Notice2026-21783
Certain Corrugated Die-Cut Cardboard Boxes From the People's Republic of China, Malaysia, and the Republic of Türkiye: Initiation of Less-Than-Fair-Value Investigations
Primary source
Metadata and text below are from the Federal Register, a public-domain U.S. government work. Always verify the official published version before relying on it for any legal matter.
Published
October 26, 2026
Issuing agencies
Commerce DepartmentInternational Trade Administration
Full Text
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<title>Federal Register, Volume 91 Issue 205 (Monday, October 26, 2026)</title>
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[Federal Register Volume 91, Number 205 (Monday, October 26, 2026)]
[Notices]
[Pages 67276-67282]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-21783]
[[Page 67276]]
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DEPARTMENT OF COMMERCE
International Trade Administration
[A-570-242, A-557-838, A-489-860]
Certain Corrugated Die-Cut Cardboard Boxes From the People's
Republic of China, Malaysia, and the Republic of T[uuml]rkiye:
Initiation of Less-Than-Fair-Value Investigations
AGENCY: Enforcement and Compliance, International Trade Administration,
Department of Commerce.
DATES: Applicable October 19, 2026.
FOR FURTHER INFORMATION CONTACT: Mira Warrier at (202) 482-8031 (the
People's Republic of China (China)), Anne Entz at (202) 482-3845
(Malaysia), and Howard Smith at (202) 482-5193 (the Republic of
T[uuml]rkiye (T[uuml]rkiye)), AD/CVD Operations, Enforcement and
Compliance, International Trade Administration, U.S. Department of
Commerce, 1401 Constitution Avenue NW, Washington, DC 20230.
SUPPLEMENTARY INFORMATION:
The Petitions
On September 9, 2026, the U.S. Department of Commerce (Commerce)
received antidumping duty (AD) petitions concerning imports of certain
corrugated die-cut cardboard boxes (corrugated die-cut boxes) \1\ from
China, Malaysia, and T[uuml]rkiye, filed in proper form on behalf of
the American Pizza Boxes Manufacturers Coalition,\2\ and the United
Steel, Paper and Forestry, Rubber, Manufacturing, Energy, Allied
Industrial and Service Workers International Union (the petitioners),
the members of which are domestic producers of corrugated die-cut boxes
and a certified union, which represents workers engaged in the
production of corrugated die-cut boxes in the United States.\3\ The
Petitions were accompanied by a countervailing duty (CVD) petition
concerning imports of corrugated die-cut boxes from T[uuml]rkiye.\4\
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\1\ See Memorandum, ``Product Name Change,'' dated September 29,
2026.
\2\ The members of the American Pizza Boxes Manufacturers
Coalition are Smurfit Westrock plc and Pratt Industries, Inc.
\3\ See Petitioners' Letter, ``Petitions for the Imposition of
Antidumping and Countervailing Duties,'' dated September 9, 2026
(Petitions).
\4\ Id.
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On September 29, 2026, Commerce extended the initiation deadline by
20 days to further examine the issue of industry support, because it
was not clear from the Petitions whether the industry support criteria
had been met.\5\
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\5\ See Notice of Extension of the Deadline for Determining the
Adequacy of the Antidumping and Countervailing Duty Petitions:
Certain Corrugated Die-Cut Cardboard Boxes from the People's
Republic of China, Malaysia, and the Republic of T[uuml]rkiye, 91 FR
62690 (October 2, 2026).
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Between September 11 and October 9, 2026, Commerce requested
supplemental information pertaining to certain aspects of the Petitions
in supplemental questionnaires.\6\ Between September 15 and October 13,
2026, the petitioners filed timely responses to these requests for
additional information.\7\
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\6\ See Commerce's Letters, ``Supplemental Questions,'' dated
September 16, 2026 (First General Issues Supplemental
Questionnaire); First Country-Specific AD Supplemental
Questionnaires: Malaysia AD Supplemental and T[uuml]rkiye AD
Supplemental, dated September 11, 2026, and First China AD
Supplemental, dated September 15, 2026; Second Country-Specific AD
Supplemental Questionnaires: Second Malaysia AD Supplemental and
Second T[uuml]rkiye AD Supplemental, dated September 18, 2026, and
Second China AD Supplemental, dated September 24, 2026; and
``Supplemental Questions,'' dated October 1, 2026 (Third General
Issues Supplemental Questionnaire); Memoranda, ``Teleconference with
Counsel to the Petitioners,'' dated September 24, 2026 (Second
General Issues Supplemental); Third Country-Specific AD Supplemental
Questionnaires: Third Malaysia AD Supplemental and Third
T[uuml]rkiye AD Supplemental dated September 24, 2026, October China
AD Supplemental dated October 9, 2026; ``Phone Call with Counsel to
the Petitioners,'' dated September 28, 2026; and Fourth T[uuml]rkiye
AD Supplemental, dated October 9, 2026.
\7\ See Petitioners' Letters, ``Petitioners' Response to the 1st
Supplemental Questionnaire,'' dated September 21, 2026 (First
General Issues Supplement); First Country-Specific AD Supplemental
Responses: Malaysia AD Supplement, T[uuml]rkiye AD Supplement, dated
September 15, 2026; China AD Supplement, dated September 18, 2026;
``Petitioners' Response to the 2nd Supplemental Questionnaire
Regarding Common Issues and Injury Volume I of the Petition,'' dated
September 28, 2026 (Second General Issues Supplement); Second
Country-Specific AD Supplemental Responses: Second Malaysia AD
Supplement and Second T[uuml]rkiye AD Supplement, dated September
22, 2026, and Second China AD Supplement, dated September 25; Third
Country-Specific AD Supplemental Responses: Third Malaysia AD
Supplement, and Third T[uuml]rkiye AD Supplement, dated September
25, 2026, and Third China AD Supplement, dated October 13, 2026;
``Resubmission of Certain Information Contained in Petitioners'
September 25, 2026, Questionnaire Response,'' dated September 28,
2026; ``Petitioners' Response to the 3rd Supplemental Questionnaire
Regarding Common Issues and Injury Volume I of the Petition,'' dated
October 6, 2026 (Third General Issues Supplement); and ``Petitioner
Response to the 4th Supplemental Questionnaire Regarding Turkey AD
Volume IV of the Petition,'' dated October 13, 2026 (Third
T[uuml]rkiye AD Supplement).
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In accordance with section 732(b) of the Tariff Act of 1930, as
amended (the Act), the petitioners allege that imports of corrugated
die-cut boxes from China, Malaysia, and T[uuml]rkiye are being, or are
likely to be, sold in the United States at less than fair value (LTFV)
within the meaning of section 731 of the Act, and that imports of such
products are materially injuring, or threatening material injury to,
the corrugated die-cut boxes industry in the United States. Consistent
with section 732(b)(1) of the Act, the Petitions were accompanied by
information reasonably available to the petitioners supporting their
allegations.
Commerce finds that the petitioners filed the Petitions on behalf
of the domestic industry, because the petitioners are interested
parties, as defined in sections 771(9)(D) and (E) of the Act.\8\
Commerce also finds that the petitioners demonstrated sufficient
industry support for the initiation of the requested LTFV
investigations.\9\
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\8\ The members of the petitioning coalition are interested
parties under section 771(9)(C) of the Act.
\9\ See section on ``Determination of Industry Support for the
Petitions,'' infra.
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Periods of Investigations (POI)
Because the Petitions were filed on September 9, 2026, pursuant to
19 CFR 351.204(b)(1), the POI for the Malaysia and T[uuml]rkiye LTFV
investigations is July 1, 2025, through June 30, 2026. Because China is
a non-market economy (NME) country, pursuant to 19 CFR 351.204(b)(1),
the POI for the China LTFV investigation is January 1, 2026, through
June 30, 2026.
Scope of the Investigations
The products covered by these investigations are corrugated die-cut
boxes from China, Malaysia, and T[uuml]rkiye. For a full description of
the scope of these investigations, see the appendix to this notice.
Comments on the Scope of the Investigations
Between September 16 and October 1, 2026, Commerce requested
information and clarification from the petitioners regarding the
proposed scope to ensure that the scope language in the Petitions is an
accurate reflection of the products for which the domestic industry is
seeking relief.\10\ Between September 21 and October 6, 2026, the
petitioners provided clarifications and revised the scope.\11\ The
description of merchandise covered by these investigations, as
described in the appendix to this notice, reflects these
clarifications.
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\10\ See First General Issues Supplemental Questionnaire; see
also Second General Issues Supplemental Questionnaire; and Third
General Issues Supplemental Questionnaire.
\11\ See First General Issues Supplement at 2-7 and Exhibits I-
Supp-2 through I-Supp-4; see also Second General Issues Supplement
at 1-16 and Exhibits I-Supp2-2 through I-Supp2-4; and Third General
Issues Supplement at 1-5 and Exhibits I-Supp3-1 through I-Supp3-4.
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As discussed in the Preamble to Commerce's regulations, we are
setting aside a period for interested parties to raise issues regarding
product coverage
[[Page 67277]]
(i.e., scope).\12\ Commerce will consider all scope comments received
from interested parties and, if necessary, will consult with interested
parties prior to the issuance of the preliminary determinations. If
scope comments include factual information, all such factual
information should be limited to public information.\13\ Commerce
requests that interested parties provide at the beginning of their
scope comments a public executive summary for each comment or issue
raised in their submission. Commerce further requests that interested
parties limit their public executive summary of each comment or issue
to no more than 450 words, not including citations. Commerce intends to
use the public executive summaries as the basis of the comment
summaries included in the analysis of scope comments. To facilitate
preparation of its questionnaires, Commerce requests that scope
comments be submitted by 5:00 p.m. Eastern Time (ET) on November 9,
2026, which is the next business day after 20 calendar days from the
signature date of this notice.\14\ Any rebuttal comments, which may
include factual information, and should also be limited to public
information, must be filed by 5:00 p.m. ET on November 19, 2026, which
is 10 calendar days from the initial comment deadline.
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\12\ See Antidumping Duties; Countervailing Duties, Final Rule,
62 FR 27296, 27323 (May 19, 1997) (Preamble); see also 19 CFR
351.312.
\13\ See 19 CFR 351.102(b)(21) (defining ``factual
information'').
\14\ The deadline for scope comments falls on November 8, 2026,
which is a Sunday. Commerce's practice dictates that where a
deadline falls on a weekend or federal holiday, the appropriate
deadline is the next business day (in this instance, November 9,
2026). See 19 CFR 351.303(b)(1) (``For both electronically filed and
manually filed documents, if the applicable due date falls on a non-
business day, the Secretary will accept documents that are filed on
the next business day'').
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Commerce requests that any factual information that parties
consider relevant to the scope of these investigations be submitted
during that period. However, if a party subsequently finds that
additional factual information pertaining to the scope of the
investigations may be relevant, the party must contact Commerce and
request permission to submit the additional information. All scope
comments must be filed simultaneously on the records of the concurrent
LTFV and CVD investigations.
Filing Requirements
All submissions to Commerce must be filed electronically via
Enforcement and Compliance's Antidumping Duty and Countervailing Duty
Centralized Electronic Service System (ACCESS), unless an exception
applies.\15\ An electronically filed document must be received
successfully in its entirety by the time and date it is due.
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\15\ See Antidumping and Countervailing Duty Proceedings:
Electronic Filing Procedures; Administrative Protective Order
Procedures, 76 FR 39263 (July 6, 2011); see also Enforcement and
Compliance; Change of Electronic Filing System Name, 79 FR 69046
(November 20, 2014), for details of Commerce's electronic filing
requirements, effective August 5, 2011. Information on using ACCESS
can be found at <a href="https://access.trade.gov/help">https://access.trade.gov/help</a> and a handbook can be
found at <a href="https://access.trade.gov/ACCESS%20Handbook%20on%20Electronic%20Filing%20Procedures_March2026.pdf">https://access.trade.gov/ACCESS%20Handbook%20on%20Electronic%20Filing%20Procedures_March2026.pdf</a>.
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Comments on Product Characteristics
Commerce is providing interested parties an opportunity to comment
on the appropriate physical characteristics of corrugated die-cut boxes
to be reported in response to Commerce's AD questionnaires. This
information will be used to identify the key physical characteristics
of the subject merchandise in order to report the relevant factors of
production (FOP) or costs of production (COP) accurately, as well as to
develop appropriate product comparison criteria.
Interested parties may provide any information or comments that
they feel are relevant to the development of an accurate list of
physical characteristics. Specifically, they may provide comments as to
which characteristics are appropriate to use as: (1) general product
characteristics; and (2) product comparison criteria. We note that it
is not always appropriate to use all product characteristics as product
comparison criteria. We base product comparison criteria on meaningful
commercial differences among products. In other words, although there
may be some physical product characteristics utilized by manufacturers
to describe corrugated die-cut boxes, it may be that only a select few
product characteristics take into account commercially meaningful
physical characteristics. In addition, interested parties may comment
on the order in which the physical characteristics should be used in
matching products. Generally, Commerce attempts to list the most
important physical characteristics first and the least important
characteristics last.
In order to consider the suggestions of interested parties in
developing and issuing the AD questionnaires, all product
characteristics comments must be filed by 5:00 p.m. ET on November 9,
2026, which is the next business day after 20 calendar days from the
signature date of this notice.\16\ Any rebuttal comments must be filed
by 5:00 p.m. ET on November 19, 2026, which is 10 calendar days from
the initial comment deadline. All comments and submissions to Commerce
must be filed electronically using ACCESS, as explained above, on the
record of each of the LTFV investigations.
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\16\ The deadline for product characteristics comments falls on
November 8, 2026, which is a Sunday. Commerce's practice dictates
that where a deadline falls on a weekend or federal holiday, the
appropriate deadline is the next business day (in this instance,
November 9, 2026). See 19 CFR 351.303(b)(1) (``For both
electronically filed and manually filed documents, if the applicable
due date falls on a non-business day, the Secretary will accept
documents that are filed on the next business day'').
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Determination of Industry Support for the Petitions
Section 732(b)(1) of the Act requires that a petition be filed on
behalf of the domestic industry. Section 732(c)(4)(A) of the Act
provides that a petition meets this requirement if the domestic
producers or workers who support the petition account for: (i) at least
25 percent of the total production of the domestic like product; and
(ii) more than 50 percent of the production of the domestic like
product produced by that portion of the industry expressing support
for, or opposition to, the petition. Moreover, section 732(c)(4)(D) of
the Act provides that, if the petition does not establish support of
domestic producers or workers accounting for more than 50 percent of
the total production of the domestic like product, Commerce shall: (i)
poll the industry or rely on other information in order to determine if
there is support for the petition, as required by subparagraph (A); or
(ii) determine industry support using a statistically valid sampling
method to poll the ``industry.''
Section 771(4)(A) of the Act defines the ``industry'' as the
producers as a whole of a domestic like product. Thus, to determine
whether a petition has the requisite industry support, the statute
directs Commerce to look to producers and workers who produce the
domestic like product. The U.S. International Trade Commission (ITC),
which is responsible for determining whether ``the domestic industry''
has been injured, must also determine what constitutes a domestic like
product in order to define the industry. While both Commerce and the
ITC apply the same statutory definition regarding the domestic like
product,\17\ they do so for different purposes and pursuant to a
separate and distinct authority. In addition, Commerce's determination
is
[[Page 67278]]
subject to limitations of time and information. Although this may
result in different definitions of the like product, such differences
do not render the decision of either agency contrary to law.\18\
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\17\ See section 771(10) of the Act.
\18\ See USEC, Inc. v. United States, 132 F.Supp.2d 1, 8 (CIT
2001) (citing Algoma Steel Corp., Ltd. v. United States, 688
F.Supp.639, 644 (CIT 1988), aff'd Algoma Steel Corp., Ltd. v. United
States, 865 F.2d 240 (Fed. Cir. 1989)).
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Section 771(10) of the Act defines the domestic like product as ``a
product which is like, or in the absence of like, most similar in
characteristics and uses with, the article subject to an investigation
under this title.'' Thus, the reference point from which the domestic
like product analysis begins is ``the article subject to an
investigation'' (i.e., the class or kind of merchandise to be
investigated, which normally will be the scope as defined in the
petition).
With regard to the domestic like product, the petitioners do not
offer a definition of the domestic like product distinct from the scope
of the investigations.\19\ Based on our analysis of the information
submitted on the record, we have determined that corrugated die-cut
boxes, as defined in the scope, constitute a single domestic like
product, and we have analyzed industry support in terms of that
domestic like product.\20\
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\19\ For a discussion of the domestic like product analysis as
applied to these cases and information regarding industry support,
see Checklists, ``Antidumping Duty Investigation Initiation
Checklists: Certain Corrugated Die-Cut Cardboard Boxes from the
People's Republic of China, Malaysia, and the Republic of
T[uuml]rkiye,'' dated concurrently with, and hereby adopted by, this
notice (Country-Specific AD Initiation Checklists), at Attachment
II, Analysis of Industry Support for the Antidumping and
Countervailing Duty Petitions Covering Certain Corrugated Die-Cut
Cardboard Boxes from the People's Republic of China, Malaysia, and
the Republic of T[uuml]rkiye (Attachment II). These checklists are
on file electronically via ACCESS.
\20\ For further discussion, see Attachment II of the Country-
Specific AD Initiation Checklists.
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As noted above, on September 29, 2026, Commerce extended the
initiation deadline by 20 days to further examine the issue of industry
support. In determining whether the petitioners have standing under
section 732(c)(4)(A) of the Act, we considered the industry support
data contained in the Petitions with reference to the domestic like
product as defined in the ``Scope of the Investigations,'' in the
appendix to this notice. To establish industry support, the petitioners
provided their own shipments of corrugated die-cut boxes in 2025 and
compared this to the estimated total shipments of the domestic like
product for the entire domestic industry.\21\ Because total production
data for the domestic like product for 2025 are not reasonably
available to the petitioners, and the petitioners have established that
shipments are a reasonable proxy for production data,\22\ we relied on
data provided by the petitioners for purposes of measuring industry
support.\23\
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\21\ Id.
\22\ Id.
\23\ Id.; see also Tenaris Bay City, Inc. v. United States, No.
2025-1382, 2026 LX 545375, at *19 n.5 (Fed. Cir. Sep. 18, 2026).
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Our review of the data provided in the Petitions, the First General
Issues Supplement, the Second General Issues Supplement, the Third
General Issues Supplement, and other information readily available to
Commerce indicates that the petitioners have established industry
support for the Petitions.\24\ First, the Petitions established support
from domestic producers (or workers) accounting for more than 50
percent of the total production of the domestic like product and, as
such, Commerce is not required to take further action in order to
evaluate industry support (e.g., polling).\25\ Second, the domestic
producers (or workers) have met the statutory criteria for industry
support under section 732(c)(4)(A)(i) of the Act because the domestic
producers (or workers) who support the Petitions account for at least
25 percent of the total production of the domestic like product.\26\
Finally, the domestic producers (or workers) have met the statutory
criteria for industry support under section 732(c)(4)(A)(ii) of the Act
because the domestic producers (or workers) who support the Petitions
account for more than 50 percent of the production of the domestic like
product produced by that portion of the industry expressing support
for, or opposition to, the Petitions.\27\ Accordingly, Commerce
determines that the Petitions were filed on behalf of the domestic
industry within the meaning of section 732(b)(1) of the Act.\28\
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\24\ See Attachment II of the Country-Specific AD Initiation
Checklists.
\25\ Id.; see also section 732(c)(4)(D) of the Act.
\26\ See Attachment II of the Country-Specific AD Initiation
Checklists.
\27\ Id.
\28\ Id.
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Allegations and Evidence of Material Injury and Causation
The petitioners allege that the U.S. industry producing the
domestic like product is being materially injured, or is threatened
with material injury, by reason of the imports of the subject
merchandise sold at LTFV. In addition, the petitioners allege that
subject imports exceed the negligibility threshold provided for under
section 771(24)(A) of the Act.\29\
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\29\ For further discussion, see Country-Specific AD Initiation
Checklists at Attachment III, Analysis of Allegations and Evidence
of Material Injury and Causation for the Antidumping and
Countervailing Duty Petitions Covering Certain Corrugated Die-Cut
Cardboard Boxes from the People's Republic of China, Malaysia, and
the Republic of T[uuml]rkiye.
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The petitioners contend that the industry's injured condition is
illustrated by a significant increase in the volume of subject imports;
reduced market share; underselling and price depression and/or
suppression; lost sales and revenue; declines in production, capacity
utilization, U.S. shipments, and employment variables; facility
closures; negative impact on industry's development efforts and returns
on new investments; negative impact on financial performance; and the
magnitude of the alleged dumping margins.\30\ We assessed the
allegations and supporting evidence regarding material injury, threat
of material injury, causation, cumulation, as well as negligibility,
and we have determined that these allegations are properly supported by
adequate evidence, and meet the statutory requirements for
initiation.\31\
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\30\ Id.
\31\ Id.
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Allegations of Sales at LTFV
The following is a description of the allegations of sales at LTFV
upon which Commerce based its decision to initiate LTFV investigations
of imports of corrugated die-cut boxes from China, Malaysia, and
T[uuml]rkiye. The sources of data for the deductions and adjustments
relating to U.S. price and normal value (NV) are discussed in greater
detail in the Country-Specific AD Initiation Checklists.
U.S. Price
For China, Malaysia, and T[uuml]rkiye, the petitioners based export
price (EP) on POI average unit values derived from official import
statistics for imports of corrugated die-cut boxes from each of the
respective countries.\32\ For China and T[uuml]rkiye, the petitioners
also based EP on pricing information for corrugated die-cut boxes
produced in each country and sold or offered for sale in the U.S.
market during the POI.\33\ For each country, the petitioners made
certain adjustments to U.S. price to calculate a net ex-factory U.S.
price, where applicable.
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\32\ Id.
\33\ See Country-Specific AD Initiation Checklists.
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[[Page 67279]]
Normal Value <SUP>34</SUP>
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\34\ In accordance with section 773(b)(2) of the Act, for the
Malaysia and T[uuml]rkiye investigations, Commerce will request
information necessary to calculate the constructed value (CV) and
COP to determine whether there are reasonable grounds to believe or
suspect that sales of the foreign like product have been made at
prices that represent less than the COP of the product.
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For Malaysia, the petitioners stated that they were unable to
obtain home market or third-country pricing information for corrugated
die-cut boxes produced in Malaysia to use as the basis for NV.\35\
Therefore, for Malaysia, the petitioners calculated NV based on CV.\36\
For further discussion of CV, see the section ``Normal Value Based on
Constructed Value.''
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\35\ See Malaysia AD Initiation Checklists.
\36\ Id.
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For T[uuml]rkiye, the petitioners based NV on home market pricing
information they obtained for corrugated die-cut boxes produced in and
sold, or offered for sale, in T[uuml]rkiye during the POI.\37\ The
petitioners provided information indicating that the prices for
corrugated die-cut boxes sold or offered for sale in T[uuml]rkiye were
below the COP. Therefore, for T[uuml]rkiye, the petitioners calculated
NV based on CV. For further discussion of CV, see the section ``Normal
Value Based on Constructed Value.''
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\37\ See T[uuml]rkiye AD Initiation Checklist.
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Commerce considers China to be an NME country.\38\ In accordance
with section 771(18)(C)(i) of the Act, any determination that a foreign
country is an NME country shall remain in effect until revoked by
Commerce. Therefore, we continue to treat China as an NME country for
purposes of the initiation of the LTFV investigation. Accordingly, we
base NV on FOPs valued in surrogate market economy countries in
accordance with section 773(C) of the Act.
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\38\ See, e.g., Certain Freight Rail Couplers and Parts Thereof
from the People's Republic of China: Preliminary Affirmative
Determination of Sales at Less Than Fair Value and Preliminary
Affirmative Determination of Critical Circumstances, 88 FR 15372
(March 13, 2023), and accompanying Preliminary Decision Memorandum
at 5, unchanged in Certain Freight Rail Couplers and Parts Thereof
from the People's Republic of China: Final Affirmative Determination
of Sales at Less-Than-Fair Value and Final Affirmative Determination
of Critical Circumstances, 88 FR 34485 (May 30, 2023).
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The petitioners claim that Brazil, Mexico, and T[uuml]rkiye are
appropriate surrogate countries for China because they are market
economy countries that are at a level of economic development
comparable to that of China and are significant producers of comparable
merchandise.\39\ The petitioners provided publicly available
information from Brazil, Mexico, and T[uuml]rkiye to value all
FOPs.\43\ Based on the information provided by the petitioners, we
believe it is appropriate to use Brazil, Mexico, and T[uuml]rkiye as
surrogate countries for China to value all FOPs for initiation
purposes.
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\39\ See China AD Initiation Checklist.
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Interested parties will have the opportunity to submit comments
regarding surrogate country selection and, pursuant to 19 CFR
351.301(c)(3)(i), will be provided an opportunity to submit publicly
available information to value FOPs within 30 days before the scheduled
date of the preliminary determination.
Factors of Production
Because information regarding the volume of inputs consumed by
Brazilian, Mexican, and Turkish producers/exporters were not reasonably
available, the petitioners used a U.S. producer's production experience
and product-specific consumption rates as a surrogate to value the
Chinese manufacturer's FOPs.\40\ Additionally, for China, the
petitioners calculated factory overhead, selling, general, and
administrative (SG&A) expenses, and profit based on the experiences of
Brazilian, Mexican, and Turkish producers of comparable
merchandise.\41\
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\40\ Id.
\41\ Id.
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Normal Value Based on Constructed Value
As noted above for Malaysia, the petitioners stated that they were
unable to obtain home market or third country prices for corrugated
die-cut boxes to use as a basis for NV, and for T[uuml]rkiye, the
petitioners provided information indicating that the prices for
corrugated die-cut boxes sold or offered for sale in T[uuml]rkiye were
below the COP. Therefore, for both countries, the petitioners
calculated NV based on CV.\42\
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\42\ See Malaysia AD Initiation Checklist and T[uuml]rkiye AD
Initiation Checklist.
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Pursuant to section 773(e) of the Act, the petitioners calculated
CV as the sum of the cost of manufacturing, SG&A expenses, financial
expenses, and profit.\43\ For both countries, in calculating the cost
of manufacturing, the petitioners relied on a U.S. producer's
production experience and input consumption rates for corrugated die-
cut boxes, valued using publicly available information applicable to
the respective countries.\44\ In calculating SG&A expenses, financial
expenses, and profit ratios, the petitioners relied on the fiscal year
2025 financial statements of producers of comparable merchandise
domiciled in each country, respectively.
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\43\ See Country-Specific AD Initiation Checklists.
\44\ Id.
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Fair Value Comparisons
Based on the data provided by the petitioners, there is reason to
believe that imports of corrugated die-cut boxes from China, Malaysia,
and T[uuml]rkiye, are being, or are likely to be, sold in the United
States at LTFV. Based on comparisons of EP to NV in accordance with
sections 772 and 773 of the Act, the estimated dumping margins for
corrugated die-cut boxes for each of the countries covered by this
initiation are as follows: (1) China (Brazil Surrogate)--170.40 to
297.26 percent; China (Mexico Surrogate)--97.71 to 185.92 percent; and
China (T[uuml]rkiye Surrogate)--99.71 to 185.04 percent; (2) Malaysia--
83.72-116.58 percent; and (3) T[uuml]rkiye-51.27 to 92.81 percent.\45\
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\45\ Id.
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Initiation of LTFV Investigations
Based upon the examination of the Petitions and supplemental
responses, we find that they meet the requirements of section 732 of
the Act. Therefore, we are initiating LTFV investigations to determine
whether imports of corrugated die-cut boxes from China, Malaysia, and
T[uuml]rkiye are being, or are likely to be, sold in the United States
at LTFV. In accordance with section 733(b)(1)(A) of the Act and 19 CFR
351.205(b)(1), unless postponed, we will make our preliminary
determinations no later than 140 days after the date of this
initiation.
Respondent Selection
Malaysia and T[uuml]rkiye
In the Petitions, the petitioners identified 15 companies in
Malaysia and 76 companies in T[uuml]rkiye as producers and/or exporters
of corrugated die-cut boxes.\46\ In the event Commerce determines that
the number of companies is large, and it cannot individually examine
each company based on Commerce's resources, where appropriate, Commerce
intends to select mandatory respondents based on quantity and value
(Q&V) questionnaires issued to potential respondents. Following the
standard practice in AD investigations involving market economy
countries, Commerce would normally select respondents based on U.S.
Customs and Border Protection (CBP) entry data for imports under the
appropriate Harmonized Tariff Schedule of the United States (HTSUS)
subheading listed in the scope
[[Page 67280]]
of the investigations. However, for these investigations, the main
HTSUS subheading under which the subject merchandise would enter
(4819.10.0020) is a basket category under which non-subject merchandise
may also enter. Therefore, we cannot rely on CBP entry data in
selecting respondents. Nothwithstanding the decision to rely on Q&V
questionnaires for respondent selection, due to the number of producers
and/or exporters identified in the Petitions, Commerce has determined
to limit the number of Q&V questionnaires that it will issue to
producers and/or exporters based on CBP data for corrugated die-cut
boxes from Malaysia and T[uuml]rkiye during the POI under the
appropriate HTSUS subheading listed in the ``Scope of the
Investigations,'' in the appendix.\47\ Accordingly, for Malaysia and
T[uuml]rkiye, Commerce will send Q&V questionnaires to the largest
producers and/or exporters that are identified in the CBP entry data
for which there is complete address information on the record.
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\46\ See Petitions at Volume I (page 20 and Exhibits I-15); see
also First General Issues Supplement at 2.
\47\ See Country-Specific Memoranda, ``Release of U.S. Customs
and Border Protection Entry Data,'' dated October 15, 2026.
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Commerce will post the Q&V questionnaire along with filing
instructions on Commerce's website at <a href="https://www.trade.gov/ec-adcvd-qv-questionnaire">https://www.trade.gov/ec-adcvd-qv-questionnaire</a>. Producers/exporters of corrugated die-cut boxes from
Malaysia and T[uuml]rkiye that do not receive Q&V questionnaires may
still submit a response to the Q&V questionnaire and can obtain a copy
of the Q&V questionnaire from Commerce's website. Responses to the Q&V
questionnaire must be submitted by the relevant Malaysian and Turkish
producers/exporters no later than 5:00 p.m. ET on November 2, 2026,
which is two weeks from the signature date of this notice. All Q&V
questionnaire responses must be filed electronically via ACCESS. An
electronically filed document must be received successfully, in its
entirety, by ACCESS no later than 5:00 p.m. ET on the deadline noted
above.
Interested parties must submit applications for disclosure under
administrative protective order (APO) in accordance with 19 CFR
351.305(b). Instructions for filing such applications may be found on
Commerce's website at <a href="https://www.trade.gov/administrative-protective-orders">https://www.trade.gov/administrative-protective-orders</a>.
China
In the Petitions, the petitioners identified 81 companies in China
as producers and/or exporters of corrugated die-cut boxes.\48\ Our
standard practice for respondent selection in AD investigations
involving NME countries is to select respondents based on Q&V
questionnaires in cases where Commerce has determined that the number
of companies is large, and it cannot individually examine each company
based upon its resources. Therefore, considering the number of
producers and/or exporters identified in the Petitions, Commerce will
solicit Q&V information that can serve as a basis for selecting
exporters for individual examination in the event that Commerce
determines that the number is large and decides to limit the number of
respondents individually examined pursuant to section 777A(c)(2) of the
Act. Given the number of producers and/or exporters identified in the
Petition, Commerce has determined that it will issue Q&V questionnaires
to the largest producers and/or exporters in China that are identified
in the CBP entry data for which there is complete address information
on the record.\49\
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\48\ See Petitions at Volume I (page 15 and Exhibit I-15); see
also First General Issues Supplement at 1 and Exhibit I-Supp-1.
\49\ See Memorandum, ``Release of U.S. Customs and Border
Protection Entry Data,'' dated October 15, 2026.
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Commerce will post the Q&V questionnaire along with filing
instructions on Commerce's website at <a href="https://www.trade.gov/ec-adcvd-qv-questionnaire">https://www.trade.gov/ec-adcvd-qv-questionnaire</a>. Producers/exporters of corrugated die-cut boxes from
China that do not receive Q&V questionnaires may still submit a
response to the Q&V questionnaire and can obtain a copy of the Q&V
questionnaire from Commerce's website. Responses to the Q&V
questionnaire must be submitted by the relevant Chinese producers/
exporters no later than 5:00 p.m. ET on November 2, 2026, which is two
weeks from the signature date of this notice. All Q&V questionnaire
responses must be filed electronically via ACCESS. An electronically
filed document must be received successfully, in its entirety, by
ACCESS no later than 5:00 p.m. ET on the deadline noted above.
Interested parties must submit applications for disclosure under
APO in accordance with 19 CFR 351.305(b). Instructions for filing such
applications may be found on Commerce's website at <a href="https://www.trade.gov/administrative-protective-orders">https://www.trade.gov/administrative-protective-orders</a>.
Separate Rates
In order to obtain separate rate status in an NME investigation,
exporters and producers must submit a separate rate application. The
specific requirements for submitting a separate rate application in an
NME investigation are outlined in detail in the application itself,
which is available on Commerce's website at <a href="https://www.trade.gov/non-market-economy-separate-rate-applications-and-certifications">https://www.trade.gov/non-market-economy-separate-rate-applications-and-certifications</a>. Note that
Commerce recently promulgated new regulations pertaining to separate
rates, including the separate rate application deadline and eligibility
for separate rate status, in 19 CFR 351.108.\50\ Pursuant to 19 CFR
351.108(d)(1), the separate rate application will be due 21 days after
publication of this initiation notice.\51\ Exporters and producers must
file a timely separate rate application if they want to be considered
for individual examination. In addition, pursuant to 19 CFR 351.108(e),
exporters and producers who submit a separate rate application and have
been selected as mandatory respondents will be eligible for
consideration for separate rate status only if they fully respond to
all parts of Commerce's AD questionnaire and participate in the LTFV
proceeding as mandatory respondents.\52\ Commerce requires that
companies from China submit a response to the Q&V questionnaire and a
separate rate application by the respective deadlines to receive
consideration for separate rate status. Companies not filing a timely
Q&V questionnaire response will not receive separate rate
consideration.
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\50\ See Regulations Enhancing the Administration of the
Antidumping and Countervailing Duty Trade Remedy Laws, 89 FR 101694,
101759-60 (December 16, 2024).
\51\ See 19 CFR 351.108(d)(1).
\52\ See 19 CFR 351.108(e).
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Use of Combination Rates
Commerce will calculate combination rates for certain respondents
that are eligible for a separate rate in an NME investigation. The
Separate Rates and Combination Rates Bulletin states:
{w{time} hile continuing the practice of assigning separate rates only
to exporters, all separate rates that {Commerce{time} will now assign
in its NME investigation will be specific to those producers that
supplied the exporter during the period of investigation. Note,
however, that one rate is calculated for the exporter and all of the
producers which supplied subject merchandise to it during the period of
investigation. This practice applies both to mandatory respondents
receiving an individually calculated separate rate as well as the pool
of non-investigated firms receiving the {weighted average{time} of the
individually calculated rates. This practice is referred to as the
application of ``combination rates'' because such
[[Page 67281]]
rates apply to specific combinations of exporters and one or more
producers. The cash-deposit rate assigned to an exporter will apply
only to merchandise both exported by the firm in question and produced
by a firm that supplied the exporter during the period of
investigation.\53\
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\53\ See Enforcement and Compliance's Policy Bulletin No. 05.1,
regarding, ``Separate-Rates Practice and Application of Combination
Rates in Antidumping Investigation involving NME Countries,'' (April
5, 2005), at 6 (emphasis added), available on Commerce's website at
<a href="https://www.trade.gov/enforcement-and-compliance-policy-bulletins-0">https://www.trade.gov/enforcement-and-compliance-policy-bulletins-0</a>.
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Distribution of Copies of the Petitions
In accordance with section 732(b)(3)(A) of the Act and 19 CFR
351.202(f), copies of the public versions of the Petitions have been
provided to the Governments of China, Malaysia, and T[uuml]rkiye via
ACCESS. To the extent practicable, we will attempt to provide copies of
the public versions of the Petitions to each exporter named in the
Petitions, as provided under 19 CFR 351.203(c)(2).
ITC Notification
Commerce will notify the ITC of our initiation, as required by
section 732(d) of the Act.
Preliminary Determinations by the ITC
The ITC will preliminarily determine, within 25 days after the date
on which the ITC receives notice from Commerce of initiation of the
investigations, whether there is a reasonable indication that imports
of corrugated die-cut boxes from China, Malaysia, and/or T[uuml]rkiye
are materially injuring, or threatening material injury to, a U.S.
industry.\54\ A negative ITC determination for any country will result
in the investigation being terminated with respect to that country.\55\
Otherwise, these LTFV investigations will proceed according to
statutory and regulatory time limits.
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\54\ See section 733(a) of the Act.
\55\ Id.
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Submission of Factual Information
Factual information is defined in 19 CFR 351.102(b)(21) as: (i)
evidence submitted in response to questionnaires; (ii) evidence
submitted in support of allegations; (iii) publicly available
information to value factors under 19 CFR 351.408(c) or to measure the
adequacy of remuneration under 19 CFR 351.511(a)(2); (iv) evidence
placed on the record by Commerce; and (v) evidence other than factual
information described in (i)-iv). Section 351.301(b) of Commerce's
regulations requires any party, when submitting factual information, to
specify under which subsection of 19 CFR 351.102(b)(21) the information
is being submitted \56\ and, if the information is submitted to rebut,
clarify, or correct factual information already on the record, to
provide an explanation identifying the information already on the
record that the factual information seeks to rebut, clarify, or
correct.\57\ Time limits for the submission of factual information are
addressed in 19 CFR 351.301, which provides specific time limits based
on the type of factual information being submitted. Interested parties
should review the regulations prior to submitting factual information
in these investigations.
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\56\ See 19 CFR 351.301(b).
\57\ See 19 CFR 351.301(b)(2).
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Particular Market Situation Allegation
Section 773(e) of the Act addresses the concept of particular
market situation (PMS) for purposes of CV, stating that ``if a
particular market situation exists such that the cost of materials and
fabrication or other processing of any kind does not accurately reflect
the cost of production in the ordinary course of trade, the
administering authority may use another calculation methodology under
this subtitle or any other calculation methodology.'' When an
interested party submits a PMS allegation pursuant to section 773(e) of
the Act (i.e., a cost-based PMS allegation), the submission must be
filed in accordance with the requirements of 19 CFR 351.416(b), and
Commerce will respond to such a submission consistent with 19 CFR
351.301(c)(2)(v). If Commerce finds that a cost-based PMS exists under
section 773(e) of the Act, then it will modify its dumping calculations
appropriately.
Neither section 773(e) of the Act, nor 19 CFR 351.301(c)(2)(v),
sets a deadline for the submission of cost-based PMS allegations and
supporting factual information. However, in order to administer section
773(e) of the Act, Commerce must receive PMS allegations and supporting
factual information with enough time to consider the submission. Thus,
should an interested party wish to submit a cost-based PMS allegation
and supporting new factual information pursuant to section 773(e) of
the Act, it must do so no later than 20 days after submission of a
respondent's initial section D questionnaire response
We note that a PMS allegation filed pursuant to sections
773(a)(1)(B)(ii)(III) or 773(a)(1)(C)(iii) of the Act (i.e., a sales-
based PMS allegation) must be filed within 10 days of submission of a
respondent's initial section B questionnaire response, in accordance
with 19 CFR 351.301(c)(2)(i) and 19 CFR 351.404(c)(2).
Extensions of Time Limits
Parties may request an extension of time limits before the
expiration of a time limit established under 19 CFR 351.301, or as
otherwise specified by Commerce. In general, an extension request will
be considered untimely if it is filed after the expiration of the time
limit established under 19 CFR 351.301, or as otherwise specified by
Commerce.\58\ For submissions that are due from multiple parties
simultaneously, an extension request will be considered untimely if it
is filed after 10:00 a.m. ET on the due date. Under certain
circumstances, Commerce may elect to specify a different time limit by
which extension requests will be considered untimely for submissions
which are due from multiple parties simultaneously. In such a case, we
will inform parties in a letter or memorandum of the deadline
(including a specified time) by which extension requests must be filed
to be considered timely. An extension request must be made in a
separate, standalone submission; under limited circumstances we will
grant untimely filed requests for the extension of time limits, where
we determine, based on 19 CFR 351.302, that extraordinary circumstances
exist. Parties should review Commerce's regulations concerning the
extension of time limits and the Time Limits Final Rule prior to
submitting factual information in these investigations.\59\
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\58\ See 19 CFR 351.301; see also Extension of Time Limits;
Final Rule, 78 FR 57790 (September 20, 2013) (Time Limits Final
Rule), available at <a href="https://www.gpo.gov/fdsys/pkg/FR-2013-09-20/html/2013-22853.htm">https://www.gpo.gov/fdsys/pkg/FR-2013-09-20/html/2013-22853.htm</a>.
\59\ See 19 CFR 351.302; see also, e.g., Time Limits Final Rule.
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Certification Requirements
Any party submitting factual information in an AD or CVD proceeding
must certify to the accuracy and completeness of that information.\60\
Parties must use the certification formats provided in 19 CFR
351.303(g).\61\ Commerce intends to reject factual submissions if the
submitting party does not comply with the applicable certification
requirements.
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\60\ See section 782(b) of the Act.
\61\ See Certification of Factual Information to Import
Administration During Antidumping and Countervailing Duty
Proceedings, 78 FR 42678 (July 17, 2023) (Final Rule). Additional
information regarding the Final Rule is found at <a href="https://www.trade.gov/sites/default/files/2026-08/FAQ%20for%20Certifications.pdf?v=1787683944756">https://www.trade.gov/sites/default/files/2026-08/FAQ%20for%20Certifications.pdf?v=1787683944756</a>.
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[[Page 67282]]
Notification to Interested Parties
Interested parties must submit applications for disclosure under
APO in accordance with 19 CFR 351.305. Parties wishing to participate
in these investigations should ensure that they meet the requirements
of 19 CFR 351.103(d) (e.g., by filing the required letter of
appearance). Note that Commerce has amended certain of its requirements
pertaining to the service of documents in 19 CFR 351.303(f).\62\
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\62\ See Administrative Protective Order, Service, and Other
Procedures in Antidumping and Countervailing Duty Proceedings, 88 FR
67069 (September 29, 2023).
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This notice is issued and published pursuant to sections 732(c)(2)
and 777(i) of the Act, and 19 CFR 351.203(c).
Dated: October 19, 2026.
Scot Fullerton,
Acting Deputy Assistant Secretary for Antidumping and Countervailing
Duty Operations.
Appendix
Scope of the Investigations
The merchandise covered by these investigations is certain
corrugated die-cut cardboard boxes. Corrugated die-cut cardboard
boxes are a type of box or carton for use in the food service
industry, including to hold pizza pies. Corrugated die cut cardboard
boxes are typically manufactured from corrugated paperboard, which
is commonly referred to as corrugated cardboard. Corrugated die-cut
cardboard boxes are often shipped or delivered flat in bundles of
corrugated cardboard die-cut blanks, which are in a ready-to-
assemble state such that they can be easily folded by the end user
into a ready-to-use food service box.
The corrugated die-cut cardboard boxes covered by these
investigations include corrugated cardboard die-cut blanks, whether
finished or unfinished and assembled or unassembled. A finished
corrugated die-cut cardboard box, whether assembled or unassembled,
is one that has undergone final processing, including, but not
limited to, printing, coating, or other finishing operations. An
unfinished corrugated die-cut cardboard box, whether assembled or
unassembled, is one that has not yet undergone final processing.
Corrugated die-cut cardboard boxes are produced from corrugated
cardboard sheets that are made from recycled or virgin paper or
paperboard materials, which may be bleached or unbleached. These
cardboard sheets are ``corrugated'' or ``fluted,'' which means that
they contain at least two outer layers (i.e., top and bottom) of
paper or paperboard and an inside layer of fluted paper or
paperboard in between the outer layer, such that the inside layer
contains channels or pockets of air which makes the cardboard sheet
lightweight while retaining strength and durability. The subject
merchandise includes corrugated die-cut cardboard boxes with a
nominal flute height or thickness between 1.1 millimeters and 4.4
millimeters (which encompasses B-flute, C-flute, D-flute, and E-
flute design, as well as any equivalent types of corrugation or
fluting).
Corrugated cardboard die-cut blanks are typically formed from
corrugated cardboard sheets that are cut to length, die cut into
specific box shapes, and/or scored to allow the box to be folded
into shape. Subject corrugated die-cut cardboard boxes are typically
assembled by the end user by folding a corrugated cardboard die-cut
blank into its final shape and generally consist of a single die-cut
blank that forms the walls and lid of the finished box. Subject
corrugated die-cut cardboard boxes are not typically glued or
otherwise assembled using adhesives into their final shape prior to
use. The scope of these investigations covers both corrugated die-
cut cardboard boxes and corrugated cardboard die-cut blanks,
regardless of whether they are finished or assembled at the time of
importation.
As they are intended for food contact, in-scope corrugated die-
cut cardboard boxes are produced in accordance with food contact
safety requirements and are often compliant with U.S. Food and Drug
Administration requirements, such as 21 CFR 176.170.
The subject merchandise includes corrugated die-cut cardboard
boxes regardless of shape. When assembled, subject corrugated die-
cut cardboard boxes are often rectangular or square in shape when
viewed from above, but they may take on other shapes, such as round,
hexagonal, or octagonal. A finished and assembled subject corrugated
die-cut cardboard box has a length (i.e., the longest dimension)
that is at least five inches and a width that is at least five
inches. A finished and assembled subject corrugated die-cut
cardboard box has a length and width that is no more than 40 inches.
The height (i.e., the shortest dimension) of a finished and
assembled subject corrugated die-cut cardboard box is no greater
than four inches. The width, length, and height dimensions are to be
based on the dimensions of the die-cut shape of an individual
corrugated die-cut cardboard box or corrugated cardboard die-cut
blank, even if the box or blank is imported in a manner in which it
is minimally connected to other boxes or blanks, such as through
nicking, perforations, or similar attachments.
The corrugated die-cut cardboard boxes covered by the scope of
these investigations include merchandise with or without color or
printing, such that they may be decorated with one or more graphical
designs or logos, or they may be entered in a blank, unprinted
state. A corrugated die-cut cardboard box is subject to these
investigations regardless of the color of the paper, paperboard, or
cardboard. Any graphical images may be printed directly onto the
paper, paperboard, or cardboard or they may be overlaid onto the
outer or inner faces of a corrugated die-cut cardboard box. Subject
corrugated die-cut cardboard boxes are also covered by the scope
regardless of whether or not they are coated or lined, including
with any materials to increase grease resistance.
The subject merchandise includes corrugated die-cut cardboard
boxes with or without ventilation holes or perforations as well as
with or without features for holding condiments or other foods. They
may include tabs that allow for easily opening the lid. Subject
merchandise generally does not incorporate locking tabs,
interlocking side panels, folded retention flaps, ``dog-ear''
closures, or similar mechanisms designed to secure the lid to the
body of the box. Subject corrugated die-cut cardboard boxes are
covered by the scope whether or not they are accompanied by other
parts or materials. The addition of any non-paper, paperboard, or -
cardboard materials, such as liners, inserts, or holders, does not
remove the subject corrugated die-cut cardboard box from the scope
of these investigations.
The corrugated die-cut cardboard boxes subject to these
investigations include those products that have been subjected to
further processing in a third country, which includes but is not
limited to printing, coating, trimming, cutting, punching,
assembling, folding, perforating, and/or additional die-cutting or
any other processing that would not otherwise remove the merchandise
from the scope of the investigations if performed in the country of
manufacture of the in-scope corrugated die-cut cardboard box.
The corrugated die-cut cardboard boxes subject to these
investigations are typically classified in the Harmonized Tariff
Schedule of the United States (HTSUS) at subheading 4819.10.0020.
This HTSUS subheading is provided for convenience and customs
purposes only, and the written description of the merchandise
subject to the investigations is dispositive.
[FR Doc. 2026-21783 Filed 10-23-26; 8:45 am]
BILLING CODE 3510-DS-P
</pre></body>
</html>Indexed from Federal Register on October 26, 2026.
This is legal information, not legal advice. Laws vary by jurisdiction and change frequently. Always verify current law with official sources and consult a licensed attorney in your jurisdiction for advice on your specific situation.