CWS07I01/.
    MacDonald, Stephen and Sarah Whitley. Fiber Use for Textiles and 
China's Cotton Textile Exports, CWS-08i-01, March 2009, U.S. 
Department of Agriculture, Economic Research Service, http://www.ers.usda.gov/Publications/CWS/2009/03Mar/CWS08i01/.
    \2\ Meyer, Leslie, Stephen MacDonald and James Kiawu. Cotton and 
Wool Outlook, CWS-09h, October 13, 2009, U.S. Department of 
Agriculture, Economic Research Service, http://usda.mannlib.cornell.edu/usda/ers/CWS//2000s/2009/CWS-10-13-2009.pdf.
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    An analysis of these cotton trade conversion factors for a subset 
of cotton textile imports on which cotton import assessments are 
collected revealed that the differences between the current conversion 
factors and revised conversion factors represent an approximate 4.7 
percent reduction in cotton (177 million kilogram) or $1.93 million 
less in assessments (177 million kilograms * $0.01088/kilogram = $1.93 
million). Therefore, AMS proposes to adopt in the Import Assessment 
Table that appears in section 1205.510(b)(3)(ii) in the regulations the 
revised textile trade conversion factors to reflect updated textile 
technologies and to more accurately estimate the amount of cotton 
contained in cotton-containing imports. This will assure a more fair 
and accurate assessment of imported cotton-containing products.

HTS Codes

    In a 2010 report, ERS determined that the current set of HTS codes 
used by AMS for research and promotion assessment purposes accounted 
for 89 percent of the total U.S. cotton product imports leaving 11 
percent (442 million kilograms) of imported cotton products unassessed. 
By expanding AMS' list to include 2,371 HTS codes and using the current 
assessment rate of $0.01088 per kilogram, the Cotton Research and 
Promotion Program could have collected approximately $4.81 million more 
in 2009. Based on these findings, the Board requested that AMS take 
necessary steps to publish its annual import assessment update with 
updated conversion factors and to increase the number of HTS codes from 
706 to 2,371 so that the program collects as close to 100 percent on 
imported cotton and cotton-containing products, as it does with the 
domestic producer assessment. In response to the Board request, AMS 
proposes to expand the list of HTS codes included in 7 CFR part 1205 to 
include all HTS codes for cotton and cotton-containing products for the 
collection of import assessments.
    The expected total impact of proposed regulatory changes can be 
estimated by assuming the volume of cotton products imported into the 
U.S. in 2011 remains at the same level as in 2009. Revising the 
assessment rate, conversion factors, and expanding the number of 
cotton-containing HTS code from 706 to 2,371 is expected to yield a net 
increase in revenues for the Cotton Research and Promotion Program of 
approximately $10.025 million (24.6 percent increase).
    AMS arrived at net revenue increase by incrementally taking into 
account each of the proposed changes in this rule--the assessment 
change, updating the cotton conversion factors, and updating the HTS 
codes.
    First, by applying the proposed increased assessment rate to the 
current volume of cotton-equivalent imports--as determined by applying 
the current textile trade conversion factors to the 2009 trade volumes 
of products represented by the current set of 706 HTS codes--would have 
increased revenues by $6.669 million (3.736 billion kg * ($0.012665/kg 
-$0.01088/kg) = $6.669 million) to a total of $40.648 million.
    Then, by applying updated textile trade conversion factors to the 
2009 trade volume of products represented by the current set of 706 HTS 
codes would decrease the volume of cotton-equivalent imports assessed 
by 177 million kg to a total of 3.559 billion kg. Valued using the 
revised assessment rate would reduce total revenues by $2.242 million 
(177 million kg * $0.012665/kg = -$2.242 million) to a total value of 
$45.075 million.
    Lastly, AMS applied the updated textile trade conversion factors to 
the set of cotton-containing products represented by all 2,371 HTS 
codes would increase the 2009 volume of cotton-containing imports 
assessed by 442 million kg to a total of 4.001 billion kg. Valuing the 
increased volume using the revised assessment rate would increase 
revenues by $5.598 million (0.442 billion kg * $0.12665/kg = $5.598 
million) to a total of $50.673 million.
    A 30-day comment period is provided to comment on the changes to 
the Cotton Board Rules and Regulations proposed herein. This period is 
deemed appropriate because this proposal would increase the assessments 
paid by importers to carry out programs under the Cotton Research and 
Promotion Order and would ensure that importers are paying the same 
assessment as domestic cotton producers. Accordingly, the changes 
proposed in this rule, if adopted, should be implemented as soon as 
possible in order to facilitate the collection in a timely manner.

Regulatory Flexibility Act

    In accordance with the Regulatory Flexibility Act (RFA) [5 U.S.C. 
601-612], AMS has examined the economic impact of this rule on small 
entities. The purpose of the RFA is to fit regulatory actions to the 
scale of businesses subject to such action so that small businesses 
will not be unduly or disproportionately burdened. The Small Business 
Administration defines, in 13 CFR part 121, small agricultural 
producers as those having annual receipts of no more than $750,000 and 
small agricultural service firms (importers) as having receipts of no 
more than $7,000,000. This proposed rule would only affect importers of 
raw cotton and cotton-containing products, raising the total value of 
assessments paid by the importers under the Cotton Research and 
Promotion Order. An estimated 13,000 importers are subject to the rules 
and regulations issued pursuant to the Cotton Research and Promotion 
Order. Most are considered small entities as defined by the Small 
Business Administration.
    Under the Cotton Research and Promotion Program, assessments are 
used by the Cotton Board to finance research and promotion programs 
designed to increase consumer demand for Upland cotton in the United 
States and international markets. In its most recent certified public 
accountant audit

[[Page 32091]]

(for 2009), producer assessments totaled $30.3 million and importer 
assessments totaled $29.7 million. AMS has proposed to increase the 
assessment rate to $0.012665 per kilogram, which is based on the 12-
month average of monthly weighted average prices received by U.S. 
cotton producers. The proposed change assures that importers will be 
assessed at the same rate as U.S. cotton producers. Should the volume 
of cotton products imported into the U.S. in 2011 remain at the same 
level as in 2009, one could expect the revised assessment rate to 
generate an additional $5.05 million in revenue.
    AMS also proposes to revise the conversion factors and expand the 
number of HTS codes used to calculate the importer assessment. ERS 
revised factors used to convert imported textile products into raw 
cotton bale-equivalent quantities to account for improvements in 
textile production efficiencies. The estimated adoption of the revised 
conversion factors would lead to a 4.7 percent reduction in cotton or a 
projected $1.93 million in assessments. Coupled with the revised 
conversion factors is the proposal to expand the assessed HTS codes 
from 706 to 2,371. Inclusion of these additional HTS codes will allow 
the Program to assess almost 100 percent of imported raw cotton and 
cotton-containing products, as it does with the domestic producer 
assessment. By expanding AMS' list to include 2,371 HTS codes and using 
the current assessment rate of 1.088 cents per kilogram, the Cotton 
Research and Promotion Program could have collected approximately $4.8 
million more in 2009.
    Under the Cotton Research and Promotion Regulations, importers 
meeting certain criteria are exempt from assessments. Importers with 
line-items appearing on U.S. Customs and Border Protection 
documentation with value of the cotton contained therein results of an 
assessment of two dollars ($2.00) or less will not be subject to 
assessments. In addition, imported cotton and products may be exempt 
from assessment if the cotton content of products is U.S. produced, 
cotton other than Upland, or imported products that are eligible to be 
labeled as 100 percent organic under the National Organic Program (7 
CFR part 205) and who is not a split operation.
    The rule does not impose additional recordkeeping requirements on 
importers.
    There are no Federal rules that duplicate, overlap, or conflict 
with this rule.

Paperwork Reduction

    In compliance with Office of Management and Budget (OMB) 
regulations (5 CFR part 1320) which implement the Paperwork Reduction 
Act (PRA) (44 U.S.C. Chapter 35) the information collection 
requirements contained in the regulation to be amended have been 
previously approved by OMB and were assigned control number 0581-0093. 
This rule does not result in a change to the information collection and 
recordkeeping requirements previously approved.

List of Subjects in 7 CFR Part 1205

    Advertising, Agricultural research, Cotton, Marketing agreements, 
Reporting and recordkeeping requirements.

    For the reasons set forth in the preamble 7 CFR part 1205 is 
proposed to be amended as follows:

PART 1205--COTTON RESEARCH AND PROMOTION

    1. The authority citation for part 1205 continues to read as 
follows:

    Authority:  7 U.S.C. 2101-2118.

    2. In Sec.  1205.510, paragraph (b)(2) and the table in paragraph 
(b)(3)(ii) are revised to read as follows:


Sec.  1205.510  Levy of assessments.

* * * * *
    (b) * * *
    (2) The 12-month average of monthly weighted average prices 
received by U.S. farmers will be calculated annually. Such weighted 
average will be used as the value of imported cotton for the purpose of 
levying the supplemental assessment on imported cotton and will be 
expressed in kilograms. The value of imported cotton for the purpose of 
levying this supplemental assessment is 1.2665 cents per kilogram.
    (3) * * *
    (ii) * * *

               Import Assessment Table (Raw Cotton Fiber)
------------------------------------------------------------------------
                                                      Conv.
                      HTS No.                         fact.    Cents/kg.
------------------------------------------------------------------------
5201000500........................................          0     1.2665
5201001200........................................          0     1.2665
5201001400........................................          0     1.2665
5201001800........................................          0     1.2665
5201002200........................................          0     1.2665
5201002400........................................          0     1.2665
5201002800........................................          0     1.2665
5201003400........................................          0     1.2665
5201003800........................................          0     1.2665
5204110000........................................     1.0526     1.3332
5204200000........................................     1.0526     1.3332
5208112020........................................     1.0852     1.3744
5208112040........................................     1.0852     1.3744
5208112090........................................     1.0852     1.3744
5208114020........................................     1.0852     1.3744
5208114040........................................     1.0852     1.3744
5208114060........................................     1.0852     1.3744
5208114090........................................     1.0852     1.3744
5208116000........................................     1.0852     1.3744
5208118020........................................     1.0852     1.3744
5208118090........................................     1.0852     1.3744
5208124020........................................     1.0852     1.3744
5208124040........................................     1.0852     1.3744
5208124090........................................     1.0852     1.3744
5208126020........................................     1.0852     1.3744
5208126040........................................     1.0852     1.3744
5208126060........................................     1.0852     1.3744
5208126090........................................     1.0852     1.3744
5208128020........................................     1.0852     1.3744
5208128090........................................     1.0852     1.3744
5208130000........................................     1.0852     1.3744
5208192020........................................     1.0852     1.3744
5208192090........................................     1.0852     1.3744
5208194020........................................     1.0852     1.3744
5208194090........................................     1.0852     1.3744
5208196020........................................     1.0852     1.3744
5208196090........................................     1.0852     1.3744
5208198020........................................     1.0852     1.3744
5208198090........................................     1.0852     1.3744
5208212020........................................     1.0852     1.3744
5208212040........................................     1.0852     1.3744
5208212090........................................     1.0852     1.3744
5208214020........................................     1.0852     1.3744
5208214040........................................     1.0852     1.3744
5208214060........................................     1.0852     1.3744
5208214090........................................     1.0852     1.3744
5208216020........................................     1.0852     1.3744
5208216090........................................     1.0852     1.3744
5208224020........................................     1.0852     1.3744
5208224040........................................     1.0852     1.3744
5208224090........................................     1.0852     1.3744
5208226020........................................     1.0852     1.3744
5208226040........................................     1.0852     1.3744
5208226060........................................     1.0852     1.3744
5208226090........................................     1.0852     1.3744
5208228020........................................     1.0852     1.3744
5208228090........................................     1.0852     1.3744
5208230000........................................     1.0852     1.3744
5208292020........................................     1.0852     1.3744
5208292090........................................     1.0852     1.3744
5208294020........................................     1.0852     1.3744
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5208296020........................................     1.0852     1.3744
5208296090........................................     1.0852     1.3744
5208298020........................................     1.0852     1.3744
5208298090........................................     1.0852     1.3744
5208312000........................................     1.0852     1.3744
5208314020........................................     1.0852     1.3744
5208314040........................................     1.0852     1.3744
5208314090........................................     1.0852     1.3744
5208316020........................................     1.0852     1.3744
5208316040........................................     1.0852     1.3744
5208316060........................................     1.0852     1.3744
5208316090........................................     1.0852     1.3744
5208318020........................................     1.0852     1.3744
5208318090........................................     1.0852     1.3744
5208321000........................................     1.0852     1.3744
5208323020........................................     1.0852     1.3744
5208323040........................................     1.0852     1.3744
5208323090........................................     1.0852     1.3744
5208324020........................................     1.0852     1.3744
5208324040........................................     1.0852     1.3744

[[Page 32092]]

 
5208324060........................................     1.0852     1.3744
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5208325020........................................     1.0852     1.3744
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5208330000........................................     1.0852     1.3744
5208392020........................................     1.0852     1.3744
5208392090........................................     1.0852     1.3744
5208394020........................................     1.0852     1.3744
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5208398020........................................     1.0852     1.3744
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5208412000........................................     1.0852     1.3744
5208414000........................................     1.0852     1.3744
5208416000........................................     1.0852     1.3744
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5208421000........................................     1.0852     1.3744
5208423000........................................     1.0852     1.3744
5208424000........................................     1.0852     1.3744
5208425000........................................     1.0852     1.3744
5208430000........................................     1.0852     1.3744
5208492000........................................     1.0852     1.3744
5208494010........................................     1.0852     1.3744
5208494020........................................     1.0852     1.3744
5208494090........................................     1.0852     1.3744
5208496010........................................     1.0852     1.3744
5208496020........................................     1.0852     1.3744
5208496030........................................     1.0852     1.3744
5208496090........................................     1.0852     1.3744
5208498020........................................     1.0852     1.3744
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5208512000........................................     1.0852     1.3744
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5208521000........................................     1.0852     1.3744
5208523020........................................     1.0852     1.3744
5208523035........................................     1.0852     1.3744
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5208523045........................................     1.0852     1.3744
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5208524055........................................     1.0852     1.3744
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5208525020........................................     1.0852     1.3744
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5208591000........................................     1.0852     1.3744
5208592015........................................     1.0852     1.3744
5208592025........................................     1.0852     1.3744
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5209520020........................................     1.0852     1.3744
5209520040........................................     1.0852     1.3744
5209590015........................................     1.0852     1.3744
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5205152000........................................     1.0000     1.2665
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[[Page 32093]]

 
5205220020........................................     1.0440     1.3222
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[[Page 32094]]

 
6109100065........................................     1.0022     1.2692
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------------------------------------------------------------------------

* * * * *

    Authority:  7 U.S.C. 2101-2118.

    Dated: May 24, 2011.
Rayne Pegg,
Administrator, Agricultural Marketing Service.
[FR Doc. 2011-13495 Filed 6-2-11; 8:45 am]
BILLING CODE 3410-02-P