[Federal Register: February 18, 2005 (Volume 70, Number 33)]
[Rules and Regulations]
[Page 8233-8236]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr18fe05-2]
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DEPARTMENT OF AGRICULTURE
Grain Inspection, Packers and Stockyards Administration
7 CFR Parts 810
RIN 580-AA86
United States Standards for Wheat
AGENCY: Grain Inspection, Packers and Stockyards Administration, USDA.
ACTION: Final rule.
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SUMMARY: The Grain Inspection, Packers and Stockyards Administration
(GIPSA) is revising the United States Standards for Wheat. GIPSA is
amending the grain standards to change the definition of contrasting
classes in Hard Red Winter wheat and Hard Red Spring wheat such that
Hard White wheat is not a contrasting class but is considered as wheat
of other classes. GIPSA also is amending the grain standards by adding
the sample size used to determine sample grade factors, because the
standards should transmit this information. These actions are necessary
to ensure market-relevant standards and grades and facilitate the
marketing of grain.
EFFECTIVE DATE: May 1, 2006.
FOR FURTHER INFORMATION CONTACT: Patrick McCluskey at GIPSA, USDA, STOP
3604, 1400 Independence Avenue, SW., Washington, DC 20250-3604;
Telephone (202) 720-4684; faxed to (202) 720-7883.
SUPPLEMENTARY INFORMATION:
Executive Order 12866
The Department of Agriculture is issuing this rule in conformance
with Executive Order 12866.
Executive Order 12988
Executive Order 12988, Civil Justice Reform, instructs each
executive agency to adhere to certain requirements in the development
of new and revised regulations in order to avoid unduly burdening the
court system. The final rule was reviewed under this Executive Order
and no additional related information has been obtained since then.
This final rule is not intended to have a retroactive effect. The
United States Grain Standards Act provides in Section 87g that no State
or subdivision may require or impose any requirements or restrictions
concerning the inspection, weighing, or description of grain under the
Act. Otherwise, this final rule will not preempt any State or local
laws, regulations, or policies, unless they present any irreconcilable
conflict with this rule. There are no administrative procedures which
must be exhausted prior to any judicial challenge to the provisions of
this final rule.
Regulatory Flexibility Act Certification
The Regulatory Flexibility Act (RFA) (5 U.S.C. 601 et seq.)
requires agencies to consider the economic impact of each rule on small
entities. GIPSA has determined that this final rule will not have a
significant economic impact on a substantial number of small entities,
as defined in the Regulatory Flexibility Act. Under the provisions of
the United States Grain Standards Act, grain exported from the United
States must be officially inspected and weighed. Mandatory inspection
and weighing services are provided by GIPSA at 33 export facilities.
All of these facilities are owned by multi-national corporations, large
cooperatives, or public entities that do not meet the requirements for
small entities established by the Small Business Administration. GIPSA
is amending the grain standards to change the definition of contrasting
classes in Hard Red Winter wheat and Hard Red Spring wheat such that
Hard White wheat is not a contrasting class but is considered as wheat
of other classes. GIPSA also is amending the grain standards by adding
the sample size used to determine sample grade factors, because the
standards should transmit this information. The two changes made to the
wheat standards in this final rule are needed to ensure market-relevant
standards and grades. Further, the regulations are applied equally to
all entities.
The U.S. wheat industry, including producers (approximately
240,000), handlers (approximately 6,800 domestic elevators), traders
(approximately 200 active wheat futures traders), processors
(approximately 184 flour mills), merchandisers, and exporters, are the
primary users of the U.S. Standards for Wheat and utilize the official
standards as a common trading language to market wheat. We assume that
some of the entities may be small. Further, the United States Grain
Standards Act (USGSA) (7 U.S.C. 87f-1) requires the registration of all
persons engaged in the business of buying grain for sale in foreign
commerce. In addition, those individuals who handle, weigh, or
transport grain for sale in foreign commerce must also register. The
USGSA regulations (7 CFR 800.30) define a foreign commerce grain
business as persons who regularly engage in buying for sale, handling,
weighing, or transporting grain totaling 15,000 metric tons or more
during the
[[Page 8234]]
preceding or current calendar year. At present, there are 90
registrants who account for practically 100 percent of U.S. wheat
exports, which for fiscal year (FY) 2002 totaled approximately
24,073,138 metric tons (MT). While most of the 90 registrants are large
businesses, we assume that some may be small.
Paperwork Reduction Act
Pursuant to the Paperwork Reduction Act of 1995, the existing
information collection requirements are approved under OMB Number 0580-
0013. No additional collection or recordkeeping requirements are
imposed on the public by this final rule. Accordingly, OMB clearance is
not required by section 350(h) of the Paperwork Reduction Act, 44
U.S.C. 3501 et seq., or OMB's implementing regulation at 5 CFR part
1320.
GIPSA is committed to compliance with the Government Paperwork
Elimination Act, which requires Government agencies, in general, to
provide the public the option of submitting information or transacting
business electronically to the maximum extent possible.
Background
GIPSA established the class Hard White wheat on May 1, 1990. In the
Final Rule (54 FR 48735), GIPSA stated ``that classification by
varietal kernel characteristics rather than vitreousness of the kernel
is practicable at this time for HWW (sic) and SWW (sic) since only a
few hard endosperm white * * * varieties are being produced. GIPSA
recognizes that if more hard endosperm varieties are released into the
marketplace in the future, the classification system may become less
practical.'' GIPSA further stated ``* * * if clear quality or market
distinctions develop * * * it would consider subclasses at a future
date''. At that time, a minimum visual color line was established,
which was subsequently replaced with a new color line in 1999 (Program
Bulletin 99-8). In 2001, environmental conditions caused a darker
visual appearance in some varieties of hard white, resulting in a GIPSA
decision to suspend the color line for classification purposes (Program
Notice 01-06). Under Program Notice 01-06, ``All Hard White wheat
varieties are considered Hard White wheat regardless of color.''
On June 4, 2003, GIPSA proposed in the Federal Register, (68 FR
33408) to amend the standards for wheat to create subclasses in the
class hard white. GIPSA proposed the subclass names of Hard White wheat
and Hard Amber White wheat, for wheat meeting and exceeding (darker
than) the interpretive color line, respectively. Further, GIPSA
proposed changing the definition of Contrasting Classes for Hard Red
Winter wheat and Hard Red Spring wheat such that Hard White wheat is
not a contrasting class in these two red wheat classes. Further, due to
inquiries about the portion size used to determine Maximum Count Limits
of Other Material, GIPSA proposed amending the standard to transmit
this information.
Comment Review
GIPSA published the proposed rule in the Federal Register on June
4, 2003 (68 FR 33408) with a 60-day comment period ending August 4,
2003. GIPSA received four comments during the comment period. One
comment was submitted on behalf of the Hard White Wheat Working Group
and the Hard White Wheat Advisory Committee (an aggregated wheat
industry group comprised of wheat boards, committees, or commissions of
the top ten Hard White wheat producing states; large grain
merchandisers; not for profit wheat industry groups; and a private
wheat breeding company). One comment each was received from the Kansas
Wheat Commission, one wheat producer cooperative, and one individual
wheat producer.
On the basis of the comments received and other available
information, GIPSA is implementing two of the proposed changes to the
wheat standards. The following paragraphs address comments received
regarding the proposed changes.
1. Subclass Designation
GIPSA received four comments (one aggregated industry comment in
support and three comments in opposition) on the proposal to establish
subclasses. The aggregated wheat industry comment supported subclasses.
This commenter did note that the proposal concerning adding a subclass
to the Hard White wheat class was met with a spirited discussion, both
pro and con. The commenter (1) supported the establishment of a
subclass within the Hard White Wheat class; (2) recommended changing
the subclass names to Bright Hard White Wheat for all hard white wheat
that is equal to or lighter than the interpretive color line and Hard
White Wheat for all hard white wheat that is darker than the
interpretive color line, and continue the use of an interpretive color
line and (3) recommended the use of an objective test to determine
color line rather than a subjective approach.
One comment opposed to establishment of subclasses in Hard White
wheat was received from the Kansas Wheat Commission which represents
producers responsible for production of more than 50 percent of all
Hard White wheat grown in the United States. The comment stated that
since Hard White wheat is moving in the marketplace under the current
method of grading, establishing a subclass would create a perception
that wheat does not meet the established color line is of lower
quality, resulting in discounts to producers. The commenter stated that
establishing a subclass would create supply problems in Hard White
wheat and also objected to the word ``Amber'' in the subclass name.
Another opposing commenter felt that because the color differences
are environmentally induced, and occur sporadically, grain producers
and marketers would be damaged by subclasses, vis-[agrave]-vis not
having product available to sell to the markets they had worked to
develop. Another comment opposing the proposed rule predicted
``marketing disruption and chaos resulting in economic loss to American
wheat producers is the inevitable result whenever Mother Nature gives
us a darker colored crop if these arbitrary rule changes are allowed to
become law''.
Taking into account the lack of consensus among stakeholders, GIPSA
believes that creating subclasses in Hard White wheat would not be in
the best interest of the industry. There is no market need at this
time. Based on the comments received and other available information,
GIPSA will not establish subclasses in Hard White wheat. GIPSA will,
however, maintain the Hard White wheat color line and, as currently
done, continue to certify, upon request, that the sample color exceeds
or is lighter than the color line. This provides additional information
about sample color to satisfy those customers for whom color is
important.
2. Contrasting Classes
GIPSA proposed changing the definition of Contrasting Classes for
Hard Red Winter wheat and Hard Red Spring wheat such that Hard White
wheat is not a contrasting class in these two red wheat classes. One
comment was received from the aggregated industry group in support of
the proposal. No comment was received opposing the proposal. Therefore
as set forth in the proposal, GIPSA is amending the grain standards to
change the definition of contrasting classes in Hard Red Winter wheat
and Hard Red
[[Page 8235]]
Spring wheat such that Hard White wheat is not a contrasting class but
is considered as wheat of other classes. The grade limit will remain
unchanged. For kernel identification, Hard White wheat kernels would be
determined by visual assessment and would include the dark colored,
amber, white wheat kernels, per the Grain Inspection Handbook, Book II,
Chapter 13, Section 13.26. In the case where samples challenge the
normal visual inspection process, the alkali test would be utilized to
determine kernel color (FGIS-Program Notice 01-07).
3. Sample Size
GIPSA proposed to amend the wheat standard to specify the amount of
wheat upon which sample grade factor determinations are made. No
comment was received either supporting or opposing the proposal.
Earlier versions of the standard contained this information and GIPSA
believes the standard should transmit this information. Therefore, as
set forth in the proposal, GIPSA will amend the wheat standards to
include this information.
Final Action
On the basis of these comments and other available information,
GIPSA has decided to revise the wheat standards as proposed with the
exception of establishing subclasses in Hard White wheat. This final
rule is effective on May 1, 2006, the beginning of the 2006 wheat
harvest, and will facilitate domestic and export marketing of wheat.
List of Subjects in 7 CFR Part 810
Export, grain.
0
For reasons set out in the preamble, 7 CFR Part 810 is amended as
follows:
PART 810--OFFICIAL UNITED STATES STANDARDS FOR GRAIN
0
1. The authority citation for Part 810 continues to read as follows:
Authority: Pub. L. 94-582, 90 Stat. 2867, as amended (7 U.S.C.
71 et. seq.)
0
2. Section 810.2202 is amended by revising paragraph (b) (1) to read as
follows:
810.2202 Definition of other terms.
* * * * *
(b) * * *
(1) Durum wheat, Soft White wheat, and Unclassed wheat in the
classes Hard Red Spring wheat and Hard Red Winter wheat.
* * * * *
0
3. Section 810.2204 is amended by revising paragraph (a) to read as
follows:
Sec. 810.2204 Grades and grade requirements for wheat.
(a) Grades and grade requirements for all classes of wheat, except
Mixed wheat.
Grades and Grade Requirements
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Grades U.S. Nos.
Grading factors --------------------------------------------
1 2 3 4 5
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Minimum pound limits of:
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Test weight per bushel:
Hard Red Spring wheat or White Club wheat...................... 58.0 57.0 55.0 53.0 50.0
All other classes and subclasses............................... 60.0 58.0 56.0 54.0 51.0
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Maximum percent limits of:
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Defects:
Damaged kernels................................................
Heat (part of total)....................................... 0.2 0.2 0.5 1.0 3.0
----------
Total...................................................... 2.0 4.0 7.0 10.0 15.0
==========
Foreign material............................................... 0.4 0.7 1.3 3.0 5.0
Shrunken and broken kernels.................................... 3.0 5.0 8.0 12.0 20.0
----------
Total \1\.................................................. 3.0 5.0 8.0 12.0 20.0
==========
Wheat of other classes: \2\....................................
Contrasting classes............................................ 1.0 2.0 3.0 10.0 10.0
----------
Total \3\.................................................. 3.0 5.0 10.0 10.0 10.0
==========
Stones......................................................... 0.1 0.1 0.1 0.1 0.1
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Maximum count limits of:
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Other material in one kilogram:
Animal filth................................................... 1 1 1 1 1
Castor beans................................................... 1 1 1 1 1
Crotalaria seeds............................................... 2 2 2 2 2
Glass.......................................................... 0 0 0 0 0
Stones......................................................... 3 3 3 3 3
Unknown foreign substances..................................... 3 3 3 3 3
----------
Total \4\.................................................. 4 4 4 4 4
==========
Insect-damaged kernels in 100 grams................................ 31 31 31 31 31
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U.S. Sample grade is Wheat that:
[[Page 8236]]
(a) Does not meet the requirements for U.S. Nos. 1, 2, 3, 4, or 5; or.......................................
(b) Has a musty, sour, or commercially objectionable foreign odor (except smut or garlic odor); or..........
(c) Is heating or of distinctly low quality. ...............................................................
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\1\ Includes damaged kernels (total), foreign material, shrunken and broken kernels.
\2\ Unclassed wheat of any grade may contain not more than 10.0 percent of wheat of other classes.
\3\ Includes contrasting classes.
\4\ Includes any combination of animal filth, castor beans, crotalaria seeds, glass, stones, or unknown foreign
substance.
* * * * *
Dated: February 15, 2005.
David R. Shipman,
Deputy Administrator, Grain Inspection, Packers and Stockyards
Administration.
[FR Doc. 05-3140 Filed 2-17-05; 8:45 am]