Asociacion Colombiana De Exportadores De Flores v. United States

Slip Op. 99-24
UNITED STATES COURT OF INTERNATIONAL TRADE

ASOCIACION COLOMBIANA de
EXPORTADORES de FLORES, et al.,
Plaintiffs,
v. Before: Pogue, Judge

UNITED STATES
Consol. Court No. 96-09-02209
Defendant,
FLORAL TRADE COUNCIL,
Defendant-Intervenor.

[Final results of Commerce’s redetermination sustained in part and
remanded in part.]

Decided: March 16, 1999

Arnold & Porter (Michael T. Shor) for Plaintiffs Asocolflores, the Flores del Rio
Group, and the Florex Group.

Akin, Gump, Strauss, Hauer & Feld, L.L.P. (Patrick F. J. Macrory, Spencer S.
Griffith, Lee Harriss Roberts, J. David Park) for Plaintiffs Eden Floral Farms,
Equiflor, Espirit Miami, Floralex Ltda., the Agrodex Group, the Caicedo Group,
and the Santana Group.

White & Case (Alan M. Dunn, Kristina Zissis) for Plaintiffs the HOSA Group.

David W. Ogden, Acting Assistant Attorney General, Civil Division, U.S.
Department of Justice; David M. Cohen, Director, Commercial Litigation Branch,
Civil Division, U.S. Department of Justice; Velta A. Melnbrencis, Assistant
Director, Commercial Litigation Branch, Civil Division, U.S. Department of
Justice; Lucius B. Lau, Office of the Chief Counsel for Import Administration,
U.S. Department of Commerce, Of Counsel; Karen L. Bland, Jeffrey C. Lowe, Bernd
G. Janzen, Sanjay J. Mullick, Attorney-Advisors, Office of the Chief Counsel for
Import Administration, U.S. Department of Commerce, for Defendant.

Stewart and Stewart (Terence P. Stewart, James R. Cannon, Jr., Amy S. Dwyer) for
Defendant-Intervenor Floral Trade Council.
Consol. Court No. 96-09-02209 Page 2

OPINION
Pogue, Judge: On March 25, 1998, this Court remanded certain
aspects of the Department of Commerce’s ("Commerce" or the
"Department") final determination in Certain Fresh Cut Flowers From

Colombia, 61 Fed. Reg. 42,833 (Dep’t Commerce 1996) (final results

antidumping duty admin. reviews) ("Final Results"). Asociacion

Colombiana de Exportadores de Flores v. United States, 22 CIT __,

6 F. Supp.2d 865 (1998)("Asociacion Colombiana").1
The remand Order directed Commerce to reconsider the following

aspects of the Final Results: (1) the methodology for the treatment

of imputed credit expense; (2) the conclusion that U.S. selling

expenses are a reasonable surrogate for selling expenses incurred

on home market sales for purposes of calculating constructed value;

and (3) the use of best information available ("BIA") for Santa

Helena, a member of the Florex Group. The Court also instructed

Commerce to correct its omission of a company-specific margin for

Flor Colombia, S.A., for the seventh period of review. Plaintiffs
Asocolflores, AFIF, and 81 individual Colombian producers of

flowers, Florex2, and Santa Helena3 ("Plaintiff"), object to each

aspect of Commerce’s remand determination.

1
Familiarity with the Court’s earlier decision in this case is
presumed.
2
Florex comprises Flores de Exportacion S.A., Agricola Guacari
S.A., Flores Altamira S.A. and Four Farmers Inc.
3
Santa Helena comprises Santa Helena S.A., Flores del Salitre
Ltda. and S.B. Talee de Colombia Ltda.
Consol. Court No. 96-09-02209 Page 3

Discussion
1. Imputed Credit

In the underlying administrative review, Commerce made a

circumstance of sale adjustment to foreign market value to account

for imputed credit expenses incurred on U.S. sales. For those

respondents that had actual U.S. loans during the period of review,

Commerce calculated the U.S. credit expense using interest rates

associated with those loans. Final Results, 61 Fed. Reg. at

42,848. For those respondents that did not have actual U.S.

dollar-denominated loans, Commerce used a peso-based interest rate

for the U.S. credit calculation. Commerce used the respondent’s

actual peso borrowing rate and adjusted that rate for the

devaluation of the peso against the U.S. dollar. Id. at 42,849.
This Court upheld as reasonable Commerce’s determination that the

Colombian producers’ borrowing experience was an appropriate

surrogate for the cost of extending credit to their U.S. customers.

Asociacion Colombiana, 22 CIT at __, 6 F. Supp.2d at 878. The

Court, however, remanded the issue to the Department to "cite

evidence to support the conclusion that its methodology - adjusting

for the devaluation of the peso against the dollar - is well

founded." Id. Specifically, the Court directed Commerce to

explain "why it simply subtracted the devaluation rate from the

peso-borrowing rate." Id.

Commerce states in the final results of redetermination

("Remand Determination"), that in order "to calculate the cost of
Consol. Court No. 96-09-02209 Page 4

financing the U.S. sale, we subtract the amount by which the

Colombian peso was devalued vis-a-vis the U.S. dollar from the

peso-denominated interest rate." Remand Determination at 4.

Commerce explains its rationale noting, "[w]e are attempting to

measure the opportunity cost of a sale, not the effective cost of

a loan." Id. at 6. To illustrate, Commerce modifies an example

provided by Plaintiff in its initial brief. See Initial Mem. of

Pls. Asocolflores in Supp. Mot. J. Agency R. (April 21, 1997) at

22-23.

In the example, Commerce assumes that a company makes a sale

of 10,000 U.S. dollars and that the exchange rate on the date of

sale is 589.14 pesos per dollar. Remand Determination at 4. The

customer pays the company one year later and the exchange rate on

the date of payment is 725.17 pesos per U.S. dollar. Id. The

company then borrows 10,000 pesos at an annual interest rate of

40%, with the principal and interest due one year later. Id.

In this example, had the customer paid on the date of sale,

the company would have received 5,891,400 pesos and would not have

accrued any interest expense. Because the customer actually paid

a year later, the company accrues 2,356,560 pesos of interest (40%

times 5,891,400). Id. at 4. Because the peso has been devalued

against the U.S. dollar during that period of time, however, the

company when it is paid actually receives 7,251,700 pesos (the

date-of-payment exchange rate, 725.17, times the dollar amount of

the sale, 10,000). Id. at 5. Thus, the company receives 1,360,300

pesos more than it would have received if the customer paid on the
Consol. Court No. 96-09-02209 Page 5

date of sale. Id. Therefore, the actual interest expense for the

sale is 996,260 pesos (the amount of interest owed at the

conclusion of the loan, 2,356,560, minus the additional revenue

received as a result of devaluation, 1,360,300). Significantly,

Commerce determines the imputed interest amount by dividing the

actual interest expense for the sale, 996,260, by the value of the

sale at the time of the sale, 5,891,400 pesos, which is 16.91% of

5,891,400 pesos. Id. This percentage equals the annual interest

rate (40%) minus the rate of devaluation (23.09%). Id.

Plaintiff challenges Commerce’s methodology, arguing that

Commerce’s formula "in fact measures only the effective cost of the

loan in peso terms; it did not measure the opportunity cost of the

dollar sale." Pl.’s Comments Opposing Remand Determination ("Pl.’s

Comments") at 19-20. Specifically, Plaintiff maintains that

Commerce erroneously calculates the credit expense by using the

exchange rate at the time of the sale.4 Id. at 20. Plaintiff

contends that the opportunity cost to the company, in dollar terms

is the net credit expense measured at the exchange rate on the date

4
Here, Commerce points to its regulation concerning currency
conversion, 19 C.F.R. § 353.60 (1995), asserting that when it makes
fair market value comparisons, "we use the [constructed value] at
the time of the U.S. sale and any necessary currency conversions
must be linked to that date." Remand Determination at 6. This
regulation, however, sets out the rule for converting a foreign
currency to the equivalent amount of U.S. dollars. It has no
bearing on the calculation of the proper imputed credit expense in
calculating foreign market value.
Consol. Court No. 96-09-02209 Page 6

the company paid the interest and repaid the loan.5 Id. at 20.

Plaintiff maintains that the Department’s calculation overstates

the opportunity cost to the company of financing the sale. The

Court agrees.

Commerce’s methodology appears to measure only the effective

cost of the loan in peso terms6, not the opportunity cost of the

dollar sale. This is apparent by continuing with the Department’s

example. Commerce would calculate the imputed credit expense by

applying the 16.91% to the sales value in dollars ($10,000),

yielding a credit expense for the sale of $1,691. This approach,

however, overstates the opportunity cost to the company. On the

date of payment the company must pay a total of 8,247,960 pesos, or

$11,374 (total peso amount that the company must pay back divided

by the date-of-payment exchange rate). Thus, if the company sets

aside $11,374 on the date of sale, it can make the payment.7

5
"[T]he opportunity cost of the delay in payment in dollar
terms is equal to 13.74 percent of the original $10,000 value of
the sale. The sale is worth 5,891,400 pesos ($10,000 x 589.14) on
the date of sale. One year later, the company must repay the loan
plus 40 percent interest (2,356,560 pesos), for a total of
8,247,960 pesos). This total peso payment is equal to $11,374
(8,247,960÷725.17), and thus the opportunity cost of extending the
credit in dollar terms is ($11,374 - $10,000)/$10,000, or 13.74
percent." Pl.’s Comments at 19.
6
As noted, Commerce divides the actual net credit expense
(996,260) by the peso value of the original sale (5,891,400) to
calculate a rate of 16.91%. Remand Determination at 5.
7
"The imputation of credit cost is based on the principle of
the time value of money." LMI-LaMetalli Industriale, S.p.A. v.
United States, 8 Fed. Cir. (T) 157, 162, 912 F.2d 455, 460 (1990).
Here, it costs the company an extra 13.74% of the sales value on
the date of sale, to allow a buyer to delay a payment for a year.
Consol. Court No. 96-09-02209 Page 7

Commerce’s conclusion that the cost is 16.91% of the sales

value suggests that the company would have to set aside $11,691

(net credit expense divided by the original peso value of the sale)

at the beginning of the year. If the company set aside this

amount, however, it could pay the hypothetical loan at the end of

the year, and still have $317 left over. Therefore, Commerce’s

example does not support its rationale - "[w]e are attempting to

measure the opportunity cost of a sale" - for simply subtracting

the devaluation rate from the peso-borrowing rate. Accordingly,

the Court remands this issue to Commerce to apply a methodology

that supports its rationale of calculating the opportunity cost of

the sale.
2. U.S. Selling Expenses in Calculating Constructed Value

In the preliminary results of the underlying administrative

review, Commerce used U.S. selling expenses incurred in Colombia

(on export sales) for purposes of calculating a surrogate value for

home-market selling expenses in calculating constructed value.

Final Results, 61 Fed. Reg. at 42,843. In the Final Results

Commerce used all U.S. selling expenses regardless of where the

expenses were incurred as the surrogate for home-market selling

expenses. Id. This Court upheld Commerce’s decision to use the

entire universe of U.S. selling expenses in its calculations.8 See

8
Asocolflores argues at great length that Commerce had no
legal basis to add selling expenses on U.S. sales to constructed
value. Pl.’s Comments at 5-9. This Court, however, sustained
Commerce’s authority to use all U.S. selling expenses as the
surrogate for home-market selling expenses. See Asociacion
Colombiana, 22 CIT at __, 6 F. Supp.2d at 880 (finding that
Consol. Court No. 96-09-02209 Page 8

Asociacion Colombiana, 22 CIT at __, 6 F. Supp.2d at 880. The

Court, however, remanded this issue to the Department for

reconsideration stating that "Commerce failed to cite evidence to

support the conclusion that expenses incurred on sales in the

United States would be a reasonable surrogate for selling expenses

incurred for home-market sales." Id.

Upon remand, Commerce explains, "[t]he selling expenses

incurred in the United States on U.S. sales are mainly commissions

(to unrelated commissionaires), overhead expenses, such as

refrigeration, sales office expenses, directors’ salaries,

communication expenses (i.e., telephone, facsimile), office

supplies, and travel expenses similar to those which likely would

be incurred on sales of flowers to any market." Remand

Determination at 7 (emphasis added). Commerce concludes "the

record shows that there are no unusual market-specific selling

expenses incurred in selling to the United States that would not

likely be incurred on sales in Colombia." Id. at 8 (emphasis

added).

Commerce directs the attention of the Court to a single piece

of evidence, Florex’s description of its U.S. selling expenses.

Id. at 7-8 (citing P.R. Doc. No. 42, Florex Group Section A

Response (Nov. 29, 1993), App. A-2). This description, however, is

Commerce’s approach was reasonable because by including selling
expenses associated with U.S. sales, Commerce ensured that its
calculation of general expenses would remain unaffected by the
shifting of expenses between the exporter and any related U.S.
importer).
Consol. Court No. 96-09-02209 Page 9

not an examination of how Florex would make sales in Colombia.9

Thus, it does not provide evidence to support Commerce’s conclusion

that there are no unusual market-specific selling expenses incurred

in selling to the United States that would not likely be incurred

on sales in Colombia.

Plaintiff correctly points out that on remand Commerce simply

provides a more detailed explanation of its previous decision.

Commerce’s determination continues to suffer from the flaw pointed

out by the Court in Asociacion Colombiana, 22 CIT at __, 6 F.

Supp.2d at 880. There is no record evidence to support Commerce’s

conclusion that expenses incurred on sales in the United States are

a reasonable surrogate for selling expenses incurred for home-

market sales as required by the statute.

Commerce contends that because "the surrogate selling expenses

are based on actual U.S. sales expenses reported by respondents

. . . the Department’s methodology is supported by substantial

evidence." Remand Determination at 12 (emphasis added). The fact,

however, that the sales expenses used are the actual U.S. sales

9
The antidumping statute requires Commerce to include in its
calculation of constructed value "an amount for general expenses
and profit equal to that usually reflected in sales of merchandise
of the same general class or kind as the merchandise under
consideration which are made by producers in the country of
exportation, in the usual commercial quantities and in the ordinary
course of trade . . . ." 19 U.S.C. § 1677b(e)(1)(B)(1988)(emphasis
added). In turn, Commerce’s regulations, provide, in pertinent
part, that constructed value shall include "[g]eneral expenses . .
. usually reflected in sales of merchandise of the same class or
kind as the merchandise by producers in the home market country. .
. ." 19 C.F.R. § 353.50(a)(2)(1995)(emphasis added).
Consol. Court No. 96-09-02209 Page 10

expenses reported does not constitute evidence that they are

representative of the expenses that would be incurred in a

hypothetically viable Colombian market for export-quality flowers.

Although Commerce correctly notes that a "surrogate is not intended

to be an exact replica of what expenses in the home market would

be," Remand Determination at 9, nevertheless, the substantial

evidence standard requires more than what Commerce has provided.

The court will uphold a Commerce determination in an

administrative review as long as it is in accordance with law and

supported by substantial evidence on the record. See Section
516A(b)(1)(B)(i) of the Tariff Act of 1930, as amended 19 U.S.C. §

1516a(b)(1)(B)(i)(1994). Substantial evidence is "more than a mere

scintilla. It means such relevant evidence as a reasonable mind

might accept as adequate to support a conclusion." Consolidated

Edison Co. v. NLRB, 305 U.S. 197, 229 (1938); Universal Camera

Corp. v. NLRB, 340 U.S. 474, 477 (1951)(quoted in Matsushita Elec.

Indus. Co. v. United States, 3 Fed. Cir. (T) 44, 51, 750 F.2d 927,

933 (1984)). Substantial evidence "is something less than the

weight of the evidence, and the possibility of drawing two

inconsistent conclusions from the evidence does not prevent an

administrative agency’s finding from being supported by substantial

evidence." Consolo v. Federal Maritime Comm’n, 383 U.S. 607, 619-

20 (1966).

Commerce also stated an additional reason why its use of U.S.

selling expenses was appropriate:
Consol. Court No. 96-09-02209 Page 11

Finally, we note that there is no alternative to using
U.S. selling expenses. As noted above, there are no
home-market selling expenses because there is no viable
home market. We have also determined that, for the same
reasons that we cannot use third-country sales as a basis
for foreign market value, it would be inappropriate to
use third-country selling expenses. Thus, we find that,
not only are U.S. selling expenses a reasonable surrogate
for home market selling expenses, they are also the only
available surrogate for home-market selling expenses.
Therefore, because there is no more appropriate surrogate
than U.S. selling expenses, we have continued to use U.S.
selling expenses as a surrogate for home-market selling
expenses.

Remand Determination at 10.

This court has recognized Commerce’s authority to use

information available to it when it was left with "no alternative."

This line of reasoning, however, has been limited to the court’s

review of Commerce’s actions in a "best information available"

context. See e.g., Emerson Power Transmission Corp. v. United
States, 19 CIT 1154, 1159, 903 F. Supp. 48, 53 (1995)("the

consequence of failing to provide adequate and timely information

is to leave Commerce with no alternative but to proceed with its

review relying upon the best information available); Mitsubishi

Heavy Indus., Ltd. v. United States, 17 CIT 1024, 1031, 833 F.

Supp. 919, 925 (1993)(noting that the "the consequences of failing

to provide adequate and timely information is to leave Commerce

with no alternative but to proceed with its review relying upon the

best information available")(quoting Ansaldo Componenti, S.p.A. v.

United States, 10 CIT 28, 38, 628 F. Supp. 198, 206 (1986)); NSK

Ltd. v. United States, 16 CIT 401, 406, 794 F. Supp. 1156, 1160

(1992)("Nevertheless, the fact remains that NSK did not produce the
Consol. Court No. 96-09-02209 Page 12

data, thus leaving Commerce with no alternative but to invoke the

best information rule.").

The Court also recognizes that Commerce may, based on its

experience in administering the statute, make justifiable

inferences on the record before it. See Radio Officers’ Union v.

NLRB, 347 U.S. 17, 50 (1954); see also Matsushita Elec. Indus. v.

United States, 3 Fed. Cir. (T) 44, 51, 750 F.2d 927, 933

(1984)(reviewing whether "the evidence and reasonable inferences

from the record support the [ITC] finding."); Borden Inc. v. United
States, 22 CIT __, __, slip op. 98-167, at 4 (Dec. 16,

1998)("Commerce must necessarily draw some inferences from a

pattern of behavior."). The evidence relied upon by Commerce in

this case, however, standing alone, does not provide a sufficient

basis for the conclusions drawn by the Department.

Commerce’s determination here amounts to nothing more than

conclusory statements that expenses incurred on sales in the United

States are a reasonable surrogate for selling expenses that would

be incurred in a viable home market. See Remand Determination at

7 ("The selling expenses incurred in the United States on U.S.

sales are . . . similar to those which likely would be incurred on

sales of flowers to any market.")(emphasis added); id. at 8 ("there

are no unusual market-specific selling expenses incurred in selling

to the United States that would not likely be incurred on sales in

Colombia"). Speculation, however, is not support for a finding.

See Asociacion Colombiana de Exportadores de Flores v. United
Consol. Court No. 96-09-02209 Page 13

States, 13 CIT 13, 15, 704 F. Supp. 1114, 1117 (1989), aff’d, 901
F.2d 1089 (Fed. Cir. 1990). "This type of conjecture is exactly

the type of reasoning the substantial evidence standard aims to

prevent, and is totally unsupported by substantial evidence."

China National Arts and Crafts Import and Export Corp. v. United

States, 15 CIT 417, 422, 771 F. Supp. 407, 412 (1991).

"[T]he orderly functioning of the process of review requires

that the grounds upon which the administrative agency acted be

clearly disclosed and adequately sustained." SEC v. Chenery Corp.,

318 U.S. 80, 94 (1943). Therefore, the Court remands to afford

Commerce the opportunity to provide further evidence showing that

expenses incurred on sales in the United States are a reasonable

surrogate for selling expenses incurred for home-market sales or to

adopt a surrogate supported by substantial evidence on the record.

3. Choice of BIA for the Santa Helena Group

For the preliminary results of the underlying administrative

review, Commerce applied a second-tier BIA rate10 for the Santa

10
The application of BIA may be either "total" or "partial."
Commerce applies total BIA when a party has failed to submit
information in a timely manner, or when part of the submitted data
is sufficiently flawed, rendering the entire response unreliable
and unusable. See Ad Hoc Comm. of AZ-NM-TX-FL Producers of Gray
Portland Cement v. United States, 18 CIT 906, 915, 865 F. Supp.
857, 865 n.21 (1994), aff’d, 68 F.3d 487 (Fed. Cir. 1995); National
Steel Corp. v. United States, 18 CIT 1126, 1131, 870 F. Supp. 1130,
1135 (1994). When Commerce resorts to total BIA, Commerce
implements a "two-tier BIA methodology," which factors in a party’s
cooperation in the BIA determination. Id. Commerce uses partial
BIA when only one part of the submitted information is deficient,
but is still reliable in most other respects. See Ad Hoc Comm., 18
CIT at 915, 865 F. Supp. at 865 n.21.
Consol. Court No. 96-09-02209 Page 14

Helena Group ("Santa Helena") due to its failure to correct its

data or provide a narrative explanation in its reporting of

amortized preproduction expenses pursuant to the crop adjustment

methodology.11 In the Final Results, Commerce collapsed the Santa

Helena and the Florex Groups. Commerce combined the Santa Helena

rate with the rates for the remaining members of the Florex Group.12

This Court upheld Commerce’s application of BIA as appropriate due

to the deficiencies in Santa Helena’s reported preproduction

expenses. See Asociacion Colombiana, 22 CIT at __, 6 F. Supp.2d at

892. The Court, however, remanded this issue to Commerce to

reconsider whether Santa Helena’s improper crop amortization

rendered its entire response unreliable and to explain the findings

supporting its decision. Id.

Upon remand, Commerce reconsidered its position and determined

that applying a partial BIA to Santa Helena’s crop adjustment

reporting is appropriate. Remand Determination at 14. "We have

decided this because Santa Helena responded adequately to the rest

11
Normally, Commerce requires respondents to report
preproduction expenses consistent with their home country generally
accepted accounting principles ("GAAP"), which typically are
reflected in respondents’ ordinary books and records. See Final
Results, 61 Fed. Reg. at 42,857. In prior reviews Commerce
accepted preproduction expenses that were amortized over a longer
period than the period contained in respondents’ books and records.
Commerce terms this alternative approach to preproduction expenses
the "Crop Adjustment Method." Id.
12
Commerce applied the second-tier BIA rate for sales by Santa
Helena during each period of review, weighting the BIA margins
assigned to such sales with the calculated margins on sales by the
other members of the Florex Group. See Remand Determination at 13-
14.
Consol. Court No. 96-09-02209 Page 15

of our questionnaire and supplemental questionnaire and because

there is an appropriate adjustment that can be made to Santa

Helena’s crop adjustment methodology which will obviate the need

for total BIA." Id.
As partial BIA, Commerce chose to deny the claimed adjustment

for carrying forward costs incurred in the current (monthly)

period. That is, the Department chose to apply all of the reported

costs in the current period to sales in the current period and

included costs carried into the current period from prior periods.

C.R. Doc. No 1 (Memo to File Fr: Richard Rimlinger, May 26, 1998)

("Redetermination Memo") at 2. Thus, Commerce disallowed any

amortized amount to be carried forward.13 In addition, Commerce

made an adjustment to account for the effects of inflation.14

Specifically, Commerce made an adjustment to lines 108

(preproduction materials costs paid in review period), 150

13
Consistent with Colombian GAAP, in calculating the cost of
production for the subject flowers, there are two alternative
methodologies for reporting preproduction expenses for calculating
constructed value. Companies may report preproduction costs in the
month such expenses are incurred, along with the production
expenses incurred in tending plants actually in production that
month. Alternatively, companies may capitalize all expenses
associated with the preproduction phase, and amortize them in the
months in which the plants are in production. Both of these
methodologies have been approved by this court. See e.g.,
Associacion Colombiana de Exportadores de Flores v. United States,
13 CIT 13, 17-18, 704 F. Supp. 1114, 1119, aff’d, 901 F.2d 1089
(Fed. Cir. 1989); Floral Trade Council of Davis v. United States,
17 CIT 274, 275 (1993).
14
As a result of Commerce’s decision to resort to partial BIA
for Santa Helena, Commerce made certain corrections to the group-
wide rates for the Florex Group. Redetermination Memo at 2-3;
Remand Determination at 20. No party challenges these changes.
Consol. Court No. 96-09-02209 Page 16

(preproduction labor costs paid in review period), 181

(depreciation), and 214 (other general and administrative

expenses). Id. As a surrogate for increasing the asset value

reported by Santa Helena, the Department used the percentage

increase in these lines as reported by the Florex Group in response

to the Department’s July 1995 supplemental questionnaire requesting

adjustments to certain costs for inflation. Id.
Plaintiff challenges Commerce’s choice of BIA, arguing that

the Department uses a highly punitive preproduction expense

calculation.15 Pl.’s Comments at 26. Plaintiff argues that

Commerce has inappropriately mixed the two cost of production

methodologies by combining Santa Helena’s (monthly) preproduction

expenses reported on a currently incurred basis and its reported

preproduction expenses carried forward from prior periods

calculated using an amortization methodology. Id. Plaintiff

maintains that Commerce’s approach results in the double counting

of Santa Helena’s preproduction expenses. Id. at 24.

15
Plaintiff once again challenges Commerce’s resort to BIA,
arguing that Commerce should have relied upon Santa Helena’s
preproduction expenses reported in the (alternative) current basis
method because there is no evidence that this reported data is
incorrect. Pl.’s Comments at 28. Plaintiff asserts that because
Commerce refers to its crop adjustment method as "optional" and
"Commerce affords respondents the option of submitting
preproduction expense data in one of two ways, and a respondent
submits it both ways, Commerce has no basis for penalizing that
respondent simply because one methodology was applied incorrectly."
Id. at 30. This Court has already decided that Commerce’s decision
to resort to BIA was appropriate. Asociacion Colombiana 22 CIT at
__, 6 F. Supp.2d at 892. Accordingly, the Court will not revisit
the issue here.
Consol. Court No. 96-09-02209 Page 17

Although Congress expressly mandated that Commerce use the

best information available when faced with a party who is unwilling

or unable to participate in the administrative review proceedings,

it did not explicitly define what type of information constituted

the "best" information.16 Hence, because Congress has "explicitly

left a gap for the agency to fill" in determining what constitutes

the best information available, Commerce’s construction of the

statute must be accorded considerable deference. Allied-Signal Co.
v. United States, 996 F.2d 1185, 1191 (Fed. Cir. 1993)(citing

Chevron U.S.A., Inc. v. Natural Resources Defense Council, Inc.,

467 U.S. 837, 843-44 (1984)).

"The purpose behind permitting Commerce to resort to BIA is to

induce respondents to provide Commerce with requested information

in a timely, complete, and accurate manner so that the Department

may determine current margins within statutory deadlines."

National Steel Corp. v. United States, 18 CIT 1126, 1129, 870 F.

Supp. 1130, 1134 (1994) (quoting Rhone Poulenc Inc. v. United

States, 899 F.2d 1185, 1191 (1990)). "Although the ultimate

purpose of BIA is not to punish, BIA is intended to be adverse,"

see Pulton Chain Co. v. United States, 17 CIT 1136, 1139 (1993).

At the same time, Commerce’s choice of BIA must be reasonable. "A

rational relationship must exist between the ‘data chosen and the

matter to which they are to apply.’" Manifattura Emmepi S.p.A. v.

16
The agency shall, "whenever a party or any other person
refuses or is unable to produce information requested in a timely
manner and in the form required, or otherwise significantly impedes
an investigation, use the best information otherwise available."
19 U.S.C. § 1677e(c)(1988).
Consol. Court No. 96-09-02209 Page 18

United States, 16 CIT 619, 624, 799 F. Supp. 110, 115 (1992); see

also D & L Supply Co. v. United States, 113 F.3d 1220 (Fed. Cir.

1997) (finding that it is "irrational" to uphold a rate when its

foundation has been invalidated).

Here, Commerce utilized to the extent possible all current

expenses reported by Santa Helena. Remand Determination at 14-17.

Because there were errors in Santa Helena’s amortizations13,

however, the Department also included costs carried into the

current period from prior periods, explaining that it did so, "in

order to ensure that we capture all of the costs attributable to

the current period." Id. The Court finds that Commerce’s approach

was reasonable.

Because the deficiency in the record was Santa Helena’s crop

adjustment methodology, Commerce appropriately denied the claimed

adjustment for carrying forward costs incurred in the current

period to future periods. Commerce used record evidence to the

extent possible, while ensuring that Santa Helena did not benefit

from its failure to properly report costs. In resorting to partial

BIA, Commerce appropriately utilized an adverse inference. See

National Steel Corp., 18 CIT at 1131, 870 F. Supp. at 1135 ("When

errors in the information submitted constitutes a failure to

13
Santa Helena reported the "same values in all months for
monthly preproduction expenses actually incurred as it did for
monthly expenses carried forward to future periods." Florex Brief
at 15. Santa Helena acknowledges that "its amortizations were
reported incorrectly, and that the expenses carried forward in the
beginning months of each review period should be less than the
expenses actually incurred." Id.
Consol. Court No. 96-09-02209 Page 19

provide the necessary data, Commerce applies a more adverse dumping

margin as partial BIA."); Ad Hoc Committee, 18 CIT at 915, 865 F.

Supp. at 867 n.22 (stating that in a "partial BIA" situation the

only instance in which BIA is not adverse is when there is an

inadvertent gap in the record, when only a minor or insignificant

adjustment is involved, or when the missing data is beyond the

control of the respondent). Further, Commerce’s BIA choice

represents a reasonable attempt to balance the "rational

relationship" requirement, with the purpose of inducing respondents

to cooperate with Commerce. See supra pp. 17-18.
Moreover, Commerce’s approach is consistent with a major

purpose of BIA to permit Commerce, and not respondents to control

antidumping investigations. See Allied-Signal, 996 F.2d at 1191

(quoting Olympic Adhesives, Inc. v. United States, 899 F.2d 1565,

1571 (Fed. Cir. 1990)("We agree that [Commerce] cannot be left

merely to the largesse of the parties at their discretion to

supply the [Department] with information. This is particularly the

case when [Commerce] is attempting to obtain information to conduct

statutorily mandated administrative reviews because unlike [the

International Trade Commission], the [Department] has no subpoena

power.")). Indeed, to accept Plaintiff’s arguments "would be

tantamount to allowing a beneficial post-hoc correction of Santa

Helena’s response." Remand Determination at 17. Finally,

Commerce’s choice of partial BIA is not punitive because the agency

did not reject low margin information in favor of high margin
Consol. Court No. 96-09-02209 Page 20

information that was demonstrably less probative of current

conditions. See Rhone Poulenc, Inc. v. United States, 899 F.2d

1185, 1190 (Fed. Cir. 1990).

Plaintiff also challenges Commerce’s use of an inflation

adjustment, arguing that the Department erred in adjusting Santa

Helena’s currently incurred preproduction expenses. Pl.’s Comments

at 30. Plaintiff contends that the Department’s practice is to

only adjust assets for inflation. Id. at 31. Therefore, Commerce

erred in adjusting Santa Helena’s preproduction expenses.

Plaintiff is correct to the extent that Commerce does not make

inflation adjustments to current expenses.14 Thus, for those

respondents that reported preproduction expenses on a current

basis, no inflation adjustments were made to these expenses. See

e.g., C.R. Doc. No. 928 (Florcol Group Response to June 1995

Supplemental Questionnaire, July 18, 1995) at 2; C.R. Doc. No. 932

(Agricola Acevedo Ltda. Response to June 1995 Supplemental

Questionnaire, July 19, 1995) at 2. However, this is not the case

here. Plaintiff reported its preproduction expenses using the crop

adjustment methodology.15 Plaintiff also argues that if inflation

14
Under Commerce’s own inflation methodology, and consistent
with Colombian GAAP, no inflation adjustment is made to current
expenses because they are expressed in current value pesos.
However, when a respondent uses the crop adjustment method,
Commerce consistently makes inflation adjustments to amortized
preproduction costs. See infra n.15.
15
In its June 1995 supplemental questionnaire, Commerce
directed respondents as follows:

If you have amortized preproduction costs in tables 2A,
2B, or 2C and or depreciation expenses in Table 2D
Consol. Court No. 96-09-02209 Page 21

adjustments are appropriate, the Department erred in its

calculations of the inflationary factor. Pl.’s Comments at 32.

First, Plaintiff maintains that Commerce’s approach was not in

accordance with law because it is "inconsistent with Commerce’s BIA

policy, applied to other respondents in these reviews and

previously affirmed by this court, concerning how to make inflation

adjustments for respondents that failed to report, or incorrectly

reported, inflation adjustments." Id. Plaintiff contends that

Commerce should have used the inflation adjustment factors that it

calculated and applied to other non-responsive respondents as

partial BIA.16 Id. Plaintiff cites to Cultivos Miramonte S.A. v.

United States, 22 CIT __, 7 F. Supp.2d 989 (1998), to support this

position. Pl.’s Comments at 33.

Plaintiff claims that Commerce’s use of a different BIA

which are based on historical asset values which,
revise these expenses so that they are based on asset
values which, in accordance with Colombian GAAP, have
been adjusted to reflect the effects of inflation and
submit new diskettes.

June 22, 1995 Supplemental Questionnaire, P.R. Doc. No. 1508.
16
In its memorandum dated February 20, 1996, Commerce’s Office
of Accounting examined the monthly inflation rates in Colombia
during the relevant time periods and devised inflation adjustment
factors to be used as partial BIA in cases in which respondents
failed to correctly report inflation adjustments as instructed in
the June 1995 supplemental questionnaire. P.R. Doc. No. 1721 (Memo
to Richard Rimlinger from Michael Martin Re: Inflation Adjustments
to Depreciation and Amortization Costs, Feb. 20, 1996) at 1.
Separate factors were calculated for each period of review, for
depreciation expense adjustments and preproduction amortization
adjustments. Id. Commerce applied these inflation adjustment
factors to the reported amortized preproduction expenses computed
by respondents that failed to make inflation adjustments. Final
Results, 61 Fed. Reg. 42,844-45.
Consol. Court No. 96-09-02209 Page 22

inflation adjustment for Santa Helena represents a departure from

established agency practice regarding the determination of partial

BIA for parties that failed to report, or incorrectly reported,

inflation adjustments. Id. at 33. Therefore, Plaintiff contends

that the Department is required to provide a "reasoned basis for

departing from its use of the inflation factors it itself

calculated for use as BIA." Id. This argument reflects a basic

misunderstanding of the nature of Commerce’s "BIA policy."

First, Commerce has broad discretion in determining what

information to use once it establishes that the application of BIA

is appropriate. See Emerson Power Transmission Corp. 19 CIT at
1159, 903 F. Supp. at 53. Indeed, Congress granted to Commerce the

discretion to tailor its application of BIA to the unique facts of

each proceeding. Accord Allied-Signal, 28 F.3d at 1191.

Second, Commerce’s use of a particular BIA methodology for

certain respondents during a period of review does not rise to the

level of an agency practice or regulation having the force and

effect of law but is rather a fact-specific determination in this

case. Cf. Motor Vehicle Mfrs. Ass’n of the United States, 463 U.S.

29, 42-43 (1983) (finding that the agency’s decision to revoke an

existing regulation promulgated under the rule-making procedures of

the Administrative Procedure Act, is void as arbitrary and

capricious in the absence of a reasoned explanation for the

revocation); Cultivos Miramonte S.A. v. United States, 21 CIT __,

__, 980 F. Supp. 1268, 1274-76 (1997)(finding that when Commerce

treated a respondent a particular way in two prior administrative
Consol. Court No. 96-09-02209 Page 23

reviews Commerce must explain the basis for its subsequent change

in treatment); Shikoku Chems. Corp. v. United States, 16 CIT 382,

795 F. Supp. 417 (1992)(holding that it was unreasonable for

Commerce to alter a methodology used in the original less than fair

value investigation and four annual administrative reviews, where

the fact pattern remained unchanged and the error discovered in the

methodology was of little significance).

Moreover, Plaintiff’s reliance upon Cultivos Miramonte is

misplaced. Plaintiff reads Cultivos too broadly. The limited

issue before the Court in Cultivos was whether Commerce’s partial

BIA choice to apply four-month inflation adjustments to Cultivos

Miramonte’s production expenses was reasonable. 22 CIT at __, 7 F.

Supp.2d at 994. Commerce’s specific treatment of Cultivos

Miramonte, an unrelated respondent, has no bearing upon the case

presently before this Court. See Nation Ford Chem. Corp. v. United

States, 21 CIT __, 985 F. Supp. 133 (1997)(stating that findings in

past determinations, while often relevant, are not binding in

subsequent cases), aff’d, Nos. 98-1253, 98-1254 (Fed. Cir. Feb. 2,

1999).

Third, Santa Helena is different than the other non-responsive

respondents because Santa Helena failed to report correctly the

underlying data. The other respondents simply failed to report

their inflation adjustments. Therefore, it was reasonable for

Commerce to use a different BIA inflation adjustment for Santa

Helena.
Consol. Court No. 96-09-02209 Page 24

Plaintiff also argues that Commerce’s actions are not in

accordance with law because Commerce departed from using highly

probative inflation factors (calculated using the actual Colombian

inflation rates), to a demonstrably less probative calculation

based upon meaningless ratios calculated for another company.

Pl.’s Comments at 33.

Commerce adjusted information submitted by Santa Helena using

actual inflation data reported in the instant investigation by the

related sub-group Florex. Redetermination Memo at 2. Commerce’s

choice under the circumstances is not unreasonable.

That Commerce could have chosen information that would have

resulted in a lower rate does not necessarily mean that the

information selected was "less probative." The data reported by

Santa Helena was not verified, so there is nothing on the record

that would suggest that any of the information Commerce could have

used was more or less probative of Santa Helena’s actual inflation

adjustments. Rather, what Plaintiff points to, are the different

results of applying Commerce’s inflation rates based on the formula

it used for some respondents and the rates assigned to Santa Helena

based on the Florex sub-group’s data. Pl.’s Comments at 34.

However, "[t]he best information ‘is not necessarily accurate

information, it is information which becomes useable because a

respondent has failed to provide accurate information.’" Krupp
Stahl A.G. v. United States, 17 CIT 450, 453, 822 F. Supp. 789, 792

(1993)(quoting Asociacion Colombiana de Exportadores de Flores v.
Consol. Court No. 96-09-02209 Page 25

United States, 13 CIT at 28, 704 F. Supp. 1114 at 1126).

Plaintiff also contends that the Department’s approach is not

supported by substantial evidence because the Florex sub-group made

mistakes in reporting its inflation adjustments. Pl.’s Comments at

35. Specifically, Plaintiff argues that Florex did not follow

Commerce’s instructions in using the crop adjustment methodology in

its original July 1994 questionnaire response.17 Plaintiff

maintains, therefore, Commerce erred in estimating the inflation

effects experienced by Florex. Id. at 36.
Defendant counters "the record does not support Asocolflores’

assertion that Florex calculated its inflationary adjustments based

on [two crop adjustment fields]. Rather, Florex reported only the

affected lines and the amount of the increase in each line. In

addition, Florex did not disclose its methodology of calculating

these amounts." Remand Determination at 19.

The Court will "uphold a decision of less than ideal clarity

if the agency's path may reasonably be discerned." Bowman Transp.,

Inc. v. Arkansas-Best Freight System, 419 U.S. 281, 286 (1974).

17
In Asociacion Colombiana, 22 CIT at __, 6 Supp.2d 865 at 891,
the Court rejected Plaintiff’s argument that Commerce’s
instructions in its original questionnaire pertaining to the crop
adjustment methodology "were unclear and inadequate." Here,
Plaintiff contends the Florex sub-group correctly used the crop
adjustment methodology because "Florex recognized that Commerce’s
instructions . . . were wrong, which affected the way in which it
reported preproduction costs." Pl.’s Comments at 35 n.52. That
is, Florex used only two of the three crop adjustment fields. Id.
Florex reported expenses carried into the period from prior years
and current expenses. C.R. Doc. No. 446 (Florex Section C & D
Response, July 29, 1994) at 49-52. Florex did not, however, report
expenses carried forward into the future. Id.
Consol. Court No. 96-09-02209 Page 26

However, "the agency must examine the relevant data and articulate

a satisfactory explanation for its action . . . ." Motor Vehicle

Manuf. Ass'n. of U.S. v. State Farm Mutual Auto. Ins. Comp., 463

U.S. 29, 43 (1983). Here, as Commerce admits, the record does not

disclose the specific methodology used to derive the inflation

adjustments used as BIA. Thus, the Court cannot adequately review

whether Commerce’s determination is supported by substantial

evidence. Accordingly, the Court remands this issue for

reconsideration. Upon remand, Commerce must address Plaintiff’s

argument with respect to the accuracy of the inflation adjustments

relied upon.
4. Company-Specific Margin for Flor Colombia

In the Final Results, Commerce failed to list a company-

specific rate for Flor Colombia in its margin tables as prescribed

by section 1675(a). See 19 U.S.C. § 1675(a)(1988). Because these

tables are used to prepare the cash deposit instructions issued to

the U.S. Department of Customs, a company-specific cash-deposit

rate for Flor Colombia was omitted from Commerce’s instructions to

Customs. Thus, the Court remanded this issue to Commerce for

reconsideration. See Asociacion Colombiana, 22 CIT at __, 6 F.

Supp.2d at 906.

Upon remand, Commerce explains "[w]hen a final and conclusive

judgment is issued in these reviews, we will publish a notice of

amended final results in the Federal Register. At that time we

will issue cash deposit assessment instructions to Customs to

collect cash deposits and duties for Flor Colombia at the
Consol. Court No. 96-09-02209 Page 27

appropriate rate (i.e., 62.79 percent)." Remand Determination at

19-20. No party challenges this correction. Therefore, Commerce’s

publication of a company-specific rate, in accordance with this

Court’s order in the underlying opinion, is affirmed.
Conclusion

In accordance with the foregoing, it is hereby ORDERED that

Commerce’s Final Results of Redetermination is remanded for

Commerce to reconsider its treatment of imputed credit expenses in

accord with the Court’s opinion; and it is further ORDERED that the

issue of U.S. selling expenses is remanded for further

consideration in accord with the Court’s opinion; and it is further

ORDERED that the issue of Commerce’s choice of inflation

adjustments as BIA is remanded for further consideration in accord

with the Court’s opinion; and it is further ORDERED that remand

results are due on May 3, 1999; comments and responses are due on

June 4, 1999; any rebuttal comments are due on June 18, 1999.

___________________
Judge, Donald C. Pogue

Dated: March 16, 1999
New York, New York