ITC Investigation 701-TA-3838 is a U.S. International Trade Commission antidumping (AD) proceeding on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, from India, Indonesia, and Laos; Inv. No. 701-TA-772-774 and 731-TA-1756-1758 (Preliminary) from India, Laos, and Indonesia. It's in the preliminary phase and currently in completed status. No AD/CVD order has been issued from this investigation yet — the case will appear here once Commerce publishes a final determination.
Phase, parties, documents, and full text from USITC IDS
Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, from India, Indonesia, and Laos; Inv. No. 701-TA-772-774 and 731-TA-1756-1758 (Preliminary)
Pending ITC investigation (preliminary/completed) on "Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules,".
Parties
Documents
Full text (992,363 chars)
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2SV��m�q~�Bj3(w�R��|���y���譱$��I9�9�¨#ƿ��r�sF���U�d2�{q�k����<>|�l�̇a���o��6湣%��H҂fKg�d��.v�\��~���Z7�N[�����e:��,x��͎����;�=8+��?�ݚ+���"��lu'|�0O��������¯zs�l�hh^^�7��PK!I���ldocProps/custom.xml �(���Kk�0��`�������ք$eM����uGi ��M���\�N~��j����.�����G{��J ����D60��o���,W�0��H9X)c�t��l'�_u����ݓ���|P�=�;6��w�#w �E�v ���d*���yB1��ߪ�� �k�����PK-!18��� [Content_Types].xmlPK-!�U~���_rels/.relsPK-!��xL��yI)word/document.xmlPK-!F&IIS��word/_rels/document.xml.relsPK-!-�q���9word/footnotes.xmlPK-!|���word/endnotes.xmlPK-!�и"��� word/header1.xmlPK-!ye �9K�word/header2.xmlPK-!��z;�-word/header3.xmlPK-!,d,�word/header4.xmlPK- !g_7B���word/media/image1.pngPK- !�P��+�+��word/media/image2.pngPK-!��R��� u�word/theme/theme1.xmlPK-!y�804D�|�word/settings.xmlPK-!��$���customXml/item1.xmlPK-!uܽ �U��customXml/itemProps1.xmlPK-!S ,�� �m'�word/numbering.xmlPK-!��"�>�word/styles.xmlPK-!���Y#p&��word/webSettings.xmlPK-!a�1��word/fontTable.xmlPK-!�m�T�{�docProps/core.xmlPK-!�9Rk��docProps/app.xmlPK-!I���l*�docProps/custom.xmlPK-!t?9z�(V�customXml/_rels/item1.xml.relsPK\� ──────────────────────────────────────────────────────────── === USITC Determination - Preliminary === 42983Federal Register / Vol. 90, No. 170 / Friday, September 5, 2025 / Notices 1 The record is defined in § 207.2(f) of the Commission’s Rules of Practice and Procedure (19 CFR 207.2(f)). a culturally affiliated Indian Tribe or Native Hawaiian organization. Repatriation of the cultural item in this notice to a requestor may occur on or after October 6, 2025. If competing requests for repatriation are received, the Gregg Museum of Art & Design must determine the most appropriate requestor prior to repatriation. Requests for joint repatriation of the cultural item are considered a single request and not competing requests. The Gregg Museum of Art & Design is responsible for sending a copy of this notice to the Indian Tribes and Native Hawaiian organizations identified in this notice and to any other consulting parties. Authority: Native American Graves Protection and Repatriation Act, 25 U.S.C. 3004 and the implementing regulations, 43 CFR 10.9. Dated: August 26, 2025. Melanie O’Brien, Manager, National NAGPRA Program. [FR Doc. 2025–17012 Filed 9–4–25; 8:45 am] BILLING CODE 4312–52–P DEPARTMENT OF THE INTERIOR National Park Service [N6489; NPS–WASO–NAGPRA– NPS0041012; PPWOCRADN0– PCU00RP14.R50000] Notice of Inventory Completion: U.S. Department of the Interior, Bureau of Land Management, Alaska State Office, Anchorage, AK AGENCY : National Park Service, Interior. ACTION : Notice. SUMMARY : In accordance with the Native American Graves Protection and Repatriation Act (NAGPRA), the U.S. Department of the Interior, Bureau of Land Management, Alaska State Office (BLM), has completed an inventory of human remains and associated funerary objects and has determined that there is a cultural affiliation between the human remains and associated funerary objects and Indian Tribes or Native Hawaiian organizations in this notice. DATES : Repatriation of the human remains and associated funerary objects in this notice may occur on or after October 6, 2025. ADDRESSES : Send written requests for repatriation of the human remains and associated funerary objects in this notice to Robin O. Mills, Bureau of Land Management, 222 W 7th Avenue #13, Anchorage, AK 99513, email rmills@ blm.gov. SUPPLEMENTARY INFORMATION : This notice is published as part of the National Park Service’s administrative responsibilities under NAGPRA. The determinations in this notice are the sole responsibility of the BLM, and additional information on the determinations in this notice, including the results of consultation, can be found in the inventory or related records. The National Park Service is not responsible for the determinations in this notice. Abstract of Information Available Based on the information available, human remains representing, at least, two individuals have been reasonably identified. The 195 associated funerary objects include a lamp, potsherds, matting, a birch bark container, glass beads, bracelets, animal teeth, a boot creaser, an ulu handle, and a lump of agate. The remains of two ancestors were collected by archaeologist Frederica de Laguna in 1935 at two locations along the Anvik River. One ancestor (an adult woman) was collected from an old habitation site called Red Stone Village, located 8.6 miles due west of the modern village of Anvik, up the Anvik River. A total of 149 funerary objects were found and collected with this ancestor. The second ancestor (an adult, probably male) was collected from the Anvik Point site, overlooking the Yukon River directly across from modern Anvik, on the north side of the mouth of the Anvik River. A total of 46 funerary objects were found with this ancestor. The remains and associated funerary objects were placed in the University of Pennsylvania Museum, in Philadelphia, PA, in 1935, where they have remained ever since. Cultural Affiliation Based on the information available and the results of consultation, cultural affiliation is reasonably identified by the geographical location or acquisition history of the human remains and associated funerary objects described in this notice. Determinations The BLM Alaska State Office has determined that: • The human remains described in this notice represent the physical remains of two individuals of Native American ancestry. • The 195 objects described in this notice are reasonably believed to have been placed intentionally with or near the two individual human remains at the time of death or later as part of the death rite or ceremony. • There is a reasonable connection between the human remains and associated funerary objects described in this notice and Anvik Village. Requests for Repatriation Written requests for repatriation of the human remains and associated funerary objects in this notice must be sent to the authorized representative identified in this notice under ADDRESSES. Requests for repatriation may be submitted by: 1. Any one or more of the Indian Tribes or Native Hawaiian organizations identified in this notice. 2. Any lineal descendant, Indian Tribe, or Native Hawaiian organization not identified in this notice who shows, by a preponderance of the evidence, that the requestor is a lineal descendant or a culturally affiliated Indian Tribe or Native Hawaiian organization. Repatriation of the human remains and associated funerary objects in this notice to a requestor may occur on or after October 6, 2025. If competing requests for repatriation are received, the BLM must determine the most appropriate requestor prior to repatriation. Requests for joint repatriation of the human remains and associated funerary objects are considered a single request and not competing requests. The BLM is responsible for sending a copy of this notice to the Indian Tribes and Native Hawaiian organizations identified in this notice. Authority: Native American Graves Protection and Repatriation Act, 25 U.S.C. 3003, and the implementing regulations, 43 CFR 10.10. Dated: August 26, 2025. Melanie O’Brien, Manager, National NAGPRA Program. [FR Doc. 2025–17011 Filed 9–4–25; 8:45 am] BILLING CODE 4312–52–P INTERNATIONAL TRADE COMMISSION [Investigation Nos. 701–TA–772–774 and 731–TA–1756–1758 (Preliminary)] Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules From India, Indonesia, and Laos; Determinations On the basis of the record 1 developed in the subject investigations, the United States International Trade Commission (‘‘Commission’’) determines, pursuant to the Tariff Act of 1930 (‘‘the Act’’), that there is a reasonable indication that an industry in the United States is materially injured by reason of imports of crystalline silicon photovoltaic cells, whether or not assembled into modules, VerDate Sep<11>2014 18:48 Sep 04, 2025 Jkt 265001 PO 00000 Frm 00053 Fmt 4703 Sfmt 4703 E:\FR\FM\05SEN1.SGM 05SEN1 lotter on DSK11XQN23PROD with NOTICES1 42984 Federal Register / Vol. 90, No. 170 / Friday, September 5, 2025 / Notices 2 90 FR 38736 and 90 FR 38745 (August 12, 2025). 3 Members include Hanwha Q CELLS USA Inc., First Solar, and Mission Solar. from India, Indonesia, and Laos, provided for in subheadings 8541.42.00 and 8541.43.00 of the Harmonized Tariff Schedule of the United States, that are alleged to be sold in the United States at less than fair value (‘‘LTFV’’) and alleged to be subsidized by the governments of India, Indonesia, and Laos. 2 Commencement of Final Phase Investigations Pursuant to section 207.18 of the Commission’s rules, the Commission also gives notice of the commencement of the final phase of its investigations. The Commission will issue a final phase notice of scheduling, which will be published in the Federal Register as provided in § 207.21 of the Commission’s rules, upon notice from the U.S. Department of Commerce (‘‘Commerce’’) of affirmative preliminary determinations in the investigations under §§ 703(b) or 733(b) of the Act, or, if the preliminary determinations are negative, upon notice of affirmative final determinations in those investigations under §§ 705(a) or 735(a) of the Act. Parties that filed entries of appearance in the preliminary phase of the investigations need not enter a separate appearance for the final phase of the investigations. Any other party may file an entry of appearance for the final phase of the investigations after publication of the final phase notice of scheduling. Industrial users, and, if the merchandise under investigation is sold at the retail level, representative consumer organizations have the right to appear as parties in Commission antidumping and countervailing duty investigations. The Secretary will prepare a public service list containing the names and addresses of all persons, or their representatives, who are parties to the investigations. As provided in section 207.20 of the Commission’s rules, the Director of the Office of Investigations will circulate draft questionnaires for the final phase of the investigations to parties to the investigations, placing copies on the Commission’s Electronic Document Information System (EDIS, https:// edis.usitc.gov), for comment. Background On July 17, 2025, the Alliance for American Solar Manufacturing and Trade 3 filed petitions with the Commission and Commerce, alleging that an industry in the United States is materially injured or threatened with material injury by reason of LTFV and subsidized imports of crystalline silicon photovoltaic cells, whether or not assembled into modules, from India, Indonesia, and Laos. Accordingly, effective July 17, 2025, the Commission instituted countervailing duty investigation Nos. 701–TA–772–774 and antidumping duty investigation Nos. 731–TA–1756–1758 (Preliminary). Notice of the institution of the Commission’s investigations and of a public conference to be held in connection therewith was given by posting copies of the notice in the Office of the Secretary, U.S. International Trade Commission, Washington, DC, and by publishing the notice in the Federal Register of July 22, 2025 (90 FR 34518). The Commission conducted its conference on August 7, 2025. All persons who requested the opportunity were permitted to participate. The Commission made these determinations pursuant to §§ 703(a) and 733(a) of the Act (19 U.S.C. 1671b(a) and 1673b(a)). It completed and filed its determinations in these investigations on September 2, 2025. The views of the Commission are contained in USITC Publication 5665 (September 2025), entitled Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from India, Indonesia, and Laos: Investigation Nos. 701–TA–772–774 and 731–TA–1756–1758 (Preliminary). By order of the Commission. Issued: September 2, 2025. Lisa Barton, Secretary to the Commission. [FR Doc. 2025–16986 Filed 9–4–25; 8:45 am] BILLING CODE 7020–02–P INTERNATIONAL TRADE COMMISSION [Investigation Nos. 701–TA–759 and 731– TA–1740–1741 (Final)] Multifunctional Acrylate and Methacrylate Monomers and Oligomers (MAMMOs) From South Korea and Taiwan; Scheduling of the Final Phase of Countervailing Duty and Antidumping Duty Investigations AGENCY : United States International Trade Commission. ACTION : Notice. SUMMARY : The Commission hereby gives notice of the scheduling of the final phase of countervailing duty investigation No. 701–TA–759 (Final) pursuant to the Tariff Act of 1930 to determine whether an industry in the United States is materially injured or threatened with material injury, or the establishment of an industry in the United States is materially retarded, by reason of imports of multifunctional acrylate and methacrylate monomers and oligomers (‘‘MAMMOs’’) from Taiwan, provided for in subheadings 2916.12.5050, 2916.14.2050, 3824.99.2900, 3907.29.0000 and 3907.30.0000 of the Harmonized Tariff Schedule of the United States, preliminarily determined by the Department of Commerce (‘‘Commerce’’) to be subsidized. Commerce’s preliminary determinations with respect to imports of MAMMOs from South Korea and Taiwan alleged to be sold in the United States at less than fair value, are pending. DATES : August 25, 2025. FOR FURTHER INFORMATION CONTACT : Junie Joseph ((202) 205–3363), Office of Investigations, U.S. International Trade Commission, 500 E Street SW, Washington, DC 20436. Hearing- impaired persons can obtain information on this matter by contacting the Commission’s TDD terminal on 202– 205–1810. Persons with mobility impairments who will need special assistance in gaining access to the Commission should contact the Office of the Secretary at 202–205–2000. General information concerning the Commission may also be obtained by accessing its internet server (https:// www.usitc.gov). The public record for these investigations may be viewed on the Commission’s electronic docket (EDIS) at https://edis.usitc.gov. SUPPLEMENTARY INFORMATION : Scope.— For purposes of these investigations, Commerce has defined the subject merchandise as ‘‘certain multifunctional acrylate and methacrylate monomers, and acrylated bisphenol-A epoxy based oligomers (collectively, certain monomers and oligomers or CMOs) that are derived from chemical reactions involving the use of acrylic or methacrylic acid. Products within the scope are listed below and have the following Chemical Abstracts Service (CAS) numbers: VerDate Sep<11>2014 18:48 Sep 04, 2025 Jkt 265001 PO 00000 Frm 00054 Fmt 4703 Sfmt 4703 E:\FR\FM\05SEN1.SGM 05SEN1 lotter on DSK11XQN23PROD with NOTICES1 ──────────────────────────────────────────────────────────── === Publication 5665 === Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules from India, Indonesia, and Laos Investigation Nos. 701-TA-772–774 and 731-TA-1756–1758 (Preliminary) Publication 5665 September 2025 U.S. International Trade Commission Washington, DC 20436 COMMISSIONERS Amy A. Karpel, Chair David S. Johanson Jason E. Kearns Catherine DeFilippo Director of Operations Staff assigned Celia Feldpausch, Investigator Fernando Gracia, Industry Analyst Hau Nguyen, Economist Emily Kim, Accountant Joanna Lo, Accountant Christine Lee, Statistician Anthony Famiglietti, Attorney Nathanael Comly, Supervisory Investigator U.S. International Trade Commission Address all communications to Secretary to the Commission United States International Trade Commission Washington, DC 20436 Washington, DC 20436 www.usitc.gov Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules from India, Indonesia, and Laos Investigation Nos. 701-TA-772–774 and 731-TA-1756–1758 (Preliminary) U.S. International Trade Commission Publication 5665 September 2025 CONTENTS Page i Determinations ............................................................................................................................... 1 Views of the Commission ............................................................................................................... 3 Introduction ........................................................................................................ 1.1 Background............................................................................................................................... 1.1 Statutory criteria ...................................................................................................................... 1.1 Organization of report.............................................................................................................. 1.3 Market summary ...................................................................................................................... 1.4 Summary data and data sources .............................................................................................. 1.5 Previous and related investigations ......................................................................................... 1.5 Nature and extent of alleged subsidies and sales at LTFV ....................................................... 1.7 Alleged subsidies .................................................................................................................. 1.7 Alleged sales at LTFV ............................................................................................................ 1.7 The subject merchandise ......................................................................................................... 1.8 Commerce’s scope ............................................................................................................... 1.8 Tariff treatment .................................................................................................................. 1.14 The product ............................................................................................................................ 1.18 Description and applications .............................................................................................. 1.18 Manufacturing processes ................................................................................................... 1.27 Domestic like product issues.................................................................................................. 1.33 CONTENTS Page ii Part 2: Conditions of competition in the U.S. market ....................................................... 2.1 U.S. market characteristics....................................................................................................... 2.1 Impact of Section 301 tariffs, Section 232 tariffs, and new and modified tariffs .................... 2.2 Channels of distribution ........................................................................................................... 2.3 Geographic distribution ........................................................................................................... 2.5 Supply and demand considerations ......................................................................................... 2.5 U.S. supply ............................................................................................................................ 2.5 U.S. demand ......................................................................................................................... 2.9 Substitutability issues............................................................................................................. 2.12 Factors affecting purchasing decisions............................................................................... 2.12 Comparison of U.S.-produced and imported CSPV ............................................................ 2.13 Part 3: U.S. producers’ production, shipments, and employment .................................... 3.1 U.S. producers .......................................................................................................................... 3.1 U.S. production, capacity, and capacity utilization ................................................................ 3.12 Alternative products ........................................................................................................... 3.22 U.S. producers’ U.S. shipments and exports .......................................................................... 3.23 U.S. producers’ inventories .................................................................................................... 3.26 U.S. producers’ imports from subject sources ....................................................................... 3.27 U.S. producers' purchases of imports from subject sources ................................................. 3.31 U.S. employment, wages, and productivity ........................................................................... 3.35 CONTENTS Page iii Part 4: U.S. imports, apparent U.S. consumption, and market shares .............................. 4.1 U.S. importers........................................................................................................................... 4.1 U.S. imports .............................................................................................................................. 4.4 Negligibility ............................................................................................................................. 4.13 Cumulation considerations .................................................................................................... 4.14 Fungibility ........................................................................................................................... 4.14 Geographical markets ........................................................................................................ 4.18 Presence in the market ...................................................................................................... 4.20 Apparent U.S. consumption and market shares .................................................................... 4.24 Quantity .............................................................................................................................. 4.24 Value ................................................................................................................................... 4.26 Part 5: Pricing data ......................................................................................................... 5.1 Factors affecting prices ............................................................................................................ 5.1 Raw material costs ............................................................................................................... 5.1 Transportation costs to the U.S. market .............................................................................. 5.4 U.S. inland transportation costs ........................................................................................... 5.4 Pricing practices ....................................................................................................................... 5.5 Pricing methods .................................................................................................................... 5.5 Sales terms and discounts .................................................................................................... 5.6 Price data.................................................................................................................................. 5.7 Price trends......................................................................................................................... 5.16 Price comparisons .............................................................................................................. 5.17 Lost sales and lost revenue .................................................................................................... 5.18 CONTENTS Page iv Part 6: Financial experience of U.S. producers ................................................................. 6.1 Background............................................................................................................................... 6.1 Operations on CSPV cells and modules.................................................................................... 6.2 Net sales ............................................................................................................................. 6.17 Cost of goods sold and gross profit or loss......................................................................... 6.18 SG&A expenses and operating income or loss................................................................... 6.22 All other expenses and net income or loss ........................................................................ 6.23 Capital expenditures and research and development expenses ........................................... 6.24 Assets and return on assets ................................................................................................... 6.27 Capital and investment .......................................................................................................... 6.30 Threat considerations and information on nonsubject countries .......................... 7.1 Subject countries ...................................................................................................................... 7.3 Changes in operations ........................................................................................................ 7.13 Installed and practical overall capacity .............................................................................. 7.17 Constraints on capacity ...................................................................................................... 7.19 Operations on CSPV cells and modules .............................................................................. 7.23 Alternative products ........................................................................................................... 7.38 Exports ................................................................................................................................ 7.38 U.S. inventories of imported merchandise ............................................................................ 7.39 U.S. importers’ outstanding orders........................................................................................ 7.41 Third-country trade actions ................................................................................................... 7.42 Information on nonsubject countries .................................................................................... 7.43 Global production ............................................................................................................... 7.43 Global exports .................................................................................................................... 7.44 China ................................................................................................................................... 7.46 CONTENTS Page v Appendixes A. Federal Register notices .................................................................................................. A.1 B. List of staff conference witnesses ................................................................................... B.1 C. Summary data ................................................................................................................. C.1 D. Firms’ responses regarding the semi-finished product analysis..................................... D.1 Note.—Information that would reveal confidential operations of individual firms may not be published. Such information is identified by brackets ([ ]) in confidential reports and is deleted and replaced with asterisks (***) in public reports. Zeroes, null values, and undefined calculations are suppressed and shown as em dashes (—) in tables. If using a screen reader, we recommend increasing the verbosity setting. 1 UNITED STATES INTERNATIONAL TRADE COMMISSION Investigation Nos. 701-TA-772-774 and 731-TA-1756-1758 (Preliminary) Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules from India, Indonesia, and Laos DETERMINATIONS On the basis of the record1 developed in the subject investigations, the United States International Trade Commission (“Commission”) determines, pursuant to the Tariff Act of 1930 (“the Act”), that there is a reasonable indication that an industry in the United States is materially injured by reason of imports of crystalline silicon photovoltaic cells, whether or not assembled into modules, from India, Indonesia, and Laos, provided for in subheadings 8541.42.00 and 8541.43.00 of the Harmonized Tariff Schedule of the United States, that are alleged to be sold in the United States at less than fair value (“LTFV”) and alleged to be subsidized by the governments of India, Indonesia, and Laos.2 COMMENCEMENT OF FINAL PHASE INVESTIGATIONS Pursuant to section 207.18 of the Commission’s rules, the Commission also gives notice of the commencement of the final phase of its investigations. The Commission will issue a final phase notice of scheduling, which will be published in the Federal Register as provided in § 207.21 of the Commission’s rules, upon notice from the U.S. Department of Commerce (“Commerce”) of affirmative preliminary determinations in the investigations under §§ 703(b) or 733(b) of the Act, or, if the preliminary determinations are negative, upon notice of affirmative final determinations in those investigations under §§ 705(a) or 735(a) of the Act. Parties that filed entries of appearance in the preliminary phase of the investigations need not enter a separate appearance for the final phase of the investigations. Any other party may file an entry of appearance for the final phase of the investigations after publication of the final phase notice of scheduling. Industrial users, and, if the merchandise under investigation is sold at the retail level, representative consumer organizations have the right to appear as parties in Commission antidumping and countervailing duty investigations. The Secretary will prepare a 1 The record is defined in § 207.2(f) of the Commission’s Rules of Practice and Procedure (19 CFR 207.2(f)). 2 90 FR 38736 and 90 FR 38745 (August 12, 2025). 2 public service list containing the names and addresses of all persons, or their representatives, who are parties to the investigations. As provided in section 207.20 of the Commission’s rules, the Director of the Office of Investigations will circulate draft questionnaires for the final phase of the investigations to parties to the investigations, placing copies on the Commission’s Electronic Document Information System (EDIS, https://edis.usitc.gov), for comment. BACKGROUND On July 17, 2025, the Alliance for American Solar Manufacturing and Trade3 filed petitions with the Commission and Commerce, alleging that an industry in the United States is materially injured or threatened with material injury by reason of LTFV and subsidized imports of crystalline silicon photovoltaic cells, whether or not assembled into modules, from India, Indonesia, and Laos. Accordingly, effective July 17, 2025, the Commission instituted countervailing duty investigation Nos. 701-TA-772-774 and antidumping duty investigation Nos. 731-TA-1756-1758 (Preliminary). Notice of the institution of the Commission’s investigations and of a public conference to be held in connection therewith was given by posting copies of the notice in the Office of the Secretary, U.S. International Trade Commission, Washington, DC, and by publishing the notice in the Federal Register of July 22, 2025 (90 FR 34518). The Commission conducted its conference on August 7, 2025. All persons who requested the opportunity were permitted to participate. 3 Members include Hanwha Q CELLS USA Inc., First Solar, and Mission Solar. 3 Views of the Commission Based on the record in the preliminary phase of these investigations, we determine that there is a reasonable indication that an industry in the United States is materially injured by reason of imports of crystalline silicon photovoltaic cells, whether or not assembled into modules, from India, Indonesia, and Laos, that are allegedly sold in the United States at less than fair value and that allegedly subsidized by the governments of India, Indonesia, and Laos. The Legal Standard for Preliminary Determinations The legal standard for preliminary antidumping and countervailing duty determinations requires the Commission to determine, based upon the information available at the time of the preliminary determinations, whether there is a reasonable indication that a domestic industry is materially injured or threatened with material injury, or that the establishment of an industry is materially retarded, by reason of the allegedly unfairly traded imports.1 In applying this standard, the Commission weighs the evidence before it and determines whether “(1) the record as a whole contains clear and convincing evidence that there is no material injury or threat of such injury; and (2) no likelihood exists that contrary evidence will arise in a final investigation.”2 Background Parties to the Investigation. The American Alliance for Solar Manufacturing and Trade (the “Alliance” or “Petitioner”) filed the petitions in these investigations on July 17, 2025, with respect to imports of crystalline silicon photovoltaic (“CSPV”) cells, whether or not assembled into modules (“CSPV products”).3 The Alliance consists of Hanwha Q Cells USA, Inc. (“Hanwha”) and Mission Solar Energy LLC (“Mission”), U.S. producers of CSPV products, as well as First Solar, Inc. (“First Solar”), a U.S. producer of thin film solar products, which are expressly excluded from the scope of these investigations.4 Hanwha and Mission appeared at the staff conference with counsel and the Alliance submitted a postconference brief.5 A representative of Talon PV, a domestic producer of CSPV products that is not a member of the Alliance, appeared at the staff conference, but did not submit a postconference brief.6 T1 Energy Inc. 1 19 U.S.C. §§ 1671b(a), 1673b(a) (2000); see also American Lamb Co. v. United States, 785 F.2d 994, 1001-04 (Fed. Cir. 1986); Aristech Chem. Corp. v. United States, 20 CIT 353, 354-55 (1996). No party argues that the establishment of an industry in the United States is materially retarded by the allegedly unfairly traded imports. 2 American Lamb Co., 785 F.2d at 1001; see also Texas Crushed Stone Co. v. United States, 35 F.3d 1535, 1543 (Fed. Cir. 1994). 3 Petition, EDIS Doc. 857032 (July 17, 2025). 4 The petitions are also supported by domestic producers Talon PV, ***. Petition at 1. 5 Petitioner’s Postconference Brief, EDIS Doc. 859419 (Aug. 12, 2025) (“Petitioner’s Postconference Brief”) at 1. 6 See Transcript of Staff Conference on August 7, 2025, EDIS Doc. 859057 (“Conference Tr.”). 4 (“T1 Energy”), a U.S. producer of CSPV modules, submitted a postconference declaration in support of the petitions.7 No respondent parties appeared at the staff conference, but several respondents submitted postconference briefs. Canadian Solar US Module Manufacturing Corporation, Heliene USA Inc., and Silfab Solar WA Inc. (collectively “Domestic Respondents”), domestic producers of CSPV products, submitted a joint postconference letter.8 Mundra Solar PV Limited (“MSPVL”), Mundra Solar Energy Limited (“MSEL”), Waaree Energies, Ltd., and Waaree Solar Americas (collectively “Indian Respondents”) submitted a joint postconference brief.9 The Solar Energy Industries Association (“SEIA”), an industry association including importers and purchasers of subject merchandise, submitted a postconference brief.10 Data Coverage. U.S. industry data are based on the questionnaire responses of 15 domestic producers, accounting for virtually all U.S. production of CSPV cells and the vast majority of CSPV modules in 2024.11 U.S. import data are based on official Commerce import statistics (under HTS subheadings 8541.42.00 and 8541.43.00)12 and usable questionnaire responses from 45 companies, accounting for *** percent of subject imports from the three subject countries and *** percent of nonsubject imports in 2024.13 The Commission received responses to its questionnaires from 24 foreign producers of subject merchandise: ten producers/exporters in India, which appear to have accounted for *** of subject cells and modules in India in 2024; 13 producers/exporters in Indonesia, estimated to have accounted for essentially all subject cell production and *** percent of subject module production in Indonesia in 2024; and one producer/exporter in Laos, estimated to have accounted for *** 7 See T1 Energy’s Postconference Declaration, EDIS Doc. 859404 (Aug. 12, 2025). 8 Domestic Respondents’ Postconference Letter, EDIS Doc. 859389 (Aug. 12, 2025). 9 Indian Respondents’ Postconference Brief, EDIS Doc. 859378 (Aug. 12, 2025). MSPVL and MSEL are foreign producers/exporters of subject merchandise. See CR/PR at 1.4. Waaree Energies Ltd. is a foreign manufacturer and U.S. importer of subject merchandise. Waaree Solar Americas is a U.S. producer of CSPV products. 10 SEIA Postconference Brief, EDIS Doc. 859423 (Aug. 12, 2025). 11 Confidential Staff Report (“CR”), INV-XX-115, EDIS Doc. 860366 (August 25, 2025) and Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from India, Indonesia, and Laos, Inv. Nos. 701-TA-772-774 and 731-TA-1756-58 (Preliminary), USITC Pub. 5665 (Sep. 2025) (“PR”) at 1.5, 3.1, Table 3.1; Petition, Volume I at 2. Suniva, which began production in the United States in the fourth quarter of 2024, was the only responding domestic producer of CSPV cells. CR/PR at 1.4 n.8. U.S. producer ES Foundry also commenced cell production in early 2025. CR/PR at 3.1. 12 CR/PR at 4.1. 13 CR/PR at 1.5, 4.1. Questionnaire responses covered *** percent of subject imports from India, *** percent of subject imports from Indonesia, and *** percent of subject imports from Laos in 2024. Importer questionnaire data are supplemented using proprietary, Census-edited Customs’ import records to account for non-responding firms. See CR/PR at 4.1, n.2. 5 percent of subject cell production and *** percent of subject module production in Laos in 2024.14 Domestic Like Product In determining whether there is a reasonable indication that an industry in the United States is materially injured or threatened with material injury by reason of imports of the subject merchandise, the Commission first defines the “domestic like product” and the “industry.”15 Section 771(4)(A) of the Tariff Act of 1930, as amended (“the Tariff Act”), defines the relevant domestic industry as the “producers as a whole of a domestic like product, or those producers whose collective output of a domestic like product constitutes a major proportion of the total domestic production of the product.”16 In turn, the Tariff Act defines “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.”17 By statute, the Commission’s “domestic like product” analysis begins with the “article subject to an investigation,” i.e., the subject merchandise as determined by Commerce.18 Therefore, Commerce’s determination as to the scope of the imported merchandise that is subsidized and/or sold at less than fair value is “necessarily the starting point of the Commission’s like product analysis.”19 The Commission then defines the domestic like product in light of the imported articles Commerce has identified.20 The decision regarding the 14 CR/PR at 7.3, Table 7.1. The ten responding firms in India reported a volume of exports equal to *** percent of U.S. imports of CSPV cells and modules from India in 2024; exports to the United States reported by the 13 responding firms in Indonesia accounted for *** percent of U.S. imports of CSPV cells and modules from Indonesia in 2024; and exports to the United States reported by the one responding firm in Laos accounted for *** percent of U.S. imports of CSPV cells and modules from Laos in 2024. CR/PR at 7.3, Table 7.1. *** and *** each reported an estimate of *** percent, which likely resulted in overstate data coverage. Several responding firms also submitted their questionnaire responses too late for inclusion in the Staff Report for the preliminary phase of these investigations. 15 19 U.S.C. § 1677(4)(A). 16 19 U.S.C. § 1677(4)(A). 17 19 U.S.C. § 1677(10). 18 19 U.S.C. § 1677(10). The Commission must accept Commerce’s determination as to the scope of the imported merchandise that is subsidized and/or sold at less than fair value. See, e.g., USEC, Inc. v. United States, 34 Fed. App’x 725, 730 (Fed. Cir. 2002) (“The ITC may not modify the class or kind of imported merchandise examined by Commerce.”); Algoma Steel Corp. v. United States, 688 F. Supp. 639, 644 (Ct. Int’l Trade 1988), aff’d, 865 F.3d 240 (Fed. Cir.), cert. denied, 492 U.S. 919 (1989). 19 Cleo Inc. v. United States, 501 F.3d 1291, 1298 (Fed. Cir. 2007); see also Hitachi Metals, Ltd. v. United States, Case No. 19-1289, slip op. at 8-9 (Fed. Circ. Feb. 7, 2020) (the statute requires the Commission to start with Commerce’s subject merchandise in reaching its own like product determination). 20 Cleo, 501 F.3d at 1298 n.1 (“Commerce’s {scope} finding does not control the Commission’s {like product} determination.”); Hosiden Corp. v. Advanced Display Mfrs., 85 F.3d 1561, 1568 (Fed. Cir. 1996) (the Commission may find a single like product corresponding to several different classes or kinds defined by Commerce); Torrington Co. v. United States, 747 F. Supp. 744, 748–52 (Ct. Int’l Trade 1990), (Continued…) 6 appropriate domestic like product(s) in an investigation is a factual determination, and the Commission has applied the statutory standard of “like” or “most similar in characteristics and uses” on a case-by-case basis.21 No single factor is dispositive, and the Commission may consider other factors it deems relevant based on the facts of a particular investigation.22 The Commission looks for clear dividing lines among possible like products and disregards minor variations.23 The Commission may, where appropriate, include domestic articles in the domestic like product in addition to those described in the scope.24 In its notice of initiation, Commerce defined the imported merchandise within the scope of these investigations as follows: The merchandise covered by these investigations is crystalline silicon photovoltaic cells, and modules, laminates, and panels, consisting of crystalline silicon photovoltaic cells, whether or not partially or fully assembled into other aff’d, 938 F.2d 1278 (Fed. Cir. 1991) (affirming the Commission’s determination defining six like products in investigations where Commerce found five classes or kinds). 21 See, e.g., Cleo Inc. v. United States, 501 F.3d 1291, 1299 (Fed. Cir. 2007); NEC Corp. v. Department of Commerce, 36 F. Supp. 2d 380, 383 (Ct. Int’l Trade 1998); Nippon Steel Corp. v. United States, 19 CIT 450, 455 (1995); Torrington Co. v. United States, 747 F. Supp. 744, 749 n.3 (Ct. Int’l Trade 1990), aff’d, 938 F.2d 1278 (Fed. Cir. 1991) (“every like product determination ‘must be made on the particular record at issue’ and the ‘unique facts of each case’”). The Commission generally considers a number of factors including the following: (1) physical characteristics and uses; (2) interchangeability; (3) channels of distribution; (4) customer and producer perceptions of the products; (5) common manufacturing facilities, production processes, and production employees; and, where appropriate, (6) price. See Nippon, 19 CIT at 455 n.4; Timken Co. v. United States, 913 F. Supp. 580, 584 (Ct. Int’l Trade 1996). In a semi-finished products analysis, the Commission examines the following: (1) the significance and extent of the processes used to transform the upstream into the downstream articles; (2) whether the upstream article is dedicated to the production of the downstream article or has independent uses; (3) differences in the physical characteristics and functions of the upstream and downstream articles; (4) whether there are perceived to be separate markets for the upstream and downstream articles; and (5) differences in the costs or value of the vertically differentiated articles. See, e.g., Glycine from India, Japan, and Korea, Inv. Nos. 731-TA-1111-1113 (Preliminary), USITC Pub. No. 3921 at 7 (May 2007); Artists' Canvas from China, Inv. No. 731-TA-1091 (Final), USITC Pub. No. 3853 at 6 (May 2006); Live Swine from Canada, Inv. No. 731-TA-1076 (Final), US1TC Pub. 3766 at 8 n.40 (Apr. 2005); Certain Frozen Fish Fillets from Vietnam, Inv. No. 731-TA-1012 (Preliminary), USITC Pub. No. 3533 at 7 (Aug. 2002). 22 See, e.g., S. Rep. No. 96-249 at 90-91 (1979). 23 See, e.g., Nippon, 19 CIT at 455; Torrington, 747 F. Supp. at 748-49; see also S. Rep. No. 96-249 at 90-91 (Congress has indicated that the like product standard should not be interpreted in “such a narrow fashion as to permit minor differences in physical characteristics or uses to lead to the conclusion that the product and article are not ‘like’ each other, nor should the definition of ‘like product’ be interpreted in such a fashion as to prevent consideration of an industry adversely affected by the imports under consideration.”). 24 See, e.g., Pure Magnesium from China and Israel, Inv. Nos. 701-TA-403 and 731-TA-895-96 (Final), USITC Pub. 3467 at 8 n.34 (Nov. 2001); Torrington, 747 F. Supp. at 748-49 (holding that the Commission is not legally required to limit the domestic like product to the product advocated by the petitioner, co-extensive with the scope). 7 products, including, but not limited to, modules, laminates, panels and building integrated materials. These investigations cover crystalline silicon photovoltaic cells of thickness equal to or greater than 20 micrometers, having a p/n junction formed by any means, whether or not the cell has undergone other processing, including, but not limited to, cleaning, etching, coating, and/or addition of materials (including, but not limited to, metallization and conductor patterns) to collect and forward the electricity that is generated by the cell. Merchandise under consideration may be described at the time of importation as parts for final finished products that are assembled after importation, including, but not limited to, modules, laminates, panels, building-integrated modules, building integrated panels, or other finished goods kits. Such parts that otherwise meet the definition of merchandise under consideration are included in the scope of the investigation. Excluded from the scope of the investigation are thin film photovoltaic products produced from amorphous silicon (a-Si), cadmium telluride (CdTe), or copper indium gallium selenide (CIGS). Also excluded from the scope of the investigation are crystalline silicon photovoltaic cells, not exceeding 10,000 mm2 in surface area, that are permanently integrated into a consumer good whose function is other than power generation and that consumes the electricity generated by the integrated crystalline silicon photovoltaic cell. Where more than one cell is permanently integrated into a consumer good, the surface area for purposes of this exclusion shall be the total combined surface area of all cells that are integrated into the consumer good. Additionally, excluded from the scope of the investigation are panels with surface area from 3,450 mm2 to 33,782 mm2 with one black wire and one red wire (each of type 22 AWG or 24 AWG not more than 206 mm in length when measured from panel extrusion), and not exceeding 2.9 volts, 1.1 amps, and 3.19 watts. For the purposes of this exclusion, no panel shall contain an internal battery or external computer peripheral ports. Also excluded from the scope of the investigation are: (1) Off grid CSPV panels in rigid form with a glass cover, with the following characteristics: (A) a total power output of 100 watts or less per panel; (B) a maximum surface area of 8,000 cm2 per panel; (C) do not include a built-in inverter; (D) must include a permanently connected wire that terminates in either an 8 mm male barrel connector, or a two-port rectangular connector with two pins in square housings of different colors; (E) must include visible parallel 8 grid collector metallic wire lines every 1-4 millimeters across each solar cell; and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features, and foam for transport); and (2) Off grid CSPV panels without a glass cover, with the following characteristics: (A) a total power output of 100 watts or less per panel; (B) a maximum surface area of 8,000 cm2 per panel; (C) do not include a built-in inverter; (D) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell; and (E) each panel is (1) permanently integrated into a consumer good; (2) encased in a laminated material without stitching, or (3) has all of the following characteristics: (i) the panel is encased in sewn fabric with visible stitching, (ii) includes a mesh zippered storage pocket, and (iii) includes a permanently attached wire that terminates in a female USB-A connector. In addition, the following CSPV panels are excluded from the scope of the investigation: offgrid CSPV panels in rigid form with a glass cover, with each of the following physical characteristics, whether or not assembled into a fully completed off-grid hydropanel whose function is conversion of water vapor into liquid water: (A) a total power output of no more than 80 watts per panel; (B) a surface area of less than 5,000 square centimeters (cm2 ) per panel; (C) do not include a built-in inverter; (D) do not have a frame around the edges of the panel; (E) include a clear glass back panel; and (F) must include a permanently connected wire that terminates in a twoport rectangular connector. Additionally excluded from the scope of these investigations are off-grid small portable crystalline silicon photovoltaic panels, with or without a glass cover, with the following characteristics: (1) a total power output of 200 watts or less per panel; (2) a maximum surface area of 16,000 cm2 per panel; (3) no built-in inverter; (4) an integrated handle or a handle attached to the package for ease of carry; (5) one or more integrated kickstands for easy installation or angle adjustment; and (6) a wire of not less than 3 meters either permanently connected or attached to the package that terminates in an 8 mm diameter male barrel connector. Also excluded from the scope of these investigations are off-grid crystalline silicon photovoltaic panels in rigid form with a glass cover, with each of the following physical characteristics, whether or not assembled into a fully completed off-grid hydropanel whose function is conversion of water vapor into liquid water: (A) a total power output of no more than 180 watts per panel at 155 degrees Celsius; (B) a surface area of less than 16,000 square centimeters (cm2 ) per panel; (C) include a keep-out area of approximately 1,200 cm2 around the edges of the panel that does not contain solar cells; (D) do not include a built-in inverter; (E) do not have a frame around the edges of the panel; (F) 9 include a clear glass back panel; (G) must include a permanently connected wire that terminates in a two-port rounded rectangular, sealed connector; (H) include a thermistor installed into the permanently connected wire before the twoport connector; and (I) include exposed positive and negative terminals at opposite ends of the panel, not enclosed in a junction box. Further excluded from the scope of the investigations are: (1) Off grid rigid CSPV panels with a glass cover, with the following characteristics: (A) a total power output of 200 watts or less per panel, (B) a maximum surface area of 10,500 cm2 per panel, (C) do not include a built-in inverter, (D) must include a permanently connected wire that terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure, (E) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features); and (2) Off-grid small portable crystalline silicon photovoltaic panels, with or without a glass cover, with the following characteristics: (A) a total power output of 200 watts or less per panel, (B) a maximum surface area of 16,000 cm2 per panel, (C) no built-in inverter, (D) an integrated handle or a handle attached to the package for ease of carry, (E) one or more integrated kickstands for easy installation or angle adjustment, and (F) a wire either permanently connected or attached to the package terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure. Also excluded from the scope of the investigation are: (1) Off grid rigid CSPV panels with a glass cover, with the following characteristics: (A) a total power output of 200 watts or less per panel, (B) a maximum surface area of 10,500 cm2 per panel, (C) do not include a built-in inverter, (D) must include a permanently connected wire that terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure, (E) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features); and (2) Small off-grid panels with glass cover, with the following characteristics: (A) surface area from 3,450 mm2 to 33,782 mm2 , (B) with one black wire and one red wire (each of type 22AWG or 28 AWG not more than 350 mm in length when 10 measured from panel extrusion), (C) not exceeding 10 volts, (D) not exceeding 1.1 amps, (E) not exceeding 6 watts, and (F) for the purposes of this exclusion, no panel shall contain an internal battery or external computer peripheral ports. Additionally excluded from the scope of the investigation are: (1) Off grid rigid CSPV panels with a glass cover, with the following characteristics: (A) a total power output of 175 watts or less per panel, (B) a maximum surface area of 9,000 cm2 per panel, (C) do not include a built-in inverter, (D) must include a permanently connected wire that terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure; (E) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features); and (2) Off grid CSPV panels without a glass cover, with the following characteristics, (A) a total power output of 220 watts or less per panel, (B) a maximum surface area of 16,000 cm2 per panel, (C) do not include a built-in inverter, (D) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (E) each panel is encased in a 4 laminated material without stitching. Also excluded from the scope of these investigations are off-grid CSPV panels in rigid form, with or without a glass cover, permanently attached to an aluminum extrusion that is an integral component of an automation device that controls natural light, whether or not assembled into a fully completed automation device that controls natural light, with the following characteristics: (1) a total power output of 20 watts or less per panel; (2) a maximum surface area of 1,000 cm2 per panel; (3) does not include a built-in inverter for powering third party devices. Modules, laminates, and panels produced in a third-country from cells produced in a subject country are covered by the investigation; however, modules, laminates, and panels produced in a subject country from cells produced in a third-country are not covered by the investigations. Also excluded from the scope of these investigations are all products covered by the scope of the antidumping and countervailing duty orders on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from the People’s Republic of China: Amended Final Determination of Sales at Less Than 11 Fair Value, and Antidumping Order, 77 FR 73018 (December 7, 2012); and Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from the People’s Republic of China: Countervailing Duty Order, 77 FR 73017 (December 7, 2012). Also excluded from the scope of these investigations are all products covered by the scope of the antidumping and countervailing duty orders on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from the Socialist Republic of Vietnam: Amended Final Antidumping Duty Determination; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Antidumping duty Orders, 90 FR 26786 (June 24, 2025); Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from the Socialist Republic of Vietnam: Amended Final Antidumping Duty Determination; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Antidumping Duty Orders; Correction, 90 FR 29843 (July 7, 2025); and Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from Malaysia and Thailand: Amended Final Countervailing Duty Determinations; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Countervailing Duty Orders, 90 FR 26791 (June 24, 2025). Merchandise covered by the investigations is currently classified in the Harmonized Tariff System of the United States (HTSUS) under subheadings 8541.42.0010 and 8541.43.0010. Imports of the subject merchandise may enter under HTSUS subheadings 8501.71.0000, 8501.72.1000, 8501.72.2000, 8501.72.3000, 8501.72.9000, 8501.80.1000, 8501.80.2000, 8501.80.3000, 8501.80.9000, 8507.20.8010, 8507.20.8031, 8507.20.8041, 8507.20.8061, and 8507.20.8091. These HTSUS subheadings are provided for convenience and customs purposes; the written description of the scope of the investigations is dispositive.25 A. Product Description CSPV cells are the essential element in CSPV modules (also commonly referred to as panels), which in turn are the main components of CSPV systems that convert sunlight into 25 Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, From India, Indonesia, and the Lao People's Democratic Republic: Initiation of Less-Than-Fair-Value Investigations, 90 Fed. Reg. 38737 (Dep’t of Comm. Aug. 12, 2025) (“AD Initiation Notice”); Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, From India, Indonesia, and the Lao People's Democratic Republic: Initiation of Countervailing Duty Investigations, 90 Fed. Reg. 38745, 38749-50 (Dep’t of Comm. Aug. 12, 2025) (“CVD Initiation Notice”). 12 electricity.26 There are four main market segments: off-grid applications and residential, non- residential, and utility on-grid applications.27 Off-grid solar products are excluded from the scope of these investigations. CSPV cells use either monocrystalline or multicrystalline silicon to convert sunlight to electricity and may be fully square or slightly rounded.28 CSPV cells have a positive layer, a negative layer, and a positive-negative (“p/n”) junction, and vary in size depending on the size of the wafer used to produce the cell.29 Cells generate electricity when sunlight strikes the cell, knocking electrons loose and causing them to travel between the layers. CSPV cells can be monofacial, with a materialized opaque back layer, or bifacial, with a transparent or translucent back that allows the cell to convert light that hits both the front and back of the cell into electricity.30 CSPV modules consist of CSPV cells that are soldered together, placed on a matrix, and laminated.31 The laminate is then typically framed in aluminum and attached to one or more junction boxes.32 CSPV modules can be used in both ground-mounted and rooftop mounted systems, both on and off the electrical grid.33 As monofacial and bifacial modules have moved closer to cost parity, manufacturers have adjusted their product lines, including by purchasing bifacial cells as inputs and replacing opaque back sheets with glass.34 The most common on- grid CSPV modules have 60 cells (or 120 half-cut cells) or 72 cells (or 144 half-cut cells).35 There are five principal stages in manufacturing CSPV products: (1) refining of polysilicon; (2) forming of ingots; (3) slicing of wafers; (4) conversion into cells; and (5) assembly into modules.36 26 CR/PR at 1.18. 27 CR/PR at 1.26. 28 CR/PR at 1.24. Monocrystalline cells are made from a single grown crystal and tend to have a higher conversion efficiency than multicrystalline cells, which have a random crystal structure. CR/PR 1.24. Conversion efficiency is the percent of sunlight that is converted to electricity. CR/PR at 1.24 n.38. The record in these investigations shows that producers have shifted away from manufacturing multicrystalline cells, and all of the pricing data relate to products containing monocrystalline cells. See generally, CR/PR at Part 5. 29 CR/PR at 1.20. Common sizes of wafers range from 156 to 210 mm in side length. See CR/PR at Figure 1.2. 30 CR/PR at 1.20. 31 CR/PR at 1.32-33. 32 CR/PR at 1.33. 33 CR/PR at 1.27. 34 CR/PR at 1.22. Domestic producers of CSPV products have reported that monofacial and bifacial modules have reached cost parity. CR/PR at 1.22. At the conference, witnesses from domestic producers testified that producers use bifacial cells in a lot of cases for a monofacial product, knowing that there is some capability that is wasted by covering the back of the module with aluminum instead of glass, but forgoing the extra expense of running a different production line of monofacial cells. See Conference Tr. at 73-78, 97 (Moskowitz). 35 CR/PR at 1.27. Half-cut cells result in lower cell current, which reduces power losses and increases cell efficiency and overall module output. CR/PR at 1.25-26. 36 CR/PR at 1.27-28. 13 B. Arguments of the Parties Petitioner’s Arguments. Petitioner argues that the Commission should apply its semi- finished product analysis and define a single domestic like product consisting of CSPV cells and modules, coextensive with the scope, as it asserts the Commission has done for more than a decade in prior proceedings involving similar products.37 Petitioner states that the purpose of the semi-finished product analysis is to address situations where unfair trade in the market for the upstream product affects the market for the finished product, and vice versa.38 Petitioner argues that cells are the primary downstream input for modules, and there have been no significant changes in the characteristics of cells, modules, or the production process that would warrant a definition of the domestic like product in these investigations that is different from the definition used in CSPV I, CSPV II, and most recently in June of this year in CSPV III, in which the Commission defined a single domestic like product consisting of cells and modules.39 Respondents’ Arguments. Domestic Respondents urge the Commission to define CSPV cells and CSPV modules as separate domestic like products, under either the traditional six- factor test or the semi-finished product analysis.40 They argue that CSPV cells and modules compete in distinct markets and have different characteristics and functions. In addition, they assert that assembling CSPV cells into modules is a transformative and capital-intensive process that adds significant value to the end product, and that CSPV cells have other applications beyond use in CSPV modules.41 C. Analysis and Conclusion Based on the current record, we define a single domestic like product consisting of CSPV cells and modules, coextensive with Commerce’s scope. Dedication for Use. The Commission recently explained in CSPV III that the greater the extent to which an upstream article of any kind is “dedicated for use” to the production of a particular downstream article, the more likely it is that producers of both products will be in the same position with respect to the imports of the articles. In such a case, it would therefore be more reasonable to consider the two articles as a single product.42 37 Petitioner’s Postconference Brief at 3. See Crystalline Silicon Photovoltaic Cells and Modules from China, Inv. Nos. 701-TA-481 and 731-TA-1190 (Final), USITC Pub. 4360 (Nov. 2012) at 6 (“CSPV I”); Certain Crystalline Silicon Photovoltaic Products from China and Taiwan, Inv. Nos. 701-TA-511 and 731- TA-1246-1247 (Final), USITC Pub. 4519 (Feb. 2015) (“CSPV II”); Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from Cambodia, Malaysia, Thailand, and Vietnam, Inv. Nos. 701-TA-722-725 and 731-TA-1690-1693 (Final), USITC Pub. 5631 (June 2025) at 28 (“CSPV III”). 38 See Petitioner’s Postconference Brief at 3. 39 Petitioner’s Postconference Brief at 3-4. 40 Domestic Respondents’ Postconference Letter at 4. 41 Domestic Respondents’ Postconference Letter at 4-8. 42 CSPV III, USITC Pub. 5631 at 23 (quoting Stainless Steel Bar from Brazil, India, Italy, Japan, and Spain, Inv. Nos. 731-TA-687-682 (Preliminary), USITC Pub. 2734 (Feb. 1994) at I-11). 14 The record shows that, as the Commission recently found and has been the case in prior proceedings involving CSPV products,43 the vast majority of CSPV cells covered by these investigations are used for CSPV module production.44 Furthermore, 11 out of 13 responding U.S. producers, and 34 out of 39 responding U.S. importers indicated that there are no uses for CSPV cells other than for assembly into CSPV modules.45 At the staff conference, the CEO of Talon testified that “cells are entirely dedicated for use in solar modules.”46 Several responding producers and importers report that CSPV cells can be used for building-integrated photovoltaic (“BIPV”) applications.47 While there is no dispute that CSPV cells are used to some extent in BIPV applications such as roof shingles and ***,48 the record does not contain any evidence that the significance or volume of these applications has changed since the Commission recently decided this issue in CSPV III.49 Moreover, as the Commission found in CSPV III, “the existence of some alternative uses does not detract from the bulk of evidence indicating that the predominant use for domestically produced CSPV cells is in the production of domestically produced CSPV modules, which is indicative of a single domestic like product.”50 In addition, there is no evidence that domestically produced cells are currently used in BIPV applications, as the record shows that *** domestically produced cells during the POI were shipped to module assemblers.51 Separate Markets. It is undisputed that in the United States CSPV cells are almost exclusively sold by cell manufacturers to module manufacturers, some of whom may be related to the cell manufacturer, while modules are sold by module manufacturers to a wide variety of distributors and end users for generation of solar energy.52 Along these lines, ten of 14 responding U.S. producers and 22 of 39 responding importers indicated that there are separate markets for CSPV cells and CSPV modules.53 However, it is also undisputed that, for the most part, these initial sales to manufacturers lead invariably to the sales to distributors and end users for the generation of solar energy.54 The Commission has previously concluded that there is not a separate market for a semifinished product merely because it is sold to an intermediate processor for conversion to 43 CSPV III, USITC Pub. 5631 at 23, see also CSPV II, USITC Pub. 4519 at 13. 44 See CSPV II, USITC Pub. 4519 at 13. 45 CR/PR at Table D.1. 46 Conference Tr. at 32 (Tesanovich). 47 See CR/PR at Table D.2. 48 CR/PR at Table D.2. U.S. producers, *** listed ***. See CR/PR at Tables D.2, D.4. Several importers also reported that ***. See CR/PR at Table D.3. 49 See CR/PR at Table D.1. 50 CSPV III, USITC Pub. 5631 at 23-24. 51 CR/PR at 2.3 n.7. 52 See CR/PR at 2.2, 2.4. 53 CR/PR at Table D.1. For example, in its U.S. producer questionnaire response *** stated that “***.” Furthermore, *** reports that as “***.” Id. In its U.S. importer response *** stated that the “***.” CR/PR at Table D.3. Similarly, *** reported that “***.” 54 See generally CR/PR at Tables D.2, D.3. 15 the finished product.55 The Commission has also acknowledged that “{e}ven if an upstream article is ‘dedicated for use in a particular downstream market, there can be independent markets for the two articles.”56 It explained that this applies where “there is an independent group of producers who process the upstream product, having purchased it in an open, competitive market” because in that situation, “the articles are more likely to comprise separate like products than if production is integrated or performed under some form of tolling arrangements.”57 In CSPV III, the Commission found that the evidence with respect to this factor was mixed. It recognized that the fact that the then sole domestic cell producer, Suniva, sold only CSPV cells and not modules suggested that cells are a separate like product. The Commission, however, “found that this {was} outweighed by the fact that the U.S. cell market is almost entirely focused on the production of products for sale in the module market, which continues to indicate that domestically produced cells and modules form a single domestic like product.”58 The record in these investigations does not indicate any differently. Differences in Physical Characteristics and Functions of the Upstream and Downstream Articles. Nearly all responding U.S. producers indicated that cells and modules have different physical characteristics and functions,59 but the Commission in CSPV III found that these largely stem from CSPV cells and modules being at different stages of processing.60 The Commission has previously recognized that “{s}emi-finished products dedicated for use in downstream products do not necessarily encompass all attributes or functions of the finished products.”61 55 See, e.g., Fluid End Blocks from China, Germany, India, & Italy, Inv. No. 701-TA-632-635 and 731-TA-1466-68, USITC Pub. 5017 (Feb. 1, 2020) (Preliminary), at 11. In Fluid End Blocks, the Commission found a single domestic like product of unfinished fluid end blocks (“FEBs”) and finished FEBS. Id. It found that there was no separate market for unfinished FEBS “even though they may be transferred in an unfinished form to an intermediate firm that performs the final finishing operations or sold directly to the end user that performs the final finishing operations itself.” Id.; see Artists' Canvas from China, Inv. No. 731-TA-1091 (May 2006) (Final), at 6 (finding no separate market for unfinished and finished product because “{w}hile bulk canvas is sold primarily to converters and the majority of finished canvas is sold to retailers, the ultimate end user of either is the artist”); see also Carbazole Violet Pigment 23 from China and India, Inv. Nos. 701-TA-437 and 731-TA-1060 and 1061 (Final), USITC Pub. 3744 at 6 (Dec. 2004) (“Thus, because crude and finished violet 23 are part of a continuous chain of production, their end-use markets are essentially the same.”). 56 Stainless Steel Bar from Brazil, India, Italy, Japan, & Spain, USITC Inv. No. 731-TA-678-682 (Preliminary), USITC Pub. 2734 (Feb. 1994) at I-11. 57 Stainless Steel Bar from Brazil, India, Italy, Japan, & Spain, USITC Inv. No. 731-TA-678-682 (Preliminary), USITC Pub. 2734 (Feb. 1994) at I-11. 58 CSPV III, USITC Pub. 5631 at 25. 59 See CR/PR at Table D.1. 60 CSPV III, USITC 5613 at 25. 61 CSPV III, USITC 5613 at 25; see also Live Swine from Canada, Inv. No. 701-TA-438, 731-TA-1076 (Preliminary), USITC Pub. 3693 (May 2004) at 7 (“Swine at different stages of production are not . . . interchangeable because they have not reached their optimal market weight. However, the Commission has found that it would not be expected that a semifinished product that is dedicated for use as a finished product would possess the attributes of and encompass all the functions of a finished product.”). 16 The record shows that cells and modules are physically different in that cells are small, ***.62 Unfinished cells cannot transmit usable electricity until they are assembled into modules, which are a connected group of cells laminated with special glass or other materials to protect the cells and facilitate electricity generation.63 As the Commission stated in CSPV III, the “characteristics, however, that enable the conversion of sunlight to electricity are embodied in the cells.”64 The module assembly process does not affect that characteristic, but adds equipment to facilitate the orientation of the constituent cells toward the sun, aggregate their electrical output, and transmit it for use. Indeed, CSPV cells cannot serve their intended function of converting sunlight into usable electricity without being assembled into some product, which in the U.S. market is almost invariably a CSPV module.65 Furthermore, “the product updates . . . such as the shift from PERC cells to TOPCon, largely relate to technological improvements to the cells, which are developments that have enhanced their ability to produce electricity, rather than alter the ultimate function that cells and modules share.”66 Thus, we consider that physical characteristics and function weigh in favor of finding that domestically produced cells and modules form a single domestic like product. Differences in Value. The record shows that CSPV cells and modules differ in value. Eleven out of 13 responding U.S. producers, and 33 out of 37 responding U.S. importers indicated that CSPV cells and CSPV modules differ in costs.67 Some U.S. producers and importers indicated that there are production and material costs beyond the cost of cells, and that cells have little value unless they are assembled into modules.68 U.S. module producer ***.69 Canadian Solar asserts that solar modules “are substantially more expensive than cells, demonstrating that the module production process imparts significant value.”70 It argues that according to the U.S. Department of Energy’s National Renewable Energy Laboratory, in 2024, the cost of manufacturing a solar module is $0.20/W-dc, of which $0.0846 was due to module assembly and only $0.0474 was due to the cost of the cells.71 On the other hand, CSPV cells account for a significant portion of a module’s value. U.S. producers’ questionnaire responses indicate that CSPV cells accounted for between *** to *** percent of the total raw material costs for CSPV module production from 2022 to 2024,72 and U.S. producers and importers reported that CSPV cells’ share of the cost of finished modules 62 CR/PR at Table D.3. 63 See CR/PR at 1.26-1.27, 1.33. 64 CSPV III, USITC Pub. 5631 at 26. 65 See CSPV III, USITC Pub. 5631 at 26. 66 CSPV III, USITC Pub. 5631 at 26. 67 CR/PR at Table D.1. 68 CR/PR at Tables D.2, D.3. 69 CR/PR at Table D.2. 70 Domestic Respondents’ Postconference Letter at 6. 71 Domestic Respondents’ Postconference Letter at 6. 72 CR/PR at Table 6.6. Cells from all sources accounted for *** percent of U.S. producers’ raw material costs in 2022, *** percent in 2023, and *** percent in 2024; they accounted for *** percent of U.S. module producers’ raw material costs in interim 2025 and *** percent in interim 2024. Id. 17 ranged from 20 to 67 percent.73 By their nature, semifinished products will represent some fraction of the value of a finished product. As the Commission found in CSPV III, that fraction appears to be substantial with respect to cells and finished modules.74 We consider that on balance, this factor weighs somewhat in favor of finding that domestically produced cells and modules form a single domestic like product. Extent of Processes Used to Transform Downstream Product into Upstream Product. The record shows that the process of assembling cells into modules is generally the most labor- intensive part of the manufacturing process.75 Eleven out of 13 U.S. producers, and 27 out of 37 responding U.S. importers indicated that the process for transforming cells into modules is capital and labor intensive.76 Furthermore, the record shows that module assembly generally occurs in separate facilities or production lines, and with separate employees, which weighs against finding a single domestic like product.77 However, the Commission has previously found that the “processes used to manufacture CSPV modules from CSPV cells are technologically sophisticated, more labor intensive than manufacturing CSPV cells, and add value to the product, but they enhance rather than change the basic function of CSPV cells, which is to convert sunlight into electricity.”78 The record in these investigations does not indicate differently. The five principal stages of the manufacture of CSPV products are (1) refining of polysilicon, (2) formation of ingots, (3) slicing of wafers, (4) conversion to CSPV cells, (5) assembly into the finished product, CSPV modules,79 and four of those five steps relate to the production of cells.80 The process of assembling cells into modules involves significant costs and labor, but on balance module assembly enhances CSPV cells’ function to create electricity.81 73 CR/PR at 2.11. 74 CSPV III, USITC Pub. 5631 at 27. 75 CR/PR at 1.32-1.33; see also Domestic Respondents’ Postconference Letter at 7. 76 CR/PR at Table D.1. 77 Domestic Respondents’ Postconference Letter at 6-7. The Commission has explained the “significance of the activity necessary to transform the unfinished product to the finished product is important” and that if the “process requires separate facilities or entirely separated production lines, it is more likely to be significant than if it is merely one additional station on a single line.” See Stainless Steel Bar from Brazil, India, Italy, Japan, & Spain, USITC Inv. No. 731-TA-678-682 (Preliminary), USITC Pub. 2734 (Feb. 1994) at I-12. 78 CSPV III, USITC Pub. 5631 at 27 (quoting CSPV II, USITC Pub. 4519 at 15). 79 CR/PR at 1.27. The production steps may be done in different plants or locations. The ingot and wafer production process differs for monocrystalline and multicrystalline cells. Id. at 1.29-30. 80 CR/PR at 1.27-28. The Commission has previously defined a single like product in cases where conversion into the downstream product added substantial value. See Carbazole Violet Pigment 23 from China and India, Inv. Nos. 701-TA-437 and 731-TA-1060 and 1061 (Final), USITC Pub. 3744 at 5-7 (Dec. 2004) (finding one domestic like product where conversion into downstream product added substantial value, but the upstream product was the costliest input used to make the downstream product.). 81 See CR/PR at 1.31-33. 18 Conclusion. As the Commission recently found in CSPV III, many of the differences between CSPV cells and modules stem from them being at different stages of production.82 The evidence demonstrates that cells are dedicated to the production of CSPV modules, and that, although there are differences in size, weight, and finishing, CSPV cells and modules share the same essential characteristics and functions that allow for the conversion of sunlight into electricity. The cell also accounts for a substantial portion of the finished value of the module. The record is mixed on the significance and extent of the processes used to transform cells into modules, as module assembly is a labor-intensive and costly operation. On balance, however, module assembly enhances, rather than alters, CSPV’s cells’ essential functions. The record is also mixed on the degree to which domestically produced cells and modules compete in separate markets, but considered with the other four factors, the record weighs towards treating cells and modules as a single domestic like product. In light of the above, including the absence of any new information since CSPV III pertaining to the domestic like product definition, we define a single domestic like product consisting of CSPV cells and modules.83 82 CSPV III, USITC 5613 at 25. The Commission recognized that “semi-finished products for use in downstream products do not necessarily encompass all attributes or functions of the finished products.” 83 In CSPV III, the Commission did not define the domestic like product to include out-of-scope thin film solar products, which was consistent with prior investigations involving these products. See CSPV III, USITC Pub. 5631 at 28 n.113 The record in the preliminary phase of CSPV III indicated that thin film solar products were produced using different raw materials, manufacturing facilities, manufacturing processes, and production employees, and that thin film solar products differed significantly in physical characteristics, conversion efficiency, and output from CSPV solar cells and modules. Id. The Commission also did not define the domestic like product to include out-of-scope off-grid CSPV modules. Id. The Commission found that while off-grid modules were made from the same raw materials as in-scope modules, the record indicated that there were significant differences in their end uses, interchangeability, consumer and producer perceptions, and price. Id. Petitioner argues that the Commission should again decline to define the domestic like product to include out-of-scope thin-film products. See Petitioner’s Postconference Brief at 3-4. SEIA argues that the Commission must consider imports of out-of-scope thin-film solar modules by First Solar, a member of the Alliance. SEIA asserts that thin-film solar products are directly competitive with CSPV solar products, and that imports of thin-film products surged during the POI. SEIA Postconference Brief at 7-10. We note that in CSPV III, no party advocated to include thin-film solar products in the definition and the Commission declined to do so. The Commission found that the record in those investigations “indicated that thin film solar products are produced using different raw materials, manufacturing facilities, manufacturing processes, and production employees, and that thin film solar products differ significantly in physical characteristics, conversion efficiency, and output from CSPV solar cells and modules.” CSPV III, USITC Pub. 5631 at 28-29 n.113. The record in the preliminary phase of these investigations does not indicate differently, and thus, we do not include out-of-scope thin film solar products in the definition of the domestic like product. We intend to further investigate these domestic like product issues in any final phase investigations. Parties wishing to raise domestic like product arguments should address any data collection issues in their comments on the final phase draft questionnaires. 19 C.F.R. § 207.20(b). 19 Domestic Industry The domestic industry is defined as the domestic “producers as a whole of a domestic like product, or those producers whose collective output of a domestic like product constitutes a major proportion of the total domestic production of the product.”84 In defining the domestic industry, the Commission’s general practice has been to include in the industry producers of all domestic production of the like product, whether toll-produced, captively consumed, or sold in the domestic merchant market. These preliminary investigations raise the issue of whether appropriate circumstances exist to exclude any domestic producers from the domestic industry pursuant to the related parties provision.85 A. Related Parties We must determine whether any producer of the domestic like product should be excluded from the domestic industry pursuant to Section 771(4)(B) of the Tariff Act. This provision allows the Commission, if appropriate circumstances exist, to exclude from the domestic industry producers that are related to an exporter or importer of subject merchandise or which are themselves importers.86 Exclusion of such a producer is within the Commission’s discretion based upon the facts presented in each investigation.87 84 19 U.S.C. § 1677(4)(A). 85 The Commission has previously determined that U.S. CSPV module assemblers engage in sufficient production-related activities to include them in the domestic industry as domestic producers of the domestic like product. See, e.g., CSPV III, USITC Pub. 5631 at 29-30. Because domestic cell production began late in the January 2022 to March 2025 period of investigation (“POI”) and remains quite low (*** kW in 2024, and *** kW in interim 2025), virtually all domestic module production between 2022 and 2024, and the interim periods, required imported cells. See CR/PR at 2.9; Table 3.5. Although Domestic Respondents advocate that the Commission find two separate domestic like products, consisting of CSPV cells and CSPV modules, no party has argued that if the Commission defines a single domestic like product, it should not include module assemblers in the domestic industry. In the absence of any contrary arguments and new information concerning the production activities of U.S. module assemblers on this record, we continue to include U.S. module assemblers in the domestic industry definition. 86 See Torrington Co. v. United States, 790 F. Supp. 1161, 1168 (Ct. Int’l Trade 1992), aff’d without opinion, 991 F.2d 809 (Fed. Cir. 1993); Sandvik AB v. United States, 721 F. Supp. 1322, 1331-32 (Ct. Int’l Trade 1989), aff’d mem., 904 F.2d 46 (Fed. Cir. 1990); Empire Plow Co. v. United States, 675 F. Supp. 1348, 1352 (Ct. Int’l Trade 1987). 87 The primary factors the Commission has examined in deciding whether appropriate circumstances exist to exclude a related party include the following: (1) the percentage of domestic production attributable to the importing producer; (2) the reason the U.S. producer has decided to import the product subject to investigation (whether the firm benefits from the LTFV sales or subsidies or whether the firm must import in order to enable it to continue production and compete in the U.S. market); (3) whether inclusion or exclusion of the related party will skew the data for the rest of the industry; (Continued…) 20 1. Arguments of the Parties Petitioner argues that the Commission should define the domestic industry to include all domestic producers of CSPV cells and modules.88 It asserts that although certain parties are related to subject producers or exporters, appropriate circumstances do not exist to exclude any party from the domestic industry at the preliminary phase. No respondent party addressed the definition of the domestic industry in their postconference submissions. 2. Analysis and Conclusion Because U.S. production of CSPV cells began late in the January 2022 to March 2025 period of investigation (“POI”), U.S. producers of CSPV modules had to import or purchase foreign-produced CSPV cells for almost all domestic module assembly.89 The record shows that eight U.S. producers are subject to possible exclusion from the domestic industry under the related parties provision because they imported subject merchandise during the POI, or are affiliated with subject producers, exporters, or importers of CSPV cells and modules from subject countries.90 Furthermore, three U.S. producers, including two that also imported subject merchandise, purchased subject merchandise from U.S. importers of CSPV products from subject sources.91 We consider whether appropriate circumstances exist to exclude any domestic producer subject to the related parties provision from the domestic industry. In considering this issue, we recall that in relation to domestic producers’ reliance on subject imports of CSPV cells in CSPV III, the Commission stated that “we do not find that importation of subject merchandise, by itself, even in appreciable quantities, necessarily warrants excluding a related party.”92 The Commission concluded in that determination that even if module producers rely on imported inputs, the CSPV module assembly process adds sufficient value to the product and requires sufficient capital investment, R&D expenses, technical expertise, automation, and skilled labor to treat that cell production as part of the domestic industry.93 Potential related parties in these investigations are in much the same position with respect to subject merchandise and subject foreign producers as they were in the CSPV III (4) the ratio of import shipments to U.S. production for the imported product; and (5) whether the primary interest of the importing producer lies in domestic production or importation. Changzhou Trina Solar Energy Co. v. USITC, 100 F. Supp.3d 1314, 1326-31 (Ct. Int’l. Trade 2015); see also Torrington Co. v. United States, 790 F. Supp. at 1168. 88 Petitioner’s Postconference Brief at 4-5; Petition at 26-27. 89 CR/PR at 3.27. 90 CR/PR at 3.5. The eight producers are ***. CR/PR at 3.27. 91 The three producers are ***. CR at Tables 3.25-27. The Commission has previously concluded that a purchaser may be treated as a related party if it controls large volumes of subject imports. The Commission has found such control to exist, for example, when the domestic producer was responsible for a predominant proportion of an importer’s purchases and these purchases were substantial. See Iron Construction Castings from Brazil, Canada, and China, Inv. Nos. 701-TA-249, 731-TA-262-263 and 265 (Fourth Review), USITC Pub. 4655 (Dec. 2016) at 11. 92 CSPV III, USITC Pub. 5631 at 33 (quoting CSPV II, USITC Pub. 4519 at 17). 93 CSPV III, USITC Pub. 5631 at 33 (citing CSPV II, USITC Pub. 4519 at 17). 21 investigations. In particular, they all relied on imports of CSPV cells due to the low level or nonexistence of domestic cell production during the POI.94 As much of the industry relied on imports of cells from subject countries, any benefit these producers’ domestic operations received from such imports was not unique, and thereby inclusion of any one domestic producer would not have the effect of skewing domestic industry data. In the absence of any contrary arguments and new information about the domestic producers’ reasons for importing or purchasing subject imports during the POI since CSPV III, we find that appropriate circumstances do not exist to exclude ***.95 We consider *** separately given that it ceased domestic production in favor of importing during the POI. ***. *** is subject to possible exclusion because it imported subject merchandise *** throughout the POI.96 It ***. *** domestic production was *** kW in 2022, *** in 2023, 2024, or the interim periods, and ***. Its subject imports from *** were *** kW in 2022, *** kW in 2023, and *** kW in 2024, *** kW in interim 2024, and *** kW in interim 2025.97 The ratio of its subject imports to U.S. production was accordingly extremely high in 2022 ***.98 *** financial data ***.99 *** did not provide a reason for ceasing domestic production after 2022, although its complete shift to importation in the subsequent years suggests that it was more profitable for *** to use imports than to produce the domestic like product. In any event, *** relatively small share of domestic production in 2022 indicates that its inclusion in the domestic industry would not skew domestic industry data.100 In light of these considerations, and the fact that no party supports its exclusion from the domestic industry, we find that appropriate circumstances do not exist to exclude *** from the domestic industry. Accordingly, consistent with our definition of the domestic like product, we define the domestic industry to include all domestic producers of CSPV cells and modules. 94 See CR/PR at 3.27. 95 We note that *** also imported modules from *** in interim 2025. The ratio of its subject imports of modules to its domestic production was *** percent in interim 2025. CR/PR at Table 3.16. ***. Given that *** is currently the *** U.S. producer and has made substantial investments in future domestic production of CSPV products, its primary interest appears to be in domestic production. Furthermore, its ratio of subject imports to domestic production was low. In addition, *** had *** in 2024 and in interim 2025. Thus, it does not appear that *** subject imports of modules benefited its domestic production operations in such a way that would skew the domestic industry data or mask injury to the domestic industry if *** were included in the domestic industry. 96 CR/PR at Table 3.19. 97 CR/PR at Table 3.19. 98 CR/PR at Table 3.19. 99 CR/PR at 6.4. 100 *** also purchased subject merchandise in interim 2025 from ***, a U.S. importer of subject merchandise from ***CR/PR at Table 3.25. The record shows that ***’s purchased *** kW of *** U.S. imports in interim 2025. *** imported *** kW in interim 2025, which accounted for *** percent of total subject imports from Indonesia in interim 2025. CR/PR at Table 3.25. We note that *** status as a related party will be moot if the period of any final phase investigations no longer includes calendar year 2022. 22 Negligible Imports Pursuant to Section 771(24) of the Tariff Act, imports from a subject country of merchandise corresponding to a domestic like product that account for less than 3 percent of all such merchandise imported into the United States during the most recent 12 months for which data are available preceding the filing of the petition shall be deemed negligible.101 The statute further provides that subject imports from a single country which comprise less than 3 percent of total such imports of the product may not be considered negligible if there are several countries subject to investigation with negligible imports and the sum of such imports from all those countries collectively accounts for more than 7 percent of the volume of all such merchandise imported into the United States.102 In the case of countervailing duty investigations involving developing countries (as designated by the United States Trade Representative), the statute indicates that the negligibility limits are 4 percent and 9 percent, rather than 3 percent and 7 percent.103 A. Arguments of the Parties As a preliminary matter, Petitioner argues that official import statistics are the most accurate data available to calculate negligibility because there are omissions in the questionnaire response data.104 Nevertheless, Petitioner argues that both official import statistics and questionnaire response data show that subject imports from India, Indonesia, and Laos are not negligible for purposes of present material injury.105 No respondent interested party addressed negligibility in its postconference submissions. B. Analysis Imports from each of the three subject countries are above the statutory negligibility thresholds. Based on questionnaire response data, as supplemented by Commission staff with proprietary Census-edited Customs records for firms that did not respond to Commission questionnaires, during the 12-month period preceding the filing of the petitions (July 2024-June 2025), subject imports from India accounted for *** percent of total imports, subject imports from Indonesia accounted for *** percent of total imports, and subject imports from Laos 101 19 U.S.C. §§ 1671b(a), 1673b(a), 1677(24)(A)(i), 1677(24)(B); see also 15 C.F.R. § 2013.1 (developing countries for purposes of 19 U.S.C. § 1677(36)). 102 19 U.S.C. § 1677(24)(A)(ii). 103 19 U.S.C. § 1677(24)(B). Laos, a source of imports subject to the countervailing duty investigations, is on USTR’s list of least-developed countries and therefore is subject to the 4 percent negligibility limit. See Designations of Developing Countries and Least-Developed Countries Under the Countervailing Duty Law, 85 Fed. Reg. 7613 (Feb. 10, 2020). 104 Petitioner’s Postconference Brief at 5. 105 Petition at 33; Petitioner’s Postconference Brief at 5-6. 23 accounted for *** percent of total imports.106 Consequently, we find that imports of CSPV products from India, Indonesia, and Laos subject to the antidumping and countervailing duty investigations are not negligible. Cumulation For purposes of evaluating the volume and effects for a determination of reasonable indication of material injury by reason of subject imports, section 771(7)(G)(i) of the Tariff Act requires the Commission to cumulate subject imports from all countries as to which petitions were filed and/or investigations self-initiated by Commerce on the same day, if such imports compete with each other and with the domestic like product in the U.S. market. In assessing whether subject imports compete with each other and with the domestic like product, the Commission generally has considered four factors: (1) the degree of fungibility between subject imports from different countries and between subject imports and the domestic like product, including consideration of specific customer requirements and other quality related questions; (2) the presence of sales or offers to sell in the same geographic markets of subject imports from different countries and the domestic like product; (3) the existence of common or similar channels of distribution for subject imports from different countries and the domestic like product; and (4) whether the subject imports are simultaneously present in the market.107 While no single factor is necessarily determinative, and the list of factors is not exhaustive, these factors are intended to provide the Commission with a framework for determining whether the subject imports compete with each other and with the domestic like product.108 Only a “reasonable overlap” of competition is required.109 106 CR/PR at Table 4.6. The volume of imports from each of these countries subject to the antidumping and countervailing duty investigations is the same. Id. 107 See Certain Cast-Iron Pipe Fittings from Brazil, the Republic of Korea, and Taiwan, Inv. Nos. 731-TA-278-80 (Final), USITC Pub. 1845 (May 1986), aff’d, Fundicao Tupy, S.A. v. United States, 678 F. Supp. 898 (Ct. Int’l Trade), aff’d, 859 F.2d 915 (Fed. Cir. 1988). 108 See, e.g., Wieland Werke, AG v. United States, 718 F. Supp. 50 (Ct. Int’l Trade 1989). 109 The Statement of Administrative Action (SAA) to the Uruguay Round Agreements Act (URAA), expressly states that “the new section will not affect current Commission practice under which the statutory requirement is satisfied if there is a reasonable overlap of competition.” H.R. Rep. No. 103- 316, Vol. I at 848 (1994) (citing Fundicao Tupy, 678 F. Supp. at 902); see Goss Graphic Sys., Inc. v. United States, 33 F. Supp. 2d 1082, 1087 (Ct. Int’l Trade 1998) (“cumulation does not require two products to be highly fungible”); Wieland Werke, AG, 718 F. Supp. at 52 (“Completely overlapping markets are not required.”). 24 Petitioner argues that cumulation is mandatory in these investigations. Petitioner asserts that the petitions for all three countries were filed on the same day, that none of the statutory exceptions to cumulation apply, and that there is a reasonable overlap in competition between and among subject imports India, Indonesia, and Laos and the domestic like product.110 The Indian Respondents argue that subject imports from India should not be cumulated because they compete under different conditions than subject imports from Laos and Indonesia. Specifically, they argue that (1) Indian solar producers are not affiliated with Chinese solar companies, (2) imports of subject merchandise from India were stable, unlike imports from Laos and Indonesia, (3) subject imports from India had different pricing trends than subject imports from Laos and Indonesia, and (4) India has a large and growing home market for CSPV cells and modules, which make Indian producers less export-oriented than producers in Indonesia or Laos.111 As an initial matter, Petitioner filed the antidumping and/or countervailing duty petitions with respect to the three subject countries on the same day, July 17, 2025. As discussed below, we find that there is a reasonable overlap of competition between subject imports from India, Indonesia, and Laos, and between subject imports from each source and the domestic like product. Fungibility. The record indicates that domestically produced CSPV products and imports from each subject country are generally fungible. Most responding U.S. producers reported that subject imports from each subject country were “always” or “frequently” interchangeable with each other as well as with the domestic like product.112 Most responding importers reported that subject imports from each subject country were either “always” or “frequently” interchangeable with each other as well as with the domestic like product.113 Their sales of bifacial modules using bifacial cells represent an area of significant overlap among the sources, as they represented the almost all shipments of U.S. shipments of the domestic like product and of subject imports from Indonesia and Laos in 2024, and a substantial share of subject impots from Indonesia.114 Additionally, the pricing data for product 4 show that, in the three consecutive quarters from the third quarter of 2024 to the first quarter of 110 Petitioner’s Postconference Brief, Responses to Staff Questions at 7-10. 111 See Indian Respondents’ Postconference Brief at 3-15. 112 See CR/PR at Table 2.10. At least six of 11 producers reported that imports from each subject country were “always” interchangeable with each other as well as with the domestic like product. Id. 113 CR/PR at Table 2.11. 114 CR/PR at Table 4.7. In 2024, *** percent of U.S. producers’ U.S. shipments consisted of bifacial modules using bifacial cells, *** percent of U.S. importers’ U.S. shipments of subject imports from India consisted of bifacial modules using bifacial cells, *** percent of U.S. importers’ U.S. shipments of subject imports from Indonesia consisted of bifacial modules using bifacial cells, and *** percent of U.S. importers’ U.S. shipments of subject imports from Laos consisted of bifacial modules using bifacial cells. CR/PR at Table 4.7. 25 2025, sales of the domestic like product were reported along with comparable sales by responding U.S. importers of subject merchandise from all subject countries.115 In response to questions concerning how often differences other than price were significant in sales of CSPV products from different sources, a plurality of U.S. producers and U.S. importers reported that differences other than price between the domestic like product and subject imports from each country, and among subject imports from each country, were “sometimes” or “never” significant.116 Thus, on balance, the record indicates that there was a sufficient degree of fungibility between subject imports and the domestic like product for purposes of cumulation. Channels of Distribution. The record shows that domestic producers mainly sold to distributors and residential installers from during 2022 and 2023, and then shifted to utilities/developers and commercial installers in 2024.117 Domestic producers reported no shipments to module assemblers during 2022 and 2023, and a small amount in 2024. Almost all U.S. shipments of CSPV products from India went to residential installers and utilities/developers in 2022, and shifted almost *** to utilities/developers in 2023 and 2024.118 Most U.S. shipments of CSPV products from Indonesia went to distributors and module installers throughout the POI, and most U.S. shipments from Laos went to utilities/developers in 2024, and shifted more to module assemblers in interim 2025.119 Domestic producers and importers of subject merchandise from countries eligible for cumulation substantially overlapped in their sales to utilities customers in the U.S. market in interim 2025.120 In 2024, the channels of distribution for U.S. producers’ U.S. shipments and U.S. shipments of subject imports from India and Laos demonstrated an overlap of competition, especially in the utilities/developers channel. Further, throughout the POI, U.S. producers’ U.S. shipments and U.S. shipments of subject imports from Indonesia exhibited significant competitive overlap in the distributors channel.121 115 CR/PR at Table 5.8. To the extent there were a limited number of quarterly comparisons between subject imports in the pricing product data, we note that subject imports from Laos did not enter the U.S. market until December 2023. 116 CR/PR at Table 2.12, Table 2.13. 117 CR/PR at Table 2.4. The share of domestic producers’ shipments that went to utilities/developers was *** percent in 2022, *** percent in 2023, and *** percent in 2024; it was *** percent in interim 2025 compared to *** percent in interim 2024. The share of domestic producers’ U.S. shipments that went to distributors was *** percent in 2022, *** percent in 2023, and *** percent in 2024; it was *** percent in interim 2025 compared to *** percent in interim 2024. The share of domestic producers’ U.S. shipments that went to commercial installers was *** percent in 2022, *** percent in 2023, and *** percent in 2024; it was *** percent in interim 2025 compared to *** percent in interim 2024. 118 CR/PR at 2.3. 119 CR/PR at 2.4. 120 See CR/PR at Table 2.4. 121 CR/PR at Table 2.4. The share of domestic producers’ U.S. shipments to utilities/developers was *** percent in 2022, *** percent in 2023, and *** percent in 2024; it was *** percent in interim 2024 and *** percent in interim 2025. Importers sold *** percent of their U.S. shipments of CSPV (Continued…) 26 Geographic Overlap. In 2024, U.S. producers and importers of subject merchandise each reported selling CSPV products to all areas of the contiguous United States, as well as to other U.S. markets, including Alaska, Hawaii, Puerto Rico, and the U.S. Virgin Islands.122 Official import statistics indicate that imports from subject countries entered the United States through ports located at all four borders of the United States in 2024.123 Simultaneous Presence in Market. The domestic like product was present in the U.S. market in every month of the POI. Beginning in December 2023, imports from Laos were present in every month for the remainder of the POI, except May 2024.124 Conclusion. The record in the preliminary phase of these investigations indicates that subject imports from India, Indonesia, and Laos are generally fungible with the domestic like product and each other, and overlapped in channels of distribution, with particularly significant overlap in the utilities/developers distribution channel in interim 2025. The record further indicates that imports from each of the subject countries and the domestic like product were generally sold in overlapping geographic markets in 2024, and were simultaneously present in the U.S. market for essentially all of the period from December 2023 through June 2025. In light of these considerations, we recommend that the Commission find that there is a reasonable overlap of competition between the like product and imports from each subject country and between imports from each subject country eligible for cumulation.125 products from India to utilities in 2022, *** percent in 2023, and *** percent in 2024; their share of shipments to utilities was *** percent in interim 2024 and *** percent in interim 2025. Importers sold *** percent of their U.S. shipments of CSPV products from Indonesia to utilities in 2022, *** percent in 2023, and *** percent in 2024; their share of shipments to utilities was *** percent in interim 2024 and *** percent in interim 2025. Importers sold *** percent of their U.S. shipments of CSPV products from Laos to utilities in 2022, *** percent in 2023, and *** percent in 2024; their share of shipments to utilities was *** percent in interim 2024 and *** percent in interim 2025. Importers sold *** percent of their U.S. shipments of CSPV products from nonsubject sources to utilities in 2022, *** percent in 2023, and *** percent in 2024; their share of shipments to utilities was *** percent in interim 2024 and *** percent in interim 2025. 122 CR/PR at Table 2.5. 123 CR/PR at 4.8. The largest share of CSPV cells and modules from India (69.8 percent) entered the United States through ports in the South. The largest share of CSPV cells and modules from Indonesia (43.4 percent) entered the United States through ports in the West. The largest share of CSPV cells and modules from Laos (39.9 percent) entered the United States through ports in the North. See id. 124 CR/PR at Table 4.9. 125 Although Indian Respondents oppose cumulation of imports from India, they do not argue that subject imports from India are not fungible with the domestic like product, nor do they contest that subject imports from India overlapped with the domestic like product and imports from other subject sources in the utilities channel of distribution, that they were simultaneously present in the U.S. market, and that they overlapped geographically in sales in the U.S. market. See generally Indian Respondents’ Postconference Brief at 3-15. We intend to further investigate this issue in any final phase investigations. 27 Reasonable Indication of Material Injury by Reason of Subject Imports A. Legal Standard In the preliminary phase of antidumping and countervailing duty investigations, the Commission determines whether there is a reasonable indication that an industry in the United States is materially injured or threatened with material injury by reason of the imports under investigation.126 In making this determination, the Commission must consider the volume of subject imports, their effect on prices for the domestic like product, and their impact on domestic producers of the domestic like product, but only in the context of U.S. production operations.127 The statute defines “material injury” as “harm which is not inconsequential, immaterial, or unimportant.”128 In assessing whether there is a reasonable indication that the domestic industry is materially injured by reason of subject imports, we consider all relevant economic factors that bear on the state of the industry in the United States.129 No single factor is dispositive, and all relevant factors are considered “within the context of the business cycle and conditions of competition that are distinctive to the affected industry.”130 Although the statute requires the Commission to determine whether there is a reasonable indication that the domestic industry is “materially injured or threatened with material injury by reason of” unfairly traded imports,131 it does not define the phrase “by reason of,” indicating that this aspect of the injury analysis is left to the Commission’s reasonable exercise of its discretion.132 In identifying a causal link, if any, between subject imports and material injury to the domestic industry, the Commission examines the facts of record that relate to the significance of the volume and price effects of the subject imports and any impact of those imports on the condition of the domestic industry. This evaluation under the “by reason of” standard must ensure that subject imports are more than a minimal or 126 19 U.S.C. §§ 1671b(a), 1673b(a). 127 19 U.S.C. § 1677(7)(B). The Commission “may consider such other economic factors as are relevant to the determination” but shall “identify each {such} factor ... and explain in full its relevance to the determination.” 19 U.S.C. § 1677(7)(B). 128 19 U.S.C. § 1677(7)(A). 129 19 U.S.C. § 1677(7)(C)(iii). 130 19 U.S.C. § 1677(7)(C)(iii). 131 19 U.S.C. §§ 1671b(a), 1673b(a). 132 Angus Chemical Co. v. United States, 140 F.3d 1478, 1484-85 (Fed. Cir. 1998) (“{T}he statute does not ‘compel the commissioners’ to employ {a particular methodology}.”), aff’g, 944 F. Supp. 943, 951 (Ct. Int’l Trade 1996). 28 tangential cause of injury and that there is a sufficient causal, not merely a temporal, nexus between subject imports and material injury.133 In many investigations, there are other economic factors at work, some or all of which may also be having adverse effects on the domestic industry. Such economic factors might include nonsubject imports; changes in technology, demand, or consumer tastes; competition among domestic producers; or management decisions by domestic producers. The legislative history explains that the Commission must examine factors other than subject imports to ensure that it is not attributing injury from other factors to the subject imports, thereby inflating an otherwise tangential cause of injury into one that satisfies the statutory material injury threshold.134 In performing its examination, however, the Commission need not isolate the injury caused by other factors from injury caused by unfairly traded imports.135 Nor does 133 The Federal Circuit, in addressing the causation standard of the statute, observed that “{a}as long as its effects are not merely incidental, tangential, or trivial, the foreign product sold at less than fair value meets the causation requirement.” Nippon Steel Corp. v. USITC, 345 F.3d 1379, 1384 (Fed. Cir. 2003). This was further ratified in Mittal Steel Point Lisas Ltd. v. United States, 542 F.3d 867, 873 (Fed. Cir. 2008), where the Federal Circuit, quoting Gerald Metals, Inc. v. United States, 132 F.3d 716, 722 (Fed. Cir. 1997), stated that “this court requires evidence in the record ‘to show that the harm occurred “by reason of” the LTFV imports, not by reason of a minimal or tangential contribution to material harm caused by LTFV goods.’” See also Nippon Steel Corp. v. United States, 458 F.3d 1345, 1357 (Fed. Cir. 2006); Taiwan Semiconductor Industry Ass’n v. USITC, 266 F.3d 1339, 1345 (Fed. Cir. 2001). 134 SAA at 851-52 (“{T}he Commission must examine other factors to ensure that it is not attributing injury from other sources to the subject imports.”); S. Rep. 96-249 at 75 (1979) (the Commission “will consider information which indicates that harm is caused by factors other than less- than-fair-value imports.”); H.R. Rep. 96-317 at 47 (1979) (“in examining the overall injury being experienced by a domestic industry, the ITC will take into account evidence presented to it which demonstrates that the harm attributed by the petitioner to the subsidized or dumped imports is attributable to such other factors;” those factors include “the volume and prices of nonsubsidized imports or imports sold at fair value, contraction in demand or changes in patterns of consumption, trade restrictive practices of and competition between the foreign and domestic producers, developments in technology and the export performance and productivity of the domestic industry”); accord Mittal Steel, 542 F.3d at 877. 135 SAA at 851-52 (“{T}he Commission need not isolate the injury caused by other factors from injury caused by unfair imports.”); Taiwan Semiconductor Industry Ass’n, 266 F.3d at 1345 (“{T}he Commission need not isolate the injury caused by other factors from injury caused by unfair imports ... . Rather, the Commission must examine other factors to ensure that it is not attributing injury from other sources to the subject imports.” (emphasis in original)); Asociacion de Productores de Salmon y Trucha de Chile AG v. United States, 180 F. Supp. 2d 1360, 1375 (Ct. Int’l Trade 2002) (“{t}he Commission is not required to isolate the effects of subject imports from other factors contributing to injury” or make “bright-line distinctions” between the effects of subject imports and other causes.); see also Softwood Lumber from Canada, Inv. Nos. 701-TA-414 and 731-TA-928 (Remand), USITC Pub. 3658 at 100-01 (Dec. 2003) (Commission recognized that “{i}f an alleged other factor is found not to have or threaten to have injurious effects to the domestic industry, i.e., it is not an ‘other causal factor,’ then there is nothing to (Continued…) 29 the “by reason of” standard require that unfairly traded imports be the “principal” cause of injury or contemplate that injury from unfairly traded imports be weighed against other factors, such as nonsubject imports, which may be contributing to overall injury to an industry.136 It is clear that the existence of injury caused by other factors does not compel a negative determination.137 Assessment of whether material injury to the domestic industry is “by reason of” subject imports “does not require the Commission to address the causation issue in any particular way” as long as “the injury to the domestic industry can reasonably be attributed to the subject imports.”138 The Commission ensures that it has “evidence in the record” to “show that the harm occurred ‘by reason of’ the LTFV imports,” and that it is “not attributing injury from other sources to the subject imports.” 139 The Federal Circuit has examined and affirmed various Commission methodologies and has disavowed “rigid adherence to a specific formula.”140 The question of whether the material injury threshold for subject imports is satisfied notwithstanding any injury from other factors is factual, subject to review under the substantial further examine regarding attribution to injury”), citing Gerald Metals, 132 F.3d at 722 (the statute “does not suggest that an importer of LTFV goods can escape countervailing duties by finding some tangential or minor cause unrelated to the LTFV goods that contributed to the harmful effects on domestic market prices.”). 136 S. Rep. 96-249 at 74-75; H.R. Rep. 96-317 at 47. 137 See Nippon Steel Corp., 345 F.3d at 1381 (“an affirmative material-injury determination under the statute requires no more than a substantial-factor showing. That is, the ‘dumping’ need not be the sole or principal cause of injury.”). 138 Mittal Steel, 542 F.3d at 876 &78; see also id. at 873 (“While the Commission may not enter an affirmative determination unless it finds that a domestic industry is materially injured ‘by reason of’ subject imports, the Commission is not required to follow a single methodology for making that determination ... {and has} broad discretion with respect to its choice of methodology.”) citing United States Steel Group v. United States, 96 F.3d 1352, 1362 (Fed. Cir. 1996) and S. Rep. 96-249 at 75. In its decision in Swiff-Train v. United States, 793 F.3d 1355 (Fed. Cir. 2015), the Federal Circuit affirmed the Commission’s causation analysis as comporting with the Court’s guidance in Mittal. 139 Mittal Steel, 542 F.3d at 873 (quoting from Gerald Metals, 132 F.3d at 722), 877-79. We note that one relevant “other factor” may involve the presence of significant volumes of price-competitive nonsubject imports in the U.S. market, particularly when a commodity product is at issue. In appropriate cases, the Commission collects information regarding nonsubject imports and producers in nonsubject countries in order to conduct its analysis. 140 Nucor Corp. v. United States, 414 F.3d 1331, 1336, 1341 (Fed. Cir. 2005); see also Mittal Steel, 542 F.3d at 879 (“Bratsk did not read into the antidumping statute a Procrustean formula for determining whether a domestic injury was ‘by reason’ of subject imports.”). 30 evidence standard.141 Congress has delegated this factual finding to the Commission because of the agency’s institutional expertise in resolving injury issues.142 B. Conditions of Competition and the Business Cycle The following conditions of competition inform our analysis of whether there is a reasonable indication of material injury by reason of subject imports. 1. Demand Conditions U.S. demand for CSPV products derives from demand for solar-generated electricity, which is influenced by factors such as cost competitiveness with traditional nonrenewable energy sources, environmental concerns, a desire for national energy independence, total energy consumption, and the availability of federal, state, and local incentives to produce or install CSPV products.143 While most electricity demand in the United States is supplied by conventional sources, the share of electricity generated from renewable sources has been steadily increasing.144 Solar generated-electricity’s share of U.S. net electricity generation increased from 3.4 percent in 2022 to 4.0 percent in 2023 and 5.1 percent in 2024.145 There are three on-grid market segments that drive demand for CSPV products: residential, commercial, and utilities.146 Over the POI, the U.S. producers and importers of subject merchandise shipped a significant share of their U.S. shipments to utilities.147 Most domestic producers and U.S. importers reported that demand for CSPV products increased during the POI.148 Most domestic producers (11 of 13) and a majority of importers (22 of 43) indicated that the U.S. CSPV market is subject to business cycles, with installations tending to increase in the warmer spring and summer months and decline in the winter months.149 The availability of government incentives was also a significant demand condition during the POI. The Inflation Reduction Act (“IRA”), enacted on August 16, 2022, updated and 141 We provide in our discussion below a full analysis of other factors alleged to have caused any material injury experienced by the domestic industry. 142 Mittal Steel, 542 F.3d at 873; Nippon Steel Corp., 458 F.3d at 1350, citing U.S. Steel Group, 96 F.3d at 1357; S. Rep. 96-249 at 75 (“The determination of the ITC with respect to causation is ... complex and difficult, and is a matter for the judgment of the ITC.”). 143 CR/PR at 2.1. 144 CR/PR at 2.9. 145 CR/PR at Table 2.7. 146 CR/PR at 2.1. 147 U.S. shipments to utilities accounted for *** percent of domestic producers’ U.S. shipments in 2022, *** percent in 2022, and *** percent in 2024; the share of U.S. producers shipments to utilities was *** percent in interim 2025 compared to *** percent in interim 2024. CR/PR at Table 2.4. U.S. shipments to utilities accounted *** percent of importers’ U.S. shipments in 2022, *** percent in 2023, and *** percent in 2024; the share of importers’ shipments to utilities was *** percent in interim 2025 compared to *** percent in interim 2024. CR/PR at Table 2.4. 148 CR/PR at Table 2.8. 149 CR/PR at 2.11. 31 extended the Investment Tax Credit (“ITC”) and the Manufacturing Production Tax Credit (“MPTC”), two of the major policies that promote solar energy.150 The IRA also provided a bonus to existing incentives for the deployment of solar power projects that utilize domestic content.151 However, the passage of Public Law No. 119-21 in July 2025 placed restrictions on the energy tax credits enacted under the IRA.152 Apparent U.S. consumption of CSPV cells and modules increased from *** GW in 2022 to *** GW in 2023, and to *** GW in 2024, for an overall increase of *** percent.153 Apparent U.S. consumption of CSPV cells and modules was *** percent lower in interim 2025, at *** GW than in interim 2024 at *** GW.154 2. Supply Conditions The domestic industry was the second smallest source of supply, by value, of CSPV cells and modules to the U.S. market in 2022, and the smallest source in 2023 and 2024. However, its share of apparent U.S. consumption increased overall by *** percentage points.155 Its market share fell from *** percent in 2022 to *** percent in 2023 and increased to *** percent in 2024; it was higher in interim 2025, at *** percent, compared to interim 2024, at *** percent.156 The domestic industry’s share of apparent U.S. consumption of CSPV modules by quantity increased irregularly, decreasing from *** percent in 2022 to *** in 2023 and then increasing to *** percent in 2024, for an overall increase of *** percentage points.157 There were several changes to the domestic industry during the period of investigation. In 2022, domestic producer LG Electronics closed its 550 MW CSPV module facility in Alabama and ***.158 Domestic producers Canadian Solar, Elin Energy, Illuminate, Imperial Star Solar, Meyer Burger, Runergy, SEG Solar, and Waaree Energies opened domestic module facilities and 150 CR/PR at 2.10. 151 The IRA updated and extended the ITC and the PTC. In addition, the IRA established the Clean Electricity Investment Tax Credit and the Clean Energy Production Tax Credit CEPTC, and added “bonus credits” in all for programs for electricity generation projects that meet domestic content requirements. CR/PR at 2.10. However, Public Law 119-21 shortened the deadlines for projects to qualify for tax credits and restricted the qualifications for some types of foreign ownership, but continued the IRA’s bonus credits. CR/PR at 2.10; see also CR/PR at 3.5-3.6. 152 CR/PR at 3.6. 153 CR/PR at Table 4.11; Table C.1. 154 CR/PR at Table 4.11; Table C.1. Because there was no domestic cell production until late 2024, the data for U.S. producers’ share of apparent U.S. consumption of CSPV cells and modules by value are based on U.S. producers’ value added to imports of cells in U.S. production of modules. CR/PR at Table 4.11. Apparent U.S. consumption for only CSPV modules showed a similar trend during the POI. Apparent U.S. consumption of CSPV modules increased from *** GW in 2022 to *** GW in 2023 and *** GW in 2024, for an overall increase of *** percent. Calculated from Staff Worksheet, EDIS Doc. 860689. It was *** percent lower in interim 2025 at *** GW, than in interim 2024 at *** GW. Id. 155 CR/PR at Table C.1. 156 CR/PR at Table C.1. 157 See Staff Worksheet, EDIS Doc. 860689. 158 CR/PR at Tables 3.3 and 3.4. 32 began commercial operations.159 Domestic producers Hanwha and Heliene expanded their domestic facilities and added module production capacity.160 In late 2024, Suniva started domestic production of CSPV cells at its facility in Georgia,161 and ES Foundry began cell production in early 2025 at its facility in South Carolina.162 In May 2025, Meyer Burger announced that it ceased U.S. operations at its Arizona module assembly plant, which had opened in June 2024.163 Overall, the domestic industry’s practical capacity for modules increased *** percent over the POI, from *** GW in 2022 to *** GW in 2023 and *** GW in 2024; it was *** percent higher in interim 2025 at *** GW than in interim 2024 at *** GW.164 Cumulated subject imports from India, Indonesia, and Laos were the smallest source of supply to the U.S. market for cells and modules by value in 2022, but were the second largest source of supply in 2023 and 2024. Cumulated subject imports’ share of apparent U.S. consumption of cells and modules by value increased from *** percent in 2022 to *** percent in 2023 and *** percent in 2024, for an overall increase of *** percentage points; it was *** percentage points higher in interim 2025 at *** percent than in interim 2024 at *** percent.165 Cumulated subject imports’ share of apparent U.S. consumption of cells and modules by quantity increased from *** percent in 2022 to *** percent in 2023 and *** percent in 2024, for an overall increase of *** percentage points; it was *** percentage points higher in interim 2025 at *** percent than in interim 2024 at *** percent. Cumulated subject imports’ share of apparent U.S. consumption of CSPV modules by quantity increased from 2022 to 2024, from *** percent in 2022 to *** in 2023 and to *** percent in 2024, for an overall increase of *** percentage points; it was *** percentage points higher in interim 2025 at *** percent than in interim 2024 at *** percent. 166 Nonsubject imports were the largest source of supply to the U.S. market for cells and modules by value throughout the POI but their market share decreased each year from 2022 to 2024.167 Nonsubject imports’ share of apparent U.S. consumption of cells and modules by value decreased from *** percent in 2022 to *** percent in 2023 and *** percent in 2024, for an overall decrease of *** percentage points; it was *** percentage points lower in interim 2025 at *** percent than in interim 2024 at *** percent.168 The primary sources of nonsubject imports were Vietnam, Thailand, and Malaysia.169 159 CR/PR at Table 3.3. In addition, information from questionnaire responses indicates that ***. CR/PR at Table 3.4. 160 CR/PR at Table 3.3. Information from questionnaire responses indicates that ***. CR/PR at Table 3.4. 161 CR/PR at Table 3.3. 162 CR/PR at Table 3.3. 163 CR/PR at Table 3.3. 164 CR/PR at Table C.1. The domestic industry’s practical capacity for cell production was *** MW in 2024 and *** GW in interim 2025. Id. 165 CR/PR at Table C.1. 166 See Staff Worksheet, EDIS Doc. 860689. 167 CR/PR at Table C.1. 168 CR/PR at Table C.1. 169 CR/PR at 4.4. 33 Nonsubject imports were also the largest source of supply to the U.S. market for modules by quantity throughout the POI but their market share decreased each year from 2022 to 2024. Their share of apparent U.S. consumption of modules by quantity decreased from *** percent in 2022 to *** percent in 2023 and to *** percent in 2024, for an overall decrease of *** percentage points; it was *** percentage points lower in interim 2025 at *** percent compared to interim 2024 at *** percent.170 Nonsubject imports in these investigations include imports of CSPV from Cambodia, Malaysia, Thailand, and Vietnam that were subject to the Commission’s CSPV III investigations. The petitions for those investigations were filed in April 2024, and provisional antidumping and countervailing orders for imports of CSPV from those countries were imposed in October and December 2024, and the final orders were imposed in June 2025.171 Furthermore, on August 23, 2023, Commerce made a final determination that certain imports of CSPV products exported from Cambodia, Malaysia, Thailand, and Vietnam using parts and components produced in China were circumventing the CSPV I orders on China.172 On June 6, 2022, before Commerce made a preliminary determination in the anticircumvention proceeding, the President issued a proclamation declaring an emergency and authorizing the Secretary of Commerce to take action to permit, for a 24-month period, imports of CSPV products from Cambodia, Malaysia, Thailand, and Vietnam to be free of any antidumping or countervailing duties resulting from the anticircumvention proceeding (the “tariff holiday”).173 Circumventing imports, which would have been assessed the duties under the CSPV I orders on CSPV products from China since the time those orders were issued but for the tariff holiday, became subject to the applicable duties under those orders upon expiration of the two-year tariff holiday on June 6, 2024.174 170 See Staff Worksheet, EDIS Doc. 860689. 171 Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from the Socialist Republic of Vietnam: Amended Final Antidumping Duty Determination; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Antidumping duty Orders, 90 Fed. Reg. 26786 (June 24, 2025); Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from the Socialist Republic of Vietnam: Amended Final Antidumping Duty Determination; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Antidumping Duty Orders; Correction, 90 Fed. Reg. 29843 (July 7, 2025); and Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from Malaysia and Thailand: Amended Final Countervailing Duty Determinations; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Countervailing Duty Orders, 90 Fed. Reg. 26791 (June 24, 2025). 172 Antidumping and Countervailing Duty Orders on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, From the People’s Republic of China: Final Scope Determination and Final Affirmative Determinations of Circumvention with Respect to Cambodia, Malaysia, Thailand, and Vietnam, 88 Fed. Reg. 57419 (Aug. 23, 2023). 173 Presidential Proclamation 10414 of June 6, 2022, Declaration of Emergency and Authorization for Temporary Extensions of Time and Duty-Free Importation of Solar Cells and Modules from Southeast Asia, 87 Fed. Reg. 35087 (June 9, 2022). 174 See CR/PR at 1.14-1.15. 34 A small minority of domestic producers (four of 14) reported supply constraints over the POI.175 One producer reported supply constraints in 2022 related to undersupply of polysilicon.176 In 2024, one producer reported that it *** of CSPV cells and one reported delaying new solar shingle certification due to pending tariffs.177 U.S. producer *** reported labor shortages and raw material supply constraints.178 A minority of importers (eight of 42) reported supply constraints during the POI.179 U.S. importer *** reported experiencing supply chain disruptions due to the COVID-19 pandemic in 2022 and 2023, and extended Customs holds for some shipments in 2024.180 Importer *** reported shipping delays due to global conflicts and lack of available containers caused by a shipping rush to beat reciprocal tariffs.181 3. Substitutability and Other Conditions We find that there is a moderate-to-high degree of substitutability between the domestic like product and cumulated subject imports from India, Indonesia, and Laos.182 The majority of domestic producers and U.S. importers reported that the domestic like product and imports of CSPV products from each subject country are always or frequently interchangeable.183 Factors that may limit the substitutability of domestically produced CSPV cells and modules and subject imports include differences in lead times, as well as significant non-price factors that some firms consider.184 Given that domestic cell production began only in late 2024, and thus the availability of domestic cells was very limited, we find that substitutability is closer to moderate for cells and closer to high for modules.185 The record in the preliminary phase of these investigations also indicates that price is an important factor in purchasing decisions. Most U.S. producers reported that differences other than price were sometimes or never significant, while U.S. importers’ responses were mixed, as most importers reported that differences other than price were sometimes or always significant.186 Domestic producers reported that 59.4 percent of their commercial shipments were from inventories with lead times averaging 33 days. The remaining 40.6 percent of their commercial shipments were produced to order, with lead times averaging 78 days.187 U.S. 175 CR/PR at 2.9. 176 CR/PR at 2.9. 177 CR/PR at 2.9. 178 CR/PR at 2.9. 179 CR/PR at 2.9. 180 CR/PR at 2.9. 181 CR/PR at 2.9. 182 CR/PR at 2.12. 183 CR/PR at 2.12. 184 CR/PR at 2.12. Responding purchasers reported quality and availability as significant non- price factors that they consider in purchasing decisions. CR/PR at 2.12. 185 See CR/PR at 2.12. 186 CR/PR at 2.14. 187 CR/PR at 2.18. 35 importers reported that 99.7 percent of their commercial shipments were produced to order, with lead times averaging 149 days. U.S. importers sold 0.3 percent of their commercial shipments from US inventories, with average lead times of 23 days.188 In 2024, most U.S. producers reported selling their CSPV products under short term contracts (*** percent), with lesser quantities sold under annual contracts (*** percent) and long-term contracts (*** percent).189 In 2024, responding U.S. importers of subject merchandise reported selling their commercial shipments primarily through short term contracts (*** percent).190 The majority of U.S. producers and U.S. importers reported that they set their prices using transaction-by-transaction negotiations.191 The main raw material for CSPV cells is polysilicon, which is used to make the ingots and wafers that are processed into cells.192 CSPV cells are then assembled, along with other components, including solar glass, aluminum frames, junction boxes, and backsheets, into CSPV modules.193 The record indicates that the global average price for monocrystalline wafers fluctuated downwards from 2022 to 2024, decreasing overall by *** to *** percent depending on the wafer type, with larger wafers tending to be more expensive than smaller wafers.194 Similarly, the global average price for monocrystalline cells decreased from 2022 to 2024.195 Raw materials as a share of the domestic industry’s total COGS increased from *** percent in 2022 to *** percent in 2023 and to *** percent in 2024; it was *** percent in interim 2025 compared to *** percent in interim 2024.196 The average unit raw material costs for CSPV products declined *** percent from 2022 to 2024, from $*** per kW in 2022 to $*** per kW in 2023 and to $*** per kW in 2024; it was *** percent lower in interim 2025 at $*** per kW compared to $*** per kW in interim 2024.197 The United States imposed a global safeguard measure on imports of CSPV products under section 201 of the Trade Act of 1974 for a period of four years beginning on February 7, 2018, in the form of (1) a tariff-rate quota on imports of CSPV cells not partially or fully assembled into other products, and (2) an increase in duties on imports of CSPV modules.198 The safeguard measure was extended and remains in effect through February 6, 2026.199 Imports of CSPV products from India and Laos have been subject to the safeguard measure 188 CR/PR at 2.13. 189 CR/PR at Table 5.4. The duration of short-term contracts reported by U.S. producers ranged from 10 to 270 days. CR/PR at 5.5. 190 CR/PR at Table 5.4. The duration of short-term contracts reported by U.S. importers ranged from 30 days to almost a year. CR/PR at 5.5. 191 CR/PR at 5.5. 192 CR/PR at 1.27, 5.1. 193 CR/PR at 5.1. 194 CR/PR at 5.1. 195 CR/PR at Table 5.2. 196 See CR/PR at Table 6.1. 197 CR/PR at Tables 6.1, 6.2. 198 In June 2019, USTR granted an exclusion for bifacial CSPV modules from the safeguard measures. See Presidential Proclamation 10339 of February 4, 2022, 87 Fed. Reg. 7357 (Feb. 9, 2022). 199 CR/PR at 1.14. 36 since its inception, while imports from Indonesia have not been subject to the safeguard measure, under the exception for certain developing counties.200 While imports of bifacial panels were excluded from the safeguard measure when it was extended in February 2022, Presidential Proclamation 10779 of June 21, 2024, revoked that exclusion, and provided that imports of bifacial panels would be subject to the safeguard measure.201 Effective April 5, 2025, CSPV cells and modules originating in India, Indonesia, and Laos became subject to an additional 10 percent ad valorem duties under the International Emergency Economic Powers Act (IEEPA). Effective April 9, 2025, India was assigned an individualized additional duty rate of 26 percent, Indonesia was assigned an individualized additional rate of 32 percent, and Laos was assigned an individualized additional rate of 48 percent. Effective April 10, 2025, the individualized country duties were suspended and the additional duty rate for CSPV cells and modules originating India, Indonesia, and Laos returned to the rate of 10 percent.202 Effective August 7, 2025, India was assigned an individualized additional duty rate of 25 percent, Indonesia was assigned an individualized additional rate of 19 percent, and Laos was assigned an individualized additional rate of 40 percent.203 Effective August 6, 2025, India was assigned an additional 25 percent ad valorem duty under IEEPA that was scheduled to go into effect on August 27, 2025.204 C. Volume of Subject Imports Section 771(7)(C)(i) of the Tariff Act provides that the “Commission shall consider whether the volume of imports of the merchandise, or any increase in that volume, either in absolute terms or relative to production or consumption in the United States, is significant.”205 The volume of cumulated subject imports of CSPV cells and modules from India, Indonesia, and Laos, by quantity, increased *** percent from 2022 to 2024, increasing from *** GW in 2022, to *** GW in 2023, and *** GW in 2024; they were *** GW in interim 2025 compared to *** GW in interim 2024.206 Cumulated subject imports, by value, increased *** percent from 2022 to 2024, going from $*** in 2022, to $*** in 2023, to $*** in 2024; they were $*** in interim 2025 compared to $*** in interim 2024.207 As a share of apparent U.S. consumption by quantity, cumulated subject imports of CSPV cells and modules increased by *** percentage points from 2022 to 2024, increasing from *** percent in 2022 to *** percent in 2023 and to *** in 2024; subject imports’ share was *** percentage points higher in interim 2025 at *** percent than in interim 2024 at *** percent.208 200 See CR/PR at 1.15. 201 CR/PR at 1.16. 202 CR/PR at 1.16. 203 CR/PR at Tables 1.16, 1.17. 204 CR/PR at 1.17. 205 19 U.S.C. § 1677(7)(C)(i). 206 CR/PR at Table C.1. 207 CR/PR at Table C.1. 208 CR/PR at Table C.1. 37 Based on the foregoing, we find that the volume of subject imports from India, Indonesia, and Laos is significant in absolute terms and relative to apparent U.S. consumption, and that the increase in the volume of cumulated subject imports is significant in absolute terms and relevant to apparent U.S. consumption. D. Price Effects of the Subject Imports Section 771(7)(C)(ii) of the Tariff Act provides that, in evaluating the price effects of subject imports, the Commission shall consider whether – (I) there has been significant price underselling by the imported merchandise as compared with the price of domestic like products of the United States, and (II) the effect of imports of such merchandise otherwise depresses prices to a significant degree or prevents price increases, which otherwise would have occurred, to a significant degree.209 As discussed in section VII.B.3 above, we have found that there is a moderate-to-high degree of substitutability between the domestic like product and subject imports and that price is an important factor in purchasing decisions. We have examined pricing data in our underselling analysis. The Commission requested U.S. producers and importers to provide quarterly data for the total quantity and f.o.b. value of the four CSPV module products shipped to unrelated U.S. customers during January 2022 through March 2025.210 Seven U.S. producers and 15 importers provided usable pricing data, although not all firms reported pricing for all products for all quarters.211 Pricing data reported by these firms accounted for approximately *** percent of reported U.S. producers’ shipments of CSPV products, *** percent of reported U.S. shipments of subject imports from India, *** percent of reported U.S. shipments from Indonesia, and *** percent of reported U.S. shipments of subject imports from Laos in 2024.212 209 19 U.S.C. § 1677(7)(C)(ii). 210 CR/PR at 5.7. The four pricing products were as follows: Product 1.-- Monocrystalline silicon module with front-side area of less than 2.2 square meters and a peak power wattage between 380w and 450w, inclusive, P-max or Wp as measured under Standard Test Conditions (STC), excluding bifacial modules. Product 2.-- Monocrystalline silicon module with front-side area of greater than or equal to 2.2 square meters and a peak power wattage between 320w and 440w, inclusive, P-max or Wp as measured under STC, excluding bifacial modules. Product 3.-- Monocrystalline silicon bifacial module that generates power on both sides of the panel with a front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 320w and 450w, inclusive, P-max or Wp as measured under STC. Product 4.-- Monocrystalline silicon bifacial module that generates power on both sides of the panel with front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 485w and 585w, inclusive, P-max or Wp as measured under STC. Id. 211 CR/PR at 5.7. 212 CR/PR at 5.7. 38 The pricing data show that subject imports undersold the domestic like product in 26 of 48 quarterly comparisons, or 54.2 percent of comparisons, at margins ranging from *** to *** percent, and averaging *** percent.213 Subject imports oversold the domestic like product in the remaining 22 instances, or 45.8 percent of the comparisons, at margins ranging from *** to *** percent, and averaging *** percent.214 There were *** GW of reported subject import sales in quarters with underselling, or *** percent of total reported subject import pricing sales volume, compared to *** GW in quarters with overselling, or *** percent of total reported import sales volume. As reviewed in detail below, in 2022 and 2023 cumulated subject imports undersold the domestic like product in the majority of instances and for over *** percent of subject import volume, while in 2024 and interim 2025 subject imports undersold the domestic like product in a minority of instances and for *** percent and *** percent of subject import volume respectively.215 In 2022, cumulated subject imports undersold the domestic like product in eight of 12 comparisons, with underselling margins ranging up to *** percent, and averaging *** percent.216 Cumulated subject imports oversold the domestic like product in four of 12 comparisons, with overselling margins averaging *** percent.217 Over 2022, the volume of subject import sales in quarters with underselling was *** MW, representing *** percent of subject import sales volume that year, compared to *** MW in the quarters with overselling, representing *** percent of total reported subject import sales volume.218 In 2023, cumulated subject imports undersold the domestic like product in 7 of 12 comparisons, with underselling margins ranging up to *** percent, and averaging *** percent.219 Cumulated subject imports oversold the domestic like product in 5 of 12 instances, with overselling margins ranging averaging *** percent.220 Over 2023, the volume of subject import sales in quarters with underselling was *** GW, representing *** percent of subject import sales volume that year, compared to *** GW in the quarters with overselling, representing *** percent of total reported subject import sales volume.221 In 2024, cumulated subject imports undersold the domestic like product in 9 of 19 instances, with underselling margins ranging up to *** percent, and averaging *** percent.222 Cumulated subject imports oversold the domestic like product in 10 of 19 instances, with overselling margins ranging averaging *** percent.223 Over 2024, the volume of subject import sales in quarters with underselling was *** GW, representing *** percent of subject import sales volume that year, compared to *** GW in the quarters with overselling, representing *** 213 CR/PR at Table 5.10. 214 CR/PR at Table 5.10. 215 Derived from CR/PR at Table 5.12. 216 CR/PR at Table 5.12. 217 CR/PR at Table 5.12 . 218 CR/PR at Table 5.12; derived from CR/PR at Table 5.12. 219 CR/PR at Table 5.12. 220 CR/PR at Table 5.12. 221 CR/PR at Table 5.12; derived from CR/PR at Table 5.12. 222 CR/PR at Table 5.12. 223 CR/PR at Table 5.12. 39 percent of total reported subject import sales volume.224 Most of the volume of overselling by subject imports is attributable to this year of the POI, a period in which we determined in CSPV III that U.S. producers’ domestic prices were depressed by imports of CSPV from Malaysia and Vietnam.225 226 Based on the moderate-to-high degree of substitutability between subject imports and the domestic like product, the importance of price in purchasing decisions, and the evidence of underselling by subject reviewed above, we find that subject import underselling was significant during the POI. In 2022 and 2023, when subject imports predominantly undersold the domestic like product, subject imports of modules gained approximately four percentage points of market share in the U.S. modules market, approximately half of which was at the expense of the domestic industry (and the other half at the expense of nonsubject imports).227 228 As such, we find that significant underselling by subject imports in 2022 and 2023 led to a market share shift at the expense of the domestic industry during that period. While the domestic industry gained market share in interim 2024 and in interim 2025, it did so by reducing prices more than costs decreased, as explained further below. In addition, as discussed above, the volume and shipments of nonsubject imports declined in the later part of the POI, a likely result of the CSPV III investigations and the expiration of the tariff holiday, which further contributed to the domestic industry’s market share gains in 2024 and interim 2025.229 224 CR/PR at Table 5.12; derived from CR/PR at Table 5.12. 225 In CSPV III, the Commission found that imports subject to those investigations “depressed prices for the domestic like product to a significant degree in 2023 and 2024. CSPV III, USITC Pub. 5631 at 71, 94. 226 The data also indicate that there were some instances of subject import underselling that occurred in interim 2025, which was not covered by the period of investigation in CSPV III. In interim 2025 (from January through March 2025), cumulated subject imports undersold the domestic like product in two of five instances, with underselling margins ranging up to *** percent, and averaging *** percent. CR/PR at Table 5.12. Cumulated subject imports oversold the domestic like product in three of five instances, with overselling margins ranging averaging *** percent. CR/PR at Table 5.12. Over interim 2025, the volume of subject import sales in quarters with underselling was *** MW, representing *** percent of subject import sales volume that year, compared to *** MW in the quarters with overselling, representing *** percent of total reported subject import sales volume. CR/PR at Table 5.12; derived from CR/PR at Table 5.12. 227 U.S. producers’ share of apparent U.S. consumption of CSPV modules decreased from *** percent in 2022, to *** percent in 2023, and increased to *** percent in 2024; it was *** percent in interim 2025 compared to *** percent in interim 2024. Staff Worksheet, EDIS Doc. 860689. Subject imports’ share of apparent U.S. consumption of CSPV modules increased from *** percent in 2022, to *** percent in 2023, and to *** percent in 2024; it was *** percent in interim 2025 compared to *** percent in interim 2024. Staff Worksheet, EDIS Doc. 860689. 228 As previously mentioned, the domestic industry did not produce cells domestically in 2022 or 2023, meaning that the industry’s market share loss during that period was limited to the module segment of the U.S. market. 229 We have also considered U.S. purchasers’ responses concerning lost sales. Four of five purchasers contacted by Commission staff reported purchasing subject imports instead of U.S. produced (Continued…) 40 We have also examined whether subject imports depressed or suppressed domestic producer prices. From January 2022 through March 2025, U.S. producers’ sales prices for CSPV modules decreased by *** percent for product 1, *** percent for product 2, and *** percent for product 3. For pricing product 4, the available data show that U.S. producers’ highest quarterly sales price in the period was $*** per kW, and their lowest price was $***, which was also the last quarter in which they reported prices for product 4. Thus, the available data indicate that U.S. producers’ sales prices decreased for all four pricing products. The price trends of imports from India, Indonesia, and Laos for which there are pricing data available are more mixed, but there were decreases over the POI for some pricing products. From January 2022 to March 2025, sales prices for subject imports of product 4 from India decreased by *** percent while the prices for imports of that product from Indonesia and Laos in the first quarter of 2025 are significantly lower than the peaks for either source.230 As the domestic industry’s prices generally declined over the POI, the domestic industry’s net sales AUVs decreased to a greater degree than its per-unit COGS, even as apparent U.S. consumption increased *** percent by quantity (and *** percent by value) from 2022 to 2024.231 The domestic industry’s net sales AUV was $*** per kW in 2022, $*** in 2023, and $*** per kW in 2024, for an overall decrease of $*** per kW or *** percent; it was $*** per kW or *** percent higher in interim 2025 at $*** per kW than in interim 2024 at $*** per kW.232 Per-unit COGS was $*** per kW in 2022, $*** per kW in 2023, and $*** per kW in 2024, for an overall decrease of $*** per kW or *** percent; it was $*** per kW or *** percent lower in interim 2025 at $*** per kW than in interim 2024 at $*** per kW.233 The domestic product. CR/PR at 5.20. *** reported that subject import prices were not lower than U.S.-produced product and indicated that ***. Id. *** purchasers reported that U.S. producers had reduced prices to compete with lower-priced imports from India, Indonesia, or Laos. Id. The probative value of these data, however, are limited because the quantities reported by responding purchasers appear overstated, which may be due to an error in the units of measure that responding purchasers used. For example, *** reported purchasing *** GW in 2024, which exceeds apparent U.S. consumption of CSPV modules for that year. See Staff Worksheet, EDIS Doc. 860689. 230 CR/PR at Table 5.9. The highest reported price of product 4 for subject imports from Indonesia between January 2022 and March 2025 was $*** per kW, the lowest reported price was $*** per kW, and the last quarter price was $*** per kW. Id. The highest reported price of product 4 for subject imports from Laos between January 2022 and March 2025 was $*** per kW, the lowest reported price was $*** per kW, and the last quarter price was $*** per kW. Id. On the other hand, subject imports from India increased in price from January 2022 and March 2025 by *** percent for product 1, and subject imports from Indonesia increased by *** percent over the same period for product 3. CR/PR at Table 5.9. 231 CR/PR at Table C.1. From 2022 to 2023, the domestic industry’s net sales AUV decreased by *** per kW, or by *** percent, while unit COGS declined by only *** per kW, or by only *** percent. From 2023 to 2024, the domestic industry’s net sales AUV decreased by *** per kW, or by *** percent, while unit COGS declined by only *** per kW, or by only *** percent. Over the interim periods, the domestic industry’s net sales AUV increased by *** per kW while unit COGS declined by *** per kW. Id. 232 CR/PR at Table C.1. 233 CR/PR at Table C.1. 41 industry’s COGS-to-net-sales-ratio increased *** percentage points from 2022 to 2024, from *** percent in 2022 to *** percent in 2023 and to *** percent in 2024.234 Although it was lower in interim 2025, at *** than in interim 2024 at *** percent, the domestic industry’s COGS-to-net-sales ratio still remained higher at the end of the POI than when the POI began.235 We acknowledge that we previously determined that imports of CSPV from Malaysia and Vietnam “depressed prices for the domestic like product to a significant degree in 2023 and 2024 as domestic producers lower{ed} prices to regain sales and market share.”236 At the same time, the statute defines “material injury” as “harm which is not inconsequential, immaterial, or unimportant” and the existence of injury caused by other factors such as non-subject imports does not compel a finding that subject imports are not also a cause of injury. We also observe that the pricing data for the first quarter of 2025, which was after the POI in CSPV III, also show declines in the U.S. prices from the previous quarter for product 1,237 product 3,238 and product 4.239 It is noteworthy that imports covered by the CSPV III investigations substantially receded from the market in interim 2025, accounting for *** GW as opposed to *** GW in interim 2024,240 while subject imports of *** GW in interim 2025 were substantially higher than the *** GW total in interim 2024.241 Subject imports’ AUVs in both periods were comparable to nonsubject imports’, albeit slightly higher in interim 2025. We intend to further investigate the impact of cumulated subject import pricing on domestic industry prices in any final phase of these investigations. Given the declines in domestic producer prices over the POI at a time of rising costs and demand, the moderate-to-high degree of substitutability between subject imports and the domestic like product and the importance of price, as well as the significant subject import underselling during the period, and in consideration of the Commission’s prior finding in CSPV III that certain nonsubject imports in these investigations had a depressive effect on domestic prices, we cannot conclude that cumulated subject imports did not depress domestic prices to a significant degree during the POI. In sum, based on the record in the preliminary phase of these investigations, we find that there was significant underselling by cumulated subject imports during the POI. The predominant underselling by subject imports in 2022 and 2023 led to a market share shift from 234 CR/PR at Table C.1. 235 CR/PR at Table C.1. 236 CSPV III, USITC Pub. 5631 at 71-72. 237 U.S. producers’ domestic price for product 1 decreased from $*** per kW in the fourth quarter of 2024 to $*** in the first quarter of 2025. CR/PR at Table 5.5. 238 U.S. producers’ domestic price for product 3 decreased from $*** per kW in the fourth quarter of 2024 to $*** in the first quarter of 2025. CR/PR at Table 5.7. 239 U.S. producers’ domestic price for product 4 decreased from $*** per kW in the fourth quarter of 2024 to $*** in the first quarter of 2025. CR/PR at Table 5.8. U.S. producers’ domestic price for product 3 increased slightly from $*** per kW in the fourth quarter of 2024 to $*** per kW hour in the first quarter of 2025, but the sales volume of product 3 was much lower than products 1, 2, and 4 in those quarters. See CR/PR at Table 5.6. 240 CR/PR at Table C.1. 241 CR/PR at Table C.1. 42 the domestic industry to subject imports in the modules segment of the U.S. market over that period (though the domestic industry gained market share over the full POI), and we cannot conclude for purposes of these preliminary phase investigations that subject imports did not depress domestic prices. Accordingly, we cannot conclude that cumulated subject imports did not have significant price effects. E. Impact of the Subject Imports242 Section 771(7)(C)(iii) of the Tariff Act provides that the Commission, in examining the impact of the subject imports on the domestic industry, “shall evaluate all relevant economic factors which have a bearing on the state of the industry.” These factors include output, sales, inventories, capacity utilization, market share, employment, wages, productivity, gross profits, net profits, operating profits, cash flow, return on investment, return on capital, ability to raise capital, ability to service debt, research and development, and factors affecting domestic prices. No single factor is dispositive and all relevant factors are considered “within the context of the business cycle and conditions of competition that are distinctive to the affected industry.”243 As described above, we concluded in CSPV III that imports from Malaysia and Vietnam materially injured the domestic industry from 2022 to 2024, and that cumulated imports from Cambodia, Malaysia, Thailand, and Vietnam threatened the domestic industry with material injury. Nevertheless, as discussed further below, the domestic industry’s performance remained weak in interim 2025, which was not covered by the period of investigation in CSPV III. The domestic industry’s practical capacity for modules increased by *** percent from 2022 to 2024, from *** GW in 2022 to *** GW in 2023, and *** GW in 2024; it was *** percent higher in interim 2025 at *** GW than in interim 2024 at *** GW.244 The domestic industry’s module production increased by *** percent from 2022 to 2024, from *** GW in 2022 to *** GW in 2023, and *** GW in 2024; it was *** percent higher in interim 2025 at *** GW than in interim 2024 at *** GW.245 The industry’s practical capacity utilization declined irregularly by *** percentage points from 2022 to 2024, declining from *** percent in 2022 to *** percent in 2023, and then increasing slightly to *** percent in 2024; it was *** percentage points higher in interim 2025 at *** percent than in interim 2024 at *** percent.246 The industry’s number of production and related workers (“PRWs”) increased by *** percent from 2022 to 2024, from *** PRWs in 2022 to *** PRWs in 2023, and *** in 2024; they were *** percent higher in interim 2025 at *** PRWs than in interim 2024 at *** PRWs.247 242 Commerce initiated the antidumping duty investigations based on estimated dumping margins of Commerce initiated investigations based on estimated dumping margins of 123.04 percent for imports from India, 94.36 percent for imports from Indonesia, and 123.12 percent for imports from Laos. AD Initiation Notice, 90 Fed. Reg. at 38738. 243 19 U.S.C. § 1677(7)(C)(iii). This provision was amended by the Trade Preferences Extension Act of 2015, Pub. L. 114-27. 244 CR/PR at Tables 3.9, C.1. 245 CR/PR at Tables 3.9, C.1. 246 CR/PR at Tables 3.9, C.1. 247 CR/PR at Tables 3.30, C.1. 43 Hours worked rose by *** percent overall from 2022 to 2024, decreasing from *** hours in 2022 to *** hours in 2023, and increasing to *** hours in 2024; hours worked were *** percent higher in interim 2025, at *** hours, than in interim 2024, at *** hours.248 Wages paid increased by *** percent overall from 2022 to 2024, decreasing slight from $*** in 2022 to $*** in 2022, and increasing to $*** in 2024; wages paid were *** percent higher in interim 2025, at $***, than in interim 2024 at $***.249 Productivity increased by *** percent from 2022 to 2024, increasing from *** kilowatts per 1,000 hours in 2022 to *** kilowatts per 1,000 hours in 2023 and *** kilowatts per 1,000 hours in 2024; productivity was *** percent higher in interim 2025 at *** kilowatts per 1,000 hours than in interim 2024 at *** kilowatts per 1,000 hours.250 The domestic industry’s U.S. shipments of modules increased by *** percent from 2022 to 2024, from *** GW in 2022 to *** GW in 2023 and *** GW in 2024; U.S. producers’ U.S. shipments were *** percent higher in interim 2025 at *** GW than in interim 2024 at *** GW.251 The domestic industry’s market share for CSPV modules increased irregularly by *** percentage points from 2022 to 2024, decreasing from *** percent in 2022 to *** percent in 2023 and increasing to *** percent in 2024; the domestic industry’s market share was higher in interim 2025 at *** percent than in interim 2024 at *** percent.252 The domestic industry’s market share for CSPV cells and modules, by value, increased irregularly by *** percentage points, decreasing from *** percent in 2022 to *** percent in 2023, and then increasing to *** percent in 2024; the domestic industry’s market share was higher in interim 2025 at *** percent than in interim 2024 at *** percent.253 The domestic industry’s end-of-period inventories of modules increased by *** percent from 2022 to 2024, increasing from *** kW in 2022 to *** kW in 2023 and *** kW in 2024; end-of period inventories were *** percent higher in interim 2025 at *** kW than in interim 2024 at *** kW.254 Its end-of-period inventories as a share of total shipments increased irregularly by *** percentage points from 2022 to 2024, increasing from *** percent in 2022 to *** percent in 2023 and ***; it was *** percentage points higher in interim 2025 at *** percent than in interim 2024 at *** percent.255 The industry’s net sales value increased irregularly by *** percent from 2022 to 2024, declining from $*** in 2022 to $*** in 2023 before increasing to $*** in 2024; its net sales value was *** percent higher in interim 2025 at $*** than in interim 2024 at $***.256 The industry’s gross profit worsened from $*** in 2022 to *** in 2023, and then declined to *** in 2024; the domestic industry had a gross profit of $*** in interim 2025 compared to a gross 248 CR/PR at Tables 3.30, C.1. 249 CR/PR at Tables 3.30, C.1. 250 CR/PR at Tables 3.30, C.1. 251 CR/PR at Tables 3.12, C.1. 252 See Staff Worksheet, EDIS Doc. 860689. 253 CR/PR at Tables 4.11, C.1. 254 CR/PR at Tables 3.15, C.1. 255 CR/PR at Tables 3.15, C.1. 256 CR/PR at Tables 6.1, C.1. 44 profit of *** in interim 2024.257 The industry’s operating income worsened from *** in 2022 to *** in 2023 and *** in 2024, The domestic industry’s operating income in interim 2025, ***, showed only a slight improvement over interim 2024’s ***.258 The industry’s ratio of operating income to net sales declined by *** percentage points from 2022 to 2024, decreasing from *** percent in 2022 to *** percent in 2023, and to *** percent in 2024; it improved in interim 2025 at *** compared to *** percent in interim 2024.259 The industry’s net income worsened from 2022 to 2024, declining from *** in 2022 to *** in 2023, and *** in 2024; it was better in interim 2025 at $*** compared to *** in interim 2024.260 The industry’s net income margin decreased overall and *** from 2022 to 2024, decreasing from *** percent in 2022 to *** percent in 2023, and slightly improving to *** percent in 2024; the domestic industry’s net income margin was *** percent in interim 2025 compared to *** percent in interim 2024.261 The domestic industry’s capital expenditures increased *** from 2022 to 2024, rising from $*** in 2022 to $*** in 2023 and $*** in 2024, as several new producers started module production and existing producers expanded their module production and capacity.262 The domestic industry’s capital expenditures were *** percent higher in interim 2025 at $*** than in interim 2024 at $***.263 The domestic industry’s research and development (“R&D”) expenses decreased by *** percent from 2022 to 2024, decreasing from $*** in 2022 to $*** in 2023 and $*** in 2024; the industry’s R&D expenses were *** percent lower in interim 2025 at $*** than in interim 2024 at $***.264 The industry’s total net assets increased ***, rising from $*** in 2022 to $*** in 2023 and $*** in 2024.265 The industry’s return on assets declined; it was *** percent in 2022, *** percent in 2023 and *** percent in 2024.266 Several U.S. producers reported negative effects on their investments that they attributed to subject imports, including cancellation or postponement of expansion projects.267 At this preliminary phase, we have found that cumulated subject import volume and the increase in that volume were significant. We have also found that predominant underselling by subject imports in 2022 and 2023 led to a market share shift at the expense of the domestic industry in the modules market from 2022 to 2023 (although the industry gained market share over the full POI) and we cannot conclude that subject imports did not have a depressive effect on domestic prices. Given this, as well as the lower-than-expected performance of the domestic industry in interim 2025 despite the imposition of the CSPV III orders, we cannot 257 CR/PR at Tables 6.1, C.1. 258 CR/PR at Tables 6.1, C.1. 259 CR/PR at Tables 6.1, C.1. 260 CR/PR at Tables 6.1, C.1. 261 CR/PR at Tables 6.1, C.1. 262 CR/PR at Table 3.4. 263 CR/PR at Tables 6.7, C.1. 264 CR/PR at Tables 6.9, C.1. 265 CR/PR at Tables 6.11, C.1. Interim period data regarding the domestic industry’s total assets were not collected. 266 CR/PR at Table 6.12. Interim period data regarding the domestic industry’s return on assets were not available. 267 CR/PR at Tables 6.14, 6.15. 45 conclude for purposes of these preliminary phase investigations that cumulated subject imports did not have a significant adverse impact on the domestic industry. We have also considered whether there are other factors that may have had an impact on the domestic industry, to ensure that we are not attributing injury from such other factors to subject imports. We recognize that in CSPV III, for the period of investigation covering 2022 to 2024, we determined that the domestic industry was materially injured by reason of imports from Malaysia and Vietnam, and threatened with material injury from Cambodia, Malaysia, Thailand, and Vietnam (all of which are nonsubject imports in the instant investigations). We also note that in these investigations nonsubject import market share declined throughout the POI. At this preliminary phase, we cannot conclude that subject imports did not also have a material impact on the domestic industry during the POI. In sum, the record as a whole in the preliminary phase of these investigations does not contain clear and convincing evidence that there is no reasonable indication of material injury to the domestic industry by reason of cumulated subject imports. We have therefore reached affirmative preliminary determinations. Conclusion For the reasons stated above, we determine that the record in these preliminary investigations does not contain clear and convincing evidence that there is no material injury, and cannot conclude that no likelihood exists that contrary evidence will arise in any final investigations Therefore, we determine that there is a reasonable indication that an industry in the United States is materially injured by reason of subject imports of CSPV cell and modules from India, Indonesia, and Laos that are allegedly sold in the United States at less than fair value and that are allegedly subsidized by the governments of India, Indonesia, and Laos. 1.1 Introduction Background These investigations result from petitions filed with the U.S. Department of Commerce (“Commerce”) and the U.S. International Trade Commission (“USITC” or “Commission”) by the Alliance for American Solar Manufacturing and Trade (“the Alliance”)1 on July 17, 2025, alleging that an industry in the United States is materially injured and threatened with material injury by reason of subsidized and less-than-fair-value (“LTFV”) imports of crystalline silicon photovoltaic cells, whether or not assembled into modules (“CSPV cells and modules” or “CSPV products”)2 from India, Indonesia, and Laos. Table 1.1 presents information relating to the background of these investigations.3 4 Table 1.1 CSPV cells and modules: Information relating to the background and schedule of this proceeding Effective date Action July 17, 2025 Petitions filed with Commerce and the Commission; institution of the Commission’s investigations (90 FR 34518, July 22, 2025) August 6, 2025 Commerce’s notice of initiation, AD investigations (90 FR 38736, August 12, 2025), and CVD investigations (90 FR 38745, August 12, 2025). August 7, 2025 Commission’s conference August 29, 2025 Commission’s vote September 2, 2025 Commission’s determinations September 9, 2025 Commission’s views Statutory criteria Section 771(7)(B) of the Tariff Act of 1930 (the “Act”) (19 U.S.C. § 1677(7)(B)) provides that in making its determinations of injury to an industry in the United States, the Commission— 1 The Alliance is comprised of Hanwha Q CELLS USA, Inc.; First Solar, Inc.; and Mission Solar Energy LLC. 2 See the section entitled “The subject merchandise” in Part 1 of this report for a complete description of the merchandise subject in this proceeding. 3 Pertinent Federal Register notices are referenced in appendix A and may be found at the Commission’s website (www.usitc.gov). 4 A list of witnesses appearing at the conference is presented in appendix B of this report. 1.2 shall consider (Ⅰ) the volume of imports of the subject merchandise, (Ⅱ) the effect of imports of that merchandise on prices in the United States for domestic like products, and (Ⅲ) the impact of imports of such merchandise on domestic producers of domestic like products, but only in the context of production operations within the United States; and. . . may consider such other economic factors as are relevant to the determination regarding whether there is material injury by reason of imports. Section 771(7)(C) of the Act (19 U.S.C. § 1677(7)(C)) further provides that—5 In evaluating the volume of imports of merchandise, the Commission shall consider whether the volume of imports of the merchandise, or any increase in that volume, either in absolute terms or relative to production or consumption in the United States is significant.. . .In evaluating the effect of imports of such merchandise on prices, the Commission shall consider whether. . .(Ⅰ) there has been significant price underselling by the imported merchandise as compared with the price of domestic like products of the United States, and (Ⅱ) the effect of imports of such merchandise otherwise depresses prices to a significant degree or prevents price increases, which otherwise would have occurred, to a significant degree.. . . In examining the impact required to be considered under subparagraph (B)(ⅰ)(Ⅲ), the Commission shall evaluate (within the context of the business cycle and conditions of competition that are distinctive to the affected industry) all relevant economic factors which have a bearing on the state of the industry in the United States, including, but not limited to. . . (Ⅰ) actual and potential decline in output, sales, market share, gross profits, operating profits, net profits, ability to service debt, productivity, return on investments, return on assets, and utilization of capacity, (Ⅱ) factors affecting domestic prices, (Ⅲ) actual and potential negative effects on cash flow, inventories, employment, wages, growth, ability to raise capital, and investment, (Ⅳ) actual and potential negative effects on the existing development and production efforts of the domestic industry, including efforts to develop a derivative or more advanced version of the domestic like product, and (Ⅴ) in {an antidumping investigation}, the magnitude of the margin of dumping. In addition, Section 771(7)(J) of the Act (19 U.S.C. § 1677(7)(J)) provides that—6 5 Amended by PL 114—27 (as signed, June 29, 2015), Trade Preferences Extension Act of 2015. 6 Amended by PL 114—27 (as signed, June 29, 2015), Trade Preferences Extension Act of 2015. 1.3 (J) EFFECT OF PROFITABILITY.—The Commission may not determine that there is no material injury or threat of material injury to an industry in the United States merely because that industry is profitable or because the performance of that industry has recently improved. Organization of report Part 1 of this report presents information on the subject merchandise, alleged subsidy rates/dumping margins, and domestic like product. Part 2 of this report presents information on conditions of competition and other relevant economic factors. Part 3 presents information on the condition of the U.S. industry, including data on capacity, production, shipments, inventories, and employment. Parts 4 and 5 present the volume of subject imports and pricing of domestic and imported products, respectively. Part 6 presents information on the financial experience of U.S. producers. Part 7 presents the statutory requirements and information obtained for use in the Commission’s consideration of the question of threat of material injury as well as information regarding nonsubject countries. 1.4 Market summary CSPV cells, which are made from crystalline silicon, are the building blocks of solar photovoltaic power-generation systems.7 CSPV cells typically form the basic element of solar panels or modules but can be utilized in other products as well. The resulting system of solar panels or modules are often installed on or above the roofs of residential and non-residential buildings, as free field installations, or as stand-alone units. The only responding U.S. producer of CSPV cells is Suniva, Inc. (“Suniva”)8 and the leading U.S. producer of CSPV modules is ***, while leading producers of CSPV cells and modules outside the United States include *** of India, *** of Laos. The leading U.S. importer of CSPV cells and modules from India is ***, while the leading importer of CSPV cells and modules from Indonesia is ***, and the leading U.S. importer of CSPV cells and modules from Laos is ***. The leading importers of CSPV cells and modules from nonsubject countries (primarily Thailand and Malaysia) include ***, ***, and ***. U.S. purchasers of CSPV products include utility companies/developers, distributors, module assemblers, residential installers, and utility installers. The four purchasers responding to the Commission’s Lost Sales Lost Revenue Survey in this phase of the investigations were ***. Apparent U.S. consumption of CSPV cells and modules totaled approximately *** megawatts ($***) in 2024. Currently, two firms are known to produce CSPV cells, and fifteen are known to produce CSPV modules in the United States.9 U.S. producers’ value added to CSPV cells through module assembly and production of CSPV cells was $*** in 2024 and accounted for *** percent of apparent U.S. consumption by value. U.S. shipments of imports from subject sources totaled *** megawatts ($***) in 2024 and accounted for *** percent of apparent U.S. consumption by quantity and *** percent by value. U.S. 7 Petition, pp. 12 to 13. 8 Scott Moskowitz of Hanwha Q Cells USA testified during the preliminary conference that ES Foundry is producing and shipping CSPV cells and noted that Hanwha, Mission Solar, Heliene, Silfab, and Canadian Solar have cell factories under construction. Conference transcript, p. 100 (Moskowitz). 9 Non-responding U.S. producers of CSPV modules include ***. Petition, exhibit I.4. 1.5 shipments of imports from nonsubject sources totaled *** megawatts ($***) in 2024 and accounted for *** percent of apparent U.S. consumption by quantity and *** percent by value. Summary data and data sources A summary of data collected in these investigations is presented in appendix C, table C.1. The Commission’s questionnaires collected data for the years 2022 to 2024 and interim periods January through March of 2024 (“interim 2024”) and January through March of 2025 (“interim 2025”). Except as noted, U.S. industry data are based on questionnaire responses of fifteen firms that accounted for *** U.S. production of CSPV cells10 and the vast majority of CSPV modules during 2024. U.S. imports are based on questionnaire data.11 Previous and related investigations The Commission has conducted a number of previous import relief investigations on CSPV cells and modules or similar merchandise, as presented in table 1.2.12 10 *** began CSPV cell production in the U.S. in the fourth quarter of 2024. *** U.S. producer questionnaire response, section 3.12b. 11 Where noted, importer questionnaire data have been supplemented with proprietary, Census- edited Customs’ import records. 12 The global safeguard measure on CSPV products (TA-201-075) is in the form of (1) a TRQ on imports of CSPV cells not partially or fully assembled into other products and (2) an increase in duties on imports of CSPV modules. Crystalline Silicon Photovoltaic Cells, Whether or Not Partially or Fully Assembled Into Other Products, Monitoring Developments in the Domestic Industry, Inv. No. TA-201- 075 (Second Monitoring), USITC Publication 5494, February 2024 (“Second monitoring publication”), pp. 1.8 to 1.10. The safeguard measure is applicable to imports from all countries, except for imports from certain developing countries that are members of the WTO, as long as such a country’s share of total imports of the product, based on imports during a recent representative period, does not exceed 3 percent, provided that imports that are the product of all such countries with less than 3 percent import share collectively account for not more than 9 percent of total imports of the product. Laos is subject to the safeguard measures, as is India, which was removed from the list of beneficiary developing countries as of June 5, 2019. Indonesia, however, is on the excepted list. Id. at pp. 1.7 to 1.8, n.22. For a full list of countries exempt from the safeguard measure, see U.S. Customs and Border Protection, “QB 25-507 2025 Solar Cells and Modules,” January 27, 2025, https://www.cbp.gov/trade/quota/bulletins/qb-25- 507-2025. 1.6 Table 1.2 CSPV cells and modules: Previous and related Commission proceedings and status Date Number Country ITC original determination Status 2011 701-481 China Affirmative Order continued after second review, September 20, 2024 2011 731-1190 China Affirmative Order continued after second review, September 20, 2024 2013 701-TA-511 China Affirmative Order continued after first review, effective September 11, 2020 2013 731-TA-1246 China Affirmative Order continued after first review, effective September 11, 2020 2013 731-TA-1247 Taiwan Affirmative Order continued after first review, effective September 11, 2020 2017 TA-201-075 — Affirmative Safeguard measure in effect from February 7, 2018, through February 6, 2026 2025 701-TA-722 Cambodia Affirmative Order issued on June 24, 2025 2025 701-TA-723 Malaysia Affirmative Order issued on June 24, 2025 2025 701-TA-724 Thailand Affirmative Order issued on June 24, 2025 2025 701-TA-725 Vietnam Affirmative Order issued on June 24, 2025 2025 731-TA-1690 Cambodia Affirmative Order issued on June 24, 2025 2025 731-TA-1691 Malaysia Affirmative Order issued on June 24, 2025, corrected July 7, 2025 2025 731-TA-1692 Thailand Affirmative Order issued on June 24, 2025 2025 731-TA-1693 Vietnam Affirmative Order issued on June 24, 2025, corrected July 7, 2025 Source: U.S. International Trade Commission publications and Federal Register notices. Note: “Date” refers to the year in which the investigation was instituted by the Commission. Note: Investigations 701-TA-481 and 731-TA-1190 do not include U.S. imports of CSPV modules assembled in China from CSPV cells made in a country other than China. Investigations 701-TA-511 and 731-TA-1246-1247 include U.S. imports of the following: (1) CSPV modules assembled in China from CSPV cells made in Taiwan and (2) CSPV modules assembled in China from CSPV cells made in third countries. Commerce defined the subject merchandise from Taiwan to include U.S. imports of: (1) CSPV cells made in Taiwan; (2) CSPV modules assembled in Taiwan from CSPV cells made in Taiwan; and (3) CSPV modules assembled in third countries other than China from CSPV cells made in Taiwan. Therefore, the module assembly location determined the country of origin for U.S. imports of modules from China, except for modules covered by the prior CSPV 1 orders (which were considered nonsubject merchandise from China in the CSPV 2 investigations); the cell manufacture location determined the country of origin for U.S. imports of cells and modules from Taiwan. 79 FR 76962 and 76970, December 23, 2014. 1.7 Nature and extent of alleged subsidies and sales at LTFV Alleged subsidies On August 12, 2025, Commerce published a notice in the Federal Register of the initiation of its countervailing duty investigation on CSPV cells and modules from India, Indonesia, and Laos.13 Alleged sales at LTFV On August 12, 2025, Commerce published a notice in the Federal Register of the initiation of its antidumping duty investigations on CSPV cells and modules from India, Indonesia, and Laos.14 Commerce has initiated antidumping duty investigations based on estimated dumping margins of 123.04 percent for CSPV cells and modules from India, 94.36 percent from Indonesia, and 123.12 percent from Laos. 13 For further information on the alleged subsidy programs see Commerce’s notice of initiation and related CVD Initiation Checklist. 90 FR 38745, August 12, 2025. 14 90 FR 38736, August 12, 2025. 1.8 The subject merchandise Commerce’s scope In the current proceeding, Commerce has defined the scope as follows:15 The merchandise covered by these investigations is crystalline silicon photovoltaic cells, and modules, laminates, and panels, consisting of crystalline silicon photovoltaic cells, whether or not partially or fully assembled into other products, including, but not limited to, modules, laminates, panels and building integrated materials. These investigations cover crystalline silicon photovoltaic cells of thickness equal to or greater than 20 micrometers, having a p/n junction formed by any means, whether or not the cell has undergone other processing, including, but not limited to, cleaning, etching, coating, and/or addition of materials (including, but not limited to, metallization and conductor patterns) to collect and forward the electricity that is generated by the cell. Merchandise under consideration may be described at the time of importation as parts for final finished products that are assembled after importation, including, but not limited to, modules, laminates, panels, building-integrated modules, building integrated panels, or other finished goods kits. Such parts that otherwise meet the definition of merchandise under consideration are included in the scope of the investigation. Excluded from the scope of the investigation are thin film photovoltaic products produced from amorphous silicon (a-Si), cadmium telluride (CdTe), or copper indium gallium selenide (CIGS). Also excluded from the scope of the investigation are crystalline silicon photovoltaic cells, not exceeding 10,000 mm2 in surface area, that are permanently integrated into a consumer good whose function is other than power generation and that consumes the electricity generated by the integrated crystalline silicon photovoltaic cell. Where more than one cell is permanently integrated into a consumer good, the surface area for purposes of this exclusion shall be the total combined surface area of all cells that are integrated into the consumer good. Additionally, excluded from the scope of the investigation are panels with surface area from 3,450 mm2 to 33,782 mm2 with one black wire and 15 90 FR 38736, August 12, 2025. 1.9 one red wire (each of type 22 AWG or 24 AWG not more than 206 mm in length when measured from panel extrusion), and not exceeding 2.9 volts, 1.1 amps, and 3.19 watts. For the purposes of this exclusion, no panel shall contain an internal battery or external computer peripheral ports. Also excluded from the scope of the investigation are: (1) Off grid CSPV panels in rigid form with a glass cover, with the following characteristics: (A) a total power output of 100 watts or less per panel; (B) a maximum surface area of 8,000 cm2 per panel; (C) do not include a built-in inverter; (D) must include a permanently connected wire that terminates in either an 8 mm male barrel connector, or a two- port rectangular connector with two pins in square housings of different colors; (E) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell; and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features, and foam for transport); and (2) Off grid CSPV panels without a glass cover, with the following characteristics: (A) a total power output of 100 watts or less per panel; (B) a maximum surface area of 8,000 cm2 per panel; (C) do not include a built-in inverter; (D) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell; and (E) each panel is (1) permanently integrated into a consumer good; (2) encased in a laminated material without stitching, or (3) has all of the following characteristics: (i) the panel is encased in sewn fabric with visible stitching, (ii) includes a mesh zippered storage pocket, and (iii) includes a permanently attached wire that terminates in a female USB-A connector. In addition, the following CSPV panels are excluded from the scope of the investigation: offgrid CSPV panels in rigid form with a glass cover, with each of the following physical characteristics, whether or not assembled into a fully completed off-grid hydropanel whose function is conversion of water vapor into liquid water: (A) a total power output of no more than 80 watts per panel; (B) a surface area of less than 5,000 square centimeters (cm2 ) per panel; (C) do not include a built-in inverter; (D) do not have a frame around the edges of the panel; (E) include a clear glass back panel; and (F) must include a permanently connected wire that terminates in a twoport rectangular connector. 1.10 Additionally excluded from the scope of these investigations are off-grid small portable crystalline silicon photovoltaic panels, with or without a glass cover, with the following characteristics: (1) a total power output of 200 watts or less per panel; (2) a maximum surface area of 16,000 cm2 per panel; (3) no built-in inverter; (4) an integrated handle or a handle attached to the package for ease of carry; (5) one or more integrated kickstands for easy installation or angle adjustment; and (6) a wire of not less than 3 meters either permanently connected or attached to the package that terminates in an 8 mm diameter male barrel connector. Also excluded from the scope of these investigations are off-grid crystalline silicon photovoltaic panels in rigid form with a glass cover, with each of the following physical characteristics, whether or not assembled into a fully completed off-grid hydropanel whose function is conversion of water vapor into liquid water: (A) a total power output of no more than 180 watts per panel at 155 degrees Celsius; (B) a surface area of less than 16,000 square centimeters (cm2 ) per panel; (C) include a keep-out area of approximately 1,200 cm2 around the edges of the panel that does not contain solar cells; (D) do not include a built-in inverter; (E) do not have a frame around the edges of the panel; (F) include a clear glass back panel; (G) must include a permanently connected wire that terminates in a two-port rounded rectangular, sealed connector; (H) include a thermistor installed into the permanently connected wire before the twoport connector; and (I) include exposed positive and negative terminals at opposite ends of the panel, not enclosed in a junction box. Further excluded from the scope of the investigations are: (1) Off grid rigid CSPV panels with a glass cover, with the following characteristics: (A) a total power output of 200 watts or less per panel, (B) a maximum surface area of 10,500 cm2 per panel, (C) do not include a built-in inverter, (D) must include a permanently connected wire that terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure, (E) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features); and (2) Off-grid small portable crystalline silicon photovoltaic panels, with or without a glass cover, with the following characteristics: (A) a total power output of 200 watts or less per panel, (B) a maximum surface area of 1.11 16,000 cm2 per panel, (C) no built-in inverter, (D) an integrated handle or a handle attached to the package for ease of carry, (E) one or more integrated kickstands for easy installation or angle adjustment, and (F) a wire either permanently connected or attached to the package terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure. Also excluded from the scope of the investigation are: (1) Off grid rigid CSPV panels with a glass cover, with the following characteristics: (A) a total power output of 200 watts or less per panel, (B) a maximum surface area of 10,500 cm2 per panel, (C) do not include a built-in inverter, (D) must include a permanently connected wire that terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure, (E) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features); and (2) Small off-grid panels with glass cover, with the following characteristics: (A) surface area from 3,450 mm2 to 33,782 mm2 , (B) with one black wire and one red wire (each of type 22AWG or 28 AWG not more than 350 mm in length when measured from panel extrusion), (C) not exceeding 10 volts, (D) not exceeding 1.1 amps, (E) not exceeding 6 watts, and (F) for the purposes of this exclusion, no panel shall contain an internal battery or external computer peripheral ports. Additionally excluded from the scope of the investigation are: (1) Off grid rigid CSPV panels with a glass cover, with the following characteristics: (A) a total power output of 175 watts or less per panel, (B) a maximum surface area of 9,000 cm2 per panel, (C) do not include a built-in inverter, (D) must include a permanently connected wire that terminates in waterproof connector with a cylindrical positive electrode and a rectangular negative electrode with the positive and negative electrodes having an interlocking structure; (E) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (F) must be in individual retail packaging (for purposes of this provision, retail packaging typically includes graphics, the product name, its description and/or features); and 1.12 (2) Off grid CSPV panels without a glass cover, with the following characteristics, (A) a total power output of 220 watts or less per panel, (B) a maximum surface area of 16,000 cm2 per panel, (C) do not include a built-in inverter, (D) must include visible parallel grid collector metallic wire lines every 1-4 millimeters across each solar cell, and (E) each panel is encased in a 4 laminated material without stitching. Also excluded from the scope of these investigations are off-grid CSPV panels in rigid form, with or without a glass cover, permanently attached to an aluminum extrusion that is an integral component of an automation device that controls natural light, whether or not assembled into a fully completed automation device that controls natural light, with the following characteristics: (1) a total power output of 20 watts or less per panel; (2) a maximum surface area of 1,000 cm2 per panel; (3) does not include a built-in inverter for powering third party devices. Modules, laminates, and panels produced in a third-country from cells produced in a subject country are covered by the investigation; however, modules, laminates, and panels produced in a subject country from cells produced in a third-country are not covered by the investigations. Also excluded from the scope of these investigations are all products covered by the scope of the antidumping and countervailing duty orders on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from the People’s Republic of China: Amended Final Determination of Sales at Less Than Fair Value, and Antidumping Order, 77 FR 73018 (December 7, 2012); and Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from the People’s Republic of China: Countervailing Duty Order, 77 FR 73017 (December 7, 2012). Also excluded from the scope of these investigations are all products covered by the scope of the antidumping and countervailing duty orders on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from the Socialist Republic of Vietnam: Amended Final Antidumping Duty Determination; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Antidumping duty Orders, 90 FR 26786 (June 24, 2025); Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from the Socialist Republic of Vietnam: Amended Final Antidumping Duty Determination; Crystalline 1.13 Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Antidumping Duty Orders; Correction, 90 FR 29843 (July 7, 2025); and Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from Malaysia and Thailand: Amended Final Countervailing Duty Determinations; Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules, from Cambodia, Malaysia, Thailand, and the Socialist Republic of Vietnam: Countervailing Duty Orders, 90 FR 26791 (June 24, 2025). 1.14 Tariff treatment Based upon the scope set forth by Commerce, information available to the Commission indicates that the merchandise subject to these investigations are imported under statistical reporting numbers 8541.42.0010 (“crystalline silicon photovoltaic cells not assembled in modules or made up into panels”) and 8541.43.0010 (“crystalline silicon photovoltaic cells assembled in modules or made up into panels”) of the Harmonized Tariff Schedule of the United States (“HTS”).16 17 The 2025 general rate of duty is free for HTS subheadings 8541.42.00 and 8541.43.00. These articles may also be imported as parts or subassemblies of goods provided for in HTS subheadings 8501.71, 8501.72, 8501.80, and 8507.20.80.18 Decisions on the tariff classification and treatment of imported goods are within the authority of U.S. Customs and Border Protection. The United States imposed a global safeguard measure on CSPV products, effective February 7, 2018, in the form of a tariff-rate quota (“TRQ”) on imports of CSPV cells not partially or fully assembled into other products and an increase in duties on imports of CSPV modules.19 The safeguard measure was extended and remains in effect through February 6, 2026.20 Imports from nonexempt countries of CSPV cells not partially or fully assembled into other products in excess of the TRQ enter under HTS subheading 9903.45.22 and are subject to 16 For the purposes of HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, the term "crystalline silicon photovoltaic cells" means crystalline silicon photovoltaic cells of a thickness equal to or greater than 20 micrometers, having a p/n junction (or variant thereof) formed by any means, whether or not the cell imported under statistical reporting number 8541.42.0010 (or subassemblies thereof imported under HTS statistical reporting number 8541.43.0010) has undergone other processing, including, but not limited to, cleaning, etching, coating, and/or addition of materials (including, but not limited to, metallization and conductor patterns) to collect and forward the electricity that is generated by the cell. Such cells include photovoltaic cells that contain crystalline silicon in addition to other photovoltaic materials. This includes, but is not limited to, passivated emitter rear contact cells, heterojunction with intrinsic thin-layer cells, and other so-called hybrid cells. USITC, HTS (2025) Revision 19, Publication 5659, August 2025, p. XVI 85-7. 17 HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010 were established effective January 27, 2022. Prior to this, CSPV cells and modules were imported under HTS statistical reporting numbers 8541.40.6025 and 8541.40.6015, respectively. USITC, HTS (2022) Basic Edition, Publication 5277, January 2022, p. XVI 85-76. 18 The subject cells may be presented as integral elements of subassemblies of components or of goods of these headings and subheadings, even if not treated as “parts” for tariff purposes. USITC, HTS (2025) Revision 19, Publication 5659, August 2025, pp. XVI 85-14 to XVI 85-15, XVI 85-24 19 83 FR 3541, January 25, 2018. 20 87 FR 7357, February 9, 2022. 1.15 duty rates that vary based on the entry period.21 Imports from nonexempt countries of CSPV modules enter under HTS subheading 9903.45.25 and are subject to duty rates that vary based on the entry period.22 Imports of CSPV products from India and Laos are subject to the safeguard measure, while imports from Indonesia are not subject to the safeguard measure, under the exception for certain developing countries that are WTO members.23 While imports of bifacial panels were excluded from the safeguard measure when it was extended in February 2022, Presidential Proclamation 10779 of June 21, 2024 revoked that exclusion, and provided that imports of bifacial panels would be subject to the safeguard measure.24 Effective August 23, 2018, CSPV cells and modules originating in China are subject to an additional 25 percent ad valorem duty under section 301 of the Trade Act of 1974.25 Effective September 27, 2024, following a four-year review of actions taken in the section 301 investigation of China’s acts, policies, and practices related to technology transfer, intellectual property, and innovation, duty rates for CSPV cells and modules originating in China were increased to 50 percent ad valorem.26 On April 1, 2022, Commerce initiated an inquiry into whether Chinese-manufactured CSPV cells and modules circumvented U.S. antidumping and countervailing duty orders.27 The 21 Duty rates for imports from nonexempt countries of CSPV cells not partially or fully assembled into other products in excess of the TRQ are 14.75 percent ad valorem from February 7, 2022, through February 6, 2023; 14.50 percent ad valorem from February 7, 2023, through February 6, 2024; 14.25 percent ad valorem from February 7, 2024, through February 6, 2025; and 14.00 percent ad valorem from February 7, 2025, through February 6, 2026. U.S. Customs and Border Protection, “QB 25-507 2025 Solar Cells and Modules,” January 27, 2025, https://www.cbp.gov/trade/quota/bulletins/qb-25-507- 2025. 22 Duty rates for imports from nonexempt countries of CSPV modules are 14.75 percent ad valorem from February 7, 2022, through February 6, 2023; 14.50 percent ad valorem from February 7, 2023, through February 6, 2024; 14.25 percent ad valorem from February 7, 2024, through February 6, 2025; and 14.00 percent ad valorem from February 7, 2025, through February 6, 2026. U.S. Customs and Border Protection, “QB 25-507 2025 Solar Cells and Modules,” January 27, 2025, https://www.cbp.gov/trade/quota/bulletins/qb-25-507-2025. 23 For a full list of countries exempt from the safeguard measure, see U.S. Customs and Border Protection, “QB 25-507 2025 Solar Cells and Modules,” January 27, 2025, https://www.cbp.gov/trade/quota/bulletins/qb-25-507-2025. 24 89 FR 53333, June 26, 2024. 25 83 FR 40823, August 16, 2018. See also HTS subheading 9903.88.02 and U.S. notes 20(c) and 20(d) to subchapter III of chapter 99 and related tariff provisions for this duty treatment. USITC, Harmonized Tariff Schedule (2024) Revision 1, U.S. Notes, pp. 99-III-24–99-III-27, 99-III-301, January 2024. 26 89 FR 76581, September 18, 2024. Effective January 1, 2025, duty rates for wafers and polysilicon originating in China increased from 25 percent to 50 percent ad valorem. 89 FR 101682, December 16, 2024. See also HTS subheading 9903.91.02 and U.S. note 31(c) to subchapter III of chapter 99 and related tariff provisions for this duty treatment. 27 87 FR 19071, April 1, 2022. 1.16 inquiry was initiated in response to a petition filed by Auxin Solar alleging that CSPV cells and modules imported from Cambodia, Malaysia, Thailand, and Vietnam used CSPV cells and other inputs from China to avoid existing antidumping and countervailing duty orders. On August 23, 2023, Commerce issued its final determination in the circumvention inquiries, finding that CSPV cells and modules exported from, and produced in, Cambodia, Malaysia, Thailand, and Vietnam by certain producers were circumventing the orders. Commerce also made country-wide circumvention findings with respect to all four countries.28 However, pursuant to the Presidential Proclamation on June 6, 2022, duties were not collected on imports of CSPV cells and modules from these four countries subject to Commerce’s final determination where appropriate certifications were filed with Customs and those imports were used in the United States no later than 180 days after June 6, 2024, the Proclamation’s termination date.29 Tariffs initiated under the International Emergency Economic Powers Act (“IEEPA”)30 Effective April 5, 2025, CSPV cells and modules originating in India, Indonesia, and Laos were subject to an additional 10 percent ad valorem reciprocal duty under IEEPA. Effective April 9, 2025, the following individualized country reciprocal duty rates were assigned: 26 percent for imports from India; 32 percent for imports from Indonesia; and 48 percent for imports from Laos.31 Effective April 10, 2025, individualized country reciprocal duties were suspended and the reciprocal duty rate for CSPV cells and modules originating in India, Indonesia, and Laos was returned to 10 percent.32 Effective August 7, 2025, the following individualized country duty 28 88 FR 57419, August 23, 2023. 29 The notice provided for “Appendix V” certificates to be used for specific entries by the three firms that Commerce had determined were not circumventing the orders, and for “Appendix VI” certificates to be used by other firms to show that specific entries met certain “component content requirements” and were thus not circumventing the orders. Commerce provided that firms that had not cooperated in its investigation were not eligible to use Appendix V or VI certifications, providing a list of such companies, including New East Solar Energy (Cambodia) Co., in Appendix II to the notice. The notice also provided for “Appendix IV” certifications that importers or exporters could use to certify that their merchandise were “applicable entries” in compliance with the terms of the Presidential Proclamation. 87 FR 56868, September 16, 2022; 88 FR 57419, August 23, 2023. 30 Multiple tariffs have been enacted under the authority of the International Emergency Economic Powers Act (“IEEPA”). Tariffs specific to Canada, China, and Mexico were initiated in February 2025. Tariffs initiated in April 2025 under IEEPA were applied globally. Tariffs under IEEPA have been amended over time. 31 90 FR 15041, April 7, 2025. 32 90 FR 15625, April 15, 2025. See also HTS subheadings 9903.01.25, 9903.01.55, 9903.01.61, 9903.01.74 and U.S. note 2(v) to subchapter III of chapter 99 and related tariff provisions for this duty treatment. USITC, HTS (2025) Revision 8, Publication 5613, April 2025, pp. 99-III-1, 99-III-278. 1.17 rates were assigned: 25 percent for imports from India; 19 percent for imports from Indonesia; and 40 percent for imports from Laos.33 On August 6, 2025, the White House announced an additional 25 percent ad valorem duty under IEEPA on products originating in India, scheduled to go into effect on August 27, 2025.34 33 90 FR 37963, August 6, 2025. 34 The White House, “Addressing Threats to the United States by the Government of the Russian Federation, August 6, 2025,” https://www.whitehouse.gov/presidential-actions/2025/08/addressing- threats-to-the-united-states-by-the-government-of-the-russian-federation/. 1.18 The product Description and applications35 CSPV cells are the essential element in CSPV modules (also commonly referred to as panels), which in turn are the main components of CSPV systems. Solar CSPV systems convert sunlight into electricity for on-site use or for distribution through the electric grid. CSPV cells CSPV cells use crystalline silicon to convert sunlight to electricity and are the basic elements of a CSPV module. CSPV cells may be fully square or may have slightly rounded corners (figure 1.1). 35 Unless otherwise noted, information in this section is based on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules from Cambodia, Malaysia, Thailand, and Vietnam, Inv. Nos. 701-TA-722-725 and 731-TA-1690-1693 (Final), USITC Publication 5631, June 2025, pp. 1.20-1.29. 1.19 Figure 1.1 CSPV cells and modules: CSPV cells Source: International Energy Agency website, https://www.iea.org/reports/solar-pv-global-supply-chains, accessed February 10, 2025. Common sizes of CSPV cells, as measured by the side length of the cell, and the type of wafer used in producing cells of that size are shown in figure 1.2. Figure 1.2 CSPV cells and modules: Examples of wafer sizes used in monocrystalline cell production Source: Novergy, “Significance of increasing size of mono-crystalline wafers in modules,” September 28, 2020, https://www.novergysolar.com/significance-increasing-size-mono-crystalline-wafers-modules/. 1.20 CSPV cells have a positive layer, a negative layer, and a positive-negative junction (p/n junction). Electricity is generated when sunlight strikes the CSPV cell, knocking electrons loose that flow onto thin metal “fingers” that run across the CSPV cell and conduct electricity to the busbars.36 The number of busbars in cells varies, and has increased over time as more busbars improve efficiency and power output. Further, some cells contain no busbars, which can provide benefits such as reducing electrical losses and increasing the surface area of the CSPV cell that can absorb sunlight. Alternatively, some cells have metal contacts on the rear side of the CSPV cell, creating back (or rear contact) cells (including interdigitated back contact (IBC) cells) (figure 1.3). This provides several advantages such as reduced shading, improved cell interconnection, and better aesthetics. Figure 1.3 CSPV cells and modules: Back contact CSPV cells Source: Solar Analytica, “Report: LG Neon R,” May 6, 2023, https://solaranalytica.com/lg-neon-r-report/. CSPV cells can be monofacial or bifacial. Whereas monofacial CSPV cells have a metalized back layer, bifacial CSPV cells have a cell structure on the backside that allows it to convert light that hits both the front and back of the CSPV cell (figure 1.4). Different bifacial CSPV cell technologies, each with unique cell structures, have differing levels of bifaciality and efficiency. Bifaciality is the by-product of the cell technology, such as Passive Emitter Rear Contact (“PERC”) or heterojunction technologies, discussed later in this section. 36 Electricity is carried from the thin metal strips on solar cells to wider metal strips known as busbars. These busbars are interconnected during the manufacturing process so that electricity is carried from the cell to the junction box. 1.21 Figure 1.4 CSPV cells and modules: Monofacial and bifacial cell design Source: RatedPower, “Bifacial modules,” January 24, 2022, https://ratedpower.com/blog/bifacial- modules/. When assembled into bifacial CSPV modules, the efficiency of CSPV bifacial cells and those with bifaciality characteristics is fully realized when encapsulated in a front and rear glass structure, or a front glass and a rear transparent back sheet layer to allow reflected sunlight on the rear of the CSPV cell (figure 1.5). Figure 1.5 CSPV cells and modules: Bifacial module Source: Kinect Solar, “Everything you need to know about bifacial modules,” November 5, 2020, https://kinectsolar.com/everything-you-need-to-know-about-bifacial-modules/. 1.22 Figure 1.6 shows a monofacial module on the left with a traditional opaque back sheet, and a bifacial module on the right with a glass layer that allows light through the back side of the cell. The bifacial module’s ability to absorb both direct and ground-reflected irradiance has several advantages over monofacial modules, including an increase in energy yield. Figure 1.6 CSPV cells and modules: Assembly of monofacial module (left) and bifacial module (right) Source: IEA, Bifacial Photovoltaic Modules and Systems: Experience and Results from International Research and Pilot Applications, 2021, p. 28, https://iea-pvps.org/wp-content/uploads/2021/04/IEA- PVPS-T13-14_2021-Bifacial-Photovoltaic-Modules-and-Systems-report.pdf. Monofacial and bifacial modules have moved closer to cost parity in recent years (figure 1.7), and manufacturers who have switched from assembling monofacial modules to bifacial modules have had to make a few adjustments to their production lines, such as replacing the traditional back sheet with glass and sourcing bifacial cells.37 Figure 1.8 also presents the historical cost model results for solar PV module manufacturing in Asia in 2024 U.S. dollars per watt. 37 While NREL does not have data comparing manufacturing costs between monofacial and bifacial modules more recent than 2019, domestic producers of CSPV products reported that monofacial and bifacial modules have reached cost parity since then. Producers use bifacial cells in a lot of cases for a monofacial module product, knowing that there’s some capability being wasted by covering the back of the module with aluminum instead of glass, but forgoing the extra expense of making a different production line of monofacial cells. Conference transcript, pp. 73 to 78, 97 (Moskowitz). 1.23 Figure 1.7 CSPV cells and modules: Manufacturing cost of monofacial and bifacial modules Source: NREL, Bifacial PV System Performance: Separating Fact from Fiction, 2019, p. 6, https://www.nrel.gov/docs/fy19osti/74090.pdf. Figure 1.8 CSPV cells and modules: Historical Cost Model Results for Solar PV Module Manufacturing Source: NREL, “Solar Manufacturing Cost Analysis,” July 26, 2024, https://www.nrel.gov/solar/market- research-analysis/solar-manufacturing-cost. Note: The calculated overall minimum sustainable price is based on factory gate minimum sustainable price for each subcomponent. Results reflect production in Asia. 1.24 The two main types of CSPV cells are monocrystalline and multicrystalline (or polycrystalline) silicon, though there are various subtypes within these two categories, as discussed below. Monocrystalline cells are made from a single grown crystal and tend to convert sunlight into electricity more efficiently. Multicrystalline cells have a random crystal structure and tend to have a lower conversion efficiency, though there are a range of conversion efficiencies for monocrystalline and multicrystalline CSPV modules.38 38 Conversion efficiency is the percent of sunlight that is converted to electricity. 1.25 Monocrystalline and multicrystalline cells commonly use PERC and related technologies.39 PERC cells incorporate an additional rear dielectric layer that reflects light that did not generate electricity as it initially passed through the CSPV cell back into the CSPV cell. There is, therefore, another opportunity for the CSPV cell to absorb this light. PERC cells have a higher efficiency and improved performance in certain conditions, such as low light and high heat conditions. Monocrystalline cells can be either p-type or n-type. In the production of p-type of monocrystalline CSPV wafers, the silicon is doped with boron or gallium to create a positive electrical orientation. In the production of n-type mono wafers, the silicon is doped with phosphorous to create a negative electrical orientation. In the CSPV cell production process, a positive layer is added to create the p/n junction. N-type CSPV cells can be more expensive to produce, but have a number of benefits, such as higher conversion efficiencies and no light-induced degradation. Heterojunction n-type CSPV cells (including heterojunction with intrinsic thin layer (HIT)) add thin layers of photosensitive semiconductor materials (such as amorphous silicon) on top of an n-type monocrystalline wafer. These additional layers increase the absorption of sunlight and the overall efficiencies of the CSPV cells, as well as improve performance in hot climates. Tunnel Oxide Passivated Contacts (“TOPCon”) is another technology used for n-type cells. TOPCon cells are created by “depositing a nanometer scale layer of silicon oxide, followed by a thicker polycrystalline silicon layer, between the silicon wafer and metal contacts. The layers reduce charge recombination between the wafer and the contacts, increasing carrier lifetime and resulting in a conversion efficiency boost.” CSPV laminates CSPV laminates consist of CSPV cells that are connected, encapsulated (most commonly in an ethyl vinyl acetate (“EVA”) film), and covered with a glass front layer and a back sheet or rear glass. The back sheet is most commonly a plastic film composite, though glass is also used in some applications such as bifacial CSPV modules. CSPV laminates can use full cells or cells cut in smaller pieces, such as half-cut cells. These are standard CSPV cells that are cut, such that a standard 60-cell CSPV module would instead have 120 half cells. Half-cut cells result in lower cell currents and, therefore, reduce power losses and increase cell efficiency and overall 39 Related technologies include Passivated Emitter Rear Totally Diffused (PERT) and Passivated Emitter Rear Locally Diffused (PERL). 1.26 module output. Some products use shingling, paving, and other low or zero gap technologies to reduce the distance between cells. CSPV modules CSPV modules typically consist of the laminate that is typically framed in aluminum, and then attached to one or more junction boxes (figure 1.9).40 CSPV modules can be used in both ground-mounted and rooftop-mounted systems and in both the off-grid market segment and the three on-grid market segments—residential, nonresidential, and utility.41 The junction box can be connected to other modules, an inverter (which converts the direct current generated by the system to alternating current), or a battery and a charge controller (which controls battery charging). 40 Some CSPV modules do not use a frame, which reduces costs. These modules typically use glass as the rear layer to ensure mechanical stability. 41 Photovoltaics (“PV”) do not include solar water heat or concentrated solar power (“CSP”). While PV uses a photosensitive semiconductor material to convert sunlight directly to electricity, solar water heat uses sunlight to heat water and CSP uses reflected sunlight to generate steam or a vapor that turns a turbine to generate electricity. 1.27 Figure 1.9 CSPV cells and modules: CSPV modules with half-cut cells Source: PV Magazine webinars, “Filling in the gaps: The evolution of high-density module design,” June 25, 2020, https://www.pv-magazine.com/wp-content/uploads/2020/06/03-pv-magazine-Webinar_Q-Cells- Presentation.pdf. The most common on-grid CSPV modules have 60 cells (or 120 half-cut cells) or 72 cells (or 144 half-cut cells). In addition to standard size CSPV modules, CSPV cells can be used in building-integrated PV (“BIPV products”). BIPV products are materials integrated into the building envelope, such as the facade or roof, containing CSPV cells. These BIPV products replace conventional construction materials, such as glass or roof shingles, taking over the function that conventional materials would otherwise perform while also producing electricity. CSPV modules are also used in off-grid applications. In many instances, CSPV modules typically used in on-grid applications may also be used in off-grid applications. For example, a house that is not connected to the electrical grid could use the same CSPV modules as a house that is grid-connected. However, there is a broad range of off-grid applications, such as power generation in remote locations, mobile power solutions, telecommunications power and lighting systems, and portable consumer goods (such as systems for recharging consumer electronics like tablets and phones). The CSPV modules used in some of these applications may be different from those typically used in on-grid applications. For example, these products are often designed for specific power and portability requirements, and some CSPV modules have different wattages than CSPV modules used in grid-connected applications. Manufacturing processes42 There are five principal stages involved in the manufacture of CSPV products. First, polysilicon is refined, then it is formed into ingots, which are sliced into wafers, converted to CSPV cells, and assembled into the finished product, modules (figure 1.10). These are discrete production steps that may be done in different plants or locations. Companies may source 42 Unless otherwise noted, information in this section is based on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules from Cambodia, Malaysia, Thailand, and Vietnam, Inv. Nos. 701-TA-722-725 and 731-TA-1690-1693 (Final), USITC Publication 5631, June 2025, pp. 1.29-1.34. 1.28 products at each stage of the value chain or produce the products in-house. CSPV cells are tested and inspected during the production process. The ingot and wafer production process differs for monocrystalline and multicrystalline cells, as discussed below. Figure 1.10 CSPV cells and modules: Production process Source: NREL, “Solar Technology Cost Analysis,” accessed February 12, 2025, https://www.nrel.gov/solar/market-research-analysis/solar-cost-analysis.html. Note: For ingots, the cylindrical-shaped ingot is a crystal used in monocrystalline wafers, while the cube- shaped ingot is one used in making multicrystalline wafers. Polysilicon The first step in the CSPV value chain is refining polysilicon. There are multiple approaches to polysilicon refining. This discussion will focus on the Siemens method, which accounted for approximately 84 percent of total global polysilicon production in 2023, and fluidized bed reactor (“FBR”) technology, which accounts for most of the remaining market.43 In the first step in the Siemens process, quartz (silicon dioxide) and carbon are heated to around 1,800 degrees Celsius. The carbon reacts with the oxygen, resulting in carbon dioxide and silicon with a purity of around 98 to 99 percent. The silicon is then combined with hydrogen chloride gas at 300 to 350 degrees Celsius, with the reaction resulting in the liquid trichlorosilane. Next, heated silicon rods are inserted into a Siemens reactor, where they are further heated to 1,000 degrees Celsius or more. Hydrogen and trichlorosilane gas are fed into the 43 IEA, Trends in Photovoltaic Applications 2024, retrieved August 4, 2025, p. 51, https://iea- pvps.org/wp-content/uploads/2024/10/IEA-PVPS-Task-1-Trends-Report-2024.pdf. 1.29 reactor. The silicon from the trichlorosilane is deposited onto the rods, which steadily increase in size until they are removed from the reactor about a week later. The resulting products are high purity polysilicon chunks or rocks. Instead of inserting rods, FBR uses seed granules of purified silicon. The seed granules are fed into a chamber that has heated silane gas entering from below and exiting above. The flow of gas ‘fluidizes’ the silicon granules, causing them to flow like a liquid, as the silane gas breaks down and deposits silicon layers on them. The granules grow larger and heavier and exit when they are sufficiently large. As they do so, new seed granules and gas are introduced into the chamber and the process continues. The FBR process, which is newer than the Siemens process, uses 80 to 90 percent less energy, requires a smaller footprint, is a continuous process, takes up less space in shipping and can increase downstream production efficiency. However, the process is difficult to scale and achieve high purity production at low cost. Ingots and wafers for monocrystalline cells In the Czochralski process for producing crystals used in monocrystalline wafers, polysilicon rocks are first placed into a quartz crucible along with a small amount of boron, which is used to provide a positive electric orientation (figure 1.11). The crucible is then loaded into a Czochralski furnace and heated to about 2,500 degrees Fahrenheit. Once the polysilicon is melted, a seed crystal is lowered into the material and rotated, with the crucible rotated in the opposite direction. The melt starts to solidify on the seed and the seed is slowly raised out of the melt—creating a single long crystal. The crystal is then cooled before it is moved onto the next step. The process of growing the crystal takes about 2.5 days. Once the crystal has cooled, it is processed into wafers. The top and tail (each end of the cylindrical crystal) are cut off (figure 1.12). The remaining portion of the crystal (or ingot) is cut into equal length pieces and then it is squared. In squaring, the rounded sides of the ingot are cut into four flat sides, leaving only rounded corners. A wire saw then slices the ingots into wafers. A majority of global manufacturers have switched to diamond wire saws for monocrystalline wafer slicing, which has several benefits including increasing the speed of the production process. The wafers are then cleaned, dried, and inspected. 1.30 Figure 1.11 Czochralski process, crucible loading/charging (left), seed crystal (second from left), crystal growing (second from right), and finished crystal (right) Source: SolarWorld, “Energy for you and me”, pp. 8-9, https://www.akamaienergyhawaii.com/dimages/17118/solar-101-eng-solar-photovoltaic.pdf. Figure 1.12 Wafer production: Cutting off the top and tail (left), squaring (middle), and slicing into wafers (right) Source: Source: SolarWorld, “Energy for you and me”, pp. 10-11, https://www.akamaienergyhawaii.com/dimages/17118/solar-101-eng-solar-photovoltaic.pdf. Ingots and wafers for multicrystalline cells For multicrystalline ingots, the first step is also loading polysilicon into a crucible. This crucible is then loaded into a directional solidification systems (DSS) furnace, where it is cast into ingots. The ingot is then cut into blocks. These blocks are tested and any parts of the block that do not pass these tests are cropped off. The blocks are sliced into wafers using a wire saw. Finally, the wafers are cleaned, dried, and inspected. This process results in square wafers, while the monocrystalline process results in wafers with rounded corners. 1.31 CSPV cells The monocrystalline and multicrystalline wafers, which are 180 to 200 micrometers thick, are next processed into CSPV cells.44 CSPV cell production is capital intensive and requires a skilled workforce. Some firms use a highly automated manufacturing process, while others mix automation and manual labor in their production processes. The main steps in CSPV cell production are as follows:45 • Cleaning and texturing: First, the wafers are cleaned, then the surface of the wafer undergoes a chemical treatment that reduces the reflection of sunlight and increases light absorption (figure 1.13). • Diffusion: Wafers are then moved into oven-like chambers where phosphorous is diffused into a thin layer of the surface, which gives the surface a negative potential electrical orientation. The combination of this layer and the boron-doped layer below creates a p/n junction. • Edge isolation: A thin layer of silicon is then removed from the edge of the CSPV cell to separate the positive and negative layers. • Coating: Next, a silicon nitride antireflective coating is added to the PV cells to increase the absorption of sunlight. • Printing: Metals are then printed on the solar CSPV cell to collect the electricity. On the front of the CSPV cell, these metals are printed in thin metal strips called fingers, which are connected to the rest of the module via busbars. A metal layer, typically aluminum, is also printed on the back of the CSPV cell. • Testing and sorting: The final step in the process is the testing and sorting of the CSPV cells based on their characteristics and efficiency. 44 The cell manufacturing process varies by company and technology. 45 This section will discuss the general manufacturing process. There may be additional steps for certain technologies. 1.32 Figure 1.13 CSPV cell production: Texturing (top) and screen printing (bottom) Source: SolarWorld, “Energy for you and me”, pp. 12-13, https://www.akamaienergyhawaii.com/dimages/17118/solar-101-eng-solar-photovoltaic.pdf. 1.33 CSPV modules The CSPV cells are next assembled into modules. The extent of automation and manual labor involved in module assembly varies depending on the company, though it is generally the most labor-intensive part of the manufacturing process. First, a string of CSPV cells is soldered together. A piece of glass is placed on the production line, on top of which is added a piece of ethyl vinyl acetate (“EVA”). The CSPV cells are laid out in a rectangular matrix that will provide the appropriate wattage and power requirements. Typically, a sealant is added, often EVA, and a back sheet is added. The CSPV cells are then laminated in a vacuum and are cured. At this stage, the CSPV cells are referred to as a “laminate.” Frames are then usually attached to the laminate, and a junction box is attached to the back. In the final step, modules are cleaned and inspected. CSPV modules are tested and inspected throughout the production process. Domestic like product issues The petitioner proposed that the Commission should define a single like product coextensive with the scope, including both cells and modules.46 Canadian Solar US Module Manufacturing Corporation (“Canadian Solar”), Heliene USA Inc. (“Heliene”), and Silfab Solar WA Inc. (“Silfab”), all U.S. producers of the domestic like product, argued that the Commission should recognize that CSPV solar cells and modules constitute separate domestic like products because 1) CSPV solar cells and modules support distinct markets, 2) CSPV solar cells and modules have distinct physical characteristics and functionality, 3) the transformation of a CSPV cell into a module adds significant value, 4) creating CSPV modules is a transformative and capital-intensive process, and 5) CSPV solar cells are not entirely dedicated to in-scope CSPV solar modules and have other applications.47 For more information on U.S. producers’ and importers’ responses on factor comparisons regarding differences and similarities between the intermediate and downstream products, see appendix D. 46 Petition, pp. 3 to 4, and 22 to 26 and petitioners’ postconference brief, p. 3. 47 Canadian Solar, Heliene, and Silfab’s joint postconference comments, pp. 1 to 8. 2.1 Part 2: Conditions of competition in the U.S. market U.S. market characteristics There are three primary on-grid market segments for CSPV products – residential, nonresidential (commercial), and utility. These segments account for the vast majority of CSPV modules sold in the United States while the vast majority of CSPV cells (“cells”) are used in the production of CSPV modules (“modules”). Modules vary in size, nominal power output, and output efficiency. The current solar industry is characterized by regulations on imports, including the Withhold Release Order (“WRO”) pursuant to the Uyghur Forced Labor Prevention Act (“UFLPA”); the Section 301, Section 232, and AD/CVD tariffs on CSPV products and certain inputs; the Section 201 safeguard measure on cells and modules; and tariffs initiated under the International Emergency Economic Powers Act (“IEEPA”). It is also characterized by policies to encourage domestic electricity generation and/or the use of domestic CSPV products in domestic electricity generation projects. These policies include the Investment Tax Credit (“ITC”), the Production Tax Credit (“PTC”), the Inflation Reduction Act (“IRA”); and the One Big Beautiful Bill Act (“OBBBA”).1 Petitioners described the global market for CSPV products as supplied primarily by China, the world’s largest CSPV products producer. For example, U.S. producer QCells stated that even in subject countries, CSPV products purchased for projects within those countries would likely come from China, while subject product would be for export.2 This dynamic is largely driven by China's dominant global market position, persistent overcapacity, and strategic circumvention of U.S. trade measures.3 Concerns exist regarding potential export controls on Chinese PV cell equipment and the difficulty in sourcing non-Chinese polysilicon. However, industry analysts report that import data shows controls on equipment have not been imposed.4 Both U.S. supply of CSPV products and U.S. demand for CSPV products increased over 2022 to 2024, as discussed in more detail below. According to data from Commission questionnaire responses, apparent U.S. consumption of CSPV products by quantity in 2024 was *** percent higher than in 2022, increasing by *** percent between 2022 and 2023, and then further increasing by *** percent between 2023 and 2024. Petitioners described the 1 See Part 3 for more information. 2 Conference transcript, pp. 67 to 68 (Moskowitz). 3 Petitioners’ postconference brief, pp. 17 to 18. 4 Canadian Solar, Heliene, Silfab Joint postconference brief, attachment 5, p. 37. 2.2 U.S. CSPV market as currently having “irrationally high” inventory levels at multiple channels of distribution, including U.S. producers, importers, and purchasers.5 Eleven of 13 responding U.S. producers and 28 of 44 responding importers indicated that the CSPV cells and/or modules market was subject to distinctive conditions of competition. Specifically, U.S. producers and importers indicated that cells are almost always internally consumed by an affiliated module producer and are typically only sold to unaffiliated firms if the cell producer is not also participating in the modules market. Some U.S. producers and importers also stated that global capacity continues to outpace global demand, resulting in price declines and buildup of inventories. Firms also noted that tariffs and other policies, such as the UFLPA, have limited availability and/or increased costs for cells and raw materials, while government incentives such as the IRA have increased demand for domestic product. Additionally, producers and importers reported increasing global capacity has resulted in price declines and oversupply. Several firms also stated that oversupply combined with difficulties in accessing raw materials due to tariffs and other trade policies have resulted in price fluctuations for modules, while government incentives such as the IRA have increased demand. Multiple firms also reported that frequent improvements in technology are occurring within the industry, with one firm specifically noting shortened life cycles and another firm stating that cost pressures are increasingly pushing producers to address customer needs in efficient and reliable ways. Impact of Section 301 tariffs, Section 232 tariffs, and new and modified tariffs U.S. producers and importers were asked to report the impact of Section 301 tariffs, Section 232 tariffs, and 2025 new and modified tariffs on overall demand, supply, prices, or raw material costs. Most firms reported that the Section 301 tariffs had an impact on the market for CSPV products, with several firms specifically reporting increased costs for raw materials and machinery used to manufacture CSPV products. With respect to the Section 232 tariffs, most firms reported that the tariffs did not have an impact on the market for CSPV products or that they did not know if the tariffs had an impact. Additionally, almost all firms reported that tariff announcements and tariff changes associated with Presidential actions since January 1, 2025 have impacted the CSPV cells and modules market in the United States. These firms mostly described higher prices for CSPV cells and modules and higher costs for the inputs into 5 Petitioners’ postconference brief, pp. 20 to 21 and conference transcript, p. 76 (Moskowitz). 2.3 producing CSPV cells and modules. Others described the effects as difficult to determine in the short run. Table 2.1 CSPV cells and modules: Count of firms' responses regarding the impact of the section 301 tariffs on Chinese origin products Count in number of firms Firm type No Yes Don’t know U.S. producers 2 8 4 Importers 6 24 12 Source: Compiled from data submitted in response to Commission questionnaires. Table 2.2 CSPV cells and modules: Count of firms' responses regarding the impact of the section 232 tariffs on steel and aluminum imports Count in number of firms Firm type No Yes Don’t know U.S. producers 4 4 5 Importers 14 12 18 Source: Compiled from data submitted in response to Commission questionnaires. Table 2.3 CSPV cells and modules: Count of firms' responses regarding the impact of new or modified tariffs since January 1, 2025 Count in number of firms Firm type No Yes Don’t know U.S. producers 0 8 4 Importers 0 30 12 Source: Compiled from data submitted in response to Commission questionnaires. Channels of distribution U.S. shipments from U.S. producers were primarily sold to distributors and residential installers during 2022 and 2023, and then shifted to primarily utilities and developers, and distributors in 2024.6 U.S. producers reported no U.S. shipments to module assemblers during 2022 and 2023, and a small amount in 2024.7 Almost all shipments of CSPV products from India went to residential installers and utilities/developers in 2022 with a greater shift to utilities/developers in 2023 and 2024. A 6 The vast majority of U.S. shipments from U.S. producers to utilities and developers in 2024 were from *** and ***. 7 U.S. producer shipments to module assemblers in 2024 ***. *** U.S. producer questionnaire response, sections 2.2 and 2.9. 2.4 majority of shipments of CSPV products from Indonesia went to distributors and module assemblers throughout the period of investigation. No U.S. shipments of imports from Indonesia or Laos were reported as sold to residential and very little to commercial installers. A majority of the shipments of CSPV products from nonsubject countries went to utilities/developers. Table 2.4 CSPV cells and modules: Share of U.S. shipments by source, channel of distribution, and period Shares in percent; interim is January through March Source Channel 2022 2023 2024 Interim 2024 Interim 2025 United States Distributors *** *** *** *** *** United States Module assemblers *** *** *** *** *** United States Residential installers *** *** *** *** *** United States Commercial installers *** *** *** *** *** United States Utilities/developers *** *** *** *** *** India Distributors *** *** *** *** *** India Module assemblers *** *** *** *** *** India Residential installers *** *** *** *** *** India Commercial installers *** *** *** *** *** India Utilities/developers *** *** *** *** *** Indonesia Distributors *** *** *** *** *** Indonesia Module assemblers *** *** *** *** *** Indonesia Residential installers *** *** *** *** *** Indonesia Commercial installers *** *** *** *** *** Indonesia Utilities/developers *** *** *** *** *** Laos Distributors *** *** *** *** *** Laos Module assemblers *** *** *** *** *** Laos Residential installers *** *** *** *** *** Laos Commercial installers *** *** *** *** *** Laos Utilities/developers *** *** *** *** *** Subject Distributors *** *** *** *** *** Subject Module assemblers *** *** *** *** *** Subject Residential installers *** *** *** *** *** Subject Commercial installers *** *** *** *** *** Subject Utilities/developers *** *** *** *** *** Nonsubject Distributors *** *** *** *** *** Nonsubject Module assemblers *** *** *** *** *** Nonsubject Residential installers *** *** *** *** *** Nonsubject Commercial installers *** *** *** *** *** Nonsubject Utilities/developers *** *** *** *** *** All imports Distributors *** *** *** *** *** All imports Module assemblers *** *** *** *** *** All imports Residential installers *** *** *** *** *** All imports Commercial installers *** *** *** *** *** All imports Utilities/developers *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 2.5 Geographic distribution U.S. producers and importers reported selling CSPV cells and modules to all regions in the United States (table 2.5). For U.S. producers, *** percent of sales were within 100 miles of their production facility, *** percent were between 101 and 1,000 miles, and *** percent were over 1,000 miles. Importers sold *** percent within 100 miles of their U.S. point of shipment, *** percent between 101 and 1,000 miles, and *** percent over 1,000 miles. Table 2.5 CSPV cells and modules: Count of U.S. producers’ and U.S. importers’ geographic markets Count in number of firms reporting Region U.S. producers India Indonesia Laos Subject sources Northeast 9 6 6 2 12 Midwest 10 7 5 2 12 Southeast 12 5 5 3 10 Central Southwest 12 7 9 4 16 Mountains 9 4 3 2 7 Pacific Coast 10 6 8 4 14 Other 5 0 2 2 2 All regions (except Other) 7 3 3 2 6 Reporting firms 14 12 10 4 22 Source: Compiled from data submitted in response to Commission questionnaires. Note: Other U.S. markets include AK, HI, PR, and VI. Supply and demand considerations U.S. supply Table 2.6 provides a summary of the supply factors regarding CSPV cells and modules from U.S. producers and from producers in India, Indonesia, and Laos. During 2022 to 2024, capacity for both cells and modules generally increased for both the United States and subject countries. For 2024, capacity utilization for cells was high in Laos, but lower in India and Indonesia. For modules, the utilization rate decreased for producers in the United States and Indonesia but increased in India. No subject cell producers reported being able to shift production, and for modules, all but a few producers in the United States, India, and Indonesia reported being unable to shift production. 2.6 Table 2.6 CSPV cells and modules: Supply factors that affect the ability to increase shipments to the U.S. market, by country Quantity in kilowatts; ratio and share in percent Factor Measure United States India Indonesia Laos Subject sources Cells: Capacity 2022 Quantity *** *** *** *** *** Cells: Capacity 2024 Quantity *** *** *** *** *** Cells: Capacity utilization 2022 Ratio *** *** *** *** *** Cells: Capacity utilization 2024 Ratio *** *** *** *** *** Cells: Inventories to total shipments 2022 Ratio *** *** *** *** *** Cells: Inventories to total shipments 2024 Ratio *** *** *** *** *** Cells: Home market shipments 2024 Share *** *** *** *** *** Cells: Non-US export market shipments 2024 Share *** *** *** *** *** Cells: Ability to shift production Count *** *** *** *** *** Modules: Capacity 2022 Quantity *** *** *** *** *** Modules: Capacity 2024 Quantity *** *** *** *** *** Modules: Capacity utilization 2022 Ratio *** *** *** *** *** Modules: Capacity utilization 2024 Ratio *** *** *** *** *** Modules: Inventories to total shipments 2022 Ratio *** *** *** *** *** Modules: Inventories to total shipments 2024 Ratio *** *** *** *** *** Modules: Home market shipments 2024 Share *** *** *** *** *** Modules: Non-US export market shipments 2024 Share *** *** *** *** *** Modules: Ability to shift production Count *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Counts equal the number of firms reporting "yes". Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Note: Responding U.S. producers accounted for all known U.S. production of CSPV cells and a large majority of known U.S. production of CSPV modules in 2024. Responding foreign producer/exporter firms accounted for *** percent of known production of CSPV cells and modules in India, *** percent of cells and modules production in Indonesia, and *** percent of cells and modules production in Laos. For additional data on the number of responding firms and their share of U.S. production and of U.S. imports from each subject country, please refer to Parts 3 and 7. 2.7 Domestic production Based on available information, U.S. producers of CSPV products have the ability to respond to changes in demand with small changes in the quantity of shipments of U.S. produced cells and large changes in the quantity of shipments of U.S.-produced modules to the U.S. market. The main factor mitigating responsiveness of supply in cells is the limited capacity of CSPV cells, as domestic commercial production did not restart until late 2024.8 The main contributing factors to the high degree of responsiveness of supply in modules include the high availability of unused capacity, increased availability of inventories, and ability to ship to all regions of the United States.9 Factors mitigating responsiveness of supply of modules include the inability to shift shipments from alternate markets or inventories and limited ability to shift to or from alternate products. Domestic modules capacity increased by *** percent between 2022 and 2024, while inventories increased by *** percent, leading capacity utilization to decrease by *** percentage points. All but two firms reported that they were not able to switch production to other products. U.S. producer, ***, reported that some of its equipment can be used for production of amorphous silicon modules as well. U.S. producer *** reported that it can switch production to other PV products (such as modules with different nameplate capacities) as long as those products use the same technology (e.g., N-type) and manufacturing processes. Subject imports from India Based on available information, producers of CSPV cells and modules from India have the ability to respond to changes in demand with large changes in the quantity of shipments of CSPV cells and modules to the U.S. market. The main contributing factors to this degree of responsiveness of supply are the availability of unused capacity for both cells and modules and the ability to shift shipments of cells from alternate markets. Production capacity for both cells and modules increased in India from 2022 to 2024 by *** percent and *** percent respectively. While the capacity utilization rate increased for cells, by *** percentage points, the capacity utilization rate for modules increased by *** 8 Suniva, the only responding U.S. producer with production of CSPV cells, reported ***. See Suniva’s U.S. producer questionnaire response, section 4.19b. 9 See Part 3 for data on U.S. producers’ reported inventories. See table 2.5 for U.S. producers’ reported geographic distribution of sales. 2.8 percentage points. A large majority of shipments of modules reported by producers in India were reported as home market shipments with the remaining reported as exports to the U.S. Subject imports from Indonesia Based on available information, producers of CSPV cells and modules from Indonesia have the ability to respond to changes in demand with large changes in the quantity of shipments of CSPV cells and modules to the U.S. market. The main contributing factors to this degree of responsiveness of supply are availability of unused capacity, availability of inventories, and the ability to shift shipments from alternate markets. Production capacity for both cells and modules increased in Indonesia, however the capacity utilization rates declined to *** percent for cells and decreased *** percent for modules. During 2022 to 2024, a large share (*** percent) of CSPV cell shipments from Indonesia were reported as internal consumption while the vast majority (*** percent) of shipments of CSPV modules were reported as exports to the U.S. Subject imports from Laos Based on available information, producers of CSPV cells and modules from Laos have the ability to respond to changes in demand with large changes in the quantity of shipments of CSPV cells and modules to the U.S. market. The main contributing factors to this degree of responsiveness of supply are demonstrated ability to add large amounts of capacity during 2022 to 2024. Production capacity and the capacity utilization rates for both cells and modules increased significantly in Laos going from being *** in 2022 to *** percent in 2024. During 2022 to 2024, a large share (*** percent) of CSPV cell shipments from Laos was reported as non-U.S. export market shipments, while a portion of shipments, *** percent, of CSPV modules reported by producers in Laos were reported as exports to the United States.10 Imports from nonsubject sources Nonsubject imports accounted for *** percent of total U.S. imports by quantity in 2024. The majority of nonsubject imports in 2024 came from Cambodia, Malaysia, Thailand, and/or Vietnam. See Part 4 for more information on nonsubject imports. 10 See Part 7 for additional data on foreign producers’ reported shipments. 2.9 Supply constraints Ten U.S. producers and 36 importers reported that they had not experienced supply constraints since January 1, 2022. Four U.S. producers and eight importers indicated that there were supply constraints. Among U.S. producers, *** reported polysilicon undersupply in 2022 which shifted to oversupply in 2023. In 2024, U.S. producer *** resumed production of CSPV cells but quickly reached ***, while *** delayed new solar shingle certification due to pending tariffs. U.S. producer *** struggled with labor and raw material supply constraints. Among U.S. importers, *** reported experiencing supply chain disruptions due to the COVID-19 pandemic in both 2022 and 2023, followed by extended custom holds for some shipments in 2024. In 2024 and 2025, importer *** reported shipping route delays due to global conflicts and container availability issues caused by a shipping rush to beat reciprocal tariffs. U.S. demand Based on available information, the overall demand for CSPV products is likely to experience moderate changes in response to changes in price. The main contributing factors are the somewhat limited range of substitute products and the moderate-to-large cost share of CSPV products in most of their end-use products. Demand for CSPV products is derived from the demand for solar electricity, which is influenced by factors such as cost competitiveness with traditional energy sources, environmental concerns, a desire for national energy independence, total energy consumption, and the availability of federal, state, and local incentives to produce and/or install CSPV products.11 According to the EIA, 37 GW of solar power capacity was added to the electric power sector in 2024, almost double solar capacity additions in 2023, and an additional 26 GW of solar capacity is expected to be added in 2025, and 22 GW in 2026.12 Electricity demand in the United States is supplied primarily by conventional sources, but the share of electricity generated from renewable energy sources has been steadily increasing. As shown in table 2.7, solar energy grew from 3.4 percent to 5.1 percent of utility- scale electricity generation between 2022 and 2024. 11 Crystalline Silicon Photovoltaic Cells, Whether or Not Partially or Fully Assembled Into Other Products: Monitoring Developments in the Domestic Industry, Investigation No. TA-201-075 (Second Monitoring), USITC Publication 5494, February 2024, p. 2.12. 12 Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules from Cambodia, Malaysia, Thailand, and Vietnam Investigation No 701-TA-722–725 and 731-TA-1690–1693 (Final) prehearing brief, exh. 5. 2.10 Table 2.7 CSPV cells and modules: Share of net electricity generation in the United States, by type and year Share in percent Electricity generation type 2022 2023 2024 Natural gas 39.9 43.2 43.3 Nuclear 18.2 18.5 18.2 Coal 19.7 16.1 15.2 Wind 10.3 10.1 10.5 Solar 3.4 4.0 5.1 All other 8.6 8.1 7.7 All electricity generation types 100.0 100.0 100.0 Source: EIA, http://www.eia.gov/electricity/data/browser/, retrieved August 20, 2025. For decades prior to 2022, domestic electricity generation from “clean” sources have been eligible for tax credits from the ITC and PTC. In 2022, the IRA extended these programs and added two new ones, the clean electricity investment tax credit (“CEITC”) and the clean electricity production tax credit (“CEPTC”). Additionally, the IRA added “bonus credits” (in all four programs) for electricity generation projects that meet domestic content requirements.13 However, the OBBBA of 2025 shortened the deadlines for projects to qualify for tax credits as well as restricting qualifications for some types of foreign ownership. The OBBBA continued the IRA’s bonus credits.14 Additionally, Federal programs such as the Weatherization Assistance Program (“WAP”) and the Low Income Home Energy Assistance Program (“LIHEAP”) provide funds that can be applied to using solar energy. The WAP, for example, provides funding to states to help low- income households reduce energy costs by increasing their home’s energy efficiency, and explicitly includes solar as such a method.15 End uses and cost share The majority of reported end uses for CSPV cells were for assembly into CSPV modules, while the majority of reported end uses for CSPV modules include residential, commercial, and utility systems.16 13 See Congressional Research Service, Domestic Content Requirements for Electricity Tax Credits in the Inflation Reduction Act (IRA), January 16, 2025. 14 See https://www.thomsonreuters.com/en-us/posts/sustainability/one-big-beautiful-bill-act-clean- energy/, downloaded August 15, 2025. 15 See https://www.energy.gov/eere/solar/energy-related-federal-financial-assistance-programs , accessed August 15, 2025. 16 Other reported end uses for cells include solar roofing shingles, off-grid trucks, off-grid RVs, and off-grid trailers, while other reported end uses for modules include solar panels, commercial & utility systems, electric fence chargers, residential systems, solar shingles, tonneau covers, and utility systems. 2.11 CSPV products account for a moderate-to-large share of the cost of the end-use products in which they are used. U.S. producers’ and importers’ reported cost shares for CSPV cells used for modules ranged from 20 to 67 percent. Reported cost shares for CSPV modules varied widely, but most responding U.S. producers and importers estimated that CSPV modules were 5 to 60 percent of the cost of a commercial system, 19 to 60 percent of the cost of a utility system, and 10-13 percent of the cost of a residential system. Business cycles Eleven of 13 U.S. producers and 22 of 43 importers indicated that the CSPV products market was subject to business cycles. Specifically, responding U.S. producers and importers cited seasonal trends due to weather, with some firms specifying that winter weather slows down installations and that summer months are more active. Two U.S. producers/importers reported a surge in demand for closing projects by the end of the year, while another reported stronger market demand due to incentives to promote solar installation in the United States. Two U.S. producers (***) reported that the solar industry is subject to the broader macroeconomic cycles of expansion and recession along with factors such as interest rates, economic growth (energy demand), and inflation. Demand trends Most U.S. producers and importers reported that U.S. and foreign demand for CSPV products increased, either steadily or with fluctuations, since January 1, 2022 (table 2.8). In additional comments, multiple firms described large increases in demand, sometimes attributing the increases to Federal subsidies and desires to generate more “clean” energy. Table 2.8 CSPV cells and modules: Count of firms’ responses regarding overall domestic and foreign demand, by firm type Count in number of firms reporting Market Firm type Steadily Increase Fluctuate Up No change Fluctuate Down Steadily Decrease Domestic demand U.S. producers 8 4 1 0 0 Domestic demand Importers 18 15 4 4 3 Foreign demand U.S. producers 6 0 3 0 0 Foreign demand Importers 26 2 3 0 0 Source: Compiled from data submitted in response to Commission questionnaires. 2.12 Substitute products Most responding U.S. producers (10 of 12) and importers (35 of 38) reported that there were no substitutes for CSPV cells. Regarding CSPV modules, (8 of 13) U.S. producers and (35 of 40) importers reported that there were no substitutes. Those firms listing substitutes identified other types of thin film modules in utility scale applications. U.S. producer *** identified amorphous silicon solar and CIGS solar as substitutes for battery maintenance. Substitutability issues This section assesses the degree to which U.S.-produced CSPV and imports of CSPV from subject countries can be substituted for one another by examining the importance of certain purchasing factors and the comparability of CSPV from domestic and imported sources based on those factors. Based on available data, staff believes that there is a moderate-to-high degree of substitutability between domestically produced CSPV and CSPV imported from subject sources.17 Factors contributing to the moderate-to-high level of substitutability include the high degree of interchangeability between domestic and subject sources. Factors reducing substitutability include different lead times from domestic and subject sources and significant factors other than price that firms consider. Due to differences in availability, substitutability is likely to be closer to moderate for cells and closer to high for modules. Factors affecting purchasing decisions Most important purchase factors Purchasers responding to lost sales lost revenue allegations18 were asked to identify the main purchasing factors their firm considered in their purchasing decisions for CSPV. The most often cited top three factors firms consider in their purchasing decisions for CSPV were quality (four firms), availability/supply (three firms), and price/cost (two firms) as shown in table 2.9. Quality was the most frequently cited first-most important factor (cited by all four firms), followed by availability/supply (one firm). 17 The degree of substitution between domestic and imported CSPV depends upon the extent of product differentiation between the domestic and imported products and reflects how easily purchasers can switch from domestically produced CSPV to the CSPV imported from subject countries (or vice versa) when prices change. The degree of substitution may include such factors as quality differences (e.g., grade standards, defect rates, etc.), and differences in sales conditions (e.g., lead times between order and delivery dates, reliability of supply, product services, etc.). 18 This information is compiled from responses by purchasers identified by Petitioners to the lost sales lost revenue allegations. See Part 5 for additional information. 2.13 Table 2.9 CSPV modules: Count of ranking of factors used in purchasing decisions as reported by purchasers, by factor Factor First Second Third Total Quality 3 1 0 4 Availability / Supply 1 2 0 3 Price / Cost 0 1 1 2 All other factors 0 0 3 NA Source: Compiled from data submitted in response to Commission questionnaires. Note: Other factors include supplier bankability, commercial terms, and long-term relationships. Lead times U.S. producers reported the majority (59.4 percent) of their CSPV cells and modules as sold from inventory, with lead times averaging 33 days. The remaining 40.6 percent of their commercial shipments were produced-to-order with lead times averaging 78 days.19 U.S. importers reported most (99.7 percent) of their CSPV products as produced-to-order, with lead times averaging 149 days. The remaining 0.3 percent of their commercial shipments were sold from U.S. inventories, with lead times averaging 23 days. Comparison of U.S.-produced and imported CSPV In order to determine whether U.S.-produced CSPV products can generally be used in the same applications as imports from India, Indonesia, and Laos, U.S. producers and importers were asked whether the products can always, frequently, sometimes, or never be used interchangeably. As shown in tables 2.10 and 2.11, most responding U.S. producers and importers reported that CSPV products were always or frequently interchangeable across all sources. U.S. importers were more likely than U.S. producers to report that products from different sources were sometimes or never interchangeable. U.S. producer *** reported that ***. Importers *** add that the interchangeability restriction can also be based on the power output of the panels, as most panels have higher output then what is used for solar-powered pumps. Importer *** described CSPV cell and module specifications, quality, and consistency as affecting interchangeability among imported CSPV products. 19 More firms reported lead times for CSPV products sold from inventory than produced-to-order. 2.14 Table 2.10 CSPV cells and modules: Count of U.S. producers reporting the interchangeability between product produced in the United States and in other countries, by country pair Count in number of firms reporting Country pair Always Frequently Sometimes Never United States vs. India 6 1 2 0 United States vs. Indonesia 7 2 2 0 United States vs. Laos 6 2 1 0 India vs. Indonesia 6 1 1 0 India vs. Laos 6 1 1 0 Indonesia vs. Laos 6 2 1 0 United States vs. Other 6 2 3 0 India vs. Other 6 1 1 0 Indonesia vs. Other 6 2 1 0 Laos vs. Other 6 2 1 0 Source: Compiled from data submitted in response to Commission questionnaires. Table 2.11 CSPV cells and modules: Count of importers reporting the interchangeability between product produced in the United States and in other countries, by country pair Count in number of firms reporting Country pair Always Frequently Sometimes Never United States vs. India 6 7 4 3 United States vs. Indonesia 9 6 6 2 United States vs. Laos 6 6 3 2 India vs. Indonesia 7 5 4 0 India vs. Laos 7 3 5 0 Indonesia vs. Laos 7 7 4 0 United States vs. Other 9 8 4 2 India vs. Other 9 4 4 0 Indonesia vs. Other 10 6 4 0 Laos vs. Other 9 5 5 0 Source: Compiled from data submitted in response to Commission questionnaires. In addition, U.S. producers and importers were asked to assess how often differences other than price were significant in sales of CSPV products from the United States, subject, or nonsubject countries. As seen in tables 2.12 and 2.13, most U.S. producers reported that differences other than price were sometimes or never significant while importers’ responses were mixed; the majority of importers reported that differences other than price were sometimes or always significant. Importers reported several non-price factors influencing purchasing decisions, including shorter delivery lead times (as reported by ***) and differences in product quality and technical support. U.S. importer *** reported that U.S.-origin products have more consistent quality control and 2.15 broader certifications. Other importers also identified domestic content, quality, service, reliability, customer relationships, end-use application requirements, and supply chain considerations as important non-price factors. Table 2.12 CSPV cells and modules: Count of U.S. producers reporting the significance of differences other than price between product produced in the United States and in other countries, by country pair Count in number of firms reporting Country pair Always Frequently Sometimes Never United States vs. India 2 2 2 3 United States vs. Indonesia 2 2 4 3 United States vs. Laos 2 1 3 3 India vs. Indonesia 2 1 2 3 India vs. Laos 2 1 2 3 Indonesia vs. Laos 2 1 3 3 United States vs. Other 2 2 3 4 India vs. Other 2 1 2 3 Indonesia vs. Other 2 1 3 3 Laos vs. Other 2 1 3 3 Source: Compiled from data submitted in response to Commission questionnaires. Table 2.13 CSPV cells and modules: Count of importers reporting the significance of differences other than price between product produced in the United States and in other countries, by country pair Count in number of firms reporting Country pair Always Frequently Sometimes Never United States vs. India 8 3 4 3 United States vs. Indonesia 5 1 13 2 United States vs. Laos 5 2 6 2 India vs. Indonesia 5 2 4 3 India vs. Laos 5 2 3 3 Indonesia vs. Laos 3 1 9 3 United States vs. Other 5 5 6 4 India vs. Other 5 4 2 4 Indonesia vs. Other 3 2 8 4 Laos vs. Other 3 2 7 4 Source: Compiled from data submitted in response to Commission questionnaires. 3.1 Part 3: U.S. producers’ production, shipments, and employment The Commission analyzes a number of factors in making injury determinations (see 19 U.S.C. §§ 1677(7)(B) and 1677(7)(C)). Information on the subsidies and dumping margins was presented in Part 1 of this report and information on the volume and pricing of imports of the subject merchandise is presented in Part 4 and Part 5. Information on the other factors specified is presented in this section and/or Part 6 and (except as noted) is based on the questionnaire responses of fifteen firms that accounted for the *** of U.S. production of CSPV modules during 2024 and one firm, Suniva that accounted for virtually all known U.S. production of CSPV cells during 2024.1 2 3 U.S. producers The Commission issued a U.S. producer questionnaire to 23 firms based on information contained in the petition, and outside sources. Fifteen firms provided usable data on their operations.4 Table 3.1 lists U.S. producers of CSPV cells and modules, their production locations, positions on the petition, and shares of total production. 1 ***. ***’s U.S. producer questionnaire response, section 2.2. The Commission received a letter on behalf of ***, a U.S. manufacturer of solar modules in Tolleson, Arizona, and wholly owned subsidiary of *** since April 2025. The firm began operations since it was acquired by *** and during January to March 2025, *** reported the following: 1) installed capacity, *** kilowatts; 2) practical CSPV module capacity, *** kilowatts; 3) production of CSPV modules, *** kilowatts; 4) transfers to related firms, *** kilowatts; and 5) *** inventories. Letter from ***, July 31, 2025. 2 Domestic industry representatives testified that ES Foundry in Greenwood, South Carolina is also commercially active producing and shipping CSPV cells in the U.S., while several other cell factories are under construction. Conference transcript, p. 100 (Moskowitz). 3 Four U.S. producers of CSPV modules, *** were issued questionnaires but did not provide a response. One U.S. producer, *** submitted a late questionnaire which is not included in the report. 4 One firm, ***, certified that it did not produce CSPV cells and modules in the United States since January 1, 2022. ***’s U.S. producer questionnaire response. 3.2 Table 3.1 CSPV cells and modules: U.S. producers, their positions on the petition, production locations, and shares of reported production, 2024 Firm Position on petition Production location(s) Share of module production Share of cell production Canadian Solar *** Mesquite, TX *** *** GAF Energy *** San Jose, CA Georgetown, TX *** *** Hanwha GA Petitioner Dalton, GA Cartersville, GA *** *** Hounen *** Orangeburg, SC *** *** Illuminate *** Pataskala, Ohio *** *** Merlin *** San Jose, CA *** *** Meyer Burger *** Goodyear, AZ *** *** Mission Petitioner San Antonio, TX *** *** PowerFilm *** Ames, IA *** *** Runergy *** Huntsville, AL *** *** SEG Manufacturing *** Houston, Texas *** *** Silfab *** Bellingham WA Burlington WA *** *** Suniva *** Norcross, GA *** *** SunTegra *** Larchmont, NY Endicott, NY *** *** Trina/T1 *** Wilmer, Texas *** *** All firms Various Various 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. ***. 3.3 Table 3.2 presents information on U.S. producers’ ownership, related and/or affiliated firms. Table 3.2 CSPV cells and modules: U.S. producers' ownership, related and/or affiliated firms Reporting firm Relationship type and related firm Details of relationship *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** Table continued. 3.4 Reporting firm Relationship type and related firm Details of relationship *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** Table continued. 3.5 Reporting firm Relationship type and related firm Details of relationship *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. As indicated in table 3.2, thirteen U.S. producers responded that they are owned by another firm and five are related to a U.S. importer or exporter of subject merchandise, while eight firms are related to a foreign producer of the subject merchandise. In addition, as discussed in greater detail below, eight5 U.S. producers directly import the in-scope merchandise from subject sources and three (***) purchase CSPV modules from U.S. importers. Table 3.3 presents events in the U.S. industry since January 1, 2022. Many industry events and announcements for new facilities took place after the passing of the Inflation Reduction Act (“IRA”) of 2022. The IRA updated and extended the Investment Tax Credit (“ITC”) and the Production Tax Credit (“PTC”), two of the major federal policies that promote solar energy. The IRA increased the ITC back to 30 percent and extended it through 2034, and extended the PTC of 2.75 cents/kWh through at least 2025 for systems that meet the prevailing wage and apprenticeship requirements or are under 1 MW in size.6 In addition, the IRA established the Advanced Manufacturing Production Tax Credit (45X) and expanded the Advanced Energy Project Investment Tax Credit (48C) for manufacturers of eligible components. After January 1, 2025, the ITC and PTC were replaced by the Clean Electricity Investment Tax Credit (48E) and the Clean Energy Production Tax Credit (45Y), which are 5 ***. U.S. producer’s questionnaire, section 2.22. 6 U.S. Environmental Protection Agency, “Summary of Inflation Reduction Act provisions related to renewable energy,” July 29, 2025, https://www.epa.gov/green-power-markets/summary-inflation- reduction-act-provisions-related-renewable-energy. 3.6 generally calculated in the same way as the traditional ITC and PTC and function similarly to the traditional ITC and PTC but are not technology specific.7 The passage of the One Big Beautiful Bill Act (“OBBBA”) in July 2025 places new restrictions on energy tax credits that were enacted under the IRA. Under the legislation, to qualify for the 48E and 45Y tax credits, projects must be placed in service by December 31, 2027. However, a safe harbor is available to solar projects that begin construction on or before July 4, 2026.8 In addition, the OBBBA places Foreign Entities of Concern (FEOC) restrictions on the eligibility to qualify for 45Y, 48E and 45X credits. Specifically, starting in 2026, any projects claiming these tax credits must adhere to limits on materials or components with “material assistance” from specified foreign entities (SFEs) or foreign-influenced entities (FIEs).9 Additional restrictions were also placed on projects claiming the 45X tax credit. To qualify for the 45X credit, eligible components incorporated into another eligible components, such as solar cells used to produce a solar module, must be 1) manufactured in the same facility; 2) the final product (solar module) must be sold to an unrelated party; and 3) the final product must contain at least 65 percent of domestic-manufactured content, by cost.10 According to an industry report, domestic capacity to produce CSPV modules and cells experienced strong growth in recent years. U.S. module production capacity increased from 14.5 GW in 2023 to 42.1 GW in 2024 and exceeded 50.0 GW in early 2025.11 Additionally, U.S. cell production capacity came back online for the first time since 2019 – Suniva restarted cell production in 2024, and ES Foundry commenced cell production in early 2025.12 7 U.S. Department of Treasury, “U.S. Department of the Treasury Releases Final Rules for Technology- Neutral Clean Electricity Credits,” January 7, 2025, https://home.treasury.gov/news/press- releases/jy2774. 8 On July 7, 2025, an Executive Order was issued directing the Secretary of the Treasury to “strictly enforce the termination of the clean electricity production and investment tax credits under sections 45Y and 48E of the Internal Revenue Code for wind and solar facilities.” The White House, “Ending Market Distorting Subsidies for Unreliable, Foreign Controlled Energy Sources,” July 7, 2025, https://www.whitehouse.gov/presidential-actions/2025/07/ending-market-distorting-subsidies-for- unreliable-foreign%E2%80%91controlled-energy-sources/; Jackson Walker, “Clean Energy Tax Credit Changes under the One Big Beautiful Bill Act,” August 1, 2025, https://www.jw.com/news/insights- clean-energy-tax-credit-obbba/. 9 SFEs are governments or businesses enumerated as threats in the text of the bill and FIEs are businesses with significant control or ownership by such entities. 10 SEIA, “EXPLAINED: The Clean Energy Provisions in the “One Big Beautiful Bill.” July 21, 2025, https://seia.org/research-resources/clean-energy-provisions-big-beautiful-bill/. 11 Solar Energy Industries Association, “Solar Market Insight Report 2024 Year in Review,” March 11, 2025, https://seia.org/research-resources/solar-market-insight-report-2024-year-in-review/. 12 Ibid. 3.7 Table 3.3 CSPV cells and modules: Important industry events since 2022 Item Firm Event Plant closure LG Electronics In June 2022, LG Electronics ceased production at its 550 MW module assembly plant in Huntsville, Alabama, citing supply constraints and increased material and logistics costs. Plant closing Meyer Burger In May 2025, Meyer Burger ceased operations and laid off over 900 workers at its new module production facility in Goodyear, Arizona. Meyer Burger had planned to produce 1.4 GW of heterojunction solar modules in its Arizona facility. Acquisition T1 Energy (formerly FREYER Battery) In December 2024, FREYR (now T1 Energy) completed the $380 million acquisition of Trina/T1 Solar’s 5 GW solar module manufacturing facility located in Wilmer, Texas. The company renamed the factory T1 Dallas and the facility began production in late 2024 is now fully online and employs more than 1,000 people. T1 Energy also announced its plan to build a $850 million 5 GW solar cell facility in Texas. It is expected to begin producing cells by the end of 2026 and employ up to 1,800 workers. T1 plans to use TOPCon technology for the cell and module manufacturing. Funding Silfab Solar In November 2024, Silfab Solar announced it had secured $100 million in funding to scale its manufacturing facility in Fort Mill, South Carolina. Once operational, the facility will produce 1 GW of solar cells and 1.3 GW of solar modules. Plant expansion Hanwha Q Cells In October 2023, Hanwha Q Cells completed the expansion of its plant in Dalton, Georgia. This expansion increased its solar capacity by 2 GW, bringing the plant’s total capacity to 5.1 GW. Plant expansion Heliene In late 2023, Heliene expanded its module production line in Mountain Iron, Minnesota, which increased capacity to 300 MW. Plant opening Canadian Solar During Q4 of 2023, Canadian Solar began commercial production at its 5 GW module assembly plant located in Mesquite, Texas. This is Canadian Solar’s first U.S. production facility. Plant opening Illuminate In February 2024, Illuminate began commercial operations at its 5 GW solar panel manufacturing facility located in Pataskala, Ohio. Plant opening Elin Energy In March 2024, Elin Energy began production at its 2 GW solar panel assembly facility located in Waller County, Texas. Plant opening Meyer Burger In June 2024, Meyer Burger started production at its 2 GW module assembly plant located in Goodyear, Arizona. 3.8 Item Firm Event Plant opening SEG Solar In August 2024, SEG Solar began production at its 2 GW solar module facility in Texas. The facility operates two production lines for 182 mm and 210 mm N-type modules. Plant opening First Solar In September 2024, First Solar opened its 3.5 GW thin-film solar manufacturing facility in Lawrence County, Alabama. Plant opening Runergy In October 2024, Runergy began commercial production at its 2 GW solar panel facility in Huntsville, Alabama. Plant opening Imperial Star Solar In December 2024, Imperial Star Solar began production at its 2 GW module manufacturing facility in Tomball, Texas. Plant opening Waaree Energies In January 2025, Waaree Energies started commercial production at its 1.6 GW module manufacturing facility in Brookshire, Texas. Plant opening ES Foundry In early 2025, ES Foundry began production of PERC solar cells at its plant located in South Carolina. The plant is expected to reach shipment capacity of 3 GW by Q3 2025. Production restart Suniva In late 2024, Suniva restarted solar cell production at its facility located in Gwinnett County, Georgia. The firm announced that the revamped facility has the capacity to produce 1 GW of solar cells annually, with plans to expand to 2.5 GW in the future. Supply chain agreement Suniva and Heliene In March 2024, Heliene and Suniva announced a three-year sourcing contract, under which Heliene will produce solar modules using solar cells produced domestically by Suniva. Supply chain agreement Suniva and Heliene In March 2025, Suniva and Heliene announced an agreement with chipmaker Corning to domestically produce solar modules using polysilicon, wafers, and cells manufactured in the United States. Source: PV Magazine, “Meyer Burger files for insolvency, lays off over 900 workers,” June 2, 2025, https://pv-magazine-usa.com/2025/06/02/meyer-burger-files-for-insolvency-lays-off-over-900-workers/; Electrek, “T1 Energy’s (FKA FREYR) new 5 GW US solar factory leaps forward,” June 16, 2025 https://electrek.co/2025/06/16/t1-energy-freyr-5-gw-us-solar-factory; T1 Energy, “T1 Energy Advances $850 Million Planned 5G Solar Cell Plant,” June 16, 2025, https://ir.t1energy.com/news-releases/news- release-details/t1-energy-advances-850-million-planned-5-gw-solar-cell-plant; Qcells, “Qcells North America Completes Dalton Factory Expansion,” October 18, 2023, https://us.qcells.com/blog/qcells-north- america-completes-dalton-factory-expansion; PV Tech, “Canadian Solar launches 5GW TOPCon module assembly plant in Texas,” June 12, 2024, https://www.pv-tech.org/canadian-solar-launches-5gw-topcon- module-assembly-plant-texas/; Power Technology, “First Solar opens $1.1bn solar facility, adds 3.5GW to US manufacturing capacity,” September 27, 2024, https://www.power-technology.com/news/first-solar- opens-1-1bn-solar-facility-adds-3-5gw-to-us-manufacturing-capacity/?cf-view; Energy Tech, “Illuminate USA Begins Operations at Solar Panel Manufacturing Facility in Ohio,” February 27, 2024, https://www.energytech.com/renewables/article/21283538/illuminate-usa-begins-operations-at-solar- panel-manufacturing-facility-in-ohio; Solar Builder, “Elin Energy opens U.S. solar module manufacturing facility,” April 12, 2024, https://solarbuildermag.com/news/elin-energy-opens-u-s-solar-module- manufacturing-facility/; PV Tech, “Meyer Burger starts module production in Arizona, secures 600MW PV supply,” June 25, 2024, https://www.pv-tech.org/meyer-burger-starts-module-production-in-arizona- 3.9 secures-600mw-pv-supply/; Power Technology, “SEG Solar opens 2GW PV module plant in Texas,” August 14, 2024, https://www.power-technology.com/news/seg-solar-opens-2gw-pv-module-plant-in- texas/?cf-view; PV Tech, “SEG Solar ships first N-Type modules from Houston factory,” November 24, 2024, https://www.pv-tech.org/industry-updates/seg-solar-ships-first-n-type-modules-from-houston- factory/; Imperial Star, “Imperial Star Solar Kicks Off Domestic Production at New Houston Manufacturing Facility,” December 20, 2024, https://www.imperialstar.com/post/imperial-star-kicks-off-domestic- production-at-houston; PV Tech, “ES Foundry begins producing PERC cells at US manufacturing plant,” February 3, 2025, https://www.pv-tech.org/es-foundry-begins-producing-perc-cells-at-us-manufacturing- plant/; Electrek, “The US’s largest solar cell factory is now online in South Carolina,” February 3, 2025, https://electrek.co/2025/02/03/us-largest-solar-cell-factory-south-carolina/; AJC News, “Once-shuttered solar factory resumes production outside Atlanta,” November 13, 2024, https://www.ajc.com/news/business/suniva-once-filed-bankruptcy-its-producing-solar-panels- again/UVX5DKR6QJGHTLTTJEJJH2QHKE/; Utility Dive, “Corning, Suniva and Heliene form US solar supply chain,” March 11, 2025, https://www.utilitydive.com/news/corning-suniva-heliene-hemlock- semiconductor-form-us-solar-supply-chain/742155/; Renewables Now, “Waaree Energies powers up 1.6- GW solar module line in Texas,” January 27, 2025, https://renewablesnow.com/news/waaree-energies- powers-up-1-6-gw-solar-module-line-in-texas-1269854/; Solar Power World, “Runergy opens solar panel assembly factory in Alabama,” October 3, 2024, https://www.solarpowerworldonline.com/2024/10/runergy-opens-solar-panel-assembly-factory-in- alabama/; PV Tech, “Heliene expands Minnesota TOPCon module line to 300MW,” December 6, 2023, https://www.pv-tech.org/heliene-expands-minnesota-topcon-module-line-to-300mw/; PV Magazine, “Suniva, Heliene to jointly produce US-made solar modules,” March 28, 2024, https://www.pv- magazine.com/2024/03/28/suniva-heliene-to-jointly-produce-us-made-solar-modules/; Silfab Solar, “Silfab Solar Raises $100 million to Scale its Cell Manufacturing Facility in Fort Mill, S.C.,” November 21, 2024, https://silfabsolar.com/silfab-solar-raises-100-million-to-scale-its-cell-manufacturing-facility-in-fort-mill-s-c/. Producers in the United States were asked to report any change in the character of their operations or organization relating to the production of CSPV cells and modules since 2022. Fourteen of fifteen producers indicated in their questionnaires that they had experienced such changes. Table 3.4 presents the changes identified by these producers. Table 3.4 CSPV cells and modules: U.S. producers’ reported changes in operations, since January 1, 2022, by reported change category and firm Change category Firm name and narrative response on changes in operations Plant openings *** Plant openings *** Plant openings *** Plant openings *** Table continued. 3.10 Change category Firm name and narrative response on changes in operations Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant closings *** Plant closings *** Plant closings *** Production curtailments *** Relocations *** Table continued. 3.11 Change category Firm name and narrative response on changes in operations Relocations *** Expansions *** Expansions *** Expansions *** Expansions *** Expansions *** Expansions *** Acquisitions *** Other *** Other *** Other *** Source: Compiled from data submitted in response to Commission questionnaires. 3.12 U.S. production, capacity, and capacity utilization Table 3.5 presents U.S. producers’ installed overall and practical capacity, production, and utilization on the same equipment as subject production of CSPV cells. During the period of data collection, domestic production of CSPV cells began after interim 2024. Suniva, the sole responding U.S. producer of CSPV cells,13 reported higher installed overall, practical overall, and practical CSPV production levels interim 2025 than in 2024. Table 3.5 CSPV cells: U.S. producer’s installed and practical capacity, production, and utilization on the same equipment as in-scope production, by period Capacity and production in kilowatts; utilization in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Installed overall Capacity *** *** *** *** *** Installed overall Production *** *** *** *** *** Installed overall Utilization *** *** *** *** *** Practical overall Capacity *** *** *** *** *** Practical overall Production *** *** *** *** *** Practical overall Utilization *** *** *** *** *** Practical CSPV cells Capacity *** *** *** *** *** Practical CSPV cells Production *** *** *** *** *** Practical CSPV cells Utilization *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 13 The other known CSPV cell producer, ES Foundry, did not participate in these preliminary investigations. 3.13 Figure 3.1 presents U.S. producers’ practical capacity, production, and capacity utilization pertaining to CSPV cells. Suniva, the sole responding U.S. producer of CSPV cells, commenced production in ***. Figure 3.1: CSPV cells: U.S. producer's practical capacity, production, and capacity utilization, by period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. 3.14 Table 3.6 presents U.S. producers’ reported installed overall and practical capacity, production, and utilization on the same equipment as subject production of CSPV modules, by period. Installed overall capacity and production increased between 2022 and 2024 but installed overall capacity utilization decreased 2022 to 2024 because the growth of installed overall capacity outpaced production.14 In the same way, although practical overall capacity, practical overall production, and practical CSPV module capacity and production grew between 2022 and 2024, since capacity levels nearly *** from 2023 to 2024, capacity utilization decreased between 2022 and 2024 for both practical overall and practical CSPV modules. Except for practical overall capacity utilization, all CSPV module capacity and production measures were higher in interim 2025 than in interim 2024. Table 3.6 CSPV modules: U.S. producers’ installed and practical capacity, production, and utilization on the same equipment as subject production, by period Capacity and production in kilowatts; utilization in percent; interim period is January to March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Installed overall Capacity *** *** *** *** *** Installed overall Production *** *** *** *** *** Installed overall Utilization *** *** *** *** *** Practical overall Capacity *** *** *** *** *** Practical overall Production *** *** *** *** *** Practical overall Utilization *** *** *** *** *** Practical CSPV modules Capacity *** *** *** *** *** Practical CSPV modules Production *** *** *** *** *** Practical CSPV modules Utilization *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Staff adjusted ***’s data for practical overall capacity for interim 2024 and 2025. 14 All but three responding U.S. producers increased capacity between 2022 and 2024, with five of the fourteen module producers commencing production in 2024. 3.15 Tables 3.7 and 3.8 present U.S. producers’ reported narratives regarding practical overall capacity constraints for CSPV cells and modules since January 1, 2022, respectively. Table 3.7 CSPV cells: U.S. producers’ reported constraints to practical overall capacity since January 1, 2022, by firm and type of constraint Type of constraint Firm name and narrative response on constraints to practical overall capacity Production bottlenecks *** Existing labor force *** Supply of material inputs *** Source: Compiled from data submitted in response to Commission questionnaires. 3.16 Table 3.8 CSPV modules: U.S. producers’ reported constraints to practical overall capacity since January 1, 2022, by firm and type of constraint Type of constraint Firm name and narrative response on constraints to practical overall capacity Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Existing labor force *** Existing labor force *** Existing labor force *** Existing labor force *** Existing labor force *** Existing labor force *** Existing labor force *** Existing labor force *** Existing labor force *** Supply of material inputs *** Table continued. 3.17 Type of constraint Firm name and narrative response on constraints to practical overall capacity Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Logistics/transportation *** Logistics/transportation *** Logistics/transportation *** Other constraints *** Other constraints *** Other constraints *** Table continued. 3.18 Type of constraint Firm name and narrative response on constraints to practical overall capacity Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Source: Compiled from data submitted in response to Commission questionnaires. 3.19 Table 3.9 and figure 3.2 present U.S. producers’ production, capacity, and capacity utilization pertaining to CSPV modules.15 During 2022 to 2024, U.S. producers’ practical CSPV modules capacity increased by *** percent and was higher in interim 2025 than in interim 2024 by *** percent.16 Similarly, ***, production of CSPV modules increased from 2022 to 2024 by *** percent and was higher in interim 2025 than in interim 2024 by *** percent.17 18 CSPV modules capacity utilization decreased by *** percentage points between 2022 and 2024 but was higher in interim 2025 than in interim 2024 by *** percentage points. Table 3.9 CSPV modules: U.S. producers’ output, by firm and period Practical capacity Capacity in kilowatts; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Meyer Burger *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** SunTegra *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 15 U.S. producer *** is not included because it reported producing only *** during the period of data collection. 16 *** accounted for most of the increase in CSPV module capacity from 2022 to 2024. 17 *** accounted for the largest increase in production between 2022 and 2024, *** drove the higher production levels in interim 2025. 18 ***. 3.20 Table 3.9 Continued CSPV modules: U.S. producers’ output, by firm and period Production Production in kilowatts; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Meyer Burger *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** SunTegra *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 3.9 Continued CSPV modules: U.S. producers’ output, by firm and period Capacity utilization Capacity utilization in percent; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Meyer Burger *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** SunTegra *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Note: Capacity utilization ratio represents the ratio of the U.S. producer’s production to its production capacity. 3.21 Table 3.9 Continued CSPV modules: U.S. producers’ output, by firm and period Share of production Share in percent; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Meyer Burger *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** SunTegra *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Figure 3.2 CSPV modules: U.S. producers’ output, by period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. 3.22 Alternative products As shown in table 3.10, *** of the product produced during January 1, 2022, through interim 2025 by U.S. producers was CSPV cells and modules. One firm, ***, reported producing *** in the same line as CSPV modules. The firm added that the ***. See table 3.8 in this report for more information. Table 3.10 CSPV modules: U.S. producers’ overall production on the same equipment as in-scope production, by period Quantity in kilowatts; ratio and share in percent; interim is January through March Product type Measure 2022 2023 2024 Interim 2024 Interim 2025 CSPV modules Quantity *** *** *** *** *** Other products Quantity *** *** *** *** *** All products Quantity *** *** *** *** *** CSPV modules Share *** *** *** *** *** Other products Share *** *** *** *** *** All products Share 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 3.23 U.S. producers’ U.S. shipments and exports Tables 3.11 and 3.12 present U.S. producers’ U.S. shipments, export shipments, and total shipments of CSPV cells and modules, respectively.19 Domestic production and shipments of CSPV cells began in 2024. During 2022 to 2024, U.S. producers’ U.S. shipments of CSPV modules increased overall by *** percent, in terms of quantity, and by *** percent, in terms of value. U.S. shipments of CSPV modules were higher in interim 2025 compared to interim 2024 both by quantity and value. As a result of shipments increasing greater by quantity compared to value, the unit value of U.S. shipments decreased by *** percent from 2022 to 2024 but were slightly higher in interim 2025 compared to interim 2024. Export shipments *** during the period of data collection. Table 3.11 CSPV cells: U.S. producers’ total shipments, by destination and period Quantity in kilowatts; value in 1,000 dollars; unit value in dollars per kilowatts; shares in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. shipments Quantity *** *** *** *** *** Export shipments Quantity *** *** *** *** *** Total shipments Quantity *** *** *** *** *** U.S. shipments Value *** *** *** *** *** Export shipments Value *** *** *** *** *** Total shipments Value *** *** *** *** *** U.S. shipments Unit value *** *** *** *** *** Export shipments Unit value *** *** *** *** *** Total shipments Unit value *** *** *** *** *** U.S. shipments Share of quantity *** *** *** *** *** Export shipments Share of quantity *** *** *** *** *** Total shipments Share of quantity — — 100.0 — 100.0 U.S. shipments Share of value *** *** *** *** *** Export shipments Share of value *** *** *** *** *** Total shipments Share of value — — 100.0 — 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 19 *** internal consumption or transfers to related firms of CSPV cells. Regarding CSPV modules, *** firm reported internal consumption in 2023, and *** firms reported transfers to related firms during the period examined. Collectively, internal consumption and transfers to related firms accounted for approximately *** percent of U.S. shipments during the period for which the data were collected. 3.24 Table 3.12 CSPV modules: U.S. producers’ total shipments, by destination and period Quantity in kilowatts; value in 1,000 dollars; unit value in dollars per kilowatts; shares in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. shipments Quantity *** *** *** *** *** Export shipments Quantity *** *** *** *** *** Total shipments Quantity *** *** *** *** *** U.S. shipments Value *** *** *** *** *** Export shipments Value *** *** *** *** *** Total shipments Value *** *** *** *** *** U.S. shipments Unit value *** *** *** *** *** Export shipments Unit value *** *** *** *** *** Total shipments Unit value *** *** *** *** *** U.S. shipments Share of quantity *** *** *** *** *** Export shipments Share of quantity *** *** *** *** *** Total shipments Share of quantity 100.0 100.0 100.0 100.0 100.0 U.S. shipments Share of value *** *** *** *** *** Export shipments Share of value *** *** *** *** *** Total shipments Share of value 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 3.25 Table 3.13 presents U.S. producers’ U.S. shipments by type. U.S. shipments of CSPV cells started post interim 2024 and increased was more than tenfold higher in interim 2025 by quantity. U.S. producers’ U.S. shipments of modules doubled between 2022 and 2024 by value and were higher in interim 2025 compared to interim 2024. Table 3.13 CSPV cells and modules: U.S. producers’ U.S. shipments for use in apparent consumption, by period Quantity in kilowatts; value in 1,000 dollars; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Cells: U.S. shipments Quantity *** *** *** *** *** Cells: U.S. shipments Value *** *** *** *** *** Modules: Value added to domestic cells Value *** *** *** *** *** Cells and modules: Fully domestic value Value *** *** *** *** *** Modules: Value added to imported cells Value *** *** *** *** *** Cells and modules: Total value from domestic operations Value *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Quantity for U.S. producers' U.S. shipments only reflects domestically produced cells. Value for U.S. producers' U.S. shipments reflects domestically produced cells, the value added to domestically manufactured cells by responding U.S. module assemblers, and the value added to imported cells by responded U.S. module assemblers. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported once as an import. 3.26 U.S. producers’ inventories Table 3.14 and 3.15 present U.S. producers’ end-of-period inventories and the ratio of these inventories to U.S. producers’ production, U.S. shipments, and total shipments of CSPV cells and modules, respectively. The sole responding domestic producer of CSPV cells, Suniva, reported growing inventories with quantities nearly double in interim 2025, compared to full year 2024 levels. Ten of 15 U.S. producers reported end-of-period inventories during the period of data collection. U.S. producers’ end-of-period inventories of CSPV modules increased by *** percent during 2022 to 2024, with most of the increase taking place from 2023 to 2024. Of the *** U.S. CSPV modules producers that reported end-of-period inventories, *** U.S. producers’ end-of-period inventories increased during 2022 to 2024. During 2022 to 2024, U.S. producers of CSPV modules’ end-of period inventories as a ratio to U.S. production, U.S. shipments, and total shipments increased, with the three ratios ending *** percentage points, *** percentage points, and *** percentage points higher, respectively, in 2024 compared to 2022. Relative inventory ratios were also higher in interim 2025 compared to interim 2024. Table 3.14 CSPV cells: U.S. producers’ inventories and their ratio to select items, by period Quantity in kilowatts; ratio in percent; interim is January through March Item 2022 2023 2024 Interim 2024 Interim 2025 End-of-period inventory quantity *** *** *** *** *** Inventory ratio to U.S. production *** *** *** *** *** Inventory ratio to U.S. shipments *** *** *** *** *** Inventory ratio to total shipments *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 3.15 CSPV modules: U.S. producers’ inventories and their ratio to select items, by period Quantity in kilowatts; ratio in percent; interim is January through March Item 2022 2023 2024 Interim 2024 Interim 2025 End-of-period inventory quantity *** *** *** *** *** Inventory ratio to U.S. production *** *** *** *** *** Inventory ratio to U.S. shipments *** *** *** *** *** Inventory ratio to total shipments *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 3.27 U.S. producers’ imports from subject sources U.S. producers’ imports of CSPV cells and modules from subject sources are presented in tables 3.16 through 3.22, and reasons for these imports are presented in table 3.23. CSPV cells are used as inputs to produce CSPV modules and domestic U.S. production did not commence until 2024. Therefore, during the period of data collection, U.S. producers of CSPV modules either imported or purchased imports of CSPV cells to assemble CSPV modules.20 *** reported imports from subject sources and the ratios of these firms’ imports relative to U.S. production ranged from *** to *** percent during the period of data collection. Table 3.16 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from Laos Quantity *** *** *** *** *** Imports from Laos to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 3.17 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from Indonesia Quantity *** *** *** *** *** Imports from Indonesia to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 20 In addition, *** reported imports of *** kilowatts of modules from Laos in interim 2025. *** reported imports of modules from India in all periods, and *** reported imports of *** kilowatts of modules in interim 2025. 3.28 Table 3.18 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from India Quantity *** *** *** *** *** Imports from India to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 3.19 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from India Quantity *** *** *** *** *** Imports from India to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 3.20 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from Indonesia Quantity *** *** *** *** *** Imports from Indonesia to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 3.29 Table 3.21 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from Indonesia Quantity *** *** *** *** *** Imports from Indonesia to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 3.22 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from Indonesia Quantity *** *** *** *** *** Imports from Laos Quantity *** *** *** *** *** Imports from Indonesia to U.S. production Ratio *** *** *** *** *** Imports from Laos to U.S. production Ratio *** *** *** *** *** Imports from subject sources to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 3.23 CSPV cells and modules: ***’s U.S. production, subject imports, and ratio of subject imports to production, by source and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. production Quantity *** *** *** *** *** Imports from Laos Quantity *** *** *** *** *** Imports from Laos to U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 3.30 Table 3.24 CSPV cells and modules: U.S. producers’ reasons for importing, by firm Item Narrative response on reasons for importing ***'s reason for importing *** ***'s reason for importing *** ***'s reason for importing *** ***'s reason for importing *** ***'s reason for importing *** ***'s reason for importing *** ***'s reason for importing *** ***'s reason for importing *** ***'s reason for importing *** Source: Compiled from data submitted in response to Commission questionnaires. Note: *** responded to this question, they did not import from subject sources and therefore are not included in the table. U.S. importer questionnaire, section 2.4. 3.31 U.S. producers' purchases of imports from subject sources U.S. producers’ purchases of imports from subject sources are presented in tables 3.25 through 3.27. Table 3.25 CSPV cells and modules: ***’s purchases of imports from subject sources, by source, importer of record, and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Modules: ***'s U.S. production Quantity *** *** *** *** *** Modules: ***'s purchases of U.S. imports from Indonesia imported by *** Quantity *** *** *** *** *** Modules: ***'s U.S. imports from Indonesia Quantity *** *** *** *** *** Modules: Ratio 1: ***'s purchases of U.S. imports from Indonesia imported by *** relative to ***'s U.S. imports from Indonesia Ratio *** *** *** *** *** Modules: Overall U.S. imports from Indonesia Quantity *** *** *** *** *** Modules: Ratio 2: ***'s U.S. imports from Indonesia relative to overall U.S. imports from Indonesia Ratio *** *** *** *** *** Modules: Ratio 3: ***'s U.S. imports from Indonesia relative to ***'s U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included in overall U.S. imports from Indonesia. 3.32 Table 3.26 CSPV cells and modules: ***’s purchases of imports from subject sources, by source, importer of record, and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Cells: ***'s U.S. production Quantity *** *** *** *** *** Cells: ***'s purchases of U.S. imports from Indonesia produced by *** Quantity *** *** *** *** *** Cells: U.S. importers' U.S. imports from Indonesian producer *** Quantity *** *** *** *** *** Cells: Ratio 1: ***'s purchases of U.S. imports from Indonesia produced by *** relative to U.S. importers' U.S. imports from *** Ratio *** *** *** *** *** Cells: Overall U.S. imports from Indonesia Quantity *** *** *** *** *** Cells: Ratio 2: U.S. importers' U.S. imports from Indonesian producer *** relative to overall U.S. imports from Indonesia Ratio *** *** *** *** *** Cells: Ratio 3: U.S. importers' U.S. imports from Indonesian producer *** relative to ***'s U.S. production Ratio *** *** *** *** *** Modules: ***'s U.S. production Quantity *** *** *** *** *** Modules: ***'s purchases of U.S. imports from Indonesia imported by *** Quantity *** *** *** *** *** Modules: ***'s U.S. imports from Indonesia Quantity *** *** *** *** *** Table continued. 3.33 Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Modules: Ratio 1: ***'s purchases of U.S. imports from Indonesia imported by *** relative to ***'s U.S. imports from Indonesia Ratio *** *** *** *** *** Modules: Overall U.S. imports from Indonesia Quantity *** *** *** *** *** Modules: Ratio 2: ***'s U.S. imports from Indonesia relative to overall U.S. imports from Indonesia Ratio *** *** *** *** *** Modules: Ratio 3: ***'s U.S. imports from Indonesia relative to ***'s U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included in overall U.S. imports from Indonesia. Table 3.27 CSPV cells and modules: ***’s purchases of imports from subject sources, by source, importer of record, and period Quantity in kilowatts; ratio in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Cells: ***'s U.S. production Quantity *** *** *** *** *** Cells: ***'s purchases of U.S. imports from Indonesia and Laos imported by *** Quantity *** *** *** *** *** Cells: ***'s U.S. imports from Indonesia and Laos Quantity *** *** *** *** *** Table continued. 3.34 Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Cells: Ratio 1: ***'s purchases of U.S. imports from Indonesia and Laos imported by *** relative to ***'s U.S. imports from Indonesia and Laos Ratio *** *** *** *** *** Cells: Overall U.S. imports from Indonesia and Laos Quantity *** *** *** *** *** Cells: Ratio 2: ***'s U.S. imports from Indonesia and Laos relative to overall U.S. imports from Indonesia and Laos Ratio *** *** *** *** *** Cells: Ratio 3: ***'s U.S. imports from Indonesia and Laos relative to ***'s U.S. production Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included in overall U.S. imports from Indonesia and Laos. Table 3.28 CSPV cells and modules: U.S. producers’ reasons for purchasing Item Narrative response on reasons for importing ***'s reason for purchasing *** ***'s reason for purchasing *** ***'s reason for purchasing *** Source: Compiled from data submitted in response to Commission questionnaires. 3.35 U.S. employment, wages, and productivity Tables 3.29 through 3.31 show U.S. producers’ employment-related data regarding CSPV cells, CSPV modules, and CSPV cells and modules, respectively. CSPV cell production started in 2024, therefore, there are no changes to labor indicators during the full year period. All labor indicators for CSPV modules had an upward trend between 2022 and 2024, except for hours worked per PRWs. Compared to interim 2024, all employment trends were higher in interim 2025.21 Table 3.29 CSPV cells: U.S. producers’ employment related information, by period Interim is January through March Item 2022 2023 2024 Interim 2024 Interim 2025 Production and related workers (PRWs) (number) *** *** *** *** *** Total hours worked (1,000 hours) *** *** *** *** *** Hours worked per PRW (hours) *** *** *** *** *** Wages paid ($1,000) *** *** *** *** *** Hourly wages (dollars per hour) *** *** *** *** *** Productivity (kilowatts per 1,000 hours) *** *** *** *** *** Unit labor costs (dollars per kilowatt) *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 3.30 CSPV modules: U.S. producers’ employment related information, by period Interim is January through March Item 2022 2023 2024 Interim 2024 Interim 2025 Production and related workers (PRWs) (number) *** *** *** *** *** Total hours worked (1,000 hours) *** *** *** *** *** Hours worked per PRW (hours) *** *** *** *** *** Wages paid ($1,000) *** *** *** *** *** Hourly wages (dollars per hour) *** *** *** *** *** Productivity (kilowatts per 1,000 hours) *** *** *** *** *** Unit labor costs (dollars per kilowatt) *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 21 *** accounted for the vast majority of the upward trends besides unit labor costs, which was lower in interim 2025 compared to interim 2024. 3.36 Table 3.31 CSPV cells and modules: U.S. producers’ employment related information, by period Interim is January through March Item 2022 2023 2024 Interim 2024 Interim 2025 Production and related workers (PRWs) (number) *** *** *** *** *** Total hours worked (1,000 hours) *** *** *** *** *** Hours worked per PRW (hours) *** *** *** *** *** Wages paid ($1,000) *** *** *** *** *** Hourly wages (dollars per hour) *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 4.1 Part 4: U.S. imports, apparent U.S. consumption, and market shares U.S. importers The Commission issued importer questionnaires to 165 firms believed to be importers of subject CSPV cells and modules, as well as to all U.S. producers of CSPV cells and modules.1 Usable questionnaire responses were received from 45 companies, representing *** percent of U.S. imports from India, *** percent of U.S. imports from Indonesia, *** percent of U.S. imports from Laos, in 2024 under HTS subheadings 8541.42.00 and 8541.43.00, “basket” categories.2 3 4 1 The Commission issued questionnaires to those firms identified in the petitions; staff research; and proprietary, Census-edited Customs’ import records. Petitioners’ counsel stated that the majority of CSPV cells and modules are being imported under the two main statistical reporting numbers, 8541.42.0010 and 8541.43.0010, and that they are representative of imports in the CSPV cells and modules marketplace. Conference transcript, p. 44 (Brightbill). 2 Importer questionnaire data is supplemented throughout part 4 using proprietary, Census-edited Customs’ import records, (except for fungibility tables), to account for non-responding firms. ***, U.S. importers which accounted for approximately *** of U.S. imports under HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010 from Laos and *** of U.S. imports from Indonesia during the period of data collection, provided a late response, which was not incorporated into the dataset. ***, a U.S. importer from subject and nonsubject sources, also confirmed receipt of the questionnaire but did not provide a response. Email from ***, August 5, 2025. *** provided a late response to the questionnaire, which is not incorporated in the report. Staff made several attempts to obtain responses from U.S. importers *** and *** which together account for approximately a *** of imports from Indonesia during the period, but the firms did not respond. See Staff telephone log of August 5, 2025. *** a U.S. importer from Laos, confirmed receipt of the Commission questionnaire but did not provide a response, stating the company intends to participate in the final phase of investigations instead due to current limited resources. Email from ***, August 3, 2025. *** headquartered in Cambodia, reported that the firm has ceased operations and will not be able to participate in the investigations. Email from ***, July 31, 2025. 3 *** certified that they did not import the in-scope product during the period of data collection. 4 Questionnaire responses also represented *** percent of U.S. imports from subject sources and *** percent of U.S. imports from nonsubject sources in 2024. 4.2 Table 4.1 lists all responding U.S. importers of CSPV cells and modules from India, Indonesia, Laos, and other sources, their locations, and their shares of U.S. imports, in 2024. Table 4.1 CSPV cells and modules: U.S. importers, their headquarters, and share of imports within each source, 2024 Share in percent Firm Headquarters India Indonesia Laos Subject sources Nonsubject sources All import sources Acciona Chicago, IL *** *** *** *** *** *** American Wire Aventura, FL *** *** *** *** *** *** B.I. Manufacturing Madison, GA *** *** *** *** *** *** BYD Pasadena, CA *** *** *** *** *** *** Canadian (USA) Walnut Creek, CA *** *** *** *** *** *** Cantex Houston, TX *** *** *** *** *** *** Energon Houston, TX *** *** *** *** *** *** First Solar Tempe, AZ *** *** *** *** *** *** GAF Energy San Jose, CA *** *** *** *** *** *** Hanwha America Irvine, CA *** *** *** *** *** *** Hanwha Dalton Dalton, GA *** *** *** *** *** *** Hanwha USA Irvine, CA *** *** *** *** *** *** Hanwha White White, GA *** *** *** *** *** *** Hounen CA Chino, CA *** *** *** *** *** *** Hounen SC Orangeburg, SC *** *** *** *** *** *** Hyundai Seongnam-Si, Korea Gyeonggi-Do, Korea *** *** *** *** *** *** Illuminate Pataskala, OH *** *** *** *** *** *** Invenergy Chicago, IL *** *** *** *** *** *** JerryP Albany, OR *** *** *** *** *** *** LONGi San Ramon, CA *** *** *** *** *** *** Merlin San Jose, CA *** *** *** *** *** *** Mundra Solar Energy Mundra, GJ, India *** *** *** *** *** *** Mundra Solar PV Mundra, GJ, India *** *** *** *** *** *** Table continued. 4.3 Table 4.1 Continued CSPV cells and modules: U.S. importers, their headquarters, and share of imports within each source, 2024 Share in percent Firm Headquarters India Indonesia Laos Subject sources Nonsubject sources All import sources New Energy Imports Pleasanton, CA *** *** *** *** *** *** NextEra Juno Beach, FL *** *** *** *** *** *** Nusa Solar Middle Town, DE *** *** *** *** *** *** Omni Pro Addison, TX *** *** *** *** *** *** PowerFilm Ames, IA *** *** *** *** *** *** Premier Energies Hyderabad, TS, India *** *** *** *** *** *** REC Americas San Luis Obispo, CA *** *** *** *** *** *** ReNew Dover, DE *** *** *** *** *** *** Runergy Huntsville, AL *** *** *** *** *** *** Runergy Trading City Of Industry, CA *** *** *** *** *** *** SEG Manufacturing Houston, TX *** *** *** *** *** *** Silfab Burlington, WA *** *** *** *** *** *** SunTegra Larchmont, NY *** *** *** *** *** *** Trina (U.S.) Fremont, CA *** *** *** *** *** *** Trina/T1 Energy Austin, TX *** *** *** *** *** *** TXAM Pumps Houston, TX *** *** *** *** *** *** Vietnam Sunergy Bac Ninh, BAC NINH, Vietnam *** *** *** *** *** *** Vikram Massachusetts, MA *** *** *** *** *** *** Waaree Energies Navsari, GJ, India *** *** *** *** *** *** Worksport West Seneca, NY *** *** *** *** *** *** Yingli Malvern, PA *** *** *** *** *** *** Yuncheng Fremont, CA *** *** *** *** *** *** All other firms Various *** *** *** *** *** *** All firms Various 100.0 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data for all other firms are related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire. 4.4 U.S. imports Tables 4.2 through 4.5 and figure 4.1 present data for U.S. imports of CSPV cells and modules from India, Indonesia, and Laos and all other sources. Between 2022 and 2024, imports of CSPV cells and modules from aggregated subject sources increased overall by *** percent by quantity, with most of the growth occurring from 2023 to 2024, and were higher in interim 2025 by *** percent compared to interim 2024. Subject imports accounted for *** percent of total CSPV cells and modules imports in 2024, shared almost evenly among the three subject countries. While U.S. imports from India increased *** percent in 20235 and decreased *** percent in 2024, imports from Indonesia increased *** percent in 2023 and *** percent in 2024, and Laos entered the market after interim 2024 . U.S. imports from Indonesia and Laos were higher in interim 2025 than in interim 2024 and drove up the share of subject imports in interim 2025 to *** percent. In contrast, India’s imports were lower in interim 2025 compared to interim 2024 by *** percent. Imports of CSPV cells and modules from subject sources by value had similar trends. Overall, U.S. imports of CSPV cells and modules from nonsubject sources, primarily Vietnam, Thailand, and Malaysia, increased from 2022 to 2024 by quantity and were lower by *** percent in interim 2025 than in interim 2024, although remained the largest source throughout the period. Nonsubject imports increased irregularly by value for the same period and were lower in interim 2025 than in interim 2024. The unit values of imports of CSPV cells and modules from subject sources decreased overall between 2022 and 2024 and were lower in interim 2025 than in interim 2024. Unit values for nonsubject sources were highest in 2023 but decreased overall between 2022 and 2024 and were also lower in interim 2025 than in interim 2024. The unit value for imports of CSPV cells and modules from all sources were lowest in interim 2025. In addition, nonsubject unit values were the lowest in of any source 2022, 2023, and 2024 and Laos’ unit values were the lowest in interim 2025, while India had the highest unit values in all periods. The ratio of subject imports to U.S. production increased from *** percent in 2022 to *** percent in 2023, but decreased to *** percent in 2024, and was lower in interim 2025 than in interim 2024. The ratio of nonsubject imports to U.S. production increased from *** percent in 2022 to *** percent in 2023, but decreased to *** percent in 2024, and was lower in interim 2025 than in interim 2024. 5 *** accounted for the vast majority of CSPV modules imports from India in 2023, while *** accounted for the majority of CSPV cells imports from India in the same year. 4.5 Table 4.2 CSPV cells and modules: U.S. imports by source and period Quantity in kilowatts; value in 1,000 dollars; unit value in dollars per kilowatts; interim is January through March Source Measure 2022 2023 2024 Interim 2024 Interim 2025 India Quantity *** *** *** *** *** Indonesia Quantity *** *** *** *** *** Laos Quantity *** *** *** *** *** Subject sources Quantity *** *** *** *** *** Nonsubject sources Quantity *** *** *** *** *** All import sources Quantity *** *** *** *** *** India Value *** *** *** *** *** Indonesia Value *** *** *** *** *** Laos Value *** *** *** *** *** Subject sources Value *** *** *** *** *** Nonsubject sources Value *** *** *** *** *** All import sources Value *** *** *** *** *** India Unit value *** *** *** *** *** Indonesia Unit value *** *** *** *** *** Laos Unit value *** *** *** *** *** Subject sources Unit value *** *** *** *** *** Nonsubject sources Unit value *** *** *** *** *** All import sources Unit value *** *** *** *** *** Table continued. 4.6 Table 4.2 Continued CSPV cells and modules: Share of U.S. imports by source and period Shares and ratio in percent; interim is January through March Source Measure 2022 2023 2024 Interim 2024 Interim 2025 India Share of quantity *** *** *** *** *** Indonesia Share of quantity *** *** *** *** *** Laos Share of quantity *** *** *** *** *** Subject sources Share of quantity *** *** *** *** *** Nonsubject sources Share of quantity *** *** *** *** *** All import sources Share of quantity 100.0 100.0 100.0 100.0 100.0 India Share of value *** *** *** *** *** Indonesia Share of value *** *** *** *** *** Laos Share of value *** *** *** *** *** Subject sources Share of value *** *** *** *** *** Nonsubject sources Share of value *** *** *** *** *** All import sources Share of value 100.0 100.0 100.0 100.0 100.0 India Ratio *** *** *** *** *** Indonesia Ratio *** *** *** *** *** Laos Ratio *** *** *** *** *** Subject sources Ratio *** *** *** *** *** Nonsubject sources Ratio *** *** *** *** *** All import sources Ratio 1,411.0 1,889.3 603.2 1,166.6 212.9 Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. Note: ***’s U.S. import and U.S. shipment data were adjusted for reconciliation purposes. 4.7 Figure 4.1 CSPV cells and modules: U.S. import quantities and average unit values, by source and period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.8 Table 4.3 CSPV cells and modules: Changes in U.S. imports, by source and period Changes (Δ) in percent (%) Source Measure 2022 to 2024 2022 to 2023 2023 to 2024 Interim 2024 to 2025 India %Δ Quantity ▲*** ▲*** ▼*** ▼*** Indonesia %Δ Quantity ▲*** ▲*** ▲*** ▲*** Laos %Δ Quantity ▲*** *** ▲*** ▲*** Subject sources %Δ Quantity ▲*** ▲*** ▲*** ▲*** Nonsubject sources %Δ Quantity ▲*** ▲*** ▲*** ▼*** All import sources %Δ Quantity ▲*** ▲*** ▲*** ▼*** India %Δ Value ▲*** ▲*** ▼*** ▼*** Indonesia %Δ Value ▲*** ▼*** ▲*** ▲*** Laos %Δ Value ▲*** *** ▲*** ▲*** Subject sources %Δ Value ▲*** ▲*** ▲*** ▲*** Nonsubject sources %Δ Value ▲*** ▲*** ▼*** ▼*** All import sources %Δ Value ▲*** ▲*** ▼*** ▼*** India %Δ Unit value ▼*** ▼*** ▼*** ▼*** Indonesia %Δ Unit value ▼*** ▼*** ▼*** ▼*** Laos %Δ Unit value ▲*** *** ▲*** ▲*** Subject sources %Δ Unit value ▼*** ▼*** ▼*** ▼*** Nonsubject sources %Δ Unit value ▼*** ▲*** ▼*** ▼*** All import sources %Δ Unit value ▼*** ▲*** ▼*** ▼*** Table continued. 4.9 Table 4.3 Continued CSPV cells and modules: Changes in U.S. imports, by source and period Changes (Δ) in percentage point (ppt) Source Measure 2022 to 2024 2022 to 2023 2023 to 2024 Interim 2024 to 2025 India ppt Δ Quantity ▲*** ▲*** ▼*** ▼*** Indonesia ppt Δ Quantity ▲*** ▼*** ▲*** ▲*** Laos ppt Δ Quantity ▲*** *** ▲*** ▲*** Subject sources ppt Δ Quantity ▲*** ▲*** ▲*** ▲*** Nonsubject sources ppt Δ Quantity ▼*** ▼*** ▼*** ▼*** All import sources ppt Δ Quantity *** *** *** *** India ppt Δ Value ▲*** ▲*** ▼*** ▲*** Indonesia ppt Δ Value ▲*** ▼*** ▲*** ▲*** Laos ppt Δ Value ▲*** *** ▲*** ▲*** Subject sources ppt Δ Value ▲*** ▲*** ▲*** ▲*** Nonsubject sources ppt Δ Value ▼*** ▼*** ▼*** ▼*** All import sources ppt Δ Value *** *** *** *** India ppt Δ Ratio ▲*** ▲*** ▼*** ▼*** Indonesia ppt Δ Ratio ▼*** ▼*** ▼*** ▲*** Laos ppt Δ Ratio ▲*** *** ▲*** ▲*** Subject sources ppt Δ Ratio ▲*** ▲*** ▼*** ▼*** Nonsubject sources ppt Δ Ratio ▼*** ▲*** ▼*** ▼*** All import sources ppt Δ Ratio ▼*** ▲*** ▼*** ▼*** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as “0.0” percent represent non-zero values less than “0.05” percent (if positive) and greater than “(0.05)” percent (if negative). Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Period changes preceded by a “▲” represent an increase, while period changes preceded by a “▼” represent a decrease. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.10 Table 4.4 CSPV cells and modules: U.S. imports from nonsubject sources, by source and period Quantity in kilowatts; value in 1,000 dollars; unit values in dollars per kilowatt; share in percent; interim period is January to March Source Measure 2022 2023 2024 Interim 2024 Interim 2025 China and/or Taiwan Quantity *** *** *** *** *** Cambodia, Malaysia, Thailand, and/or Vietnam Quantity *** *** *** *** *** South Korea Quantity *** *** *** *** *** All other sources Quantity *** *** *** *** *** Nonsubject sources Quantity *** *** *** *** *** China and/or Taiwan Value *** *** *** *** *** Cambodia, Malaysia, Thailand, and/or Vietnam Value *** *** *** *** *** South Korea Value *** *** *** *** *** All other sources Value *** *** *** *** *** Nonsubject sources Value *** *** *** *** *** Table continued. 4.11 Table 4.4 Continued CSPV cells and modules: U.S. imports from nonsubject sources, by source and period Quantity in kilowatts; value in 1,000 dollars; unit values in dollars per kilowatt; share in percent; interim period is January to March Source Measure 2022 2023 2024 Interim 2024 Interim 2025 China and/or Taiwan Unit value *** *** *** *** *** Cambodia, Malaysia, Thailand, and/or Vietnam Unit value *** *** *** *** *** South Korea Unit value *** *** *** *** *** All other sources Unit value *** *** *** *** *** Nonsubject sources Unit value *** *** *** *** *** China and/or Taiwan Share of quantity *** *** *** *** *** Cambodia, Malaysia, Thailand, and/or Vietnam Share of quantity *** *** *** *** *** South Korea Share of quantity *** *** *** *** *** All other sources Share of quantity *** *** *** *** *** Nonsubject sources Share of quantity *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Share of quantity is out of U.S. imports as shown in table 4.2. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.12 Table 4.5 CSPV cells and modules: U.S. producers’ and/or their affiliates’ U.S. imports, by source and period Quantity in kilowatts; ratio in percent, interim period is January to March Source Measure 2022 2023 2024 Interim 2024 Interim 2025 India Quantity *** *** *** *** *** Indonesia Quantity *** *** *** *** *** Laos Quantity *** *** *** *** *** Subject sources Quantity *** *** *** *** *** Nonsubject sources Quantity *** *** *** *** *** All import sources Quantity *** *** *** *** *** India Ratio *** *** *** *** *** Indonesia Ratio *** *** *** *** *** Laos Ratio *** *** *** *** *** Subject sources Ratio *** *** *** *** *** Nonsubject sources Ratio *** *** *** *** *** All import sources Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Ratios are calculated as the quantity of imports by U.S. producers and their affiliates relative to U.S. imports as shown in table 4.2. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included in table 4.2. 4.13 Negligibility The statute requires that an investigation be terminated without an injury determination if imports of the subject merchandise are found to be negligible.6 Negligible imports are generally defined in the Act, as amended, as imports from a country of merchandise corresponding to a domestic like product where such imports account for less than 3 percent of the volume of all such merchandise imported into the United States in the most recent 12-month period for which data are available that precedes the filing of the petition or the initiation of the investigation. However, if there are imports of such merchandise from a number of countries subject to investigations initiated on the same day that individually account for less than 3 percent of the total volume of the subject merchandise, and if the imports from those countries collectively account for more than 7 percent of the volume of all such merchandise imported into the United States during the applicable 12-month period, then imports from such countries are deemed not to be negligible.7 Imports from India, Indonesia, and Laos accounted for *** percent, *** percent, and *** percent respectively of total imports of CSPV cells and modules by quantity from July 2024 through June 2025. Table 4.6 CSPV cells and modules: U.S. imports in the twelve-month period preceding the filing of the petition, July 2024 through June 2025 Quantity in kilowatts; share in percent Source of imports Quantity Share of quantity India *** *** Indonesia *** *** Laos *** *** All other sources *** *** All import sources *** 100.0 Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 6 Sections 703(a)(1), 705(b)(1), 733(a)(1), and 735(b)(1) of the Act (19 U.S.C. §§ 1671b(a)(1), 1671d(b)(1), 1673b(a)(1), and 1673d(b)(1)). 7 Section 771 (24) of the Act (19 U.S.C § 1677(24)). 4.14 Cumulation considerations In assessing whether imports should be cumulated, the Commission determines whether U.S. imports from the subject countries compete with each other and with the domestic like product and has generally considered four factors: (1) fungibility, (2) presence of sales or offers to sell in the same geographical markets, (3) common or similar channels of distribution, and (4) simultaneous presence in the market. Information regarding channels of distribution, market areas, and interchangeability appear in Part 2. Additional information concerning fungibility, geographical markets, and simultaneous presence in the market is presented below. Fungibility Table 4.7 and figure 4.2 present U.S. producers’ and U.S. importers’ U.S. shipments of CSPV cells by type (bifacial and non-bifacial) and CSPV modules by type (non-bifacial using bifacial cells, non-bifacial using non-bifacial cells, and bifacial using bifacial cells) in 2024.8 9 In 2024, the vast majority of U.S. producers’ U.S. shipments, U.S. importers’ U.S. shipments from aggregate subject sources, and U.S. shipments from nonsubject sources was ***, except for U.S. importers’ U.S. shipments from Indonesia, which were mostly ***. Nonsubject sources accounted for all U.S. shipments of *** in 2024, while U.S. producers’ U.S. shipments accounted for the overwhelming majority of non-bifacial modules using with non-bifacial cells. U.S. producers’ U.S. shipments and U.S. importers’ U.S. shipments from aggregate subject sources and nonsubject sources included all three module categories in 2024. 8 Respondents Mundra Solar PV Limited, Mundra Solar Energy Limited, Waaree Energies Ltd, and Waaree Solar Americas (collectively, Indian Joint Respondents), argued there is no reasonable overlap of competition among subject imports from India and those from Laos and Indonesia explained by (1) the lack of Chinese ownership of Indian entities; (2) the levels of imports on the basis of quantity and value; (3) the pricing trends of the imports; and (4) the existence of a vibrant and growing home market. Indian joint respondents’ postconference brief, p. 3. 9 ***’s and ***’s U.S. shipment data were adjusted for reconciliation purposes. 4.15 Table 4.7 CSPV cells and modules: U.S. producers’ and U.S. importers’ U.S. shipments, by source and type, 2024 Quantity in kilowatts Source Cells: Bifacial Cells: Non- bifacial Modules: Non- bifacial using bifacial cells Modules: Non- bifacial using non- bifacial cells Modules: Bifacial using bifacial cells All cells and modules U.S. producers *** *** *** *** *** *** India *** *** *** *** *** *** Indonesia *** *** *** *** *** *** Laos *** *** *** *** *** *** Subject sources *** *** *** *** *** *** Nonsubject sources *** *** *** *** *** *** All import sources *** *** *** *** *** *** All sources *** *** *** *** *** *** Table continued. Table 4.7 Continued CSPV cells and modules: U.S. producers’ and U.S. importers’ U.S. shipments, by source and type, 2024 Share across in percent Source Cells: Bifacial Cells: Non- bifacial Modules: Non- bifacial using bifacial cells Modules: Non- bifacial using non- bifacial cells Modules: Bifacial using bifacial cells All cells and modules U.S. producers *** *** *** *** *** 100.0 India *** *** *** *** *** 100.0 Indonesia *** *** *** *** *** 100.0 Laos *** *** *** *** *** 100.0 Subject sources *** *** *** *** *** 100.0 Nonsubject sources *** *** *** *** *** 100.0 All import sources *** *** *** *** *** 100.0 All sources *** *** *** *** *** 100.0 Table continued. 4.16 Table 4.7 Continued CSPV cells and modules: U.S. producers’ and U.S. importers’ U.S. shipments, by source and type, 2024 Share down in percent Source Cells: Bifacial Cells: Non- bifacial Modules: Non- bifacial using bifacial cells Modules: Non- bifacial using non- bifacial cells Modules: Bifacial using bifacial cells All cells and modules U.S. producers *** *** *** *** *** *** India *** *** *** *** *** *** Indonesia *** *** *** *** *** *** Laos *** *** *** *** *** *** Subject sources *** *** *** *** *** *** Nonsubject sources *** *** *** *** *** *** All import sources *** *** *** *** *** *** All sources 100.0 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 4.17 Figure 4.2 CSPV cells and modules: U.S. producers' and U.S. importers' U.S. shipments, by source and type, 2024 * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. 4.18 Geographical markets Table 4.8 presents U.S. imports by source and border of entry in 2024. In 2024, U.S. imports of CSPV cells and modules from India, Indonesia, Laos, and nonsubject sources entered the United States through ports located in all four regions. The largest share of CSPV cells and modules from India, entered the United States through ports in the South, and for Indonesia, and nonsubject sources most of CSPV cells and modules entered the United States through ports in the West. Most of CSPV cells and modules from Laos entered through ports in the North. Table 4.8 CSPV cells and modules: U.S. imports, by source and border of entry, 2024 Quantity in kilowatts Source East North South West All borders India 445,216 80,179 1,604,506 167,405 2,297,306 Indonesia 358,219 251,585 410,506 783,512 1,803,822 Laos 300,972 761,878 698,732 146,626 1,908,208 Subject sources 1,104,407 1,093,642 2,713,744 1,097,543 6,009,337 Nonsubject sources 12,047,961 6,621,296 12,763,804 21,102,156 52,535,216 All import sources 13,152,368 7,714,938 15,477,548 22,199,699 58,544,553 Table continued. Table 4.8 Continued CSPV cells and modules: U.S. imports, by source and border of entry, 2024 Share in percent Source East North South West All borders India 19.4 3.5 69.8 7.3 100.0 Indonesia 19.9 13.9 22.8 43.4 100.0 Laos 15.8 39.9 36.6 7.7 100.0 Subject sources 18.4 18.2 45.2 18.3 100.0 Nonsubject sources 22.9 12.6 24.3 40.2 100.0 All import sources 22.5 13.2 26.4 37.9 100.0 Table continued. 4.19 Table 4.8 Continued CSPV cells and modules: U.S. imports, by source and border of entry, 2024 Share down in percent Source East North South West All borders India 3.4 1.0 10.4 0.8 3.9 Indonesia 2.7 3.3 2.7 3.5 3.1 Laos 2.3 9.9 4.5 0.7 3.3 Subject sources 8.4 14.2 17.5 4.9 10.3 Nonsubject sources 91.6 85.8 82.5 95.1 89.7 All import sources 100.0 100.0 100.0 100.0 100.0 Source: Compiled from official U.S. import statistics of the U.S. Department of Commerce Census Bureau using statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed on August 13, 2025. Imports are based on the imports for consumption data series. 4.20 Presence in the market Table 4.9 and figures 4.3 and 4.4 present monthly official U.S. import statistics for CSPV cells and modules and subject and nonsubject sources. Imports of CSPV cells and modules from India, Indonesia, and nonsubject sources were present in every month during January 2022 through June 2025. Imports of CSPV cells and modules from Laos started in December 2023 and were present in 18 months of 42 months, during January 2022 through June 2025. Table 4.9 CSPV cells and modules: Quantity of U.S. imports, by source and month Quantity in kilowatts Year Month India Indonesia Laos Subject sources Nonsubject sources All import sources 2022 January 7,900 15,447 — 23,347 1,156,665 1,180,011 2022 February 8,598 7,218 — 15,817 1,503,452 1,519,268 2022 March 5,438 15,805 — 21,242 1,829,656 1,850,898 2022 April 10,767 38,605 — 49,372 1,537,506 1,586,878 2022 May 14,601 30,221 — 44,822 1,904,536 1,949,358 2022 June 11,874 23,176 — 35,051 1,782,132 1,817,183 2022 July 9,119 36,924 — 46,043 1,513,384 1,559,427 2022 August 9,749 40,164 — 49,913 2,196,455 2,246,368 2022 September 29,819 57,219 — 87,038 2,316,352 2,403,390 2022 October 27,115 84,698 — 111,813 2,915,284 3,027,098 2022 November 44,772 54,348 — 99,119 2,805,058 2,904,178 2022 December 52,668 95,287 — 147,955 3,236,265 3,384,220 2023 January 71,766 102,902 — 174,668 3,370,347 3,545,015 2023 February 55,991 34,762 — 90,753 2,924,842 3,015,595 2023 March 119,672 71,793 — 191,465 3,603,249 3,794,714 2023 April 108,872 44,700 — 153,573 2,822,043 2,975,615 2023 May 132,227 34,154 — 166,381 3,575,480 3,741,861 2023 June 162,905 46,742 — 209,648 3,496,179 3,705,827 2023 July 208,259 1,723 — 209,982 4,258,208 4,468,190 2023 August 293,467 28,737 — 322,204 3,914,738 4,236,942 2023 September 386,826 18,381 — 405,207 3,832,212 4,237,419 2023 October 283,312 10,298 — 293,610 4,474,294 4,767,905 2023 November 132,184 46,323 — 178,507 3,568,851 3,747,358 2023 December 93,487 81,338 45 174,869 3,710,239 3,885,108 Table continued. 4.21 Table 4.9 Continued CSPV cells and modules: Quantity of U.S. imports, by source and month Quantity in kilowatts Year Month India Indonesia Laos Subject sources Nonsubject sources All import sources 2024 January 100,886 64,652 6,070 171,607 4,010,692 4,182,300 2024 February 93,480 126,265 5,174 224,919 3,949,662 4,174,581 2024 March 59,794 116,706 1,552 178,052 5,405,910 5,583,962 2024 April 180,175 148,078 818 329,072 5,225,359 5,554,431 2024 May 573,536 134,404 — 707,940 5,395,282 6,103,222 2024 June 329,521 110,798 95 440,414 5,454,579 5,894,993 2024 July 184,715 143,302 21,614 349,631 5,699,752 6,049,383 2024 August 199,860 86,790 185,565 472,215 5,092,116 5,564,330 2024 September 234,925 199,500 262,203 696,628 4,782,119 5,478,747 2024 October 76,648 254,056 333,966 664,669 3,340,843 4,005,513 2024 November 169,264 236,159 643,669 1,049,092 3,114,191 4,163,283 2024 December 94,502 183,114 447,482 725,097 1,064,712 1,789,809 2025 January 68,397 346,932 203,559 618,888 901,725 1,520,613 2025 February 89,199 383,432 404,802 877,433 2,516,236 3,393,668 2025 March 126,184 623,385 928,397 1,677,966 1,947,056 3,625,022 2025 April 82,962 869,575 1,107,559 2,060,095 2,452,543 4,512,638 2025 May 286,917 1,528,785 1,556,501 3,372,203 3,210,413 6,582,616 2025 June 355,195 2,122,518 2,256,116 4,733,829 1,830,195 6,564,024 Source: Compiled from official U.S. import statistics of the U.S. Department of Commerce Census Bureau using statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed on August 13, 2025. Imports are based on the imports for consumption data series. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 4.22 Figure 4.3 CSPV cells and modules: U.S. imports from individual subject sources, by month Source: Compiled from official U.S. import statistics of the U.S. Department of Commerce Census Bureau using statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed on August 13, 2025. Imports are based on the imports for consumption data series. 0 500 1,000 1,500 2,000 2,500 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun 2022 2023 2024 2025 Quantity (megawatts) India Indonesia Laos 4.23 Figure 4.4 CSPV cells and modules: U.S. imports from aggregated subject and nonsubject sources, by month Source: Compiled from official U.S. import statistics of the U.S. Department of Commerce Census Bureau using statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed on August 13, 2025. Imports are based on the imports for consumption data series. Note: Final determination of circumvention of the China orders for select suppliers in Cambodia, Malaysia, Thailand, and Vietnam August 23, 2023 ("circumvention" in the figure) but duties were exempted for a period through June 2024 by Presidential order; Provisional duties were applied to imports from select suppliers in Cambodia, Malaysia, Thailand, and Vietnam as a result of preliminary findings of sales at less than fair value and subsidization in the previous solar investigations December 4, 2024 for AD investigations and October 4, 2024 for CVD investigations ("provisional duties" in the figure); Antidumping duty and countervailing duty orders were issued for select suppliers in Cambodia, Malaysia, Thailand, and Vietnam as a result of final findings of sales at less than fair value and subsidization and injury (or threat of injury) to a U.S. industry June 24, 2025 ("issuance of orders" in the figure). Issuance of orders Provisional duties Provisional duties Circumvention Circumvention 0 0.1 0.2 0.3 0.4 0.5 0.6 0.7 0.8 0.9 1 0 1,000 2,000 3,000 4,000 5,000 6,000 7,000 Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar Apr May Jun 2022 2023 2024 2025 Quantity (megawatts) Subject Nonsubject Issuance of orders Provisional duties Circumvention 4.24 Apparent U.S. consumption and market shares Quantity Table 4.10 and figure 4.5 present data on apparent U.S. consumption and U.S. market shares by quantity for CSPV cells and modules. By quantity, apparent U.S. consumption increased by *** percent between 2022 and 2024 and was lower by *** percent in interim 2025, than in interim 2024. The market shares of subject imports steadily increased by quantity between 2022 and 2024 by *** percentage points from *** percent in 2022 to *** percent in 2024 and were higher in interim 2025 by *** percentage points, than in interim 2024. The share of quantity of nonsubject sources decreased by *** percentage points between 2022 and 2024 and was lower in interim 2025 by *** percentage points, than in interim 2024. 4.25 Table 4.10 CSPV cells and modules: Apparent U.S. consumption and market shares based on quantity, by source and period Quantity in kilowatts; shares in percent; interim is January through March Source Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. producers Quantity *** *** *** *** *** India Quantity *** *** *** *** *** Indonesia Quantity *** *** *** *** *** Laos Quantity *** *** *** *** *** Subject sources Quantity *** *** *** *** *** Nonsubject sources Quantity *** *** *** *** *** All import sources Quantity *** *** *** *** *** All sources Quantity *** *** *** *** *** U.S. producers Share *** *** *** *** *** India Share *** *** *** *** *** Indonesia Share *** *** *** *** *** Laos Share *** *** *** *** *** Subject sources Share *** *** *** *** *** Nonsubject sources Share *** *** *** *** *** All import sources Share *** *** *** *** *** All sources Share 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Quantity for U.S. producers' U.S. shipments only reflects domestically produced cells to assemble into modules. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported as an import. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.26 Figure 4.5 CSPV cells and modules: Apparent U.S. consumption based on quantity, by source and period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Quantity for U.S. producers' U.S. shipments only reflects domestically produced cells to assemble into modules. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported as an import. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. Value Table 4.11 and figure 4.6 present data on apparent U.S. consumption and U.S. market shares by value for CSPV cells and modules. By value, apparent U.S. consumption increased by *** percent between 2022 and 2024 and was lower by *** percent in interim 2025, than in interim 2024. The market shares of subject imports steadily increased by value between 2022 and 2024 by *** percentage points from *** percent in 2022 to *** percent in 2024 and were higher in interim 2025 by *** percentage points, than in interim 2024. The share of quantity of nonsubject sources decreased by *** percentage points between 2022 and 2024 and was lower in interim 2025 by *** percentage points, than in interim 2024. 4.27 Table 4.11 CSPV cells and modules: Apparent U.S. consumption and market shares based on value, by source and period Value in 1,000 dollars; shares in percent; interim period is January through March Source Measure 2022 2023 2024 Interim 2024 Interim 2025 U.S. producers: Fully domestic value Value *** *** *** *** *** U.S. producers: Value added to imports Value *** *** *** *** *** U.S. producers: Overall value Value *** *** *** *** *** India Value *** *** *** *** *** Indonesia Value *** *** *** *** *** Laos Value *** *** *** *** *** Subject sources Value *** *** *** *** *** Nonsubject sources Value *** *** *** *** *** All import sources Value *** *** *** *** *** All sources Value *** *** *** *** *** U.S. producers: Fully domestic value Share *** *** *** *** *** U.S. producers: Value added to imports Share *** *** *** *** *** U.S. producers: Overall value Share *** *** *** *** *** India Share *** *** *** *** *** Indonesia Share *** *** *** *** *** Laos Share *** *** *** *** *** Subject sources Share *** *** *** *** *** Nonsubject sources Share *** *** *** *** *** All import sources Share *** *** *** *** *** All sources Share 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Value for U.S. producers' U.S. shipments reflects domestically produced cells to assemble into modules and the incremental value added by U.S. module producers to imported CSPV cells. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported as an import. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.28 Figure 4.6 CSPV cells and modules: Apparent U.S. consumption based on value, by source and period * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Value for U.S. producers' U.S. shipments reflects domestically produced cells to assemble into modules and the incremental value added by U.S. module producers to imported CSPV cells. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported as an import. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. Table 4.12 presents U.S. producers’ U.S. shipments of CSPV modules and ratios to overall U.S. apparent consumption. U.S. producers’ ratios of CSPV modules to overall apparent consumption increased between 2022 and 2024 by *** percentage points, by quantity, from *** percent in 2022 to *** percent in 2024, and were higher in interim 2025 by *** percentage points, than in interim 2024. By value, U.S. producers’ ratios of CSPV modules to overall apparent consumption increased between 2022 and 2024 by *** percentage points, from *** percent in 2022 to *** percent in 2024, and were higher in interim 2025 by *** percentage points, than in interim 2024. 4.29 Table 4.12 CSPV cells and modules: U.S. producers' U.S. shipments of modules and ratio to overall apparent consumption of cells and modules, by period Quantity in kilowatts; value in 1,000 dollars; ratios in percent Product type Measure 2022 2023 2024 Interim 2024 Interim 2025 Modules Quantity *** *** *** *** *** Modules Value *** *** *** *** *** Modules Quantity ratio *** *** *** *** *** Modules Value ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: The ratios (i.e., quantity ratio, and value ratio) represent the portion of overall apparent consumption the U.S. producers' shipments of modules account for out of the overall apparent consumption of the single domestic like product version of apparent consumption that includes both cells and modules. These are ratios, not shares since these numbers were not used to construct the apparent consumption for cells and modules together, rather the inputs into domestic production (cells) were the basis for the combined data. There are likely differences in timing and data coverage between the input used in apparent consumption (cells) and the finished good of the U.S. module producers (modules). Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.30 Table 4.13 presents apparent U.S. consumption and market shares based on quantity, by source and by quarter. Table 4.13 CSPV cells and modules: Apparent U.S. consumption and market shares based on quantity data, by source and quarter Quantity in kilowatts; shares in percent Source Measure 2024 Q1 2024 Q2 2024 Q3 2024 Q4 2025 Q1 U.S. producers Quantity *** *** *** *** *** India Quantity *** *** *** *** *** Indonesia Quantity *** *** *** *** *** Laos Quantity *** *** *** *** *** Subject sources Quantity *** *** *** *** *** Nonsubject sources Quantity *** *** *** *** *** All import sources Quantity *** *** *** *** *** All sources Quantity *** *** *** *** *** U.S. producers Share *** *** *** *** *** India Share *** *** *** *** *** Indonesia Share *** *** *** *** *** Laos Share *** *** *** *** *** Subject sources Share *** *** *** *** *** Nonsubject sources Share *** *** *** *** *** All import sources Share *** *** *** *** *** All sources Share 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Quantity for U.S. producers' U.S. shipments only reflects domestically produced cells to assemble into modules. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported as an import. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.31 Figure 4.7 CSPV cells and modules: Market shares based on quantity data, by source and quarter * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Quantity for U.S. producers' U.S. shipments only reflects domestically produced cells to assemble into modules. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported as an import. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 4.32 Table 4.14 presents U.S. producers’ U.S. shipments of modules and ratios to overall apparent U.S. consumption of cells and modules, by quarter. Table 4.14 CSPV cells and modules: U.S. producers' U.S. shipments of modules and ratio to overall apparent U.S. consumption of cells and modules, by quarter Quantity in kilowatts; ratios in percent Product type Measure 2024 Q1 2024 Q2 2024 Q3 2024 Q4 2025 Q1 Modules Quantity *** *** *** *** *** Modules Ratio *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: The ratio represents the portion of overall apparent consumption the U.S. producers' shipments of modules account for out of the overall apparent consumption of the single domestic like product version of apparent consumption that includes both cells and modules. This is a ratio, not a share, since these numbers were not used to construct the apparent consumption for cells and modules together; rather the inputs into domestic production (cells) were the basis for the combined data. There are likely differences in timing and data coverage between the input used in apparent consumption (cells) and the finished good of the U.S. module producers (modules). Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 5.1 Part 5: Pricing data Factors affecting prices Raw material costs The main underlying raw material input for CSPV cells is polysilicon, which is used to make ingots and wafers. CSPV cells are in turn then assembled, along with other components, including solar glass, aluminum frames, junction boxes, and backsheet, into CSPV modules. As shown in table 5.1 and figure 5.1, the global average price for monocrystalline wafers fluctuated downwards throughout 2022 to 2024, decreasing overall by *** to *** percent, depending on the wafer type. The prices for different wafer sizes also converged toward the end of the period, though larger wafer sizes (such as 210mm) were still more expensive than smaller ones (such as 156mm). As shown in table 5.2 and figure 5.2, the global average price for monocrystalline cells followed a similar pattern, ending lower in December 2024 than in January 2022. Cell prices showed even greater convergence over the period than wafer prices. Table 5.1 Wafer prices: Average prices for monocrystalline wafers, by month Prices in dollars per wafer Year Month 210mm N-type mono wafer 210mm mono wafer 182mm N-type mono wafer 182mm mono wafer 161.7mm N-type mono wafer 156mm N-type mono wafer 156mm P-type mono wafer 2022 January *** *** *** *** *** *** *** 2022 February *** *** *** *** *** *** *** 2022 March *** *** *** *** *** *** *** 2022 April *** *** *** *** *** *** *** 2022 May *** *** *** *** *** *** *** 2022 June *** *** *** *** *** *** *** 2022 July *** *** *** *** *** *** *** 2022 August *** *** *** *** *** *** *** 2022 September *** *** *** *** *** *** *** 2022 October *** *** *** *** *** *** *** 2022 November *** *** *** *** *** *** *** 2022 December *** *** *** *** *** *** *** 2023 January *** *** *** *** *** *** *** 2023 February *** *** *** *** *** *** *** 2023 March *** *** *** *** *** *** *** 2023 April *** *** *** *** *** *** *** 2023 May *** *** *** *** *** *** *** 2023 June *** *** *** *** *** *** *** Table continued. 5.2 Table 5.1 Continued Wafer prices: Average prices for monocrystalline wafers, by month Prices in dollars per wafer Year Month 210mm N-type mono wafer 210mm mono wafer 182mm N-type mono wafer 182mm mono wafer 161.7mm N-type mono wafer 156mm N-type mono wafer 156mm P-type mono wafer 2023 July *** *** *** *** *** *** *** 2023 August *** *** *** *** *** *** *** 2023 September *** *** *** *** *** *** *** 2023 October *** *** *** *** *** *** *** 2023 November *** *** *** *** *** *** *** 2023 December *** *** *** *** *** *** *** 2024 January *** *** *** *** *** *** *** 2024 February *** *** *** *** *** *** *** 2024 March *** *** *** *** *** *** *** 2024 April *** *** *** *** *** *** *** 2024 May *** *** *** *** *** *** *** 2024 June *** *** *** *** *** *** *** 2024 July *** *** *** *** *** *** *** 2024 August *** *** *** *** *** *** *** 2024 September *** *** *** *** *** *** *** 2024 October *** *** *** *** *** *** *** 2024 November *** *** *** *** *** *** *** 2024 December *** *** *** *** *** *** *** Source: *** accessed March 10, 2025. Figure 5.1 Wafer prices: Average prices for monocrystalline wafers, by month * * * * * * * Source: *** accessed March 10, 2025. 5.3 Table 5.2 Cell prices: Average prices for monocrystalline cells, by month Prices in dollars per kilowatt Year Month Mono cell N-type mono cell PERC mono cell 2022 January *** *** *** 2022 February *** *** *** 2022 March *** *** *** 2022 April *** *** *** 2022 May *** *** *** 2022 June *** *** *** 2022 July *** *** *** 2022 August *** *** *** 2022 September *** *** *** 2022 October *** *** *** 2022 November *** *** *** 2022 December *** *** *** 2023 January *** *** *** 2023 February *** *** *** 2023 March *** *** *** 2023 April *** *** *** 2023 May *** *** *** 2023 June *** *** *** 2023 July *** *** *** 2023 August *** *** *** 2023 September *** *** *** 2023 October *** *** *** 2023 November *** *** *** 2023 December *** *** *** 2024 January *** *** *** 2024 February *** *** *** 2024 March *** *** *** 2024 April *** *** *** 2024 May *** *** *** 2024 June *** *** *** 2024 July *** *** *** 2024 August *** *** *** 2024 September *** *** *** 2024 October *** *** *** 2024 November *** *** *** 2024 December *** *** *** Source: *** accessed March 10, 2025. 5.4 Figure 5.2 Cell prices: Average prices for monocrystalline cells, by month * * * * * * * Source: *** accessed March 10, 2025. Transportation costs to the U.S. market Transportation costs for CSPV products shipped from subject countries to the United States averaged 1.7 percent for India, 2.0 percent for Indonesia, and 7.5 percent for Laos during 2024. These estimates were derived from official import data and represent the transportation and other charges on imports.1 U.S. inland transportation costs Nine responding U.S. producers and 28 importers reported that they typically arrange transportation to their customers. Most U.S. producers reported that their U.S. inland transportation costs ranged from 0.4 to 5.0 percent while most importers reported costs of 0.5 to 35.0 percent. 1 The estimated transportation costs were obtained by subtracting the customs value from the c.i.f. value of the imports for 2024 and then dividing by the customs value based on the HTS statistical reporting number 8541.42.0010 and 8541.43.0010. 5.5 Pricing practices Pricing methods U.S. producers and importers reported setting prices using transaction-by-transaction negotiations, contracts, set price lists, and other methods (table 5.3). Most U.S. producers and importers reported setting prices using transaction-by-transaction negotiations and contracts. Table 5.3 CSPV cells and modules: Count of U.S. producers’ and importers’ reported price setting methods Count in number of firms reporting Method U.S. producers Importers Transaction-by-transaction 10 22 Contract 9 25 Set price list 6 10 Other 0 6 Responding firms 15 41 Source: Compiled from data submitted in response to Commission questionnaires. Note: The sum of responses down may not add up to the total number of responding firms as each firm was instructed to check all applicable price setting methods employed. U.S. producers and subject U.S. importers reported mostly using short-term contracts (table 5.4). A majority of the domestic industry’s reported commercial shipments were through short-term contracts with smaller shares reported for annual contracts, long-term contracts, and spot sales.2 The average duration of a typical short-term contract for responding U.S. producers ranged from 10 to 270 days. The vast majority of responding U.S. importers’ commercial shipments were through short-term contracts. The average duration of a typical short-term contract as reported by U.S. importers ranged from 30 days to almost a year. 2 ***. 5.6 Table 5.4 CSPV cells and modules: U.S. producers’ and importers’ shares of commercial U.S. shipments by type of sale, 2024 Share in percent Sale type U.S. producers Subject U.S. importers Long-term contracts *** *** Annual contract *** *** Short-term contracts *** *** Spot sales *** *** All sales types 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Because of rounding, figures may not add to the totals shown. Sales terms and discounts U.S. producers and importers were asked whether their firm’s prices of CSPV products from subject sources were usually quoted on a delivered or f.o.b. basis, and to describe their firm’s discount policies. Eight U.S. producers reported they usually quote on a f.o.b. basis, and seven reported they usually quote on a delivered basis. Most responding U.S. importers (21 of 31) reported they usually quote their prices on a delivered basis (with 12 quoting on an f.o.b. basis). Most responding U.S. producers (10 of 15) and most U.S. importers (23 of 41 responding) reported offering no discount policy. Four U.S. producers and 11 importers offered quantity discounts. Two U.S. producers and 11 importers offered total volume discounts. One U.S. producer and six importers offered other discounts, usually case- or customer-specific discounts. 5.7 Price data The Commission requested U.S. producers and importers to provide quarterly data for the total quantity and f.o.b. value of the following CSPV products shipped to unrelated U.S. customers during January 2022 to March 2025. Product 1.-- Monocrystalline silicon module with front-side area of less than 2.2 square meters and a peak power wattage between 380w and 450w, inclusive, P-max or Wp as measured under Standard Test Conditions (STC), excluding bifacial modules. Product 2.-- Monocrystalline silicon module with front-side area of greater than or equal to 2.2 square meters and a peak power wattage between 320w and 440w, inclusive, P-max or Wp as measured under STC, excluding bifacial modules. Product 3.-- Monocrystalline silicon bifacial module that generates power on both sides of the panel with a front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 320w and 450w, inclusive, P-max or Wp as measured under STC. Product 4.-- Monocrystalline silicon bifacial module that generates power on both sides of the panel with front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 485w and 585w, inclusive, P-max or Wp as measured under STC. Seven U.S. producers, eight importers of Indian CSPV products, five importers of CSPV products from Indonesia, and two importers of CPSV products from Laos provided usable pricing data for sales of the requested products, although not all firms reported pricing for all products for all quarters. Pricing data reported by these firms accounted for approximately *** percent of reported U.S. producers’ shipments of CSPV products, *** percent of reported U.S. shipments of subject imports from India, *** percent of reported U.S. shipments of subject imports from Indonesia, and *** percent of reported U.S. shipments of subject imports from Laos in 2024. Price data for products 1 to 4 are presented in tables 5.5 to 5.8 and figures 5.3 to 5.6. 5.8 Table 5.5 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 1 and margins of underselling/(overselling), by source and quarter Price in dollars per kilowatt, quantity in kilowatts, margin in percent. Period U.S. price U.S. quantity India price India quantity India margin Indonesia price Indonesia quantity Indonesia margin 2022 Q1 *** *** *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** *** *** Period Laos price Laos quantity Laos margin Subject price Subject quantity Subject margin 2022 Q1 *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: Monocrystalline silicon module with front-side area of less than 2.2 square meters and a peak power wattage between 380w and 450w, inclusive, P‐max or Wp as measured under Standard Test Conditions (STC), excluding bifacial modules. 5.9 Figure 5.3 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 1, by source and quarter Price of product 1 * * * * * * * Volume of product 1 * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 1: Monocrystalline silicon module with front-side area of less than 2.2 square meters and a peak power wattage between 380w and 450w, inclusive, P‐max or Wp as measured under Standard Test Conditions (STC), excluding bifacial modules. 5.10 Table 5.6 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 2 and margins of underselling/(overselling), by source and quarter Price in dollars per kilowatt, quantity in kilowatts, margin in percent. Period U.S. price U.S. quantity India price India quantity India margin Indonesia price Indonesia quantity Indonesia margin 2022 Q1 *** *** *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** *** *** Period Laos price Laos quantity Laos margin Subject price Subject quantity Subject margin 2022 Q1 *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 2: Monocrystalline silicon module with front-side area of greater than or equal to 2.2 square meters and a peak power wattage between 320w and 440w, inclusive, P‐max or Wp as measured under STC, excluding bifacial modules. 5.11 Figure 5.4 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 2, by source and quarter Price of product 2 * * * * * * * Volume of product 2 * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 2: Monocrystalline silicon module with front-side area of greater than or equal to 2.2 square meters and a peak power wattage between 320w and 440w, inclusive, P‐max or Wp as measured under STC, excluding bifacial modules. 5.12 Table 5.7 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 3 and margins of underselling/(overselling), by source and quarter Price in dollars per kilowatt, quantity in kilowatts, margin in percent. Period U.S. price U.S. quantity India price India quantity India margin Indonesia price Indonesia quantity Indonesia margin 2022 Q1 *** *** *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** *** *** Period Laos price Laos quantity Laos margin Subject price Subject quantity Subject margin 2022 Q1 *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 3: Monocrystalline silicon bifacial module that generates power on both sides of the panel with a front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 320w and 450w, inclusive, P-max or Wp as measured under STC. 5.13 Figure 5.5 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 3, by source and quarter Price of product 3 * * * * * * * Volume of product 3 * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 3: Monocrystalline silicon bifacial module that generates power on both sides of the panel with a front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 320w and 450w, inclusive, P-max or Wp as measured under STC. 5.14 Table 5.8 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 4 and margins of underselling/(overselling), by source and quarter Price in dollars per kilowatt, quantity in kilowatts, margin in percent. Period U.S. price U.S. quantity India price India quantity India margin Indonesia price Indonesia quantity Indonesia margin 2022 Q1 *** *** *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** *** *** Period Laos price Laos quantity Laos margin Subject price Subject quantity Subject margin 2022 Q1 *** *** *** *** *** *** 2022 Q2 *** *** *** *** *** *** 2022 Q3 *** *** *** *** *** *** 2022 Q4 *** *** *** *** *** *** 2023 Q1 *** *** *** *** *** *** 2023 Q2 *** *** *** *** *** *** 2023 Q3 *** *** *** *** *** *** 2023 Q4 *** *** *** *** *** *** 2024 Q1 *** *** *** *** *** *** 2024 Q2 *** *** *** *** *** *** 2024 Q3 *** *** *** *** *** *** 2024 Q4 *** *** *** *** *** *** 2025 Q1 *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 4: Monocrystalline silicon bifacial module that generates power on both sides of the panel with front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 485w and 585w, inclusive, P-max or Wp as measured under STC. 5.15 Figure 5.6 CSPV modules: Weighted-average f.o.b. prices and quantities of domestic and imported product 4, by source and quarter Price of product 4 * * * * * * * Volume of product 4 * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Note: Product 4: Monocrystalline silicon bifacial module that generates power on both sides of the panel with front-side area of greater than or equal to 1.9 square meters and a peak power wattage between 485w and 585w, inclusive, P-max or Wp as measured under STC. 5.16 Price trends In general, prices generally decreased during 2022 to 2024. Table 5.9 summarizes the price trends, by country and by product. As shown in the table, domestic price decreases ranged from *** to *** percent while import price increases ranged from *** to *** percent. Table 5.9 CSPV modules: Summary of price data, by product and source, January 2022 through March 2025 Quantity in kilowatts, price in dollars per kilowatt; change in percent Product Source Number of quarters Quantity of shipments Low price High price First quarter price Last quarter price Quarterly Change Percent change in price over period Product 1 United States 13 *** *** *** *** *** *** *** Product 1 India 13 *** *** *** *** *** *** *** Product 1 Indonesia 2 *** *** *** *** *** *** *** Product 1 Laos — *** *** *** *** *** *** *** Product 2 United States 11 *** *** *** *** *** *** *** Product 2 India — *** *** *** *** *** *** *** Product 2 Indonesia 2 *** *** *** *** *** *** *** Product 2 Laos — *** *** *** *** *** *** *** Product 3 United States 13 *** *** *** *** *** *** *** Product 3 India — *** *** *** *** *** *** *** Product 3 Indonesia 13 *** *** *** *** *** *** *** Product 3 Laos 2 *** *** *** *** *** *** *** Product 4 United States 7 *** *** *** *** *** *** *** Product 4 India 13 *** *** *** *** *** *** *** Product 4 Indonesia 8 *** *** *** *** *** *** *** Product 4 Laos 3 *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Quarterly change is the average quarterly change from the first observation to the last observation in the specified product and source and is only presented if there are at least two observations. Percent change in price over period is the percentage change from the first quarter to the last quarter of the data collection period and is only presented if there is data reported in those quarters. Note: Percent change column is percentage change from the first quarter 2022 to the last quarter in 2025. 5.17 Price comparisons As shown in table 5.10, prices for product imported from India were below those for U.S.-produced product in 2 of 20 instances (*** kilowatts); margins of underselling ranged from *** to *** percent. In the remaining 18 instances (*** kilowatts), prices for product from India were between *** and *** percent above prices for the domestic product. Prices for product imported from Indonesia were below those for U.S.-produced product in 21 of 23 instances (*** kilowatts) margins of underselling ranged from *** to *** percent. In the remaining 2 instances (*** kilowatts), prices for product from Indonesia were between *** and *** percent above prices for the domestic product. Prices for product imported from Laos were below those for U.S.-produced product in three of five instances (*** kilowatts); margins of underselling ranged from *** to *** percent. In the remaining two instances (*** kilowatts), prices for product from Laos were between *** to *** percent above prices for the domestic product. Table 5.10 CSPV cells and modules: Instances of underselling and overselling and the range and average of margins, by product, January 2022 through March 2025 Quantity in kilowatts; margin in percent Product Type Number of quarters Quantity Average margin Min margin Max margin Product 1 Underselling 2 *** *** *** *** Product 2 Underselling 2 *** *** *** *** Product 3 Underselling 13 *** *** *** *** Product 4 Underselling 9 *** *** *** *** All products Underselling 26 *** *** *** *** Product 1 Overselling 13 *** *** *** *** Product 2 Overselling — *** *** *** *** Product 3 Overselling 2 *** *** *** *** Product 4 Overselling 7 *** *** *** *** All products Overselling 22 *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: These data include only quarters in which there is a comparison between the U.S. and subject product. 5.18 Table 5.11 CSPV cells and modules: Instances of underselling and overselling and the range and average of margins, by source Quantity in kilowatts; margin in percent Source Type Number of quarters Quantity Average margin Min margin Max margin India Underselling 2 *** *** *** *** Indonesia Underselling 21 *** *** *** *** Laos Underselling 3 *** *** *** *** All subject sources Underselling 26 *** *** *** *** India Overselling 18 *** *** *** *** Indonesia Overselling 2 *** *** *** *** Laos Overselling 2 *** *** *** *** All subject sources Overselling 22 *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: These data include only quarters in which there is a comparison between the U.S. and subject product. Table 5.12 CSPV cells and modules: Instances of underselling and overselling and the range and average of margins, by year Quantity in kilowatts; margin in percent Year Type Number of quarters Quantity Average margin Min margin Max margin 2022 Underselling 8 *** *** *** *** 2023 Underselling 7 *** *** *** *** 2024 Underselling 9 *** *** *** *** January through March 2025 Underselling 2 *** *** *** *** All periods Underselling 26 *** *** *** *** 2022 Overselling 4 *** *** *** *** 2023 Overselling 5 *** *** *** *** 2024 Overselling 10 *** *** *** *** January through March 2025 Overselling 3 *** *** *** *** All periods Overselling 22 *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: These data include only quarters in which there is a comparison between the U.S. and subject product. Lost sales and lost revenue The Commission requested that U.S. producers of CSPV products report purchasers with which they experienced instances of lost sales or revenue due to competition from imports of CSPV products from India, Indonesia, and Laos during January 2022 through March 2025. Of the 14 responding U.S. producers, four reported that they had to reduce prices, two reported that 5.19 they had to roll back announced price increases, and three firms reported that they had lost sales. Two U.S. producers submitted lost sales and lost revenue allegations. The two responding U.S. producers identified five firms with which they lost sales or revenue (three consisting lost sales allegations, none consisting of lost revenue allegations, and two consisting of both types of allegations). Staff contacted five purchasers and received responses from four purchasers. Responding purchasers reported purchasing *** million kilowatts of CSPV cells and modules during January 2022 to March 2025 (table 5.13). During the same period, responding purchasers purchased *** from U.S. producers. ***. Table 5.13 CSPV cells and modules: Purchasers’ reported purchases and imports, by firm and source Quantity in kilowatts; Change in shares in percentage points Purchaser Domestic quantity Subject quantity All other quantity Change in domestic share Change in subject country share *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** All firms *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: ***. The “all other” category includes unknown sources. Changes in shares represent the share of the firm’s total purchases of domestic and/or subject country imports between first and last years and are presented in percentage points. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Purchasers were asked about changes in their purchasing patterns from different sources since 2022 (table 5.14). Purchasers *** reported increasing purchases from ***. *** reported decreased purchases from ***. Purchaser *** reported that, after initiation of the AD/CVD case, it *** purchases from ***. 5.20 Table 5.14 CSPV cells and modules: Count of changes in purchase patterns from U.S., subject, and nonsubject countries Count in number of firms reporting Source of purchases Steadily Increase Fluctuate Up No change Fluctuate Down Steadily Decrease Did not purchase United States 0 0 0 0 0 4 India 0 1 0 0 1 2 Indonesia 1 1 0 0 0 2 Laos 0 1 0 0 0 3 All other sources 0 1 0 2 0 1 Sources unknown 0 0 1 0 0 3 Source: Compiled from data submitted in response to Commission questionnaires. *** responding purchasers reported that, since 2022, they had purchased imported CSPV from India, Indonesia, and/or Laos instead of U.S.-produced product (tables 5.15 and 5.16). *** of these purchasers reported that subject import prices were not lower than U.S.- produced product and indicated that ***. Of the four responding purchasers, *** reported that U.S. producers had not reduced prices in order to compete with lower-priced imports from India, Indonesia, and/or Laos (table 5.17). 5.21 Table 5.15 CSPV cells and modules: Purchasers’ responses to purchasing subject imports instead of domestic product, by firm Quantity in kilowatts Purchaser Purchased subject imports instead of domestic Imports priced lower Choice based on price Quantity Explanation *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** All firms Yes: 4; No: 0 Yes: 2; No: 2 Yes: 1; No: 3 *** NA Source: Compiled from data submitted in response to Commission questionnaires. 5.22 Table 5.16 CSPV cells and modules: Purchasers’ responses to purchasing subject imports instead of domestic product, by source Quantity in kilowatts Source Count of purchasers reporting subject instead of domestic Count of purchasers reported that imports were priced lower Count of purchasers reporting that price was a primary reason for shift Quantity India 2 1 0 *** Indonesia 3 2 1 *** Laos 1 1 0 *** Subject sources 4 2 1 *** Source: Compiled from data submitted in response to Commission questionnaires. Table 5.17 CSPV cells and modules: Purchasers’ responses to U.S. producer price reductions, by firm Purchaser Reported producers lowered prices Estimated percent of U.S. price reduction Explanation *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** All firms Yes: 0; No: 3 Yes: 0; No: 0 NA Source: Compiled from data submitted in response to Commission questionnaires. 6.1 Part 6: Financial experience of U.S. producers Background1 Thirteen U.S. producers provided usable financial results on their CSPV cells and modules operations: ***.2 All responding U.S. producers reported financial data on a calendar year basis and all U.S. producers but *** provided their financial data on the basis of GAAP.3 One responding U.S. producer, ***, reported sales of CSPV cells in 2024. As described earlier in this report, Hanwha GA is the largest CSPV module producer in the United States and accounted for *** of CSPV module sales from 2022 to March 2025. Despite six new module producers and one new cell producer, *** restarting production during the period examined, aggregated financial data for CSPV cells and modules largely reflect the operations of ***.4 5 Revenue primarily reflects commercial sales but also includes transfers and internal consumption. Collectively, internal consumption and transfers to related firms accounted for *** percent of net sales quantity during the period 1 The following abbreviations are used in the tables and/or text of this section: generally accepted accounting principles (“GAAP”), profit and loss statement (“P&L”), cost of goods sold (“COGS”), selling, general, and administrative expenses (“SG&A expenses”), average unit values (“AUVs”), research and development expenses (“R&D expenses”), and return on assets (“ROA”), January 1, 2022 to March 31, 2025 (“period examined”), January 1 to March 31 (“interim”), and CSPV cells and modules (“CSPV products”). 2 ***. 3 ***. *** producer questionnaire response, section 3.2.B.4. 4 *** began its CSPV production in 2023 and *** began their CSPV production in 2024. ***. *** producer questionnaire responses, section 2.2. ***. 5 Suniva’s factory closed after the company declared bankruptcy in 2017. “Once-shuttered solar factory resumes production outside Atlanta”, https://www.ajc.com/news/business/suniva-once-filed- bankruptcy-its-producing-solar-panels-again/UVX5DKR6QJGHTLTTJEJJH2QHKE/, retrieved August 13, 2025. The firm restarted CSPV cell production in ***, ***. Suniva’s producer questionnaire response, section 2.2. In this section of the report, Suniva’s CSPV cell operations are aggregated with those of CSPV module producers. 6.2 for which data were collected, and are not shown separately in this section of the report.6 Figure 6.1 presents each responding firm’s share of the total reported net sales quantity in 2024. Figure 6.1 CSPV cells and modules: U.S. producers’ share of net sales quantity in 2024, by firm * * * * * * * Source: Compiled from data submitted in response to Commission questionnaires. Operations on CSPV cells and modules Table 6.1 presents aggregated data on U.S. producers’ operations in relation to CSPV cells and modules, while table 6.2 presents corresponding changes in AUVs. Table 6.3 presents U.S. producers’ net sales by origin of cells used to produce modules. Table 6.4 presents selected company-specific financial data. 6 No transfers to related firms were reported by any U.S. producer in 2022 or 2023; four responding U.S. producers, *** reported transfers to related firms in 2024 and interim 2025. *** was the only firm that reported internal consumption in interim 2025 (no other producer reported internal consumption in 2022, 2023, 2024, or interim 2024). 6.3 Table 6.1 CSPV cells and modules: U.S. producers’ results of operations, by item and period Quantity in kilowatts; value in 1,000 dollars; ratios in percent; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Total net sales Quantity *** *** *** *** *** Total net sales Value *** *** *** *** *** COGS: Raw materials Value *** *** *** *** *** COGS: Direct labor Value *** *** *** *** *** COGS: Other factory Value *** *** *** *** *** COGS: Total Value *** *** *** *** *** Gross profit or (loss) Value *** *** *** *** *** SG&A expenses Value *** *** *** *** *** Operating income or (loss) Value *** *** *** *** *** 45X MPTC/IRA income Value *** *** *** *** *** All other expense/income Value *** *** *** *** *** Net income or (loss) Value *** *** *** *** *** Depreciation/amortization Value *** *** *** *** *** Cash flow Value *** *** *** *** *** COGS: Raw materials Ratio to NS *** *** *** *** *** COGS: Direct labor Ratio to NS *** *** *** *** *** COGS: Other factory Ratio to NS *** *** *** *** *** COGS: Total Ratio to NS *** *** *** *** *** Gross profit Ratio to NS *** *** *** *** *** SG&A expense Ratio to NS *** *** *** *** *** Operating income or (loss) Ratio to NS *** *** *** *** *** Net income or (loss) Ratio to NS *** *** *** *** *** Table continued. 6.4 Table 6.1 (Continued) CSPV cells and modules: U.S. producers’ results of operations, by item and period Shares in percent; unit values in dollars per kilowatt; count in number of firms reporting; interim is January through March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 COGS: Raw materials Share *** *** *** *** *** COGS: Direct labor Share *** *** *** *** *** COGS: Other factory Share *** *** *** *** *** COGS: Total Share 100.0 100.0 100.0 100.0 100.0 Total net sales Unit value *** *** *** *** *** COGS: Raw materials Unit value *** *** *** *** *** COGS: Direct labor Unit value *** *** *** *** *** COGS: Other factory Unit value *** *** *** *** *** COGS: Total Unit value *** *** *** *** *** Gross profit or (loss) Unit value *** *** *** *** *** SG&A expenses Unit value *** *** *** *** *** Operating income or (loss) Unit value *** *** *** *** *** Net income or (loss) Unit value *** *** *** *** *** Operating losses Count 3 6 11 6 10 Net losses Count 3 4 7 5 7 Data Count 6 6 12 7 12 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares represent the share of COGS. The 45X Advanced Manufacturing Production Credit (“45X MPTC”) is a federal tax credit established by the Inflation Reduction Act of 2022 (“IRA”). The IRA expanded the Advanced Energy Project Investment Tax Credit (Section 48C) for manufacturers. 6.5 Table 6.2 CSPV cells and modules: Changes in AUVs between comparison periods Changes in percent; interim is January through March Item 2022 to 2024 2022 to 2023 2023 to 2024 Interim 2024 to interim 2025 Total net sales *** *** *** *** COGS: Raw materials *** *** *** *** COGS: Direct labor *** *** *** *** COGS: Other factory *** *** *** *** COGS: Total *** *** *** *** Table continued. Table 6.2 (Continued) CSPV cells and modules: Changes in AUVs between comparison periods Changes in dollar per kilowatt; interim is January through March Item 2022 to 2024 2022 to 2023 2023 to 2024 Interim 2024 to interim 2025 Total net sales *** *** *** *** COGS: Raw materials *** *** *** *** COGS: Direct labor *** *** *** *** COGS: Other factory *** *** *** *** COGS: Total *** *** *** *** Gross profit or (loss) *** *** *** *** SG&A expense *** *** *** *** Operating income or (loss) *** *** *** *** Net income or (loss) *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Percentages and unit values shown as “0” represent values greater than zero, but less than “0.5”. Period changes preceded by a “▲” represent an increase, while period changes preceded by a “▼” represent a decrease. 6.6 Table 6.3 CSPV modules: U.S. producers’ net sales, by origin of contained cells and period Quantity in kilowatts; value in 1,000 dollars; unit values in dollars per kilowatt; shares in percent; interim period is January to March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Subject foreign-origin cells Quantity *** *** *** *** *** Nonsubject foreign- origin cells Quantity *** *** *** *** *** All cell origins Quantity *** *** *** *** *** Subject foreign-origin cells Value *** *** *** *** *** Nonsubject foreign- origin cells Value *** *** *** *** *** All cell origins Value *** *** *** *** *** Subject foreign-origin cells Unit value *** *** *** *** *** Nonsubject foreign- origin cells Unit value *** *** *** *** *** All cell origins Unit value *** *** *** *** *** Subject foreign-origin cells Share of quantity *** *** *** *** *** Nonsubject foreign- origin cells Share of quantity *** *** *** *** *** All cell origins Share of quantity 100.0 100.0 100.0 100.0 100.0 Subject foreign-origin cells Share of value *** *** *** *** *** Nonsubject foreign- origin cells Share of value *** *** *** *** *** All cell origins Share of value 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. 6.7 Table 6.4 CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Net sales quantity Quantity in kilowatts; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Net sales value Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.8 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period COGS Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Gross profit or (loss) Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.9 Table 6.4 (Continued)CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period SG&A expenses Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Operating income or (loss) Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.10 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Net income or (loss) Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period COGS to net sales ratio Ratios in percent; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.11 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Gross profit or (loss) to net sales ratio Ratios in percent; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period SG&A expenses to net sales ratio Ratios in percent; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.12 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Operating income or (loss) to net sales ratio Ratios in percent; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Net income or (loss) to net sales ratio Ratios in percent; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.13 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit net sales value Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit raw material costs Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.14 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit direct labor costs Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit other factory costs Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.15 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit COGS Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit gross profit or (loss) Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.16 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit SG&A expenses Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit operating income or (loss) Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Table continued. 6.17 Table 6.4 (Continued) CSPV cells and modules: U.S. producers’ sales, costs/expenses, and profitability, by firm and period Unit net income or (loss) Unit values in dollars per kilowatt; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as “0.0” represent values greater than zero, but less than “0.05” percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—”. Net sales As presented in table 6.1, aggregated net sales quantity and value overall increased from 2022 to 2024 and were higher in interim 2025 than in interim 2024 as new U.S. producers started manufacturing CSPV products during the period examined. As shown in tables 6.3, the large increase of net sales in 2024 was driven by *** and new module producers entering the market.7 As shown in table 6.3, the share of CSPV module sales using cells purchased from subject countries of total CSPV module sales increased from 2022 to 2024 and was higher in interim 2025 compared to interim 2024. Table 6.1 shows that the average net sales unit value of CSPV products consistently declined from 2022 to 2024 but was higher in interim 2025 than in interim 2024.8 Of the five U.S. producers with sales throughout the period examined, three firms (*** 7 ***. *** U.S. producer questionnaire response, section 2.2 and email from ***, August 13, 2025. 8 The peak of net sales AUVs in 2022 primarily reflects raw material AUVs being the highest during the period examined. 6.18 ***) reported an declining net sales AUVs from 2022 to 2024 and two firms (***) reported higher net sales AUVs in interim 2025 than interim 2024 (refer to table 6.4).9 *** reported notably higher net sales AUV during the period of examined.10 Cost of goods sold and gross profit or loss As presented in table 6.1, raw material costs represented the most substantial share of total COGS from 2022 to 2024, ranging from *** percent to *** percent of total COGS. The industry’s total raw material costs irregularly increased from 2022 to 2024 and were higher in interim 2025 compared to interim 2024 as new producers joined the industry during the period of examined. Raw material costs per unit declined from 2022 to 2024 and were lower in interim 2025 compared to interim 2024. Table 6.4 presents company-specific raw material cost AUVs, with variations partially attributable to the type of CSPV products sold, the volume of sales, and different raw material sourcing practices among U.S. producers. As shown in table 6.6, imported CSPV cells from non-subject foreign countries made up the majority of total raw material costs of module production during the period examined (no U.S. producer reported using internally produced cells to assemble CSPV modules) while imported CSPV cells from subject foreign countries increased constantly. Of five U.S. producers with sales throughout the period examined, three firms (***) reported an overall declining raw material costs per unit from 2022 to 2024 and two firms (***) reported a lower raw material costs per unit in interim 2025 than interim 2024 (refer to table 9 Five firms, *** reported their financial data throughout the period examined. 10 Differences in product mix partially explain the net sales AUV variations among the U.S. producers. *** consistently reported the highest net sales AUVs throughout the period examined. ***. Email from ***, August 13, 2025. ***. https://www.gaf.energy/timberline-solar/ retrieved August 16, 2025 and *** producer questionnaire response, section 3.4. 6.19 6.4). Raw material costs as a ratio to net sales increased from 2022 to 2024 but were lower in interim 2025 compared to interim 2024. Tables 6.5 and 6.6 present raw material cost data for CSPV cells and modules, respectively.11 Table 6.5 CSPV cells: U.S. producers’ raw material costs in 2024, by major material inputs Value in 1,000 dollars; share of value in percent Item Value Share of value Wafer costs *** *** Other material input costs *** *** All raw materials *** 100.0 Source: Compiled from data submitted in response to Commission questionnaires. 11 Five U.S. producers purchased inputs from related firms in 2024. ***. *** producer questionnaire responses, sections 3.6 and 3.7a. 6.20 Table 6.6 CSPV modules: U.S. producers’ raw material costs in 2024, by major material inputs Value in 1,000 dollars; unit values in dollars per kilowatt; share of value in percent Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Purchased cells: Subject Value *** *** *** *** *** Purchased cells: Nonsubject Value *** *** *** *** *** Purchased cells: All origins Value *** *** *** *** *** Backsheet Value *** *** *** *** *** Encapsulant Value *** *** *** *** *** Framing Value *** *** *** *** *** Junction box Value *** *** *** *** *** Solar glass Value *** *** *** *** *** All other material inputs Value *** *** *** *** *** All non-cell costs Value *** *** *** *** *** All raw materials Value *** *** *** *** *** Purchased cells: Subject Unit value *** *** *** *** *** Purchased cells: Nonsubject Unit value *** *** *** *** *** Purchased cells: All origins Unit value *** *** *** *** *** Backsheet Unit value *** *** *** *** *** Encapsulant Unit value *** *** *** *** *** Framing Unit value *** *** *** *** *** Junction box Unit value *** *** *** *** *** Solar glass Unit value *** *** *** *** *** All other material inputs Unit value *** *** *** *** *** All non-cell costs Unit value *** *** *** *** *** All raw materials Unit value *** *** *** *** *** Purchased cells: Subject Share of value *** *** *** *** *** Purchased cells: Nonsubject Share of value *** *** *** *** *** Purchased cells: All origins Share of value *** *** *** *** *** Backsheet Share of value *** *** *** *** *** Encapsulant Share of value *** *** *** *** *** Framing Share of value *** *** *** *** *** Junction box Share of value *** *** *** *** *** Solar glass Share of value *** *** *** *** *** All other material inputs Share of value *** *** *** *** *** All non-cell costs Share of value *** *** *** *** *** All raw materials Share of value 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares represent the share of raw materials. Zeroes, null values, and undefined calculations are suppressed and shown as “—”. Other factory costs accounted for the second largest share of total COGS ranging from *** percent to *** percent and consistently increased in total value from 2022 to 2024 and were higher in interim 2025 compared to interim 2024. On an average per unit basis, other factory costs irregularly declined from 2022 to 2024 but were higher in interim 2025 compared 6.21 to interim 2024 while other factory costs as a ratio to net sales increased irregularly from 2022 to 2024 and were higher in interim 2025 compared to interim 2024. The increase in other factory costs is driven by increased sales *** while the decreases per unit is attributable to fixed costs spread over larger sales volume (the more products sold, the lower the fixed cost per unit).12 Industry’s total direct labor costs which accounted for the smallest share of total COGS ranging from *** percent to *** percent consistently increased from 2022 to 2024 and were higher in interim 2025 than interim 2025. Direct labor costs on a per-unit value basis and as a ratio to net sales overall increased from 2022 to 2024 and were higher in interim 2025 than interim 2025.13 As presented in table 6.1, total COGS irregularly increased from 2022 to 2024 and was higher in interim 2025 than interim 2025. The AUVs of total COGS consistently decreased during this period, reflecting the previously discussed decreases in per-unit raw materials and other factory costs. The ratio of COGS to net sales increased from 2022 to 2024 due to selling prices per unit declining faster than COGS per unit with the increased sales and was lower in interim 2025 than interim 2025. Of five U.S. producers with sales throughout the period examined, all firms except *** reported an overall declining COGS per unit from 2022 to 2024 and three firms (***) reported a lower raw material costs per unit in interim 2025 than interim 2024 (refer to table 6.4). Table 6.1 shows that the increase in COGS from 2022 to 2024 exceeded the corresponding increase in net sales value, thus gross profit declined from 2022 to 2024. The industry’s gross profit was higher in interim 2025 compared to the gross loss in interim 2024, as the growth in net sales value was greater than the growth in COGS. Among the five U.S. producers with consistent sales throughout the period examined, all firms except *** reported an overall declining gross profit or worsening gross loss from 2022 to 2024 and three firms, *** reported a higher gross profit or a improved gross loss in interim 2025 than interim 2024 (refer to table 6.4). 12 ***. *** producer questionnaire response, sections 3.11 and 3.11b. 13 ***. *** producer questionnaire response, sections 3.11 and 3.11b. 6.22 SG&A expenses and operating income or loss As presented in table 6.1, U.S. producers’ total SG&A expenses consistently increased from 2022 to 2024 and were higher in interim 2025 than interim 2025 (mostly a result of increases in net sales) while SG&A expense ratio (i.e., total SG&A expenses divided by net sales) irregularly increased from 2022 to 2024 but was lower in interim 2025 than interim 2025. As shown in table 6.4, of five U.S. producers with sales throughout the period examined, three firms (***) reported an increasing SG&A expense ratio from 2022 to 2024 and two firms, *** reported a lower SG&A expense ratio in interim 2025 than interim 2024. *** reported notably higher SG&A expenses ratio than industry average SG&A expense ratio.14 15 New U.S. producers *** also reported a higher SG&A expense ratio due in part to ***. The industry’s SG&A expenses per unit irregularly declined from 2022 to 2024 and were lower in interim 2025 than interim 2024. Table 6.1 shows that U.S. producers’ operating loss worsened from 2022 to 2024 but improved in interim 2025 compared to interim 2024. As presented in table 6.4, most of U.S. producers of CSPV products reported an operating loss throughout of the period examined. *** U.S. producer *** reported positive operating income in 2022, but reported operating losses in 2023 and 2024, caused by raw materials, other factory costs, and SG&A expenses increasing faster than its net sales values in 2023 and 2024. Of five U.S. producers with sales throughout the period examined, all firms except *** reported an overall declining operating income or worsening operating loss from 2022 to 2024 and two firms, *** reported an improved operating loss in interim 2025 than interim 2024. 14 ***. Email from ***, August 13, 2025 and Consumer Product Safety Commission webpage, https://www.cpsc.gov/Recalls/2023/GAF-Energy-Recalls-Timberline-Solar-Energy-Shingles-Due-to-Fire- Hazard-Recall-Alert, retrieved August 18, 2025. 15 ***. 6.23 All other expenses and net income or loss Classified below the operating income level are interest expenses, other expenses, and other income. In table 6.1, these items are aggregated, and only the net amount is shown. The all other expenses increased from 2022 to 2024 and were higher in interim 2025 than in interim in 2024. Government incentives were not reported in 2023. They increased from 2023 to 2024 and were higher in interim 2025 than in interim in 2024.16 Table 6.1 shows that U.S. producers’ net loss worsened from 2022 to 2024 but improved in interim 2025 (net income) compared to interim 2024 (net loss). The industry’s net loss improved compared to operating loss primarily due to government incentives in 2023, 2024, and both interim periods. As presented in table 6.4, most of U.S. producers of CSPV products reported a net loss throughout of the period of examined. Of five U.S. producers with sales throughout the period examined, three firms (***) reported an overall declining net income or worsening net loss from 2022 to 2024 and two firms (***) reported a higher net income in interim 2025 than interim 2024.17 16 ***. *** producer questionnaire response, sections 3.11a and 3.11b. 17 A variance analysis is not shown due to *** among the reporting firms. 6.24 Capital expenditures and research and development expenses Table 6.7 presents capital expenditures, by firm, and table 6.9 presents R&D expenses, by firm. Tables 6.8 and 6.10 present the firms’ narrative explanations of the nature, focus, and significance of their capital expenditures and R&D expenses, respectively. Aggregated capital expenditures increased from 2022 to 2024 as new facilities started producing CSPV products and were higher in interim 2025 than in interim 2024. Table 6.7 CSPV cells and modules: U.S. producers’ capital expenditures, by firm and period Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 6.25 Table 6.8 CSPV cells and modules: U.S. producers’ narrative descriptions of their capital expenditures, by firm Narrative on capital expenditures *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: One producer (Suniva)’s description of their capital expenditures was in response to the capital expenditures related to cell production. All other producers responded with descriptions of their capital expenditures related to module production. 6.26 Table 6.9 CSPV cells and modules: U.S. producers’ R&D expenses, by firm and period Value in 1,000 dollars; interim is January through March Firm 2022 2023 2024 Interim 2024 Interim 2025 Canadian Solar *** *** *** *** *** GAF Energy *** *** *** *** *** Hanwha GA *** *** *** *** *** Hounen *** *** *** *** *** Illuminate *** *** *** *** *** Merlin *** *** *** *** *** Mission *** *** *** *** *** PowerFilm *** *** *** *** *** Runergy *** *** *** *** *** SEG Manufacturing *** *** *** *** *** Silfab *** *** *** *** *** Suniva *** *** *** *** *** Trina/T1 *** *** *** *** *** All firms *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Table 6.10 CSPV modules: U.S. producers’ narrative descriptions of their R&D expenses, by firm Firm Narrative on R&D expenses *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 6.27 Assets and return on assets Table 6.11 presents data on the U.S. producers’ total assets while table 6.12 presents their operating ROA.18 Table 6.13 presents U.S. producers’ narrative responses explaining their major asset categories and any significant changes in asset levels over time. Table 6.11 CSPV cells and modules: U.S. producers’ total net assets, by firm and period Value in 1,000 dollars Firm 2022 2023 2024 Canadian Solar *** *** *** GAF Energy *** *** *** Hanwha GA *** *** *** Hounen *** *** *** Illuminate *** *** *** Merlin *** *** *** Mission *** *** *** PowerFilm *** *** *** Runergy *** *** *** SEG Manufacturing *** *** *** Silfab *** *** *** Suniva *** *** *** Trina/T1 *** *** *** All firms *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 18 The operating ROA is calculated as operating income divided by total assets. With respect to a firm’s overall operations, the total asset value reflects an aggregation of a number of assets which are generally not product specific. Thus, high-level allocations are generally required in order to report a total asset value on a product-specific basis. 6.28 Table 6.12 CSPV cells and modules: U.S. producers’ ROA, by firm and period Ratio in percent Firm 2022 2023 2024 Canadian Solar *** *** *** GAF Energy *** *** *** Hanwha GA *** *** *** Hounen *** *** *** Illuminate *** *** *** Merlin *** *** *** Mission *** *** *** PowerFilm *** *** *** Runergy *** *** *** SEG Manufacturing *** *** *** Silfab *** *** *** Suniva *** *** *** Trina/T1 *** *** *** All firms *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 6.29 Table 6.13 CSPV cells and modules: U.S. producers’ narrative descriptions of their total net assets, by firm Firm Narrative on assets *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 6.30 Capital and investment The Commission requested U.S. producers of CSPV cells and modules to describe any actual or potential negative effects of imports of CSPV cells and modules from India, Indonesia, and Laos on their firms’ growth, investment, ability to raise capital, development and production efforts, or the scale of capital investments. Table 6.14 presents the number of firms reporting an impact in each category and table 6.15 provides the U.S. producers’ narrative responses. Table 6.16 presents U.S. producers’ narrative descriptions of the impact of filing of the petition on April 23, 2024 and/or the investigations by the U.S. Department of Commerce and the U.S. International Trade Commission concerning imports of CSPV cells and/or modules imported from Cambodia, Malaysia, Thailand, and/or Vietnam on income statement data. Table 6.17 presents U.S. module producers’ narrative descriptions regarding plans to start CSPV cell production and table 6.18 presents U.S. producers’ narrative descriptions regarding the anticipated impact of the One Big Beautiful Bill Act. Table 6.14 CSPV cells and modules: Count of firms indicating actual and anticipated negative effects of imports from subject sources on investment, growth, and development since January 1, 2022, by effect Number of firms reporting Effect Category Count Cancellation, postponement, or rejection of expansion projects Investment 7 Denial or rejection of investment proposal Investment 2 Reduction in the size of capital investments Investment 4 Return on specific investments negatively impacted Investment 7 Other investment effects Investment 2 Any negative effects on investment Investment 10 Rejection of bank loans Growth 1 Lowering of credit rating Growth 0 Problem related to the issue of stocks or bonds Growth 1 Ability to service debt Growth 4 Other growth and development effects Growth 5 Any negative effects on growth and development Growth 7 Anticipated negative effects of imports Future 8 Source: Compiled from data submitted in response to Commission questionnaires. Note: ***. 6.31 Table 6.15 CSPV cells and modules: U.S. producers’ narratives relating to actual and anticipated negative effects of imports on investment, growth, and development, since January 1, 2022, by firm and effect Item Firm name and narrative on impact of imports Cancellation, postponement, or rejection of expansion projects *** Cancellation, postponement, or rejection of expansion projects *** Cancellation, postponement, or rejection of expansion projects *** Cancellation, postponement, or rejection of expansion projects *** Cancellation, postponement, or rejection of expansion projects *** Cancellation, postponement, or rejection of expansion projects *** Cancellation, postponement, or rejection of expansion projects *** Denial or rejection of investment proposal *** Denial or rejection of investment proposal *** Reduction in the size of capital investments *** Reduction in the size of capital investments *** Return on specific investments negatively impacted *** Table continued. 6.32 Item Firm name and narrative on impact of imports Return on specific investments negatively impacted *** Return on specific investments negatively impacted *** Return on specific investments negatively impacted *** Return on specific investments negatively impacted *** Return on specific investments negatively impacted *** Other negative effects on investments *** Other negative effects on investments *** Table continued. 6.33 Item Firm name and narrative on impact of imports Rejection of bank loans *** Problem related to the issue of stocks or bonds *** Ability to service debt *** Ability to service debt *** Ability to service debt *** Other effects on growth and development *** Other effects on growth and development *** Other effects on growth and development *** Other effects on growth and development *** Other effects on growth and development *** Table continued. 6.34 Item Firm name and narrative on impact of imports Anticipated effects of imports *** Anticipated effects of imports *** Anticipated effects of imports *** Anticipated effects of imports *** Anticipated effects of imports *** Anticipated effects of imports *** Anticipated effects of imports *** Anticipated effects of imports *** Table continued. 6.35 Item Firm name and narrative on impact of imports Anticipated effects of imports *** Source: Compiled from data submitted in response to Commission questionnaires. Note: ***. 6.36 Table 6.16 CSPV cells and modules: U.S. producers’ narrative descriptions of the impact of filing of the petition on April 23, 2024 and/or the investigations by the U.S. Department of Commerce and the U.S. International Trade Commission concerning imports of CSPV cells and/or modules imported from Cambodia, Malaysia, Thailand, and/or Vietnam on income statement data, by item and firm Item Narrative on impact on income Impact from previous petitions *** Impact from previous petitions *** Impact from previous petitions *** Impact from previous investigations *** Impact from previous investigations *** Source: Compiled from data submitted in response to Commission questionnaires. Table 6.17 CSPV modules: U.S. producers’ narrative descriptions regarding plans to start CSPV cell production, by firm Firm Narrative on plans for CSPV cell production *** *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 6.37 Table 6.18 CSPV cells and modules: U.S. producers’ narrative descriptions regarding the anticipated impact of the One Big Beautiful Bill Act, by firm Firm Narrative on anticipated impact *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** *** Table continued. 6.38 Firm Narrative on anticipated impact *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: ***. 7.1 Threat considerations and information on nonsubject countries Section 771(7)(F)(ⅰ) of the Act (19 U.S.C. § 1677(7)(F)(ⅰ)) provides that— In determining whether an industry in the United States is threatened with material injury by reason of imports (or sales for importation) of the subject merchandise, the Commission shall consider, among other relevant economic factors1-- (I) if a countervailable subsidy is involved, such information as may be presented to it by the administering authority as to the nature of the subsidy (particularly as to whether the countervailable subsidy is a subsidy described in Article 3 or 6.1 of the Subsidies Agreement), and whether imports of the subject merchandise are likely to increase, (II) any existing unused production capacity or imminent, substantial increase in production capacity in the exporting country indicating the likelihood of substantially increased imports of the subject merchandise into the United States, taking into account the availability of other export markets to absorb any additional exports, (III) a significant rate of increase of the volume or market penetration of imports of the subject merchandise indicating the likelihood of substantially increased imports, (IV) whether imports of the subject merchandise are entering at prices that are likely to have a significant depressing or suppressing effect on domestic prices, and are likely to increase demand for further imports, (V) inventories of the subject merchandise, 1 Section 771(7)(F)(ⅱ) of the Act (19 U.S.C. § 1677(7)(F)(ⅱ)) provides that “The Commission shall consider {these factors} . . . as a whole in making a determination of whether further dumped or subsidized imports are imminent and whether material injury by reason of imports would occur unless an order is issued or a suspension agreement is accepted under this title. The presence or absence of any factor which the Commission is required to consider . . . shall not necessarily give decisive guidance with respect to the determination. Such a determination may not be made on the basis of mere conjecture or supposition.” 7.2 (VI) the potential for product-shifting if production facilities in the foreign country, which can be used to produce the subject merchandise, are currently being used to produce other products, (VII) in any investigation under this title which involves imports of both a raw agricultural product (within the meaning of paragraph (4)(E)(ⅳ)) and any product processed from such raw agricultural product, the likelihood that there will be increased imports, by reason of product shifting, if there is an affirmative determination by the Commission under section 705(b)(1) or 735(b)(1) with respect to either the raw agricultural product or the processed agricultural product (but not both), (VIII) the actual and potential negative effects on the existing development and production efforts of the domestic industry, including efforts to develop a derivative or more advanced version of the domestic like product, and (IX) any other demonstrable adverse trends that indicate the probability that there is likely to be material injury by reason of imports (or sale for importation) of the subject merchandise (whether or not it is actually being imported at the time).2 Information on the nature of the “alleged” subsidies was presented earlier in this report; information on the volume and pricing of imports of the subject merchandise is presented in Parts 4 and 5; and information on the effects of imports of the subject merchandise on U.S. producers’ existing development and production efforts is presented in Part 6. Information on inventories of the subject merchandise; foreign producers’ operations, including the potential for “product-shifting;” any other threat indicators, if applicable; and any dumping in third-country markets, follows. Also presented in this section of the report is information obtained for consideration by the Commission on nonsubject countries. 2 Section 771(7)(F)(ⅲ) of the Act (19 U.S.C. § 1677(7)(F)(ⅲ)) further provides that, in antidumping investigations, “. . . the Commission shall consider whether dumping in the markets of foreign countries (as evidenced by dumping findings or antidumping remedies in other WTO member markets against the same class or kind of merchandise manufactured or exported by the same party as under investigation) suggests a threat of material injury to the domestic industry.” 7.3 Subject countries The Commission issued foreign producers’ or exporters’ questionnaires to 102 firms believed to produce and/or export CSPV cells and modules from India, Indonesia, and Laos.3 Usable responses to the Commission’s questionnaire were received from 24 firms in total. Table 7.1 presents the number of producers/exporters that responded to the Commission’s questionnaire, their estimated share of total production of CSPV cells and modules, and their exports to the United States as a share of U.S. imports, by each subject country in 2024. Table 7.1 CSPV cells and modules: Number of responding producers/exporters, approximate share of production, and exports to the United States as a share of U.S. imports, by subject foreign industry, 2024 Subject foreign industry Number of responding firms Approximate share of cell production (percent) Approximate share of module production (percent) Exports as a share of U.S. imports from subject country (percent) India 10 *** *** *** Indonesia 13 *** *** *** Laos 1 *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included in U.S. imports. Note: “Approximate share of production” reflects the responding firms’ estimates of their production as a share of total country production of CSPV cells and modules in 2024. Since not all firms have perfect knowledge of the industry in their home market, different firms might use different denominators in estimating their firm's share of the total requested. For countries in which more than one firm responded, the average denominator for reasonably reported estimates is used in the share presented. Approximate shares are rounded to the nearest whole number. Coverage figures for *** are as each reported an estimate of *** percent, skewing the data. 3 These firms were identified through a review of information submitted in the petition and presented in third-party sources. 7.4 Note: “Exports as a share of U.S. imports” reflects a comparison of export data reported by firms in response to the Commission’s foreign producer/exporter questionnaire with import data submitted in response to the Commission’s importer questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Table 7.2 presents information on the CSPV cells operations of the responding producers in India, Indonesia, and Laos (or the responding subject producers, by firm) and table 7.3 presents summary information on responding resellers of subject CSPV cells in 2024. Table 7.2 CSPV cells: Summary data on responding subject foreign producers in 2024, by firm Subject foreign industry: Producer Production (kilowatts) Share of reported production (percent) Exports to the United States (kilowatts) Share of reported exports to the United States (percent) Total shipments (kilowatts) Share of firm's total shipments exported to the United States (percent) India: Emmvee *** *** *** *** *** *** India: Mundra Solar Energy *** *** *** *** *** *** India: Mundra Solar PV *** *** *** *** *** *** India: Premier Energies *** *** *** *** *** *** India: ReNew *** *** *** *** *** *** India: Tata Power *** *** *** *** *** *** India: Waaree Energies *** *** *** *** *** *** Indonesia: Ali Solar *** *** *** *** *** *** Indonesia: Allianz Solar *** *** *** *** *** *** Indonesia: Four Seas *** *** *** *** *** *** Indonesia: SEG Solar *** *** *** *** *** *** Laos: Solarspace *** *** *** *** *** *** All individual producers *** 100.0 *** 100.0 *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. ***. 7.5 Table 7.3 CSPV cells: Summary data for subject foreign resellers, by firm in 2024 Subject foreign industry: Reseller Resales exported to the United States (kilowatts) Share of resales exported to the United States (percent) Indonesia: Clear Energy *** *** Indonesia: MSUN Solar *** *** All individual firms *** --- Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Note: ***. Table 7.4 presents summary information on the CSPV cells subject foreign producers in 2024. Table 7.4 CSPV cells: Summary data for subject foreign producers, by subject foreign industry in 2024 Subject foreign industry Production (kilowatts) Share of reported production (percent) Exports to the United States (kilowatts) Share of reported exports to the United States (percent) Total shipments (kilowatts) Share of firm's total shipments exported to the United States (percent) India *** *** *** *** *** *** Indonesia *** *** *** *** *** *** Laos *** *** *** *** *** *** All subject foreign industries *** 100.0 *** 100.0 *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.6 Table 7.5 presents summary information on the CSPV modules for subject foreign producers, in India, Indonesia, and Laos (or the responding subject producers, by firm) and table 7.6 presents summary information on responding resellers of subject CSPV modules in 2024. Table 7.7 presents summary information on the CSPV modules for subject foreign producers in 2024. Table 7.5 CSPV modules: Summary data for subject foreign producers, by firm in 2024 Subject foreign industry: Producer Production (kilowatts) Share of reported production (percent) Exports to the United States (kilowatts) Share of reported exports to the United States (percent) Total shipments (kilowatts) Share of firm's total shipments exported to the United States (percent) India: Ecosol Power *** *** *** *** *** *** India: Emmvee *** *** *** *** *** *** India: HR Solar Solution *** *** *** *** *** *** India: Mundra Solar Energy *** *** *** *** *** *** India: Mundra Solar PV *** *** *** *** *** *** India: Premier Energies *** *** *** *** *** *** India: Rayzon Solar *** *** *** *** *** *** India: ReNew *** *** *** *** *** *** India: Tata Power *** *** *** *** *** *** India: Waaree Energies *** *** *** *** *** *** Indonesia: Allianz Solar *** *** *** *** *** *** Indonesia: Apollo Solar *** *** *** *** *** *** Indonesia: Deltamas Solusindo *** *** *** *** *** *** Indonesia: IDN Solar Tech *** *** *** *** *** *** Indonesia: Jaya Electrical Energy *** *** *** *** *** *** Indonesia: MSUN Solar *** *** *** *** *** *** Indonesia: Sky Energy *** *** *** *** *** *** Indonesia: Thornova *** *** *** *** *** *** Indonesia: Trina Mas Agra *** *** *** *** *** *** Laos: Solarspace *** *** *** *** *** *** All individual producers *** 100.0 *** 100.0 *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 7.7 Table 7.6 CSPV modules: Summary data for subject foreign resellers, by firm in 2024 Subject foreign industry: Reseller Resales exported to the United States (kilowatts) Share of resales exported to the United States (percent) Indonesia: Apollo Solar *** *** Indonesia: MSUN Solar *** *** Indonesia: Thornova *** *** All individual resellers *** 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. ***. Table 7.7 CSPV modules: Summary data for subject foreign producers, by subject foreign industry in 2024 Subject foreign industry Production (kilowatts) Share of reported production (percent) Exports to the United States (kilowatts) Share of reported exports to the United States (percent) Total shipments (kilowatts) Share of firm's total shipments exported to the United States (percent) India *** *** *** *** *** *** Indonesia *** *** *** *** *** *** Laos *** *** *** *** *** *** All subject foreign industries *** 100.0 *** 100.0 *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.8 Table 7.8 presents events in the subject countries’ industries since January 1, 2022. Table 7.8 CSPV cells and modules: Important industry events in the subject foreign industries since 2022 Item Firm Event Plant expansion (India) Saatvik Solar In February 2022, Saatvik Solar doubled its module production capacity to 1 GW at its facility in Haryana. The additional 500 MW produces monocrystalline PERC, half-cut, multi-busbar technology to produce solar modules with a power output of 530 to 610 Wp. Plant expansion (India) Waaree Energies In March 2023, Waaree Energies added 3 GW of additional module manufacturing capacity, bringing its total solar module manufacturing capacity to 12 GW. Plant expansion (India) Goldi Solar In March 2025, Goldi Solar launched an AI-powered solar manufacturing line at its new facility in Kosamba, Surat, Gujarat. The planned production capacity for this facility is 14 GW. Plant expansion (India) Waaree Energies In August 2025, Waaree Energies commissioned a new 1.8 GW solar module manufacturing line at its facility in Chikhli, Navsari district, Gujarat. Plant opening (India) Emmvee In June 2024, Emmvee began production of TOPCon solar cells at its 1.5 GW manufacturing facility in the Indian state of Karnataka. Plant opening (India) Indosolar In July 2024, Indosolar, a subsidiary of Indian solar company Waaree Energies, began production at its 1.3 GW module assembly facility in Noida, in the northern Indian state of Uttar Pradesh. Plant opening (India) TP Solar In February 2025, TP Solar, a subsidiary of Indian company TATA Power, commission a 4.3 GW solar cell and module manufacturing plant in the state of Tamil Nadu. TP Solar noted that the facility would produce 1.4 GW PERC and TOPCon products but did not specify relative capacity for each technology. Plant opening (India) Waaree Energies In February 2025, Waaree Energies commissioned the first phase of its 5.4 GW solar cell manufacturing plant in the state of Gujarat. In the first phase, the facility will produce 1.4 GW of PERC cells, with the remaining 4.0 GW of TOPCon cell production capacity to be added in fiscal year 2026. Plant opening (India) Gautam Solar In February 2025, one year after acquiring the land on which to build the facility, Gautam Solar commissioned the first phase of a 3.2 GW module assembly plant in the state of Haryana. The facility will produce TOPCon modules. Plant opening (India) Avaada Electro In March 2025, Avaada Electro commissioned a 1.5 GW module assembly plant in Noida, in the northern Indian state of Uttar Pradesh. The facility, built in three and a half months, will produce bifacial TOPCon modules. 7.9 Item Firm Event Plant opening (India) Emmvee In April 2025, Emmvee began production at a new 2 GW solar module manufacturing facility in Sulibele, Karnataka. This brings Emmvee’s cumulative manufacturing capacity to 6.6 GW for modules, as well as 2.5 GW for cells. Plant opening (Indonesia) Apollo Solar Indonesia In February 2023, Apollo Solar completed construction of its 500 MW solar module manufacturing facility. Plant opening (Indonesia) New East Solar In August 2023, New East Solar completed construction of its 3.5 GW factory in Indonesia to produce solar modules. Plant opening (Indonesia) Thornova Solar In November 2024, Thornova Solar, a U.S.-based solar manufacturer, began production at its new 2.5 GW module manufacturing facility on the island of Batam. With 2.5 GW of capacity, the facility can produce both n-type and PERC technologies. Plant opening (Indonesia) EliTe Solar In December 2024, EliTe Solar opened a solar cell production facility in Indonesia, eight months after selecting the site of the facility. Plant opening (Indonesia) SEG Solar In May 2025, SEG Solar, a U.S.-based PV module manufacturer, commissioned a new cell manufacturing plant on the island of Java, with a manufacturing capacity of 2 GW. SEG Solar noted the first product manufactured at this facility is an n-type solar cell. Plant opening (Indonesia) Trina Solar Indonesia In June 2025, Trina Solar Indonesia, a joint venture between China’s Trina Solar and state-owned utilities in Indonesia, commissioned an integrated manufacturing plant with an annual production capacity of 1 GW. The plant plans to produce TOPCon solar modules. Plant opening (Laos) Solarspace In September 2023, Solarspace started manufacturing activities at a new 5 GW factory in the Saysettha Development Zone in Laos, near the Thai border. Source: PV Magazine, “Saatvik Solar doubles module capacity to 1GW with new fab,” February 8, 2022, https://www.pv-magazine-india.com/2022/02/08/saatvik-solar-expands-module-capacity-to-1-gw-with- new-500-mw-facility/; PV Magazine, “Waaree ramping up solar module capacity to 12 GW,” December 22, 2022, https://www.pv-magazine-india.com/2022/12/20/waaree-ramping-up-solar-module-capacity-to- 12-gw/; PV Tech, “Waaree commissions 1.8GW solar module line in Gujarat,” August 4, 2025, https://www.pv-tech.org/waaree-commissions-1-8gw-solar-module-line-in-gujarat/; PV Magazine India, “Emmvee expands solar module capacity to 6.6 GW,” April 16, 2025, https://www.pv-magazine- india.com/2025/04/16/emmvee-expands-solar-module-capacity-to-6-6-gw/; PV Magazine, “Emmvee to start TOPCon solar cell production from June,” February 21, 2024, https://www.pv-magazine- india.com/2024/02/21/emmvee-to-start-topcon-solar-cell-production-from-june/; PV Tech, “Avaada commissions 1.5 GW TOPCon module assembly plant in India,” March 10, 2025, https://www.pv- tech.org/avaada-commissions-1-5gw-topcon-module-manufacturing-plant-india/; PV Magazine, “Goldi Solar launches AI-powered solar manufacturing line,” March 4, 2025, https://www.pv- magazine.com/2025/03/04/goldi-solar-launches-ai-powered-solar-manufacturing-line/; PV Tech, “INDIA ROUND-UP: Gautam Solar and Waaree advance module and cell plants, India reaches 100GW of installed PV capacity,” February 11, 2025, https://www.pv-tech.org/india-round-up-gautam-solar-waaree- module-cell-facilities-100gw-installed-capacity/; PV Tech, “Tata Power subsidiary commissions 4.3GW solar cell and module plat in India,” February 7, 2025, https://www.pv-tech.org/tata-power-subsidiary- commissions-4-3gw-solar-cell-module-plant-india/; PV Tech, “Waaree subsidiary starts operations at 1.3GW module assembly plant in India,” July 15, 2024, https://www.pv-tech.org/waaree-subsidiary-starts- 7.10 operations-at-1-3gw-module-assembly-plant-in-india/; NE Solar, “NE Solar Indonesian factory will be completed in August 2023,” May 9, 2023, http://www.nesolar.com.kh/?content/176; Energy Trend, “Trina’s New Overseas Moves,” June 23, 2025, https://www.energytrend.com/news/20250623- 49780.html; PV Magazine, “US-based SEG Solar launches cell production in Indonesia,” May 12, 2025, https://www.pv-magazine.com/2025/05/12/us-based-seg-solar-launches-cell-production-in-indonesia/; PV Magazine, “EliTe Solar opens solar cell production facility in Indonesia,” December 10, 2024, https://www.pv-magazine.com/2024/12/10/elite-solar-opens-solar-cell-production-facility-in-indonesia/; PV Tech, “Thornova Solar begins solar module production in Indonesia,” November 19, 2024, https://www.pv-tech.org/thornova-solar-begins-solar-module-production-in-indonesia/; Apollo Solar Indonesia, “About Us,” accessed August 12, 2025, https://apollosolarindonesia.com/about; PV Tech, “SolarSpace begins cell production at first Laos manufacturing plant,” September 28, 2023, https://www.pv-tech.org/solarspace-begins-cell-production-at-first-laos-manufacturing-plant/. Note: See Part 1 of this report for a description of TOPCon, n-type, and PERC cell technologies. Figures 7.1 and 7.2 present solar supply chain maps for Southeast Asia, including CSPV cells and modules factories in India, Indonesia, and Laos, as of June 2025, their current manufacturing capacity, and planned manufacturing capacity projections through 2027. 7.11 Figure 7.1 CSPV cells and modules: Southeast Asia solar supply chain map Source: Sinovoltaics, “Southeast Asian Solar Supply Chain Edition 1 - 2025,” June 2025, https://sinovoltaics.com/sinovoltaics-southeast-asia-sea-solar-energy-supply-chain-map/. Note: Production capacity figures in gigawatts (GW). This map includes production facilities across the solar supply chain: modules (blue), cells (darker purple), wafers (lighter purple), polysilicon (red), and metallurgical-grade silicon (orange). Production capacity figures in gigawatts (GW) for modules, cells, and wafers, and metric tons (mt) for polysilicon and metallurgical-grade silicon. 7.12 Figure 7.2 CSPV cells and modules: India solar supply chain map Source: Sinovoltaics, “India Solar Supply Chain Map Edition 1 - 2025,” July 2025, https://sinovoltaics.com/sinovoltaics-india-solar-energy-supply-chain-map/. Note: Production capacity figures in gigawatts (GW). This map includes production facilities across the solar supply chain: modules (blue), cells (darker purple), wafers (lighter purple), polysilicon (red), and metallurgical-grade silicon (orange). Production capacity figures in gigawatts (GW) for modules, cells, and wafers, and metric tons (mt) for polysilicon and metallurgical-grade silicon. 7.13 Changes in operations Subject producers were asked to report any change in the character of their operations or organization relating to the production of CSPV cells and modules since 2022. Twenty-one of 24 producers indicated in their questionnaires that they had experienced such changes. Firms in all subject countries reported plant openings and expansions. Only two producers in India reported plant closings. Tables 7.9 and 7.10 present the changes identified by these producers. Table 7.9 CSPV cells and modules: Count of reported changes in operations since January 1, 2022, by change and subject foreign industry Count in number of firms reporting Change category India Indonesia Laos Subject producers Plant openings 5 9 1 15 Plant closings 2 0 0 2 Prolonged shutdowns 0 3 0 3 Production curtailments 1 0 0 1 Relocations 0 0 0 0 Expansions 5 3 1 9 Acquisitions 0 0 0 0 Consolidations 0 0 0 0 Weather-related or force majeure events 2 0 0 2 Other 2 1 0 3 Any change 8 12 1 21 Source: Compiled from data submitted in response to Commission questionnaires. 7.14 Table 7.10 CSPV cells and modules: Reported changes in operations in the subject countries since January 1, 2022, by change, subject foreign industry, and firm Change category Subject foreign industry: Firm name and accompanying narrative response regarding changes in operations Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant openings *** Plant closings *** Plant closings *** Prolonged shutdowns *** Prolonged shutdowns *** Prolonged shutdowns *** Production curtailments *** Expansions *** Table continued. 7.15 Change category Subject foreign industry: Firm name and accompanying narrative response regarding changes in operations Expansions *** Expansions *** Expansions *** Expansions *** Expansions *** Expansions *** Expansions *** Expansions *** Weather- related or force majeure events *** Weather- related or force majeure events *** Other *** Other *** Source: Compiled from data submitted in response to Commission questionnaires. 7.16 Table 7.11 presents anticipated changes in operations identified by subject producers. Table 7.11 CSPV cells and modules: Reported anticipated changes in operations in the subject countries by change, subject foreign industry, and firm Subject foreign industry: Firm name Narrative response regarding anticipated changes in operations *** *** *** *** *** *** *** *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.17 Installed and practical overall capacity Table 7.12 presents data on subject producers’ installed capacity, practical overall capacity, and practical for CSPV cells capacity and production on the same equipment and table 7.13 presents data on subject producers’ installed capacity, practical overall capacity, and practical for CSPV modules capacity and production on the same equipment. From 2022 to 2024, subject cell producers’ installed overall capacity, practical overall capacity, and practical CSPV cells capacity increased annually and overall by *** percent, *** percent, and *** percent, respectively. Practical CSPV cell production increased by *** percent from 2022 to 2024 and was higher in interim 2025 than in interim 2024. Practical CSPV cell production had similar trends and also increased during 2022 to 2024 and was higher in interim 2025 than in interim 2024. Practical CSPV cell capacity utilization increased by *** percentage points from 2022 to 2023 then decreased by *** percentage points from 2023 to 2024, for an overall increase of *** percentage points from 2022 to 2024. Practical CSPV capacity utilization was lower in interim 2025 than in interim 2024 and is projected to fall further in 2025. From 2022 to 2024, subject module producers’ installed overall capacity, practical overall capacity, and practical CSPV modules capacity increased by *** percent, by *** percent and by *** percent, respectively. Practical CSPV module production increased by *** percent from 2022 to 2023, then increased by *** percent from 2023 to 2024, for an overall increase of *** percent from 2022 to 2024. Practical CSPV module capacity utilization decreased by *** percentage points from 2022 to 2023 then increased by *** percentage points from 2023 to 2024, for an overall increase of *** percentage points from 2022 to 2024. Table 7.12 CSPV cells: Subject producers’ installed and practical capacity and production on the same equipment as in-scope production, by period Capacity and production in kilowatts; utilization in percent; interim period is January to March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Installed overall Capacity *** *** *** *** *** Installed overall Production *** *** *** *** *** Installed overall Utilization *** *** *** *** *** Practical overall Capacity *** *** *** *** *** Practical overall Production *** *** *** *** *** Practical overall Utilization *** *** *** *** *** Practical CSPV cells Capacity *** *** *** *** *** Practical CSPV cells Production *** *** *** *** *** Practical CSPV cells Utilization *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.18 Table 7.13 CSPV modules: Subject producers’ installed and practical capacity and production on the same equipment as in-scope production, by period Capacity and production in kilowatts; utilization in percent; interim period is January to March Item Measure 2022 2023 2024 Interim 2024 Interim 2025 Installed overall Capacity *** *** *** *** *** Installed overall Production *** *** *** *** *** Installed overall Utilization *** *** *** *** *** Practical overall Capacity *** *** *** *** *** Practical overall Production *** *** *** *** *** Practical overall Utilization *** *** *** *** *** Practical CSPV modules Capacity *** *** *** *** *** Practical CSPV modules Production *** *** *** *** *** Practical CSPV modules Utilization *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Staff adjusted capacity data for *** so installed and overall capacity are at least equal to practical capacity, but not less than practical capacity, and one likely typo in reported projected production for ***. Foreign producer questionnaires, sections 2.3b and 2.11. 7.19 Constraints on capacity Tables 7.14 and 7.15 present subject producers’ reported production and capacity constraints for CSPV cells and CSPV modules since January 1, 2022. Table 7.14 CSPV cells: Constraints on practical overall capacity, by subject foreign industry Count in number of firms reporting Type of constraint India Indonesia Laos Subject producers Production bottlenecks 2 2 0 4 Existing labor force 0 2 1 3 Supply of material inputs 2 1 0 3 Fuel or energy 0 1 1 2 Storage capacity 0 0 1 1 Logistics/transportation 0 0 1 1 Other constraints 6 1 0 7 Source: Compiled from data submitted in response to Commission questionnaires. Table 7.15 CSPV modules: Constraints on practical overall capacity, by subject foreign industry Count in number of firms reporting Type of constraint India Indonesia Laos Subject producers Production bottlenecks 2 5 0 7 Existing labor force 0 3 1 4 Supply of material inputs 4 1 0 5 Fuel or energy 0 3 1 4 Storage capacity 2 2 1 5 Logistics/transportation 0 1 1 2 Other constraints 6 1 0 7 Source: Compiled from data submitted in response to Commission questionnaires. Tables 7.16 and 7.17 present subject producers’ narrative responses on constraints to practical overall capacity for CSPV cells and CSPV modules since January 1, 2022. Table 7.16 CSPV cells: Subject producers’ reported practical overall capacity constraints since January 1, 2022, by constraint and firm Type of constraint Subject foreign industry: Firm name and narrative response on constraints to practical overall capacity Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Existing labor force *** Table continued. 7.20 Type of constraint Subject foreign industry: Firm name and narrative response on constraints to practical overall capacity Existing labor force *** Existing labor force *** Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Fuel or energy *** Fuel or energy *** Storage capacity *** Logistics/transportation *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Source: Compiled from data submitted in response to Commission questionnaires. 7.21 Table 7.17 CSPV modules: Subject producers’ reported practical overall capacity constraints since January 1, 2022, by constraint and firm Type of constraint Subject foreign industry: Firm name and narrative response on constraints to practical overall capacity Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Production bottlenecks *** Existing labor force *** Existing labor force *** Existing labor force *** Existing labor force *** Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Supply of material inputs *** Fuel or energy *** Fuel or energy *** Fuel or energy *** Storage capacity *** Storage capacity *** Table continued. 7.22 Type of constraint Subject foreign industry: Firm name and narrative response on constraints to practical overall capacity Storage capacity *** Storage capacity *** Logistics/transportation *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Other constraints *** Source: Compiled from data submitted in response to Commission questionnaires. 7.23 Operations on CSPV cells and modules Aggregate CSPV cells operations in the subject countries Table 7.18 presents information on the CSPV cells operations of the responding producers/exporters (aggregate data for all subject foreign industries). During 2022 through 2024, subject producers’ CSPV cell capacity increased by *** percent and is projected to increase by *** percent in 2025 and *** percent in 2026. Subject producers’ CSPV cell production increased by *** percent during 2022 to 2024, increasing by *** percent during 2022 to 2023 and by *** percent during 2023 to 2024. Subject producers’ production is projected to increase in 2025 by *** percent but expected to decrease in 2026 by *** percent. Overall, from 2024 to 2026, subject producers project CSPV cell capacity, production, end-of- period inventories, internal consumption, home market shipments, and exports to the United States to increase. The vast majority over the period was of home market shipments, but with an increasing share to export markets. Commercial home shipments and exports to all other markets are also expected to increase. 7.24 Table 7.18 CSPV cells: Data on subject foreign industries, by item and period Quantity in kilowatts; interim period is January to March Item 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Capacity *** *** *** *** *** *** *** Production *** *** *** *** *** *** *** End-of- period inventories *** *** *** *** *** *** *** Internal consumption *** *** *** *** *** *** *** Commercial home market shipments *** *** *** *** *** *** *** Home market shipments *** *** *** *** *** *** *** Exports to the United States *** *** *** *** *** *** *** Exports to all other markets *** *** *** *** *** *** *** Export shipments *** *** *** *** *** *** *** Total shipments *** *** *** *** *** *** *** Resales exported to the United States *** *** *** *** *** *** *** Total exports to the United States *** *** *** *** *** *** *** Table continued. 7.25 Table 7.18 Continued CSPV cells: Data on subject foreign industries, by item and period Shares and ratios in percent, interim period is January to March Item 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Capacity utilization ratio *** *** *** *** *** *** *** Inventory ratio to production *** *** *** *** *** *** *** Inventory ratio to total shipments *** *** *** *** *** *** *** Internal consumption share *** *** *** *** *** *** *** Commercial home market shipments share *** *** *** *** *** *** *** Home market shipments share *** *** *** *** *** *** *** Exports to the United States share *** *** *** *** *** *** *** Exports to all other markets share *** *** *** *** *** *** *** Export shipments share *** *** *** *** *** *** *** Total shipments share 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Share of total exports to the United States by producers *** *** *** *** *** *** *** Share of total exports to the United States by resellers *** *** *** *** *** *** *** Adjusted share of total shipments exported to the United States *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 7.26 Practical CSPV cells capacity and production by subject foreign industry Table 7.19 presents information on subject producers’ production, capacity, and capacity utilization by subject country. Table 7.19 CSPV cells: Subject producers’ output: Practical capacity, by source and period Practical capacity Capacity in kilowatts, interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.19 Continued CSPV cells: Subject producers’ output: Production, by source and period Production Production in kilowatts; interim period in January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.19 Continued CSPV cells: Subject producers’ output: Capacity utilization, by source and period Capacity utilization Capacity utilization in percent; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Note: Capacity utilization ratio represents the ratio of the subject producer’s production to its production capacity. 7.27 Table 7.19 Continued CSPV cells: Subject producers’ output: Share of production, by source and period Share of production Share in percent; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. CSPV cells exports, by subject country Table 7.20 presents information on subject producers’ (and resellers) exports of CSPV cells by subject country. Subject producers from India and Laos did not report any exports of CSPV cells to the United States in 2022. While exports of CSPV cells from India to the U.S. decreased from 2023 to 2024, exports from CSPV cells from Indonesia and Laos to the U.S. increased for the same period. CSPV cell exports to the U.S. from subject countries were higher in interim 2025 than in 2024, except for Indonesia. CSPV cell exports to the U.S. are projected to increase from 2024 to 2026 from India, peak in 2025 then decrease in 2026 for Indonesia, and decrease for Laos. Table 7.20 CSPV cells: Subject producers’ (and resellers') exports: Exports to the United States, by source and period Exports to the United States Quantity in kilowatts; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. 7.28 Table 7.20 Continued CSPV cells: Subject producers’ (and resellers') exports: Share of total shipments exported to the United States, by source and period Share of total shipments exported to the United States Share in percent; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.20 Continued CSPV cells: Subject producers’ (and resellers') exports: Exports to all destination markets, by source and period Total exports Quantity in kilowatts, interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.20 Continued CSPV cells: Subject producers’ (and resellers') exports: Share of total shipments exported to all destinations, by source and period Share of total shipments exported Share in percent, interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 7.29 CSPV cells inventories, by subject foreign industry Table 7.21 presents information on ending inventory of the responding producers by subject foreign country. Table 7.21 CSPV cells: Subject foreign industries’ ending inventories: Ending inventories, by source and period Quantity in kilowatts; interim is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.21 Continued CSPV cells: Subject foreign industries’ ending inventories: Ratio of ending inventories to total shipments, by source and period Ratio in percent, interim is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.30 Aggregate CSPV modules operations in the subject countries Table 7.22 presents information on the CSPV modules operations of the responding producers/exporters (aggregate data for all subject foreign industries). During 2022 through 2024, subject producers’ CSPV module capacity increased by *** percent and is projected to increase by *** percent in 2025 and *** percent in 2026. Subject producers’ CSPV module production increased by *** percent during 2022 to 2024, increasing by *** percent during 2022 to 2023 and by *** percent during 2023 to 2024. Subject producers’ production is projected to increase in 2025 by *** and by *** percent in 2026. Overall, from 2024 to 2026, subject producers project CSPV module capacity, production, end-of-period inventories, internal consumption, home market and commercial shipments, and exports to all other markets are expected to increase. However, exports to the United States are expected to decrease marginally from 2024 to 2026. Home market shipments had the largest share in all periods. The share of home market shipments increased by *** percent between 2022 and 2024, is expected to increase in 2025 but then decrease slightly in 2026. The share of exports to total shipments peaked in 2023 but then decreased in 2024 and is expected to decrease in 2026 compared to 2024. The United States was by far the largest export market in every period. 7.31 Table 7.22 CSPV modules: Data on subject foreign industries, by item and period Quantity in kilowatts; interim period is January to March Item 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Capacity *** *** *** *** *** *** *** Production *** *** *** *** *** *** *** End-of- period inventories *** *** *** *** *** *** *** Internal consumption *** *** *** *** *** *** *** Commercial home market shipments *** *** *** *** *** *** *** Home market shipments *** *** *** *** *** *** *** Exports to the United States *** *** *** *** *** *** *** Exports to all other markets *** *** *** *** *** *** *** Export shipments *** *** *** *** *** *** *** Total shipments *** *** *** *** *** *** *** Resales exported to the United States *** *** *** *** *** *** *** Total exports to the United States *** *** *** *** *** *** *** Table continued. 7.32 Table 7.22 Continued CSPV modules: Data on subject foreign industries, by item and period Shares and ratios in percent, interim period is January to March Item 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 Capacity utilization ratio *** *** *** *** *** *** *** Inventory ratio to production *** *** *** *** *** *** *** Inventory ratio to total shipments *** *** *** *** *** *** *** Internal consumption share *** *** *** *** *** *** *** Commercial home market shipments share *** *** *** *** *** *** *** Home market shipments share *** *** *** *** *** *** *** Exports to the United States share *** *** *** *** *** *** *** Exports to all other markets share *** *** *** *** *** *** *** Export shipments share *** *** *** *** *** *** *** Total shipments share 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Share of total exports to the United States by producers *** *** *** *** *** *** *** Share of total exports to the United States by resellers *** *** *** *** *** *** *** Adjusted share of total shipments exported to the United States *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 7.33 Practical CSPV modules capacity and production by subject foreign industry Table 7.23 presents information on subject producers’ production, capacity, and capacity utilization by subject country. Table 7.23 CSPV modules: Subject producers’ output: Practical capacity, by source and period Practical capacity Capacity in kilowatts, interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.23 Continued CSPV modules: Subject producers’ output: Production, by source and period Production Production in kilowatts; interim period in January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. 7.34 Table 7.23 Continued CSPV modules: Subject producers’ output: Capacity utilization, by source and period Capacity utilization Capacity utilization in percent; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Note: Capacity utilization ratio represents the ratio of the subject producer’s production to its production capacity. Table 7.23 Continued CSPV modules: Subject producers’ output: Share of production, by source and period Share of production Share in percent; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries 100.0 100.0 100.0 100.0 100.0 100.0 100.0 Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. CSPV modules exports, by subject country Table 7.24 presents information on subject producers’ (and resellers) exports of CSPV modules by subject country. Subject producers from Laos did not report any exports of CSPV modules to the United States in 2022 or 2023. While exports of CSPV modules from India to the U.S. peaked in 2023, they decreased in 2024, were lower in interim 2025 than in interim 2024 and are projected to decrease in 2026 from 2024. Exports of CSPV modules from Indonesia to the U.S. also peaked in 2023 but decreased in 2024. However, exports of CSPV modules from India to the U.S. are expected to increase in 2026 from 2024. Laos exports of CSPV modules to the U.S. commenced in 2024 and are projected to increase during 2024 to 2026. Aggregate subject exports of CSPV modules to the U.S. increased irregularly during 2022 to 2024, was lower in interim 2025 than in interim 2024 and is projected to decrease from 2024 to 2026. 7.35 Table 7.24 CSPV modules: Subject producers’ (and resellers') exports: Exports to the United States, by source and period Exports to the United States Quantity in kilowatts; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.24 Continued CSPV modules: Subject producers’ (and resellers') exports: Share of total shipments exported to the United States, by source and period Share of total shipments exported to the United States Share in percent; interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.24 Continued CSPV modules: Subject producers’ (and resellers') exports: Exports to all destination markets, by source and period Total exports Quantity in kilowatts, interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. 7.36 Table 7.24 Continued CSPV modules: Subject producers’ (and resellers') exports: Share of total shipments exported to all destinations, by source and period Share of total shipments exported Share in percent, interim period is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. 7.37 CSPV modules inventories, by subject foreign industry Table 7.25 presents information on ending inventory of the responding producers by subject foreign country. The ratio of ending inventories to total shipments increased collectively and for each of the subject countries during 2022 to 2024. Ratios of ending inventories to total shipments increased from *** percent in 2022 to *** percent in 2024 for India, *** percent in 2022 to *** percent for Indonesia, and it was *** percent in 2024 for Laos. Table 7.25 CSPV modules: Subject foreign industries’ ending inventories: Ending inventories, by source and period Quantity in kilowatts; interim is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Table continued. Table 7.25 Continued CSPV modules: Subject foreign industries’ ending inventories: Ratio of ending inventories to total shipments, by source and period Ratio in percent, interim is January to March Subject foreign industry 2022 2023 2024 Interim 2024 Interim 2025 Projection 2025 Projection 2026 India *** *** *** *** *** *** *** Indonesia *** *** *** *** *** *** *** Laos *** *** *** *** *** *** *** All subject foreign industries *** *** *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires. 7.38 Alternative products The responding producers in India, Indonesia, and Laos did not report any production of alternative products using the same equipment and/or labor as those used to produce CSPV cells and/or modules during the period of investigations. Exports Table 7.26 presents Global Trade Atlas (“GTA”) data for exports of CSPV cells and modules from subject countries to the United States and to all destination markets. During 2022 to 2024, the vast majority of subject country’s exports of CSPV cells and modules were destined to the United States, with the exception of Laos, which entered the market in 2024. Table 7.26 CSPV cells and modules: Global exports from subject foreign industries: Exports to the United States, by subject foreign country and period Value in 1,000 dollars Exporter Measure 2022 2023 2024 India Value 525,514 1,787,556 1,513,782 Indonesia Value 162,485 245,089 591,577 Laos Value — 7 349,372 Subject exporters Value 687,999 2,032,651 2,454,730 Table continued. Table 7.26 Continued CSPV cells and modules: Global exports from subject foreign industries: Exports to all destination markets, by subject foreign country and period Value in $1,000 dollars Exporter Measure 2022 2023 2024 India Value 553,917 1,836,433 1,551,978 Indonesia Value 174,149 254,305 644,503 Laos Value 667 5,863 375,222 Subject exporters Value 728,732 2,096,600 2,571,703 Table continued. 7.39 Table 7.26 Continued CSPV cells and modules: Global exports from subject foreign industries: Share of exports exported to the United States, by subject foreign country and period Share in percent Exporter Measure 2022 2023 2024 India Share 94.9 97.3 97.5 Indonesia Share 93.3 96.4 91.8 Laos Share — 0.1 93.1 Subject exporters Share 94.4 96.9 95.5 Source: Official exports statistics and official global imports statistics from Laos (constructed exports) under HS subheadings 8541.42 and 8541.43 as reported by various national statistical authorities in the Global Trade Atlas Suite database, accessed August 4, 2025. Note: Shares represent the shares of value exported to the United States out of all destination markets. Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. U.S. inventories of imported merchandise Table 7.27 presents data on U.S. importers’ reported inventories of CSPV cells and modules. U.S. importers from India reported inventories throughout the period of data collection, while U.S. importers from Indonesia and Laos reported inventories for 2024 and interim 2025. In 2024 and interim 2025, U.S. importers’ inventories from Laos accounted for the majority of subject inventories. As a ratio to imports, U.S. shipments of imports, and total shipment of imports, aggregate U.S. importers’ inventories from subject sources decreased from 2022 to 2023 then increased in 2024 and were higher in interim 2025 compared to interim 2024. U.S. importers’ inventories from nonsubject sources accounted for the vast majority of inventories in all periods. U.S. importers’ inventories from nonsubject sources increased between 2022 and 20244 and were lower in interim 2025 than in interim 2024. 4 *** accounted for more than *** percent of U.S. importers’ nonsubject inventories in 2024. 7.40 Table 7.27 CSPV cells and modules: U.S. importers’ inventories and their ratio to select items, by source and period Quantity in kilowatts; ratio in percent; interim period is January to March Measure Source 2022 2023 2024 Interim 2024 Interim 2025 Inventories quantity India *** *** *** *** *** Ratio to imports India *** *** *** *** *** Ratio to U.S. shipments of imports India *** *** *** *** *** Ratio to total shipments of imports India *** *** *** *** *** Inventories quantity Indonesia *** *** *** *** *** Ratio to imports Indonesia *** *** *** *** *** Ratio to U.S. shipments of imports Indonesia *** *** *** *** *** Ratio to total shipments of imports Indonesia *** *** *** *** *** Inventories quantity Laos *** *** *** *** *** Ratio to imports Laos *** *** *** *** *** Ratio to U.S. shipments of imports Laos *** *** *** *** *** Ratio to total shipments of imports Laos *** *** *** *** *** Inventories quantity Subject sources *** *** *** *** *** Ratio to imports Subject sources *** *** *** *** *** Ratio to U.S. shipments of imports Subject sources *** *** *** *** *** Ratio to total shipments of imports Subject sources *** *** *** *** *** Inventories quantity Nonsubject sources *** *** *** *** *** Ratio to imports Nonsubject sources *** *** *** *** *** Ratio to U.S. shipments of imports Nonsubject sources *** *** *** *** *** Ratio to total shipments of imports Nonsubject sources *** *** *** *** *** Inventories quantity All import sources *** *** *** *** *** Ratio to imports All import sources *** *** *** *** *** Ratio to U.S. shipments of imports All import sources *** *** *** *** *** Ratio to total shipments of imports All import sources *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. 7.41 Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. U.S. importers’ outstanding orders The Commission requested importers to indicate whether they imported or arranged for the importation of CSPV cells and modules from India, Indonesia, and Laos after March 31, 2025. Thirty-one of 45 firms indicated they arranged imports from subject and nonsubject sources. Subject sources accounted for nearly *** of total arranged imports for all quarters, while inventories from nonsubject sources were higher in three of the four quarters. Their reported data are presented in table 7.28. Table 7.28 CSPV cells and modules: U.S. importers’ arranged imports, by source and period Quantity in kilowatts Source Q2 2025 Q3 2025 Q4 2025 Q1 2026 Total India *** *** *** *** *** Indonesia *** *** *** *** *** Laos *** *** *** *** *** Subject sources *** *** *** *** *** Nonsubject sources *** *** *** *** *** All import sources *** *** *** *** *** Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records, using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. Note: Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. 7.42 Third-country trade actions Table 7.29 provides information on trade remedy actions on CSPV cells and modules and related products in third-country markets. Table 7.29 CSPV cells and modules: Third-country trade remedy actions in effect Date Trade remedy action January 2014 China imposed antidumping duties on solar-grade polysilicon from the United States and South Korea and countervailing duties on solar-grade polysilicon from the United States, all of which were later extended in January 2020. May 2014 The European Union imposed antidumping and countervailing duties on solar glass from China, which were later extended in July 2020. July 2015 Canada imposed antidumping and countervailing duties on certain photovoltaic modules and laminates from China, which were later extended in March 2021. April 2017 Turkey imposed antidumping duties on solar panels from China. March 2019 India imposed antidumping duties on imports of ethyl vinyl acetate sheet for solar modules from China. India also imposed antidumping duties on ethyl vinyl acetate sheet for solar modules from Malaysia, Saudi Arabia, and Thailand on March 29, 2019, which were later terminated on March 28, 2024. September 2024 India imposed antidumping duties on imports of aluminum frames for solar panels from China in September 2024. September 2024 India initiated an antidumping investigation into imports of solar cells and modules from China on September 30, 2024. May 2025 India imposed antidumping duties on imports of textured tempered coated and uncoated glass, otherwise known as solar glass, from China and Vietnam in May 2025. Source: World Trade Organization, Trade Remedies Data Portal, accessed February 21, 2025, https://trade-remedies.wto.org/en; Ministry of Finance, No. 11/2025-CUSTOMS(ADD), May 8, 2025, https://dn721307.ca.archive.org/0/items/in.gazette.central.e.2025-05-08.262982/262982.pdf. 7.43 Information on nonsubject countries Global production5 According to the International Energy Agency, global PV cell production increased from 394 GW in 2022 to 644 GW in 2023.6 China is by far the largest producer of PV cells, accounting for 91.8 percent of global production during 2023, followed by Malaysia (2.3 percent), Vietnam (1.7 percent), and South Korea (1.6 percent).7 Based on 2023 production volumes, the top manufacturers of PV cells include Tongwei Solar (80.8 GW), Jinkosolar (63.9 GW), LONGi Green Energy Technology (62.3 GW), JA Solar Technology (45.5 GW), and Trina Solar (44.3 GW).8 As newer global cell production plants come online, the average size of these plants has increased, and this trend is projected to continue through the next decade. In 2024, cell production plants with annual capacity greater than 5 GW accounted for almost 60 percent of global production. This share is expected to increase to approximately 70 percent of global production in 2025 and is projected to grow to nearly 90 percent by 2035.9 Global PV module production increased from 324 GW in 2022 to 612 GW in 2023.10 China is the largest producer of PV modules, accounting for 84.6 percent of global production during 2023, followed by Vietnam (3.4 percent), India (2.7 percent), and Thailand (2.3 percent).11 Based on 2023 production volumes, the top manufacturers of PV module include Jinkosolar (83.5 GW), LONGi Green Energy Technology (72.8 GW), JA Solar Technology (58.9 GW), Trina Solar (58.9 GW), and Canadian Solar (31.4 GW).12 5 Global capacity and production data in this section for PV cells and modules include both crystalline silicone products and out-of-scope thin film products due to limitations in the availability of the data. Data for 2024 are not yet available; IEA’s Trends in Photovoltaic Applications 2025 report will be published in Q4 2025. 6 IEA, Trends in Photovoltaic Applications 2024, retrieved February 12, 2025, p. 53, https://iea- pvps.org/wp-content/uploads/2024/10/IEA-PVPS-Task-1-Trends-Report-2024.pdf. 7 Ibid. 8 Ibid. 9 Smaller cell production plants with annual capacity less than 5 GW are projected to account for roughly 10 percent of the global market by 2035 and are expected to primarily serve local markets and niche products. VDMA, International Technology Roadmap for Photovoltaics, 2024 Results, May 2025, p. 39, https://www.vdma.org/international-technology-roadmap-photovoltaic. 10 IEA, Trends in Photovoltaic Applications 2024, retrieved February 12, 2025, p. 54, https://iea- pvps.org/wp-content/uploads/2024/10/IEA-PVPS-Task-1-Trends-Report-2024.pdf. 11 Ibid. 12 IEA, Trends in Photovoltaic Applications 2024, retrieved February 12, 2025, p. 53, https://iea- pvps.org/wp-content/uploads/2024/10/IEA-PVPS-Task-1-Trends-Report-2024.pdf. 7.44 The average size of module production plants has also increased globally over time, and this trend is expected to continue through the next decade. In 2024, module production plants with annual capacity greater than 5 GW accounted for roughly 55 percent of the global market. This share is expected to increase to approximately 65 percent in 2025 and is projected to grow to nearly 85 percent by 2035.13 Global exports Global exports of CSPV cells and modules decreased by 36.4 percent during 2022 to 2024, from $75.4 billion in 2022 to $47.9 billion in 2024. China was the largest global exporter of CSPV cells and modules in 2024, with exports totaling $30.6 billion, or 63.9 percent of total exports by value (table 7.30). After China, the next largest global exporters in 2024 were the Netherlands (with exports totaling $4.4 billion, or 9.3 percent of total exports) and Thailand (with exports totaling $2.7 billion, or 5.6 percent of total exports).14 13 Smaller module production plants with annual capacity less than 5 GW are projected to account for less than 20 percent of the global market by 2034 and are expected to primarily serve regional markets and special applications. VDMA, International Technology Roadmap for Photovoltaics, 2024 Results, May 2025, p. 54, https://www.vdma.org/international-technology-roadmap-photovoltaic. 14 Official exports statistics from Vietnam under HS subheadings 8541.42 and 8541.43 are not available for 2024. However, in 2023 Vietnam was the second largest global exporter after China, with exports totaling $8.2 billion. The Netherlands is the largest global importer of CSPV modules, the vast majority of which come from China. The Netherlands re-exports approximately 60 percent of those imports, primarily to other countries within the European Union. Statistics Netherlands, “The Netherlands largest importer of Chinese solar panels,” September 8, 2023, https://www.cbs.nl/en- gb/news/2023/36/the-netherlands-largest-importer-of-chinese-solar-panels. 7.45 Table 7.30 CSPV cells and modules: Global exports by exporter and period Value in 1,000 dollars; share in percent Exporting country Measure 2022 2023 2024 United States Value 48,272 93,436 67,298 India Value 553,917 1,836,433 1,551,978 Indonesia Value 174,149 254,305 644,503 Laos Value 667 5,863 375,222 Subject exporters Value 728,732 2,096,600 2,571,703 China Value 46,378,414 43,783,325 30,605,297 Netherlands Value 8,305,842 8,059,403 4,445,089 Thailand Value 2,154,048 4,237,355 2,664,564 Malaysia Value 2,369,525 4,165,078 2,423,175 South Korea Value 1,576,203 1,159,182 682,117 Portugal Value 745,788 629,070 621,154 Slovenia Value 405,968 546,566 585,665 All other exporters Value 12,651,895 15,868,345 3,239,708 All reporting exporters Value 75,364,686 80,638,360 47,905,771 United States Share of value 0.1 0.1 0.1 India Share of value 0.7 2.3 3.2 Indonesia Share of value 0.2 0.3 1.3 Laos Share of value 0.0 0.0 0.8 Subject exporters Share of value 1.0 2.6 5.4 China Share of value 61.5 54.3 63.9 Netherlands Share of value 11.0 10.0 9.3 Thailand Share of value 2.9 5.3 5.6 Malaysia Share of value 3.1 5.2 5.1 South Korea Share of value 2.1 1.4 1.4 Portugal Share of value 1.0 0.8 1.3 Slovenia Share of value 0.5 0.7 1.2 All other exporters Share of value 16.8 19.7 6.8 All reporting exporters Share of value 100.0 100.0 100.0 Source: Official exports statistics and official global imports statistics from Laos (constructed exports) under HS subheadings 8541.42 and 8541.43 as reported by various national statistical authorities in the Global Trade Atlas Suite database, accessed August 4, 2025. Note: Shares and ratios shown as "0.0" represent values greater than zero, but less than "0.05" percent. United States is shown at the top followed by the countries under investigation, all remaining top exporting countries in descending order of 2024 data. Prior to January 26, 2022, CSPV cells and modules entered under HS subheading 8541.40. HS subheading 8541.40 may have contained products outside the scope of these investigations, including photosensitive semiconductor devices and light-emitting diodes. Official exports statistics from Vietnam under HS subheadings 8541.42 and 8541.43 are not available for 2024. 7.46 China15 China is the largest global producer of PV cells and modules (including out-of-scope thin film products) by a wide margin, accounting for the large majority of total production in both sectors. China’s capacity to produce PV cells increased by 83.8 percent from 506 GW in 2022 to 930 GW in 2023.16 Chinese PV cell production increased by 78.5 percent from 331 GW in 2022 to 591 GW in 2023.17 During 2022 to 2023, Chinese PV module capacity increased from 552 GW to 920 GW (66.7 percent) and Chinese PV module production increased from 295 GW to 510 GW (72.9 percent).18 Moreover, China increased its share of global production in both sectors between 2022 and 2023—increasing from 84.0 percent to 91.8 percent of total PV cell production and increasing from 77.8 percent to 84.6 percent of total PV module production.19 China’s exports of CSPV cells and modules totaled $30.6 billion in 2024.20 The top destinations for such exports from China were the Netherlands ($4.7 billion), India ($3.1 billion), Brazil ($2.6 billion), and Pakistan ($2.0 billion).21 15 2024 capacity and production data for China are not yet available; IEA’s Trends in Photovoltaic Applications 2025 report will be published in Q4 2025. 16 IEA, Trends in Photovoltaic Applications 2023, accessed August 13, 2025, p. 50, https://iea- pvps.org/wp-content/uploads/2023/10/PVPS_Trends_Report_2023_WEB.pdf; IEA, Trends in Photovoltaic Applications 2024, accessed August 13, 2025, p. 53, https://iea-pvps.org/wp- content/uploads/2024/10/IEA-PVPS-Task-1-Trends-Report-2024.pdf. 17 Ibid. 18 IEA, Trends in Photovoltaic Applications 2023, accessed August 13, 2025, p. 51, https://iea- pvps.org/wp-content/uploads/2023/10/PVPS_Trends_Report_2023_WEB.pdf; IEA, Trends in Photovoltaic Applications 2024, accessed August 13, 2025, p. 54, https://iea-pvps.org/wp- content/uploads/2024/10/IEA-PVPS-Task-1-Trends-Report-2024.pdf. 19 IEA, Trends in Photovoltaic Applications 2023, accessed August 13, 2025, pp. 50-51, https://iea- pvps.org/wp-content/uploads/2023/10/PVPS_Trends_Report_2023_WEB.pdf; IEA, Trends in Photovoltaic Applications 2024, accessed August 13, 2025, pp. 53-54, https://iea-pvps.org/wp- content/uploads/2024/10/IEA-PVPS-Task-1-Trends-Report-2024.pdf. 20 Official export statistics under HS subheadings 8541.42 and 8541.43 as reported by China Customs in the Global Trade Atlas Suite (GTAS) database, accessed August 13, 2025. 21 The United States is not a top destination for China’s exports of CSPV cells and modules due to existing AD/CVD orders on such imports. See Part 1 of this report for more information on previous and related investigations. Ibid. A.1 APPENDIX A FEDERAL REGISTER NOTICES A.3 The Commission makes available notices relevant to its investigations and reviews on its website, www.usitc.gov. In addition, the following tabulation presents, in chronological order, Federal Register notices issued by the Commission and Commerce during the current proceeding. Citation Title Link 90 FR 34518, July 22, 2025 Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, From India, Indonesia, and Laos; Institution of Antidumping and Countervailing Duty Investigations and Scheduling of Preliminary Phase Investigations https://www.govinfo.gov/content/pkg/FR- 2025-07-22/pdf/2025-13756.pdf 90 FR 38736, August 12, 2025 Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, From India, Indonesia, and the Lao People's Democratic Republic: Initiation of Less-Than-Fair-Value Investigations https://www.govinfo.gov/content/pkg/FR- 2025-08-12/pdf/2025-15250.pdf 90 FR 38745 August 12, 2025 Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, From India, Indonesia, and the Lao People's Democratic Republic: Initiation of Countervailing Duty Investigations https://www.govinfo.gov/content/pkg/FR- 2025-08-12/pdf/2025-15251.pdf B.1 APPENDIX B LIST OF STAFF CONFERENCE WITNESSES B.2 CALENDAR OF PUBLIC PRELIMINARY CONFERENCE Those listed below appeared as witnesses at the United States International Trade Commission’s preliminary conference: Subject: Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled into Modules from India, Indonesia, and Laos Inv. Nos.: 701-TA-772-774 and 731-TA-1756-1758 (Preliminary) Date and Time: August 7, 2025 – 9:30 a.m. Sessions were held in connection with these preliminary phase investigations all virtually via Webex. OPENING REMARKS: In Support of Imposition (Laura El-Sabaawi, Wiley Rein LLP) In Support of the Imposition of the Antidumping and Countervailing Duty Orders: Wiley Rein LLP Washington, DC on behalf of Alliance for American Solar Manufacturing and Trade (“Alliance”) Joe Mendelson, Vice President and Head of Public Policy and Government Relations, Hanwha Q CELLS USA Scott Moskowitz, Senior Director of Market Strategy and Public Affairs, Hanwha . Q CELLS USA Sam Martens, President, Mission Solar Adam Tesanovich, Co-Founder and Chief Executive Officer, Talon PV B.3 In Support of the Imposition of the Antidumping and Countervailing Duty Orders (continued): Seth Kaplan, President, International Economic Research LLC Nathan Smith, Research Analyst, Capital Trade Timothy Brightbill ) ) – OF COUNSEL Laura El-Sabaawi ) ArentFox Schiff LLP Washington, DC on behalf of Hanwha QCells USA, Inc. (“HQCUSA”) John M. Gurley ) – OF COUNSEL CLOSING REMARKS: In Support of Imposition (Timothy Brightbill, Wiley Rein LLP) C.1 APPENDIX C SUMMARY DATA Table C.1 CSPV cells and modules: Summary data concerning the U.S. market, by item and period Interim Item 2022 2023 2024 2024 2025 2022–24 2022–23 2023–24 2024–25 U.S. consumption quantity: Amount............................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Producers' share (fn1) (fn2)............................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Importers' share (fn1): India............................................................... *** *** *** *** *** ▲*** ▲*** ▼*** ▼*** Indonesia....................................................... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Laos............................................................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Subject sources........................................ *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Nonsubject sources.................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** All import sources................................ *** *** *** *** *** ▼*** *** ▼*** ▼*** U.S. consumption value: Amount............................................................... *** *** *** *** *** ▲*** ▲*** ▼*** ▼*** Producers' share (fn1) (fn2): Fully domestic value................................. *** *** *** *** *** ▲*** *** ▲*** ▲*** Value added to imports............................ *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Overall value for U.S. producers......... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Importers' share (fn1): India............................................................... *** *** *** *** *** ▲*** ▲*** ▼*** ▼*** Indonesia....................................................... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Laos............................................................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Subject sources........................................ *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Nonsubject sources.................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** All import sources................................ *** *** *** *** *** ▼*** ▲*** ▼*** ▼*** U.S. importers' U.S. shipments of imports from: India: Quantity......................................................... *** *** *** *** *** ▲*** ▲*** ▼*** ▼*** Value............................................................. *** *** *** *** *** ▲*** ▲*** ▼*** ▼*** Unit value...................................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Ending inventory quantity.............................. *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Indonesia: Quantity......................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Value............................................................. *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Unit value...................................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Ending inventory quantity.............................. *** *** *** *** *** ▲*** *** ▲*** ▲*** Laos: Quantity......................................................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Value............................................................. *** *** *** *** *** ▲*** *** ▲*** ▲*** Unit value...................................................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Ending inventory quantity.............................. *** *** *** *** *** ▲*** *** ▲*** ▲*** Subject sources: Quantity......................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Value............................................................. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Unit value...................................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Ending inventory quantity.............................. *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Nonsubject sources: Quantity......................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Value............................................................. *** *** *** *** *** ▲*** ▲*** ▼*** ▼*** Unit value...................................................... *** *** *** *** *** ▼*** ▲*** ▼*** ▼*** Ending inventory quantity.............................. *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** All import sources: Quantity......................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Value............................................................. *** *** *** *** *** ▲*** ▲*** ▼*** ▼*** Unit value...................................................... *** *** *** *** *** ▼*** ▲*** ▼*** ▼*** Ending inventory quantity.............................. *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Table continued. C.3 Quantity=kilowatts; Value=1,000 dollars; Unit values, unit labor costs, and unit expenses=dollars per kilowatt; Period changes=percent--exceptions noted; Interim period is January to March Reported data Period change comparisons Calendar year Interim Calendar year Table C.1 Continued CSPV cells and modules: Summary data concerning the U.S. market, by item and period Interim Item 2022 2023 2024 2024 2025 2022–24 2022–23 2023–24 2024–25 U.S. producers' (fn3): Cells: Practical capacity quantity....................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Cells: Production quantity.................................. *** *** *** *** *** ▲*** *** ▲*** ▲*** Cells: Capacity utilization (fn1)........................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Modules: Practical capacity quantity.................. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Modules: Production quantity............................. *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Modules: Capacity utilization (fn1)..................... *** *** *** *** *** ▼*** ▼*** ▲*** ▲*** Modules: U.S. shipments: Quantity......................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Value............................................................. *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Unit value...................................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Ratio to consumption, quantity (fn1)............. *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Ratio to consumption, value (fn1)................. *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Cells and modules: U.S. shipments for use in apparent consumption (fn2): Quantity......................................................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Value: Fully domestic value................................. *** *** *** *** *** ▲*** *** ▲*** ▲*** Value added to imports............................ *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Overall value for U.S. producers......... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Cells and modules: Export shipments: Quantity......................................................... *** *** *** *** *** *** *** *** *** Value............................................................. *** *** *** *** *** *** *** *** *** Unit value...................................................... *** *** *** *** *** *** *** *** *** Cells: Ending inventory quantity......................... *** *** *** *** *** ▲*** *** ▲*** ▲*** Cells: Inventories/total shipments (fn1).............. *** *** *** *** *** ▲*** *** ▲*** ▲*** Modules: Ending inventory quantity................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Modules: Inventories/total shipments (fn1)........ *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Production workers............................................ *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Hours worked (1,000s)....................................... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Wages paid ($1,000).......................................... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Hourly wages (dollars per hour)......................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Cells: Productivity (kilowatts per 1,000 hours)... *** *** *** *** *** ▲*** *** ▲*** ▲*** Modules: Productivity (kilowatts per 1,000 hours) *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Cells: Unit labor costs........................................ *** *** *** *** *** ▲*** *** ▲*** ▲*** Modules: Unit labor costs................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Cells and modules: Net sales: Quantity.................................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Value........................................................ *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Unit value................................................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Cost of goods sold (COGS).......................... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** Gross profit or (loss) (fn4)............................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** SG&A expenses............................................ *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Operating income or (loss) (fn4)................... *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Net income or (loss) (fn4)............................. *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Unit COGS.................................................... *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Unit SG&A expenses.................................... *** *** *** *** *** ▼*** ▲*** ▼*** ▼*** Unit operating income or (loss) (fn4)............. *** *** *** *** *** ▼*** ▼*** ▲*** ▲*** Unit net income or (loss) (fn4)....................... *** *** *** *** *** ▲*** ▼*** ▲*** ▲*** COGS/sales (fn1).......................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▼*** Operating income or (loss)/sales (fn1).......... *** *** *** *** *** ▼*** ▼*** ▼*** ▲*** Net income or (loss)/sales (fn1).................... *** *** *** *** *** ▼*** ▼*** ▲*** ▲*** Capital expenditures..................................... *** *** *** *** *** ▲*** ▲*** ▲*** ▲*** Research and development expenses......... *** *** *** *** *** ▼*** ▼*** ▼*** ▼*** Total assets................................................... *** *** *** *** *** ▲*** ▲*** ▲*** *** fn1.--Reported data are in percent and period changes are in percentage points. Source: Compiled from data submitted in response to Commission questionnaires and from proprietary, Census-edited Customs records using HTS statistical reporting numbers 8541.42.0010 and 8541.43.0010, accessed August 12, 2025. 508-compliant tables for these data are contained in parts 3, 4, 6, and 7 of this report. Note.--Shares and ratios shown as “0.0” percent represent non-zero values less than “0.05” percent (if positive) and greater than “(0.05)” percent (if negative). Zeroes, null values, and undefined calculations are suppressed and shown as “—“. Period changes preceded by a “▲” represent an increase, while period changes preceded by a “▼” represent a decrease. Data related to the additional importers of record identified using proprietary, Census-edited Customs records that did not respond to the Commission questionnaire are included. fn2.--Quantity for U.S. producers' U.S. shipments only reflects domestically produced cells to assemble into modules. Value for U.S. producers' U.S. shipments reflects domestically produced cells to assemble into modules and the incremental value added by U.S. module producers to imported CSPV cells. In measuring consumption and market share this methodology avoids reclassifying and/or double counting merchandise already reported as an import. fn3.--U.S. producers' data are mainly module production only with small amounts of domestic cell production starting up in 2024. fn4.--Percent changes only calculated when both comparison values represent profits; The directional change in profitability provided when one or both comparison values represent a loss. C.4 Quantity=kilowatts; Value=1,000 dollars; Unit values, unit labor costs, and unit expenses=dollars per kilowatt; Period changes=percent--exceptions noted; Interim period is January to March Reported data Period change comparisons Calendar year Interim Calendar year D.1 APPENDIX D FIRMS’ RESPONSES REGARDING SEMI-FINISHED PRODUCT ANALYSIS D.3 Table D.1 CSPV cells and modules: Count of firms’ responses regarding semi-finished product analysis comparing CSPV cells to CSPV modules, by firm type and factor Count in number of firms reporting Firm type Factor No Yes U.S. producers Other uses 11 2 U.S. producers Separate market 4 10 U.S. producers Differences in characteristics 3 10 U.S. producers Differences in costs 2 11 U.S. producers Transformation intensive 2 11 Importers Other uses 34 5 Importers Separate market 17 22 Importers Differences in characteristics 12 27 Importers Differences in costs 4 33 Importers Transformation intensive 10 27 Source: Compiled from data submitted in response to Commission questionnaires. D.4 Table D.2 CSPV cells and modules: U.S. producers’ narrative responses regarding the semi- finished product analysis comparing CSPV cells to CSPV modules Factor Producer name and narrative regarding semi-finished product analysis Other uses *** Other uses *** Separate market *** Separate market *** Separate market *** D.5 Factor Producer name and narrative regarding semi-finished product analysis Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Table continued. D.6 Factor Producer name and narrative regarding semi-finished product analysis Separate market *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Table continued. D.7 Factor Producer name and narrative regarding semi-finished product analysis Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Table continued. D.8 Factor Producer name and narrative regarding semi-finished product analysis Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Table continued. D.9 Factor Producer name and narrative regarding semi-finished product analysis Transformation intensive *** Source: Compiled from data submitted in response to Commission questionnaires. Table D.3 CSPV cells and modules: U.S. importers’ narrative responses regarding the semi- finished product analysis comparing CSPV cells to CSPV modules Factor Importer name and narrative regarding semi-finished product analysis Other uses *** Other uses *** Other uses *** Other uses *** Other uses *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Table continued. D.10 Factor Importer name and narrative regarding semi-finished product analysis Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Separate market *** Table continued. D.11 Factor Importer name and narrative regarding semi- finished product analysis Separate market *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Table continued. D.12 Factor Importer name and narrative regarding semi-finished product analysis Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Table continued. D.13 Factor Importer name and narrative regarding semi-finished product analysis Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in characteristics *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Table continued. D.14 Factor Importer name and narrative regarding semi-finished product analysis Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Table continued. D.15 Factor Importer name and narrative regarding semi-finished product analysis Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Table continued. D.16 Factor Importer name and narrative regarding semi-finished product analysis Differences in cost *** Differences in cost *** Differences in cost *** Differences in cost *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Table continued. D.17 Factor Importer name and narrative regarding semi-finished product analysis Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Table continued. D.18 Factor Importer name and narrative regarding semi-finished product analysis Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Transformation intensive *** Table continued. 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)��[Content_Types].xmlPK-!�U~��_rels/.relsPK-!�T[e� 7word/document.xmlPK-!�\�+2��word/_rels/document.xml.relsPK-!������&�word/footnotes.xmlPK-!Ƚ^X���word/endnotes.xmlPK-!̉y��� ��word/header1.xmlPK-!��M�f��word/header2.xmlPK-!�g��� i�word/footer1.xmlPK-!Md�~�� �word/footer2.xmlPK-!(��C4K��word/header3.xmlPK-!�jM�� 9�word/footer3.xmlPK-!�I|�$���word/header4.xmlPK-!EyCD�word/header5.xmlPK-!��R��� ��word/theme/theme1.xmlPK-!%����j��word/settings.xmlPK-!��$��customXml/item1.xmlPK-!�x��U�customXml/itemProps1.xmlPK-!��5� 3�� word/numbering.xmlPK-!cY�gx��word/styles.xmlPK-!n�e�/�7?)word/webSettings.xmlPK-!/계�3�,word/fontTable.xmlPK-!Ir�}�{�/docProps/core.xmlPK-!Ǘ���e �3docProps/app.xmlPK-!I���l�7docProps/custom.xmlPK-!t?9z�(�9customXml/_rels/item1.xml.relsPK��; ──────────────────────────────────────────────────────────── === USITC Institution === 34518 Federal Register / Vol. 90, No. 138 / Tuesday, July 22, 2025 / Notices information technology, e.g., permitting electronic submission of response. Comments that you submit in response to this notice are a matter of public record. Before including your address, phone number, email address, or other personal identifying information in your comment, you should be aware that your entire comment—including your personal identifying information—may be made publicly available at any time. While you can ask us in your comment to withhold your personal identifying information from public review, we cannot guarantee that we will be able to do so. Abstract: All diversion of mainstream Colorado River water must be in accordance with the Colorado River water entitlement pursuant to the Boulder Canyon Project Act (43 U.S.C. 617; Pub. L. 70–642, 45 Stat. 1057). The Consolidated Decree of the United States Supreme Court in Arizona v. California, 547 U.S. 150 (2006) requires the Secretary of the Interior to account for all diversions of mainstream Colorado River water along the lower Colorado River, including water drawn from the mainstream by underground pumping. To meet the water entitlement and accounting obligations, an inventory of wells and river pumps is required along the lower Colorado River that gathers specific information concerning these wells, such as water level, pumping volume, and permit number. Title of Collection: Lower Colorado River Well Inventory. OMB Control Number: 1006–0014. Form Number: Form LC–25. Type of Review: Extension of a currently approved collection. Respondents/Affected Public: Well and river-pump owners and operators along the lower Colorado River in Arizona, California, and Nevada. Each diverter (including well pumpers) must be identified and their diversion locations and water use determined. Total Estimated Number of Annual Respondents: 50. Total Estimated Number of Annual Responses: 50. Estimated Completion Time per Response: An average of 20 minutes is required to interview individual well and river-pump owners or operators. Total Estimated Number of Annual Burden Hours: 17 hours. Respondent’s Obligation: Required to obtain or retain a benefit. Frequency of Collection: These data are collected only once for each well or river-pump owner or operator as long as changes in water use, or other changes that would impact contractual or administrative requirements, are not made. A respondent may request that the data for its well or river pump be updated after the initial inventory. Total Estimated Annual Nonhour Burden Cost: 0. An agency may not conduct or sponsor and a person is not required to respond to a collection of information unless it displays a currently valid OMB control number. The authority for this action is the Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.). Leonard Schilling, Acting Regional Director, Lower Colorado Basin Region. [FR Doc. 2025–13741 Filed 7–21–25; 8:45 am] BILLING CODE 4332–90–P INTERNATIONAL TRADE COMMISSION [Investigation Nos. 701–TA–772–774 and 731–TA–1756–1758 (Preliminary)] Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, From India, Indonesia, and Laos; Institution of Antidumping and Countervailing Duty Investigations and Scheduling of Preliminary Phase Investigations AGENCY : United States International Trade Commission. ACTION : Notice. SUMMARY : The Commission hereby gives notice of the institution of investigations and commencement of preliminary phase antidumping and countervailing duty investigation Nos. 701–TA–772– 774 and 731–TA–1756–1758 (Preliminary) pursuant to the Tariff Act of 1930 to determine whether there is a reasonable indication that an industry in the United States is materially injured or threatened with material injury, or the establishment of an industry in the United States is materially retarded, by reason of imports of crystalline silicon photovoltaic cells, whether or not assembled into modules, from India, Indonesia, and Laos, provided for in subheadings 8541.42.00 and 8541.43.00 of the Harmonized Tariff Schedule of the United States, that are alleged to be sold in the United States at less than fair value and alleged to be subsidized by the governments of India, Indonesia, and Laos. Unless the Department of Commerce (‘‘Commerce’’) extends the time for initiation, the Commission must reach preliminary determinations in antidumping and countervailing duty investigations in 45 days, or in this case by September 2, 2025. The Commission’s views must be transmitted to Commerce within five business days thereafter, or by September 9, 2025. DATES : July 17, 2025. FOR FURTHER INFORMATION CONTACT : Celia Feldpausch 202–205–2387, Office of Investigations, U.S. International Trade Commission, 500 E Street SW, Washington, DC 20436. Hearing- impaired persons can obtain information on this matter by contacting the Commission’s TDD terminal on 202– 205–1810. Persons with mobility impairments who will need special assistance in gaining access to the Commission should contact the Office of the Secretary at 202–205–2000. General information concerning the Commission may also be obtained by accessing its internet server (https:// www.usitc.gov). The public record for these investigations may be viewed on the Commission’s electronic docket (EDIS) at https://edis.usitc.gov. SUPPLEMENTARY INFORMATION : Background.—These investigations are being instituted, pursuant to sections 703(a) and 733(a) of the Tariff Act of 1930 (19 U.S.C. 1671b(a) and 1673b(a)), in response to petitions filed on July 17, 2025, by the Alliance for American Solar Manufacturing and Trade. For further information concerning the conduct of these investigations and rules of general application, consult the Commission’s Rules of Practice and Procedure, part 201, subparts A and B (19 CFR part 201), and part 207, subparts A and B (19 CFR part 207). Participation in the investigations and public service list.—Persons (other than petitioners) wishing to participate in the investigations as parties must file an entry of appearance with the Secretary to the Commission, as provided in §§ 201.11 and 207.10 of the Commission’s rules, not later than seven days after publication of this notice in the Federal Register. Industrial users and (if the merchandise under investigation is sold at the retail level) representative consumer organizations have the right to appear as parties in Commission antidumping duty and countervailing duty investigations. The Secretary will prepare a public service list containing the names and addresses of all persons, or their representatives, who are parties to these investigations upon the expiration of the period for filing entries of appearance. Limited disclosure of business proprietary information (BPI) under an administrative protective order (APO) and BPI service list.—Pursuant to VerDate Sep<11>2014 16:37 Jul 21, 2025 Jkt 265001 PO 00000 Frm 00107 Fmt 4703 Sfmt 4703 E:\FR\FM\22JYN1.SGM 22JYN1 khammond on DSK9W7S144PROD with NOTICES 34519Federal Register / Vol. 90, No. 138 / Tuesday, July 22, 2025 / Notices 1 Based on the Government’s submissions in its RFAA dated March 28, 2025, the Agency finds that service of the OSC on Registrant was proper. The included declaration from a DEA Diversion Investigator (DI) indicates that on February 19, 2025, DI personally served Registrant with a copy of the OSC and Registrant signed a delivery receipt. RFAA, at 2; see also RFAAX 1, at 1, 3. 2 Under the Administrative Procedure Act, an agency ‘‘may take official notice of facts at any stage in a proceeding—even in the final decision.’’ United States Department of Justice, Attorney General’s Manual on the Administrative Procedure Act 80 (1947) (Wm. W. Gaunt & Sons, Inc., Reprint 1979). § 207.7(a) of the Commission’s rules, the Secretary will make BPI gathered in these investigations available to authorized applicants representing interested parties (as defined in 19 U.S.C. 1677(9)) who are parties to the investigations under the APO issued in the investigations, provided that the application is made not later than seven days after the publication of this notice in the Federal Register. A separate service list will be maintained by the Secretary for those parties authorized to receive BPI under the APO. Conference.—The Office of Investigations will hold a staff conference in connection with the preliminary phase of these investigations beginning at 9:30 a.m. on August 7, 2025. Requests to appear at the conference should be emailed to preliminaryconferences@usitc.gov (DO NOT FILE ON EDIS) on or before noon on August 5, 2025. Please provide an email address for each conference participant in the email. Information on conference procedures, format, and participation, including guidance for requests to appear as a witness via videoconference, will be available on the Commission’s Public Calendar (Calendar (USITC) | United States International Trade Commission). A nonparty who has testimony that may aid the Commission’s deliberations may request permission to participate by submitting a short statement. Please note the Secretary’s Office will accept only electronic filings during this time. Filings must be made through the Commission’s Electronic Document Information System (EDIS, https:// edis.usitc.gov). No in-person paper- based filings or paper copies of any electronic filings will be accepted until further notice. Written submissions.—As provided in §§ 201.8 and 207.15 of the Commission’s rules, any person may submit to the Commission on or before 5:15 p.m. on August 12, 2025, a written brief containing information and arguments pertinent to the subject matter of the investigations. Parties shall file written testimony and supplementary material in connection with their presentation at the conference no later than 4:00 p.m. on August 6, 2025. All written submissions must conform with the provisions of § 201.8 of the Commission’s rules; any submissions that contain BPI must also conform with the requirements of §§ 201.6, 207.3, and 207.7 of the Commission’s rules. The Commission’s Handbook on Filing Procedures, available on the Commission’s website at https://www.usitc.gov/documents/ handbook_on_filing_procedures.pdf, elaborates upon the Commission’s procedures with respect to filings. In accordance with §§ 201.16(c) and 207.3 of the rules, each document filed by a party to the investigations must be served on all other parties to the investigations (as identified by either the public or BPI service list), and a certificate of service must be timely filed. The Secretary will not accept a document for filing without a certificate of service. Certification.—Pursuant to § 207.3 of the Commission’s rules, any person submitting information to the Commission in connection with these investigations must certify that the information is accurate and complete to the best of the submitter’s knowledge. In making the certification, the submitter will acknowledge that any information that it submits to the Commission during these investigations may be disclosed to and used: (i) by the Commission, its employees and Offices, and contract personnel (a) for developing or maintaining the records of these or related investigations or reviews, or (b) in internal investigations, audits, reviews, and evaluations relating to the programs, personnel, and operations of the Commission including under 5 U.S.C. Appendix 3; or (ii) by U.S. government employees and contract personnel, solely for cybersecurity purposes. All contract personnel will sign appropriate nondisclosure agreements. Authority: These investigations are being conducted under authority of title VII of the Tariff Act of 1930; this notice is published pursuant to § 207.12 of the Commission’s rules. By order of the Commission. Issued: July 18, 2025. Sharon Bellamy, Supervisory Hearings and Information Officer. [FR Doc. 2025–13756 Filed 7–21–25; 8:45 am] BILLING CODE 7020–02–P DEPARTMENT OF JUSTICE Drug Enforcement Administration Thomas Draschil, M.D.; Decision and Order On February 19, 2025, the Drug Enforcement Administration (DEA or Government) issued an Order to Show Cause (OSC) to Thomas Draschil, M.D., of Salt Lake City, Utah (Registrant). Request for Final Agency Action (RFAA), Exhibit (RFAAX) 2, at 1, 4. The OSC proposed the revocation of Registrant’s DEA Certificate of Registration No. FD9980118, alleging that Registrant is ‘‘currently without authority to . . . handle controlled substances in the State of Utah, the state in which [he is] registered with DEA.’’ Id. at 2 (citing 21 U.S.C. 824(a)(3)). The OSC notified Registrant of his right to file a written request for hearing, and that if he failed to file such a request, he would be deemed to have waived his right to a hearing and be in default. Id. at 2–3 (citing 21 CFR 1301.43). Here, Registrant did not request a hearing. RFAA, at 2–3.1 ‘‘A default, unless excused, shall be deemed to constitute a waiver of the registrant’s/applicant’s right to a hearing and an admission of the factual allegations of the [OSC].’’ 21 CFR 1301.43(e). Further, ‘‘[i]n the event that a registrant . . . is deemed to be in default . . . DEA may then file a request for final agency action with the Administrator, along with a record to support its request. In such circumstances, the Administrator may enter a default final order pursuant to [21 CFR] 1316.67.’’ Id. at 1301.43(f)(1). Here, the Government has requested final agency action based on Registrant’s default pursuant to 21 CFR 1301.43(c), (f), and 1301.46. RFAA, at 1, 4; see also 21 CFR 1316.67. Findings of Fact The Agency finds that, in light of Registrant’s default, the factual allegations in the OSC are deemed admitted. According to the OSC, Registrant’s Utah physician license and Utah controlled substance license were voluntarily surrendered on July 29, 2024. RFAAX 2, at 1–2; see also RFAAX 3, at 1–8. According to Utah online records, of which the Agency takes official notice,2 Registrant’s Utah licenses continue to have a status of ‘‘Surrendered.’’ Utah DOPL License Search, https://secure.utah.gov/llv/ search/index.html (last visited date of signature of this Order). Accordingly, the Agency finds that Registrant is not licensed as a practitioner in Utah, the VerDate Sep<11>2014 16:37 Jul 21, 2025 Jkt 265001 PO 00000 Frm 00108 Fmt 4703 Sfmt 4703 E:\FR\FM\22JYN1.SGM 22JYN1 khammond on DSK9W7S144PROD with NOTICES ──────────────────────────────────────────────────────────── === D-Grids Spec Sheet === D-GRIDs references (i.e., for use with the D-GRIDs tool) for: Crystalline silicon photovoltaic (CSPV) cells, whether or not assembled into modules from India (IN), Indonesia (ID), and Laos (LA) Inv. Nos. 701-TA-772-774 and 731-TA-1756-1758 Preliminary D-GRIDs spec sheet, p. 1 Question D-GRID number Columns Rows PRO Question II-3a (Cells: Overall machinery capacity) 124 5 3 PRO Question II-3b (Modules: Overall machinery capacity) 141 5 3 PRO Question II-8 (Cells: Trade data) 219 5 12 PRO Question II-9 (Cells: Channels data) 282 5 5 PRO Question II-10 (Cells: US shipments by type) 307 1 2 PRO Question II-11 (Cells: Quarterly US shipments) 309 3 2 PRO Question II-12 (Modules: Trade data) 315 5 12 PRO Question II-13 (Modules: Channels data) 378 5 5 PRO Question II-14 (Modules: US shipments by type) 403 1 3 PRO Question II-15 (Modules: Quarterly US shipments) 406 3 2 PRO Question II-16 (Employment) 412 5 6 PRO Question II-18 (Cells: Purchases) 447 5 6 PRO Question II-19 (Cells: Sub purchases by importer) see note 480 7 15 PRO Question II-20 (Modules: Purchases) 588 5 6 PRO Question II-21 (Modules: Sub purchases by importer) see note 621 7 15 PRO Question III-9a (Cells: Profitability data) 840 5 14 PRO Question III-9f (Cells: Depreciation expense) 934 5 1 PRO Question III-10a (Modules: Profitability data) 946 5 13 PRO Question III-10b (Modules: Sales by origin of cell) 1011 5 6 PRO Question III-10c (Modules: Raw materials by type of input) 1041 5 14 PRO Question III-10h (Modules: Depreciation expense) 1134 5 1 PRO Question III-11a (Nonrecurring items) 1149 5 14 PRO Question III-12a (Assets) 1249 3 3 PRO Question III-13a (CapEx and R&D) 1260 5 4 PRO Question IV-2b (Pricing products US) 1335 8 13 Note: In relation to the tables on purchases of imports from subject sources by importer in the U.S. producers’ questionnaire (PRO II-19 and II-21), the data begins on the 3rd column of data entry fields and any text information from the first two columns (importer of record, source) within MS Word has to be included in the D-GRIDS interaction with that data table (thus 7 columns not just the 5 relating to the numeric data) but the text information in the first two columns will not be overwritten when data are pushed into Word using the D-GRIDs tool. Question D-GRID number Columns Rows IMP Question II-3a (Arranged imports) 103 4 8 IMP Question II-3b (Negligibility imports) 137 1 4 D-GRIDs references (i.e., for use with the D-GRIDs tool) for: Crystalline silicon photovoltaic (CSPV) cells, whether or not assembled into modules from India (IN), Indonesia (ID), and Laos (LA) Inv. Nos. 701-TA-772-774 and 731-TA-1756-1758 Preliminary D-GRIDs spec sheet, p. 2 Question D-GRID number Columns Rows IMP Question II-5a (Cells: Trade data IN) 142 5 12 IMP Question II-5b (Cells: Channels data IN) 206 5 5 IMP Question II-5c (Cells: US shipments by product type IN) 231 1 2 IMP Question II-5d (Cells: Quarterly US shipments IN) 233 3 2 IMP Question II-6a (Modules: Trade data IN) 239 5 12 IMP Question II-6b (Modules: Channels data IN) 303 5 5 IMP Question II-6c (Modules: US shipments by product type IN) 328 1 3 IMP Question II-6d (Modules: Quarterly US shipments IN) 331 3 2 IMP Question II-7a (Cells: Trade data ID) 337 5 12 IMP Question II-7b (Cells: Channels data ID) 401 5 5 IMP Question II-7c (Cells: US shipments by product type ID) 426 1 2 IMP Question II-7d (Cells: Quarterly US shipments ID) 428 3 2 IMP Question II-8a (Modules: Trade data ID) 434 5 12 IMP Question II-8b (Modules: Channels data ID) 498 5 5 IMP Question II-8c (Modules: US shipments by product type ID) 523 1 3 IMP Question II-8d (Modules: Quarterly US shipments ID) 526 3 2 IMP Question II-9a (Cells: Trade data LA) 532 5 12 IMP Question II-9b (Cells: Channels data LA) 596 5 5 IMP Question II-9c (Cells: US shipments by product type LA) 621 1 2 IMP Question II-9d (Cells: Quarterly US shipments LA) 623 3 2 IMP Question II-10a (Modules: Trade data LA) 629 5 12 IMP Question II-10b (Modules: Channels data LA) 693 5 5 IMP Question II-10c (Modules: US shipments by product type LA) 718 1 3 IMP Question II-10d (Modules: Quarterly US shipments LA) 721 3 2 IMP Question II-11a (Cells: Trade data NON) 727 5 12 IMP Question II-11b (Cells: Channels data NON) 791 5 5 IMP Question II-11c (Cells: US shipments by product type NON) 816 1 2 IMP Question II-11d (Cells: Quarterly US shipments NON) 818 3 2 IMP Question II-11e (Cells: Individual nonsubject sources NON) 824 5 8 IMP Question II-12a (Modules: Trade data NON) 865 5 12 IMP Question II-12b (Modules: Channels data NON) 929 5 5 IMP Question II-12c (Modules: US shipments by product type NON) 954 1 3 IMP Question II-12d (Modules: Quarterly US shipments NON) 957 3 2 IMP Question II-12e (Modules: Individual nonsubject sources NON) 963 5 8 IMP Question III-2b (Pricing products IN) 1012 8 13 D-GRIDs references (i.e., for use with the D-GRIDs tool) for: Crystalline silicon photovoltaic (CSPV) cells, whether or not assembled into modules from India (IN), Indonesia (ID), and Laos (LA) Inv. Nos. 701-TA-772-774 and 731-TA-1756-1758 Preliminary D-GRIDs spec sheet, p. 3 Question D-GRID number Columns Rows IMP Question III-2c (Pricing products ID) 1120 8 13 IMP Question III-2d (Pricing products LA) 1228 8 13 PUR Question II-1a (Cells: Purchases and imports) 18 4 10 PUR Question II-1b (Modules: Purchases and imports) 60 4 10 FOR Question II-3a (Cells: Overall capacity) 103 5 3 FOR Question II-3b (Modules: Overall capacity) 119 5 3 FOR Question II-9 (Cells: Trade data) 191 7 8 FOR Question II-10 (Cells: Resales exported to the US) 250 7 1 FOR Question II-11 (Modules: Trade data) 258 7 8 FOR Question II-12 (Modules: Resales exported to the US) 317 7 1 General note: Columns and Rows numbers relate to data entry fields only. D-GRIDs does not work with rows containing calculated fields. Legend PRO = U.S. producers' questionnaire IMP = U.S. importers' questionnaire PUR = U.S. purchasers' questionnaire FOR = Foreign producers' /exporters' questionnaire The D-GRIDs tool is a custom MS Excel application that allows USITC questionnaire respondents (and/or their APO counsel) to extract numeric data from the standard USITC questionnaire forms in MS Word as well as populate numeric data into the standard USITC questionnaire in MS Word. This document provides the inputs needed for the D-GRIDs tool in relation to the above referenced antidumping and/or countervailing duty investigation(s). ──────────────────────────────────────────────────────────── === A-533-942- India AD === Federal Register :: Request Access { "imports": { "application": "/assets/application-cc464116.js", "@hotwired/turbo-rails": "/assets/turbo.min-86bf8853.js", "@hotwired/stimulus": "/assets/stimulus.min-7ea3d58b.js", "@hotwired/stimulus-loading": "/assets/stimulus-loading-25917588.js", "controllers/application": "/assets/controllers/application-e5a449db.js", "controllers/site_feedback_controller": "/assets/controllers/site_feedback_controller-a99fc93f.js", "controllers/unblock_controller": "/assets/controllers/unblock_controller-9520f896.js" } } import "application" Request Access Due to aggressive automated scraping of FederalRegister.gov and eCFR.gov, programmatic access to these sites is limited to access to our extensive developer APIs. Please visit FederalRegister.gov API documentation or eCFR.gov API documentation to learn more about how to access the API. Your request has been flagged as potentially automated. If you are human user receiving this message, please complete the CAPTCHA (bot test) below and click "Request Access". You may occassionally be asked to complete the CAPTCHA again, this is normal and part of our security measures. unblock#handleSubmit"> Request Access An official website of the United States government. If you experiencing issues with the CAPTCHA or want to request a wider IP range, you can use the "Site Help" button found in the lower, right of this page to make a request. × IP Access Help This contact form is only for IP Access help. Please do not provide confidential information or personal data. * Your Name * Email * How can we help you? Upload Attachment * I am requesting technical help. site-feedback#openModal" aria-label="Open site help form"> Site Help ──────────────────────────────────────────────────────────── === A–821–838 - Indonesia AD === Federal Register :: Request Access { "imports": { "application": "/assets/application-cc464116.js", "@hotwired/turbo-rails": "/assets/turbo.min-86bf8853.js", "@hotwired/stimulus": "/assets/stimulus.min-7ea3d58b.js", "@hotwired/stimulus-loading": "/assets/stimulus-loading-25917588.js", "controllers/application": "/assets/controllers/application-e5a449db.js", "controllers/site_feedback_controller": "/assets/controllers/site_feedback_controller-a99fc93f.js", "controllers/unblock_controller": "/assets/controllers/unblock_controller-9520f896.js" } } import "application" Request Access Due to aggressive automated scraping of FederalRegister.gov and eCFR.gov, programmatic access to these sites is limited to access to our extensive developer APIs. Please visit FederalRegister.gov API documentation or eCFR.gov API documentation to learn more about how to access the API. Your request has been flagged as potentially automated. If you are human user receiving this message, please complete the CAPTCHA (bot test) below and click "Request Access". You may occassionally be asked to complete the CAPTCHA again, this is normal and part of our security measures. unblock#handleSubmit"> Request Access An official website of the United States government. If you experiencing issues with the CAPTCHA or want to request a wider IP range, you can use the "Site Help" button found in the lower, right of this page to make a request. × IP Access Help This contact form is only for IP Access help. Please do not provide confidential information or personal data. * Your Name * Email * How can we help you? Upload Attachment * I am requesting technical help. site-feedback#openModal" aria-label="Open site help form"> Site Help ──────────────────────────────────────────────────────────── === C-533-943 - India - CVD === Federal Register :: Request Access { "imports": { "application": "/assets/application-cc464116.js", "@hotwired/turbo-rails": "/assets/turbo.min-86bf8853.js", "@hotwired/stimulus": "/assets/stimulus.min-7ea3d58b.js", "@hotwired/stimulus-loading": "/assets/stimulus-loading-25917588.js", "controllers/application": "/assets/controllers/application-e5a449db.js", "controllers/site_feedback_controller": "/assets/controllers/site_feedback_controller-a99fc93f.js", "controllers/unblock_controller": "/assets/controllers/unblock_controller-9520f896.js" } } import "application" Request Access Due to aggressive automated scraping of FederalRegister.gov and eCFR.gov, programmatic access to these sites is limited to access to our extensive developer APIs. Please visit FederalRegister.gov API documentation or eCFR.gov API documentation to learn more about how to access the API. Your request has been flagged as potentially automated. If you are human user receiving this message, please complete the CAPTCHA (bot test) below and click "Request Access". You may occassionally be asked to complete the CAPTCHA again, this is normal and part of our security measures. unblock#handleSubmit"> Request Access An official website of the United States government. If you experiencing issues with the CAPTCHA or want to request a wider IP range, you can use the "Site Help" button found in the lower, right of this page to make a request. × IP Access Help This contact form is only for IP Access help. Please do not provide confidential information or personal data. * Your Name * Email * How can we help you? Upload Attachment * I am requesting technical help. site-feedback#openModal" aria-label="Open site help form"> Site Help ──────────────────────────────────────────────────────────── === C-560-847 - Indonesia - CVD === Federal Register :: Request Access { "imports": { "application": "/assets/application-cc464116.js", "@hotwired/turbo-rails": "/assets/turbo.min-86bf8853.js", "@hotwired/stimulus": "/assets/stimulus.min-7ea3d58b.js", "@hotwired/stimulus-loading": "/assets/stimulus-loading-25917588.js", "controllers/application": "/assets/controllers/application-e5a449db.js", "controllers/site_feedback_controller": "/assets/controllers/site_feedback_controller-a99fc93f.js", "controllers/unblock_controller": "/assets/controllers/unblock_controller-9520f896.js" } } import "application" Request Access Due to aggressive automated scraping of FederalRegister.gov and eCFR.gov, programmatic access to these sites is limited to access to our extensive developer APIs. Please visit FederalRegister.gov API documentation or eCFR.gov API documentation to learn more about how to access the API. Your request has been flagged as potentially automated. If you are human user receiving this message, please complete the CAPTCHA (bot test) below and click "Request Access". You may occassionally be asked to complete the CAPTCHA again, this is normal and part of our security measures. unblock#handleSubmit"> Request Access An official website of the United States government. If you experiencing issues with the CAPTCHA or want to request a wider IP range, you can use the "Site Help" button found in the lower, right of this page to make a request. × IP Access Help This contact form is only for IP Access help. Please do not provide confidential information or personal data. * Your Name * Email * How can we help you? Upload Attachment * I am requesting technical help. site-feedback#openModal" aria-label="Open site help form"> Site Help ──────────────────────────────────────────────────────────── === C-553-004 - Laos - CVD === Federal Register :: Request Access { "imports": { "application": "/assets/application-cc464116.js", "@hotwired/turbo-rails": "/assets/turbo.min-86bf8853.js", "@hotwired/stimulus": "/assets/stimulus.min-7ea3d58b.js", "@hotwired/stimulus-loading": "/assets/stimulus-loading-25917588.js", "controllers/application": "/assets/controllers/application-e5a449db.js", "controllers/site_feedback_controller": "/assets/controllers/site_feedback_controller-a99fc93f.js", "controllers/unblock_controller": "/assets/controllers/unblock_controller-9520f896.js" } } import "application" Request Access Due to aggressive automated scraping of FederalRegister.gov and eCFR.gov, programmatic access to these sites is limited to access to our extensive developer APIs. Please visit FederalRegister.gov API documentation or eCFR.gov API documentation to learn more about how to access the API. Your request has been flagged as potentially automated. If you are human user receiving this message, please complete the CAPTCHA (bot test) below and click "Request Access". You may occassionally be asked to complete the CAPTCHA again, this is normal and part of our security measures. unblock#handleSubmit"> Request Access An official website of the United States government. If you experiencing issues with the CAPTCHA or want to request a wider IP range, you can use the "Site Help" button found in the lower, right of this page to make a request. × IP Access Help This contact form is only for IP Access help. Please do not provide confidential information or personal data. * Your Name * Email * How can we help you? Upload Attachment * I am requesting technical help. site-feedback#openModal" aria-label="Open site help form"> Site Help ──────────────────────────────────────────────────────────── === A-553-003 - Laos - AD === Federal Register :: Request Access { "imports": { "application": "/assets/application-cc464116.js", "@hotwired/turbo-rails": "/assets/turbo.min-86bf8853.js", "@hotwired/stimulus": "/assets/stimulus.min-7ea3d58b.js", "@hotwired/stimulus-loading": "/assets/stimulus-loading-25917588.js", "controllers/application": "/assets/controllers/application-e5a449db.js", "controllers/site_feedback_controller": "/assets/controllers/site_feedback_controller-a99fc93f.js", "controllers/unblock_controller": "/assets/controllers/unblock_controller-9520f896.js" } } import "application" Request Access Due to aggressive automated scraping of FederalRegister.gov and eCFR.gov, programmatic access to these sites is limited to access to our extensive developer APIs. Please visit FederalRegister.gov API documentation or eCFR.gov API documentation to learn more about how to access the API. Your request has been flagged as potentially automated. If you are human user receiving this message, please complete the CAPTCHA (bot test) below and click "Request Access". You may occassionally be asked to complete the CAPTCHA again, this is normal and part of our security measures. unblock#handleSubmit"> Request Access An official website of the United States government. If you experiencing issues with the CAPTCHA or want to request a wider IP range, you can use the "Site Help" button found in the lower, right of this page to make a request. × IP Access Help This contact form is only for IP Access help. Please do not provide confidential information or personal data. * Your Name * Email * How can we help you? Upload Attachment * I am requesting technical help. site-feedback#openModal" aria-label="Open site help form"> Site Help
Investigation 701-TA-3838 is a U.S. International Trade Commission antidumping (AD) proceeding on Crystalline Silicon Photovoltaic Cells, Whether or Not Assembled Into Modules, from India, Indonesia, and Laos; Inv. No. 701-TA-772-774 and 731-TA-1756-1758 (Preliminary) from India, Laos, Indonesia. The ITC determines whether U.S. industry is materially injured (or threatened) by imports under investigation; Commerce determines whether dumping or subsidization is occurring. Both findings are required for an AD/CVD order to be issued.
701-TA-3838 is in the preliminary phase, with status completed. Preliminary phase — the ITC's initial 45-day determination on whether there's a reasonable indication of injury. A negative preliminary terminates the investigation; an affirmative one moves it forward.
Not yet. 701-TA-3838 has not produced an AD/CVD order in Tandom's catalog. If both Commerce and the ITC issue affirmative final determinations, an order would issue and link to this investigation. Until then, no cash deposits apply.
Tandom guides relevant to AD/CVD investigations
Cash deposit cascade, separate rates, all-others, and PRC-wide rates. Worked example on case A-570-910 (galvanized welded steel pipe from China) with three exporter-specific rates.
Open resource
Scope text is authoritative; the HTS list is illustrative. Read scope, find past rulings, and file a 19 CFR 351.225 inquiry. Worked example on case A-570-106 (wooden cabinets from China).
Open resource
The USITC publishes investigation determinations and milestones on its Investigations Data Service (IDS) at ids.usitc.gov. Tandom's catalog re-syncs from IDS daily; new phases, votes, and determinations appear here within 24 hours of USITC publication.
A practical workflow for checking antidumping and countervailing duty exposure on a US entry. For brokers and ops teams who need the answer before filing.
Open resource