SLIP OP. 08-44
UNITED STATES COURT OF INTERNATIONAL TRADE
____________________________________
:
GLEASON INDUSTRIAL PRODUCTS, :
INC., and PRECISION PRODUCTS, INC., :
:
Plaintiffs, :
v. : Before: Jane A. Restani, Chief Judge
:
UNITED STATES, : Court No. 07-00177
:
Defendant, :
:
and :
:
SINCE HARDWARE (GUANGZHOU) :
CO., LTD., :
:
Defendant-Intervenor. :
____________________________________:
OPINION
[Plaintiffs’ motion for judgment on the agency record denied.]
April 25, 2008
Crowell & Moring, LLP (Matthew P. Jaffe) for the plaintiffs.
Jeffrey S. Bucholtz, Acting Assistant Attorney General; Jeanne E. Davidson,
Director; Patricia M. McCarthy, Assistant Director, Commercial Litigation Branch, Civil
Division, U.S. Department of Justice (Stephen C. Tosini); Irene H. Chen, Office of the Chief
Counsel for Import Administration, U.S. Department of Commerce, of counsel, for the
defendant.
Trade Pacific, PLLC (Robert G. Gosselink and Jon M. Freed) for the defendant-
intervenor.
Restani, Chief Judge: This matter is before the court on Plaintiffs Gleason
Industrial Products, Inc. and Precision Products, Inc.’s (“Plaintiffs”) motion for judgment upon
Court No. 07-00177 Page 2
the agency record pursuant to USCIT Rule 56.2. Plaintiffs, domestic producers of hand trucks
and parts thereof, challenge the United States Department of Commerce’s (“Commerce”) final
results determination made in the administrative and new shipper reviews of the antidumping
duty order on hand trucks from the People’s Republic of China (“PRC”).1 (See Compl. ¶ 8); see
also Hand Trucks and Certain Parts Thereof From the People’s Republic of China: Final Results
of Administrative Review and Final Results of New Shipper Review, 72 Fed. Reg. 27,287 (May
15, 2007) (“Final Results”). For the reasons stated below, the court finds that Commerce’s final
determination was supported by substantial evidence and is in accordance with law and denies
Plaintiffs’ motion for judgment on the agency record.
BACKGROUND
Plaintiffs filed a petition with Commerce in November 2003, alleging that various
manufacturers from the PRC were importing hand trucks into the United States at less-than-fair
value. (Compl. ¶ 1.) An antidumping duty order was placed on hand trucks from the PRC in
December 2004. See Notice of Antidumping Duty Order: Hand Trucks and Certain Parts
Thereof From the People’s Republic of China, 69 Fed. Reg. 70,122 (Dec. 2, 2004). In February
2006, Commerce initiated an administrative review of the antidumping duty order for the period
of May 24, 2004 (subsequently corrected to December 1, 2004), through November 30, 2005.
See Initiation of Antidumping and Countervailing Duty Administrative Reviews and Request for
Revocation in Part, 71 Fed. Reg. 5,241 (Feb. 1, 2006). Commerce also initiated a new shipper
1
Plaintiffs participated as interested parties in the antidumping duty administrative and
new shipper reviews within the meaning of 19 U.S.C. §§ 1677(9)(C) and 1516a(f)(3) and thus
have standing to bring this action. 19 U.S.C. §§ 1516a(f)(3), 1677(9)(C) (2000).
Court No. 07-00177 Page 3
review2 of Since Hardware (Guangzhou) Co., Ltd. (“Since Hardware”), a Chinese producer and
exporter of hand trucks shipped to the United States. See Hand Trucks and Certain Parts
Thereof From the People’s Republic of China; Initiation of New Shipper Review, 71 Fed. Reg.
5,810 (Feb. 3, 2006).
Commerce considered the PRC a nonmarket economy (“NME”)3 for the purpose of these
reviews, and calculated normal value pursuant to 19 U.S.C. § 1677b(c), which requires
Commerce to collect data regarding the NME producer’s factors of production4 (“FOP”) and
value them in relation to FOP prices or costs for merchandise produced in one or more surrogate
market-economy countries. See 19 U.S.C. § 1677b(c) (2000); see also Hand Trucks and Certain
Parts Thereof From the People’s Republic of China; Preliminary Results and Partial Rescission
of Administrative Review and Preliminary Results of New Shipper Review, 72 Fed. Reg. 937,
939 (Jan. 9, 2007) (“Preliminary Results”). Commerce selected India as the surrogate country
for valuing Chinese hand truck producers’ FOP. Preliminary Results, 72 Fed. Reg. at 940.
In order to collect the appropriate data for the administrative and new shipper reviews,
2
A new shipper review has been described as a proceeding where “Commerce is
essentially conducting a new antidumping review that is specific to a particular producer [or
exporter].” Tianjin Tiancheng Pharm. Co. v. United States, 366 F. Supp. 2d 1246, 1249 (CIT
2005). The new exporter or producer of the merchandise must establish that it did not export the
merchandise to the United States during the period of investigation and was not affiliated with an
exporter or producer that exported the merchandise that is subject to an antidumping or
countervailing duty order. 19 U.S.C. § 1675(a)(2)(B)(i) (2000).
3
A nonmarket economy is defined as “any foreign country that [Commerce] determines
does not operate on market principles of cost or pricing structures, so that sales of merchandise
in such country do not reflect the fair value of the merchandise.” 19 U.S.C. § 1677(18)(A).
4
19 U.S.C. § 1677b provides an illustrative, though not exhaustive, list of factors of
production used in the manufacturing of merchandise, including “hours of labor required,
quantities of raw materials employed, amounts of energy and other utilities consumed, and
representative capital cost, including depreciation.” 19 U.S.C. § 1677b(c)(3).
Court No. 07-00177 Page 4
Commerce submitted questionnaires to the Chinese respondents, including Since Hardware and
True Potential Co., Ltd. (“True Potential”), a Chinese trading company that purchases hand
trucks from Chinese hand truck producers and resells them to unaffiliated U.S. purchasers for
export to the United States. Id. at 937; (see also True Potential Questionnaire Section A
Response, at A-9 (Administrative R. Doc. No. 700).) Commerce also conducted an on-site
verification of Since Hardware’s responses. Preliminary Results, 72 Fed. Reg. at 939; (see also
Verification of Sales and Factors Responses of Since Hardware (Guangzhou) Co., Ltd., at 1
(App. to Mem. of P. & A. in Supp. of Mot. for J. on the Agency R. 8 (“Pls.’ App.”)).) Since
Hardware stated that it sold only one type of hand truck to the United States during the review
period, which incorporated two wheel hubs and two bearings (“axis of rotation”) for use with
two wheels. (See Since Hardware Questionnaire Section A Response, at 15 (Pls.’ App. 2); Since
Hardware Questionnaire Section C and D Response, at 10–14 (Pls.’ App. 3).) In response to
Commerce’s inquiry, Since Hardware noted that roller bearings were used in the hand truck.
(Since Hardware Questionnaire Section C and D Response, at 13–14 (Pls.’ App. 3).)
In its surrogate value submission, Since Hardware proposed that Commerce use Indian
Harmonized Tariff Schedule (“HTS”) 8483.20.00 (“Bearing Housing, Incorporating Ball/Roller
Bearing”) to calculate the surrogate value for its axis of rotation material input. (See Since
Hardware Surrogate Value Submission, at 2 (Pls.’ App. 7).) Plaintiffs submitted publicly
available information for valuing the FOP, including audited financial statements of an Indian
producer of hand trucks. (See Comments of Petitioners Regarding Surrogate Values (App. to
Def.’s Resp. to Pls.’ Mot. for J. Upon the Admininstrative R. 1 (“Def.’s App.”)).)
On January 9, 2007, Commerce issued the preliminary results of these reviews and
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rescinded the administrative review of Since Hardware because its merchandise was being
examined in the context of the new shipper review. See Preliminary Results, 72 Fed. Reg. at
939. Commerce selected data relevant to merchandise classified under HTS 8483.20.00 to arrive
at a surrogate value for Since Hardware’s axis of rotation. (See Factors of Production Valuation
Memorandum for the Preliminary Results of the First Administrative Review and Preliminary
Results of the First New Shipper Review, at 2–3 (“FOP Memorandum”) (Def.’s App. 2).)
Commerce also calculated the normal value for True Potential based on the FOP for those
Chinese manufacturers from whom True Potential purchased hand trucks during the review
period, including selling, general and administrative (“SG&A”) expenses and profit ratios, based
on the financial statements of surrogate Indian producers of the same or similar merchandise.
(Id. at 7–8); Preliminary Results, 72 Fed. Reg. at 946.
In its post-preliminary determination brief, Since Hardware argued that the preliminary
calculation using HTS 8483.20.00 data overstated the cost of the axis of rotation and proposed
that Commerce now value this input using HTS 8482.10.11 data (“Adapter Ball Bearings (Radial
Type)” not exceeding 50 mm). (See Since Hardware Case Brief, at 1–7 (Pls.’ App. 13).) Since
Hardware maintained that HTS 8482.10.11 was more specific to the housed bearings it used
because the bearing size is limited to a 50 millimeter diameter, which is similar to the size of
Since Hardware’s bearings, while HTS 8483.20.00 contains no size restrictions for bearing
housings. (Id. at 6–7.) Plaintiffs objected, arguing that Since Hardware’s axis of rotation is a
housed bearing that incorporates a roller bearing and thus falls clearly within HTS 8483.20.00.
(See Rebuttal Brief on Behalf of Petitioners, at 7–11 (App. to Def.-Intervenor’s Resp. in Opp’n
to Pls.’ Rule 56.2 Mot. for J. Upon the Agency R. 1).) Plaintiffs also argued that Commerce
Court No. 07-00177 Page 6
erred in not including the SG&A expenses incurred and additional profits made by True
Potential in reselling the hand trucks to its customers and asked Commerce to incorporate
reseller SG&A expenses and profit ratios based on the submitted surrogate information in its
final determination. (See Gleason Case Brief, at 38–42 (Pls.’ App. 14).)
On May 15, 2007, Commerce published its final results for the administrative and new
shipper reviews. See Final Results, 72 Fed. Reg. at 27,287; see also Issues and Decision
Memorandum for the Final Results, A-570-891, POR 12/1/04 - 11/30/05, at 43–49 (May 9,
2007), available at http://ia.ita.doc.gov/frn/summary/PRC/E7-9324-1.pdf (“Issues & Decision
Memorandum”). In its final determination, Commerce altered its preliminary findings and
“applied a weighted-average surrogate value derived from imports statistics using both HTS
classifications, i.e., 8483.20.00 and 8482.10.11.” Issues and Decision Memorandum at 49. On
this point, Commerce found “the size of the bearing to be more instructive,” reasoning that
because “HTS 8482.10.11 limits the bearings to a certain size . . . [this] complement[s] the HTS
classification used in the Preliminary Results [i.e., HTS 8483.20.00].” Id. Commerce relied on
publicly available information provided by Since Hardware for Nagori, an Indian producer of
hand trucks, in order to value the SG&A expenses and profit surrogate ratios for Indian
producers of similar merchandise. Id. at 19. Commerce, however, denied Plaintiffs’ request to
incorporate a reseller SG&A ratio and a reseller profit ratio into Commerce’s normal value
calculation, stating that Plaintiffs had “provided no new information on the activities of the
surrogate Indian producers or trading companies to justify a departure from the Department’s
handling of this same issue in the investigation.” Id. at 53. Plaintiffs now seek review of these
final determinations, claiming that Commerce’s decision was not supported by substantial
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evidence or in accordance with law.
JURISDICTION AND STANDARD OF REVIEW
The court has jurisdiction pursuant to 28 U.S.C. § 1581(c). The court must uphold a final
determination by Commerce in an antidumping investigation unless it is “unsupported by
substantial evidence on the record, or otherwise not in accordance with law.” 19 U.S.C.
§ 1516a(b)(1)(B)(i). Thus, Commerce’s findings must be “reached by reasoned decision-
making, including . . . a reasoned explanation supported by a stated connection between the facts
found and the choice made.” Rhodia, Inc. v. United States, 185 F. Supp. 2d 1343, 1349 (CIT
2001) (“Rhodia I”) (quotations omitted).
DISCUSSION
A. Commerce’s decision to weight-average the surrogate values for two HTS bearing
classifications to calculate a surrogate value for Since Hardware’s bearings was
supported by substantial evidence and is in accordance with law
Commerce is required to “determine the normal value of the subject merchandise on the
basis of the value of the factors of production utilized in producing the merchandise.” 19 U.S.C.
§ 1677b(c)(1)(B). Commerce must do so “based on the best available information regarding the
values of such factors in a market economy country or countries considered to be appropriate by
the administering authority.” Id. Although the statute does not define what constitutes “best
available information,” it has been interpreted as “grant[ing] to Commerce broad discretion to
determine the ‘best available information’ in a reasonable manner on a case-by-case basis.”
Timken Co. v. United States, 166 F. Supp. 2d 608, 616 (CIT 2001); see also Nation Ford Chem.
Co. v. United States, 166 F.3d 1373, 1377 (Fed. Cir. 1999) (noting that Ҥ 1677b(c) provides
guidelines to assist Commerce . . . [and] also accords Commerce wide discretion in the valuation
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of factors of production in the application of those guidelines”); Coal. for the Pres. of Am. Brake
Drum and Rotor Aftermarket Mfrs. v. United States, 44 F. Supp. 2d 229, 258 (CIT 1999)
(“Commerce need not prove that its methodology was the only way or even the best way to
calculate surrogate values for factors of production as long as it was a reasonable way.”).
After Commerce selected India as the surrogate country for valuing Chinese hand truck
producers’ FOP, Commerce then selected an Indian HTS classification in order to obtain data
relevant to the particular factor input at issue. Plaintiffs argue that Commerce failed to make a
reasonable connection between the facts on the record and its determination, and therefore,
Commerce’s selection of the surrogate value for Since Hardware’s axis of rotation was contrary
to law and unsupported by substantial evidence. (Mem. of P. & A. in Supp. of Mot. for J. Upon
the Agency R. 20 (“Pls.’ Br.”).) Specifically, Plaintiffs contend that Commerce should have
used only the surrogate value data for HTS subheading 8483.20.00, rather than weight-averaging
it with HTS subheading 8482.10.11 data, claiming that the record conclusively demonstrates that
the axis of rotation incorporates a roller bearing, not a ball bearing, and that Commerce’s
reliance on the size of the bearing, rather than the roller element, was incorrect. (Pls.’ Br.
10–20.)
In support of this argument, Plaintiffs cite Since Hardware’s response to Commerce’s
questionnaires stating that the bearing incorporated in the axis of rotation is a roller bearing, as
well as to numerous supplemental responses (notwithstanding Since Hardware’s post-
preliminary brief) that never changed the designation. (See Since Hardware Questionnaire
Section C and D Response, at 13–14 (Pls.’ App. 3); see also Since Hardware Supplemental
Questionnaire Response, at 7 (Pls.’ App. 6).) Plaintiffs state that the record contains no
Court No. 07-00177 Page 9
information as to the size, or size range, of the bearing incorporated in the axis of rotation. (Pls.’
Br. 19–20.) Plaintiffs further argue that in Commerce’s questionnaires, as well as in periodic
administrative and five-year (sunset) reviews, the distinction relied on for bearings is the rolling
element (i.e., ball bearing, roller bearing, etc.), not the size or size range of the bearing. (Id.)
In rebuttal, Defendant argues that weight-averaging the surrogate values derived from
data for both HTS classifications constituted the best available information to value Since
Hardware’s housed bearings. (Def.’s Resp. to Pls.’ Mot. for J. Upon the Admininstrative R. 9
(“Def.’s Br.”).) Defendant maintains that the exclusive use of HTS 8483.20.00 in the
preliminary findings resulted in a disproportionately inflated normal value, as it yielded a cost
for the housed bearings that exceeded the total cost of all other direct materials incorporated into
the hand truck. (Id. at 10.)5 Defendant also claims that Commerce’s use of HTS 8482.10.11 was
reasonable given the specificity contained therein, highlighting Commerce’s finding that the size
range covered by HTS 8482.10.11 “appears to be similar to the size of Since Hardware’s
bearings examined at verification.” (Id. at 11.) Defendant argues that because HTS 8482.10.11
complements HTS 8483.20.00, Commerce’s use of a weight-average was reasonable in order to
determine the most appropriate surrogate value. (Id. at 10–12.)
Commerce is required to “articulate in what way the surrogate value chosen relates to the
factor input.” Dorbest Ltd. v. United States, 462 F. Supp. 2d 1262, 1308 (CIT 2006); see also
Siderca, S.A.I.C. v. United States, 350 F. Supp. 2d 1223, 1236 n.15 (CIT 2004) (“It will not do
for a court to be compelled to guess at the theory underlying the agency’s action; nor can a court
5
While in some cases the value of one input may outweigh that of all others, there is no
evidence that this input is in that category.
Court No. 07-00177 Page 10
be expected to chisel that which must be precise from what the agency has left vague and
indecisive.”). Here, Commerce provided a detailed reasoning for its decision to weight-average
the surrogate values for the two HTS commodity classifications. See Issues and Decision
Memorandum at 47–49. Commerce noted that because Since Hardware reported using a housed
bearing in the production of its hand truck and initially suggested using HTS 8483.20.00 to value
its bearings, it was still appropriate to use data for this HTS classification as part of the averaged
value, as Since Hardware was “in the best position to determine the HTS classification that best
describes its input.” Id. at 48. Commerce noted, however, that solely using HTS 8483.20.00 to
value the axis of rotation would result in a surrogate value that “would have exceeded the total
cost of all other direct materials incorporated in Since Hardware’s hand truck,” thereby rendering
it “disproportionate to the total cost of materials of the subject merchandise.” Id. Commerce
then sought to balance its reliance upon HTS 8483.20.00 by also using HTS 8482.10.11, which it
determined “appears to contain the main characteristics applicable to the [sic] Since Hardware’s
bearings.” Id. at 49. Specifically, Commerce found that because there was no evidence on the
record regarding the cost of roller bearings versus ball bearings, it would not consider the type of
bearing to be “especially relevant.” Id. Instead, Commerce found the size of the bearing to be
most informative, noting that “[t]he fact that HTS 8482.10.11 limits the bearings to a certain size
yet, at the same time, includes bearings that may rotate horizontally or vertically, and are in a
metal housing, appears to complement the HTS classification used in the Preliminary Results.”
Id.
Nonetheless, Plaintiffs argue that Commerce erred when it classified Since Hardware’s
axis of rotation according to HTS 8482.10.11, because Commerce did not follow the appropriate
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steps according to the General Rules of Interpretation (“GRI”) accompanying the HTS. (Pls.’
Br. 17–18.) GRI 1 states that “classification shall be determined according to the terms of the
headings and any relative section or chapter notes.” Harmonized Tariff Schedule of the United
States, GRI 1. Additionally, “[i]f classification is not resolved by application of GRI 1, the court
will refer to the succeeding GRIs in numerical order.” Whirlpool Corp. v. United States, 505 F.
Supp. 2d 1358, 1362 (CIT 2007). Plaintiffs argue that Commerce was required under GRI 1 to
first look to the four-digit headings, i.e., 8482 and 8483, followed by the six-digit codes and then
the eight-digit codes. (Pls.’ Br. 17–18.) Plaintiffs contend that HTS 8483 is more specific
because it covers “bearing housings,” while HTS 8482 only covers “ball or roller bearings,” and
therefore, the input in question should be classified under HTS 8483. (Id.) Plaintiffs further
argue that because the six-digit codes in HTS 8482 classify bearings by rolling element before
classifying them by size under the eight-digit code, this demonstrates that bearing type trumps
bearing size. (Id. at 20.)6
6
Defendant claims Plaintiffs failed to exhaust their administrative remedies and that the
court should disregard two arguments made for the first time in Plaintiffs’ brief before the court,
that is, Plaintiffs’ contention that the GRI preclude Commerce from classifying housed bearings
under HTS 8482.10.11, and Plaintiffs’ argument that the bearing’s rolling element must be
viewed as crucial in Commerce’s selection of a surrogate value for the housed bearings. (Def.’s
Br. 12.) Defendant claims these arguments should not be considered by a reviewing court
because they were not raised by Plaintiffs in the administrative proceeding, thus “depriv[ing]
Commerce of the opportunity to analyze these arguments in the first instance.” (Id. at 14.)
Defendant’s argument is misplaced, however, because Commerce’s partial use of HTS
8482.10.11 to value Since Hardware’s input and its corresponding emphasis on the size of the
bearing occurred for the first time in the Final Determination. Plaintiffs have had no reason to
focus on these subarguments of their main argument, which was preserved, that HTS 8483.20.00
data should be used, and therefore, they are not found to have waived their right to have the court
review their arguments. See Rhodia I, 185 F. Supp. 2d at 1349–50 n.6 (finding that two Chinese
companies “were under no notice that Commerce would apply a weighted average. . . .
Accordingly, neither [of the Chinese companies] will be required by the court to further exhaust
(continued...)
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Plaintiffs’ arguments regarding the binding nature of the GRI on Commerce in the
antidumping context are misplaced. For example, “[t]he court distinguishes between the
authority of the Customs Service to classify according to tariff classifications (19 U.S.C. § 1500)
and the power of the agencies administering the antidumping law to determine a class or kind of
merchandise.” Royal Bus. Machs., Inc. v. United States, 507 F. Supp. 1007, 1014 n.18 (CIT
1980). As opposed to Customs classification cases where “determining the proper specific
classification is paramount,” in order to assign ordinary duties properly, Commerce cases often
involve “using the HTS[I] merely to approximate the cost of a factor of production.” Dorbest,
462 F. Supp. 2d at 1308 (citations omitted). If the data for an HTS provision substantially
overstates the cost, it may be presumed that it is not accurate data, whether or not the correlating
part in India could be classified under that provision. The problem may be the lack of a perfect
surrogate, for which Commerce must then adjust. As a result, Commerce determined that
weight-averaging both bearing categories into a single surrogate value constituted the best
available information to value the type of bearings incorporated into Since Hardware’s hand
trucks. Issues and Decision Memorandum at 49. Here, Plaintiffs’ preferred valuation method
has not been demonstrated to be superior to Commerce’s.
Based on the foregoing reasons, the court finds that Commerce acted well within its
discretion in determining that a weight-averaged surrogate value constituted the best available
information to value Since Hardware’s axis of rotation input.
6
(...continued)
its administrative remedies with regard to this issue”).
Court No. 07-00177 Page 13
B. Commerce’s decision to not include the SG&A expenses and profit of Indian
trading companies in the calculation of True Potential’s normal value was
supported by substantial evidence and is in accordance with law
When constructing the normal value for a respondent in a NME country, Commerce must
also take into account those costs that are not covered by the factors of production, such as the
“amount for general expenses and profit plus . . . other expenses.” 19 U.S.C. § 1677b(c)(1)(B);
see also Guangdong Chems. Imp. & Exp. Corp. v. United States, 460 F. Supp. 2d 1365, 1373
(CIT 2006). It is Commerce’s usual practice to calculate “separate values for [SG&A] expenses,
manufacturing overhead and profit, using ratios derived from financial statements of one or more
companies that produce identical or comparable merchandise in the surrogate country.”
Shanghai Foreign Trade Enters. Co. v. United States, 318 F. Supp. 2d 1339, 1341 (CIT 2004).
Plaintiffs argue that Commerce’s calculation underestimated the normal value of the
subject merchandise of True Potential because Commerce failed to include in its calculation the
SG&A expenses and profits of both the producer and the exporter. (Pls.’ Br. 23–24.) Plaintiffs
rely primarily on the legislative history of 19 U.S.C. § 1677b and Commerce’s normal value
calculations for market economy country cases in arguing that “Commerce now should definitely
include the SG&A expenses and profits of both the producer and the exporter whenever it
calculates a reseller’s normal value.” (Id. at 23.) Plaintiffs note that section 1677b previously
limited the general expenses and profit calculation in NME cases only to sales made by the NME
producers, see 19 U.S.C. § 1677b(c)(1) (1988), but point out that Congress removed this
subsection when it passed the Uruguay Round Agreements Act. (Pls.’ Br. 22.) Plaintiffs
highlight the accompanying Statement of Administrative Action, which explains that,
[I]n situations where the producer and the exporter are separate companies, the
Administration intends that Commerce may continue to calculate constructed
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value based on the total profit and total SG&A expenses realized and incurred by
both companies. In such situations, failing to include the expenses and profits of
both companies would understate the true cost of production and constructed
value of the merchandise.
(Id. at 22 (quoting Uruguay Round Agreements Act, Statement of Administrative Action, H.R.
Rep. No. 103-316, at 841 (1994), as reprinted in 1994 U.S.C.C.A.N. 4040, 4177).) Plaintiffs
further rely upon 19 U.S.C. § 1677(28), which states that for purposes of section 1677b,
Commerce should take into account “both the exporter of the subject merchandise and the
producer of the same subject merchandise to the extent necessary to accurately calculate the total
amount incurred and realized for costs, expenses, and profits in connection with production and
sale of that merchandise.” 19 U.S.C. § 1677(28); (Pls.’ Br. 21.) Finally, Plaintiffs contend that
because it is the practice of Commerce to include the reseller’s SG&A expenses and profit in its
calculation of normal value in market economy country cases, it would be “unreasonable for
Commerce to act inconsistently in NME country cases and ignore a reseller’s SG&A expenses
(and profit) when it calculates the normal value of the subject merchandise as sold by companies
like True Potential.” (Pls.’ Br. 23.)
Defendant contends that Commerce was correct in calculating True Potential’s normal
value using SG&A expenses and profit surrogate ratios for Indian producers of similar
merchandise, because such calculations were based on public, audited, and contemporaneous
financial information for Indian producers.7 (Def.’s Br. 15.) Defendant, however, points to the
7
Defendant mistakenly states that Commerce calculated percentage ratios based upon
audited financial information from Indian producer, Rexello. (See Def.’s Br. 15 (citing FOP
Memorandum at 7–8).) Commerce only used Rexello in its Preliminary Results and instead used
Nagori in its Final Determination, finding it “the only company [identified by Since Hardware]
for whom record evidence exists to definitively demonstrate that it produces identical
(continued...)
Court No. 07-00177 Page 15
lack of evidence in the record that would have allowed Commerce to add SG&A expenses and
profit ratios of Indian trading companies to True Potential’s normal value. (Id.)
In support of this argument, Defendant argues that Rhodia I and Rhodia, Inc. v. United
States, 240 F. Supp. 2d 1247 (CIT 2002) (“Rhodia II”) support its position. In Rhodia I, the
court found that Commerce erred in applying an Indian surrogate company’s overhead-to-raw-
material ratio twice, because Commerce had not identified evidence demonstrating that the
surrogate companies were less integrated than the Chinese producers, such evidence which
would support the underlying basis for such a calculation. Rhodia I, 185 F. Supp. 2d at 1346–49.
The court remanded, due to the absence of facts in the record to support such a determination, id.
at 1349, and on remand Commerce applied the overhead ratio once, finding that “the surrogates
were representative of the PRC producers’ experience,” Rhodia II, 240 F. Supp. 2d at 1249–50.
The court sustained the remand determination, finding that Commerce could not depart from its
standard practice of “not generally adjust[ing] the surrogate values used in the calculation of
factory overhead” without “substantial evidence in the record which supports a finding that the
surrogate producers are less integrated that [sic] the PRC producers, and as a result have a lower
overhead ratio.” Id. at 1250–51. Defendant argues that the Rhodia cases are analogous to the
instant case, because there is similarly no evidence in the record “concerning which selling
activities were performed by the various Indian producers and resellers.” (Def.’s Br. 17.)
In the Final Determination, Commerce found that “without knowing the selling activities
undertaken by the Indian producers whose information is being used to calculate an SG&A ratio,
7
(...continued)
merchandise, i.e., hand trucks.” Issues and Decision Memorandum at 19.
Court No. 07-00177 Page 16
we cannot say whether or to what extent they differ from the selling activities of True Potential
and its suppliers,” and thus it did not apply the SG&A expenses and profit of Indian trading
companies to the calculation of True Potential’s normal value. See Issues and Decision
Memorandum at 52–53 (quoting Issues and Decision Memorandum for the Final Results of the
Investigation of Hand Trucks and Certain Parts Thereof from the People’s Republic of China, 69
Fed. Reg. 60980, A-570-891 (Oct. 14, 2004), available at
http://ia.ita.doc.gov/frn/summary/prc/E4-2608-1.pdf).
With such evidence lacking, the court concludes that Commerce did not err in not
including additional reseller SG&A expenses and profit ratios in its calculation of True
Potential’s normal value. Plaintiffs have not supplied Commerce with the necessary information
to support adding reseller exporter’s SG&A expenses and profit to the producer-based normal
value determination. Plaintiffs have neither explained how it is that Commerce should have
obtained this information nor have they claimed that Commerce did an inadequate investigation
by not seeking this information in a particular way. Instead, Plaintiffs, in their second surrogate
value submission, stated that they provided both “publicly available financial data pertaining to
trading companies in India” and “the calculation of financial ratios for trading companies in
India.” (See Letter from Crowell & Moring LLP to Sec’y of Commerce (Feb. 5, 2007) (Pls.’
App. 12).) Plaintiffs, however, did not provide any data as to the selling activities of Indian hand
truck producers and specifically, of Nagori, whose financial statements Commerce used as the
source for calculating the surrogate financial ratios. Without such information, there is no way
to compare the selling activities of the Indian hand truck producers with the selling activities of
Court No. 07-00177 Page 17
True Potential and its unaffiliated8 PRC producers. This is particularly important, because, as
noted by True Potential, “it is possible that a producer in India performs all of the selling
activities itself that are spread between True Potential and its supplier in the PRC,” which would
then result in double-counting SG&A expenses and profit. See Issues and Decision
Memorandum at 52. Stated differently, without knowing whether Nagori serves as only a
producer, and not an exporter, of hand trucks in India, it is impossible to determine whether
applying further SG&A expenses and profit for the reseller would be duplicative, or not.
Similarly, Plaintiffs’ reliance upon § 1677(28) is misguided. Section 1677(28) states that
in calculating normal values, Commerce should take into account “both the exporter of the
subject merchandise and the producer of the same subject merchandise to the extent necessary to
accurately calculate the total amount incurred and realized for costs, expenses, and profits in
connection with production and sale of that merchandise.” 19 U.S.C. § 1677(28). By its very
language, this section is predicated upon the submission or availability of evidence that will help
Commerce to “accurately calculate” the normal values. Thus, while using additional trading
company data is now allowed, it is not mandated if a factual basis for its use is absent.
Finally, while Rhodia I and II are distinguishable from the case at hand, they do support
the concept that without adequate information, Commerce cannot ascertain whether, by using
additional trading company data, it would be over-calculating the SG&A expenses and profit in
determining True Potential’s normal value.
8
Factual statements in briefs must cite to the administrative record. USCIT R.
56.2(c)(2). Although Plaintiffs have not provided any authority for their assertion that True
Potential is unaffiliated with its Chinese producers, True Potential has stated as much to
Commerce. (See True Potential Questionnaire Section A Response, at A-9 (Administrative R.
Doc. No. 700).)
Court No. 07-00177 Page 18
Commerce articulated facts in the record which adequately support its decision to not
include SG&A expenses and profit of Indian trading companies in calculating True Potential’s
normal value, and thus, its determination will be sustained.
CONCLUSION
For the foregoing reasons, Plaintiffs’ motion for judgment on the agency record is denied.
/s/ Jane A. Restani
Jane A. Restani
Chief Judge
Dated: This 25th day of April, 2008.
New York, New York.