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###### Department of Agriculture

###### Agricultural Marketing Service 

          - 7 CFR Part 1205 
          - [Docket No. AMS-CN-09-0027; CN-08-003] 

# AGENCY:

Agricultural Marketing Service, USDA. 

# ACTION:

Proposed rule with request for comments.

# SUMMARY:

This proposed rule would establish procedures which the Department of Agriculture (USDA) will use in conducting a referenda considering amendments to the Cotton Research and Promotion Order (7 CFR part 1205) (Order) implementing section 14202 of the Food, Conservation, and Energy Act of 2008 (Pub. L. 110-246), herinafter the “2008 Farm Bill.” USDA is considering amendments to the Order, in a separate action, and referendum procedures would need to be in place prior for the industry to vote and consider these amendments. Referenda among cotton producers and cotton importers are required by the Cotton Research and Promotion Act (7 U.S.C. 2101-2118) (Act) to implement, amend, continue, or when appropriate to suspend, or to terminate the Order or any of its provisions. The provisions of this rule would be used for these referenda. 

# DATES:

Comments must be received on or before June 15, 2009. 

# 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 2637-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 2637-S, Washington, DC 20250-0224 during regular business hours. A copy of this notice may be found at:                         *http://www.regulations.gov.*

# 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 2637-S, Washington, DC 20250-0224, telephone (202) 720-6603, facsimile (202) 690-1718, or e-mail at                         *Shethir.Riva@ams.usda.gov.*

# SUPPLEMENTARY INFORMATION:

## Executive Order 12866

The Office of Management and Budget (OMB) 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. This proposed rule would not preempt any State or local laws, regulations, or policies, unless they present an irreconcilable conflict with this rule. The 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.

## Regulatory Flexibility Act and Paperwork Reduction Act 

Pursuant to requirements set forth in the Regulatory Flexibility Act (RFA) [5 U.S.C. 601-612], the Agricultural Marketing Service has considered the economic effect of this action on small entities and has determined that its implementation will not have a significant economic impact on a substantial number of small entities. There are currently approximately 18,000 producers, and approximately 16,000 importers that are subject to the order. In 13 CFR part 121, the Small Business Administration (SBA) defines small agricultural producers as those having annual receipts of no more than $750,000 and small agricultural service firms (handlers) as those having annual receipts of no more than $7.0 million. The majority of these producers and importers are small businesses under the criteria established by the SBA. 

                    This proposed rule would establish the procedures under which cotton producers and importers vote on                           ( print page 26811)                        whether they approve the amendments to the Order. This proposal would add a new subpart, which establishes procedures to future referenda. The proposed subpart covers definitions, voting, instructions, ballots, the referendum report, and confidentiality of information.                 

USDA will keep cotton producers and importers who are eligible to vote informed throughout the referendum process to ensure that they are aware of and are able to participate. USDA will also publicize information regarding the referendum process so that trade associations and related industry media can be kept informed. 

Voting in the referendum is optional; however, if cotton producers and importers choose to vote, the burden of voting is minimal and necessary to determine whether or not they favor passage of the amendments to the Order. 

In accordance with the Office of Management and Budget (OMB) regulation 5 CFR part 1320 that implements the provisions of the Paperwork Reduction Act of 1995 (44 U.S.C. Chapter 35) has been previously approved by OMB and assigned OMB Control Number 0581-0093. 

USDA considered electronic voting, but the use of computers is not universal. Conducting the referendum from Farm Service Agency county offices and the USDA, Washington, DC office would be more cost-effective and reliable. 

## Background 

The Act established a national cotton research and promotion program—administered by the Board—that is financed through cotton producer and cotton importer industry assessments and subject to oversight by AMS. This program of promotion, research, and consumer information is designed to strengthen the position of cotton in the marketplace and to establish, maintain, and expand markets for Upland cotton. The program is funded by assessments levied on each bale or bale equivalent of cotton at a rate of $1 per bale with a supplemental assessment not to exceed one percent of the value of lint of each bale. 

The 2009 Board is composed of 38 members and 38 alternate members (23 producer and 15 importer members and alternate members) and one consumer advisor. The Act directed the Board to contract with a separate organization to conduct the research and promotion projects. The Board contracts with Cotton Incorporated (CI) to conduct the Program. CI uses assessment dollars to advance the quality of and demand for cotton fiber through its operating divisions: (1) Global Product Marketing, (2) Consumer Marketing, (3) Agricultural Research and (4) Textile Research, and (5) Strategic Planning. 

                    This proposed rule would establish procedures which the USDA will use in conducting a referenda under the Act. USDA is considering amendments to the Order to implement section 14202 of the 2008 Farm Bill (Notice of hearing published in the                     **Federal Register**                     at 73 FR 72747 on December 1, 2008), and referendum procedures would need to be in place prior for the industry to vote and consider these amendments. Referenda among cotton producers and cotton importers are required by the Act to implement, amend, continue, or when appropriate, to suspend, or to terminate the Order or any of its provisions.                 

A 10-day comment period is determined to be appropriate because these proposed eligibility and participation requirements are substantially the same as the eligibility and participation requirements used in cotton sign-ups that appear in the Code of Federal Regulations at 7 CFR 1205.10-1205.30, and in previous referenda; participation is voluntary; and this rule, if adopted, should be made effective as soon as possible to consider amendments to the Order authorized under the 2008 Farm Bill. All written comments received in response to this rule by the date specified will be considered prior to finalizing this action. 

# 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 part 1205 continues to read as follows: 

Authority:7 U.S.C. 2101-2118 and 7 U.S.C. 7401. 

2. Part 1205 is proposed to be amended by adding a Subpart to read as follows: 

        Subpart—Procedures for the Conduct of Referenda in Connection With Cotton Research and Promotion Order 1205.200 
General. 
1205.201 
Definitions. 
1205.202 
Agencies through which a referendum shall be conducted. 
1205.203 
Voting eligibility. 
1205.204 
Voting. 
1205.205 
Canvass of ballots. 
1205.206 
Reporting results of referendum. 
1205.207 
Challenge of correctness of county summary of ballots. 
1205.208 
Disposition of ballots and records. 
1205.209 
Confidential Information. 
1205.210 
Additional instructions and forms. 

# Subpart—Procedures for the Conduct of Referenda in Connection With Cotton Research and Promotion Order 

§ 1205.200 

Referenda for the purpose of ascertaining whether producers and importers favor the issuance, continuance, amendment, suspension, or termination of the Cotton Research and Promotion Order shall be conducted in accordance with this subpart. 

§ 1205.201 

                                (a)                                 *Act*                                 means the Cotton Research and Promotion Act, as amended (7 U.S.C. 2101-2118; Pub. L. 89-502, as amended).                             

                                (b)                                 *Administrator*                                 means the Administrator of the Agricultural Marketing Service, or any officer or employee of USDA to whom authority has been delegated to act in the Administrator's stead.                             

                                (c)                                 *Agricultural Marketing Service*                                 also referred to as “AMS” means the Agricultural Marketing Service of the Department.                             

                                (d)                                 *Cotton*                                 means all Upland cotton harvested in the United States or imports of Upland cotton, including the Upland cotton content of the products derived thereof. The term                                 *cotton*                                 shall not, however, include any entry of imported cotton by an importer which has a value or weight less than the                                 *de minimis*                                 value established by the Secretary or industrial products as that term is defined by regulation.                             

                                (e)                                 *Upland Cotton*                                 means all cultivated varieties of the species                                 *Gossypium hirsutum L.*

                                (f)                                 *Department*                                 means the U.S. Department of Agriculture.                             

                                (g)                                 *Deputy Administrator*                                 means the Deputy Administrator for Field Operations and also referred to as “DAFO.”                             

                                (h)                                 *Farm Service Agency*                                 also referred to as “FSA” means the Farm Service Agency of the Department.                             

                                (i) (1)                                 *Importer*                                 means any person who enters, or withdraws from warehouse, cotton for consumption in the customs territory of the United States; and                             

                                (2) The term                                 *import*                                 means any such entry.                             

                                (j)                                 *Order*                                 means the Cotton Research and Promotion Order.                             

                                (k)                                 *Person*                                 means any individual 18 years of age or older, or any partnership,                                       ( print page 26812)                                    corporation, association, or any other entity.                             

                                (l)                                 *Producer*                                 means any person who shares in a cotton crop, or in the proceeds thereof, as an owner of the farm, cash tenant, landlord of a share tenant, share tenant, or sharecropper, that planted the cotton during the representative period.                             

                                (m)                                 *Representative Period*                                 means the period designated by the Secretary pursuant to section 8 of the Act (7 U.S.C. 2107).                             

                                (n)                                 *Secretary*                                 means the Secretary of Agriculture or any other officer or employee of the Department of Agriculture to whom there has heretofore been delegated, or to whom there may be hereafter be delegated, the authority to act in the Secretary's stead.                             

                                (o)                                 *State*                                 means each of the 50 States.                             

                                (p)                                 *United States*                                 means 50 States of the United States of America.                             

                                (q)                                 *Customs and Border Protection*                                 means the U.S. Customs and Border Protection of the Department of Homeland Security. Customs and Border Protection is also referred to as “CBP.”                             

§ 1205.202 

                                (a)                                 *Agricultural Marketing Service*. The Administrator shall:                             

(1) Determine the referendum period. 

(2) Give producers and importers reasonable advance notice of the referendum: 

(i) By utilizing without advertising expense, available media of public information (including, but not being limited to, press and radio facilities) to announce the dates, places, or methods of voting, and other pertinent information; and 

(ii) By such other means as the Administrator may deem advisable. 

(3) Provide ballots and related material to be used in the referendum to FSA. The ballots: 

(i) Shall provide for recording essential information for ascertaining whether the person voting is an eligible voter, and 

(ii) May provide for recording the total amount of Upland cotton produced by the producer or the total amount of cotton imported by the importer during the appropriate representative period. 

(4) Make available to producers through FSA county offices instructions on voting, an appropriate ballot and, except in the case of a referendum on the termination or suspension of an order, a summary of the terms and conditions of the order. The instructions on voting shall explain the method to be used in determining the amount of Upland cotton produced during the representative period and shall specify whether such amount is to be entered on the ballot by the voter, subject to the following terms and conditions: 

                                (i) If a current production year for which harvesting has not been completed is designated as the representative period, the amount of Upland cotton produced shall be determined by the FSA county office on the basis of the acreage planted or in the case of approved prevented plantings under the disaster payment program, the acreage the person intended to plant up to the allotted acreage as determined by the FSA county office, and the established yield for FSA program payment purposes:                                 *Provided,*                                 That on farms for which an established yield has not been established, the county committee shall determine an established yield based on actual production records on the farm for the preceding three years, as adjusted for any abnormal conditions, if available; if not available, on the basis of yield on similar farms in the area.                             

(ii) On farms in which more than one eligible voter is engaged in production, the vote cast by each voter shall represent only the amount of Upland cotton that is the voter's share of the crop, or proceeds thereof. 

                                (iii) If an eligible voter is engaged in production of Upland cotton on more than one farm, such voter is entitled to only one vote but any vote cast by such voter shall represent the total amount of Upland cotton that is that voter's share of the crop, or proceeds thereof, on all such farms:                                 *Provided,*                                 That only farms for which records are maintained by the FSA county office designated as the voter's polling place shall be considered unless the voter, prior to the expiration of the referendum period, establishes to the referendum period, establishes to the satisfaction of such county office the voter's share of the crop, or proceeds thereof, on an additional farm or farms.                             

(5) Make available to importers through FSA instructions on voting, an appropriate ballot and, except in the case of a referendum on the termination or suspension of an order, a summary of the terms and conditions of the order. The instructions on voting shall explain the appropriate method to be used in determining the amount of cotton imported during the representative period and specify whether such amount is to be entered on the ballot. If applicable, the following terms and conditions apply: 

(i) For importer entities in which more than one importer is eligible to vote, the vote cast by each importer shall represent only the amount in weight or value of cotton imported by each eligible voter. 

                                (ii) If an eligible importer is engaged in importation of cotton as more than one importer entity, such voter is entitled to only one vote but any vote cast by such voter shall represent the total amount in weight or value, of cotton in the voters share of cotton imported from each such importer entity:                                 *Provided,*                                 That only the importer entities for which records are maintained by CBP or other source determined by the Administrator shall be considered unless the voter, prior to the expiration of the referendum period, establishes to the satisfaction of the Administrator the voters share, in weight or value, of the imported cotton.                            

                                (b)                                 *Farm Service Agency.*                                 Except for the functions specified in paragraph (a) of this section the Deputy Administrator shall be in charge of and responsible for conducting the referendum. Each FSA county office shall be in charge and responsible for conducting such referendum in its State. Each county office shall be responsible for the proper holding of such referendum in its county. It shall be the duty of each FSA county office to conduct each referendum in a fair, unbiased, and impartial manner in accordance with the regulations in this subpart.                             

§ 1205.203 

                                (a)                                 *Special eligibility requirements.*                                 Each person who was engaged in the production of Upland cotton during the representative period and each person who was an importer of cotton and who, during a 12-month period ending not later than 90 days prior to the conduct of the referendum.                             

                                (b)                                 *General eligibility requirements.*                                 (1) (i) A person may qualify as an eligible voter by meeting the eligibility requirements, but no such person shall be entitled to more than one vote regardless of the number of importing entities or Upland cotton farms in which the person is interested or the number of communities, counties, or States in which are located farms in which such person is interested:                                 *Provided, however*, That the individual members of a qualified partnership shall each have one vote, but the partnership as such shall not have a vote and an individual who qualifies as an eligible voter by reason of that individual's separate farming or importing operations will be entitled to one vote even though that person is interested in an entity such as (but not limited to) a corporation which is also eligible as a voter and entitled to one vote. A person who, as a guardian, administrator, executor, or trustee engages in the                                       ( print page 26813)                                    production of Upland cotton or importation of cotton will be eligible to vote in such a fiduciary capacity if, in such a capacity, that person qualifies as an eligible voter.                             

(ii) In such cases the person for whom he or she is acting in a fiduciary capacity will not be eligible to vote. An individual may, if otherwise eligible, cast a ballot in his or her individual capacity although that person may also cast a ballot as a guardian, administrator, executor, or trustee. An individual who holds more than one fiduciary position may vote as a fiduciary in each case in which that person is otherwise eligible, as for example, if an individual is administrator of estate X, he or she may cast a ballot as administer of estate X, and if the same individual is administrator of estate Y, he or she may cast another ballot as administrator or estate Y. 

(2) Where a group of several persons, such as a spouse or marital partner, and children, or unrelated individuals, are engaged in the production of Upland cotton under the same lease or cropping agreement, only the person or persons who signed or entered into the lease or cropping agreement shall be eligible to vote. In the event two or more persons are engaged in the production of Upland cotton as joint tenants, tenants in common, or owners of community property, each such person shall be entitled to one vote if otherwise qualified. For example, a husband or a wife is eligible to vote if he or she shares with his or her spouse in the proceeds of the required crop as an owner, cash tenant, share tenant, sharecropper or landlord of a fixed rent, standing rent or share tenant. Thus, if a husband and wife are tenants or sharecroppers on a farm, jointly responsible under the rental or sharecropping agreement, both are eligible to vote. This is true whether the rental or sharecropping agreement is written, signed by both parties, or oral, provided both husband and wife made the oral agreement. A minor is not disqualified from voting solely because of minority if otherwise eligible and the minor is not less than 18 years of age. 

                                (c)                                 *Voting by proxy prohibited*. There shall be no voting by proxy or agent but a duly authorized officer of a corporation, association or their legal entity may cast its vote.                             

§ 1205.204 

                                (a)                                 *Place of voting*. The FSA county office serving the county in which the producer's farm is located shall be the producer's polling place. For a person not participating in an FSA program, the opportunity to vote in a referendum will be provided at the FSA county office serving the county where the person owns or rents land. A person engaged in the production of Upland cotton in more than one county will vote in the FSA county office where the person does most of his or her business. The U.S. Department of Agriculture, FSA, DAFO, P.O. Box 23704, Washington, DC shall be the polling place for all cotton importers.                             

                                (b)                                 *Register of eligible voters.*                                 The FSA county office shall establish a register of known eligible producer voters prior to the referendum. AMS shall establish a register of known eligible importer voters prior to the referendum and provide list to FAS.                             

                                (c)                                 *Voting.*                                 (1) For Upland producers to vote, eligible persons may obtain form CN-100 in-person, by mail or by facsimile from FSA county offices or through the Internet during the voting period. A completed and signed CN-100 and supporting documentation, such as a sales receipt or remittance form, must be returned to the appropriate FSA county office. Forms obtained via the Internet will be located at                                 *http://www.ams.usda.gov/​Cotton*. Upon request by Upland producers, ballots shall be mailed by FSA county offices.                             

                                (2) For cotton importers to vote, eligible persons may obtain form CN-100 in-person, by mail or by facsimile from USDA, FSA in Washington, DC or through the Internet during the voting period. In addition, before the referendum, USDA shall mail a request form to each known, eligible, cotton importer. A completed and signed CN-100 and supporting documentation of CBP Form 7501, must be returned USDA, FSA, DAFO, P.O. Box 23704, Washington, DC. Forms obtained via the Internet will be located at                                 *http://www.ams.usda.gov/​Cotton*.                             

(d) Returning ballot to polling place. Each person to whom a ballot is issued by Internet, mail, facsimile, or in-person shall only be allowed to vote in the referendum by completing and signing the ballot, placing it in an envelope, and delivering or mailing it to the appropriate polling place. In order to be eligible for tabulation, voted ballots must be received at the polling place during the period established for holding the referendum. A ballot shall be considered to have been received during the referendum period if: 

(1) In the case of the ballot delivered to the polling place, it was received in the office prior to the close of the work day on the final day of the referendum period, or 

(2) In the case of the mailed ballot, it was postmarked not later than midnight of the final day of the referendum period and was received in the polling place prior to the start of canvassing the ballots.

                                (e)                                 *Placing ballots in ballot box*. Notwithstanding the fact that a ballot(s) may be later challenged by FSA county office or a representative of FSA, envelopes containing ballots received at the polling place during the referendum period shall remain unopened and shall be placed immediately in a ballot box provided by FSA for producers and importers. Such ballot box shall be arranged so that ballots cannot be read or moved without breaking the seal on the container.                             

§ 1205.205 

                                (a)                                 *Canvassing procedure*. Canvassing of returned ballots shall take place as soon as possible after the opening of the FSA offices on the fifth day following the close of the referendum period. Such canvassing shall be in the presence of at least one member of the FSA county office for producer ballots or an FSA representative for importer ballots and shall be open to the public. The canvassing and ballots shall be handled in such a manner so that no member of the public may see how any person voted in the referendum. The county office or FSA representative shall supervise the opening of the sealed ballot box, the opening of the envelopes containing the ballots and a determination as to:                             

(1) The number of eligible voters favoring the Order and where necessary, the amount of cotton represented by them, 

(2) The number of eligible voters disapproving the Order and, where necessary, the amount of cotton represented by them. 

(3) The number of ballots cast by voters found to be ineligible to vote in the referendum, and 

(4) The number of spoiled ballots. The ballots determined to be spoiled or cast by ineligible voters shall not be considered as approving or disapproving the Order, and the persons who cast such ballots shall not be regarded as participating in the referendum. 

                                (b)                                 *Spoiled ballots*. A ballot shall be considered as a spoiled ballot if:                             

(1) It is mutilated or marked in such a way that it is not possible to determine with certainty how the ballot was intended to be counted; or 

(2) It does not contain the signature of the voter, or the voter's properly witnessed mark. 

                                (c)                                 *Challenge of ballots*. A producer ballot may be challenged by the member of the FSA county office and the importer ballot may be challenged by                                       ( print page 26814)                                    the representative of FSA. Before a challenged ballot is either counted or declared invalid, a determination shall be made by the FSA county office or representative of FSA as to the eligibility of the voter to vote in the referendum.                             

§ 1205.206 

(a) Each FSA county office shall transmit a written county summary of ballots showing the results of the referendum in its county to its State office. 

(b) Each State office shall transmit a written summary of the referendum results from the county offices within its State to DAFO, and DAFO will provide a copy to the AMS. AMS will make the results available for public inspection for a period of 5 years following the end of the referendum period. 

(c) AMS shall prepare and submit to the Secretary a report as to the results of the referendum. The Secretary shall then publically proclaim the results of the referendum. 

§ 1205.207 

                                The FSA State offices shall make a prompt investigation and decision in case of any dispute or challenge regarding the correctness of the county summary of ballots in any county:                                 *Provided*, That no dispute of challenge shall be investigated unless it is brought to the attention of the State FSA office within 3 days after receipt by the FSA State office of the county summary of ballots from such county.                             

§ 1205.208 

The FSA county office shall seal the voted ballots, challenged ballots found to be ineligible, spoiled ballots, register sheets, and summary sheets for county in one or more envelopes or packages, plainly marked with the identification of the referendum, the date and the names of the county and State, and place them under lock and key in a safe place under the custody of the FSA county office for a period of 45 days after the referendum period. If no notice to the contrary is received by the end of such time, and after the ballots and other records have been examined by a representative of the State FSA office, the voted ballots and challenged ballots shall be destroyed, but the registers and county summary sheets shall be filed for a period of 5 years in the office of the FSA county office. 

§ 1205.209 

(a) The ballots cast or the manner in which any person voted and all information furnished to, compiled by, or in the possession of the referendum agent shall be regarded as confidential. 

(b) The ballots and other information or reports that reveal, or tend to reveal, the vote of any person covered under the Order and the voter list shall be strictly confidential and shall not be disclosed. 

§ 1205.210 

AMS is hereby authorized to prescribe additional instructions and forms not inconsistent with the provisions of this subpart for the use of State and County FSA offices in conducting a referendum. Such additional instructions may include procedures for FSA county and State offices to report and announce the results of the preliminary count of the votes in the county and the State. 

Dated: May 28, 2009. 

Robert C. Keeney, 

Acting Associate Administrator,  Agricultural Marketing Service.

[FR Doc. E9-12931 Filed 6-3-09; 8:45 am] 

BILLING CODE P