Slip Op. 16-90
UNITED STATES COURT OF INTERNATIONAL TRADE
PAKFOOD PUBLIC COMPANY
LIMITED, OKEANOS FOOD
COMPANY LIMITED, THAI UNION
FROZEN PRODUCTS PUBLIC CO.,
LTD., THAI UNION SEAFOOD CO.,
LTD.,
Before: Leo M. Gordon, Judge
Plaintiffs,
Court No. 14-00230
v.
UNITED STATES,
Defendant.
OPINION and ORDER
[Final administrative review results remanded.]
Dated: October 4, 2016
Robert G. Gosselink, Trade Pacific PLLC of Washington, DC for Plaintiffs
Pakfood Public Co., Ltd., Okeanos Food Company Ltd., Thai Union Frozen Products
Public Co., Ltd., and Thai Union Seafood Co., Ltd.
Kara M. Westercamp, Trial Attorney, Commercial Litigation Branch, Civil Division,
U.S. Department of Justice of Washington, DC for Defendant United States. On the brief
with her were Benjamin C. Mizer, Principal Deputy Assistant Attorney General, Jeanne E.
Davidson, Director, and Patricia M. McCarthy, Assistant Director. Of counsel on the brief
was Michael T. Gagain, Attorney, Office of Associate Chief Counsel, U.S. Department of
Commerce of Washington, DC.
Jordan C. Kahn and Nathaniel M. Rickard, Picard Kentz & Rowe, LLP of
Washington, DC for Defendant-Intervenor Ad Hoc Shrimp Trade Action Committee.
Gordon, Judge: This action involves the final results of an administrative review
conducted by the U.S. Department of Commerce (“Commerce”) for the antidumping duty
order covering Certain Frozen Warmwater Shrimp from Thailand, 79 Fed. Reg. 51,306
Court No. 14-00230 Page 2
(Dep’t Commerce Aug. 28, 2014) (“Final Results”); see also Issues and Decision Mem.
for Certain Frozen Warmwater Shrimp from Thailand, A-549-822 (Aug. 21, 2014,
ECF No. 22 (“Decision Mem.”). The court has jurisdiction pursuant to Section
516A(a)(2)(B)(iii) of the Tariff Act of 1930, as amended, 19 U.S.C.
§ 1516a(a)(2)(B)(iii)(2012),1 and 28 U.S.C. § 1581 (c) (2012). Plaintiffs Pakfood Public
Co. Ltd, and Okeanos Food Company Limited (collectively, “Pakfood”) and Thai Union
Frozen Products Public Co., Ltd. and Thai Union Seafood Co., Ltd. (collectively, “Thai
Union”) challenge Commerce’s deviation from its standard 90/60-day window sales
comparison periods provided in 19 C.F.R. § 351.414(f) (2013). For the reasons that follow,
the court remands this matter to Commerce for further consideration.
I. Background
During the administrative review Commerce selected Pakfood and Thai Union for
individual review. Commerce collapsed them into a single entity (“Collapsed Entity”) two
and a half months into the review period, effective April 23, 2012 (“Collapsing Date”).
Commerce calculated separate dumping margins for Pakfood and Thai Union before (and
excluding) the Collapsing Date, as well as a separate margin for the Collapsed Entity after
(and including) the Collapsing Date. In those calculations Commerce truncated—on the
Collapsing Date—its normal 90/60-day sales comparison window under
19 C.F.R. § 351.414(f) in which it tries to match contemporaneous sales. Commerce
compared Pakfood’s U.S. sales to its home market sales made before the Collapsing
1
Further citations to the Tariff Act of 1930, as amended, are to the relevant provisions of
Title 19 of the U.S. Code, 2012 edition.
Court No. 14-00230 Page 3
Date. Commerce also compared Thai Union’s U.S. sales to its home market sales made
before the Collapsing Date. Lastly, Commerce compared the Collapsed Entity’s (Pakfood
and Thai Union’s) U.S. sales to home market sales made on or after the Collapsing Date.
II. Standard of Review
For administrative reviews of antidumping duty orders, the court sustains
Commerce’s “determinations, findings, or conclusions” unless they are “unsupported by
substantial evidence on the record, or otherwise not in accordance with law.” 19 U.S.C.
§ 1516a(b)(1)(B)(i). More specifically, when reviewing agency determinations, findings,
or conclusions for substantial evidence, the court assesses whether the agency action is
reasonable given the record as a whole. Nippon Steel Corp. v. United States, 458 F.3d
1345, 1350-51 (Fed. Cir. 2006). Substantial evidence has been described as “such
relevant evidence as a reasonable mind might accept as adequate to support a
conclusion.” DuPont Teijin Films USA v. United States, 407 F.3d 1211, 1215 (Fed. Cir.
2005) (quoting Consol. Edison Co. v. NLRB, 305 U.S. 197, 229 (1938)). Substantial
evidence has also been described as “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. Fed. Mar. Comm’n, 383 U.S. 607, 620 (1966). Fundamentally, though,
“substantial evidence” is best understood as a word formula connoting reasonableness
review. 3 Charles H. Koch, Jr., Administrative Law and Practice § 9.24[1] (3d ed. 2016).
Therefore, when addressing a substantial evidence issue raised by a party, the court
analyzes whether the challenged agency action “was reasonable given the circumstances
Court No. 14-00230 Page 4
presented by the whole record.” 8A West’s Fed. Forms, National Courts § 3.6 (5th ed.
2016).
III. Discussion
When Commerce calculates a respondent’s dumping margin, Commerce
compares “the export price or constructed export price and normal value.” 19 U.S.C.
§ 1677b(a). The respondent’s “normal value” is generally based on home market sales,
made in the ordinary course of trade “at a time reasonably corresponding to the time of
the sale used to determine the export price or constructed export price.” 19 U.S.C.
§ 1677b(a)(1)(A). Commerce normally determines the contemporaneous month for price-
to-price comparisons using the 90/60-day window method set forth in
19 C.F.R. § 351.414(f):
Normally, the Secretary will select as the contemporaneous month the first
of the following months which applies:
(1) The month during which the particular U.S. sales under
consideration were made;
(2) If there are no sales of the foreign like product during this month, the
most recent of the three months prior to the month of the U.S. sales in
which there was a sale of the foreign like product.
(3) If there are no sales of the foreign like product during any of these
months, the earlier of the two months following the month of the U.S.
sales in which there was a sale of the foreign like product.
19 C.F.R. § 351.414(f).
All parties take this regulation at face value and do not discuss its genesis or
purpose. The parties do, however, discuss the purpose of the collapsing regulation, with
all agreeing that Commerce collapses entities to counteract or inhibit a potential for sales
Court No. 14-00230 Page 5
and production manipulation among the collapsed entities. In the proceeding below
Plaintiffs challenged Commerce’s decision to use the Collapsing Date as a demarcation
line across which no sales comparisons would be made. Plaintiffs argued that pre-
collapsed sales (of Pakfood and, separately, Thai Union) should be compared with post-
collapsed sales (of Pakfood and Thai Union, collectively) so that a pre-collapsed Pakfood
sale might match with a post-collapsed Thai Union sale, or a pre-collapsed Thai Union
sale might potentially match with a post-collapsed Pakfood sale. Commerce responded
to Plaintiffs’ challenge by explaining that failing to treat the pre- and post- collapsed
entities separately for sales comparison purposes would “undermine the rationale behind
the collapsing regulation at 19 C.F.R. 351.401(f), and potentially allow parties to engage
in precisely the type of sales and production shifting and manipulation that the regulation
is designed to prevent.” Decision Mem. at 22.
Plaintiffs make a straightforward argument that this explanation is unreasonable:
if one accepts that the purpose of the collapsing regulation is to inhibit manipulation of
sales and production among parties, then once parties are collapsed, that should, in
theory, eliminate any potential for sales and production manipulation among those parties.
Plaintiffs, in essence, characterize Commerce’s additional truncation of the windows
comparison period—to tackle an imagined, lingering potential for sales and production
manipulation that has already been cured by the collapsing determination—as mere
surplusage that arbitrarily inflates margins. Defendant and Defendant-Intervenor both
respond that a mid-review collapse of mandatory respondents is an unusual situation,
and that Commerce’s fine tuning of the sales comparison methodology to deal separately
Court No. 14-00230 Page 6
with the pre- and post-collapsed entities was reasonable.
There is some logic and persuasiveness to Plaintiffs’ argument. Collapsing is not
a new concept or methodology, so the court has some skepticism that an otherwise
normal affiliation relationship and uncontested collapsing determination is unique or
abnormal. And given the purpose of the collapsing regulation to eliminate the potential for
price and production manipulation, the court does wonder why collapsing Pakfood and
Thai Union does not, in fact, eliminate that potential. Why does it linger after the entities
have been collapsed? If the potential for manipulation does in fact remain, has Commerce
not chosen the correct collapsing date? And what can the parties manipulate after they
have been collapsed? Is it the affiliation relationship itself that Commerce is trying to
influence or discourage? Is Commerce concerned that parties will potentially manipulate
the date of affiliation, engineer their collapsing, to minimize dumping margins? If that is
the concern, wouldn’t the parties have to be collapsed for the entire review period to
eliminate that potential?
Also, what is Commerce’s practice for the windows comparison period when
Commerce collapses entities for the first time for an entire period of review? Does
Commerce make the same calculation adjustment that it made here—truncating the
normal windows comparison period when the entities are first collapsed (at the start of
the review period)? In other words, does Commerce always isolate the sales comparisons
of the collapsed entity? If not, how does Commerce reconcile the differing approaches?
Court No. 14-00230 Page 7
IV. Conclusion
In accordance with the foregoing, it is hereby
ORDERED that this action is remanded to Commerce to reconsider its decision to
truncate the windows comparison period for Plaintiffs; it is further
ORDERED that Commerce shall file its remand results on or before
December 1, 2016; and it is further
ORDERED that, if applicable, the parties shall file a proposed scheduling order
with word limits for comments on the remand results no later than seven days after
Commerce files its remand results with the court.
/s/ Leo M. Gordon
Judge Leo M. Gordon
Dated: October 4, 2016
New York, New York