Importation From Europe of Rhododendron Established in Growing Media

DEPARTMENT OF AGRICULTURE

Animal and Plant Health Inspection Service

7 CFR Part 319

[Docket No. 89-154-5]

RIN 0579-AB00

Importation From Europe of Rhododendron Established in Growing

Media

AGENCY: Animal and Plant Health Inspection Service, USDA.

ACTION: Final rule.

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SUMMARY: We are amending the regulations governing the importation of

plants established in growing media to allow the importation of

rhododendron from Europe under conditions designed to prevent the

introduction of dangerous plant pests. This action will relieve

restrictions on the importation of rhododendron plants from Europe

while continuing to protect against introduction of plant pests.

EFFECTIVE DATE: December 30, 1999.

FOR FURTHER INFORMATION CONTACT: Mr. Wayne D. Burnett, Import

Specialist, Phytosanitary Issues Management Team, PPQ, APHIS, 4700

River Road Unit 140, Riverdale, MD 20737-1236; (301) 734-6799.

SUPPLEMENTARY INFORMATION:

Background

The regulations in 7 CFR part 319 prohibit or restrict the

importation of plants, plant parts, and plant products into the United

States to prevent the introduction of plant pests. The regulations

contained in ``Subpart--Nursery Stock, Plants, Roots, Bulbs, Seeds, and

Other Plant Products,'' Secs. 319.37 through 319.37-14 (referred to

below as the regulations), prohibit or restrict, among other things,

the importation of living plants, plant parts, and seeds for

propagation.

Section 319.37-8, paragraph (a) of the regulations requires, with

certain exceptions, that plants offered for importation into the United

States be free of sand, soil, earth, and other growing media. This

requirement is intended to help prevent the introduction of plant pests

that might be present in the growing media; the exceptions to the

requirement take into account factors that mitigate that plant pest

risk. Those exceptions, which are found in paragraphs (b) through (e)

of Sec. 319.37-8, consider either the origin of the plants and growing

media (paragraph (b)), the nature of the growing media (paragraphs (c)

and (d)), or the use of a combination of growing conditions, approved

media, inspections, and other requirements (paragraph (e)).

On September 7, 1993, we published in the Federal Register (58 FR

47074-47084, Docket No. 89-154-1) a proposed rule to amend the

regulations to allow the importation of five genera of plants

established in growing media. That proposal is referred to below as

``the proposed rule.'' We accepted comments on the proposed rule for a

period of 90 days, ending December 6, 1993.

In a final rule published in the Federal Register on January 13,

1995, and effective on February 13, 1995 (60 FR 3067-3078, Docket No.

89-154-2), the Animal and Plant Health Inspection Service (APHIS)

finalized provisions for the importation of Alstroemeria, Ananas,

Anthurium, and Nidularium species. The final rule postponed action on

Rhododendron species established in growing media to allow consultation

regarding the action with the U.S. Fish and Wildlife Service, in

accordance with the Endangered Species Act.

On April 30, 1998, we published in the Federal Register (63 FR

23683-23685, Docket No. 89-154-3) a notice reopening and extending the

comment period on the proposal to allow the importation of Rhododendron

species established in growing media. The notice also announced that,

as a result of formal consultation with the Fish and Wildlife Service

in accordance with Section 7 of the Endangered Species Act, APHIS

intended to limit the proposed action to Rhododendron species imported

from Europe only. The limitation to Europe was made because there is

little importation of rhododendron from places outside Europe, and

limited data on pests of rhododendron outside Europe. We believe the

data available on rhododendron pest distribution outside Europe, and

pest interceptions on rhododendron commodities from outside Europe, is

insufficient to support a conclusion of negligible risk for importation

of rhododendron from all countries at this time.

Comments were required to be received on or before June 1, 1998. We

received two requests from trade organizations to extend the period

during which comments would be accepted. In response, on June 1, 1998,

we published in the Federal Register (63 FR 29675-29676, Docket No. 89-

154-4) a notice extending the comment period until July 30, 1998.

During this reopened comment period of April 30 through July 30,

1998, we received 11 comments on the rhododendron proposal.

Additionally, we received approximately 60 comments from domestic

nurseries and nursery associations, importers, State governments, and

environmental interest groups during the original 1993 comment period

on the proposed rule that specifically addressed importation of

rhododendron. The issues addressed by all of these comments are

discussed below.

Comment: APHIS identified rhododendron pests of concern for this

rule using reports from the scientific literature and reports of pest

interceptions associated with rhododendron at ports under the

[[Page 66711]]

premise that these sources would reveal all pests of concern. This

premise is fallacious because the lack of citations in the scientific

literature may merely reflect scientists not choosing to address pests

that attack rhododendron, and a lack of interception reports may

reflect the small amount of trade in rhododendron in growing media.

This approach misses potential pest problems.

Response: The purpose of the literature search and review of

interception reports was to identify all known pests of concern and to

collate information about these pests that would also allow us to make

informed assumptions concerning potential unknown pests of concern.

Pest risk analysis is a combination of the processes of pest risk

assessment (determining whether a pest is harmful and evaluating its

introduction potential) and pest risk management (the decision-making

process of reducing the risk of introduction of a quarantine pest). It

is standard scientific procedure in conducting a pest risk assessment

to review the available scientific literature and interception records,

conduct surveys, and communicate with foreign and domestic scientists

and government officials. The process of pest risk assessment is a

well-established procedure within APHIS. Some of the earliest pest risk

assessments were done over 75 years ago and have proved their utility

over time, because program requirements based on them have successfully

excluded or controlled the quarantine pests that were the targets of

the assessments.

When conducting a pest risk assessment, the relative richness or

paucity of information on particular pests is a factor in the analysis.

If in-depth pest data is lacking and there is reason to believe pests

of concern are not well characterized, the assessment employs

conservative assumptions that maximize the potential hazard presented

by the uncharacterized pests.

Scientists choose to study particular pests for a variety of

reasons, but economic factors clearly direct much scientific research

toward pests of economic importance. Pests of rhododendron and other

major ornamental plants are clearly of economic importance, and a great

deal of research has in fact been directed toward these pests.

Interception records vary with the commodity, source, volume, host

susceptibility, and other factors. Rhododendron have been imported from

Europe in varying amounts for over 50 years, both as cargo and in

passenger baggage. Most of the pest interceptions have been made in

passenger baggage, presumably in plants taken from the wild. It is true

that there are few records of interception of pests associated with

commercial importation of rhododendron because our regulations have

previously prohibited importation of rhododendron in soil or growing

media, and there is limited commercial incentive to import bare-rooted

plants. We believe it is unproductive for commenters to support

limiting rhododendron imports to bare-rooted plants only, and then to

argue that to justify importing the plants in growing media we would

need years of interception records for this (prohibited) trade in

rhododendron in growing media. When considering changes to the

regulations, we cannot collect data about activities we have prohibited

(except for occasional data about shipments smuggled in violation of

the regulations).

Overall, we believe there is sufficient pest information about

which pests occur in Europe and in the United States to analyze the

pest risk and reach a sound biological decision on how to handle the

rhododendron in growing media.

Comment: APHIS wrongly evaluated pests based on their known damage

potential. Many pests now causing harm in the United States were

innocuous in their place of origin and only caused significant harm

when introduced into an area free of their natural enemies.

Response: One of the elements of pest risk assessment is an

evaluation of the potential damage that may be caused by a pest using a

set of criteria. While some introduced pests have found a favorable

niche in the United States, others have never become serious pests. The

establishment of a pest is determined by many factors, such as climate,

survival, finding a suitable host, etc., which are considered in a pest

risk assessment. The absence of natural enemies may play an important

role in the establishment of a pest, especially for insects. APHIS is

well aware of this natural phenomenon and has considered it in

conducting its pest risk assessments. The basis of a good quarantine

system is to prevent the introduction of the pests before they reach

our shores.

Comment: The short-spored rhododendron rust caused by Chrysomyxa

ledi var. rhododendri should be considered a pest of quarantine

significance, as it causes serious defoliation and its spores are

spread by wind. Presence of this disease would not be revealed by the

proposal's greenhouse growing requirements, and the Kahn report (a

report of the APHIS committee of researchers who prepared worksheets on

pests and evaluations of pest risk prior to this rulemaking) notes that

``if the host/rust interaction were in the incubation period at the

time of inspection, the infection would not be detected.''

Response: APHIS considers Chrysomyxa ledi var. rhododendri a

quarantine pest because it can cause economic losses to both

Rhododendron and Picea species. When it is detected on intercepted

plant material, the plant material is seized and destroyed. Concerning

its epidemiology and other characteristics, the fungus may cause

defoliation and the spores are indeed spread by wind, like most rusts.

For infection to occur the disease pathway must lead to the vicinity of

a target host. The conditions and safeguards in the proposed rule are

sufficient to preclude establishment of the disease in the United

States. While there are growth periods when signs of the pathogen are

not obvious in the host plant, there are signs of infection visible to

close scrutiny. That is the reason for the lengthy observed growing

periods required by the proposed rule for both mother stock and

progeny: to provide an opportunity to detect incipient infection that

might not be obvious during a one-time inspection. Besides the regular

surveillance of the plants during the long growing period, the detailed

inspection at a U.S. quarantine inspection station at the first port of

entry provides additional safety.

Comment: The proposal cites APHIS' experience in importing plants

in media without introducing pests as one basis for the proposal and

suggests there have been no problems with plants currently allowed to

be imported in media in 20 years. This is not true. Pest movement on

plant material used in greenhouse production was the likely cause for

spread of a serpentine leafminer (Liriomyza trifoili (Burgess)), a pea

leafminer (L. huidobrensis (Blanchard)), the beet armyworm (Spodoptera

exigua (Hubner)), the western flower thrips (Frankliniella occidentalis

(Pergrande)), and the sweetpotato whitefly (Bemisia tabaci

(Gennadius)). Also, in comments on an earlier rule, Dr. Ken Horst

identified several cases where U.S. growers had to destroy material

imported in media due to disease. Also, simply pointing to the

successes of the current program does not justify extending it.

Response: The experience of growing certain plants in growing

media, as cited by APHIS, forms the basis of a model for a systems

approach that uses modern and advanced horticultural practices to

[[Page 66712]]

prevent the introduction and spread of plant pests. The commenter

correctly identifies pest movement on plant material used in greenhouse

production as the likely cause for the spread of the enumerated pests,

and we do not doubt that those and other pests have spread from

unregulated greenhouse cultivation where infested plants were grown.

The growing of plant material under controlled conditions such as those

in the regulations will prevent or greatly reduce the spread and

movement of plant pests. The pests cited by the commenter did not

originate from greenhouse cultivation under the system described in the

proposal. Greenhouse production in accordance with the proposed

regulations would have prevented the dissemination of such pests.

APHIS is not aware of the details of the specific cases where U.S.

growers had to destroy material imported in media due to disease as

reported by Dr. Ken Horst, because the entry of these pests apparently

was not reported to APHIS or State quarantine officials at the time of

their discovery. When a quarantine pest is discovered, it should be

reported immediately to APHIS or State quarantine officials so its

eradication can be confirmed and the pathway of entry studied. Since

APHIS did not have the opportunity to investigate these cases at the

time, APHIS cannot comment on the incidents cited by the commenter.

Comment: The current state of the science of risk analysis still

acknowledges major areas of uncertainty when it comes to assessing the

actual impacts of new pest introductions; the full extent of the damage

they may cause cannot be accurately estimated. This uncertainty makes

it unwise to adopt the proposed action for rhododendron.

Response: Pest risk analysis is the best tool currently available

to evaluate and manage pest risk. It is being standardized, refined,

and promoted globally. Uncertainties are acknowledged in the risk

analysis process, and for this reason APHIS uses great care in arriving

at its decisions and involves the best and most competent risk analysts

available to the agency among its staff and outside resources. While

all the information about pest damage caused to rhododendron may not be

fully known, there is sufficient and reliable information to evaluate

importing rhododendron under the conditions we proposed. Should pest

risk change at any time, APHIS is prepared to change any or all aspects

of the program, including denying approval of greenhouses, shutting

them down, or making any other changes necessary to the program to

safeguard the United States against invading pests.

Comment: Increasingly, APHIS quarantine decisions appear to be

driven by trade policy (attempting to expand and liberalize

opportunities for international trade under the World Trade

Organization agreement) rather than the primary APHIS mandate of pest

prevention based on science. We believe, consistent with the Office of

Technology Assessment report, ``Agriculture, Trade, and the

Environment: Achieving Complimentary Policies,'' that APHIS should not

try to achieve an unrealistic zero risk standard, but should seek to

target controls to protect those agricultural systems that are at

greatest risk from harmful nonindigenous species. We further believe

that nursery crops represent an ``at greatest risk'' category with

regard to pests associated with foreign rhododendron in media.

Response: APHIS' first and primary responsibility is to protect

U.S. agriculture from foreign quarantine pests. The United States is a

signatory to World Trade Organization (WTO) agreements and is bound to

comply with certain WTO policies guiding national activities to protect

plant health, and it expects that other countries do the same. The

United States strongly supports and sponsors initiatives to achieve

global standardization in plant quarantine activities. APHIS is

applying these standards in complying with the agreements, which is in

the interest of U.S. agriculture. Nursery stock has been, and continues

to be, an area of great concern to APHIS. We attempt to employ the most

effective, practical, and cost-effective strategies to prevent the

introduction of plant pests, including exclusion of the host plant when

necessary. We do not and cannot employ a ``zero risk standard.'' It is

not possible to eliminate all risk. We reduce risk to a negligible

level. Our regulations establish controls and prioritize agency

resources to maximize protection to those agricultural systems that are

at greatest risk.

Comment: The proposed visual inspection of stock in participating

European greenhouses would be largely ineffective because many pests

are not readily found by inspection at some life stages.

Response: In this rule APHIS requires a lengthy pre-importation

detention period or holding period in the greenhouses in foreign

countries. This should give plant inspectors time for inspection and

evaluation of plants and facilities to determine whether the

rhododendron plant material meets entry requirements. By the same

token, this long detention period allows more time for the development

of pests so that they may be visible to the inspector. If the inspector

determines that methods other than a visual inspection are necessary to

determine the presence of a pest, then suspect material may be

investigated, detained, treated, tested, etc. Additionally, all

shipments of rhododendron will be directed to an APHIS Plant Inspection

Station at a port of entry for inspection and final release.

Comment: The proposed pesticide dip offers no detail on active

ingredient, rate, or efficacy against pests. Also, in some cases,

pesticide treatments may mask, but not eliminate, pest presence.

Response: APHIS does not normally include informational details of

a pesticide such as active ingredients, dose rate, or efficacy against

pests in a rule because, in many cases, to do so would be to repeat a

large volume of scientific and testing data that was used in the

process of approving the pesticide for use against targeted pests. The

approval process for pesticides is a separate function of other Federal

agencies and agencies of foreign governments. APHIS' discussion of a

pesticide is usually limited to discussing that a pesticide is in fact

approved for use against a target pest in a given commodity and that

use of the pesticide meets operational needs of APHIS and the affected

industry. The exporter is required to use only pesticides prescribed by

the plant protection service of the exporting country and must inform

the inspector prior to their use. The recommended dip with a pesticide

is a precautionary treatment and just one more additional safeguard, so

while the masking of pest presence by pesticide use may occasionally be

a problem, other components of the systems approach of the regulations

compensate for this possible effect. It is APHIS policy that, should

the pesticide make inspection difficult or hinder inspection in any

way, the shipment or consignment may be denied. Such pesticide dips are

not unique to the rhododendron import rule; they are also recommended

and are effectively used in the United States on other imported and

domestic plant and plant products.

Comment: Inspection at the port of entry under the best conditions

is still not adequate to detect many pests. Further, the reality is

that APHIS inspects many cargoes at a rate of less than one-half of one

percent, and allows unsound inspection practices such as ``tailgate''

inspections and allowing brokers to select the samples to be

[[Page 66713]]

inspected. Because the proposal partly relies on inspection to mitigate

the risks, these inadequacies mean the proposal will not achieve its

claimed level of risk reduction.

Response: Inspection at ports of entry is an internationally

accepted strategy in plant quarantine. It is rarely ever used alone,

and in addition to visual examination by an inspector, may include any

number of techniques to arrive at a decision. In this rule, inspection

at the port of entry is not the only, or even primary, protection.

Additional safeguards include growing site inspection, monitoring,

surveillance, certification, and specific growing conditions in the

country of origin to reduce the risk of the introduction of pests to a

negligible level. Port of entry inspection of bare-rooted rhododendron

has been used successfully for many years. Now that the regulations

allow importation of the plants in growing media, we are retaining port

of entry inspection but are also requiring additional safeguards.

The rate or percentages employed by APHIS in the inspection of

cargoes varies depending on the pest risk, origin of the commodity, and

other factors connected with the type of shipment. An inspection of 100

percent of the commodity may be ordered when the conditions warrant.

The many thousands of interceptions made by the United States and other

countries are evidence that inspection has considerable merit for some

pests, but the volume of interceptions is likewise a sign that

inspection alone is not enough and that a systems approach that

addresses growing conditions in the country of origin is needed to keep

dangerous pests that are not visible to inspectors from arriving at

U.S. ports. This rule establishes such a systems approach.

Comment: APHIS bases part of its argument on the lack of pest

problems associated with imports of bare-rooted rhododendron in recent

years. However, this trade amounts to only a few thousand dollars a

year, compared to an expectation of importing many times that volume of

plants in media under the proposed rule. The minuscule amount of bare-

root imports provides no basis for assessing risk.

Response: APHIS makes a logical comparison between the importation

of bare-rooted rhododendron and its importation in approved growing

media. If pest problems are not associated with bare-rooted plants,

which are grown in the open field and exposed to the environment, one

might conclude that the risk is even less when the plants are grown

under a system of controlled conditions in a greenhouse--barring the

possibility that there are pests associated with the media but not the

plant. The proposal included strict media standards to preclude the

presence of pests associated with the media. Furthermore, the

importation of plants in growing media as proposed should eliminate the

occasional pest problems that were associated with importing bare-

rooted plants, by providing an even safer and economically more

attractive method to import rhododendron. Consider that at one time

ferns were imported bare-rooted, and there were many pest problems both

for the importers and for APHIS. Producing them in growing media under

controlled conditions resolved the problems to the satisfaction of both

the importers and APHIS. The system for importing ferns in growing

media has worked for a large volume of plants imported over an extended

period of time. In view of this and the more limited data from

importing small volumes of bare-rooted rhododendron over many years, it

is reasonable to believe the rule's requirements for importing

rhododendron will work.

Comment: The Endangered Species Act consultation did not assess the

risk to listed species other than Rhododendron in the family Ericaceae,

such as five Arctostaphylos species that occur in California and may be

vulnerable to pests introduced by rhododendron.

Response: Pest risk assessment for plants is generally done at the

genera level, and for this rule it was done for the entire genus

Rhododendron. Based on pest and host data collected in the early stages

of assessment, projects may be expanded to include other plant genera.

If data showed Arctostaphylos to be a host of any of the pests

associated with Rhododendron, the genus would have been seriously

considered in the analysis. We have not received any specific pest or

host data in comments and are not aware of any that indicates it is

necessary to perform an assessment for the entire family Ericaceae. The

Fish and Wildlife Service was a great help in evaluating any effects

pests of rhododendron would have on endangered species. Consultation

with the Fish and Wildlife Service was a valid and legally mandated

approach to reaching an understanding of these matters.

Comment: The pest risk potential associated with imported

rhododendron will remain largely unknown and uncharacterized until

APHIS performs additional pest risk analyses, particularly focused on

horticultural and environmental impacts, to determine the possible

impact on all hosts, both native and agricultural.

Response: Pest risk analysis follows specific guidelines in order

that the assessments may be as uniform and consistent as possible. When

circumstances warrant, there may be a reevaluation of the pest risk. It

would appear from the investigation, reviews, and evaluations already

conducted for rhododendron that an additional pest risk assessment at

this time is not necessary, particularly in the absence of new data or

pertinent information on pest risk. The importation of rhododendron in

growing media under the prescribed conditions is limited to imports

from Europe. The cultivation practices used for rhododendron in Europe,

and the environmental effects of the horticulture and pest issues

associated with it, are fairly well known and were considered in

analyzing pest risk. No number of additional pest risk assessments

could ever give us the precise effect of all possible introduction

scenarios on all U.S. hosts, both native and agricultural.

Comment: The proposed 0.2 mm screen size for greenhouses will not

adequately prevent the entry of airborne pests or pathogens without

additional requirements for door openings, air filtration systems, etc.

The Zandvoort paper, ``Wind Dispersal of Puccinia horiana of

Chrysanthemum,'' clearly illustrates how rust spores can easily enter

and exit greenhouses via ventilation windows, for example.

Response: The proposed 0.2 mm screen size for greenhouses is

intended for those vents where outside air is necessary. The 0.2 mm

screen size is considered very small. It is so small that many believe

it to be a hindrance to adequate air circulation. It is a much smaller

opening than has been approved for other genera now permitted to be

grown in media. The very small screen size and the additional

safeguards for greenhouses growing plants in media are believed to be

more than satisfactory.

Regarding door openings, Sec. 319.37-8(e)(2)(ii) of the regulations

requires that greenhouses be equipped with automatic closing doors to

reduce pest entry into the greenhouses. This requirement was intended

to limit the entry of both insects and wind-borne spores through

entryways. Based on this comment, we have reexamined options for

greater quarantine security at entryways, and have concluded that it is

advisable to require a double-door system for all greenhouses growing

articles in accordance with Sec. 319.37-8(e). We also have discovered

that, for some years, the inspectors employed by

[[Page 66714]]

plant protection services in Europe who inspect and approve greenhouses

and mother stock in accordance with the regulations have been enforcing

a double-door requirement. Therefore, requiring double doors would

improve greenhouse security without adding any expense for greenhouses

already growing articles in accordance with the regulations. Since this

final rule only addresses requirements for rhododendron, at this time

we are amending the greenhouse door provision only for greenhouses

growing rhododendron articles, but we intend to initiate rulemaking to

require double doors for all greenhouses growing articles in accordance

with Sec. 319.37-8(e). This final rule requires that for Rhododendron

species only, the plants must be grown solely in a greenhouse equipped

with automatic closing double doors of an airlock type, so that

whenever one of the doors in an entryway is open the other is closed.

This automatic double door requirement will create an additional

barrier in the entryway.

APHIS only requires air filtration systems and other extreme forms

of containment for high risk quarantine facilities that are used to

maintain high risk material and dangerous pests. These must be

constructed in the manner described by the commenter to prevent the

escape of dangerous pests. We do not believe such a high level of

security is appropriate for greenhouses growing plants from healthy

stock where the plants are under surveillance for pests and disease

over a considerable period, as required for rhododendron. Should

serious pests or diseases be discovered in a greenhouse operating under

this rule, additional containment requirements will be imposed as

needed. Should the pest risk for growing rhododendron at any location

or site be elevated for any reason, the greenhouses for growing them

will not be approved.

The Zandvoort paper, ``Wind Dispersal of Puccinia horiana of

Chrysanthemum,'' is not contested. Puccinia horiana is a fast moving

rust and has largely been distributed with planting material around the

globe. This distribution, however, resulted from international trade in

chrysanthemums under conditions far less stringent than those required

for importing rhododendron into the United States.

Therefore, for the reasons given in the proposed rule and in this

document, we are adopting the proposed rule as a final rule, and are

adding the requirement of automatic closing double doors in

greenhouses. We are also making minor, nonsubstantive word changes.

Executive Order 12866 and the Regulatory Flexibility Act

This rule has been reviewed under Executive Order 12866. The rule

has been determined to be significant for the purposes of Executive

Order 12866 and, therefore, has been reviewed by the Office of

Management and Budget. We have prepared a final regulatory flexibility

analysis and cost-benefit analysis for the rule, which are summarized

below.

This final rule allows Rhododendron spp. to be imported from Europe

in growing media if the plants are grown in secure greenhouses and meet

other conditions to exclude plant pests and diseases. This action was

originally proposed on September 7, 1993 (58 FR 47074-47084, Docket No.

89-154-1) as part of a proposal to allow importation from all countries

of five genera of plants in growing media. Based on comments, action on

Rhododendron spp. was deferred while an Endangered Species Act

consultation was performed between APHIS and the U.S. Fish and Wildlife

Service (FWS). Importation of the other four genera (Alstroemeria,

Ananas, Anthurium, and Nidularium) has been allowed since the effective

date of the final rule published on January 13, 1995 (60 FR 3067-3078,

Docket No. 89-154-2). APHIS recently concluded its consultation with

the FWS and determined that there were no endangered species concerns

that would preclude importing potted Rhododendron spp. from Europe.

Comments on the initial regulatory flexibility analysis indicated

that there is little existing economic data on import trade in plants

in growing media and that neither risks nor economic effects can be

projected on the basis of the small amount of data available for this

trade. This fact is acknowledged in the risk assessments prepared for

this action and in the economic analysis below, which explain our

analytical basis for projecting risks and economic effects. No changes

to the proposed requirements were made based on these comments.

Alleviating unnecessary quarantine restrictions often can be

equated to elimination of trade barriers. Removal of trade barriers has

two broad economic objectives. First, freer trade between countries

results in lower consumer prices and increases the variety and quality

of goods and services available in the local economy. Second, freer

trade encourages a nation's resources to be invested in areas of

comparative advantage. This enhances the economic well-being of all

countries.

U.S. consumers are direct beneficiaries of government policies that

promote freer trade. Domestic consumers benefit by having access to

higher quality goods and services at lower prices. Freer trade

increases consumer purchasing power by lowering prices and eliminating

the deadweight loss associated with quarantine restrictions and other

trade barriers.

Relaxation of trade barriers also results in changes in producer

revenue. The amount of total producer income can increase or decrease

depending on the elasticity of demand. When U.S. trade restrictions are

lifted, a portion of industry profit will be transferred from domestic

to foreign producers. Additionally, any increase in the amount of total

producer income will go to foreign producers.

The economic effects on producers and consumers of potted

Rhododendron spp. can be analyzed by comparing potential changes in

consumer and producer surpluses. Producer surplus is measured by

estimating the changes in profit (economic rent) based on potential

fluctuations in product prices and quantities. Consumer surplus is the

change in aggregate purchasing power and consumer utility when the

price and quantity of goods change. An increase (decrease) in supply

will decrease (increase) prices and translate into an increase

(decrease) in consumer purchasing power (consumer surplus). The net

effect on society of regulatory changes is the sum of the estimated

changes in consumer and producer surpluses.

This analysis focuses on the U.S. wholesale plant market.

Therefore, domestic consumers of potted Rhododendron spp. include

retail firms, landscape brokers, contractors, dealers, and other retail

or garden centers.

Initially, APHIS does not expect this rule to have an economic

effect on the domestic potted plant market because phytosanitary

restrictions will preclude any increased availability of imported

Rhododendron spp. in the domestic market. European producers will be

required to meet stringent phytosanitary standards before plants can be

shipped to the United States. To date, no European facilities have

received APHIS approval to export Rhododendron spp. in growing media to

the United States. European producers would likely be required to

upgrade existing greenhouses or construct new production units before

receiving permission to ship products to the United States. Time will

be required for European producers to upgrade and adjust their

production practices to meet

[[Page 66715]]

the new requirements. Therefore, APHIS anticipates an 8- to 10-month

delay between publication of the final rule and the appearance of

potted European-origin Rhododendron spp. in the domestic marketplace.

The total value of the domestic nursery and floriculture crop

(nursery stock, plants, roots, bulbs, seeds, and other plant products)

industry is estimated to be about $6.1 billion. This represents about

3.7 percent of the value of domestic agriculture.\1\ Annual U.S.

floriculture crop sales total about $3.5 billion. Therefore,

floriculture crop sales account for about 57.4 percent of total cash

receipts for the U.S. nursery and floriculture industry.\2\ The

estimated value of annual potted Rhododendron spp. production in the

United States totals about $48.3 million annually (Table 1). This

accounts for about 1.4 percent of the annual sales volume for domestic

floriculture producers.

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\1\ U.S. Department of Commerce, Bureau of the Census, 1992

Census of Agriculture; October 1994.

\2\ USDA, National Agricultural Statistics Service, 1997

Floriculture Crops Summary; April 1988.

\3\ We used 1997 production data for finished florist azaleas as

a proxy measure for total Rhododendron spp. production in this

analysis. We did not include nursery azaleas and rhododendron

production in this analysis due to data limitations associated with

the 1987 Census of Horticultural Specialties.

Table 1.--Estimated U.S. Production of Rhododendron spp.

----------------------------------------------------------------------------------------------------------------

No. of wholesale No. of plants Estimated value

Genera nurseries sold of annual sales

----------------------------------------------------------------------------------------------------------------

Rhododendron spp.\3\................................... 493 14,225,000 $48,334,000

----------------------------------------------------------------------------------------------------------------

Source: Floriculture Crops Summary (1998).

Imports of Rhododendron spp. in media would increase the supply and

establish a new market equilibrium. A larger quantity of plants would

be available at a lower price. Consumer and producer surpluses would be

affected by the supply shift. The consumer surplus would be expanded

and the producer surplus would increase.

In summary, this rule will allow U.S. consumers to purchase more

potted Rhododendron spp. at lower prices. This increases U.S. consumer

welfare and decreases U.S. producer surplus. Therefore, this rule will

result in a net welfare gain to U.S. society.

We developed low- and high-impact scenarios to estimate the

potential change in net U.S. welfare. This study assumes that prices

will drop by 10 and 30 percent in the low- and high-impact scenarios,

respectively (see page 7 of the full economic impact analysis).

Analysis indicates that this rule will increase net welfare for

U.S. society by between $0.339 and $0.484 million when prices are

assumed to drop by 10 percent (Table 2). A 10 percent price reduction

increases domestic consumer welfare by between $4.933 and $5.078

million. However, U.S. producers of Rhododendron spp. will incur

welfare losses totaling about $4.595 million (Table 2).

When prices are reduced by 30 percent, net welfare is increased by

between $3.047 and $4.353 million (Table 2). Consumer welfare would be

increased by between $15.380 and $16.686 million, and producer welfare

would be decreased by about $12.333 million (Table 2).

Table 2.--Estimated Welfare Effects Assuming Unitary Supply Elasticities and Price Decreases of 10 and 30 Percent

--------------------------------------------------------------------------------------------------------------------------------------------------------

Ed=-0.4 Ed=-0.6 Ed=-1.0

-----------------------------------------------------------------------------------------------------------

Estimated percentage price decrease U.S. U.S. Net U.S. U.S. Net U.S. U.S. Net

producer consumer welfare producer consumer welfare producer consumer welfare

loss gain impact loss gain impact loss gain impact

--------------------------------------------------------------------------------------------------------------------------------------------------------

Es=1.0 Million Dollars

Million Dollars

Million Dollars

--------------------------------------------------------------------------------------------------------------------------------------------------------

Scenario 1: 10 Percent...................... -4.595 4.933 0.339 -4.595 4.982 0.387 -4.595 5.078 0.484

Scenario 2: 30 Percent...................... -12.333 15.380 3.047 -12.333 15.815 3.482 -12.333 16.686 4.353

--------------------------------------------------------------------------------------------------------------------------------------------------------

The Regulatory Flexibility Act requires that APHIS specifically

consider the economic effect of rules on ``small'' business entities.

The Small Business Administration (SBA) has set forth size criteria by

Standard Industrial Classification (SIC), which was used as a guide in

determining which economic entities meet the definition of a ``small''

business. This final rule will have a minor economic effect on small

business entities.

The SBA does not maintain specific size standards for domestic

entities that produce potted Rhododendron spp. Therefore, this analysis

uses the size standards established for Retail Nurseries, Lawn and

Garden Supply Stores (SIC code 5261). The SBA's definition of a

``small'' entity included in the Retail Nurseries, Lawn and Garden

Supply Stores classification is one that collects less than $3.5

million in annual receipts.

Rhododendron spp. are grown by about 493 domestic producers (Table

1). Nurseries that collect less than $3.5 million in annual receipts

are considered ``small'' for the purposes of this analysis. APHIS

estimates that all of these nurseries are ``small'' according to the

above criteria.\4\ These nurseries are diversified operations that

produce many varieties of potted plants and other greenhouse products.

Therefore, we anticipate that the rule will not have a significant

economic effect on small producers.

---------------------------------------------------------------------------

\4\ Note that the definition of a ``small'' nursery has changed

since publication of the final rule for importation of Alstroemeria,

Ananas, Anthurium, and Nidularium. At that time a ``small'' nursery

was defined as having annual sales of $1 million or less.

---------------------------------------------------------------------------

The SBA definition of a ``small'' business engaged in the import/

export business is one that employs no more than 100 employees. The

number of

[[Page 66716]]

firms that may qualify as a ``small'' business under this definition

cannot be determined. Small importers will likely benefit from the

rule. The rule will enable some ``small'' importers to enhance their

income through imports of Rhododendron spp. in growing media.

Small retailers will benefit from importation of Rhododendron spp.

in growing media. The rule will enhance the availability and quality of

potted plants in the U.S. market. Plant retailers will benefit from

lower wholesale prices and will likely pass any savings on to their

customers. This would increase annual sales volume and revenue.

Summary

This rule will allow importation from Europe of Rhododendron spp.

in growing media. The regulations will require that imported

Rhododendron spp. originate from secure greenhouses and meet other

conditions to exclude plant pests and diseases.

During 1997, about 14.2 million potted Rhododendron spp. valued at

$48.3 million were produced in the United States.\5\ We developed low-

and high-impact scenarios to estimate potential changes in net U.S.

welfare. This study assumes that prices will drop by 10 and 30 percent

in the low- and high-impact scenarios, respectively.

---------------------------------------------------------------------------

\5\ Production data for finished florist azaleas was used as a

proxy measure for all domestic Rhododendron spp. production. Nursery

azaleas and rhododendron production were not included in this

analysis due to data limitations associated with the 1987 Census of

Horticultural Specialties.

---------------------------------------------------------------------------

This rule will increase net welfare for U.S. society by between

$0.339 and $0.484 million if prices drop by 10 percent. The rule will

increase the welfare of domestic consumers of Rhododendron spp. by

between $4.933 and $5.078 million if prices drop by 10 percent.

However, U.S. producers of Rhododendron spp. will incur welfare losses

totaling about $4.595 million.

If prices are reduced by 30 percent, net welfare will increase by

between $3.047 and $4.353 million, consumer welfare will increase by

between $15.380 and $16.686 million, and producer welfare will decrease

by about 12.333 million.

Rhododendron spp. are grown by about 493 domestic producers.

Nurseries that collect less than $3.5 million in annual receipts are

considered ``small'' for the purposes of this analysis. APHIS estimates

that all of these nurseries are ``small'' according to the above

criteria. These nurseries are diversified operations that produce many

varieties of potted plants and other greenhouse products. Therefore, we

anticipate that the rule will not have a significant economic effect on

small producers.

Executive Order 12988

This final rule has been reviewed under under Executive Order

12988, Civil Justice Reform. This rule allows the importation from

Europe of Rhododendron established in growing media. State and local

laws and regulations regarding articles imported under this rule will

be preempted while the articles are in foreign commerce. Some nursery

stock is imported for immediate distribution and sale to the consuming

public and will remain in foreign commerce until sold to the ultimate

consumer. The question of when foreign commerce ceases in other cases

must be addressed on a case-by-case basis. No retroactive effect will

be given to this rule, and this rule will not require administrative

proceedings before parties may file suit in court challenging this

rule.

National Environmental Policy Act

An environmental assessment and finding of no significant impact

have been prepared for this rule. The assessment provides a basis for

the conclusion that the importation of Rhododendron from Europe will

not present a risk of introducing or disseminating plant pests and will

not have a significant impact on the quality of the human environment.

Based on the finding of no significant impact, the Administrator of the

Animal and Plant Health Inspection Service has determined that an

environmental impact statement need not be prepared.

The environmental assessment and finding of no significant impact

were prepared in accordance with: (1) the National Environmental Policy

Act of 1969, as amended (NEPA)(42 U.S.C. 4321 et seq.), (2) regulations

of the Council on Environmental Quality for implementing the procedural

provisions of NEPA (40 CFR parts 1500-1508), (3) USDA regulations

implementing NEPA (7 CFR part 1b), and (4) APHIS' NEPA Implementing

Procedures (7 CFR part 372).

Copies of the environmental assessment and finding of no

significant impact are available for public inspection at USDA, room

1141, South Building, 14th Street and Independence Avenue, SW.,

Washington, DC, between 8 a.m. and 4:30 p.m., Monday through Friday,

except holidays. Persons wishing to inspect copies are requested to

call ahead on (202) 690-2817 to facilitate entry into the reading room.

In addition, copies may be obtained by writing to the individual listed

under FOR FURTHER INFORMATION CONTACT.

Paperwork Reduction Act

This rule contains no new information collection or recordkeeping

requirements under the Paperwork Reduction Act of 1995 (44 U.S.C. 3501,

et seq.). All information collection requirements associated with this

rulemaking have been previously approved by OMB and assigned control

number 0579-0049.

List of Subjects in 7 CFR Part 319

Bees, Coffee, Cotton, Fruits, Honey, Imports, Logs, Nursery Stock,

Plant diseases and pests, Quarantine, Reporting and recordkeeping

requirements, Rice, Vegetables.

Accordingly, we are amending 7 CFR part 319 as follows:

PART 319--FOREIGN QUARANTINE NOTICES

1. The authority citation for part 319 continues to read as

follows:

Authority: 7 U.S.C. 150dd, 150ee, 150ff, 151-167, 450, 2803, and

2809; 21 U.S.C. 136 and 136a; 7 CFR 2.22, 2.80 and 371.2(c).

2. Section 319.37-8 is amended as follows:

a. In paragraph (e) introductory text, by adding the phrase

``Rhododendron from Europe,'' immediately before the phrase ``and

Saintpaulia.''

b. In paragraph (e)(2)(ii), the second sentence, by adding the

phrase ``(0.2 mm for greenhouses growing Rhododendron spp.)''

immediately after the phrase ``0.6 mm''.

c. In paragraph (e)(2)(vii), by removing the word ``and,''

immediately after the word ``pests;''.

d. In paragraph (e)(2)(viii), by removing the period at the end of

the paragraph and adding a semicolon in its place.

e. By adding new paragraphs (e)(2)(ix) and (e)(2)(x) to read as

follows:

Sec. 319.37-8 Growing media.

* * * * *

(e) * * *

(2) * * *

(ix) For Rhododendron species only, the plants must be propagated

from mother plants that have been visually inspected by an APHIS

inspector or an inspector of the plant protection service of the

exporting country and found free of evidence of diseases caused by the

following pathogens: Chrysomyxa ledi var. rhododendri, Erysiphe

cruciferarum, Erysiphe rhododendri, Exobasidium vaccinnum and vaccinum

var. japonicum, and Phomopsis theae; and

[[Page 66717]]

(x) For Rhododendron species only, the plants must be grown solely

in a greenhouse equipped with automatic closing double doors of an

airlock type, so that whenever one of the doors in an entryway is open

the other is closed, and the plants must be introduced into the

greenhouse as tissue cultures or as rootless stem cuttings from mother

plants that:

(A) Have received a pesticide dip prescribed by the plant

protection service of the exporting country for mites, scale insects,

and whitefly; and

(B) Have been grown for at least the previous 6 months in a

greenhouse that meets the requirements of Sec. 319.37-8(e)(2)(ii).

Done in Washington, DC, this 19th day of November 1999.

Craig A. Reed,

Administrator, Animal and Plant Health Inspection Service.

[FR Doc. 99-30994 Filed 11-29-99; 8:45 am]

BILLING CODE 3410-34-P